Argyll and Bute Council. Community Services : Education. Organisational Development Report and Education Management Review for Executive Director

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1 Argyll and Bute Council Community Services : Education Organisational Development Report and Education Management Review for Executive Director Lesley R. Brown HMI Education Scotland August 2013

2 Contents Introduction 3 1. Nature and Scope of task 4 2. Background and Context 6 3. Summary of Key Themes 9 4. Options for the future The Assessment Criteria The Options Appraisal Recommendations and Proposals Implementation Appendices Appendix 1 Consultation Questions 38 Appendix 2 Consultees 39 Appendix 3 Key evidence 40 Appendix 4 Current structure 42 Appendix 5 Options Diagrams 43 Appendix 6 Costings 47 2

3 Introduction The Executive Director: Community Services in Argyll and Bute Council approached Education Scotland in December 2012, seeking support to look at possible restructuring of the central team within the Education Service. The Executive Director was keen to secure independent and impartial support to allow a full review of the current structure to be carried out and a new structure to be developed. In recent years, the Education Service had undergone a number of significant staffing changes both within the central team and also amongst headteachers. In addition, the council itself had been through a period of change. The recent Validated Self-Evaluation (VSE), carried out in partnership with Education Scotland identified a number of strengths within the service but also identified a number of areas for improvement including the need to keep the structure under review. The VSE was therefore an important trigger for this review. Education Scotland agreed to work alongside the education authority and deployed an officer to work with the council over a three month period and during this time, design a structure for education that would be fit for purpose. At the outset, it quickly became apparent that designing one structure would not be the best way to proceed. A decision was taken at this stage to design options for the structure and to carry out a full options appraisal to ensure that the decision making at the next stage could be as fully informed as possible. A clear scope for the work was developed including the process and methodology. It was important to ensure that the work was centred around what the education authority saw as its key priorities for the next five to ten years to ensure that any new structure would be fit for purpose to deliver on its vision. 3

4 1 Nature and Scope of the task 1.1 Process The design of the process involved careful consideration of models of organisational review and redesign. A clear focus of this was determining the current strengths and challenges for education within Argyll and Bute and also looking ahead to the future and the key national and local drivers for education. The next stage of the process was to consult widely with a range of staff and elected members. The purpose of this consultation was to focus on vision, values and culture as well as to look at what was working well in the current structure, possible weaknesses and also to focus on the future and to seek ideas as to how education could be structured in the future. In addition, information was gathered from other local authority areas that had recently undergone similar organisational development and restructuring work, to ensure that any lessons could be learned for this piece of work. The consultation informed the design of the assessment criteria which has been used to assess each of the options for the possible new structure. This has provided the appropriate information to allow a full options appraisal to be carried out, which has highlighted the possible benefits and issues which may arise from each of the options. Throughout the process, other key related themes emerged which are worthy of consideration by the education authority and which although not directly related to posts in the central structure will be important to considerations for the future. These are added later in this report to ensure completeness of the task. 1.2 Methodology At the early stages of the task, it was important to consider key Argyll and Bute documentation to ensure that all available information on key priorities was considered as well as recognising the strengths and challenges faced by the council. This included looking at the overall council vision and local development plans as well as key education papers such as the standards and quality report and the recent VSE report. The methodology adopted for the consultation process was one of open and transparent communication and discussion. This was achieved through many face to face discussions, interviews, focus group workshop sessions and drop in sessions in each of the geographical areas across Argyll and Bute. In total, around 120 staff and senior elected members were consulted. This included the Chief Executive, Executive Directors, senior managers, Quality Improvement and education support staff, early years staff, community learning and development staff, headteachers and teachers, as well as corporate staff from other areas of the council and professional associations. In addition, an electronic questionnaire was developed and circulated widely. Around 40 completed questionnaires were received and the themes arising from all aspects of the consultation are covered later in this report. Regular engagement with the Chief Executive, Executive Director and Head of Service were also important aspects to this work to ensure clarity about the messages arising from the consultation and the necessary next steps. 4

5 1.3 Validated self-evaluation (VSE) The Education Service recently worked in partnership with Education Scotland to undertake a VSE. This was a voluntary process and was led by the Education Service. Its purpose was to support, extend and challenge the education service s own self-evaluation. It is important to note that VSE is not an inspection of the education authority. Through the VSE, Argyll and Bute Council, working with Education Scotland jointly focussed on a number of key themes. In doing so, they were able to identify a number of areas of strength. These included the shared commitment of the service to strengthening the approaches to self-evaluation as well as strong commitment to continuous improvement leading to improved outcomes for learners. A number of areas for improvement were also identified and are important in the context of this review. These included the need to keep the current central team structure under review. In addition, strengthening the arrangements for developing and communicating a shared vision, clarifying roles and responsibilities around working groups and clarifying the link between selfevaluation, school review and improving planning were also identified. These areas are important features of what is currently working well across the authority and also what needs to happen next and offer a positive foundation on which to build this restructuring work. 5

6 2 Background and context of the council Argyll and Bute is one of the largest and most sparsely populated local authority areas in Scotland. The population of 89,000 is scattered across an area of just under 2,700 square miles. It is approximately 120 miles long from the Isle of Coll in the north to Southend in Kintyre, and 100 miles wide from Bridge of Orchy in the east to the island of Tiree in the west. Two- thirds of the population lives in small towns with a population of less than 10,000 and a third live in settlements with a population of less than 1,000. These factors are very important when considering how any new structure for the central team would function. Argyll and Bute Council s vision Realising our Potential Together is underpinned by 4 key values: We involve and listen to our customers and communities We take pride in delivering best value services We are open, honest, fair and inclusive We respect and value everyone Education is part of Community Services which is the largest service within Argyll and Bute Council and accounts for approximately 69% of the total expenditure of the council. It includes a wide range of other areas, including services such as children and families social work (including supporting the most vulnerable children and families, early years services and criminal justice services), adult care (including adult social work services), community and culture (including housing services, libraries, leisure and community learning and development). At the time of writing this report, it is anticipated that there will be changes in structures and management arrangements in other areas of the council, for example as a result of the national drive towards Health and Social Care Integration. It is therefore vitally important that this review and the changes that are required are seen within the context of Community Services and possible changes elsewhere in the council. The service manages seventy-three primary schools, three 3-18 schools, five secondary schools, two joint campuses, one learning centre and two pre-school centres. The total school pupil roll stands at 10,767 (September 2012 Census), made up of 5,698 primary pupils, 5,052 secondary pupils and 17 Learning Centre pupils. This compares with a total pupil roll of 11,065 in 2011/12 and 13,227 in 2000/01. In addition there are 1,003 pre-school children in the two Council pre-school centres and 48 pre-school classes in schools. This does not include the 25 voluntary and private pre-school establishments catering for another 684 children in the Council area. Four islands have their own secondary education provision and secondary pupils from remote locations or other islands travel to the most accessible school, 6

