Committee for Employment and Learning - 2007-11 Mandate

23 June 08 Committee Business "Stranmillis and St Mary’s University Colleges"

Stranmillis and St Mary’s University Colleges

Mr Speaker: The Business Committee has agreed to allow up to one hour and 30 minutes for this debate. The proposer of the motion will have 10 minutes to propose and 10 minutes to make a winding-up speech. All other Members who wish to speak will have five minutes.

The Chairperson of the Committee for Employment and Learning (Ms S Ramsey): I beg to move

That this Assembly calls on the Minister for Employment and Learning to delay the introduction of a new funding model for Stranmillis and St Mary’s University Colleges to allow sufficient time for the consideration of the future funding and educational options for the two institutions, in view of the Committee for Employment and Learning’s stakeholder review of teacher training.

Go raibh maith agat. At the outset, it is important to state that the Committee agreed to table the motion at its meeting on 4 June. However, it was divided. Eight Committee members were present, six of whom voted yes and two of whom voted no.

It is also important to state that the Committee’s problems and issues with the way in which the Department for Employment and Learning (DEL) is reforming teacher education are entirely to do with the process, or rather the lack of process that has been followed to date. I am sure that all Committee members will have different views on the best way in which to structure teacher education.

(Mr Deputy Speaker [Mr Molloy] in the Chair)

The problem is that the Committee has not had the opportunity to hear the range of arguments and information on the matter from key stakeholders. I venture that the Executive Committee have not heard the full range of issues and arguments either. That is why my Committee has formally launched a stakeholders’ review of teacher education, the objective of which is:

“To collate and consider the options and views of those involved in, and affected by, proposed changes to teacher education and to produce a report of recommendations to the Minister of Employment and Learning.”

The Committee will take its first formal evidence in that review when it hears from representatives of Queen’s University on Wednesday.

The review will not make any judgements on what the Minister should, or should not, do about future funding. The Committee simply asks for time to listen to and consider evidence from stakeholders. Today, we will hear many statistics about teachers’ difficulties in finding work. The fact is that many statistics on the issue exist, and they have not been fully aired and challenged. The Committee’s review will allow that process to happen. Statistics on teacher employment comprise only one element of the issue. We are talking about the future of two of our highest-quality third-level teaching institutions.

It is important that I outline the sequence of events that led the Committee to table the motion. The Minister asked for the opportunity to brief the Committee in closed session on his proposal to introduce a new funding model for the teacher-education colleges.

That meeting took place on 12 March 2008. The critical aspect of it was the Minister’s statement that, although a new method of funding for teacher-training colleges is needed, he is open-minded about future options. Importantly, the Minister also asked that the Committee be involved and that it assist in processing policy options. The Committee is now striving to do that.

The Committee took evidence from representatives of both Stranmillis and St Mary’s University Colleges on 16 April 2008. During that meeting, the Committee learned how far the proposals for changes to the structures of funding had advanced. The proposed merger of Stranmillis University College with Queen’s University was also raised at that meeting. Members of the Committee were told that there would be sufficient time for full consideration of the relevant options. However, the chairman of the board of governors of Stranmillis University College appeared on news bulletins the next evening stating that the merger was effectively a done deal.

Rarely have I encountered such anger in a Statutory Committee of the Assembly as I did regarding the manner in which the process has been handled. The Committee learned that not even the Minister had been made aware of the detailed level of negotiations that had taken place between the two institutions. Indeed, the Minister forwarded to the Committee a copy of his correspondence with the chairman of the board of governors of Stranmillis University College. In that correspondence, the Minister reminded the chairman that due process must be followed if the merger is to be successful. There has even been confusion about the precise nature of the legislative vehicle that the Department will have to introduce to facilitate that merger. Surely the fact that the Minister was kept in the dark proves that the reform process has moved too quickly without due process being followed and without recognition of the democratic structures and political institutions.

Teacher education has been on the policy agenda for many years. Importantly, although policy work was conducted and options were considered during direct rule, no direct rule Minister made any difficult decisions. The mechanisms that allow for full consideration and local accountability are now in place. However, the pace of reform is not allowing for adequate consultation and scrutiny.

It is important to note some of the issues that were raised in the key policy reviews that have been conducted in the past few years. The Taylor and Usher Report of 2004, ‘Aspects of Initial Teacher Education in Northern Ireland’, examined issues such as divers­ification, population projections, and costs. Colleges were encouraged to diversify, and, indeed, Stranmillis University College, with its early childhood studies, and St Mary’s University College, with its liberal arts degree, have both developed successful courses in that regard. Those two courses fit perfectly with tackling social disadvantage, as outlined in the Programme for Government. However, it appears that both colleges are being penalised for diversifying.

Taylor and Usher also discussed improving the ratios of teachers to pupils and the potential for specialised educational delivery, such as improving the provision of education for children with autism. The Osler Report of 2005 also assessed the potential for teacher growth areas in subjects such as citizenship and modern languages. Indeed, the Minister has indicated that he wishes to explore building the capacity of the colleges in areas such as continuous professional development.

Since devolution, the Committee has worked with a range of stakeholders from the field of education and training. Committee members have made it clear that they want local proven capacity and capability to be protected. The Committee does not want capacity to be reduced, only to be required at a later date. There is evidence of such a situation having arisen in Dublin, when a decision was made some time ago to close and sell off a college. It is very difficult — if not impossible — to rebuild quality capacity after it has been removed.

The motion aims to allow the necessary time to be given for the full consideration of those topics and to allow the Committee to assist the Minister with reform. Taylor and Usher also recognised the difficulties of producing comparative costs for each teacher. That is the reason that further time must be allowed for a full analysis of the financial statistics that are often quoted in this policy debate.

