PARLIAMENTARY DEBATE
Reinforced Autoclaved Aerated Concrete in Education Settings - 4 September 2023 (Commons/Commons Chamber)
Debate Detail
Before I go into specifics, I want to be clear that absolutely nothing is more important than the safety of children and staff. It has always been the case that where we are made aware of a building that poses an immediate risk, we have taken immediate action. Parents and children have been looking forward to starting the new term, and I understand that the timing of this change in guidance to schools and colleges will have caused concern and disruption. However, faced with recent cases, including one that emerged right at the end of the school holidays, I believe 100% that this is the right thing to do. That is why we have taken such rapid steps to support our schools and colleges.
There are over 22,000 schools and colleges in England, and the vast majority are unaffected by RAAC. Local authorities and multi-academy trusts are responsible for those buildings, but we have been supporting schools and colleges to ensure that risks resulting from RAAC are mitigated. To date, 52 schools and colleges have those mitigations in place. The majority of those settings will remain open for face-to-face learning on their existing sites, because only a small part of each site is affected. A minority of pupils will be fully or partially relocated to alternative accommodation to continue face-to-face learning while mitigations are put in place.
I want to reassure parents and children that we are taking a deliberately cautious approach to prioritising children’s safety. Because of our proactive questionnaire and surveying programme, we have a better understanding of where RAAC is on the school estate than in most other countries. All schools and colleges that have advised us they suspect they might have RAAC will be surveyed within a matter of weeks—in many cases in a few days. Most suspected cases will not have RAAC. So far when we have surveyed schools, around two thirds of suspected cases do not have RAAC. We will follow the same approach with any new cases through the professional surveying programme.
The vast majority of schools will be unaffected and children should attend school as normal unless parents are contacted by their school. As my right hon. Friend the Minister for Schools explained on Friday, we will publish a list of schools once mitigations are in place. It is right that parents are informed by schools if they are impacted, and that schools have time to work with their Department for Education caseworker on those mitigations.
I am confirming today that we will publish the list of the 156 schools with confirmed cases of RAAC this week, with details of initial mitigations in place. After that, we will provide updated information as new cases of RAAC are confirmed and existing cases resolved. This will include updates on the impact on pupils, such as how many are learning face-to-face and how many are receiving short periods of remote education. Once again, we are doing everything in our power to minimise disruption and avoid remote learning.
I must thank the professional response of leaders, teachers and support staff in the sector, who have acted swiftly to deliver contingency plans. Each impacted school and college has a dedicated caseworker to help implement a mitigation plan. This could include other spaces on the school site or in nearby schools, or elsewhere in the local area, until structural supports or temporary buildings are installed. We have increased the supply of temporary buildings, working with three contractors, and accelerated the installation of these. We have the support of our leading utility companies to ensure that those classrooms can be opened. In the small number of schools with confirmed RAAC, disruption to face-to-face learning has usually lasted a matter of days.
With regard to funding, as the Chancellor said, we will spend whatever it takes to keep children safe. That includes paying for the emergency mitigation work needed to make buildings safe, including alternative classroom space where necessary. Where schools need additional help with revenue costs, such as transport to other locations, we are actively engaging with every school affected in order to put appropriate support in place. We will also fund the longer-term refurbishment or rebuilding projects, where these are needed, to rectify RAAC.
Professional advice from technical experts on RAAC has evolved over time. Indeed, the question of how to manage its risks across all sectors has spanned successive Governments since 1994. My Department alerted the sector about the potential risks of RAAC in 2018, following a sudden roof collapse at a primary school. We published a warning note with the Local Government Association, which asked all responsible bodies to
“Identify any properties constructed using RAAC”
and to
“ensure that RAAC properties are regularly inspected by a structural engineer”.