7 staying in hostels or other arranged accommodation during the school week where necessary. Around 80% of Argyll and Bute primary schools have fewer than three teachers, with composite classes covering the 5 to12 age group. Five primary schools, five secondary schools and two joint campuses have integral learning centres that provide for children and young people with additional support needs. In addition, there is one free-standing learning centre making provision for pupils with additional support needs. The majority of children and young people with additional support needs have education provision made in their local pre-school centre or mainstream school. Gaelic Medium Education is available in six pre-school and primary establishments, Bowmore, Rockfield, Salen, Sandbank, Strath of Appin and Tiree and there is continuity and progression of language skills in the five associated secondary establishments. 2.1 Current structure of the Education Service and existing delivery functions The current structure within Education Services has evolved over a number of years and has been subject to significant changes most notably in the last three years. Changes over time to key posts and roles and responsibilities have been mainly as a result of staff changes and the need for the education authority to respond to a range of demands eg. National developments, local need, staffing issues including changes in personnel and recruitment issues as well as ongoing financial constraints. The current Education Management Team comprises the Head of Education, Quality Standards Manager (acting), Quality Improvement Manager (Secondary), Quality Improvement Manager (Pupil Support), Quality Improvement Manager (Early Years) currently vacant and the Principal Educational Psychologist. In addition, a team of seven Quality Improvement Officers (QIOs) have responsibility for specific priorities and each acts as a partnership officer for a group of schools. The central team also has a team of four Education Support Officers and a Music Services Coordinator. The service is supported by a Schools Services Support team and other administrative functions. These aspects are not covered in this review. The delivery functions of early years and community learning and development are currently managed in teams outwith the Education Service and fall within the remit of other Heads of Service. 2.2 Responsibilities of an Education Authority The Education Authority has a number of key duties, as set out in the Standards in Scotland s Schools etc. Act 2000 and also within the Additional Support for Learning (Scotland) Acts 2004 and The responsibilities are outlined below and a key consideration of any change to the central management structure is that it must ensure that the authority can fulfil its duties within the key legislation. Given the 7

8 significance of this area, it has been included as part of the Assessment Criteria for the Options Appraisal and further details can be found later in this report. Extracts from legislation and other associated duties: (i) An education authority shall endeavour to secure improvement in the quality of school education which is provided in the schools managed by them; and they shall exercise their functions in relation to such provision with a view to raising standards of education. (Standards in Scotland s Schools etc. Act 2000) (ii) An education authority shall from time to time, after consulting such bodies as appear to the authority to be representative of teachers and parents within their area and giving such persons within that area as appear to the authority to have an interest in the matter an opportunity to make their views known, define and publish, as respects quality of education provided, measures and standards of performance for the schools managed by them; and different measures and standards may be so defined for different categories of such schools. (Standards in Scotland s Schools etc. Act 2000) (iii) An education authority shall, as respects each school managed by them, from time to time review the quality of education which the school provides; and if, having regard to the measures and standards of performance for the time being defined by them under subsection (1) above and relevant to the school, they conclude in any such review that the school is not performing satisfactorily they shall take such steps as appear to them to be requisite to remedy the matter. (Standards in Scotland s Schools etc. Act 2000) (iv) The Education Authority, in implementing the Education (Additional Support for Learning) (Scotland) Acts 2004 and 2009 (ASL Acts), aims to ensure that all children and young people are provided with the necessary support to help them work towards achieving their full potential. In discharging its duties under the ASL Acts and the Equality Act 2010, the Education Authority works collaboratively with partner agencies. The Equality Act places a duty on education authorities to ensure that children and young people with a disability are not discriminated against and to ensure that they are able to have full access to the physical environment, the curriculum and information. 2.3 Health and Social Care Integration The Public Bodies (Joint Working) Scotland Bill sets the legislative basis for the integration of health and social care services. If the Council decides to include children and families social work services within the integration, pre 5 education would be retained within Community Services and this is shown within the options appraised within the management of the Education Service. Given the majority of these services are managed by Head Teachers and are delivered within schools, this proposal makes operational sense. 8

9 3 Summary of key themes from the consultation and review process A wide ranging consultation that included focus group discussions and feedback from a questionnaire were important features of gathering information to inform this work. In total, the views of around 130 stakeholders were gathered and used to inform this report. The focus group sessions and questionnaire followed a consistent structure which focussed on the future vision for education, including values and culture, the strengths and weaknesses of the current structure and ideas for the new structure. Further details on the questions asked and those who were consulted can be found at appendix 1and 2. Overall, there was considerable agreement among the wide range of stakeholders, in the responses from the focus groups and the questionnaire. As a result, a number of significant and consistent key themes could be drawn out. Key evidence relating to these themes is outlined at appendix 3 Theme 1 - Vision, future priorities and focus for education Overall, there was a very consistent view that there needed to be a renewed focus on a clear and shared vision for education for the future. Stakeholders expressed a strong desire for this to be shared by all stakeholders and for it to be underpinned by clear values and a culture that helped ensure the successful delivery of the vision that was understood and articulated by all. They were also keen to ensure that the vision was the key driver for ensuring the improvement and achieving the aspirations of learners in Argyll and Bute over the next five to ten years. In addition, there were consistent views about the priorities and focus. Theme 2 Culture and Values In line with the views mentioned above, stakeholders felt that it was imperative that the development of a new structure was also underpinned by clear values and a strong culture which was both aspirational and inspirational. Whilst stakeholders expressed concerns about the current culture, they were also very positive that this was a very good opportunity to have a fresh start and re-establish the key foundations and building blocks that would ensure both the successful implementation of the new structure and in turn, help achieve the vision for learners in Argyll and Bute. Overall, there was very strong support for a culture that was supportive, collegiate, proactive and firmly based on openness, honesty, integrity and respect. Themes 3 & 4 The strengths and weaknesses of the current structure There was strong agreement that the current central team structure is now no longer fit for purpose. Overall, stakeholders felt that there now needed for much greater clarity about roles and responsibilities and clear functions associated with posts. There was recognition that the issues with the current structure had evolved over recent years with significant changes to responsibilities, staffing changes resulting in new posts being created and additional responsibilities being added to posts as a result of some of the national developments in education. A consistent theme 9