As I mentioned, the Committee does not have hard-and-fast views on what constitutes the best teacher-education model for the future. I stress that the Committee wants value for money to be delivered in this policy area. Given the failure under direct rule to deal with teacher education, the Committee asks simply for due process to be facilitated in the democratic institutions.

A delay in the funding model will not increase public expenditure. Rather, it will allow both institutions to operate as they have been in recent years; that is, as distinctive, high-quality institutions that produce excellent teachers for our education system and that add significantly to the local communities in which they operate.

I look forward to the Minister’s response to the debate because I know that he has been involved in intensive negotiations on the matter. Go raibh maith agat, a LeasCheann Comhairle.

Mr Newton: This is an important motion. I am a member of the Committee for Employment and Learning, and, as the Chairperson said, the future funding and educational options for Stranmillis and St Mary’s have come before the Committee and caused concern across the political make-up of the Committee.

Northern Ireland is approaching a time when extensive discussions on the matter are required and when decisions must be made in the best interests of the children, the provision and professionalism of teacher education and the economy. I am sure that all Members are concerned that we achieve the highest standard of education for all children and young people, and that the education and levels of motivation to achieve their full potential and ensure a bright future are the foundation stones on which educational provision will be built.

Everyone knows about the demographic trends and the influence that those trends will have on the future provision of teacher education. The population of school-age children will decline rapidly in the coming years. In that context, we have to implement a demand-led strategy at the same time as ensuring that the available provision is of the highest quality and one that will produce teachers with excellent qualifications, good teaching practice experience and bright career prospects.

So often, we have encouraged intelligent and well-qualified A-level students who have gone into the teaching profession, yet the potential for them to secure a career is diminished by the over-provision from the teacher-training colleges, which are not aligned to the demographic trends.

The projected need for teacher numbers will fall. That is becoming increasingly evident, and it will impact on the primary sector and lead into the second-tier provision. Under the circumstances, it is difficult to argue for the full retention of the status quo. In determining future policy, synergy must be identified between the need for a professionally equipped teacher supply and a need to address the scale and costs of future provisions.

The Assembly’s thinking should be driven by the efficient and effective use of the public’s money. It is not an option to merely do nothing on the matter, and the Committee for Employment and Learning has already received evidence from Stranmillis and St Mary’s. In both cases, their concern was evident, although Committee members have been concerned about the process entered into between Stranmillis and Queen’s University regarding a potential merger. That has already been mentioned by the Committee Chair­person. A few eyebrows were raised on that issue — especially since the Minister was unaware of the merger dinner that was held to commemorate the done deal and the fact that senior civil servants were not involved in the process. That is a totally unacceptable position.

The Department of Education and the Department for Employment and Learning are carrying out a review of teacher education. In a reply to a question for written answer — AQW 6038/08 — from my colleague Mr Ross on the review of education, the Minister of Education said that the review was almost complete and that she and Sir Reg Empey, the Minister for Employment and Learning, will consider carefully the way forward on all aspects of teacher education in the coming months. They will consider matters such as the introduction of a bursary scheme to support teachers continuing professional development and the way forward on all phases of teacher education — initial teacher education; induction, early and continuing professional development, and so on.

There is a need to look at the oversupply of teachers and to ensure that teacher education is of the highest quality and can be benchmarked favourably against the standards of excellence anywhere in the world and that any future system will enjoy the confidence of the teaching profession throughout Northern Ireland.

12.45 pm

Mr B McCrea: I oppose the motion, mindful of the good intentions of my colleagues on the Committee for Employment and Learning. The motion fails to recognise the urgent need for a new funding model for Stranmillis and St Mary’s University Colleges, and it fails to recognise the imperative need for the Minister for Employment and Learning to act now to provide a sustainable funding arrangement for teacher education in Northern Ireland.

Year on year, the Minister of Education has repeatedly reduced the number of teachers required. The cumulative effect of that has obvious implications for our teacher training colleges. The Minister for Employment and Learning must respond to the demand figures produced by the Department of Education. That reduced demand has revealed a further problem — the funding formula appears to give more money to colleges for producing fewer teachers. That unsustainable position must be addressed. Some people feared that the new funding formula would result in the closure of one, or both, of those university colleges; some felt that that was a long-term ambition of the establishment. To my knowledge, that is not the intention of the Department.

There are prolonged and ongoing difficulties in resolving the education debate, and I can understand why some Members might be concerned that we now enter a similar situation. However, those Members need not be concerned. I hope that the Minister for Employment and Learning will take a somewhat different approach to that taken by the Education Minister, seeking to engage, inform and build consensus on a cross-cutting and important issue.

Almost every week, we hear from the Minister of Education that we must accept change. The UUP accepts the need for change — change is all around us and we are all the better for it. However, change does not take place in a vacuum, it seldom goes unchallenged, and it usually has unforeseen side effects. Those who are being asked to make changes can be sure of one thing: it will not be easy. Those involved are not sure whether those changes will be of any benefit to them. It is important that we explain to those affected why change is necessary. We must sell the benefits of change and we must take time to understand and address the concerns of everyone who might be affected.

Through discussions with stakeholders, I have sought to understand the situation as best I can. I was pleased to discuss matters with St Mary’s about its liberal arts course — and I confess that that was, beforehand, something of a mystery to me. I was pleased to learn about the important work that colleges do in encouraging participation, and I have been made aware of those colleges’ fears regarding the funding formula. However, I understand — and the Committee Chair did mention it — that the Minister, the colleges and the Departments have had positive and constructive discussions and perhaps the Minister will be in a position to tell us more.

It is worth mentioning for the record that the Minister of Education is responsible for policy in this matter. It is she who sets the pupil:teacher ratios, the curriculum, and the rationalisation of the school estates. Furthermore, over recent years, she has forecast a reduction in the number of teachers required. We must address that and the 50,000 empty desks.

