That this House has considered pupil roll numbers and school closures in London.
It is a pleasure to serve under your chairmanship this afternoon, Mr Hollobone. It is a pleasure to lead my third Westminster Hall debate and to discuss this really important issue. I am grateful to everyone for coming. I also thank London Councils, which has supported me to raise this important issue.
This is an emotive topic. I think everybody here remembers when they went to school; those experiences really do stay with us for life. I still have memories of when I went on a visit from primary school to big school—secondary school—in my summer uniform. I thought this place was like Hogwarts, but when I walked into secondary school it felt like Hogwarts too, because it was so much bigger! Schools are places that communities are built around: places where, as children, we learn to make friends and find our passions in life; and, as parents, we watch our children learn about the world and their place in it.
As a proud Londoner who has lived in Lambeth all my life and now has the opportunity to represent my home constituency of Vauxhall, this debate is personal for me. I went to four schools in total: Durand Primary School and St Helen’s Catholic Primary School, then to Bishop Thomas Grant School and St Francis Xavier Catholic Sixth Form College, all of which were a short trip away from where we stand now. We will talk about policy over the course of the debate, but this is a human issue. We all care deeply about the communities we represent, and schools sit at the centre of them. We all want our city to thrive, with an education system that produces the next generation of Londoners—one that gives them the chances we all had. That is a shared purpose that I hope will define this debate.
The current situation facing London schools is a difficult one. There has been a sharp decline in the number of children born here. In fact, the latest data shows that between 2012 and 2021, there was a 17% decrease in London’s birth rate, which represents a reduction of over 20,000 births. We are only just beginning to see the effects, as children born across that period reach school age, but it is already clear that it will have a drastic impact on the number of pupils attending London schools. The scale varies across boroughs, but it is predicted that reception numbers will fall by an average of 7.3% by 2027—a drop of more than 7,000 pupils. And it is not just primary schools; secondary schools are seeing the same thing happen at a slightly delayed rate, with an anticipated decline of 3.5% over five years. That figure will increase further over time as children currently starting primary school reach secondary age.
My hon. Friend is making a fantastic speech. Many headteachers in my constituency of Battersea have raised concerns about the viability of their schools remaining open. Obviously, the inflation challenges are having an impact on their budgets, but, more importantly, is the fall in the numbers of children coming into their schools. Form entry is reducing due to things like the pandemic, London becoming an unaffordable place to live, a lack of affordable housing, Brexit and many other factors. If schools are having to close, which has been the case in some London boroughs—thankfully not in my own constituency—they will leave a hole in our communities. Does my hon. Friend agree that the Government need to work with our teachers and all authorities to look for solutions to ensure that we do not see schools in our communities closing, which also takes away choice from families and children?
I thank my hon. Friend for making such an important point; her constituency neighbours mine, so a number of my constituents attend schools in her constituency and vice versa. This is about parental choice. The fact is that if schools are closing in some London boroughs and the Government do not address the situation now, there could be a ripple effect. I will come to that point later.
This process happening in secondary schools. Our national education funding model works on a per pupil basis and across the country schools are struggling. In Lambeth, where my constituency is, we are sadly at the forefront of these pressures. It is predicted that we will be hit harder than any other London borough, with an anticipated drop of 15% in the number of reception pupils by 2027. Secondary school numbers are also predicted to reduce by more than 12% over the same period.
The reality is that this trend can be linked to the Government’s record. In the years before they came to power in 2010, Lambeth experienced a 19% increase in demand for reception places. As a result, schools were built, refurbished or redeveloped across the borough to account for this fast-growing population of school-age children. I feel proud that I added to their number with my son, who is six years old today, and my daughter, who is eight; they both attend Lambeth schools.
The Tory failure to manage the economy has led to the spiralling cost of living crisis and the situation is not helped by the lack of affordable housing being built. This has priced people out of their communities and caused the decline in school numbers across Lambeth. Sadly, we are witnessing the harsh impact of this situation. Two schools in Lambeth are closing because they do not have enough pupils to be financially sustainable.
