3 Continuity of education
Continuity of education
60. As we have already illustrated, a continuous
theme of the evidence taken from families, their representatives
and from the Committee's on-line survey is concern over the lack
of continuity of education for the children of Service families.
We heard evidence from families, submitted on their behalf by
the Army Families Federation, and from contributions to our on-line
survey. Examples of the comments we received are given in Box
3 below:
Box 3: Concerns of Service families about
continuity of education
My husband is serving in the armed forces and we have two children. Four years ago, having watched our eldest son struggle with different curriculum and teaching methods in schools both in the UK and in Germany, we decided that he had endured as many changes in schools as he could cope with. He was missing vital steps in learning and was coping with different teaching methods guided by different Local Authorities. An example of this was when he learnt cursive writing in Year R in Kent and then this did not follow on in Germany in the same way, and again was different when we returned to the UK. We also had concerns about his progress.
Over the past two years not only have my son's grades dipped quite dramatically but his self-esteem seems to have been affected too. I believe this is due to the frequent school moves and lack of stability.
My husband and I have moved eight times over 13 years. Most of these moves have been big ones: Germany-Yorkshire-Glasgow-Swindon-Germany etc, making settling in one location with husband commuting impossible. Our last two postings only required us to move 50 miles. I kept my job and commuted but DIO policy meant that we had to move houses so even a small move would have meant a school move for my children. And even if we had not moved, who knows where we will go next meaning our children need to stay where they are to guarantee continuity of education.
"I have been to lots of primary schools before I was sent to boarding school. I was finding it hard to make new friends again and again but since going to boarding school I have made friends that I will have for the rest of my schooling." Service child, Army
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Source: Army Families Federation and NAO on-line
survey[94]
61. Some parents expressed concern that mobility
meant children did not always complete the curriculum. We heard
evidence from a number of sources that children miss parts of
the curriculum and repeat others. While schools must teach certain
subjects as part of the syllabus, it is up to individual schools
when they cover a particular topic. This can be exacerbated if
children move between the Devolved Administrations and England.
62. The MoD's guidance explains that children can
start school for the first year of their statutory education at
different times in Scotland and Northern Ireland compared to England
and Wales. This can have a knock-on effect regarding the year
group to which children may be admitted. There are also differences
between the Administrations about when children move between phases
of education, for example moving between primary and secondary
schools.[95] Catherine
Spencer said:
It is also to do with the curriculum, because
there are differences between [...] the age at which you start
school in Scotland, Northern Ireland, and England, so that can
cause difficulties as well; you may find children jumping up or
down. We have numerous reports of children finding that they have
moved schools and then, maybe at the end of key stage 2, they
have studied the Vikings three times but they have never done
the Romans, so they miss chunks of education. One of the things
that could mitigate that is making sure that the curriculum lays
down more what is taught in each term, but that will not suit
every school because of resources.[96]
Students at the Wellington Academy told us of their
experiences, see Box 4 below:
Box 4: Experiences of students on their
education in moving schools
When I first came here I found it really easy because when I was back in Nepal we had already covered all the stuff.
I only did up to year 9 in Jamaica, which is equivalent to year 10 in England because there is a year difference in the school year, but the education, what I had done in year 9 was all of the year 11 syllabus. So, basically, when I came here it was like just getting the qualification, not really getting the teaching. [...]
Boring? Well, it was nice at times because everyone in the class was—because they have to put you in the lower set. I was supposed to be above everyone in the class. Basically, when they gave me the exam papers just to see 95 per cent on it, it was like, "Okay". I already knew the stuff, but, yes, still it is 95 per cent.
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Source: Evidence to Defence Committee [97]
63. Variation in schools' teaching styles was also
highlighted as adding additional pressure on how Service children
adapt and cope in their new schools. Contributors to our on-line
survey told us of:
"The pressure placed upon Service children
to conform to the new and/or different teaching expectations of
the different schools they are placed in. This can be found in
young children learning to write (differing writing styles between
schools) through to high school pupils having to catch up very
quickly with differing syllabus." Service parent, Royal Air
Force[98]
64. MoD guidance provided to parents acknowledges
these difficulties:
Individual schools decide within year groups
and Key Stages when to deliver the required components of each
national curriculum. For mobile Service children, this can mean
that they either repeat and/or miss out parts of their required
studies; whilst schools must work with them and their families
to ensure that any gaps are properly covered, this can place additional
burdens on such children, in addition to any emotional turmoil
they may experience through their mobility or a loved one's deployments.[99]
65. We recognise that as a result of mobility
children encounter difficulties in the consistency of their education.