Although there are shortages in STEM-based subjects — and perhaps even in some languages — which will allow a modest increase in initial teacher education, the overriding concern is the need to develop some form of activity that will maintain the status of university colleges as teacher-training colleges. Although diversification subjects are useful as part of the solution, they do have limitations. One could anticipate the use of professional development courses, but that is in the gift of the Department of Education.

When it comes to a situation of this sensitivity, I can think of no better person than the Minister for Employment and Learning to handle it. I believe that he will find a way forward for the betterment of all concerned.

The UUP has heard the change of beat in the education debate and looks forward to playing its constructive part in a four-party mandatory coalition.

Mr Attwood: I acknowledge that the issue has been very healthy for the Committee. It is a good example — if not one of the best examples since the Assembly was set up — of a Committee punching at its weight and fulfilling its statutory responsibilities of oversight and calling a Minister to account. The Assembly can learn something, generally, by looking at how the Committee has handled the matter, even though it has created some tensions, as one can hear in the background.

I look forward to hearing what the Minister has to say because I want to hear that there has been some change in student numbers and in funding for Stranmillis University College and St Mary’s University College. However, although there may or may not be adjustments in those two matters, I want to hear the Minister addressing some of the four fundamentals that lie behind the motion and the issue.

The first fundamental is the future of teacher training. It is not a full argument for Basil McCrea to say that numbers of students in teacher training are reducing, and that the Department of Education has been responsible for that. The full picture is that for the past five years, the Department for Employment and Learning and the Department of Education have been conducting a review of the future of teacher training, and that review has not concluded.

Is it fair to teacher training in the North, and to Stranmillis University College and St Mary’s University College in particular, that five years after a review commenced, it has not concluded? Earlier this year, when one of the colleges involved sent a submission to the Department, that submission was not even acknowledged. Is it appropriate, or fair, for the Minister to announce a change in the student funding formula earlier this year when there had not been any announcements about the overall review of teacher training? That is the key issue. Those colleges have a big role to play in the future of teacher training, especially if their responsibilities are to include addressing all the needs of students and pupils in the North. That is a fundamental issue that must be addressed by the motion.

Secondly, St Mary’s University College is one of the most successful teacher training and liberal arts institutions in Northern Ireland. That is not just speculation from a Member for the West Belfast constituency; it is hard fact. Why is it that a college such as St Mary’s University College, which is second in attracting students from the lowest economic backgrounds in Northern Ireland and Britain, has had questions raised about its viability? Why is it that a college for which students need more points for entry than are required for the University of Ulster, and which is not far behind the level of points required for entry to Queen’s University, is not being promoted, protected and valued?

Why is a college that has a 91% student satisfaction rate — the highest in the North — having any issue raised about its future? The truth is that St Mary’s University College is a model that should be protected and enhanced in the future — not have questions asked about its viability now and in coming years. That is the second fundamental issue that the Minister must address. A college with that profile and success should be protected in the future, rather than have further question marks over it.

Thirdly, there is the West Belfast issue. The Minister knows from his previous ministerial experience, when he received the West Belfast Task Force report, how important a college like St Mary’s University College is to the economic community and for providing access to education for people in that constituency. In the future review, both by the Department and by the Committee, I want that to be centre stage. How does one protect such a college, given its importance to the constituency of West Belfast?

My final point is this: senior people who are involved in the issue told me that the original proposals from the Department were intended to provoke a situation and that the Department did not want to have a half-baked mini-university on the Falls Road. That is not a good attitude to St Mary’s University College or teacher training or Stranmillis. That has to change.

Ms Lo: We are all waiting for the Department of Education and DEL’s review of education. It is frustrating that it has taken so long for that review to be published. The Taylor report of 2004 and the Osler review of 2005 identified the challenges facing initial teacher education (ITE): demographic changes are leading to declining demand for, and overprovision of, teachers. Every Member has heard complaints from constituents that newly qualified teachers are unable to secure teaching jobs and that some are unemployed and forced to apply for jobseeker’s allowance. It is very demoralising for a young person who has been through three or four years of higher education to be unable to get a job.

The new funding model has obviously put a lot of pressure on the two colleges. It is bound to have had some impact on the decision by Stranmillis University College to rush to agree to the proposed merger. Senior teaching staff in Stranmillis, who are my South Belfast constituents, told me that they heard all the rumours about the proposed merger, but no one told them officially and they first heard the decision announced on the radio. There was a lack of consultation with staff, the Department and the Committee.

The Alliance Party wants to see a wider debate and an examination of overall provision of ITE in Northern Ireland. At present, five institutions provide 590 student places — that is only the size of a primary school. There must be duplication of resources in that arrangement, and it is unsustainable. There are many changes —

Mr B McCrea: Does the Member suggest a merger of the two colleges?

Ms Lo: The Taylor report provides for a fourth option: a fully integrated or federated structure, with overarching responsibility for all the providers of ITE.

We are going through many changes. There is wide­spread political consensus in Northern Ireland that there must be change, and change in the transfer procedure is proceeding. We need to take a wider view. We have the opportunity to go further and include in the debate all the institutions, together with the Departments, and bring together all the bodies to provide a single structure so that there is more efficiency and integrated education.

However, as the Taylor report suggests, we must be determined to break down barriers and prejudices in Northern Ireland, so that we can all work together, teach our children together and embrace a better and shared future.

Mr Ross: I consider that the Committee’s approach is sensible. It will ensure that a comprehensive review of teacher-training models will be conducted, and how that will impact on St Mary’s and Stranmillis.

As my colleague Mr Newton stated, decisions must be taken. It is a shame that the review is taking so long.

