PARLIAMENTARY DEBATE
Schools: National Funding Formula - 14 September 2017 (Commons/Commons Chamber)
Debate Detail
This is an historic reform. It means that, for the first time, the resources that the Government are investing in our schools will be distributed according to a formula based on the individual needs and characteristics of every school in the country. Not only will the national funding formula direct resources where they are most needed, helping to ensure that all children can receive the high quality education that they deserve, wherever they live; it will also provide that money through a transparent formula, which will mean greater predictability. By clearly setting out the sums that we are directing to different aspects of the formula—to the basic amount per pupil, or to children with additional needs—it allows for properly informed debate on this vital topic, something that the existing opaque system has held back.
The need for reform has been widely recognised across the House and beyond. The National Association of Head Teachers has said:
“A revised funding formula for schools is essential”.
The Association of School and College Leaders believes:
“The way in which funding has been distributed to schools has been flawed for many years... Reform of the school funding system is vital”.
The case is so strong because there is manifest unfairness when Coventry receives £510 more per pupil than Plymouth, despite their having equal proportions of pupils eligible for free school meals, and Nottingham attracts £555 more than Halton, near Liverpool in Cheshire. Addressing those simple but damaging inequalities will represent the biggest improvement in the school funding system for decades. It is a step that previous Governments have failed to take for far too long.
It has been vital for us to take account of a broad range of views when making such a significant reform. Our wide-ranging consultations, both in 2016 and earlier this year, allowed us to hear from more than 26,000 individual respondents and representative organisations. I am grateful to everyone who took the time to share their views and respond to the consultations, including many Members on both sides of the House. We have considered all those responses carefully.
As I said to the House in July, I am putting an additional £1.3 billion into core funding for schools and high needs, so that the overall budget will now rise by about £2.6 billion in total, from almost £41 billion in 2017-18 to about £42.4 billion in 2018-19 and £43.5 billion in 2019-20. Building on this firm foundation, I can today set out the final funding formulae we will introduce, which, over the next two years will mean we will deliver on our manifesto pledge to make school funding fairer and ensure that we deliver higher funding as well in respect of every area and school.
Building on our consultation proposals, as I set out in the House prior to the summer recess, I am increasing the basic amount of funding that every pupil will attract. We recognise the challenges of the very lowest funded schools so will introduce a minimum per pupil funding level. Under the national funding formula, in 2019-20 all secondary schools will attract at least £4,800 per pupil. Today I can announce that all primary schools will attract at least £3,500 per pupil through the formula in 2019-20. And the formula will provide these levels of funding quickly: secondary schools will attract at least £4,600, and primary schools £3,300, in 2018-19, and then the full amounts the following year.
I will also provide a cash increase in respect of every school. Final decisions on local distribution will be taken by local authorities, but under the national funding formula every school will attract at least 0.5% more per pupil in 2018-19, and 1% more in 2019-20, compared with its baseline. Many schools will, of course, attract significantly larger increases under the formula: up to 3% per pupil in 2018-19, and a further 3% per pupil in 2019-20. And the minimum per pupil funding level will not be subject to this gains cap, delivering particularly fast gains in respect of the very lowest funded schools.
Our consultation confirmed the importance of funding for additional needs—deprivation and low prior attainment. We know that these factors are our best way to identify the children who are most likely to fall behind, and to remain behind, their peers, and it is only right that we provide the greatest resources to the schools that face the greatest challenges. As I said in July, we will protect the funding the formula will direct towards additional needs at the level proposed in our consultation, and I can therefore confirm today that total spending on additional needs will be £5.9 billion.
As we proposed in December, we will distribute that funding more fairly and in line with the best available evidence. We will use a broad measure of deprivation to include all those who are likely to need extra help, and we will increase the proportion of additional needs spending allocated on the basis of low prior attainment, to give additional support to those who might not be economically deprived but still need help to catch up.
I can also confirm today that, as we proposed in December, the national funding formula will allocate a lump sum of £110,000 for every school. For the smallest, most remote schools, we will distribute a further £26 million in dedicated sparsity funding. Only 47% of eligible schools received sparsity funding in 2017-18 because some local authorities chose not to use this factor. Our national funding formula will recognise all eligible schools.
Our formula will rightly result in a significant boost directed towards the schools that are currently least well funded. Secondary schools, which would have been the lowest funded under our December proposals, will now gain on average 4.7%. Rural schools will gain on average 3.9%, with those schools in the most remote locations gaining 5%. Those schools with high numbers of pupils starting with low attainment will gain on average 3.8%.
