Preparation and Assessment in a Large Urban Primary School - Essay Example

Preparation and Assessment in a Large Urban Primary School Report Findings This report examines the tensions that arose following the decision to use Higher Level Teaching Assistants to cover for Planning, Preparation and Assessment (PPA) time in a large urban primary school. It concludes that overall the initiative has been successfully implemented, and that given the legislative context and budgetary constraints facing the school, it may have been the only possible option. There are however some areas which need further consideration – see recommendations below. Using TAs to cover for PPA time has the general support of most staff and its implementation has been relatively successful – ‘given the financial climate, the government’s determination to fund any initiative on the cheap and the limited options available to the school’s management team’ (Year 2 teacher). The evidence would suggest that the difficulties that have arisen are significant , but not serious - and that they can be addressed. (cf Rollinson, 2002, pp254-5). However, given that the difficulties pertain to the ‘softer’ human relations aspect of people management, which authors such as McGarvey (1997) and Lamp (1998) argue can fester if left unresolved, it is considered important that action to address the difficulties is taken. Recommendations for action are put forward below. In particular the head teacher needs to go back to her staff for their opinions now that the scheme is in place, and possibly act according to what they say 1 Introduction Schools are an essential feature of the public service infrastructure and as such have had to respond continuously to diverse consumer needs and a highly politicised agenda of government reform. This report describes one school’s response to a recent DfES initiative and the difficulties encountered as a result of that response. It analyses those difficulties from the perspectives of structural organisation, culture and leadership style. 2 Statement of problem 2.1 DfES requirement to provide PPA time for teachers As part of its Raising Standards/Reducing Workload Agenda (DfES,2002) the government has placed schools under a legal obligation to provide all teachers with 10% non-contact time for planning, preparation and assessment (PPA) duties. However no accompanying directive has been issued as to how this may be achieved. The government has however provided advisory guidelines suggesting that teacher release might be secured through the use of additional teaching staff, Higher Level Teaching Assistants (a newly created tier of teaching assistants who have attained recognised accreditation), Cover Assistants or specialist tutors and sports coaches. 2.2 The school’s response to the government’s directive Governors and the head teacher at The Poplars Primary School have decided to utilise some of its existing support staff to provide cover for PPA time i.e. those who have attained HLTA status. They comment that this decision was contingent upon three factors: (i) Affordability. The school operates within the context of a tight and restrictive budget. Employing additional teaching staff was considered financially unviable. (ii) Minimum risk. The school has a significant proportion of children who can present challenging and unpredictable behaviours. Employing ‘outside’ personnel, who might find managing these behaviours very difficult, was deemed potentially counterproductive to the school’s core purpose of achieving high standards. (iii)It was seen as the best solution, given the situation (compare the concept of ‘good fit’ in Morgan, 2006 p54, which illustrates the importance of evolving appropriate structures to deal with the challenges of the external environment). 2.3 Historical background In 1988 Local Management of Schools (DfEE, 1988) gave governors greater control over budgetary decisions. Since its implementation the school has made significant investment in the employment and training of its support staff. Numbers of teaching assistants at the school are now above the national average, (PANDA data, 2006). Currently each of the fifteen classes has one teaching assistant attached to it; some have as many as four. The role of the teaching assistant has evolved and diversified over this time. The head teacher, who has been in post for 21 years comments: ‘When I was first appointed as head teacher the school employed one teaching assistant. Although she was greatly appreciated, she was treated rather like a general dog’s body – a different breed from the teachers with whom she worked. She helped out in all classrooms on a rota basis, preparing activities like art and craft, and tidying up after the activities had been completed. She made tea and coffee for the staff; helped with the collection of dinner money and sorted out ‘problems’ i.e. administering first aid, looking after sick children. Now our teaching assistants are seen as partners in the classrooms – part of a close knit team. They perform many tasks that were once considered the sole domain of the teacher. Many of them have obtained external qualifications. They have become professionals in their own right’. Within the context of these ‘close