1.00 pm

There is little doubt that teacher training in Northern Ireland must be reformed. According to a written answer to me from the Minister of Education, in the region of 7,000 young teachers cannot find a job in Northern Ireland. Each year, we train young people — at a significant cost — to be teachers. However, if those young people want to follow a career in that profession, they must travel to England, Scotland or Wales to find positions.

There is an article in today’s ‘Irish News’ about the crisis facing newly qualified teachers. The article states:

“Fewer than 40 of 800 graduate teachers got jobs in Catholic schools last year … Figures show that a relatively small number of graduates secured employment in the Catholic sector and most were only awarded temporary contracts.”

It goes on to state:

“Just 38 of these gained employment in Catholic schools — 18 securing full-time posts and 20 being called in to cover maternity leave or secondments.”

The article continues:

“Of the 229 new jobs in primary schools last year only 12 were given to newly qualified staff.”

Despite those figures, the Minister of Education insists that there is no requirement to decrease the number of teachers who are trained at St Mary’s. In fact, she recently said that additional teacher-training places were required there. Furthermore, the Minister is unwilling to introduce an induction year, which would allow these young teachers to gain experience in a teaching post before applying for full-time positions.

We cannot continue to train so many young people for a profession in which they have no prospect of getting a job. Therefore, reform of teacher training is necessary. However, there are concerns about the manner in which that process of reform is being conducted — in particular the way in which the Stran­millis and Queen’s University merger has come about.

As the Chairperson of the Committee for Employment and Learning said in proposing the motion, both Stranmillis and St Mary’s are widely recognised as first-class teacher-training institutions. Both institutions are very important to the areas in which they are situated, and both have a distinctive ethos. Although a merger of Queen’s University and Stranmillis may be in the best interest of the long-term future of Stranmillis University College, all members of the Committee have raised questions and concerns about how the merger process was conducted.

The Minister briefed the Committee in closed session on the future of teacher training in Northern Ireland on 12 March. At that stage, the Committee was asked to become involved in the process. On 16 April, representatives from Stranmillis and St Mary’s presented evidence to the Committee.

During that evidence session, the Committee learned of the impact of proposed changes, in particular the advanced nature of a possible merger of Queen’s University and Stranmillis. After questioning from my colleague Mr Spratt and, I believe, Mr Attwood, the chairman of Stranmillis University College’s board of governors — Mr Steven Costello — left the Committee in little doubt that the decision to merge had already been taken at a high level by the two institutions. Indeed, that was confirmed the following evening when Mr Costello announced that the merger was to proceed.

A significant step such as that requires detailed discussion, not least on the legal framework in which the merger would be conducted under the Colleges of Education Order (Northern Ireland) 2005. However, the Minister for Employment and Learning stated that he was unaware of the merger, reiterating that such a merger would require legislation in this House, and that there was no done deal.

However, that was not the impression given by Mr Costello, who is either certain that the merger will go ahead or naive in not recognising the legislative process required before such a merger could proceed. Indeed, not only had meetings taken place between officials from the Department and the institutions — meetings between the two institutions had been taking place for some time — but, as Mr Newton said, a dinner took place on 26 May to celebrate the merger.

I have already stated that a merger may be the best option. However, there are genuine concerns over the impact on the ethos of Stranmillis University College, given the secular ethos of Queen’s University. There are also concerns about assets and staffing issues. Moreover, the Department, the Minister and the Committee have yet to see the business case for the merger, and they have received no assurance that the ethos of Stranmillis University College will be protected — a point that I have raised with the Minister before in the House.

Mr Attwood raised issues that concern St Mary’s, such as projected student numbers, required teachers and the impact that a revised funding model will have on that institution. Those concerns must also be addressed.

The Committee has therefore decided that it should review the merger and discuss options with stakeholders and student bodies. That is a good approach to take. Ultimately, the Minister’s decision may prove to be the correct one. However, we must ensure that the process adopted is the right one and that we achieve the right outcome for children, teachers and students, and for educational training in Northern Ireland.

Mrs McGill: Go raibh maith agat, a LeasCheann Comhairle. I declare an interest as a former resident of the parishes surrounding St Mary’s and Stranmillis.

Therefore, I have a keen interest in the motion. I am a member of the Committee and I commend the other members, and the Chairperson and Deputy Chairperson, for proposing this motion.

All joking aside, and thinking particularly of St Mary’s, where I spent more time than at Stranmillis, the quality of teacher training at both institutions has been repeatedly mentioned in Committee and in the House. Members have been granted power over the future, and it would be unacceptable for us to lose St Mary’s, which, as its mission statement makes clear, is dedicated to Catholic teacher training.

Mr Ross has mentioned the ethos of Stranmillis, and the threat faced by that college. I do not want either college to lose its ethos. I welcome the fact that discussions are ongoing but, to repeat what has been said earlier, there are difficulties with that process.

When I first heard about the proposals I was concerned that there was a done deal, and I was worried about what would happen to St Mary’s. There is a lot of talk about the number of teachers needed to meet the requirements of the pupil population. Nobody wants graduates to be unemployed. However, it is possible to address that issue.

In my time in both colleges, I had uniquely valuable, college-specific experiences. Therefore, the ethos of each college is tied into its role, whether the institution is Catholic, non-denominational or controlled. We must protect the particular culture, ethos and good quality training that they provide.

I am open to correction on the figure, but ‘The Irish News’ has been referred to, and I see that Stranmillis is funding £400 of the £440 it costs for distance learning at the University of Glasgow in the certificate in religious education that St Mary’s provides. The religious education certificate enables Stranmillis graduates to teach in Catholic schools.