In February 2021 we issued a guide on how to identify RAAC. Concerned that not all responsible bodies were acting quickly enough, in 2022 we decided to take a more direct approach. We issued a questionnaire to responsible bodies for all 22,000 schools to ask them to identify whether or not they had, or suspected to might have, RAAC. Responsible bodies have submitted responses to the questionnaire for 95% of schools with blocks built in the target period.
In September 2022 we started a programme where the DFE sent a professional surveyor to assess whether RAAC is present. If RAAC was present, the previous DFE guidance was to grade it as critical or non-critical, and only take buildings out of use for critical RAAC cases. Such was the level of our concern, however, that I asked officials to seek evidence of risks, including to non-critical RAAC. It is because of this proactive approach that we discovered details of three new cases over the summer, where RAAC that would have been graded as non-critical had failed without warning. The first was in a commercial setting. The second was in a school in a different educational jurisdiction. In that instance, the plank that failed remained suspended, resting on a steel beam. As the plank was fully intact, DFE engineers were able to investigate the situation. In their professional judgment, the panel affected would have been previously rated as non-critical, but it had failed.
Ministerial colleagues and I were already extremely concerned, but then a third failure of RAAC panels occurred, at a school in England in late August. This was a panel that had previously been graded as non-critical. Because children’s safety is our absolute priority, it was right to make the difficult decision to change our guidance for education settings, so that areas previously deemed to contain non-critical RAAC are now being closed.
I want to set out why we are taking this more cautious approach with the education estate in England. Professional guidance is clear that wherever RAAC is found, it needs to be monitored closely. The school estate is very disparate, consisting of 22,000 settings with more than 64,000 individual blocks. Monitoring RAAC closely is therefore very difficult on the estate, and many responsible bodies do not have dedicated estates professionals on all school or college sites at all times. That is why the approach we are taking is the right one for our schools and colleges. My officials have worked closely with experts in this field. Chris Goodier, professor of construction engineering and materials at Loughborough University, has said:
“DfE has been employing some of the best engineers on this and have consulted us and the Institution of Structural Engineers”.
The Government’s priority is for every child in the UK to go to school safely. My officials have been engaging urgently with the devolved Administrations to discuss our findings and offer support in order to understand the situation in relation to RAAC on school estates in Scotland, Wales and Northern Ireland. Last week I wrote to offer my support, including further official or ministerial-level engagement, and to facilitate discussions between our technical experts.
I am aware that this policy change occurred during the recess, and that I was therefore unable to notify the House in advance. For that I apologise, Madam Deputy Speaker, and I hope you understand why I felt that I had to take the decision when I did. We are taking an extremely cautious approach to the issue, but I believe that this is the right thing to do when it comes to the safety of children. I commend this statement to the House.
I will turn in a moment to the sorry story of how we got here, but let me first ask the House to reflect on two things. First, the safety of children and staff in schools today should be our highest priority, and while the voices of children are rarely heard in this place, it is their welfare, their hopes and their fears that should be uppermost in our minds today. Secondly, the mark and measure of each of us as politicians is our willingness to take and to accept responsibility: collective responsibility, not just for our own actions but for those of the Governments in which we serve—and this week, as the school year begins, there is an awful lot of responsibility for Ministers to take.
What an utter shambles this is. The defining image of 13 years of Conservative Government is one of children cowering under steel props, there to stop the ceiling falling in on their heads. Thirteen years into a Conservative Government, the public realm is literally crumbling around the next generation. The Education Secretary said this morning that in her view it was not the job of her Department to ensure the safety of our children’s schools, and that she was doing a good job. Schools are literally at risk of collapse. She is the Education Secretary, so whose responsibility does she think it is?
This is the tragic endgame of the sticking-plaster politics of the last 13 years. Children have been failed by this Conservative Government. It is RAAC that is our focus today, but the issue is wider and deeper across our schools and across our country. It is deeper because school buildings are only part of the wider failure in our education system, over which Ministers have been presiding for 13 long years. It is wider because thousands upon thousands of schools and other public buildings were built in the last century, and were not intended to last for more than a couple of decades. This was system build—quick, cheap, too often involving asbestos, and not expected still to be there in 30 years’ time. That is why the previous Labour Government took responsibility and began rebuilding them, the length and breadth of our country. That is why we launched the Building Schools for the Future programme, to give our children the start they deserved. That is because then—as now and as always—Labour puts children first.
