THE FUTURE OF RESIDENTIAL SPECIAL SCHOOLS:

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1 THE FUTURE OF RESIDENTIAL SPECIAL SCHOOLS: A Submission from the Board of Halswell Residential College In response to the Ministry of Education Consultation Document: Development of a New Intensive Wrap-Around Special Education Service & Consultation on the Future Role of Residential Special Schools (May 2012) 15 June 2012

2 Contents 1 Submission Highlights (Executive Summary) Introduction/Background Who is this submission from? Approach Taken to Develop Submission Response to Consultation Questions Is there a continuing need for Residential Special Schools within the new proposed service? If so, what role should Residential Special Schools play? Do you have any other general comments regarding the proposal? Part 1: Halswell Residential College Board Perspective Governance Sector Leadership Part 2: Halswell Staff Perspective Curriculum, Teaching & Learning Part 3: Community Perspective Whanau Parents Students & Old Boys Appendices Appendix 1: LABS Process Parallels MOE Proposal Appendix 2: HRC Charter Success Outcomes for HRC Learners References P a g e

3 1 Submission Highlights (Executive Summary) 1. This submission from the Board of Halswell Residential College (HRC) is premised on three themes: a strong desire to work with others, to build on existing solid foundations, and to keep schooling at the community level. 2. We have a strong desire to work together with others to find solutions to complex problems. Residential Special Schools (RSS) as well as wrap-around services cater for intellectual disabilities, and the nature of the target group and services, bring into question, societal norms, philosophical pedagogy debates and recognition of the realities of societal acceptance of special education. The Board supports inclusive education as part of the continuum of service, however recognises it will take time to raise community understanding and acceptance, and grow capability. We as a Board know that for some of our students, mainstreamed education is not always appropriate. Despite these challenges we welcome the opportunity to work with the Ministry of Education and other colleagues committed to deliver the best available services to suit the needs of New Zealand s youth with intellectual disabilities. 3. We wish to build on the existing solid foundations of proven service models and wish to take care not to throw the baby out with the bath water. The HRC Board has embraced innovation over the years, evolving its services and practices. It and the management team are committed to continuous improvement and learning; however in our governance capacity, the Board is careful to not take risks with this vulnerable group of learners. 4. The Board questions the legality of the notice of closure sent to HRC by the Minister of Education, particularly in regards to the College s high performance to date, its close working relationship with the Ministry over the years, and the lack of an evidence-based alternate RSS service model. 5. The research underpinning the proposal is based on a different cohort of students to those at the intellectual residential schools (ie, primary school students with severe and challenging behaviours where no intellectual deficits were noted). We were unable to find any evidence in the literature, both nationally or internationally, that supported the use of the proposed model as an alternate service for children with intellectual disabilities, HRC s target cohort. 6. The Board believes residential schools play an important role in New Zealand s education system. It is critical that the residential intervention continue, particularly over the short term while any transition is made to a new service model. At the same time, the Board recognises maintaining the status quo is not an option in fact it has led change at Board and practice level. Change is inevitable and something the HRC Board has been guiding, in partnership with the Ministry for over 6 years and has a successful outreach service. Over the past 16 months, HRC has ensured that most students engage in their home communities, only utilising residential education when needs cannot be met in their local community. 7. The Board is keen to keep schooling at the community level where society can ensure governance and accountability is retained close to the local population it serves. One of the features of New Zealand s education system is governance at the local community, an approach that commenced with Tomorrow s Schools. In considering a new service in special education, the Board wishes to 3 P a g e

4 explore governance models that continue to recognise the autonomy of New Zealand schooling. It has developed an alternate proposal to that presented by the Ministry. 8. Rather than close New Zealand s residential special schools (RSS) as proposed, the HRC Board recommends an integrated service model that sits the role of in-residence RSS options alongside wrap-around services. This alternate proposal is a feasible model to explore that has similarities to the existing national schooling option for blind and low vision learners at BLENNZ. Here a small base school provides a campus hub for a nation-wide service (with regional presence via resource centres dotted around the country (see Figure 2 below). 9. The Board recommended approach features one cohesive RSS service that meets the continuum of need by: Establishing a single governance structure responsible for the delivery of all RSS services (ie, schools, satellites, outreach, professional development and independent living/life skills) Providing two co-ed RSS facilities to maintain a critical part of the spectrum of special education service options: One school would focus on intellectual disabilities, the other would focus on complex behaviour needs Developing a centrally coordinated outreach service would deliver to both intellectual and behaviour cohorts as well as a younger demographic (to align to current research that shows early engagement produces better outcomes) Ensuring all services are culturally appropriate, responsive and needs-based Initiating a programme of research on both the new wrap-around (outreach) service and the wider residential education to ensure we are running evidence-based programmes appropriate in a New Zealand context. 10. HRC has an excellent track record and presently demonstrates good practices across a number of RSS areas, and wishes to continue its evolution toward a centre of excellence in the RSS space. Other RSS participants also offer good practices that can be added together to provide for diverse learner needs. We look forward to working together to find solutions that minimise the risk for on-going education for this group of learners. While one size does not fit all, working together we can keep schooling at the community level, continue to transition to greater inclusive environments through a system of services built on solid foundations to ensure all learner needs are met with tested models and evidence-based solutions. 2 Introduction/Background 2.1 Who is this submission from? 11. This submission is a formal response on behalf of the Halswell Residential College Board to the Ministry of Education Consultation Document: Development of a New Intensive Wrap-Around Special Education Service & Consultation on the Future Role of Residential Special Schools (May 2012). The HRC Board is comprised of the following parent and staff representatives: 4 P a g e

