Vol. 704 No. 2
1 Deputy Brian Hayes asked the Minister for Education and Science if he will give details of the preliminary findings of two separate investigations launched by him into grade inflation in secondary and third level education; and if he will make a statement on the matter. [10994/10]
I recently asked my officials, in conjunction with the relevant State bodies, to examine available evidence in regard to the question of trend increases in grades awarded at second and third levels. Papers have been prepared for me in respect of the State examinations and the higher education sector.
With regard to the State examinations, while there has been a significant increase in the proportions scoring at grade AB and ABC at higher level in the leaving certificate between 1992 and 2009, most of the increase took place during the 1990s and grades have largely stabilised since the establishment of the State Examinations Commission, SEC, in 2003. The SEC has in place an extensive range of quality assurance measures to ensure the validity and consistency of assessment. A range of issues can impact on grading in the certificate examinations, including curriculum reform, introduction of second assessment components, investment in professional development for teachers, more exam-oriented teaching, and better information for teachers and students through improved Internet access.
With regard to higher education, it is the case that the data presented indicate a trend of increasing award levels. The proportion of students gaining first class honours in level 8 degree programmes increased from 11.2% to 16.6% in the institutes of technology between 1998 and 2008, and from 8.3% to 16.2% in the universities between 1997 and 2008. Several contributory factors must be considered, including deliberate decisions on assessment standards prompted by external examiner findings aimed at aligning Irish standards more closely with international norms. Improved and more explicit assessment methods, with the development of learning outcomes-based approaches, and better prepared students are also arguably important factors.
Grade increases in higher education are, however, also argued by some to be indicative of a relaxation of standards. This is a subject of debate across systems internationally. Notwithstanding the inconclusive nature of that debate, my principal concerns in an Irish context are on two fronts. I want to safeguard and enhance the quality of our graduates and to ensure the robustness of our systems of quality assurance. The question of graduate quality is a complex one of fundamental strategic importance. The higher education strategy group is currently addressing the broader challenges involved.
On the quality assurance front, I am establishing a new qualifications and quality assurance agency. This will bring a unified focus to external quality assurance in higher education and establish a closer link between quality assurance and the standards underpinning awards under the national framework of qualifications.
The information the Minister has given the House is worrying because it confirms the trend identified by many people in the education system in recent years. It seems the Minister has only recently taken action following conversations he has had with senior people in leading multinational companies located in the State. It is right and proper that the views of such persons be heard. However, two years ago, the Minister's Department, through the State Examinations Commission, rubbished data published under the name of the Network for Irish Education Standards which highlighted the problem of grade inflation, particularly in respect of the leaving certificate, over the past two decades. Given its rubbishing of these findings, does the Minister have confidence in the State Examinations Commission? Does he have confidence in the Higher Education Authority and in the universities' quality assurance system? It seems the regulatory system we charge with putting a premium on higher education has been found wanting.
Analysis has shown that there was grade inflation in the leaving certificate at higher level but that it levelled off after the establishment of the State Examinations Commission in 2003. Since then the variation in grade inflation is not significant. This indicates clearly that the State Examinations Commission is functioning as it should and that there are effective controls in place for those setting and examining papers. The conclusive finding in terms of quality control is that only 0.7% of appeals are successful. Students now have access to the marking scheme for every subject and can, on request, scrutinise their completed scripts after the results have issued.
Will the Minister not accept that his Department has been in complete denial about this problem for several years? When it was brought to the attention of the Department by academics at the Institute of Technology, Tralee, their findings were rubbished. The Minister has decided to take action only because the issue has been brought to his attention by United States multinationals. The regulatory system is not working, which has quality assurance implications for graduates and in terms of the reputation of our education system abroad. The Minister's first responsibility is to accept that and to take radical action to ensure we have a regulatory system in which people, including graduates, can have confidence.
I strongly concur, as I suspect the Minister does, with recent comments by Dr. Craig Barrett on our education system. In view of those comments, does the Minister propose to introduce changes to the leaving certificate?