The Schools Minister today is the same Schools Minister who scrapped Labour’s plans as one of his very first acts back in 2010. In 2010 the Conservatives scaled back plans to just 150 school rebuilding projects each year, slowing the pace of renewal. In 2021, when their then Chancellor—now the Prime Minister—delivered a spending review, he cut the pace again to just 50 a year, and today the previous permanent secretary at the Department for Education told of the Department’s bid to double the schools rebuilding programme in 2021 being knocked back by the then Chancellor, who instead of doubling it, almost halved it.
I spoke earlier of responsibility. The Secretary of State was clear just a few hours ago that she refuses to accept any responsibility, so who on the Government Benches today will take responsibility for decision after decision to slash spending on school safety? I thank the Secretary of State for having addressed some of the questions that families across this country will have, but I am afraid that there are many, many more. Time is short, so I will ask many of them in writing, but I hope that she will be able to answer these questions now, and to answer all my questions in full.
Why is the Secretary of State still refusing to publish the list of affected schools, promptly and in full, today? Why did the condition data collection survey between 2017 and 2019 not look in more detail at these issues? What strategy does the Department have right now for the wider condition of system build schools and other educational premises that are long past their design lifespan? How many other educational settings are currently believed, or suspected, by the Department to contain RAAC where that is yet to be confirmed? Do emergency services have the information they need, should something go wrong? What is the estimated timeline for completing the necessary repairs in affected schools? How long will students face disruption during this process? Which capital budgets are being raided and which priorities are being downgraded today to fund the works that are happening now? What assessment has been made of the risks of a RAAC failure in the context where asbestos is also present? There are many more questions I could ask, but the most important is this: who in this Government in the months ahead will take some responsibility for sorting out the chaos that our children face?
When it comes to doing a good job, I make no apologies for praising the work of the Department for Education. Not my work, no, but the work of colleagues, of schools and of professionals who have helped to ensure that we are not sending children back to school without the guarantee that they will be safe. I have had teams working for weeks and all weekend to get portacabins, to find alternative sites and to help put in place urgent mitigations. Those people are doing a brilliant job and I want to thank each and every one of them.
Obviously, the safety of children is paramount and urgent actions have to be taken to resolve this situation. The Chancellor said yesterday that the Government will “spend what it takes” to sort out this problem, yet Treasury sources have admitted that there will be no new money to pay for the remedial work, with the cash instead coming out of the Department for Education’s existing capital budget. Can the Secretary of State give us some clarity on that? Given that existing budgets are already extremely stretched, what discussions is she having with Treasury colleagues to access additional funding?
The Secretary of State mentioned the devolved Administrations, and clearly this affects buildings across the UK. The Scottish Government’s budget has already been cut, so can she confirm that there will be additional funding for the devolved Administrations to carry out the remedial work that will have to take place in those jurisdictions?
The Sunday Mirror has reported that up to 7,000 schools could be at risk but have yet to be assessed, and a National Audit Office report in June found that 38% of English school buildings had passed their recommended RAAC lifespan. This means that around 700,000 children in England are being taught in schools that require major rebuilding.
The Secretary of State mentioned the questionnaire that has been sent out to 22,000 schools. Can she give some clarity about the responders? What expertise do they have to make the assessments to which she refers? Given the figures I have just quoted, it would be good to know the number of schools affected, as a number in the hundreds seems unrealistic. Can we have a more realistic figure for the number of schools that are likely to need work to be done?
Finally, can the Secretary of State guarantee that children in schools that have not been closed are absolutely safe to return to lessons?