5 Simon Buckland (Chairperson) - Wellington Emma McConachy - Auckland Maxie Duncan South Westland Stuart McLaren- Wellington Monika Johnson - Blenheim Mohammad Zareei (Staff Representative) Janine Harrington - Acting Principal 12. The HRC Board, in accordance with its governance role, has consulted with the Halswell Residential College community and staff. The Board s submission is set out in three parts to reflect issues from each of the three perspectives of: Board (governance and sector leadership) Staff (curriculum, teaching & learning, residential, outreach, support), and Community (including parents/whānau and learners) 13. It is noted that some of the above groups will also be making separate submissions to the Ministry to provide further detail surrounding their respective positions. 2.2 Approach Taken to Develop Submission 14. A targeted approach was taken to collect information for this submission. The contents are based on: A review of the MOE s proposal (consultation document and Mitchell Report (2012)) A targeted review of literature Interviews with HRC Board members, management, staff, and Matatipu students (Matatipu is the unit based at Hillmorton High School.) Correspondence with former students and families (Old Boys) seeking input. 15. This submission does not cover detailed costing of a potential future RSS model. 2.3 Response to Consultation Questions 16. The following section provides a general response to the specific consultation questions, with further detail provided from the various Board/staff and community perspectives below Is there a continuing need for Residential Special Schools within the new proposed service? 17. Yes. The HRC Board supports the direction of the new proposed service, as one service model across a continuum of service provision for children with special needs (ie, a residential schooling component remains a required part of the continuum of options for learners). ERO acknowledged, that there is a need for some kind of residential care and treatment for children, (2008:23). RSS provide a critical 24-7 schooling option for children with complex intellectual disabilities and behavioural needs, something that cannot be easily, if at all, replicated in the community. 5 P a g e

6 2.3.2 If so, what role should Residential Special Schools play? 18. When considering what role RSS play within the context of the new proposed service, it is useful to reflect on their existing role and how the service fits within the continuum of schooling options presently available in New Zealand. There must be a continuum of service provision, including residential school options, for these students RSS provide a flexible approach according to individual need recognising one size does not fit all. 19. Figure 1 illustrates where RSS sit on the continuum of special education service options, offering a 24-7 support to learners and their families/whānau across a range of settings. RSS not only offer inresidence education options, but also provide critical professional development and share best practice in satellite classrooms and through outreach services. 20. HRC is a unique school that serves young people with intellectual disabilities (an intellectual deficit combined with problematic social, emotional and/or behavioural needs). Figure 1 indicates the target group for RSS which offer schooling alternatives for learners who do not fit mainstream options and require one size fits one solutions. Often the learner needs require 24-7 support across a range of settings When considering if the Ministry s planned wrap-around service could be an alternate service option for residential schooling, the Board noted the research underpinning the proposal was based 1 Published interventions carried out in schools, treatment rooms, and residential settings appear to be the most effective, and intervention in mainstream settings is not associated with better outcomes. Effective interventions are likely to be implemented by a professional or teacher, involve peers in that setting, and be carried out in a number of controlled contexts (residential, school, treatment room), Meyer & Evans (2006:102). 6 P a g e

7 on a different cohort of students to those at the intellectual residential schools (ie, primary school students with severe and challenging behaviours where no intellectual deficits were noted). We were unable to find any evidence in the literature, both nationally or internationally, that supported the use of the proposed model as an alternate service for children with intellectual disabilities. 22. The learner profile at Halswell has the following characteristics: Students have an underlying intellectual impairment, qualify for the Ongoing Resourcing Scheme (ORS) or are just below ORS verification, and may have a range of syndromes or disorders which affect their learning, including Autism, Aspergers Syndrome, Foetal Alcohol Syndrome, Prader Willi Syndrome, Downs Syndrome, ADHD, Oppositional Defiant Disorder, etc. Require significant adaptation of almost all curriculum content Typically receive educational support throughout their schooling Have educational, social, emotional and behavioural needs that are not currently being met by resources available in regular mainstream settings Frequently have complex social, emotional and or family issues which impact their education. 23. HRC is classed as a decile two school. The following provides a snapshot of the current circumstances of the students in residence and attending Matatipu (based on diagnosed conditions as reported to HRC): The majority of parents/caregivers are blue collar workers mainly in lower paid positions (cleaner, scrap metal worker, etc), often beneficiaries, with the remaining few superannuitants The student home situations range between not living with birth parents (ie, in adopted, foster care, or with other family members), or living with a single parent Birth parents are often diagnosed with mental illness, have diagnosed learning disabilities, diagnosed substance abuse and dependence, several have criminal convictions, and a third of the families have Child, Youth and Family involvement. 24. Fundamentally, HRC supports inclusion for many students, but not all, as some have very complex needs that have not been able to be catered for in mainstream schooling (and indeed their presence in the classroom was severely detrimental to the learning of the other students). With medical advances, the number of learners in this group is increasing, suggesting a potential growth in demand for services rather than a reduction. 25. Students who present with an intellectual disability may be predisposed to suffering from mental health issues which can present alongside the onset of puberty. This has the potential to be exacerbated if the student is placed in an educational setting where they may not feel safe and/or secure. It is important during this process to be conscious of meeting the holistic needs of the individual student in order to assist with their mental health and well-being. The reality is students with intellectual disabilities and complex needs can often be the victims of bullying in some educational settings. 2 2 London (2011) discusses the value placed on residential schooling for girls with special learning, social, emotional, and behavioural needs, where overall, all stakeholders felt that the school served a purpose. Participants, strongly support 7 P a g e