10 emerging from the consultation was that in many cases, success was determined by an individual person and overall, there was a large amount of variation in the strengths and weaknesses perceived within the post holders in the current structure. Weaknesses were also identified in how well individual managers and establishments are supported across Argyll and Bute and also how well the authority knows the quality of education being provided, for example in its schools. Theme 5 Future suggestions Stakeholders were strongly of the view that the new structure had to be founded on a clear vision, values and the best possible culture. They also felt that it was imperative to ensure the right people were in the right posts. Many were keen to see opportunities for staff to be seconded in to the central team for short, time-limited roles. Staff in schools, were keen to have greater opportunities to use their skills and talents and felt that these could be put to better use by the authority. In addition, they were keen to build on self-evaluation and to ensure that the future structure would help support and ensure continuous improvement. In addition, there was considerable support for a closer look at how education can be more efficiently delivered in each area, including ensuring better connections across professionals and more efficient use of resources. Stakeholders also made helpful suggestions about other areas which although not directly related to the central structure, are covered later in this report. Overall, there was a strong positive feeling about the future direction and stakeholders were very keen that the education service needed to keep up the momentum with the changes required in order to ensure improvement. 10

11 4 Options for the Future Structure of Education within Argyll and Bute Council In designing the possible future structure of education in Argyll and Bute Council, the focus has been deliberately broad to encompass all aspects of education from prebirth to lifelong learning. This is as a result of evidence gathered from the consultation about the need to ensure a focus on learning across all ages and to look at new synergies and ways of working to achieve best use of resources. This takes account of key areas of work that are currently managed outwith Education Services such as early years and community learning and development. There are a number of key considerations that apply equally to each option. 4.1 Education as part of Community Services within the council An important part of the restructuring is the recognition that education sits within Community Services as a key part of the overall council. It is important that going forward, education is able to fully contribute to the overall council vision, aims and priorities in the same way as all other services and that there is appropriate correlation across some of the key functions within education with other areas of the council, for example quality improvement and aspects of support. The contribution of education to council partners is equally important and any changes to management structures will require to ensure that these important features are pre-requisites to successful implementation. 4.2 Post of Head of Service Each option identifies the need for one head of service to manage all aspects of education. This post is directly accountable to the Executive Director: Community Services. It is a senior management post and carries with it significant strategic leadership responsibilities and accountabilities in relation to leading all aspects of the delivery of education across the council. There are a number of issues associated with this post that the council now needs to explore. At present, the salary for this post is around 69,000. This is significantly less that the salary paid to headteachers of large secondary schools who may earn at least 20,000 more. In addition, this salary is significantly less than similar posts in other councils albeit that these may be larger council areas. Given the significant responsibilities associated with this post including the range of functions that are proposed (to include early years and aspects of community learning and development) as well as the complex geography and number of educational establishments, it is unlikely that any future recruitment will attract suitably qualified and experienced leaders who could successfully carry out this role. It should be noted that in each option, only one head of service has been identified. There are currently some significant issues around workload associated with the current arrangements for this post. However, the new post would require a very clear set of strategic functions and responsibilities, underpinned by key responsibilities and accountabilities throughout the central team to ensure that this post could function appropriately. 11

12 4.3 Communication & Engagement Each option identifies the need for the council to include an officer responsible for promoting and dealing with customer satisfaction irrespective of which option is chosen. In recent years there has been a growing need for the central team to deal with a range of communications, enquiries and complaints. This has been identified as a significant pressure point in the current arrangement and a factor that often prevents central staff from carrying out the core functions of their posts as they are diverted to other duties such as those described here. Whilst the head of service would continue to have strategic responsibility for matters such as signing off complaints and liaising directly with elected members, a post is required to carry out the operational responsibilities around customer satisfaction. It is recommended that the post holder have an education background to ensure that they are able to work directly with headteachers and education staff on key issues of how they engage stakeholders on educational matters. It must be emphasised here that this should be a positive, proactive post that seeks to develop further how education staff engage with key stakeholders. In doing this post would look at how to raise the profile and promote the work of the authority both locally and nationally. A key aspect of the role would also be to deal with parental enquiries and where necessary, report directly to the head of service in dealing with formal complaints. This would also allow for careful monitoring of complaints across the authority including possible trends and looking at proactive ways of dealing with common issues for the future. This also features as a recommendation later in this report. 4.4 Financial Considerations The desire to achieve Best Value and to look for possible savings has been factored in to this review. As a result, cost information on each option has been supplied later in this report. In addition, given that this review has identified the need to align prebirth to lifelong learning within education, it is likely that this would lead to further savings. Further information on this aspect is provided later. Recommendation 5 on page 32 sets out the need to make better use of the skills and talents of staff particularly in schools. This feature is an important aspect of the sustainability of improving support to schools, for example in curriculum development. It will be important for the authority to identify a flexible funding resource to enable this type of work to happen. For example, funding will be required to release staff from their school commitment to work on development and supporting others. It will be important for the council to ensure that such a resource is protected and is not vulnerable to budget savings in future as this would have a serious detrimental impact on the success of this approach. 4.5 Options A set of four possible options has been identified. In the following section, an organisational diagram shows the key posts that are proposed. A description of the nature of the option follows thereafter. 12