When moving mid-year pupils can repeat topics, for example. Evidence
also suggests some children may not be academically stretched
as much as they should be. We recommend that under the New Employment
Model, Future Army 2020, and Future Force 2020, the MoD undertakes
to minimise, as far as possible, moves during the school year,
and restricts, wherever possible, the movement of whole units
to an appropriate time in the academic year.
BOARDING SCHOOLS AND CONTINUITY
66. Parents' concern over the lack of continuity
and the emotional difficulties frequent moves may cause their
children lead many Service families to take the decision, which
many find difficult, to send their children to boarding school.
I believe that sending our son away to school
was the most difficult decision we have ever had to make as parents
and one we did not take lightly, but I do feel this was the right
decision for our son. The stability that boarding school offers
has alleviated anxieties on us as parents as we know that our
son will now continue to have continuity of education and reach
his full potential academically.[100]
And a response to our on-line survey was:
My child is now in boarding school so the
negative impacts have been minimised. That said, the impacts on
the wider family of having to board should not be ignored. Boarding
has been a decision based on a balance of achieving continuity
in education against the 'loss' of our child from the family home
- a significant concern that has produced immense pressure. Service
parent, Army[101]
67. The MoD advises parents to send children of secondary
age to boarding school:
At the secondary stage of education the appropriateness
of local provision changes. Schools outside the UK work towards
different examinations and qualifications and parents should be
prepared to consider the option of sending their older children
to a boarding school in the UK. The potential difficulties for
a student in the middle of an examination course, if appropriate,
transferring back to the UK from the education system of another
country, cannot be overstated. For this reason, boarding (either
in the UK or at an SCE school) is recommended for children who
would otherwise be returning to the British system in the final
year of Key Stage 3 or beyond.[102]
Continuity of Education Allowance
68. Service families who choose to send their children
to boarding school to provide continuity in education can apply
for financial assistance from the MoD. This assistance is called
the Continuity of Education Allowance (CEA).
69. The MoD told us that there were two main principles
associated with eligibility for CEA: accompanied service and educational
continuity. CEA is available to any serving personnel, and is
available for children of 8 years of age until the end of the
academic year in which they reach the age of 18. Service personnel
can claim up to a maximum of £6,147 per child per term in
the current financial year.[103]
The rates vary according to whether the child is a junior or senior
boarder, and if they are boarding or at day school. Parents must
pay at least 10 per cent of the school fees, and any fees in excess
of the sum of the 10 per cent allowance and the CEA allowance
maximum.[104]
THE IMPORTANCE OF THE CONTINUITY
OF EDUCATION ALLOWANCE
70. In our on-line survey families told us that they
relied on the CEA to provide continuity:
"The CEA has allowed our children the
continuity and security that they need in their education, particularly
for the son with dyslexia. No matter where we moved, the boys
have always had their friends at school and the familiarity of
the staff and the establishment. This has been very important
during my husband's numerous deployments." Service parent,
Army
"CEA remains absolutely critical if
Service children are not to be disadvantaged by the regular location
moves. If you want a contented serviceman/woman prepared to serve
their country without distractions you need to offer something
like CEA to those that need it." Service parent, Royal Navy[105]
71. We heard evidence that CEA plays a part in the
retention of personnel. In evidence submitted by the Army Families
Federation, a Service parent said:
I feel that choosing the boarding school
option was the most difficult decision that we have had to make
in life so far. If the Continuity of Education Allowance had not
been available, then I think that my husband would have considered
leaving the Army. The impact of mobility would have been too great
on our children's education as we have moved 15 times in 22 years
so far. [106]
"CEA (Board) is necessary to allow my
child stability during their secondary education if I am to continue
to serve as flexibly as the Service requires. Any reduction in
CEA would cause me to question my continued service in the military
because while mobility is key to a productive career it must not
be at the expense of my family life. They put up with enough disruption
(willingly) but I would not tolerate cuts that impacted my child's