As I set out in my statement in July, to provide stability for schools through the transition to the national funding formula, each local authority will continue to set a local formula, which will determine individual schools’ budgets in their areas in 2018-19 and 2019-20, in consultation with local schools. This mean that the school-level allocations from Government I am publishing today, alongside this announcement, are notional allocations which we will use to set the total funding available for schools in each area. As I set out in the House, schools’ final actual funding allocations for 2018-19 and 2019-20 will be based on that local formula agreed in their area by the local authority, and schools will receive that allocation ahead of the new financial year, as normal. I will put copies of both documents in the House of Commons Library, and the Lords.
Our objective to provide the best education for every child places a particular focus on the support we offer to the children who face the greatest barriers to success, and on the high-needs budget that provides that support. The case for reform of high-needs funding is every bit as strong as the case for school funding reform, and therefore the move to a national funding formula is every bit as important. We set out full proposals for the introduction of a high-needs national funding formula last December, alongside our schools formula, and I am today confirming that we will proceed with those proposals.
Thanks to the additional £1.3 billion investment I announced in July, I can increase funding for high needs so that I will also be able to raise the funding floor to provide a minimum increase of 0.5% per head in 2018-19 and 1% per head in 2019-20 for every local authority. Underfunded local authorities will receive up to 3% per head gains a year for the next two years, to help them catch up. That is a more generous protection than we proposed in December, to help every single local authority maintain and improve the support it offers to some of our most vulnerable children. It means that local authorities will see a 4.6% increase on average in their high-needs budgets.
The additional £1.3 billion we are investing in schools and high needs means that all local authorities will receive an increase in 2018-19 over the amount they plan to spend in 2017-18. Local authorities will take the final decisions on distributing funding to schools within local areas, but the formula will provide for all schools to see an increase in funding compared with their baseline.
In conclusion, the new national funding formulae will redress historical inequities in funding that have existed for far too long, while also maintaining stability so that schools and local areas are not disadvantaged in the process. After too many years in which the funding system has placed our schools on an unfair playing field, we are finally making the decisive and historic move towards fair funding.
The national funding formulae for schools and high needs and the increased investment we are making in schools will help us continue to improve standards and create a world-class education system. No one in this House should accept the system as it has been; it has perpetuated inequality and that is unacceptable. I am proud that it is a Conservative Government who are now putting that right. On this firm foundation, we will all—Government and schools, teachers and parents—be able to build a system that finally allows every child to achieve their potential, no matter what their background, or where they are growing up.
Will the Secretary of State guarantee to the House that no school will be even a penny worse off in real terms—not cash terms—as a result of this funding formula? Will the proposal apply from this year or from 2015? The National Audit Office has found that schools have already lost nearly £2.7 billion since her party made that pledge. Members across the House have heard from schools that are already facing those cuts and that have had to beg parents to help them to find money and resources. Will she admit to the House that her announcement today does nothing to reverse those cuts and keep that promise?
The Secretary of State has said that her funding formula will increase per pupil funding by 0.5% a year until 2020, but the Education Policy Institute has found that in that period, inflationary pressures are over 2%, so will she admit that her funding formula will in fact mean a real-terms cut in school budgets? In today’s statement she says that the formula provides “a per pupil cash increase in respect of every school and every local area”, so will she admit that there will be pupils, schools and local authorities that see a real-terms cut in funding by 2020? She has referred to transitional protections offered to schools. How long will the transition period last? Will it include protections against losses during that transition, and for how long will those protections last?
The Secretary of State said that the basic amount allocated to each secondary school pupil will be “at least £4,800 per pupil”, but the Education and Skills Funding Agency guidance describes this an “optional” part of the funding formula. Will she guarantee that all secondary schools will now receive £4,800 per pupil? Can she tell us how much this increase in the basic per pupil funding rate will cost each year, and how she will fund it? Today’s announcement says that the minimum funding per primary school pupil will be £3,500. In December, the proposed basic per pupil funding in primary schools was £2,712, so again I ask: how much will the increase in basic per pupil funding cost, and how will it be funded?
None of the money announced so far is actually new money for education. Instead, the Secretary of State is simply cutting elsewhere to fill the black hole that the Government have created. Can she confirm that over £300 million of the supposedly new funding for schools has actually come from cutting the healthy pupils fund by over 75%? That money was meant to be ring-fenced for school sports, healthier meals, facilities for disabled pupils and mental health provision, and it is only days since the Prime Minister claimed that this would be her new priority. Only in February this year, the Secretary of State promised in a statement that the fund would not fall below £415 million. Will she now apologise for breaking yet another promise?
This leaves another £100 million that must come from her main capital budget. Where will that come from? She has said that she will “reprioritise” £250 million in 2018-19 and £350 million in 2019-20. Where will those cuts fall? She has also said that she will “redirect” £200 million from “central programmes that support schools on relatively narrow areas of their work”. Will she tell us what those programmes and those narrow areas are? Or is the truth that she simply made up that number, hoping that her civil servants can find more cuts?