I have dealt with the leaving certificate. As I said, I am satisfied there are proper controls in terms of grading standards. In regard to third level, there is no denying that there has been grade inflation. Dr. Barrett has given exactly the same advice in this regard to the United States Administration. There has been a similar grade inflation in the United Kingdom and other jurisdictions. We have looked at international trends and standards and have introduced a mechanism through the universities' quality control system.
We must not undermine in any way the quality of the degrees awarded by Irish institutions and, therefore, of the graduates they produce. It is because of the flexibility of our graduates and the high quality of the education they have received that multinationals choose to locate here. Continuing announcements of the creation of high-tech jobs indicate that there is confidence in our education system. We must challenge that system into the future. That is why I am putting in place a new qualifications and quality assurance agency which can go into the various institutions and compare one with another.
2 Deputy Ruairí Quinn asked the Minister for Education and Science the criteria and methodology he used in selecting the location and patronage of the seven new primary schools which he announced on 16 February 2010; whether the commission on school accommodation, the new schools advisory committee or the National Parents Council were consulted in advance of this decision; and if he will make a statement on the matter. [10923/10]
As I previously indicated to the House, the commission on school accommodation is currently reviewing the procedures for the establishment of new primary schools. The term of office of the new schools advisory committee expired in August 2008 and on foot of the issues raised within its reports and in light of changing demographic trends, I announced a review of the committee's procedures. When I announced the commencement of that review, I also stated that no new primary schools would be established pending the completion of the review and the implementation of the revised procedures, except in cases in which new schools were warranted because of increased demographics. The commission is due to report to me soon.
The interim arrangements for the recognition of new primary schools while the review of procedures in this area is under way provide that the chairman of the commission on school accommodation should advise me in cases in which more than one patron expresses an interest in opening new schools in those locations in which they are required to meet demographic increases. The forward planning section of my Department has carried out a study of the country to identify the areas where, due to demographic changes, there may be a requirement for significant additional school provision at both primary and post-primary levels over the coming years. Following on from this detailed analysis, it appeared prudent to plan for the establishment of new schools to commence operation in September 2010 to meet increasing demand in certain identified areas.
Information regarding the areas of most significant demographic change and likely increase in pupil numbers was circulated to all existing patrons during 2009. Details were not circulated to the National Parents Council. As I explained previously, the term of office of the new schools advisory committee had expired in August 2008. As it had not been reconstituted pending the completion of the review of the procedures for the establishment of new schools, the question of consulting it did not arise. The patrons were invited to bring forward proposals for the expansion of existing schools to cater for the increased pupil numbers or to put themselves forward as patrons for any new primary school, where required. The submissions received from the patrons regarding the proposed new schools for 2010 were assessed by the chairman of the commission on school accommodation.
Additional information not given on the floor of the House.
The factors considered in deciding on the granting of recognition in these cases included the capacity of existing schools, if any, in those areas to expand, with particular emphasis on the capacity to expand at junior infant level; the development already achieved by recently established schools in those areas and the potential of the future growth of those schools; the extent or range of diversity of patronage offered across existing schools in the areas; the proximity of schools of similar ethos to those proposed by applicant patrons; and how the proposed schools under the respective patrons would provide for extending or strengthening diversity of provision in each area. I am satisfied that the decisions resulting from this process strike an appropriate balance between the competing demands of diversity in the relevant areas.
While I am tempted to say something, I instead will ask the question.
The Chair is glad to hear that.
Why would a patron such as the Roman Catholic Church in Ireland, which controls 92% of national schools, which the Primate and Archbishop of Dublin has acknowledged to be a legacy of the past that does not represent the geography of the present in sociological terms, get two out of the seven new schools in an area in which University College Galway identified the presence of 33 different nationalities and noted that a multicultural approach was required to accommodate that school? Did the Minister make this decision or did he acquiesce to a decision made by Mr. Murray, the chairman of the commission on school accommodation?