chances of achieving her full potential academically. I would
also not be prepared to pursue a career that required me to live
away from my family, perhaps only seeing them at weekends."[107]
TIGHTENING OF THE RULES ON ELIGIBILITY
FOR THE CONTINUITY OF EDUCATION ALLOWANCE
72. In October 2011 the then Minister for the Armed
Forces announced the conclusions of a review into the CEA. Following
that review the MoD maintained the core principles of CEA, though
there were some improvements to governance and tightening of rules
on eligibility for CEA.[108]
The review led to concerns amongst Service families about their
entitlement to CEA and the longer term effect on their children's
education. Parents said:
The process to get CEA is difficult and constantly
changing. Service parent, Army [109]
The CEA rules need to be relaxed. When one
child is in receipt of CEA the other child(ren) should not be
disadvantaged by constantly having to move to fulfil a set of
very archaic and poorly thought through rules. Service parent,
Army [110]
I have seen children's education and therefore
their potential long term prospects destroyed by SDSR due to withdrawal
of CEA and unexpected moves.[111]
73. The MoD told us:
A complete re-write of the CEA policy is underway
in order to make the regulations more easily understood by the
recipients and more easily governed by the CEAGT (Continuity of
Education Allowance Governance Team).[112]
We asked the MoD whether this current re-writing
of the rules around CEA would mean further changes or cuts in
the payments or entitlement to them. We were assured that it would
not and that the re-writing of the rules was a matter of clarification
and not a major change of policy.[113]
Gavin Barlow said:
What we are talking about is clarification
of the rules set. There have been a number of changes incrementally
since the SDSR, including the one I just mentioned about withdrawal,
some of which is being dealt with in defence information notices
and so on. That has contributed to a situation where we want to
rewrite the whole thing so that it is easier to understand and
is really clear. It is part of the work we are doing generally
on our allowances to make them more readily accessible and understandable.[114]
74. Staff at Wellington Academy told us that applications
for CEA at post-16 were being turned down 'quite a lot'. The staff
also said that applications for funding at A-Level have to be
made before students finished their GCSEs
Obviously we know at post 16 it seems to
be turned down quite a lot. We are finding that if somebody applies
at A-Level then they are not going to get the funding, yet they
have been with us for five years, or been somewhere else and they
want to leave to move to this area. They know they are going to
be posted halfway through their A-Levels, but if they don't apply
before they finish their GCSEs they are probably not going to
get it at A-Level. We find that sometimes if they are going to
be posted, they are a day pupil, they may not get it for the second
year of A-Levels or the second year of their BTech course, which
means they have to transfer, go somewhere else, and obviously
it is quite difficult, I think, because we are matching exam boards,
schools have different option groups, are they going to fit in,
are their options going to fit, which then could affect university
choices.[115]
We received some evidence questioning the value of
the CEA. Parents told us in evidence submitted on their behalf
by the RAF Families Federation that:
We made a lifestyle choice which requires
me to commute but has enabled our children to attend a first rate
grammar school at no cost to us or to the military. In contrast
I see many others placing their children in a fee-paying school.
[...]there is an adequate state boarding system - it should be
the ONLY option for CEA. I recognise that my views may be controversial
but I believe I have a reasonably balanced view based on my personal
and professional experiences.[116]
Whilst we recognise that this particular
allowance is an emotive one which generates much debate and discussion,
we seek to remind those involved, [...] of the fundamental purpose
of the allowance. That is to ensure continuity of education for
those Service children who might otherwise be affected because
they are a member of a military family. It is never an easy decision
to place a child into the boarding school system, and there are
long-term financial implications for the family, but it is one
that many parents have to take to ensure that their child(ren)
get the best start possible.[117]
75. Maintaining continuity in their children's
education is a major concern for parents. We support the principle
of paying CEA to those families who choose to send their children
to boarding school to provide continuity. The MoD should clarify
the rules on CEA and reassure Service personnel that entitlement
to CEA is not under further review and will not change at short
notice.