13 OPTION 1 The structure remains unchanged. This option is the Status Quo and would involve early years and CLD continuing to be managed outwith Education and the current posts remaining as they are. The current structure includes one head of service, one quality standards manager, three quality improvement managers and seven quality improvement officers. In addition, there are three education support officers Structure diagram Appendix 4 (pg42) OPTION 2 The geographical / area-based structure. This option would involve removing the sectoral management functions of the current structure and instead putting in place managers responsible for each of the four geographical areas within Argyll and Bute (Area Education Managers). Such posts would have responsibility to lead and improve the quality of education within each assigned geographical area (point 22 of the senior pay scale). In addition, educators including headteachers, CLD staff and other professionals would form an area learning network where they would come together to share practice and expertise, develop aspects of their work and take forward local area priorities. Although not technically part of the core central team, this would require additional resources for a coordination role. This option also has a core team of four Education Support Officers who would take forward remits with a curricular focus. These roles would be cross-authority and would be mainly developmental in nature. Although not specified in the diagram, the Educational Psychology team would also be a key part of this structure. Structure Diagram Appendix 5 (pg43) OPTION 3 The Matrix Structure. This option would involve having three education managers responsible for key themed areas of education. In the example shown in the organisational diagram on pages 44 and 45, the themes identified are Performance and Improvement, Learning and Achievement and Inclusion and Integration. These posts would be at point 22 of the senior pay scale and would have considerable leadership, performance and improvement functions. It is envisaged that at this level, these posts would have key strategic responsibilities, a geographical responsibility (for example east and west) as well as corporate responsibilities. A key component would be the need for significant team working. Seven Education Officer posts would be created at the next tier (at point 20 of the senior pay scale). These posts would be mainly operational in nature and would be designed to ensure the greatest face to face engagement with practitioners and learners with a core function to bring about continuous and sustained improvement. Four education officers would be assigned to these roles in each of the geographical areas of the authority. They would report directly to the education manager responsible for performance and improvement. 13

14 Three education officers would have cross-authority sectoral responsibility. One would cover early level and primary stages, the second would cover the secondary stages and aspects of additional support needs and the third would be focussed on positive destinations and lifelong learning (including community learning and development). An education officer would support the early intervention, Getting it Right for Every Child and effective interventions. All posts would operate in a matrix system, requiring team working and staff linking to more that their own area of responsibility. It would be envisaged that the authority would also develop further the work of clusters or co-operatives to support further the work done in geographical areas. A vital part of this would be the need to open this out to include more than just schools. Rather it would be representatives from the range of educational professionals who engage with learners and communities who would come together, learning from each other and seek to streamline and align their work better to avoid possible duplication of effort and gaps. Consideration would need to be given to how this could be supported, for example to ensure it was co-ordinated and led effectively Option 3 shows a variant including additional support officer posts for Gaelic education (0.6 FTE); ASN and Learning Technologies. This would produce a lower level of savings to the core option 3a see appendix 6 Structure diagram Appendix 5 (pg44-45) OPTION 4 The Sectoral Structure. This option involves organising the structure mainly according to education sectors. This would involve having three quality improvement managers each responsible for a sector including early years, primary, secondary post-16 / CLD and Additional Support Needs. These posts would carry both a strategic and an operational function and would be designed to ensure that the quality of education continuously improved. These posts would be at point 22 of the senior pay scale. In the next tier, eight Education Officer posts would be created at point 20 of the senior pay scale. These would be mainly operational and would be centred around key areas of support, for example curriculum areas or areas of greatest priority, for example assessment. The cluster / area working outlined above could also be built in to this option albeit that it would not be a formal part of the core management structure. The educational psychology team would also be a key part of this structure. Structure diagram Appendix 5 (pg46) 14

15 5 The Assessment Criteria The following criteria were considered for all options: 1. It fulfils the requirements of the council as set out in the Standards in Scotland s Schools etc Act which is compatible with the concordat and relationship with Scottish Government. 2. It will support and enable the successful delivery of the overall council vision and specifically a shared vision for education - based around education in its broadest sense pre-birth to lifelong learning. 3. It will result in better outcomes for all learners regardless of age and stage. 4. It will support the successful delivery of key national policies such as Getting it Right for Every Child and the need to ensure better holistic provision for all learners including supporting the most vulnerable. 5. It will ensure the successful development and implementation of the curriculum (eg Curriculum for Excellence) and the consistent sharing of effective practice. 6. It takes account of the complex geography of the council. 7. It is based around a continuous improvement model. It builds on existing strengths in self-evaluation and ensures this continues to build capacity in the system to ensure ongoing sustained continuous improvement and education provision of the highest quality. 8. It takes account of the need to have a matrix style of management with core vertical responsibilities (for example in a sector or geographical area) and horizontal responsibilities across the council area (both within education and where appropriate across the council). 9. It ensures ongoing career-long professional learning and making the best use of the skills and expertise of staff within education. 10. It will ensure Best Value and the efficient use of resources. 11. It has the support of the majority of central staff, headteachers, other professionals and the Unions. 15

16 6 The Options Appraisal The appraisal process Each of the options has been assessed against all aspects of the Assessment Criteria which is outlined above. Against each aspect of the Assessment Criteria, an assessment has been made as follows: Green fulfils the criteria Amber demonstrates some level of fulfilment of the criteria bit also some disagreement Red demonstrates that this criteria has not been met Blue shows that this criteria was not relevant or information has still to be sought. In each case, a commentary has been added to clarify each point and a summary statement follows thereafter. Black (Positive evidence) Dark Grey (Some positive / some negative) Light Grey (Negative evidence) White (Not applicable / no evidence) Option 1 The structure remains unchanged the status quo 16

17 Criteria Match Commentary (the options appraisal process has considered how well this structure would operate in the future) 1 Remits and responsibilities fulfil the duties as set out in legislation. In practice, this is much less effective. 2 Current education service is primarily school focussed and would not take sufficient account of learning in its broadest sense. 3 Was the focus of the original structure and responsibilities. Variable in practice. 4 Mixed. The current structure offers some positives in terms of delivery of GIRFEC at a school level but would not maximise the full range of opportunities. 5 Current arrangements are organised to support this aspect but in practice this is inconsistent and too variable. 6 Current arrangements would not sufficiently support the geographical issues including opportunities for working together and possible issues of isolation in some areas. 7 Would not fully support a self-improving systems model and ensure that continuous improvement is embedded in the work of the authority 8 Would not support the matrix approach 9 Would not ensure continuous professional learning was at the heart of the work of the authority and supported by the management structure. 10 Would not achieve Best Value 11 Would not have the support of the majority of stakeholders Black (Positive evidence) Dark Grey (Some positive / some negative) Light Grey (Negative evidence) White (Not applicable / no evidence) 17

18 Option 1 Summary The review and options appraisal could not identify any significant benefits from this option. Whilst there were positive comments made about small aspects of the current arrangements, particularly around the individual support provided to some schools, the overwhelming view was that this arrangement is now no longer fit for purpose. Stakeholders were in agreement that there needed to be a renewed focus on achieving the best outcomes for learners and communities in Argyll and Bute. This will require both strong leadership and a sustained focus on continuous improvement. Stakeholders have significant concerns that the current arrangements are not delivering in these key areas and that this would have to be a core element of the new arrangements. The current central team were also not supportive of keeping the status quo. They were of the view that significant changes were required to ensure that they had a clear focus for their work and that they had clearly defined roles and responsibilities. 18