8 26. Residential educational placement provides opportunity for meeting holistic learner needs, improving presence, participation, and learning achievement through: Personalised education plans A specialised environment Opportunities to build self esteem Programmes designed to develop the student s social and life skills Structured interaction in a range of community settings Consistency in approach, across times and settings, to enable improvements in a student s ability to manage their behaviour appropriately Working with families, communities and schools while learners are inresidence 27. The HRC Board does support the notion of a wrap-around service in conjunction with a residential base component. It recognised this during the development of the Matatipu Unit. It was from this satellite arrangement that the notion for the HRC Learning and Behaviour Support (LABS) Programme evolved. The LABS intervention services the RSS learner group in a similar manner to the proposed wrap-around service as set out below (see Appendix 1 for details): Liaison pre-service Reintegration post-service (including offering community support for service providers) Centre of expertise and knowledge o Learners o Teachers o Other schools Parental support and skill building Curriculum (24-7) Cultural learning context (including Ka Hikitia) Co-ordination (across Special Education (SE), with other agencies (eg, Strengthening Families model), specialists, Resource Teachers: Learning and Behaviour (RTLBs) etc) Funding students professional needs (eg, psychologists, speech language therapists, teacher assistants). 28. Similar features appear evident between the HRC LABS Outreach Service and the Ministry's proposed new intensive wrap-around service as set out in the HRC outcomes 3 sought for its students (eg, focus on giving all students (receiving a service) the opportunity and support they need to live at home and learn and achieve at their local school, and provide an opportunity to improve the skills, knowledge and expertise of schools and communities who help and support students with complex behaviour, social and education needs). Both service settings rely on specialist services, a comprehensive plan, and participation by a range of other agencies. Finally, there is also focus on a continuum of services, including special residential schools as the setting was more inclusive for the girls as they did not experience the marginalisation of the mainstream, (p6). 3 The HRC Charter provides detail of the successful outcomes sought by HRC for all students with complex intellectual needs (p23) see Appendix 1: HRC Charter Success Outcomes for HRC Learners. 8 P a g e

9 developing the expertise, skills and knowledge of the students schools and communities, as well as providing support to students families (See MOE Proposal, pp7-9). 29. With such comparable processes, outcomes and structures, there may be ways to build on the existing outreach services, rather than set up new options. The Board would be keen to work with the Ministry and others to understand ways to improve on the current system, rather than support a service as yet untested on the students with intellectual disabilities that are at HRC and Salisbury. 30. The HRC LABS service supports students in their home community to develop skills in the five priority areas 4 through family, community and learning support (including the Matatipu programme based in Christchurch at Hillmorton High School). The approach taken by HRC is to keep students in the community. Only students who have been referred to the LABS programme at Halswell Residential College will be eligible for residential enrolment, (Charter p6). This approach supports the notion of the service continuum where a student will only move through to residential care if the community cannot meet their needs with the outreach support HRC and its Board are forward thinking and indeed wish to improve the delivery at the local community level as set out in the College Charter and Strategic Plan. The Board believes it is important to keep schools and schooling interventions within the sector. Providing an intensive wrap-around service as is proposed could be managed through the school system, in line with the Tomorrow s Schools model of self-governance. There would be much work to be done in this regard, however considering governance, management, and contracting issues surrounding service provision, a school-based option provides less risk than implementing a new service model and retains a high level of care for those learners already in the system. Opportunities for Integrating RSS Network & Developing Partnerships 32. Rather than close New Zealand s residential special schools (RSS) as proposed, the HRC Board recommends an integrated service model that sits the role of in-residence RSS options alongside wrap-around services. The concept builds on the strong foundation of HRC s demonstrated ability to deliver an outreach service supported through the strong base school. The home campus concept provides a foundation from which existing residential and related services might be better coordinated. Taking a network management approach in this way could connect RSS provision in New Zealand under one umbrella. 4 The five areas are: connection to family/whanau and others; skills and independent living; engagement in work/study/training; links to health, community and support agencies; and involvement in recreation/social activities. 5 It is envisaged that the majority of students being assisted by LABS will not subsequently be enrolled in a Residential School, although this option still exists for those with the highest level of need. Enrolment in Residential Education needs to be approved by the joint enrolment committee after an application is prepared by the LABS team. A student is initially enrolled at the college for 12 months. In certain circumstances this may be extended for up to one further year. Students will be in year levels 7-10 on enrolment. Enrolment at the College provides the opportunity for students to develop the skills, knowledge and attitudes that will assist them to return to their community in the most effective manner, living as independent a life as possible in a safe and nurturing environment. 9 P a g e