I congratulate the hon. Lady on securing this important debate. She made a powerful point about the sky-high childcare and housing costs in London, which are driving people out of the capital. In Richmond upon Thames, we have not quite seen the level of reduction in pupil numbers that there is in Lambeth, but in my constituency of Twickenham we had to close down eight reception classes in the last academic year and seven reception classes this year. In a few years, that will feed into the secondary school sector, where, of course, academies can raise their pupil numbers at will and local authorities have no control over them. Does she agree that it is high time that local councils were given strategic powers to co-ordinate all school places and admissions in their area, so that every child can go to a good local school?
I agree. That is something that my party is committed to. I hope that my colleague—the shadow Minister, my hon. Friend the Member for Portsmouth South (Stephen Morgan)—will be able to outline why it is important that we have that approach.
Archbishop Tenison’s School in my constituency announced in May that it will close at the end of this academic year, and it was closely followed by St Martin-in-the-Fields High School for Girls in Tulse Hill, which is represented by another constituency neighbour, my hon. Friend the Member for Dulwich and West Norwood (Helen Hayes), although young pupils also attend it from my constituency of Vauxhall and that of my constituency neighbour, my hon. Friend the Member for Streatham (Bell Ribeiro-Addy). Both these secondary schools have histories dating back to the 17th century and their closures will leave a huge hole in the communities they have served.
I will say a bit more about Archbishop Tenison’s School, because its closure has directly impacted my constituents. The beautiful, grand, 1920s school building is matched by the school’s history. The school overlooks the Oval cricket ground and has proudly offered high-quality education to many generations of south Londoners who have studied there. I have had the pleasure of visiting on many occasions, and every time I have been struck by the strong sense of community. Pupils from all different backgrounds feel at home there.
The school’s closure has caused an outpouring of sadness. I was contacted by so many constituents who were shocked by the announcement, many of whom were former pupils with so many happy memories to share. The closure has caused significant practical disruption for the current students, which brings me back to the people at the centre of what we are discussing: the children and the school staff who have to bear the brunt of what is happening.
Mr Hollobone, I want us all to imagine what this would feel like: imagine what it would be like to be in the middle of your school journey, in a place you know like the back of your hand, having navigated the corridors where you have made friends you have seen every day for years; you feel at home. Then, one morning—out of the blue—you come to school to hear that your school is closing. You are probably preparing for exams and coping with the stress of being a teenager, but at the same time have to start at a completely new school, maybe in a new area, with new teachers, new classmates and new buildings. The uncertainty of the situation is having an impact on our young people mentally, and this will happen to many children in the years ahead if we do not act now.
The debate can last until 4 o’clock. I am obliged to call the Opposition spokesman no later than 3.37 pm and the Minister at 3.47 pm. The guideline limits are 10 minutes each for the Opposition spokesman and for the Minister. The mover of the motion will have three minutes at the end to sum up the debate. Until 3.37 pm, we are in Back-Bench time.
2:49 pm
Mr Virendra Sharma (Ealing, Southall) (Lab)
Thank you, Mr Hollobone, for letting me follow my dear friend, my hon. Friend the Member for Vauxhall (Florence Eshalomi), and for accepting my apology for having to go to another meeting, although I will come back.
I congratulate my hon. Friend on securing this important debate. We know that some mainstream primary schools are not as inclusive as they could be in admitting children with special educational needs and disabilities. I have been approached by many parents in my constituency who would like their children with special needs to go to a mainstream school. The surplus of places in many primary schools across London gives us an opportunity to identify ways of making them more inclusive to children with special educational needs and disabilities. We need to ensure that schools are appropriately funded to meet the needs of children with SEND. However, some children with SEND need provision that is best delivered by a special school. Given the shortage of local special schools in London, I hope the Minister will commit to support and fund local authorities so that they can expand local specialist provision where there is a clear need.
It is a pleasure to serve under your chairmanship once again, Mr Hollobone. I too congratulate the hon. Member for Vauxhall (Florence Eshalomi) on securing the debate. We have a shared history as councillors in London and as parents of young children, so this issue is close to our hearts. I will touch on the recent history of school place provision in London, outline some of the emerging challenges that I hear about in my constituency—especially, as the hon. Member for Ealing, Southall (Mr Sharma) mentioned, the emerging challenge in respect of SEND places—and briefly make some suggestions that the Department may find helpful in resolving those challenges.
