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Question
1 - What are your
views on whether there is a prevalence in the use of supply
teachers on a planned and unplanned basis?
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In 2013, Estyn
carried out a thematic survey evaluating the impact of teacher
absence. This work was undertaken in response to a request
for advice from the Welsh Government in the Minister’s annual
remit letter. The report was written in collaboration with
the Wales Audit Office.
Estyn noted in its
report that:
‘The
introduction of rarely cover (and the workforce agreement) has led
to an increased complexity in the provision of supply cover as
schools make arrangements for covering teacher absence that no
longer involve their own teaching staff. As well as supply
teachers, these arrangements now include cover supervisors and
other support staff employed in schools who do not have qualified
teacher status (QTS).’ Therefore when a teacher is
absent, lessons are covered by supply teachers but also unqualified
(do not hold Qualified Teacher Status) cover supervisors and/or
teaching assistants.
These consultation
questions relate to supply teachers but during our thematic
inspection, we found that many of the issues related to the use of
supply teachers also apply to supervisors and teaching assistant as
well.
In our thematic
report, Estyn noted ‘It is estimated that just under 10%
of all lessons are now covered by staff who are not the usual class
teacher’. This figure indicates that the use of a
supply teacher, cover supervisor or teaching assistant to cover
when the normal class teacher is absent is a significant issue in
schools in Wales in general, although the severity and complexity
of the issue varies from school to school. Overall,
inspectors report that there is a higher than average use of supply
teachers in secondary schools in more deprived areas, where
headteacher have difficulty recruiting teachers, particularly in
mathematics and physics. Schools that are in a statutory
category of follow-up (significant improvement or special measures)
often have a higher proportion of lessons covered by supply
teachers and cover supervisors.
Estyn reported
that ‘A few schools, particularly Welsh-medium schools and
those located in rural or economically deprived areas, have
difficulty finding suitable supply teachers. The majority of
secondary schools have difficulty sourcing teachers of shortage
subjects, such as mathematics and physics’.
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If you believe that this results in problems
(for example, for schools, pupils or teachers), how do you think
they could be resolved?
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Many of the issues leading to a prevalence of
supply teachers are complex and cannot be resolved quickly.
The issues include the following:
·
difficulty in recruiting staff in
key subject areas, in particular, mathematics, physics and English
in Welsh-medium schools;
·
higher levels of staff absence in
schools where leadership is less effective;
·
higher levels of staff absence in
schools where the behaviour of a minority of pupils is
problematic;
·
long-term absence in primary
schools; and
·
difficulty recruiting headteachers
and deputy headteacher in small rural schools.
Estyn included the following recommendations in
its 2013 report:
Schools should:
·
R1 manage teacher absence more
efficiently;
·
R2 improve the quality of teaching
and learning in covered lessons by making sure that the work set is
at an appropriate level and staff receive enough information on the
individual needs of learners;
·
R3 support supply and cover staff to
improve their classroom behaviour management techniques;
·
R4 evaluate the impact of teacher
absence on learners, especially more able pupils and those in key
stage 3, and monitor the quality of teaching and learning when
teachers are absent;
·
R5 ensure that supply staff are
included in performance management arrangements;
·
R6 provide more professional
development opportunities for supply staff; and
·
R7 make sure that supply staff
receive essential information on health and safety and
safeguarding, including the contact details of the named
child-protection officer at the school.
Local authorities and supply agencies
should:
·
R8 provide schools with comparative
data on teacher absence rates; and
·
R9 seek feedback on and record the
quality of supply staff they register and use the information for
quality control.
The Welsh Government should:
·
R10 provide better access for supply
staff to those national training programmes that are available to
permanently-employed teachers.
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How significant is this issue? (Please select
one option)
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1 – This is a key, urgent
problem.
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§
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2 – This is a problem that
needs to be addressed.
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X
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§
3 – This is a minor
problem
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§
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4 – Not a problem.
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§
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Question 2
- What are your
views on the circumstances in which supply teachers are used for
example, the types of classes they cover; the types of learning
activities which take place under the supervision of supply
teachers; whether they are qualified to teach relevant
subjects?
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In its 2013
report, Estyn reported that ‘The greatest negative impact
of teacher absence on pupils’ learning occurs in secondary
schools. Supply staff who do not normally work at the school do not
know the needs of the learners as well as their usual classroom
teachers and the work set is often too undemanding and does not
engage learners. This is particularly the case in key stage 3, as
schools often make an effort to secure better arrangements for
examination classes. Secondary schools often do not cover sixth
form lessons for short-term absences, but make up missed work
later. They may also re-deploy subject teachers from key
stage 3 classes to cover key stage 4, leaving supply staff to cover
a disproportionate number of key stage 3
lessons.’
‘The
greatest disruption in primary schools occurs as a result of not
having a strategy to minimise the impact of unplanned, but
potentially long-term, teacher absences. In complex
situations, such as those arising from staff suspensions or
frequent but non-continuous staff illness, schools do not manage or
evaluate the impact of having multiple staff cover for the same
year group. Too often, this affects pupils’ behaviour
as well as their learning.’
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If you believe there are problems in this area,
how do you think they could be resolved?
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Please see response to Question
1.
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How significant is this issue? (Please select
one option)
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1 – This is a key, urgent
problem.
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§
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2 – This is a problem that
needs to be addressed.