When we receive new information and new evidence, we sometimes need to take a new approach. That is the decision I took very recently, and I think it is the right decision. I would be very happy to work with the hon. Lady and her colleagues to share more information.
Every year we have a capital budget, and we are investing significantly in our schools. The overall capital budget in the 2021 spending review was £19 billion, of which £7 billion is allocated for 2023-24. When we come to the next phase, we have allocation to rebuild some of our schools, but we will look in detail at what more will be required.
I have some specific questions. Promises have been made on capital costs, but will there be support for revenue impacts such as travel, switching to remote learning and, in particular, children with special educational needs? Our county has a very high level of pupils with special educational needs and disabilities, and we need to understand that.
If I may, Madam Deputy Speaker, let me ask about caseworkers, who have been mentioned. We need to know whether or not they are going to engage with MPs; my experience to date has been that they are not prepared to speak to MPs about what is going on in schools. Finally, what is Ofsted’s role in this? If it is going to be looking at schools, will it account for disruption caused by this issue and for the impact it will have on school exams, particularly for children who are being examined this year?
On revenue, we have said that on a case-by-case basis, if the school will come to the Department and tell us what revenue impact there is, we will make sure that it has the support it needs. Caseworkers are currently focused on working with the schools; it is very early in this process. We are mitigating a lot of the work, but not everybody is as far ahead as some of the schools to which my right hon. Friend referred. We have opened a hotline—a helpline—for Members of Parliament. We extended the hours so that it was open at the weekend. I know that some people got their “Dear colleague” communication and did not notice it until the helpline had closed, so we had that open at the weekend—it will be open all through the week as well. They will be getting the same information from the caseworker system, and that is how it will work.
May I, through the Secretary of State, thank Baroness Barran, who reached out immediately to me, together with a highly competent senior official, when this problem arose in one of my local schools this March? Not only did they do that, but they seized the opportunity to encourage a resending of the questionnaire to the network of schools, through the contact that I had with one of my local headteachers. I have rarely, in 26 years in this House, seen a Department so proactive on an issue as this Department has been on this one, and I thank it for that.
In addition to our targeted work on RAAC, we have continued to invest in improving the condition of the school estate, with over £15 billion allocated since 2015, including £1.8 billion committed for 2023-24. That is informed by the consistent data on the condition of the estate. By the way, the Labour programme, about which there were scathing reports, did not even look at the condition—it was not a factor or a criterion. On top of that, we will transform 500 schools through our school rebuilding programme, prioritising those buildings in the poorest condition and those where there is evidence of safety issues.
It is right that children’s safety comes first, but it is also right that we are mindful of the language that we use towards children and do not make them more frightened than they need to be. I would encourage colleagues not to exaggerate or generalise the risks, but to work with each affected school calmly to get the issue resolved for children.
Finally, may I ask about the school buildings that have already closed? Mistley Norman in my constituency, for example, was closed in July, and the Secretary of State will know that I had a meeting with Baroness Barran about that in July, which means that we have been working on this long before the issue blew up last week. Will the capital funding be made available to rebuild Mistley Norman School?
On timing, the Secretary of State said earlier that she had teams working for weeks on procuring portacabins, which suggests that she knew before 31 August that more schools would need to close all or part of their building. Can she explain why she had people procuring portacabins for weeks?
I am always happy to visit the hon. Lady in Birmingham. In terms of the particular Ofsted case, if she wants to give me the details we will see, if it is appropriate, whether we can delay it. Ofsted usually delays if there are some specific issues within a school, so we can raise that with it.
On the serious point, I have been notified by both my local education authorities, Tameside and Stockport, that no schools under their control are affected. What they cannot tell me is whether any of the voluntary-aided, academies or free schools within their areas are affected. I would like to know how soon we will get those assurances. On Russell Scott Primary School in the Denton part of my constituency, which we have battled to get successfully added to the Government’s school rebuilding programme—it has its own issues, not associated with RAAC—can the Secretary of State assure me and the headteacher that it will not be bumped down the programme to patch up this mess?