When I was first elected as a councillor in Hillingdon just over two decades ago, the council was seeking to open a new school, which is thriving today as Ruislip High School. It was built on green-belt land, and local residents were concerned because they recalled that, just a decade or so earlier, the council had closed Southbourne Secondary School in south Ruislip, not far from the new school, because at that time there was a massive over-supply of school places.
There has been a long history in the capital of variations in the number of children, which goes through cycles. When my local authority engaged with the Building Schools for the Future programme, under my leadership as cabinet member for education, it was a condition of Hillingdon’s entry that at least one secondary school per constituency be closed to reduce excess capacity. By the time we were a year or so into that programme, we looked at it again with a view to increasing places significantly, because the live birth data supplied by the NHS demonstrated that the demand for places, although relatively low in the immediate future, would rise rapidly.
The need to plan strategically has been a current issue in all our constituencies for a good long time. The number of pupils grew swiftly following the late 2000s financial crash, hit a peak following a massive expansion in school capacity across the capital, and has begun to tail off in recent years. That initial expansion of school capacity across the capital was primarily led in its early years by local authorities, which fulfilled their statutory duty to ensure that every child who wants and needs a school place can be offered one in their local area.
The hon. Gentleman is making a well-informed speech. On that point about pupil admission numbers, it is my understanding—I am happy to be corrected—that if a school has a published plan of 60 and 45 parents put down that school as a first choice, those 45 places have to be granted and therefore the school has to open two classes, even though it is only one-and-a-half classes full. As a result, the school ends up with the shortfall in cash that the hon. Gentleman has outlined.
Does the hon. Gentleman think that, as well as some of the strategic planning powers I talked about for local authorities, there needs to be an interim measure whereby the Department for Education provides some sort of additional funding or grant for those classes that are not full? Schools in my constituency are asking parents for money for glue sticks and to be in sports teams, and are cutting teaching assistants because they are struggling so much financially.
The hon. Member makes a good point. We also see the converse of the situation in which a school has fewer applications than it has places, and this creates additional pressure on places: rather than maintaining a PAN of 60 with 45 applications, a school makes a decision to reduce its PAN to 30, which means that 15 children who want to be in that school but do not have a place are put somewhere else in the system. I will discuss later a way in which we might be able to address that.
Within the context of reducing pupil numbers, we are consequently seeing significant localised pressure on school places where local authorities are still having to look to expand schools to meet demand. There has always been a need for some spare capacity—5% was the traditional rule of thumb to allow for normal fluctuations —but because we have seen the loss of many of the strategic levers that local authorities could use for planning that, we now see a hotch-potch of situations in which some schools remain under acute pressure to find capacity for more children while others relatively close by struggle for numbers and reduce their planned admissions number.
From a parent’s perspective, everything seems absolutely fine if their child is the one that gets into their school of choice. If that school has reduced its planned admissions number from 90 to 60, but their child is one of those 60, that is fantastic. But if someone’s child is one of the 20 that cannot get in, they are displaced to a school that is not of their choice. That situation creates unhappy children and a financial challenge for the system, which tries to find another place for the children to go.
None of this is helped by the fact that although councils have no control over the dedicated schools grant—the ringfenced budget that funds schools—it is still legally part of councils’ budgets, so a duty is imposed on them to ensure that over a period of time the dedicated schools grant breaks even. I know Ministers have been working on that with the Department for Levelling Up, Housing and Communities, which has overall responsibility.
Order. To make sure we can get everyone in, we will have a formal seven-minute limit on speeches.
3:07 pm
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The declining birth rate leaves many schools facing an uphill struggle to stay afloat. Our national education funding model works on a per pupil basis. Across the country, schools are already working hard on very tight budgets.
Fortunately, neighbouring schools have rallied round to help minimise the impact for students from Archbishop Tenison’s. I am particularly grateful to St Gabriel’s College, which has agreed to take on a majority of the students in exam years, as well as a majority of the teaching staff. Earlier this week I had the pleasure of visiting St Gabriel’s with my hon. Friend the Member for Portsmouth South, and we saw preparations for the new students. Many areas would not be lucky enough to have such a sustainable alternative nearby, but even where a new school is found, the process will be disruptive for all involved.