knit teams’, we can see that over a period of 21 years the teaching assistants have gained extensive knowledge of the individual and special needs of the children in the classes where they work, and the approaches teachers use to manage learning and behaviour to greatest effect. The head teacher has previously resorted – on an occasional basis and with the tacit agreement of governors, teachers and teaching assistants – to using this considerable resource as a strategy for short-term teacher cover. However up to this point this was an ad hoc arrangement , done when necessary only due to staff illness etc. The decision to formalise this hitherto informal arrangement by using Higher Level Teaching Assistants to cover for PPA time has caused a degree of tension amongst members of both the teaching and support staff. This may be because teachers feel that their role is threatened. They consider themselves to be professionals, and though the HLTA’s have undergone some training they are not specialist graduates. It may also be that the assistant’s feel that they are being used as cheap labour, there being a difference between their salaries and those of the teaching staff. In some there may be a feeling of slight inadequacy. Taking full responsibilities for classes isn’t after all what they were originally employed for, even if only occasionally, and now they are being asked to do this on a regular basis in a school that has more than its fair share of pupils with problems. 3 Methodology behind this report Data was gathered from semi-structured interviews held with the chair of governors at the school, members of the senior leadership and management team (most of whom have classroom responsibilities), class teachers and teaching assistants. It has been content analysed. The findings have been supported from my own observations as a member of the school staff. 4 Analyses of difficulties 4.1 A structural perspective 4.1.1 Definition Organisational structure is defined as ‘the fundamental and relatively unchanging features of an organisation which are officially sanctioned by those who control it and consist of the way activities and component parts are grouped, controlled and co-ordinated in order to achieve specific aims and outcomes’. Rollinson, 2002 p481 4.1.2 Organisational structure at The Poplars School The organistic model Because of the nature of its turbulent internal and external environments – characterised by high levels of children with complex special educational needs and numerous DfES and Local Authority initiatives –The Poplars School has had to adopt organic and flexible approaches to organisation for many years. This ability to change according to need has undoubtedly contributed to the school’s success (OFSTED 1998, 2004) and – consistent with contingency theory, which emphasises the importance of organisational adaptability in response to its environment (Morgan, 2006) This has enabled the school to keep its competitive edge in a market dominated by league tables, parental choice and pupil-led funding. The school’s proven strategy to flex and adapt to environmental change has always been contained within the school’s existing organisational structure. However, the head teacher’s decision to use HLTAs to cover for PPA time has impacted on the organisational structure itself – introducing a new layer into its hierarchy of authority. This notion sits uncomfortably with the head teacher’s ideology – ‘hierarchy isn’t really a feature of this school. It’s the individual people that count and the way they pool their talents, knowledge and skills together for the general well-being and academic development of the children that is important’. The bureaucratic model Like most schools, The Poplars is modelled on bureaucratic lines (compare Hoy & Sweetland, 2000; Skrtic,1991). However, the hierarchy of authority appears to differ from traditional bureaucratic models – see organisational chart as Appendix 2. It is a relatively flat structure with few managerial levels (compare Rollinson, 2002 p491) and could be depicted, according to descriptions given by the senior management team, as ‘upside-down’ or ‘inverted’ (compare a similar concept posed by Albretcht in Sallis,1996). The core and senior management team (most of whom are Key Stage Co-ordinators and class teachers) underpin the whole structure – representing their supportive and ‘enabling’ roles, as described in Hoy & Sweetland, 2000. Similar to Mintzberg’s concept of professional bureaucracy (Beshears, date unknown; Griffin, 2001), the class teachers exercise a degree of autonomy – legitimised through years of training and their professional standing – and are placed high in the organisational structure denoting the essential role they hold as key players in the organisation’s core activity i.e. teaching pupils (the primary ‘clients’) and working closely with parents (the secondary ‘clients’). The teaching assistants, who are assigned to each of the fifteen classes, are placed below – but intentionally close – to the teachers with whom they work. Whilst each of the class units are loosely coupled (a concept described in Weick, 1976) and work with some degree of independence from each other, control and co-ordination is secured through a series of inter-related teams – year group, key stage, senior management and core management. Communication between these teams flows relatively smoothly and in all directions (compare Armstrong,2006 p294). 