10 33. This alternate proposal is feasible to explore with its similarities to the existing national schooling option for blind and low vision learners at BLENNZ. BLENNZ has a national campus at Homai School in Auckland which provides a campus hub for its nation-wide service. The base school provides a centre of excellence concept, with outreach through Visual Resource Centres geographically distributed across NZ. Professional support services are provided nationally through local providers, connected nationally by established standards and in future, a planned national body for vision professionals. BLENNZ also operates immersion courses on the Homai campus (to take advantage of its residential function) and the base school is also home to national functions, administration, community outreach and family/whānau support (eg, a wharenui is located on Homai campus). 34. Figure 2 provides an indicative visual of the BLENNZ network (see grey boxes). The HRC Board s recommendation for one cohesive RSS service features are in the navy boxes (left side of Figure 2): 35. The recommended integrated RSS approach features the following: A single governance structure responsible for the delivery of all RSS services (ie, schools, satellites, outreach, professional development and independent living/life skills) Two co-ed RSS facilities to maintain a critical part of the spectrum of special education service options: One school would focus on intellectual disabilities, the other would focus on complex behaviour needs 10 P a g e

11 A centrally coordinated outreach service would deliver to both intellectual and behaviour cohorts as well as a younger demographic (to align to current research that shows early engagement produces better outcomes) Culturally appropriate, responsive and needs-based services, and A programme of research on both the new wrap-around (outreach) service and the wider residential education programme to ensure we are running evidence based programmes appropriate in a New Zealand context. 36. There are numerous benefits of the integrated approach including: Delivering more services to learners by reallocating existing RSS investment (eg, centralising delivery of RSS services to approximately students 6 across NZ through two schools frees up funding for services due to economies of scale achieved by reduced admin/infrastructure costs, particularly if co-locating co-ed students as is proposed) Ensuring consistent levels of service nationally Maintaining service and programme fidelity across national services delivered through a nationally coordinated itinerant teaching staff Building capability in mainstream settings Allowing geographic reach, and Providing an ability to reach more students in need (eg, ring fencing current RSS budgets to allocate funding to target more learners across the tiered services) HRC has an excellent delivery track record and presently demonstrates good practices across a number of RSS areas. It wishes to continue its evolution toward a centre of excellence in the RSS space. For a number of years, the thinking behind an integrated network and the possible future direction proposed herein, has influenced HRC s Strategic Plan, Charter and led to the set-up of Matatipu, the HRC satellite class at Hillmorton High School in Christchurch, and later the evolution to the LABS outreach programme As with any new approach, it is important to minimise the risk of service disruption to this vulnerable group of learners. That is why HRC wishes to keep schooling within the sector and to build on existing strengths. Other RSS participants offer good practices that can be added together to provide for diverse learner needs in the proposed model. We look forward to working together with them and the Ministry. We know that schools respond well to working with other schools. In HRC s experience, delivering the Check and Connect programme for example, as well as building capability in mainstream settings shows how schools are more responsive to another school delivering these services. There is a mutual respect and understanding within the schooling sector amongst its 6 It currently costs approximately $4.2m to run the residence on a notional roll of 90 students. 7 It will be essential to ring fence funding for intellectual and behavioural needs to ensure investment from intellectual need learners is not slowly shifted to behavioural learners as the latter may be easier to demonstrate that learners are achieving outcomes. 8 The satellite delivers support to students at their place of residence, and in class that leads to future work, school/wananga, or a learner appropriate post-schooling placement. It integrates across a range of agencies to improve integration for learner services. 11 P a g e