My central point is a simple one: without action to address falling pupil numbers, Archbishop Tenison’s and St Martin-in-the-Fields will be joined by other good schools across London being forced to shut their doors. Data from London Councils shows that there are 14 parliamentary constituencies in London where at least one school has already closed or is consulting on closure—that is just in the last two years—but it does not have to be inevitable.
The Government have to act to address the core issues driving young families out of the capital and causing the birth rate to fall. There are a number of factors behind this behaviour. During the pandemic, we saw many families move away from London to be closer to relatives during the lockdown. Some have chosen to resettle where they are, because moving back to London is, frankly, too expensive. The picture has not been helped by the loss of many young European families who were living here in recent years. The uncertainty of the Government’s post-Brexit immigration policy has meant that we have lost the stability we had in previous years, and this has caused many to move away from the UK, leaving a hole in London’s workforce and meaning fewer people are settling here. Those factors have played a part in putting schools under pressure in recent years.
The single most important reason for the fall in the number of children growing up in London is the affordability crisis. It is an issue frequently discussed in the context of the cost of living. Sky-high inflation has pushed up the cost of everything from food to energy bills and household goods; we have all spoken about the issues and the pressing need for the Government to do so much more, but London’s affordability problem has long-term roots, starting with the extortionate cost of housing. The impossibility of finding an affordable place to buy as a young adult is a problem across the country, but it is particularly significant in London.
The average property sale price in London is now over half a million pounds. That is wildly out of reach for so many young couples wanting to start a family, and the private rental market is not a suitable alternative. Private rents have soared in recent years, driven by rising demand and falling supply. I have heard from so many of my Vauxhall constituents who face the choice between paying nearly double the rent to renew their tenancy or having to battle—in some cases, with up to 60 people—just to view a rental property. For a young family with children, that is no option.
Despite the best efforts of our councils to cope with the rapid rise in demand, social housing waiting lists are at an all-time high. Taken together, that means that young couples on lower and middle incomes simply have no choice but to leave London and look for cheaper housing elsewhere. Fewer children are being born here because of that, which fuels the drop in demand for school places. The housing crisis runs through so many issues we face, but if we are serious about protecting the future of our fantastic schools, Ministers must ensure that London remains a place where people of all backgrounds can afford to live.
Without more young families staying in London, we may sadly lose more schools. I have already spoken about the impact of school closures, but the loss of a school is also a wider risk to national education standards. As schools close and pupils are relocated, existing schools become larger. Over time, that creates a culture of survival of the biggest, where smaller schools are consumed by those with more capacity. We have already seen that locally with larger academies seeking to expand at the expense of neighbouring schools. That trend threatens the mix of small and big schools that defines London’s school ecosystem, reduces parental choice, and leaves smaller schools unable to compete, even if they are performing well.
For most pupils, what does that mean? It means longer commutes, and bigger class sizes, which puts pressure on our teachers, who are so stretched that some are at breaking point. Some are leaving the profession they love and care about, while the others are left with less time to spend with our children. Also, resources for specialist teaching are squeezed, and those with special educational needs are adversely impacted. Collectively, all those factors damage school standards.
The reality is that where education declines, the life chances of future generations suffer. That is what is at stake when schools close. The importance of that has been reflected in recent media coverage. Last month, the BBC reported that London is becoming “a city without children”. That should worry us all. London is a vibrant, diverse and young city, built on young people. If there are less of them living here, our economic strength to compete in a global world will be harmed. The UK economy will be hit hard by our capital city falling behind.
But what do we have? So far, Ministers have been silent, acting as if this is not happening on their watch. There are spatial impacts: if people are priced out of their home communities, gentrification will accelerate. I am proud to be a working-class girl from Brixton, and I still live there today. I know how important lifelong Londoners are to this city. I am proud to meet so many of them on my walkabouts across my constituency. They are the lifeblood of London, which would be so much poorer without them.
I have five simple asks of the Minister to help. First, further school closures can be avoided if the Department for Education recognises the pressure in the system. Will the Government please work with school leaders and local authorities to identify schools at risk of closure and to work out a plan?