It is important that Members consider all the issues. The Minister for Employment and Learning recently attended a meeting of the Committee, during which the Chairperson questioned him about the delay in the funding model. I welcome the fact that the Minister appeared to have his ears open, and I think that he will be reasonable. The debate, therefore, is welcome. I hope that all the issues can be satisfactorily resolved. Go raibh maith agat.

Mr McClarty: The five teacher-training providers in Northern Ireland offer an outstanding service, which produces particularly high-quality teachers of whom we should all be proud. In comparison to other parts of the United Kingdom, we generate teachers who are extremely well-respected and who are crucial to our society and to our economy.

Our main priority should be to ensure that the high standards in all our teacher-training facilities are maintained and, indeed, built on. Having worked with my colleagues on the Committee for Employment and Learning and with the Minister, I know that, although some differences exist, our shared aim is to ensure the maintenance of those high standards.

As has been mentioned already, initial teacher training is the responsibility of the Department for Employment and Learning and the Department of Education. DEL is responsible for the funding and administration of teacher-training institutions, and the Department of Education is responsible for the determination of student-intake numbers. Although high standards are being produced, an anomaly currently exists in the way in which teacher training in our two university colleges — St Mary’s and Stranmillis — is funded.

The current funding model is based on a block-grant allocation, which is uplifted annually for inflation, with a deduction for student fees then applied to it. However, that model results in a situation whereby a reduction in student intake can result in an institution being allocated more of the block grant. The fewer the students, the more central funds are made available to an institution. That is, surely, not a defensible practice at a time when we are so concerned about increasing efficiency. Although I recognise the concerns of my colleagues on the Committee, the Ulster Unionist Party cannot support the motion.

In light of that anomaly, the Minister and his departmental officials have developed a revised teacher-demand-based funding methodology, which is based on the practice in similar institutions in England. The desirability of change is exemplified by the reducing intake numbers and the number of trained teachers currently seeking employment. As we have already heard, the number of teachers on the Northern Ireland substitute-teacher register is in the region of 7,000. The 2006 school census confirms that the school population is set to decline by 13,109 pupils by the academic year 2011-12, and there are 50,000 empty school desks. Those are compelling reasons why change is necessary.

If we do not change the funding model and respond to the need to reduce student numbers, we will be failing the taxpayer as well as new teachers, who will not be able to find a job. Failing to change could cost the Department for Employment and Learning millions of pounds every year and add to the already saturated teaching sector.

Diversification in the colleges has been discussed today. That policy served a valuable purpose when it was introduced in 1997, and it still does today. However, it would fundamentally change the character and ethos of both Stranmillis and St Mary’s if we continue to allow them to increase their allocation of diversified places by the number of initial teacher-education places that are cut. Questions would be asked about the duplication of opportunities that are available elsewhere in higher education in Northern Ireland, and the specialised nature and high standards of the colleges could be jeopardised.

Changes to the funding and diversification models should guarantee the colleges’ futures rather than jeopardise them. The Minister seeks to introduce a fit-for-purpose model that is transparent, open, and understood by all, and that guarantees the best use of public money while respecting both institutions’ ethos.

Although it is correct to scrutinise the Minister on this crucial issue, we should also recognise that the Minister has informed the Committee, his Executive colleagues, and the university colleges of his plans throughout the entire process. I am sure that he will continue to work with the Committee and to respect its input and any report that it produces. However, passing the motion would hurt the colleges. Change is needed — we cannot, and should not, shy away from that necessity. I oppose the motion.

Mr K Robinson: I declare an interest as a former student of Stranmillis University College, many years ago.

I was also involved in initial teacher interviews. I agree with my colleagues who spoke about the quality of students who entered the college and their standing — once they have completed their course — as being among the best prepared teachers in the United Kingdom.

1.15 pm

Although I recognise Members’ concerns, the funding model for Stranmillis and St Mary’s is neither sustainable nor defensible. Rather than being based on student numbers, the recurrent grant allocation of the colleges is calculated by uplifting the previous year’s gross estimated requirement by the same percentage as that used for the universities with the student income fee deducted. Therefore, when there are fewer students, less fee income is deducted and the Department provides more central funds to the colleges — the fewer the students, the more the Department and the taxpayer are forced to pay, which is an indefensible position.

As several Members have mentioned, there is an over-provision of teachers — more than 7,000 teachers are seeking employment through the Northern Ireland substitute-teacher register, 30% of whom are under 30. No profession is sustainable in the long run without new blood, so that must be challenged. Therefore, the Department of Education is expected to reduce the student intake numbers incrementally over the next five years.

Continuing with the current funding model under those circumstances would potentially cost the Department for Employment and Learning millions of pounds. At a time when we have a Budget that somewhat relies on efficiency savings for feasibility, it could be considered negligent not to make a change. Equally, not reducing teacher numbers would be detrimental to those teachers who cannot find jobs, and to any students who enter the system. That could also add to the recognised problem of the brain drain from Northern Ireland.

It is part of the Minister for Employment and Learning’s role to fit together the higher-education sector, the employment sector and the economy. In this instance, the Minister of Education, in her role of setting intake levels, must recognise those departmental and Executive goals.

Much has been made of diversification. Since 2005, it has become the practice for both colleges to seek approval to increase their allocation of diversified places by the number of initial teacher-education places that have been cut. With a speculated reduction in the number of initial teacher-education places, there could be a funda­mental transformation of teacher-training colleges in Northern Ireland.

It is of paramount importance that teacher training be the main priority of colleges and that their expertise in those areas, which has been built up over generations, be maintained. Therefore, the Minister for Employment and Learning was correct to suggest a cap on the number of diversified places.