First, I made the decision. I certainly consulted Mr. Murray, having received a recommendation from him with regard to this matter, and I thought the decision was appropriate given the circumstances pertaining to the seven schools. If the Deputy wishes, I can give him the circumstances pertaining to Galway.
Yes, please.
Doughiska is a new area of population built to the east of Galway city. As has been pointed out, a VEC application had merit and an application was made by Educate Together, which previously had received approval to start a school in the Galway area. However, it did not materialise because the patron body was unable to source a suitable site. In addition, we had regard to the area in question and this is what was important. It was noted that there appears to be a strong position for this school to be established because according to the census of 2006, almost 87% of the population in that area are Catholic adherents. A new school under Catholic patronage therefore would cater for the largest segment of the local population. Consideration could be given at some future date to a school under different patronage to provide diversity of provision in the area. It was recommended on this basis.
Does the Minister accept that the distribution of patronage across the country is a distortion from the past that no longer fits the contours of modern sociological Ireland?
I accept that greater diversity has come in and there are areas in which such diversity must be and will be recognised. The case in question has attracted criticism from Educate Together for instance. However, that body was awarded the patronage of two schools out of seven. While Educate Together has been highly critical on this occasion, I refer back to 2008, when patronage was issued in respect of 25 schools. On that occasion Educate Together was awarded the patronage of 12 schools. This time, in the circumstances that presented themselves, Educate Together deservedly was awarded the patronage of two schools. However, I also had made clear, in respect of the pilot VEC national school project, that I sought the rolling out of others in different locations and environments with different school mixes to ascertain how the pilot might work.
Can the Minister explain how he allocated three out of the seven schools to a patron body that does not have the legal status to be a patron at primary level?
The Minister, in a final reply.
Some time ago, I indicated that I intended this year to roll out at least two more pilot projects under the VEC. As the Deputy is aware, an interim measure has been put in place. As the Deputy also is aware, I am about to bring the education (patronage) Bill to the Dáil and hopefully it will become law before the end of the year. In the interim period, however, legal arrangements have been put in place in respect of the patronage of the schools.
Will the Minister publish those legal arrangements?
Yes.
3 Deputy Brian Hayes asked the Minister for Education and Science the number of assistant principals and special duty teachers who have retired from primary and post-primary teaching since the embargo on filling middle management posts was introduced in 2009; and if he will make a statement on the matter. [10995/10]
Retirements at primary level since the introduction of the moratorium in March 2009 are 309 principals, 258 deputy principals, 141 assistant principals and 214 teachers with special duties posts of responsibility. The equivalent figures for the post-primary sector were approximately 100 principals, 75 deputy principals, 660 assistant principals and 150 teachers with special duties posts of responsibility. This is based on Department-held data with a pro rata adjustment to include VEC schools. Vacancies at assistant principal and special duties level arise due to retirements in these specific grades and typically also from the knock-on effects of filling principal and deputy principal posts.
On the introduction of the moratorium, the Government exempted principal and deputy principal appointments in all primary and post-primary schools and these continue to be replaced in the normal manner. The impact of the moratorium therefore is limited to the assistant principal and special duties allowances payable to teachers on promotion. Unlike other areas of the public service, retirement vacancies are being filled and the schools' losses pertain to the capacity to make promotions by awarding the extra pay allowance to other teachers. The position whereby slightly more than 50% of all teachers have promotion allowances is simply not sustainable.
I recognise that the impact of the moratorium is uneven across schools and as I already have acknowledged, the impact is not simply due to the level of retirements but also is a consequence of promotions that are made to principal and deputy principal posts. Further retirements and promotions later this year will have a further impact on middle management posts. As I indicated earlier this week, I am prepared to consider this issue to ascertain what limited interim alleviation can be given to deal with those cases, while the overall number of promotion positions continues to reduce.
My Department, like others, is in discussions with the Department of Finance in respect of a public sector numbers control framework. It is only in the context of such a framework for the education sector and when an overall long-term reduction in the number of promotion allowances is brought about that the position of some individual schools can be addressed for September next.