12 colleagues. It will be important to build on this respect and the existing foundations in transitioning to any new service delivery model. Investment Considerations 39. There are a number of investment issues that require clarification beyond the simple economies of scale argument that supports integrating RSS elements into a centralised model. These issues are best illustrated against the backdrop of the Ministry s assertion that intensive wrap-around services can be offered at a much reduced rate to in-residence options. While the discussion below is not exhaustive, it does point out several dimensions that require further analysis. 40. First, it is noted that any change will take time and the cost of change and the future model is not always cheaper. It is important to acknowledge the opportunity for greater returns on the current level of investment (in services and assets) held within the current structure of residential special schools might be better reallocated to some combination of a reduced residential schooling component and an increased wrap-around component however, this will occur over time and once alternate provision is proven to have lasting outcomes (this has not happened yet). 41. Second, the cost of residential services as compared to youth justice facilities such as Te Puna Wai (Rolleston) or prison, can move per person costs upward to $90k per annum (excluding any court costs and impacts on victims and society). Many students were heading down the criminal path, but changed through a residential intervention. 9 A parent told us of her son s experience: He would have been in a lot more trouble. Was well known to police but was only involved once while he was in Tauawa and once at Matatipu. That's pretty good for my son and I'm proud of him. There should be more schools, not less. My son would have been in a youth prison if you were not here. 42. Third, the Ministry s document was not detailed to enable the Board to determine true costs and seeks further clarity. For example is the cost of services provided by residential schools the Ministry has quoted as between $70,000 to $90,000 a year per student limited to in-residence and/or LABS? Also, the nature of services offered for the ex-waimokoia 10 pupils, were they comparable to the HRC population (year 7-13 school students with intellectual disabilities)? Once true cost comparisons are available, then an appropriate mix of RSS and IBS can be determined (and informed investment decisions made). It is essential that the Ministry has a robust costing analysis which is one of the strong drivers in delivering a new model One student at Matatipu (our satellite classroom at Hillmorton High) who had resided at HRC wrote: Being at HRC has kept me out of trouble and off the streets. I was hanging out with gangs before I went to HRC and getting into lots of trouble. The residence kept me busy on the weekends and during the week. I got to do lots of things I had never done before. I had been expelled from my last two schools and no schools wanted me. I arrived at HRC angry and not wanting to be there. I learnt heaps as the way the classroom approached me and my learning was so different to how other schools did it. I was finally learning. Staff listened to me and I wasn't blamed for everything like my last schools. 10 Waimokoia Residential Special School catered to 30 primary school students with special needs. The Waimokoia population is not directly comparable to the Halswell and Salisbury student demographic. 11 A number of other costing issues need clarification: First, comparing a three year maximum support through itinerant service vs under two year residential component (per annum cost for IBS over three years vs outcomes of 2 years RSS) so interventions are needs-based not time limited; Second, with Waimokoia, the Ministry noted they were able to provide for twice as many children and got really good outcomes in terms of their ability to engage. Twice does not 12 P a g e

13 Māori Learning as Māori 43. The HRC Board supports learners remaining in their home community. This principle applies to Māori students as well as non-maori. The approach underpins policy such as Whānau Ora and is culturally appropriate. However, there is also a real and demonstrated need for a residential programme that delivers successful educational outcomes, reinforces particular behaviours and builds on positive elements of their identities, as young Māori students. 44. Some of the whānau of Maori learners shared their experience of how learning at HRC was a cultural fit: My boy wasn't accepted by the Maoris up here because he was light. When he learned all the Maori stuff people up here stopped giving him a hard time. My boy came back changed. He was respectful and helped around the house. Tauawa taught him the Maori stuff about respecting your elders and not to be selfish. He was always scared of the Maori stuff but not now. 45. Working well with the disproportionately represented group of young Maori students is a focus that HRC is proud to demonstrate in its services. Over the past 6 years, HRC analysis of variance data supplied annually to the Ministry of Education shows that Māori learners are achieving at similar levels as non-māori. In literacy, Māori students have been achieving a greater than average increase, (eg, 1.03 years cf 0.83 years for other learners); and in numeracy and literacy, gains for Māori are at least equal to non- Māori. ERO (2008:10) acknowledges, [t]he over-representation of young Māori males with complex needs 12 raises issues about who can best work with them and their families and the levels of skill and training required. 46. Students at HRC obtaining a good level of numeracy and literacy is: vital in the workplace and in everyday life, and for establishing foundations needed for lifelong learning, (MOE). Conversely, underachievement in reading and mathematics disadvantages children, as it has an adverse impact on most aspects of their schooling, their self-esteem, and their long-term educational and life aspirations and outcomes, (Chharbra & McCardle, 2004; Winch, Johnston, March, Ljungdahl & Holliday, 2006). 47. Part of the success at HRC is the method of engagement with whānau. In Aotearoa New Zealand, it is essential that there be involvement and collaboration with whānau respectful of the mana and contributions of community to intervention design, and evidence is promising that the incorporation equal 29k/student, and we are aware some Waimokoia students went on to Westbridge (ie, did not receive IBS); Third, it is noted that the ability to measure and achieve outcomes for behavioural issues is easier than with intellectual issues as the latter are often hard-wired into a person through some form of genetic disorder, or through irreparable damage to the brain. Behavioural issues are often more an attitudinal problem that can be coached and improved. Given the distinctions, it would be important to clarify ring-fenced funding for different needs to ensure equity across service provision (ie, resisting the urge to transfer funding to the most easily tracked outcomes). Fourth and finally, does the Ministry s cost estimate include a residential component where required (eg, cost of students in group homes with 24-7 professional services)? 12 Moore, Anderson & Sharma (2006:54); Church (2003:114). 13 P a g e