Some of the Members who spoke in the debate referred to the ethos of the two colleges, which is central to the role of both. Much understanding has gone into the fact that diversification would help colleges to address problems that they were suffering from at that level. However, we must look towards the future. If diversification continues, it must be strictly controlled or we shall risk tipping the balance in a direction that none of us wants.

Change is required — the new funding model will make the colleges sustainable in the long term, which is vital for our whole society. The new model will be open and transparent. Further diversification of the colleges would undermine their expert role as teacher-training colleges, and will raise questions about duplication in other areas of higher education, which should not escape scrutiny. Such scrutiny should not be focused on only the two colleges, because there are other institutions that also deal with teacher training.

The Minister respects, and will try to guarantee, the ethos of both colleges — it is important to say “both colleges”. Any amalgamation between Stranmillis and Queen’s University will require legislation, which will have to be scrutinised by the Committee for Employment and Learning and the Assembly. Therefore, in its present form, the motion should be opposed.

The Chairperson of the Committee for Education (Mr Storey): As the Chairperson of the Committee for Education, I wish to raise an important issue that relates to the debate, but not directly to the issue of the new funding model. As part of the Committee’s scrutiny of the draft Budget proposals, the Committee examined the cost of employing newly qualified teachers to cover part of the planning, preparation and assessment time of teaching principals, and of introducing a guaranteed induction year for newly qualified teachers, as is the case in Scotland.

At that time, the Committee heard about the numbers of qualified teachers who were not employed in the teaching profession, as has already been mentioned. I note that an article in today’s ‘Irish News’ highlights the fact that fewer than 40 of 800 graduate teachers secured jobs in maintained schools last year, which the newspaper describes as “the crisis facing young teachers”.

The Committee specifically recommended to the Minister of Education that active consideration should be given to using newly qualified teachers — at a cost of approximately £24,500 — as opposed to using experienced teachers as substitutes, at an approximate cost of £42,000.

The Committee welcomed the allocation of some £12 million in the current Budget period to specifically help primary-school teaching principals, but very much regrets that measures suggested to address the employment of newly qualified teachers have not, to date, been prioritised in the Education budget, and have not been progressed.

I assure Members that, as part of its scrutiny role, the Committee for Education will continue to raise this issue with the Minister.

Mr Beggs: To do nothing about the current teacher-training situation is not an option. Over recent years, there has been an oversupply of teachers in comparison to the vacancies that exist. Thousands of newly qualified teachers are seeking employment in the teaching profession. The current system is not good for students who wish to become teachers and it is wasteful of our limited resources.

Changes have occurred, and there has been a gradual reduction in the number of teacher vacancies at our colleges. However, I recently learned of a situation in which there were 55 applications for one teacher vacancy. That is a reality that does not seem to have been addressed. Indeed, the Department and the colleges are lagging behind the job opportunities, because there is still a significant oversupply of teachers. Therefore, changes are required.

I understand that there are likely to be even fewer teaching vacancies in future because it is less likely that existing teachers will be granted early retirement packages. I draw Members’ attention to an answer to a recent question that was posed to the Minister of Education in which she acknowledged that 440 teachers who took early retirement packages are currently being re-employed in primary schools as substitute teachers. That means that those teachers were effectively being paid twice from public funds: they received a retirement package, and were then paid a second time. That also means that there are fewer job opportunities for young teachers who are seeking to get on a career path.

The motion calls for a delay in the introduction of a new funding model. Sometimes, a delay is used as a mechanism to stop change. If that is the aim of the motion, I oppose it, because change is required.

As other Members indicated, the current funding arrangement is not viable. It is ridiculous that more public money should go into teacher colleges for producing fewer teachers. What part of the private sector, or, for that matter, what other part of the public sector would agree to such funding arrangements? There is huge pressure on the public purse, and we must ensure that we get value for money from our limited funds. Therefore, it is right that changes to the funding package occur.

An intermediate stage to allow the colleges to readjust to the package should be considered. However, fundamental changes to the outdated and outmoded funding arrangements must occur.

Other Members have drawn attention to the article on the front page of today’s ‘Irish News’ about the fact that fewer than 40 of the 800 graduate teachers produced last year have secured employment in the maintained sector. In fact, only 18 graduates gained full-time employ­ment; a further 20 were employed to cover leave. That is a drastic situation, which must be addressed.

Should such a teaching mechanism be in place? Speaking in a personal capacity: why must trainee teachers be taught separately? Why can there not be an arrangement whereby trainee teachers are taught together, but are provided with the options and modules that are required by their particular educational sectors. Why can trainees who require a certificate of religious education not be provided with that option? It is good practice for all teachers to be taught together under one system. Ultimately, if we want children to be taught, to live, to play, and to work together, teachers should also be taught under one system.

There are sound economic reasons for opposing the motion. In the long term, to continue with this outmoded system is not in the best interests of the public purse, students, and the colleges. I oppose the motion.

The Minister for Employment and Learning (Sir Reg Empey): In the time that is available, I will do my best to address the many issues that have been raised.

I welcome the opportunity to address the motion, and I thank the Members who contributed to the debate. I also thank the Committee for Employment and Learning for its constructive approach to this important issue.

During his contribution, Mr Attwood said that he felt that the Committee was punching above its weight, and that it was doing its job in holding me to account. I strongly support that. I remind him that, during the 1998 negotiations, I was involved in designing the Committee system, which I support fully. I strongly believe in the Committee system. Indeed, had my party had its way, there would have been no Ministers — only Committees and Chairpersons. However, during the negotiations, it was clear that Mr Attwood’s party was keen to appoint Ministers. He may not be particularly keen on the fact that his party has ended up with only one Minister, but that is the way the negotiations worked out.