The Minister has just informed the Dáil that 810 posts and 355 posts at post-primary level and primary level, respectively, have been lost since the embargo was introduced, which is very serious. This pertains to 810 middle management posts, that is, year heads and teachers with responsibility for timetabling, examinations and programme delivery. A total of 810 of these important posts have been lost. That does not even take into account the number of teachers who will depart between the present and next September, as the Minister admitted in his reply. The Minister and his Department now accept that this is a blunt instrument and it is causing absolute havoc in some schools in which there has been a large number of retirements. I ask the Minister to do two things. First, does he agree that the position of the teaching unions in respect of non-co-operation is unacceptable and wrong? I agree that the Minister should tell the unions that they need to revoke the latest position and directive they have given their members. I accept his comments in this regard, but will he help them? I ask that he consider a proposal made by myself and others whereby there would be a minimum floor of appointments below which schools would not fall. This would help the situation. If the Minister were to tell the House that he was prepared to consider this or other proposals to alleviate the difficult positions of some schools, it might help the unions to consider the directive they have issued in recent weeks.
There are two issues. I thank the Deputy for his support as regards the teacher unions and their directives. Teachers and their unions have always stated that they put children first. Obviously, however, these matters affect children within schools.
I have indicated to the House that there is an unevenness in the number of retirements and promotions. I have also indicated that some schools have been badly hit. Difficulties have arisen and are arising. The Deputy will be pleased to hear that I am in discussions with the Minister for Finance on alleviating some of the serious difficulties facing schools. I hope to conclude my consultation with the Minister in the near future and that we will be in a position to improve on some of the difficulties and unevenness in the system.
Am I right in assuming that the announcement will be made well in advance of September, when the next phase of these retirements kicks in? Some schools might not open next September because of the loss of middle management posts within them. Will the Minister clarify for the Dáil the savings to date that have resulted from the embargo? My understanding is that they amount to €11 million or €12 million. If it is this paltry sum of money in a Department that spends more than €8.5 billion annually, we can make a difference.
Will the Minister conclude his negotiations with the Department of Finance in the next few weeks in order that teacher unions might be in a position to revoke their directive of recent weeks? If fully implemented, that directive would cause havoc in our school system next year.
The cost of posts of responsibility is significant, €236 million per annum.
Of 810 posts.
That in excess of 50% of teachers are post holders in schools is not sustainable and will not be maintained by the Government. We are well down the road in my consultation with the Minister for Finance. We have been consulting for some time and I hope to be in a position to finalise our discussions in the not-too-distant future. I do not want to put an exact date on it and then miss it, but the consultation is well under way.
4 Deputy John O’Mahony asked the Minister for Education and Science the criteria used to review the special needs assistants in a school (details supplied) in County Mayo; and if he will make a statement on the matter. [10996/10]
The Deputy will be aware that the National Council for Special Education, NCSE, is an independent agency with responsibility for determining the appropriate staffing levels in respect of the support of pupils with special educational needs in mainstream and special schools. He will also be aware that the NCSE, through its network of local special educational needs organisers, SENOs, is carrying out a review of special needs assistant, SNA, allocations in all schools. The purpose of this review is to ensure that all SNA posts meet the criteria governing their allocation, as outlined in my Department's circular 07/02, which states: "Applications for a SNA should be considered where, for example, a pupil has a significant medical need for such assistance, a significant impairment of physical or sensory function or where their behaviour is such that they are a danger to themselves or to other pupils."
The criteria being applied in the review are those set out in my Department's circulars. There has been no change in these criteria. As part of the review, the NCSE will identify and suppress any surplus posts that do not meet the scheme's criteria, for example, posts that have been retained when a pupil's care needs have diminished or when the pupil has left.
The allocation for any school and any adjustments to that allocation depend on a number of factors, such as the number of pupils with care-medical needs leaving, the number of new pupils, the changing needs of the pupils and any surplus identified. SENOs are communicating the outcome of the review directly to schools as the review progresses. I understand that the council has informed the school in question of the outcome of its review. It is expected that the NCSE will have completed the review by the end of March 2010.