14 of culturally appropriate principles and practices will have a positive impact on child and family outcomes, (Meyer & Evans (2006:102)) Do you have any other general comments regarding the proposal? 48. The limited level of inclusion in New Zealand communities 13 increases the risk of failure of implementing the wrap-around service too soon, and without any stop gaps where the service may not reach all learners. Rather than closing residential special schools in response to negative community perception, when it appears that it is meeting the needs of the parents/whānau perhaps the situation is actually in reverse and it is the community that needs to change, (London 2011:113). 49. The HRC experience during the 16 months of running our outreach service has shown many schools simply are not resourced and/or interested in adapting the curriculum for special educational needs students. Principals have stated they don t have the staffing or desire to contract services. The willingness of schools to participate as having a key role in educating the target group of learners needs to be gauged accurately to avoid learners being segregated and isolated in mainstream settings. 50. All the evidence available shows wrap-around services offer effective support to students in their home environment, (MOE Spokesperson, TV3 interview). The Minister herself notes the new approach, is beginning to show good outcomes, but does not provide research or empirical evidence of the service outcomes to support the claim. Mitchell (2012:8) however, states: the strength of the evidence that wraparound can positively affect child and adolescent outcomes is rather mixed (emphasis added), but trending (emphasis added), in favour of wraparound, compared with the more traditional approaches. The HRC Board is concerned that the Waimokoia pilot was based on behavioural not intellectual populations, and as two different cohorts, the results are not directly comparable to the cohort of HRC and Salisbury school target populations. 51. Waimokoia was closed three years ago and the intensive behaviour pilot commenced thereafter. Not only is the short duration of the pilot experience insufficient to make such sweeping generalisations, but also, unfortunately the Ministry has not provided any evaluation of the proposed service as part of the consultation process. The service has merit in theory; however, there is risk in eliminating a key part of the special education continuum of services. Prematurely closing residential schools prior to better understanding the longer term success/failure of this new service, particularly without proper evaluation would be a tragedy. 52. The Ministry s proposed wrap-around service has been developed on the back of the closure of Waimokoia School and therefore looks to meet the needs of primary school aged students with severe and challenging behaviour. Conversely, HRC's students have intellectual impairment and are of an older age group quite different from those students the Ministry has been monitoring in a wrap-around model. We are unable to find any evidence in the literature, both nationally or 13 NIMBY attitudes are alive and well as demonstrated with the current debate in Bucklands Beach, east Auckland, where a new Thurston Place College school for troubled children is proposed to provide education for 100 children from abusive backgrounds. Residents are concerned the college will create a lot of risk to our children, despite CYF comments that, students, are vulnerable children living in your communities. ( 14 P a g e

15 internationally, which supports the use of this model with our cohort of students, therefore the Ministry s research has not fully explored the implications on these boys. 3 Part 1: Halswell Residential College Board Perspective 3.1 Governance 53. The HRC vision is: Whakarangatirahia / Be the best you can be. It is a vision the Board adheres to personally as well as for the College. Our mission is: To provide and nurture learning and living environments where each student's strengths are developed to their fullest potential for success in their community. The Board understands that to deliver its mission in the current special education environment will require changes to the status quo. It is keen to work with the Ministry to better appreciate where areas of improvement exist. 54. The Minister wrote to the Board on 4 May 2012 outlining a notice of closure. Our interpretation of s 98 (2) of the Education Act 1989, is that justification for closure is [the Minister s] dissatisfaction with the service being provided or that sufficient provision is made by an alternative service. The Board has never received from the Ministry or the Minister, any feedback regarding dissatisfaction with HRC s service provision. Further, at the time of the notice of closure, there was a lack of an alternative model. The Board thus challenges the legality of the notice of closure as no evidence for either condition has been presented. 55. To the contrary, HRC is meeting the needs of the Minister of Education s three national key priority areas through its target learner group including: Addressing the long tail of underachievement in the New Zealand Education System Maori having the opportunity to experience success as Maori Meeting the needs of special education students throughout New Zealand. 56. The work at HRC also contributes to both priorities of the Ministry s current Statement of Intent: to ensure the education system delivers on the Government s key goals by focusing activity on two priorities: Improving education outcomes for Māori learners, Pasifika learners, learners with special education needs and learners from low socio-economic backgrounds; and maximising the contribution of education to the economy. The demographic profile of HRC students match the MOE s first priority area, and the life skills curriculum at Matatipu and in the Pathways Programme match the second. 57. Māori students achievement levels in reading, writing, and mathematics have been an area of national concern for the Ministry of Education (MOE), teachers, teacher educators, Māori academics, and the Māori community over several decades. Within a predominantly Europeanbased education system, educators are challenged to ascertain pedagogical practices that more effectively meet the needs of the growing numbers of learners with bicultural and diverse ethnic, cultural, and socio-economic backgrounds (Statistics New Zealand, 2007). At HRC however, evidence shows Māori are achieving in the tikanga-based villa with links to the bilingual classroom which are assisting HRC to meet the diverse cultural needs of its students. 15 P a g e