4.1.3 The Impact of structural change upon the personal and structures within the school If, as Rollinson (2002) argues, structure has ‘ a huge effect on individual and group processes’ by establishing ‘a set of contextual circumstances that encourage certain behaviours and inhibit others’ one might suppose that the change in structure at The Poplars would have some impact, to a greater or lesser degree, on the behaviours of the people employed there. There seems to be some evidence to support this supposition. The ‘removal’ of the HLTAs from their close-knit teacher/teaching assistant teams appears to have left them isolated from the framework of support to which they have been accustomed. Although they have been formally assigned to each of the three Key Stage Groups, contact with their line managers (the Key Stage Co-ordinators) is described as remote. Furthermore they have no recognisable base. Their role has become peripatetic in nature – moving from one class to another and liaising with a variety of teachers over the course of a given week. They are perceived as neither teachers nor teaching assistants but ‘inhabit a kind of no-man’s land between teacher and teaching assistant status’. KS1 HLTA. 4.2 A cultural perspective 4.2.1 Definition Organisational culture is defined as ‘the commonly held beliefs, attitudes and values that exist in an organisation. Put more simply, culture is “the way we do things around here”’. Furham & Gunter, 1993 4.2.2 Organisational Culture at The Poplars School There is a strong sense of culture at The Poplars, which might best be characterised in terms of Schein’s support and achievement orientations (1985). People clearly matter in the organisation and high priority is placed on the quality of relationships. Expectation to achieve is similarly high. The staff – both teaching and non-teaching - are seen as the school’s most valuable resource and the vehicle through which high achievement can be attained. Staff are committed and motivated to succeed. Strong emphasis is given to continuous learning and self-improvement (compare Cibulka et al, 2000,) The concept of the school as a learning organisation and numerous formal and informal structures have been put in place to nurture and sustain individual development. Staff talk of ‘feeling valued’; ‘part of a family’; ‘being encouraged to better themselves’ and of ‘feeling part of a team’ where ‘everybody looks out for each other’ and ‘everybody works hard to do the best for the children’ (cf Goffee & Jones’ dimension of sociability and solidarity, 1998) 4.2.3 The emerging subculture of the HLTA? However, some staff also talk - albeit uneasily - of recent, subtle changes to the school’s culture. They comment that hierarchy and status have become more noticeable features in the life of the school (compare characteristics outlined in Williams et al’s role culture, 1989) and infer causality to the redefining of the HLTA’s role. Their comments suggest a growing concern over defence of role boundaries and the emergence of a new subculture associated with the HLTAs. ‘I’ve noticed that the HLTAs often sit together in the staff room now or congregate at break-times in a small resource room off the corridor. Before they just sat with everybody else.’ Year 3 teaching assistant ‘The HLTAs just seem to have adopted a new language. I don’t think for a minute that they are trying to be superior. I think they just feel they need to be seen more as teachers now’. Year R teaching assistant ‘The HLTAs asked me if they could have their own pigeon holes. Up to this point, pigeon holes have been designated with the teachers’ names on them and anything that belongs to the teacher or teaching assistant who work in their class are put in to them. I know the HLTAs don’t have a designated teacher with whom they work now, but I did feel this request was more about symbols of status rather than acquiring a pigeon hole – and I do have sympathy with them. They must feel caught in the middle sometimes’. Deputy Head teacher 4.2.4. A need to change ‘the way we do things here’? According to the differentiationist perspective proposed by Martin (1992), subcultures exist in most organisations. Whilst many enhance or happily co-exist alongside the dominant culture there are occasions when subcultures can act as a destabilising force. (Drummond, 2000 p237, Rollinson, 2002). If, as the evidence suggests, the dominant organisational culture at The Poplars is people and team-centred, it is conceivable that a counter-culture – with its focus on status differentials – could be seen as threatening , or may actually threaten, to fragment the unity of the organisation as a whole (cf Drummond, 2000 p147). The head teacher infers that status and hierarchy (see 4.2.1), are not real issues at The Poplars. But this may be a blinkered perspective, which ignores the impact of emotion on organisational behaviour. Status and sense of personal identity appear to be closely linked. The literature suggests that a challenge to the former can be perceived as a threat to the latter (Vince, 2002; Morgan, 2006). Teachers and the unions that represent them have long battled against the weakening of their professional status (Runte, 1995). It could be argued that the changing status of the Higher Level Teaching Assistant ‘whose own training overlaps with, and cuts into the teacher’s former knowledge monopoly’ (Runte, 1995) is seen by some teachers at The Poplars as undermining their professional being. As one Year 4 teacher comments: ‘I spent four hard years gaining my degree and qualified teaching status. I feel it is an insult to my professional status to suggest that anybody without that qualification can teach children.’ Equally the HLTAs appear aggrieved that their ‘new professional status is not really recognised by other members of staff – even though we’ve done the training and got the necessary qualifications’. KS2 HLTA. These tensions are not unique. The rise, over the last twenty years, of the paraprofessional in professions such as medicine and law have caused similar cultural disturbances. However, over time the tectonics have readjusted into new paradigms of professional status and accountability; even if occasionally the ‘friction’ of readjustment has been difficult. The past simplistic distinctions between teachers and teaching assistants fail to describe the complexities of the school workforce of the present. It would seem important that – rather than ignoring or refusing to acknowledge current difficulties - the issues of status, role definition and ambiguities are brought into the open and addressed honestly and forthrightly. 5 A leadership perspective 5.1 Definition Leadership is defined as ‘the ability to influence a group toward the achievement of goals’. Robbins, 2005 5.2 Leadership at The Poplars School The head teacher at The Poplars is highly regarded within the school and local community. Members of staff describe her as ‘charismatic’, ‘an inspirational role model’ and ‘people-centred’. She spends little of her time in the head teacher’s office, preferring instead to articulate her vision by ‘walking the talk’. She works alongside teachers and teaching assistants in the classroom, can be frequently seen in the staffroom at break-times and lunchtimes and likes to chat with staff at the beginning and end of the school day – supporting, empathising, encouraging and cementing relationships built on trust and mutual respect (characteristics not dissimilar to Helgesen’s ‘feminine’ leader, 1990, 1995). 5.3.1 The paradox of empowerment All members of staff are actively encouraged to realise their potential and play as full a part as possible in the life of the school. Emphasis is placed on the importance of continuous learning and opportunities for individual development are made available through school-based training, mentoring schemes and school funded Local Authority courses. Consistent with transformational leadership theory (Bass, 1990), the head teacher believes in raising her staff’s aspirations, thus empowering them to reach goals, which they might have thought unattainable. ‘When I first joined the school as a volunteer mum, I never dreamt that I would be working in the future as a teaching assistant with qualifications in childcare. The school has made this possible and Mrs ….. (the head teacher) has been so supportive’. Year 3 TA ‘I started as a TA at Poplars. Mrs …..(the head teacher) must have seen my potential and she’s supported me all the way. I trained as a teacher here through the registered teacher training programme, whilst studying for my degree part-time and then when I was qualified I was taken on as a member of the teaching staff. Year 1 teacher However, herein lies a paradox. By empowering her HLTAs to fulfil the role formerly held by teachers alone – the teaching staff, or some at least, feel that the head teacher has in effect partially disempowered them. Likewise, the non-HLTA teaching assistants, who previously enjoyed the occasional opportunity to cover classes, feel somewhat diminished because this level of responsibility has been taken away from them. Paradoxes are not uncommon in organisational life and the contradictory tensions they create need to be managed with great skill (Morgan, 2006 p281). I would suggest that each staffing sub-group need to be convinced that, far from an action of disempowerment, the decision to redefine the role of HLTA has in effect further empowered the teaching staff - by awarding them the right to non-contact time and giving them greater control over essential planning, preparation and assessment duties - and has opened up a recognised route for professional advancement for all those teaching assistants who aspire to greater things. 