“DfE currently lacks comprehensive information on the extent and severity of potential safety issues across the school estate”.
That is a damning indictment. The Secretary of State cannot stand up in this House today and say that our children are safe, because she does not know whether any more systemic failures of schools presenting safety problems are going to occur.
“As officials discussed with”
the trust
“the immediate actions should be treated as a short-term measure and you should already be developing a long-term plan for remediation of RAAC panels in your building.”
The next paragraph goes on:
“Please note the building survey in June 2023 was carried out as part of the DFE’s central RAAC Assessment Programme. As such, it should be considered in addition to, rather than in place of, any professional advice that you seek.”
Just exactly how will the Government determine what they will pay for? What work will they accept? Will it be the professional judgment of the people the schools engage, or will it be the surveyors from the eight companies that the Secretary of State has just spoken about? How will these matters be resolved going forward, because the devil in these things is always in the detail?
Over the weekend and today, I have been in close contact with headteacher Matthew Abbott and his team at Waddesdon School, and so far, as of their call at 2 pm, they have not been offered direct assistance in getting temporary classrooms. Rather, they have been given the impression that they are to be left to their own devices in procuring their own under the usual public sector procurement rules, which are very onerous when it comes to renting things such as village halls or the Methodist church. Will my right hon. Friend intervene to ensure that Waddesdon School does get support on temporary classrooms, or, if it is left to its own devices, that the public sector procurement rules are made more lax when it comes to getting those facilities?
“It is the responsibility of those who run schools and who work with their schools day to day to manage the safety and maintenance of their buildings…The Department provides support on a case by case basis if it is alerted to a serious safety issue which responsible bodies cannot manage independently.”
Can the Secretary of State tell me who the responsible body was before this issue was brought to her attention? Was it the headteacher and the governing body, the local authority or the Department for Education?
“I stand ready to support you”,
yet the Chancellor has said that there is no new money. Might not the people of Wales, and the people of Holyhead and Menai Bridge in particular, feel her words as an empty political gesture?
On that school, which is a much more serious issue, some of the schools on the critical list were closed if they had a large degree of RAAC. Those children should be being accommodated, but if they are not and there is no plan to do so, the Department for Education will be paying for the mitigations that will be put in place.
There will no doubt be a massive run on the procurement of temporary buildings in the coming days and weeks, but there will also be existing temporary buildings on school estates that are underused or unused. Academy trusts will not naturally talk to each other about that, so would the Department consider helping to ensure that existing buildings end up in the most appropriate places at the right time?
The Secretary of State said in her statement that her Department had been working all weekend. I spoke to one of her civil servants this morning—a very nice gentleman, I have to say—and he told me nothing, frankly, because he had nothing to tell me. I also spoke to the head of St Bede’s school this morning, who made sterling efforts on Friday to try to get alternative provision in community centres and other buildings in the area, only to be told that the Department has to sign these things off. It is chaos, the way this is being dealt with in County Durham.
Can I just say something about St Leonard’s? If the funding earmarked for the rebuilding of St Leonard’s had gone through and not been stopped by this Government, who instead made the ideological decision in 2011 to bring a free school to the City of Durham, which then closed three years later, costing £4 million, that £4 million could have been spent on education in Durham.
I thank the Secretary of State for the answers she has given. In her introduction, she referred to England, Wales and Northern Ireland, because there are issues in Northern Ireland as well. I understand that education is a devolved matter, but according to media reports at the weekend, Saintfield High School in my constituency is having some of the repair work done. What discussions have taken place in Cabinet to ensure that schools in Northern Ireland have the help and assistance they need to make safe their buildings? The restricted budget must take in the increased cost of these works in Northern Ireland due to the logistics of this very specialised work?
Contains Parliamentary information licensed under the Open Parliament Licence v3.0.