19 Option 2 The geographical / area-based structure Criteria Match Commentary 1 Overall, this arrangement would fulfil the duties as set out in the Act etc. 2 Has the potential to deliver on these aspects 3 Has the potential to deliver better outcomes. 4 This arrangement would not necessarily support the principles of GIRFEC and further work would be required to ensure localities did not become too insular in their work and sharing of resources for all. 5 Yes within the area but working and sharing practice across the EA may be more difficult. 6 Would be very focussed on supporting this aspect 7 May support this in each area but would have less of a collective approach across the EA. 8 May lead to this if remits were designed with an across authority responsibility but there may be a risk of this becoming parochial. 9 Too dependent on how well the area was operating. 10 Would achieve savings as fewer central posts. 11 Mixed. Stakeholders had very mixed views some were in favour and many had reservations. Much of this depended on their current role and where they were based. Black (Positive evidence) Dark Grey (Some positive / some negative) Light Grey (Negative evidence) White (Not applicable / no evidence) 19

20 Option 2 Summary This option would achieve a reduction in the number of central posts and would achieve savings. The benefits of this approach would be in the way it would support the delivery of education in each of the four areas of Argyll and Bute. This would support the potential issues of geographical isolation and would allow the delivery of education to be more bespoke to the area. In addition, it would allow a closer look at all of the interventions and services in each area with a view to streamlining and avoiding any unnecessary duplication. Stakeholders had mixed view about this approach. Some were of the view that this would be a very positive approach and would be similar to work done some years ago by Area Co-operatives. In addition, they were also positive that it would have the potential to align with other area based approaches, for example the Area Committees and also area teams within Social Work. Stakeholders who were not in favour of this type of approach were strongly of the view that this would create four small authorities within an education authority, that it would be divisive and lead to competition rather than better team working. This is a clear risk especially given that a collective vision, shared priorities and sharing effective practice are clear vehicles for the way ahead for Argyll and Bute. 20

21 Option 3 The matrix structure Criteria Match Commentary 1 Fulfils the duties 2 Would support the broader view of learning and an aspirational vision for education in Argyll and Bute 3 Would support a strong focus on improving outcomes as per a renewed vision. Would require absolute clarity and purpose. 4 Thematic responsibilities would achieve the holistic approach (rather than silo) 5 Would achieve improvements in curriculum development and sharing effective practice. Would require the latter to become a core component part of the roles of officers at the centre. 6 Link officers would support this. Would also require greater coordination of the learning community in each area as per later recommendation. 7 Strong focus of this approach 8 As above. Key to this option are the strategic and operational responsibilities across the authority. 9 As above. But would also require this to be part of the vision as for no 5 above. 10 Achieves Best value. More streamlined and focussed responsibilities would achieve diving s in overall costs of structure. 11 Stakeholders were strongly supportive of this type of approach. Black (Positive evidence) Dark Grey (Some positive / some negative) Light Grey (Negative evidence) White (Not applicable / no evidence) 21

22 Option 3 Summary The benefits of this option are very clear and it has strong support from stakeholders. Having three education managers has strong benefits and would support the overall leadership of education at a strategic level as well as ensuring the ongoing operational delivery and continuous improvement of the service. The thematic approach with a close focus on continuous improvement as well as a direct link in to each geographical area would support the delivery of education across Argyll and Bute and ensure a holistic approach across pre-birth to lifelong learning. Although this structure appears slightly more complex than the other options it offers the benefits that have been identified in both option 2 and option 4 but is blended to ensure the successful delivery of education and the ability of the authority to deliver on each of the key areas identified as necessary in the assessment criteria. 22

23 Option 4 The sectoral structure Criteria Match Commentary 1 Fulfils the duties as required 2 Would require a clear vision but would have some limitations in terms of the broad view of learning 3 Would support better outcomes 4 Supports the delivery of GIRFEC 5 Would support curriculum development and sharing effective practice at a sectoral level but would not support effective transitions 6 Would not support the geographical issues 7 Continuous improvement not really a strong feature of this model. 8 Would be more difficult to achieve 9 To some extent but would need to be mindful that this did not become too silo-based 10 Reduction in posts so achieves savings 11 Mixed views but has the support of some stakeholders Black (Positive evidence) Dark Grey (Some positive / some negative) Light Grey (Negative evidence) White (Not applicable / no evidence) Option 4 - Summary 23

24 This option has some similarities with the current structure and would offer some savings in posts. It offers a sectoral-based approach which would achieve specific support to each sector. This would have some support from headteachers in particular where they feel that this type of support is too variable at present. This approach would make a more holistic view of learning (pre-birth to lifelong learning) more difficult and may encourage a more silo-based approach. This would be a particular issue for improving transitions across the stages of education. This approach would not support some of the geographical issues and may make the sharing of practice more challenging. 7 Recommendations and proposals for the future delivery of education in Argyll and Bute Overall, the options appraisal demonstrates that Option 3 is the one most suited to the current and future requirements of Argyll and Bute. As previously mentioned, the implementation of a new structure should not be seen in isolation and must be seen alongside essential work that is needed in relation to vision, values, culture and leadership for the future. In essence, these can be best demonstrated as follows: 24

25 Key building blocks Senior executive commitment Shared vision and one culture Clear line of sight for all Organisational excellence People excellence Service excellence all of these elements are underpinned by good governance a clearly defined strategy, roadmap and communication is required 25

26 Clear line of sight Single Outcome Agreement Corporate Plan Service Plans outcomes shared / agreed with partners Corporate Priorities identification of focus area/s for education Operational Plans actions required to deliver for the future Team Plans Individual Objectives shared priorities that will deliver on the vision own contribution is clear (day-to-day and PRD) underpinned by a clearly articulated, shared vision 26

27 Organisatio nal excellence Vision shared / one organisation / bigger picture view Values Culture Organisational design Leadership shared ethos - reflected in every day behaviours the way we do things around here fit for purpose / enhanced organisational capabilities strong and visible at all levels Partnerships Ongoing sustained continuous improvement underpinned by sustainability to future-proof the organisation 27