16 58. The HRC Board agrees with the Minister s request that, it is important to consider the longer term best interests of the children and young people the school serves. The HRC serves students in a national catchment, in residence and through its outreach programme, including families mostly reflecting a decile two, lower socio-economic situation. Over time, parents of HRC students have increasingly become characterised by the complexity of the issues impacting on a student s education. 59. It is precisely with a view to this group of learners and families, the HRC Board, in its governance role, has a responsibility to safeguard schooling services that meet the needs of this target group into the future. 14 The Board believes that the present circumstance of society, is not completely inclusive, which means some intellectually disabled students will never have their needs best met in mainstream settings. For this reason the Board seeks: A proper problem definition and rationale as to why a notice of closure was received by HRC with evidence that is specific to the current HRC service offering, as HRC is already doing much of what the Mitchell Report (2012) recommends, 15 and Evidence that current HRC offerings can be sufficiently provided for with the alternative wrap-around service proposal (assuming it can be defined with sufficient clarity), including direct comparability with HRC outcomes for high and complex behaviour and intellectual needs (including in-residence options for Māori and non-māori students). 60. Providing this evidence is essential to ensure the needs of the target group of learners and families/whānau are met over the longer term. Given the proposed closing of HRC, the evidence is also required from a legal perspective, and as such must be collected and supplied, rather than simply claimed to exist without evidence, or beginning to show good outcomes. The stakes are too high for this already vulnerable group to be left for a social experiment without a fall back service International research confirms the longer term needs for specialist care including residential options due to significant increases in numbers of young people with disabilities (London 2011; MacBeath, Galton, Steward, and Page, 2008). HRC students present with a range of disabilities including Autism, Aspergers Syndrome, Prader Willi, Downs Syndrome, head injury, and Foetal Alcohol Syndrome. 15 HRC works across pedagogical contexts, has evidence based interventions (Triple P Parenting Programme etc), applies one size does not fit all through individualised education plans (IEPs) and Functional Behaviour Assessments (FBAs). It works in a strengths-based manner. The Adaptive Behaviour Assessment System (ABAS) is joined up and coordinated via different services: outreach teams work closely with community organisations, families, schools and the student, have a continuum of provisions from LABS to residence, support whānau/families. We feature a less intrusive intervention style with our family support team and Kaitakawaenga (whānau support worker) for programmes that are culturally responsive and work from a least intrusive intervention. 16 Brandon School in Massachusetts was founded in 1966 by Dr Tim Callahan. It is a NGO provider of services comparable to RSS in New Zealand. Dr Callahan noted that upon closure of the state RSS provision in the 1970s that Brandon School received an influx of parents unable to seek alternate appropriate care in mainstream settings. He is concerned that if the RSS system is closed in NZ, it would be impossible to re-establish new facilities due to NIMBY a phenomenon currently being experienced with Thurston College in Auckland-he noted you could not receive zoning approval for Brandon School now. He also advised that NZ s community governance model for schools makes it one of the best systems in the world, and it should be maintained at all costs (pers coms, Timothy M. Callahan Ed.D., 14 June 2012). 16 P a g e

17 61. HRC has had sound and stable governance and has not been subject to a statutory intervention (eg, commissioner). It is in a good position to continue its previous leadership role of evolving the nature of future RSS services in NZ. 3.2 Sector Leadership 62. The HRC future strategy has taken into account issues emerging over the past several years including: Duration of Residential Stay: Recognising the set period of two years for enrolment was not appropriate for all students, as some reach goals earlier, we have moved to a needs based enrolment period (ie, HRC students can return to home community early, with appropriate supports in place; note also the flexibility demonstrated during post-earthquake arrangements for learners to return to home settings); and Reintegration issues: 17 Halswell College was aware that students transition from residence could be improved. HRC now develops the transition plan before a student is accepted into residence and provides on-going support for the student in the community (ie, HRC Outreach service has seen that a student s development continues post-residence to continue seeing positive results). 63. The Board recognises limitations of the school to bring about change in culture at mainstream schools, and that there are limited well-defined and agreed measures of success (at schools and MOE) that can provide evidence of better outcomes for children. There is always room for improvement, and the Board is keen to continuously improve by working with others, while building on its solid foundations. 4 Part 2: Halswell Staff Perspective 64. HRC takes a multi-disciplinary approach to collaborate at individual, structural and management levels. Residential school staff and day school staff work together, as breakthroughs can come any time during the 24-7 services. In a residential school setting, [t]he level of the care and combined professional and pedagogical intervention evident would be difficult to replicate in the mainstream [where] the reality between policy rhetoric and current practice is wide, (London, p118). HRC staff are concerned with the risk of assuming all schools will be inclusive. They note that any proposed system changes need to consider the skill levels and experience of the wider teaching community. 65. HRC has enjoyed award-winning teaching practice, 18 with its Outreach programme enjoying much success in communities, including hard to reach rural areas: It wasn t until HRC coordinated the local services in XX that we were able to meet the needs of XX, (Deputy Principal of XX). Building 17 Greater focus on reintegration is needed to ensure students transition and benefits gained while attending residential schools are not lost and they can become fully included into their communities and ultimately the larger society (London 2011:114). 18 Maree Edwards, a teacher at HRC was recognised this year as one of twelve recipients of the National Excellence in Teaching Award. The award publicly recognises teachers who demonstrate excellence and commitment in their work. 17 P a g e

18 capability in mainstream schools is a long term solution, one HRC staff are committed to. It demonstrates the commitment across the curriculum in its teaching and learning programmes (described below). 4.1 Curriculum, Teaching & Learning 66. HRC offers a services across a range of 24-7 residential functions and outreach, professional and school development as illustrated in Figure 3 below: In-Residence Component 67. Residential special education for students with diverse learning needs continues to be one of the most complex and contested areas on the education spectrum, (London 2011:6). Still, the decision to move away from the mainstream setting towards what would be called the margins or segregated provision brought many benefits and contributed to feelings of well-being, (p116). The area is complicated as there is a paucity of research conducted with current students of RSS (London s 2011 paper is first NZ study on the target group, p116). Providing a residential component with needs based specialised programmes which is not institution focused, can also include needs based stays for students who require 24-7 intervention to stabilise learning and behaviour. Residential Villa Pathways Education Programme & NZQA Links 68. HRC is committed to delivering an effective curriculum that has fluency across residential and day school practice. Goals are set through each student s IEP with opportunities to reinforce skills in both locations. HRC links the Pathways Programme to the five key competencies and the College s 18 P a g e