The Deputy is fully aware that I have prioritised the provision of special education supports to schools. This is a new and key Government policy. However, this does not mean that resources allocated in response to various historical factors are retained in schools ad infinitum. At a time of constrained resources, it is essential that we ensure that public resources, both staff and resources, are deployed as effectively as possible. Leaving resources in an area not in accordance with criteria means that public resources are not available for another deserving area.
I am sure the Deputy shares my concern about ensuring a consistent application of policy in the allocation of special needs supports. This is all that is occurring at the moment. There is no question of SNA posts being removed from schools where they continue to meet the scheme's criteria. I can assure the Deputy that supports will continue to be made available to schools that have enrolled pupils who qualify for such support and children with special educational needs will continue to have access to an appropriate education in line with my Department's policy.
The criteria are the problem. This is the meanest cut of all to St. Anthony's in Castlebar, which is a special school. Is the Minister aware that a SENO is visiting it today to give a final decision? Does he know what the decision will be? He stated that no necessary posts will be removed.
Where the child meets the criteria.
The criteria are the problem. Why is there a need for a Minister for Education and Science if he hides behind the NCSE, which states in its visionary statement that it is "committed to a special education system that is person-centred, family-focused and is responsive to the needs of all"? I would have loved for the Minister to have gone to St. Anthony's Special School last Thursday night to tell parents and staff that the review would fulfil the school's need. If he does not believe me, he should ask the Government Deputies who attended. Will he intervene?
We are discussing SNAs in special schools, not mainstream schools. This matter is above politics and I appeal to the Minister to examine the criteria. Under the review, the school has lost four SNAs on an average salary of approximately €25,000. Last Thursday, the Minister's supporters told me that the Minister for Defence's handshake would pay those SNAs for one year. I have a final point to make.
I will call the Deputy again. This is Question Time.
This is an emotive issue that should be above politics. Of my budget of €9 billion, €1.2 billion is spent on special needs. The Government takes the matter seriously.
I will elucidate the facts concerning the school in question. It is a special school with 39 pupils on its roll and 24 staff comprising an administrative principal, six teachers, four part-time teachers and 13 SNAs. The NESC has completed its review and will inform the school officially today. From my notes, I understand that the number of SNAs will drop from 13 to ten.
The ratio between the school's staffing levels and its number of children is approximately 6.5:1. St. Anthony's is a mild general learning disability school. It is understood that up to ten of its children have autism. Were a special autism unit established in the school, the staffing level would be one teacher and two SNAs and the pupil-teacher ratio would be 5:1 or 6:1.
That is what it should be.
I advise the school to liaise with the NCSE to ensure that proper designation is included. I am concerned that children are appropriately placed and that children with special needs are differentiated.
I invite the Minister to visit the stated school and tell the staff and pupils what he has told me. He has confirmed the need for everything they have been allocated. The Minister says there is a roll-back on one special needs assistant, SNA. Either the Minister or someone acting on his behalf has looked at the criteria and found there is still a difficulty.
Cutbacks in teaching numbers in a school come into force the following September. The current cutbacks will be rolled out next Easter. The school is expected to cope with this situation in the middle of the school year, when it is already coping with 13 SNAs. That is not acceptable.
Some 20,000 people have joined a Facebook campaign and 5,000 signatures have been collected. I ask the Minister to look at this matter again.
Legislation has given independence to the National Council for Special Education, NCSE. I do not interfere in allocating or removing posts. It would be remiss of me to do so.
The information given to me suggests that one of the SNAs was carrying out secretarial duties in the school and the provision for which that person was employed no longer existed.
I invite the Minister to go and tell the school that.
I am only telling the Deputy what was reported to me. If that is the case, the SNA should not be in the school.
Does the Minister have that report in writing?
Does the Minister have confirmation of that?
The Minister should go down and tell them that.
He should go down and tell them that.
That is the report I received from the NCSE.