The July announcement went no further than 2020. What happens then? I will be glad if the Secretary of State has listened to us, and to parents and teachers across the country, and looked again at the funding formula, but the fact is that this does not meet the promises that she has made. When will she return to this House with the funding that her party promised the electorate?
On the points raised by the hon. Member for Ashton-under-Lyne (Angela Rayner), I had hoped, given the cross-party recognition of the need for school funding reform, that there might be a warmer welcome for this announcement. It is not just schools represented by Government Members that will gain from it; many in Opposition Members’ constituencies have been equally underfunded. This is not a political issue; it is a question of ensuring that we fund children, wherever they are growing up in our country, in a consistent, transparent and fair fashion. That is what we are shifting towards today. This is not an uncomplicated thing, and we have worked really hard to make sure that schools that were already well funded will continue to remain well funded. However, this is also about making sure that schools that have traditionally been underfunded for a very long time can now start to catch up.
The hon. Lady asked a few questions. I think she misunderstood my point about ensuring that there is a minimum per pupil funding rate of £4,800 for secondary schools and £3,500 for primary schools. There are not many schools that are not at that minimum funding rate, but it is important for those that are below it that we address those issues through the consultation response. That is what we are doing today—[Interruption.] The hon. Lady asks what the guidance says. That guidance is for local authorities, as I have explained and as I hope she will understand. Local authorities currently set local formulae. We had already said, and I had hoped she might have recalled, that that will continue for 2018-19. When I came back to the House in July this year, I set out that that would also continue for 2019-20 because we believe that the right way to bring in a significant change in school funding is to work with local authorities. As part of the setting out of the final funding formula, we also set out a small but important element of flexibility for local authorities to respond to the changes as they come through and to nuance them to take account of local issues. That is where the optional element comes in. We are simply saying that it is right to give local authorities a modicum of flexibility to ensure that they can use the funding effectively on the ground.
We are being clear-cut about what the funding formula allocates to every single school in this country, and Members will be able to see those allocations. They will be able to sit down with their local authorities, and if they want the funding to go to those schools they will be able to ensure that it does. I expect that some local authorities will feel that the right thing to do is to get on with putting the funding formula in place at local level and that they will simply pass the money straight through to the schools. That is something that I would support, but it is important to have a small amount of flexibility while the formula comes in.
The hon. Lady asked about the fact that we are putting an extra £1.3 billion of additional funding into the core schools formula and budget. I felt it was important to do this. Over the past few years, we have challenged schools to try to find efficiencies, because we want to get the most out of every pound we put in. However, it is also important that I challenge the rest of my Department to do the same kind of exercise that we are asking schools and headteachers to do. I believe that doing that has enabled us to free up some additional resourcing that we can now push directly to headteachers in the frontline. Frankly, I am staggered that the hon. Lady thinks that that is a bad thing to do. Anyone in my role should be challenging their civil servants to try to work smarter and more efficiently to get money directly through to the frontline. That is yet another example of the hon. Lady doing nothing other rant and produce rhetoric, and there is not a lot of thought behind that rhetoric about what is the right thing to do.
With that, I will sit down. I look forward to the contributions from hon. Members.
Secondly, we are investing huge amounts in our schools estate, not least through the condition improvement fund. We have managed to get ahead of the school places crisis that was left to us by the previous Labour Government. Ensuring that we have the school places in our system that children need is a major thing that we have done.
I want to correct the Secretary of State. The NAHT said today that, while progress on the funding formula is welcome, “at least” £2 billion in additional resources is necessary, without which they will have to
“cut staff, narrow the curriculum, remove pastoral support”,
and many will have to close down after-school clubs. Despite the progress on the funding formula, the simple truth is that the Government are still letting down this country’s children.
Of course over in Wales, where Labour is in charge, it is a very different situation, with that country slipping down the international league tables on education.
We work extremely hard, as a Department and as a group of Ministers, to listen to the very different views of colleagues in trying to achieve a national formula that works for very different schools and communities across the country. We have taken a big step in launching the formula today, and I am grateful for the contributions of all Members.
“the Tory Government still plans to go ahead with its new school funding formula which could mean that by 2019 our local schools will face cuts of up to £543 per pupil”.
It goes on to state that
“the threatened loss to each school”
is as follows: Barton Seagrave Primary, £185,000; Latimer Arts, £485,000; and Southfield Girls, £416,000. Is it not simply outrageous to circulate such misleading and inaccurate information? Is it not clear that the Lib Dems have been caught red-handed peddling untruths?
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