TAKE-UP OF CEA
76. There has been a significant reduction in the
number of claimants of CEA since 200910. Gavin Barlow said
this resulted from:
the reduction in overall numbers of Service
personnel over that period, and also with the changes to the involuntary
separation rules, which probably account for several hundred of
the reduction in claimants, but the number is about where we would
expect it to be at the moment, given the trends in take-up of
the allowance and the impact of the rule changes that we have
put in place. I would refer also to much more careful governance
within all the Services, which have all looked at their CEA claimant
community carefully to make sure that all the claims are well
founded and properly documented. During that process, a number
of people have withdrawn from claiming the allowance who perhaps
did not meet those standards, and some others are perhaps more
reluctant to put themselves forward as well, but it continues
to support well over 4,000 claimants. The allowance is very well
used and needed by the Service community.[118]
77. During the inquiry we heard evidence that the
rate of take-up of CEA remained lower amongst lower paid ranks.
The MoD told us:
The overall CEA claimant community currently
comprises 2,476 Officers (60%) and 1,631 Other Ranks (40%); a
ratio that has remained relatively unchanged during the period
under scrutiny. Although the ratio of Officer to Other Rank claimants
is around 1.5:1, the proportion of claimants within each group
is significantly different. Officer claimants represent 8.3% of
all serving Officers (30,010) whereas Other Rank claimants represent
only some 1.1% of all serving Other Ranks (145,930).[119]
78. Gavin Barlow explained the differences in the
rate of claimants between the ranks:
That very much reflects the demographic of
the Service community. Most of the junior ranks will not have
school-age children, whereas you will find that not all, but the
majority of those who serve with school-age children—for
CEA purposes, children aged over eight—will be senior non-commissioned
officers, or officers. I think the peak—the largest block
of claimants—is round about Captain/Major level. That is
where the demographic peaks, but that is just representative of
the nature of the Service community as a whole, rather than an
idea that it might be in some way an officers' allowance or something
of that nature, because it is not. It is available to all Service
personnel who meet the mobility requirements and have children
of the relevant age, if they wish to have it.[120]
Nevertheless, we heard evidence that they may still
be a lack of awareness of the allowance among lower ranks:
The only reason we got brought on to it is
because at the time I was working at Sandhurst Royal Military
Academy and there was a lot of officers who had children who seemed
to take advantage of it but there was not very many soldiers.
I do not know if it was to do with the cost or money, because
obviously that subsidises quite a lot of the cost. However, I
think the majority of it was because the soldiers were not possibly
aware that they could do it.[121]
Staff at the Wellington Academy expressed the view
that boarding is seen as something officers traditionally did:
My point about ordinary soldiers is that
it appears as slightly alien, it is an alien concept. It is possibly
an alien concept to ordinary people, boarding, boarding schools.
It has this sort of connotation, so I think there is a lot more
that could be done about that. Then we will fill our places, so
we don't want to advertise it too well, because there aren't many
places left anyway. There are hardly any places in state boarding
anyway.[122]
STATE BOARDING SCHOOLS
79. During the inquiry we found a lack of awareness
of the state boarding school system. Andy Schofield, the Principal
at the Wellington Academy, said:
I think there is a point here about the strength
of the state boarding system, which I am a strong advocate of.
We have 35 boarding schools and it is a bit of a Cinderella element.[123]
80. The cost of tuition at state boarding schools
is met by the state, so Service families would be required to
contribute only to the boarding costs. This could help those who
may find the cost of contributing 10 per cent of the fees a disincentive,
or who may find a state rather than independent school a more
acceptable option.
81. Evidence from the State Boarding Schools Association
said that by September 2013 there would be 37 state boarding schools.
The Association said that there were fewer Service children at
state boarding schools than might be expected, as less than 10
per cent of boarders at state boarding schools were Service children
in receipt of CEA.
82. The Association suggested possible reasons why
this might be the case, including the difficulty of entering a
child for a selective entrance examination if the family are located
abroad, that applications had to made in autumn but notice of
a place not given until spring, and independent schools offered
places before Christmas. The Association also expressed the view
that a lack of funding for the maintenance of the schools may
make them less attractive to parents.[124]
83. The Ministry of Defence should ensure that
all Service personnel are aware of the availability of the Continuation
of Education Allowance. It should also advertise more effectively
the existence of the state boarding schools.
Safe-guarding children
84. Issues regarding the safety of children at an
independent school were brought to our attention during the course
of this inquiry. We were surprised to learn that parents' continuing
entitlement to CEA depended on value judgements by the MoD in
such cases. We asked the MoD for clarification of their role,
as there are occasions when parents might reasonably want to move
their children to another school. For example, we were made aware
of issues regarding a change in entitlement to CEA where there
were concerns about abuse in a school. The MoD's role in decisions
on entitlement to CEA when parents wish to move their children
in such cases was not clear.