5.3.2 A contingency theory of leadership Whilst the headteacher would appear essentially democratic in her leadership style, she recognises that different situations may require different styles of leadership (compare the contingency theory of leadership proposed by Handy,). It is clear from my discussions with her that she considered the decision to use HLTAs to cover for PPA time as a particularly sensitive one and was not prepared to risk it being opposed in a participative arena. (It should be noted that there was much negative publicity surrounding the notion of unqualified staff covering for teacher release – particularly from the National Union of Teachers, who have representation on the school’s teaching staff.) The literature suggests that new initiatives can be neutralised by the status quo and that leaders may ‘need to hide and protect radical experiments in their early stages’ to ensure that ‘they get off the ground’ (Morgan, 2006). It would appear that such a strategy has been employed in this situation – and with a measure of success. However, now the initiative is up and running it would seem wise for the head teacher to court in more open fashion the active support of all staff groupings. 6 Conclusion Undoubtedly the decision by the head teacher and governors at The Poplars School to use HLTAs to cover for PPA time was taken after careful consideration of the available options and was deemed to be in the best interests of the school. Most members of staff accept this and concede that given the imposed legislative framework and budgetary constraints there was limited opportunity for alternative action. Furthermore, monitoring records held at the school show that the initiative is working – teachers are accessing the desired non-contact time; HLTAs are covering classes effectively and the children continue to learn. However, as the soft approach to Human Resource Management stresses (Armstrong, 2006 p12) gaining commitment to change is as much about winning ‘hearts’ as it is about winning ‘minds’. Despite her commitment to distributive leadership and decision-making, the head teacher chose to make this particular decision with little consultation. She believed that the decision might be an unpopular one and could be opposed – and in the light of my discussions with various members of staff, it seems she was correct in this belief. However it is clear that she underestimated the impact of her decision in terms of her staff’s emotional response. Given that her staff recognise the ‘inevitability’ of the decision, it would seem very important now to confront the difficulties and tensions that it has provoked in an open forum and find a way forward that promotes a more collective ownership of the initiative. 7 Recommendations 7.1 Given that the majority of members of staff acknowledge that the use of HLTAs to cover for PPA time was the best possible option in the circumstances, it would seem beneficial to revisit the decision with all staff (teaching and support staff ) in the spirit of transparency. Rationale for the decision should be re-emphasised by the head teacher; positive outcomes accentuated and difficulties acknowledged and explored. This could be done either with individuals or in group discussion or both, possibly with individuals completing questionnaires first so that the head teacher knows exactly what each person perceives as the problem or problems. 7.2 Steps need to be taken to ensure that the role of the HLTA becomes more clearly defined within the school’s organisational structure. This needs to be done in consultation with both the HLTAs and the class teachers. This would minimise their ‘no man’s land’ position. 7.3 Support networks need to be established to minimise the HLTAs’ sense of isolation. It may be that something as simple as giving them pigeon holes and a rearrangement of seating in the staff room will go some way towards making them feel more part of the whole. Perhaps someone on the teaching staff could be appointed as the person the HLTA’s could refer to when they have particular questions or problem’s that aren’t directly concerned with their work at a particular key stage Links with the key stage co-ordinators is described as remote. Why this is and what can be done about it needs to be addressed. 7.4 Pathways for promotion to the status of HLTA need to be made more clear, so that all aspiring teaching assistants have an equitable chance of promotion and understand exactly what they need to do and how to do it in order to obtain qualifications and promotion. This will help address feelings of frustration at their perceived diminished role. 7.5 Parents need to be kept informed of the changes that are taking place and the reasons behind them. This will meet any thought that their children will suffer because of the changes. 8 Report summary This report examines the tensions that have arisen following the head teacher’s decision to uses HLTA’s to cover for PPA time. It concludes that, overall, the decision has the general support of most staff and that its implementation has been relatively successful – ‘given the financial climate, the government’s determination to fund any initiative on the cheap and the limited options available to the school’s management team’ (Year 2 teacher). Evidence would suggest that the difficulties that have arisen are significant , but not serious - and that they can be addressed. (compare Rollinson, 2002, pp254-5). However, given that the difficulties pertain to the ‘softer’ human relations aspect of people management, which authors such as McGarvey (1997) and Lamp (1998) argue can fester if left unresolved, it is considered important that action to address the difficulties is taken. Recommendations for action are put forward above. Read More