I want to be clear: my first and fundamental priority is to ensure that initial teacher education in Northern Ireland continues to be of the highest quality. That is where everything starts, and we should remain focused on that. The calibre of our teaching workforce is well known and it makes an immense contribution to society and to the economy. Nevertheless, we are faced with a situation whereby supply outstrips demand, and many highly committed newly qualified teachers are unable to find employment in their chosen career. Throughout the debate, we heard numerous Members draw our attention to that.

Results from the ‘Destination of Leavers from Higher Education’ survey show that 79% of students qualifying in teacher education in 2005-06 were employed in the teaching profession six months after qualifying. However, of that 79%, only 20% held a permanent contract. Members made reference to the number of empty desks and substitute teachers in schools. The Chairperson of the Education Committee commented on that matter. There is an issue about who takes those posts, and the Department is cognisant of that. The Assembly can certainly work on that issue, which will help. We, as an Assembly, must pursue that.

The new pension arrangements, to which reference has been made on numerous occasions, could result in up to approximately 400 fewer places per annum being available. That is big issue, which we must address.

There are five providers of initial teacher education: the colleges, the two universities, and the Open University, which provides a small number of flexible places. Members are aware of the breakdown of numbers between the Department of Education and my Department on that matter. The Department of Education has consistently reduced those numbers, and we know that that is anticipated to continue for the next number of years.

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I recently met representatives of the senior management of both colleges, and those meetings went extremely well. I am pleased to tell the House that I had discussions with the Education Minister and that we reached agreement on the number of initial teacher-education students for the forthcoming year. That is a policy decision taken by the Minister of Education — my task is to provide the funding and administration — to improve the situation in which we find ourselves. Nevertheless, based on enrolment figures supplied by the colleges, and intake figures supplied by the Department, initial teacher-education student numbers for the forthcoming academic year will decrease marginally compared with the 2007-08 figures.

While diversification by the university colleges into other areas of provision may appear to provide a simple solution, that is not always the case. In 1998, following a report by the Northern Ireland Audit Office (NIAO), the colleges were allowed to diversify, to a controlled extent, into non-teacher-education provision. Each college was given an allocation of 200 places, which were filled between 1999 and 2001. The diversification provided an opportunity to reduce costs; it was driven by trying to keep the cost base down. However, the audit report recommended that diversification should take place only in areas related to teacher education. Currently, colleges are operating at diversification levels of just over 30%.

Over recent years, reducing teacher-education intakes also highlighted the fundamental deficiency in the historic approach that was used to fund the colleges. Members have clearly articulated the difficulties that we face. The model seems to indicate that the fewer students there are, the more money the Department will provide. With the best will in the world, that is a model that no one in this House could defend and the general public would find hard to understand.

I listened very carefully, however, to members of the Committee who are concerned about “viability” — a word used by Committee members and a number of other Members. That is a matter for the Committee, but it is my view that postponing or delaying the introduction of a new funding model will add to the uncertainties, which will continue. People will wonder what will happen next year, and they will wonder when the new model will be introduced. However, I believe that we have a solution that will provide stability for the period ahead and still meet the Department’s ambitions to move to a new funding model.

Because there will be a period of change, I believe that we can justify a conversion arrangement in which resources are made available to the colleges to help them bridge the gap. Initially, I anticipated that that would be available to the colleges in 2008-09. However, after representations and discussions with the colleges, I believe that it is more appropriate to extend that into 2009-2010, in order to provide a two-year period for the colleges to work with us and the Minister of Education, and to deal with the options that are open to them.

For the next two years, that arrangement — combined with other matters that I will mention with regard to numbers — will provide the colleges with a stable platform to work out a way forward. I hear the Committee’s anger about the announcement by Stranmillis University College, but the danger is that two issues are being confused. I have to wait and see what the business case is for Stranmillis before the Department can sign off on it. It has then to go through the legislative process.

A number of Members talked about the celebratory dinner. Last week, I met Sir David Fell — the chairman of the senate at Queen’s University Belfast — and Mr Costello in my office. I asked specific questions about that matter, and I received all of the paperwork. Previously, I had been furnished with some of it, as were other Members, but the initial letter was not presented until then. I was assured that the dinner was not a celebratory event; rather it was an event that brought together all those who would be involved in the arrangements and discussions for reviewing how the proposed merger might work.

I reiterated, ad nauseam, the concern that had been expressed and the issues about staffing. They have agreed to set up a communication network with the Department, and I have also urged them to engage significantly with the staff to ensure that anxieties are allayed. Nevertheless, in order to give the colleges space, I have proposed that conversion funding be made available for the next two years.

I had a good meeting with representatives from St Mary’s University College last week. The colleges and the Department now have a clear vision of the way forward, which will be to concentrate on teacher education. We have asked, and the Minister of Education has agreed, to consider the issue of early development, and continuous professional development, and find out whether it is possible for that workload to be allocated to those colleges in order to bring in additional work that is related to teaching. The Minister of Education has agreed to consider that issue urgently and, if that can be achieved, we would be moving in the right direction. St Mary’s University College made it clear that it is keen to pursue such additional work, and that also goes for Stranmillis.

As regards a dispute over the number of diversified students, the Department set a target of 260 in a letter to the colleges in March. The colleges argued that that was misleading, because if they go by the correspondence from last summer, they should have been able to recruit more diversified students in the coming year. I did not want to get into an argy-bargy over letters and who said what. I decided that, in order to move matters forward and to give the colleges the breathing space that they need, the current number of diversified students — which I believe is 286 — will apply for next year as well as this year. The net effect will be that the colleges will have extra time and space to enable them to work with the Department over the next year to settle the matter and find a clear way forward. The colleges have accepted that, and they recognise that their concerns, and the concerns expressed by the Committee on several occasions, are being met.