85. The MoD view is that the purpose of CEA is to
ensure continuity of education. Gavin Barlow said:
But clearly if the Service parent wants to
make use of continuity of education allowance, there is an expectation
from us that that is there to provide educational continuity.
So there is a fairly high bar on Service parents committing to
that at the outset and maintaining it. But clearly if there is
a good reason for moving a child, that is possible.[125]
86. Following two evidence sessions at which questions
regarding the protection of children were raised the MoD provided
further information.[126]
However, the information provided lacks clarity and it is difficult
to relate the figures to other information provided. For example
it is unclear how many cases have been brought to the attention
of CEAS, and when and for how long schools have been removed from
the MoD database. There is a lack of robust procedure and guidance
in place to ensure families have the confidence to remove children
where there is a child protection concern.
87. The MoD told us that a re-write of the rules
would clarify the position:
The CEA regulations are currently being re-written
in line with the outcome of the Ministerial Review of CEA conducted
in 2011 and the following wording will be included:
If the child is in immediate danger or there
is a safeguarding issue, the child may be withdrawn immediately
and advice may be sought from CEAS and casework submitted as soon
as possible retrospectively."[127]
We note that the revised 'reasons for Changing
School during a Stage of Education which may be acceptable in
certain circumstances' does not include child protection issues.[128]
This omission should be rectified in the current revision of the
regulations.
88. The safety and well-being of children is paramount
and the rules should not hinder movement of pupils in cases where,
for example, there have been suggestions of abuse. The MoD should
clarify the rules on CEA and its role in the decision-making process
when parents wish to move their children to another school during
a key stage of education. We recommend that in principle the MoD
should be more prepared to leave to parents the difficult judgement
of when to move a child; while it is axiomatic that a "Continuity
of Education Allowance" is designed to provide continuity,
the name of the allowance should not be a major barrier to the
parents deciding what is best for their child.
94 Ev w11, National Audit Office, The education
of Service children: findings of an National Audit Office consultation,
April 2013 www.publications.parliament.uk/pa/cm201314/cmselect/cmdfence/writev/941/naopart3.pdf
Back
95
Ministry of Defence, A Guide for Service Families: UK Education
Systems, January 2013 www.gov.uk/government/uploads/system/uploads/attachment_data/file/172954/ceas_brochure_lores_spreads.pdf Back
96
Q33 Back
97
Qq 146-149 Back
98
National Audit Office, The education of Service children: findings
of an National Audit Office consultation, April 2013 para
2 www.publications.parliament.uk/pa/cm201314/cmselect/cmdfence/writev/941/naopart3.pdf Back
99
Ministry of Defence, A Guide for Service Families: UK Education
Systems, January 2013 www.gov.uk/government/uploads/system/uploads/attachment_data/file/172954/ceas_brochure_lores_spreads.pdf
Back
100
Ev w11 Back
101
National Audit Office, The education of Service children: findings
of an National Audit Office consultation, April 2013 www.publications.parliament.uk/pa/cm201314/cmselect/cmdfence/writev/941/naopart3.pdf Back
102
Ev 71 Back
103
Army Families Federation website: www.aff.org.uk Back
104
Ev 72 Back
105
National Audit Office, The education of Service children: findings
of an National Audit Office consultation, April 2013 www.publications.parliament.uk/pa/cm201314/cmselect/cmdfence/writev/941/naopart3.pdf Back
106
Ev w11 Back
107
Ev w23 Back
108
HC Deb, 13 October 2011, col 36WS Back
109
National Audit Office, The education of Service children: findings
of an National Audit Office consultation, April 2013 www.publications.parliament.uk/pa/cm201314/cmselect/cmdfence/writev/941/naopart3.pdf Back
110
Ibid. Back
111
Ev w24 Back
112
Ev 73 Back
113
Q 480 Back
114
Q 480 Back
115
Q 345 Back
116
Ev w26 Back
117
Ev w22 Back
118
Q 483 Back
119
Ev 73 Back
120
Q 484 Back
121
Q 232 Back
122
Q349 Back
123
Q349 Back
124
Ev w28 Back
125
Q 365 Back
126
Ev 82, Ev 87 Back
127
Ev 87 Back
128
Ev 82 Back
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