5 Deputy Brian Hayes asked the Minister for Education and Science the number of mathematics teachers at post-primary level who do not have mathematics as a subject in their degree; and if he will make a statement on the matter. [10997/10]
It is estimated that over 65% of those teaching mathematics have mathematics as a major qualification in their degree. This figure is deduced by applying the number of mathematics teachers registered with the Teaching Council in February 2010, that is, 4,005, to the estimated number of mathematics teachers in second level schools, which is 5,900. Once recruited into a school, the deployment of a teacher to subjects and teaching duties is a matter for decision by the school authorities.
I am aware of the recent report prepared by the University of Limerick on out-of-field teaching in mathematics which showed that in a study of 51 schools, 48% of teachers in the study did not have a major teaching qualification in mathematics. All but one were fully qualified as teachers. Those not qualified in mathematics held science, commerce, business or concurrent teacher education degrees.
The study showed that 30% of students in the 51 schools were taught by a teacher without a major qualification in mathematics. There were no teachers without a mathematics qualification teaching at higher level in the leaving certificate classes, and only 4.5% and 3% respectively taught at higher level in the second and third years of junior cycle. The study did not undertake any analysis of the teaching approaches used by the respondents or associate the data in any way with student performance.
The deployment of teachers to subjects which are not part of their major qualification is also a feature of education systems in other jurisdictions.
Some €5 million is being invested in professional development for mathematics teachers in 2010, building on a €3 million investment in 2009, as part of the implementation of Project Maths in second level schools. The programme of professional development for teachers will continue to at least 2013. Up-skilling teachers through postgraduate programmes will form a major element of the implementation of Project Maths and funds for intensive programmes have been provided in 2010 to begin this process. A particular target for intensive courses will be those teaching mathematics who do not hold a major qualification in the subject.
In addition to this, the Teaching Council will be examining the recent research report on the out-of-field teaching of mathematics and will work with the other educational interest groups in developing appropriate responses to the issues raised.
Whether one accepts the independent survey's figure of 48% or the Teaching Council's figure of 35%, is the Minister of State at all concerned at the fact that such a large cohort of mathematics teachers in secondary schools do not have mathematics as part of their primary degree?
Of course I am. That is why Project Maths is dedicated to targeting the people who do not have a major qualification in mathematics and to retraining and qualifying them in a more appropriate manner.
Can the Minister of State confirm that the number of continual professional development posts in his Department fell from 250 to 150 this year?
I am not aware of that.
Is the Minister of State confirming that the 250 places on continual professional development courses will remain next year?
That will be subject to the Estimates.
Can the Minister of State repeat that?
It will be a matter for the Estimates.
I thought Eugene Lambert was dead.
Does Deputy Hayes wish to ask a question?
Yes, I do.
Deputies must allow the Chair to call speakers. Otherwise the Chair will have no function. I call Deputy Hayes.
The jobs are either there or they are not. The Minister of State told the House there are no redundancies. Now he says they are subject to the allocation for next year. We have the allocation for this year. Are the teachers to be replaced next September?
We are adding an extra 350 teachers this year.
Houston, we have a problem here. The argument made by the Minister of State is that, through Project Maths, he will roll out a new scheme. It is, effectively, a curriculum change and does not help teachers who do not have mathematics in their primary degree.
Is the Minister of State confirming that there will be no job losses in the continual professional development unit of his Department this year?
I repeat that €5 million is being spent on in-service training. Deputy Hayes is wrong in assuming the training will not be targeted at people who do not have a qualification in mathematics. That is the whole purpose of Project Maths.
I come at this from two perspectives. I also have responsibility for science, technology and innovation.
That is the problem.
There is not much evidence of that.
There is not much evidence of it.
The efforts being made in this area are very much welcomed and should be welcomed. Those involved in industry inward investment have expressed concern at the quality of mathematics teaching and have stressed the importance of upgrading teaching skills, in the interest of the smart economy. Money is being allocated for that.
Now I know why the Minister gave the Minister of State, Deputy Lenihan, this question.