28 People excellence Developing the people Leadership & Management Core Competencies (Behavioural, Management and leadership) Clear priorities and objectives Performance Framework Recognition Culture of continuous improvement consistent and accountable leadership focus on transferable skills & succession planning talent management / grow our own SMART & linked to Corporate Objectives learning and development linked to competencies individual responsibility and good work recognised underpinned by equality and inclusion 28

29 Service excellence Learner-focused integrated streamlined removal of barriers improving information reducing costs putting the learner at the heart of everything we do collaborative / partnership working removal of duplication better systems / processes ease of access clear language / user / customer focused focus on value adding activities and priorities underpinned by partnership working, consultation to determine learner and community s changing needs and community empowerment 29

30 7.1 Recommendations and Proposals In addition to the core part of this work around designing options for the core central team, there follows a set of further proposals which have been drawn out of the feedback from the consultations and overall evaluation of the current approaches and systems that are in place. Recommendation 1 Shared Vision, Values and Culture The executive director, senior education managers, headteachers, other staff and elected members need to work together to develop a clear, aspirational vision for the provision of education for all learners and communities in Argyll and Bute. The vision needs to be developed and shared by the education community and link clearly to the overall council vision. Thereafter it needs to be used consistently as the key driver for the delivery of improvements and developments across the authority. A clear set of shared values and an aspirational, professional learning culture should underpin the vision and be shared by all. Expectations should be high and should aim to ensure that all staff are valued and can make a significant contribution to the aspirations and aims of the authority and in turn to achieving better outcomes for learners and communities in Argyll and Bute. In so doing, a culture of integrity, respect, honesty and credibility should be the foundations for the future work of both the central and wider education team. Recommendation 2 A holistic view of education At present, the education service is focussed mainly around the management of schools across Argyll and Bute. The functions of early years and community learning and development are managed by other heads of service within Community Services. Key national developments such as Getting it Right for Every Child, Curriculum for Excellence and the new Community Learning and Development Strategic Guidance requires that education is considered as more than that that is provided by schools alone and that we view each learner as an individual within their community. It is therefore of vital importance that regardless of the structure that is implemented, services that work with children and young people need to work in an integrated partnership that ensures the highest quality of provision for every child and young person. Whilst there are currently a number of strengths in areas such as early years and in particular with how well this aspect of education connects with other services (for example social work), the council should consider how it can best manage education in the round which would span early years to lifelong learning. Whilst this would result in a reconfiguration of roles and responsibilities across Community Services, it also has the potential to further improve integrated working across disciplines for example education and social services staff and also better connections with other cross Council functions, for example Area Committees. It should also be noted that moving to this arrangement would require an ongoing commitment to integrated partnership working to ensure the continuation of effective partnerships with, for example social work services. 30

31 Recommendation 3 Developing a self-improving systems model The education service should continue to build on earlier successful work in selfevaluation. This work now needs to be re-calibrated to ensure that all aspects of the work of the authority drive the need for continuous improvement and a clear focus on securing better outcomes for learners and their communities. This needs to be underpinned by ensuring highly effective self-evaluation becomes well-embedded by all education staff, that better approaches are established to ensure effective practice is shared consistently both within and from outwith the education authority and that the authority develops approaches to highly effective change management across all leaders. Such approaches need to contribute strongly to the corporate development of continuous improvement across the council. The education authority needs to ensure approaches to school review are built around embedding continuous self-evaluation for improvement and extend these approaches to all aspects of education and not just schools. In addition, high expectations of all leaders need to be established and reinforced to ensure that there is a collective drive for ongoing sustained improvement and achieving better outcomes overall. Further national work is planned in relation to school improvement and specifically around partnering schools that can learn from each other as announced recently by the Cabinet Secretary for Education and Lifelong Learning. Argyll and Bute should consider how it can build on this type of work locally as well as how it can contribute nationally to help bring about continuous improvement. Other aspects about how this may be taken forward are covered in recommendation 5. Recommendation 4 Leadership Developing leaders of the future needs to be a core feature of the future delivery of education in Argyll and Bute. Leadership development needs to be targeted at all leaders at all levels of the education authority and in line with other council developments such as Argyll and Bute Manager. The education service has, in the past, taken forward leadership development with headteachers and other leaders in schools. The implementation of a new structure and revised vision will require skilled leadership at all levels to ensure its success. Therefore leadership development needs to be a key priority. This should focus on staff at all levels from the central team, other extended teams and those working in schools and localities and not only focussed on teaching staff. The authority will also need to consider the implications of developing the leadership of those staff who are headteachers of very small schools who have to face the competing demands of a large teaching commitment against the broad range of leadership work they require to take forward within both their school and its community. This is also referenced in recommendation 6 which focuses on the delivery of learning and both are inextricably linked. In taking forward the key aspects outlined in this report such as vision, culture and leadership, the education service will need to ensure the arrangements for appropriate accountabilities and responsibilities are reviewed and improved. At present these are unclear and as a result, this often leads to significant issues. A key part of this will be defining the strategic and operational responsibilities and connectivity at each level of 31

32 the structure. These need to be communicated clearly with all stakeholders and reinforced by all staff. In addition, groupings of key staff need to be reviewed in light of the new structure, for example the purpose of groups such as the Education Management Team and how these groups relate to others such as the Departmental Management Team and headteacher meetings. These should be focussed clearly on the vision and priorities for the authority and should have clear aims and communication channels. The current arrangements for key meetings such as headteacher meetings now need to be reviewed. These have become increasingly business focussed and although very important, also need to strike the right balance with a focus on improving outcomes for learners. In addition, those attending these meetings need to be better engaged in developing their corporate responsibilities as senior leaders within the council and see their role as supporting the wider improvement in the service and the council as a whole. Recommendation 5 Using the skills and talents of staff As Argyll and Bute continues to seek ways of making better and more creative use of resources, there is a need to ensure the skills and talents of staff are used effectively. The consultation carried out as part of this work indicated strong support amongst education staff for new ways of working that would allow them to contribute in a greater way towards the vision for education. In particular, the education service needs to consider how it can make better use of specialists within their own area of expertise to help develop and share practice across the service. As central resources diminish, the service needs to seek ways to make better use of the significant skills and talents available amongst staff to support the delivery of the vision. The education service has had difficulties in providing appropriate central staff with the relevant subject background and skills to support schools. Issues such as difficulties with recruitment and ensuring staff skills are as up to date as possible have compounded this issue. As a result, the education service needs to think differently about how to support its schools in terms of curriculum development. For example, one approach may be to develop hubs or lead centres where key staff would be identified and have a coordination and leadership responsibility in terms of working with other staff, sharing effective practice and facilitating discussion and development. This would ensure relevant and up to date knowledge, credibility and also build on staff skills. The appropriate infrastructure would be required to allow this to happen, for example resources to free up staff time where required. In addition, the authority may also wish to consider having a core pool of permanent central staff and if required, opting to second staff for specific, time-limited pieces of work. This would allow staff to further develop their skills and would support succession planning. In addition, it would also allow the authority to meet short term needs without unnecessarily skewing remits within the core tea. The issue of funding for such posts given that they would not be part of the central complement would have to be resolved. 32