19 priority learning areas. We note that no other residential school in New Zealand provides a residential programme that links to the New Zealand Curriculum. 69. The Pathways Programme develops adaptive behaviour skills and assists students to obtain a nationally recognised qualification called the Certificate in Work and Community Skills (Supported Learning). Very few students are able to complete NCEA papers and subsequently, the certificate is the only nationally recognised certificate students can obtain while at the College. The suite of papers available includes five supported learning tikanga concept standards which reinforce the work done in the Tauawa Villa. 70. The benefits of the HRC Pathways Programme run in the villas: Provides a structured educational programme in the villas linked to the New Zealand Curriculum. Assists students to gain a nationally recognised certificate. For some intellectually disabled students this will be the only qualification they obtain. Is a strengths-based model (as per Mitchell s Joined Up document services for children and young persons with complex needs and their families is predicated on several principles, including: the underlying philosophy driving the provisions of such individuals is a strengthsbased model, rather than a deficit model). Develops each student s adaptive behaviours. This will make the student more independent and capable in the community. This is especially important when the student s health and safety level is at a 5 year old level making them a risk to themselves and the community. Our academic results have shown our students develop on average between 2-3 years in each of the 10 areas every year they are here. It is not uncommon for some who have come from chaotic homes where such skills are not modelled or taught to gain 5-6 years in one area in one year. Provides them with skills they are less likely to obtain at school but are a natural part of living in residence (wash their own clothes, use a small electrical appliance like a blender, maintain clean fingernails, shave independently, etc). Affords opportunities for reinforcement of learning between the villa and school settings. Learning and Behaviour Support Programme 71. The Learning and Behaviour Support Programme (LABS) is a service for students with intellectual disabilities (an intellectual deficit combined with problematic social, emotional and/or behavioural needs) which includes a wrap-around service that provides: A skilled and dedicated intervention service for students with intellectual disabilities who have exhausted the resources of Resource Teachers of Learning and Behaviour (RTLB), and Special Education staff Locally based interventions in a student s home area A national gateway into the service which ensures the students with the highest level of need are receiving the benefits of the service A continuum of intervention based on the principle of least intrusive intervention 19 P a g e

20 A wrap-around service based on the above principles, which provides support to families, schools, communities and individuals to ensure these students are engaged in high quality education. 19 Tauawa Villa 72. The College has a residential villa that is steeped in tikanga whakaaro (key concepts in Maori culture). The villa works in partnership with a dedicated bi-lingual classroom in the day school. In the villa we have a karakia room where the students start and end their day (incorporating karakia, waiata etc). We operate a tuakana teina relationship system, an integral part of traditional Māori society, where the more expert tuakana student helps and guides a younger or less expert teina student. 73. Students are actively involved in the local Maori community having class camps at local marae and attending taiaha hui. The students are taken eeling, learn how to bake bread, have boil-ups, celebrate Matariki, etc. We welcome all visits with a full school powhiri or whakatau so non-maori students are exposed to Maori culture. Our staff receive extensive training in te reo, although we admit we would like to be better in this area. We have a Kaitakawaenga (whānau support worker) who works with our Maori families. We attempt to look at how the students can experience occasions from a Maori perspective and learn about the Maori heroes who have gone before them. For example, this year we shared our Anzac Service with a member of the Maori Battalion and other Maori returned servicemen. After the service we shared kaimoana. The Maori Battalion flag was hung under the New Zealand flag. 74. Embracing the principle of ako enables teachers to build caring and inclusive learning communities where each person feels that their contribution is valued and that they can participate to their full potential. This is not about people simply in Wellington getting along socially; it is about building productive relationships, between teacher and students and among students, where everyone is empowered to learn with and from each other. Matatipu 75. One of the HRC students tells of their experience at Matatipu: When I was in primary school it was fine however once I got into intermediate it went all wrong. At xx Intermediate I felt the staff were racist. I was blamed for lots of things I didn't do. I used to get angry as I was never believed and I felt I was not listened to. I got so angry I tried to burn down the school. I was excluded from this school. I had to stay at home and do school work from there. I had little to no support and I ended up doing no work at all. I then went to xx High School where I lasted 2 weeks before being asked to leave. I brought drugs to school and sold it. I was then sent to HRC. When I first went there I didn't like it. It was only when the Earthquake hit and I had to go to Matatipu for my study that I realised how much HRC had helped me. It was fun living there. I made lots of friends and I started to regret some of the trouble I had previously done at my old school. I wanted to do go and do something with my life. Matatipu has provided me with a life skills programme that supports me in the work force. I work 3 days a week and am now working on 19 HRC Charter, page P a g e