Mr Attwood referred to the significance of the college to West Belfast. He does not need to tell me about that, because I accept the situation fully. However, I was concerned when Mrs McGill spoke about losing the college. I want to make it absolutely clear that I have no intention of closing either of the colleges as venues for initial teacher education; that is not required. Northern Ireland is not about to become an ethos-free zone. Parental choice is an issue, and that cannot be ignored.

I cannot tell what the future may bring, but I understand fully that there was an unfortunate interface between higher and further education in the West Belfast constituency that has left a sour taste. St Mary’s University College has enormous potential. However, if both colleges cease to become primarily initial teacher-education institutions, as some of my colleagues have suggested, the focus inevitably shifts, and that brings uncertainty into the picture. Other universities may expand their campuses in the Belfast area, and that may bring a suite of courses within walking distance of north and west Belfast, especially if the University of Ulster were to expand its site at York Street. That will put a college that depends on one humanities degree at great risk.

The future for those colleges is clear; they will continue to do what they do best by educating teachers. Research must be carried out to determine how to introduce continuous professional development, and conversion funding should be extended for a second year to achieve that. This year, in accordance with the agreement I reached with the Minister of Education and the understandings we reached on diversified places, the colleges should be given the breathing space that the Committee members are keen to provide and for which I accept that there is a requirement.

That will allow the Department to get on with solving the problems that have been mentioned, such as the oversupply of teachers. However, we must also bear in mind that, because of the new economic circumstances, we must improve the continuous professional development of teachers. Additional work is required to achieve that. It is not a matter simply of shifting the existing workload but of expanding continuous professional development and introducing early development. The issue of induction, to which the Chairperson of the Committee for Education referred, is critical.

I say to the Committee that a requirement to retain the existing funding model would be a constraint and would increase uncertainty. My Department and the Department of Education have gone as far as they reasonably can to meet the genuine concerns that the Committee expressed.

The Chairperson of the Committee for Employment and Learning: Go raibh maith agat, a LeasCheann Comhairle. I thank all those who stayed to listen and take part in the debate. Members who do not sit on the Committee for Employment and Learning contributed also, which demonstrates the wider interest in the issue and makes the debate worthwhile. I thank the Committee staff for their work over the past couple of weeks: it is appreciated. They have been working flat out to ensure that the stakeholder review will be arranged before the summer recess.

Every Member who spoke in the debate mentioned the positive work of Stranmillis University College and St Mary’s University College, and I agree with their comments. Most, if not all, Members mentioned the need for reform that I stressed in my opening remarks. I went as far as saying that the Committee may reach the same conclusion as the Minister, but that members wanted a review because of the many other issues involved, not least the proposed merger of Stranmillis University College and Queen’s University. The Committee, and I, as its Chairperson, simply tried to obtain as much information as possible to enable us reach a collective decision.

In the course of the debate, it struck me that there are two main themes, one of which is policy; and the Committee argues that the policy must be reformed. Notwithstanding the proposed merger of Queen’s University and Stranmillis University College, the process caused the Committee members the greatest concern.

I agree with the Deputy Chairperson of the Committee who said that children and the economy must come first, and that that ties in with the Programme for Government. I highlighted the fact that in Dublin a decision to close a teacher-training college was taken based on population trends, but that there is now a realisation that the college is needed. It is important for the Committee’s review to continue and that we talk to all relevant stakeholders.

Alex Attwood said that St Mary’s University College had a good record of achieving participation by lower socio-economic groups, and, based on evidence from the West Belfast Task Force, I agree with him. However, I must stress that Stranmillis University College has a good record also.

Anna Lo expressed her frustration that the review is taking so long and at the lack of consultation with staff from both colleges. I cannot argue with that, and it is important that people working on the ground in the community and voluntary sector and in the colleges are aware that the Committee is being proactive.

Alastair Ross mentioned the need for reform and, given that that was the reason that the Committee tabled the motion, I agree with him. In fairness, the debate has reached this stage only because the Committee was able to press for the debate. We will continue to carry out a review of stakeholders. The Committee will probably work closely with the Minister, and we may reach the same conclusions and possibly make his job of introducing some of the proposed changes a bit easier.

Claire McGill mentioned the quality and ethos of both Stranmillis and St Mary’s. Those are important issues and were mentioned by a lot of Members. That is why the Committee is inviting submissions from everybody; the Committee is open to anyone who wishes to discuss the matter.

Ken Robinson, David McClarty, Basil McCrea and Roy Beggs all mentioned the quality issue, the funding model, and efficiency savings — I think they must all be subject to a 10-line whip, because their speeches referred to the same issues. However, I could not argue with any of that. As Chairperson of the Committee, I am not just concerned with a single issue, and I know that the former Deputy Chairperson shares that view. Rather, we are concerned with a number of issues, and wished to open those issues to discussion.

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A number of Members, including the Minister and the Chairperson of the Education Committee, mentioned statistics, and in my opening remarks I said that in the debate we would hear a number of statistics regarding the difficulties faced by teachers seeking work. The fact is that there is a range of statistics on the issue, and that has not been fully aired and challenged. St Mary’s is actually challenging some of the statistics provided by the Department, and the Committee’s review will allow those challenges to be heard. We are trying to get through all of those issues.

I welcome the commitment of the Minister and his officials in trying to come to a conclusion on the issue. The Minister is highlighting and outlining the process. I know that he has been working up until the eleventh hour, and I commend him for his commitment. The priority is to maintain the quality of those two institutions, and the fact that the conversion funding arrangements have been extended from one year to two years is to be welcomed. I agree with the Minister that that provides a stable platform to allow us all collectively to come together to try to propose a way ahead.

Having heard what the Minister and other Members have said, I am not going to push the motion to a vote. I beg leave to withdraw the motion. Go raibh maith agat.

Motion, by leave, withdrawn.