33 Recommendation 6 Delivery of learning The geography of Argyll and Bute presents many challenges as well as possible opportunities for the future delivery of education. The recent report from the Commission on Rural Education sets out many challenges and recommendations for local authorities about a range of factors including delivery of curriculum in small secondary schools, making the most of rural schools and rural schools in their communities. Argyll and Bute Council now needs to consider these factors as they relate to this review and consider more creative and innovate ways of delivering improving and sustaining education for the future that achieves better outcomes for learners and their communities. In doing so, it needs to consider how to maximise on the opportunities that focussing on place may offer (rather than an only on an establishment). In doing so, the authority needs to consider a stronger focus on the learner at the centre within their community and look more clearly at the totality of interventions and provision required. The focus needs to be more on the future delivery of learning (where it happens) rather than the more traditional focus on only schools. This has the potential to build further on the earlier development of the joint campuses in Argyll and Bute which bring together early years, primary, secondary, special and in some cases further education. Building on the concept of a community of learning could ensure a more streamlined approach where a close look at the range of professionals who work with a learner and their family could be better coordinated and targeted. This also has the potential to build further on work done through developing universal services and would help make better connections across existing services that are offered across the council and would also make important connections with other work across the council. The authority has begun to think about new ways of providing headteachers for some of its smaller schools, for example through shared headships and overall, the feedback has been positive. The authority now needs to consider developing an overall vision for the delivery of learning across Argyll and Bute and reviewing the current approaches to include aspects such as considering how shared headships could be developed further as appropriate, issues around the school estate and other new and innovative ways of looking at how education could be delivered creatively. Using Information and Communications Technology (ICT) should also be at the heart of this work. The authority now needs to review how technology is used to facilitate learning and look at possible new and innovative ways to both enhance learning and to achieve Best Value in terms of connecting learners and schools from different communities within and outwith Argyll and Bute Council. Recommendation 7 - Recruitment and retention of high quality staff Argyll and Bute Council now needs to consider carefully how it will fill those posts created by the new structure. To ensure that the new arrangements meet with future demand and lead to sustained improvement and development of the service, serious consideration needs to be given to ensuring that the council gets the right people, with the right skills in the right posts to ensure that the new structure and new posts are fit for purpose. 33

34 The council has found it challenging to attract appropriate numbers of suitable high quality candidates for vacancies. Ensuring that the profile of the council and the roles on offer are as attractive as possible will be a very important task. As mentioned previously, the current senior manager salary structure currently means that many senior staff may not be attracted to the senior posts because of the salary on offer. In addition, the council also needs to ensure that recruitment processes for these roles ensure that the right person for each post can be selected. Making poor selections of staff for such roles could have a serious detrimental impact on how well the structure delivers for the future. In taking this forward, the council needs to ensure that ensuring high standards is at the forefront of their recruitment for the new central team. In doing so, they should ensure that a detailed implementation plan takes serious account of the need to develop detailed job profiles and ensure that a rigorous, competitive interview process is undertaken to recruit suitable high quality candidates in to each post. This should be open to both internal and external applicants. Any unsuccessful applicants, who are currently employed in the central team, will be subject to the redeployment and redundancy process for Argyll and Bute Council. The proposals within this document will be the subject of formal consultation with the staff affected and their trade unions. Recommendation 8 - Customer Satisfaction / Dealing with Complaints (also covered earlier in this report) Council officers in education currently spend a high proportion of their time dealing with enquiries, issues and responding to formal complaints from parents and other stakeholders. There is an urgent need to review this system as the current approaches are seriously impacting on the time officers have to support the continuous improvement of the service. The education service now needs to review its current approaches and consider possible action as follows: Work with headteachers both at induction and through their professional learning opportunities on how they engage with stakeholders. Part of this should focus on supporting schools in ensuring that, where possible, concerns do no escalate. This particular focus could also include developing the ongoing partnerships schools have with stakeholders and sharing of effective practice. In addition, the authority should consider the need to appoint an officer who takes responsibility for overseeing the engagement with stakeholders including promoting the work of the authority positively. In addition, this would include engaging with elected members and looking closely at trends in concerns / issues raised and monitoring formal complaints. This role would include investigation of complaints and drafting appropriate responses. 34

35 8 Implementation The Chief Executive and Executive Director now need to give serious consideration as to how they will take this work forward. A number of important decisions now need to be taken prior to beginning the implementation process. It will be very important to strike the right balance in ensuring careful and well-planned implementation and the possible risks that would ensue should implementation be delayed. 8.1 Key short term actions required: 1. Discussion with key officers, trade unions and elected members about the findings of the report leading to decisions being taken about the structure to be implemented. 2. Clear communication with those staff affected by changes to the central team and professional associations. 3. Communication with stakeholders about the findings from the review and the options that have been developed. Ongoing communication to be developed as part of the implementation plan. 4. Obtaining political buy in to the findings of the review and the implementation of the new structures 5. Identify the project leader and person accountable for overseeing and implementing the new arrangements. 6. Identify a group of key staff who will support the implementation project and process. 7. Create a clear implementation and project plan including clear actions and milestones and identify possible risks Ensuring Successful Implementation Given the earlier recommendations around vision, values, culture and leadership it is essential that these aspects are not forgotten throughout the implementation of the new structure. For the new structure to be as effective as possible, work should begin on establishing a clear, shared vision as quickly as possible. The work on leadership, values, and culture should follow with the implementation of the new structure and posts. Other features for successful implementation: Strong and decisive leadership at all levels. Clear, open, transparent and regular communication and engagement with all staff and stakeholders. 35