Secondly, London’s birth rate means that pupil roll numbers will fall over the next few years. We have to plan ahead. Will the Minister address the inequalities in school funding? Will he work with the sector to develop a collaborative approach to the challenges ahead, so that we do not see disruption to education standards?
Thirdly, affordable housing shortages are driving young families out of London. The Mayor of London and many of our councils do all they can to increase the supply of affordable housing, but the reality is that the national planning framework, which the Government control, is stacked in favour of developers building high-end housing that no one can afford. Will the Government bring forward their long-awaited planning reform? Will they put power back in the hands of local communities, so that those communities can have development that meets the needs of the local population?
Fourthly, the local housing allowance is a lifeline for many low and middle-income families in the private rented sector, but the Government have frozen its rate since April 2020. Rents have gone through the roof since then. Will the Minister please ask the Chancellor to reverse that real-terms cut to housing support and give hope to the millions of people who have been forced out of their homes?
Finally, will the Minister meet me and other interested MPs to discuss the issue in more detail? Will he work with us to find a solution?
I will end by taking us back to the heart of the issue: the children who have their life chances impacted by what has happened to our schools in recent years. The Government may want to look away and pretend that this is nothing to do with them—that it is the fault of, and down to, the multi-academy trusts or MATs, the education authorities and the schools—but the reality is that Ministers are the ones with the power to do something. I urge them to act now.
As time has moved on, we have seen increasing reliance on central control from the Department for Education, as additional capital funding has been moved from local authorities and expansion funds have instead been primarily routed through the free schools programme. A welcome feature of that programme is the significant increase in the number of children attending schools that are good or outstanding, which we often hear Ministers talk about. The fact that the funding was restricted over that time to schools that were already good or outstanding has been positive, as it ensured that in-demand schools could expand, but the reduction in the number of places creates a challenge because the geographical concentration of the surplus places is different from where demand is.
With some of the schools that have been expanded—in and around my constituency and serving some of my constituents I know of schools such as John Locke Academy, Lake Farm Park Academy and St Martin’s—the local authority built the school, ran a bidding process to find a free school provider to deliver the education in it, and ensured that the additional places, when they were required, were delivered on time and on budget in the locations where there was a great deal of demand. Those schools continue to thrive to this day.
When it comes to the emerging challenges, London Councils has done some excellent work to highlight not just the impact that we all hear about as constituency Members of Parliament but what they mean across the capital. Over the same period of time as pupil numbers have been dropping, we have seen a number of changes to the schools funding formula, which has tightened so that there is comparatively much less scope today for a local authority and the schools forum of local schools that work together to support schools with declining numbers—unless there is clear evidence that the surplus places will be used again within the next three years.
Local authorities that use birth data and child-registration data from the local NHS tend to have extremely good visibility of what the numbers are, but by its very nature that data is limited to the point at which the child is born at a local hospital or registered with a local GP as a new mover into the area. Broadly speaking, therefore, we are talking about a five-year time horizon for when we can be accurate about that.
As the hon. Member for Vauxhall alluded to, there has been much debate about why the child population of the capital has been reducing. The data from the Office for National Statistics clearly shows that there is a reducing birth rate, which is having an impact. Anecdotally, schools have told me that increased family mobility as people seek bigger homes outside the capital at affordable prices, and Brexit in locations with a high level of rental accommodation that was regularly occupied by families from the European Union who are no longer coming here, have had an impact on the numbers of children coming through their doors. But the challenges are manifesting not just in inner London: those of us in the suburbs are seeing a significant impact. For example, according to London Councils figures, in the London Borough of Hillingdon we are seeing a decline of around 15% in overall numbers—one of the highest rates in outer London.
Why does this matter? Why does this situation create such a challenge, given that these things are part of the normal warp and weft of population change? Looking at the figures, it is fairly clear that the funding formula, whereby almost all the money a school receives comes based on pupil numbers on a per capita basis, means that a class needs to be full or nearly full to break even.
Let us take the example of two schools in my constituency: Cannon Lane Primary School in Harrow, and Bishop Winnington-Ingram Church of England Primary School in Hillingdon. According to Department for Education figures, Cannon Lane receives £4,249 per annum per child and Bishop Winnington-Ingram receives £4,816. It costs around £60,000 with on-costs to put a teacher in the classroom, and two teaching assistants on top of that are a further £60,000 with on-costs. A share of the school’s overheads will pretty quickly get us to £150,000 to £180,000, meaning we can quickly understand that if a school does not have a nearly-full class, the amount of money coming in per child will not add up to enough to break even for the school’s budget.
Schools that face significant demand for places, but where that demand is less than is needed to fill a class, are going through a process of reducing their planned admission number or PAN—the stated capacity of the school.
We see the converse of this challenge in respect of SEND places. The Timpson reforms represented an enormous transformational change in the approach to SEND education across the whole country. The downside is that the huge expectations that were raised by the reforms—particularly the extension to the mid-20s of the age entitlement for young people to access education and training—did not come with sufficient funding to ensure that they were delivered in reality. That is one reason why we see such enormous pressure on SEND in the capital.
Audit data from the London boroughs on the children who are given education, health and care plans and those who have some form of diagnosis demonstrates that the decisions are entirely the right ones. The children are meeting the relevant tests and criteria for the NHS, educational psychologists and so on, so the levels of need are undoubtedly being correctly assessed. We can see councils across the capital—I certainly include in this Hillingdon and Harrow, which serve my constituents—that are enormously challenged by rising demand against a backdrop of the reforms not being funded in line with the expectations that families now reasonably have.
There are many small, specialist SEND providers in the capital—for example, Sunshine House in my constituency—that are very popular with parents. They can offer a very high-quality service, but they are also often extraordinarily expensive, with a single place funded by a local authority not infrequently costing in excess of £1 million a year per child.
The delivery of the additional capacity that we require has been quite slow in the centralised programmes compared with the council-led ones. In my constituency we have seen additional SEND place capacity created through the local authority, such as the Eden Academy and specialist resource provision at other schools, all delivered on time and on budget. But some of the larger free school programmes, which are to deliver the bulk of the additional places we need, are many years behind where they need to be. Although there might be good reasons for the delays—we all understand the period of covid—the reality is that they impose massive cost pressures on our DSG high-needs blocks.
Although safety-valve agreements are being reached at individual local authority level, we need to recognise that the failure of programmes to deliver places on time, even if they eventually arrive, is the main reason why we see such a high level of pressure on the DSG across London for SEND. We know that the in-borough SEND—the state school places—is significantly cheaper than the private sector provision, but the awaited reform of SEND financing cannot come soon enough to make sure that the cost pressures are eased and that parents and children’s expectations can be met.
Let me conclude with some ways forward. I know there has been some consultation on this matter, but my first ask of the Minister is that we look at the enhancement of local authority flexibility to allocate budgets much more strategically in order to ease the way forward, especially when schools go through a transition period of downsizing. Rather than a sudden step from 90 children down to 60, which has a huge impact on the ability of parents to get their kids into a school, as well as a major financial impact on the institution itself, we should smooth that process out and recognise the fluctuations in rising and falling demand.
My second ask is for greater powers for local authorities to strategically plan, recognising that in the context of falling rolls there are areas of growing demand, not just for SEND but mainstream as well. There is an urgent need to be able to direct the overall school-planned admissions number to ensure that the provision matches the demand in a local area.
My third ask is that we do not forget that London is likely to see its population increase again at some point in future. We know that our capital’s population is smaller at the moment than some of its past peaks, that the density of the population has been reducing and that the crowding has been dropping for decades, but it will almost certainly begin to rise again in due course. To facilitate that, multi-academy trusts should be prohibited from selling or disposing of any land or closing sites without the agreement of the local authority that has the legal duty for school places in the area.
I finish by thanking London Councils, and in particular the leader of one of my local authorities, Councillor Ian Edwards, who is the lead member for children’s services at London Councils, along with the officer team that have been supporting him. I place on the record my thanks to the leaders and members in Harrow and Hillingdon, particularly Councillors Hitesh Karia and Susan O’Brien, for their work. I also thank the hon. Member for Vauxhall again for securing the debate on this important issue.
On a positive note, this is an opportunity for us to thank the teachers and councils of London for the work they have done to ensure that this remains, to this day, one of the best cities in the world in which to get an education.