36 Rigorous and systematic project planning include milestones, risks and expected outcomes. Realistic timescales (neither too quick nor too slow) that set out clearly how the authority will get from A to B and by when. High standards and expectations for recruitment in to the central team including detailed job descriptions, competitive interview process and ensuring the right person is in the right job. Ongoing evaluation and monitoring of the project with a further more detailed evaluation of impact around 18 months to 2 years after the implementation. 8.3 Possible Risks and Mitigating Actions Careful consideration of risks and mitigating actions will be an important feature of how this work is taken forward and will be part of the project planning stage and ongoing evaluation throughout the implementation period. At this stage a range of possible risks can be identified. These are explored below with some indication of possible mitigating actions. 1. This review results in no significant changes and improvements to both the overall management structure and the quality of service delivery (resulting in risks to learners). Control Senior managers should ensure that the momentum is maintained and that the change process is initiated quickly. Careful project planning, leadership and direction as well as clarity of communication and engagement with all key staff and stakeholders will help to mitigate this risk. 2. Lack of communication and/or delay in progressing this work will result in loss of credibility of senior leaders with key staff and stakeholders Control As above. 3. Poor staff engagement and motivation to ensure successful delivery of key objectives Control Regular, open and honest communication and meaningful engagement will help to mitigate this risk. Staff and stakeholders now have a range of expectations that have been heightened by the consultation. This work now needs to be built on to capture the enthusiasm and support for the actions that are required. 4. Implementation of new management structure gets in the way of business as usual. Control Ensuring a clear project plan and leadership of the implementation will help ensure both its successful delivery and also help mitigate any risks that ongoing 36

37 business will be affected. Staffing resources will be a key feature in mitigating this risk as the successful implementation will take a significant amount of time to lead and manage. As it currently stands, it is unlikely that this can be successfully managed by the current staffing of the central team given the many pressures and issues already identified elsewhere in this report. 5. Financial Risks retaining the current arrangements and failure to successfully implement new management arrangements both have the potential to create financial risks through not making best use of resources and not managing carefully the resources required for implementation of a new management structure. Control Earlier points about project planning and leadership are equally pertinent in this risk area. In addition, careful financial and risk management will be required to ensure that the project is delivering as required and to deal with any possible risks before they become major issues. Review carried out by Lesley R. Brown HMI, Education Scotland April

38 Appendix 1 Consultation Questions The following questions were used as prompts for each of the consultation group discussions and were also the questions asked in the questionnaire. 1. What are the key priorities and areas of focus for education for the future that should be key considerations in designing a new structure? 2. How effective is the culture across education in supporting the education service to realise its vision for the future? Please give examples of strengths and areas for improvement. 3. What are the key strengths of the current structure within education. Please give examples of features that in your view should be retained in the new arrangements. 4. In your view, which aspects of the current structure do not work so well and what do you think needs to change? Please include any specific ideas you have about what should be considered. 38

39 Appendix 2 Stakeholders who were part of the consultation Chief Executive of Argyll and Bute Council Leader of the Council Depute Leader of the Council Lead Councillor for Education Depute Lead Councillor for Education Executive Director : Community Services Senior Management Team (Executive Directors and senior managers) Heads of Service : Community Services (3) HR officers Education Management Team including principal educational psychologist Quality Standards Manager and Quality Improvement Managers Quality Improvement Officers Education Support Officers (including CAST, Opportunities for All) Headteachers Other school staff as appropriate Community Learning and Development managers Early Years team Professional Associations (Educational Institute of Scotland) 39

40 Appendix 3 - Key evidence gathered from stakeholders There was considerable consistency in the responses received from stakeholders in relation to all aspects of the consultation. The following are some key themes: Almost all felt that there needed to be a renewed focus on developing a shared vision for education that included a broader view of education and not just schools. All felt that this needed to be underpinned by consistent values and a strong and purposeful culture and clear values that set out to deliver the vision. They believed that a renewed vision should be aspirational and inspirational and should be proactive, supportive, professionally challenging and rewarding. Almost all felt that developing leadership at all levels needed to be a key focus for the future. They also felt that a stronger focus on continuous improvement through embedded self-evaluation and a much greater degree of support and challenge needed to be developed. Almost all felt that there needed to be a consistent and sustained focus on improving outcomes for learners and communities (for example through implementing Getting it Right for Every Child and Curriculum for Excellence) All felt that there needed to be a renewed focus on more creative use of technology across Argyll and Bute, both for professionals and also to improve outcomes for learners. There was a strong view that there needed to be a focus on how education could be better delivered across the council and more creative solutions to issues such as recruitment of headteachers, schools estate and efficiencies. Stakeholders believed that there needed to be a strong focus on using the talents and experience of staff across education and harnessing and developing these talents for the good of all. They were also of the view that professional learning and succession planning should play a strong part of how staff are developed in the future. Staff identified some positive aspects of the current structure although these mainly related to strengths of some individual staff. 40

41 Overall, they felt that there needed to be greater clarity on strategic and operational management and on clear functions, roles and responsibilities for all staff, particularly those in the central team. They were strongly of the view that there needed to be clear accountability and responsibilities across all managers (including headteachers) There was agreement that the new structure needed to have flexibility and agility to respond to changing needs. They were keen that there should be coherence and a clear purpose for all posts and that meaningful consultation and communication should be a key aspect of the new approaches. Many of those who responded felt that there was a need to have a focus on the geographical issues of the council including remote and rural areas and the islands. Almost all were of the view that the current arrangements for meetings needed to be reviewed. They were of the view that there was too little a connection between different groupings and each grouping needed a clear focus on delivering the vision. 41

42 Appendix 4 Current central team structure and Option 1 COMMUNITY AND CULTURE EDUCATION SERVICE CHILDREN AND FAMILIES HEAD OF SERVICE HEAD OF SERVICE HEAD OF SERVICE Youth Services (budget not shown on education service template pg47) QUALITY IMPROVEMENT MANAGERS 1 x Secondary 1 x Early Years 1 x Pupil Support/Primary Quality Standards Manager 7 x Quality Improvement Officers Education Psychology Team QUALITY IMPROVEMENT MANAGER 4 x Education Support Officers 1 x Music Services Coordinator 42

43 Appendix 5 Structure diagrams for each new structure (Options 2, 3 and 4) Communication and Engagement Officer 43

44 Option 3 A Education Officer ASN and early intervention Education Officer Learning, teaching and achievement (secondary) Education Officer Learning teaching and achievement (Lifelong learning CLD and Learning Technologies Communication and Engagement Officer 44