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§
X
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§
3 – This is a minor
problem
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§
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4 – Not a problem.
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§
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Question 3
- What are your
views on the impact of the use of supply teachers on the outcomes
for pupils (including any impact on pupil behaviour)?
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Estyn’s
report found that ‘Due to the short-term nature of their
work, it is difficult for supply staff to establish effective
working relationships with learners. Learners often do not have the
same regard for supply staff as they do for their usual
teachers.’
‘Most
learners in secondary schools do not feel that they make enough
progress in lessons when their usual teacher is absent. Often
this is because the cover lessons do not engage all learners well
enough, or the supply teacher does not know the needs of the group
as well as the usual teacher. Often, the work that is left by
the teacher or that is organised at short notice by the head of
department is undemanding and, in a minority of instances, includes
activities such as watching a video, completing wordsearches or
crosswords, and producing posters.’
‘The
negative impact of teacher absence is often greater in some
subjects, such as modern foreign languages, Welsh second language,
physical education and design and technology. This is because
non-specialists often cover the lessons and learners are not able
to undertake practical activities. The teachers or cover
supervisors who are covering the Welsh second language lesson will
not have the subject-specific language skills to support and
develop their learning. Often learners will be moved to other
classrooms when their teacher is absent and consequently they will
not have access to the resources that would normally be available
to them. Moving from class to class also gives the impression
that the lesson is less important to the teacher and the pupil.
In the majority of instances, learners note that supply
teachers or cover supervisors tend to ask them to write on sheets
of paper rather than in their normal workbooks and, in most
instances, it does not get marked or followed up. This is
time-filling activity rather than real
learning.’
‘As a
result of this undemanding work, learners demonstrate behaviour
that is more challenging. They are more likely to engage in
low-level disruption and this has a further negative impact on
their achievement and progress in lessons. Nearly all pupils
who took part in our survey indicate that they do not behave as
well in a class with a supply teacher or cover supervisor when
compared with their usual teacher. Secondary school learners across
the ability range often demonstrate negative attitudes towards
supply teachers and cover supervisors who are not employed by the
school. This often means that pupils make less progress in
these lessons and their learning is more limited. Their
attitudes are more positive towards full-time teachers who
undertake cover or cover supervisors who are employed directly by
the school.’
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If you believe there are problems in this area,
how do you think they could be resolved?
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Please see response to Question 1
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How significant is this issue? (Please select
one option)
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1 – This is a key, urgent
problem.
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§
X
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2 – This is a problem that
needs to be addressed.
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§
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§
3 – This is a minor
problem
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§
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4 – Not a problem.
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§
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Question 4
- What are your
views on the Continuous Professional Development of supply teachers
and the potential impact of the National Professional Learning
Model?
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Estyn noted that
support for supply staff was variable but overall, supply staff do
not receive enough training and development. The majority of
supply teachers and cover supervisors access some training,
although this has a relatively narrow focus and does not meet all
their needs. This training is usually focused particularly on
dealing with challenging behaviour and on general teaching skills,
but there is little about national priorities or
initiatives.
‘Nearly all
supply teachers and cover supervisors state that they would like
better access to a wider range of professional development
activities. Unlike most teachers, the professional development of
supply teachers is not supported well by their employer even if
they have signed a contract and are employed by a supply agency.
Most are able to arrange their own training or access courses
offered by private companies, although this would mean losing a
day’s pay. They feel that they are missing out on
opportunities offered to colleagues with permanent
contracts.
Supply teachers
who have recently joined the profession feel particularly
disadvantaged because they are not always able to complete their
NQT induction period. If they are employed for at least 0.4
for a whole term, they can join the recently introduced masters in
education programme (MEP). Even so, their knowledge and
understanding of national policies and priorities may decline over
time, and make it harder for them to secure a permanent post.
These newly-qualified teachers feel that they will become
less competitive in the market for full-time teaching
posts.
Most cover
supervisors and HLTAs employed directly by schools have access to
training as part of their school’s annual in-service training
programme. This training focuses on a range of topics
relevant to classroom teachers and other support staff. A
majority of cover supervisors and HLTAs in primary schools also
have access to additional training as part of the school’s
performance management arrangements. However, the majority of
cover supervisors in secondary schools do not take part in formal
performance management arrangements, even though most say they
would welcome it.’
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If you believe there are problems in this area,
how do you think they could be resolved?
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Please see response to Question 1.
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How significant is this issue? (Please select
one option)
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1 – This is a key, urgent
problem.
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§
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2 – This is a problem that
needs to be addressed.
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§
X
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§
3 – This is a minor
problem
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§
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4 – Not a problem.
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Question 5
- What are your
views on performance management arrangements for supply
teachers?
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Many primary
schools employ HLTAs as cover supervisors to provide cover when
teachers receive statutory PPA time or cover when the teacher is
absent for other reasons. The roles and responsibilities of
cover supervisors, HLTAs and supply teachers vary too much both
within and between schools. Most HLTAs are included in
schools’ performance management arrangements and have
suitable performance management objectives, but the nature of their
work and job descriptions varies significantly within and between
schools and this has an impact on learners and the amount of
progress that they make when their usual teacher is
absent.
However, in the
2013 survey, Estyn noted that ‘Most schools do not provide
enough feedback to supply teachers. Schools sometimes share
feedback with the supply agency but the quality of this feedback is
too variable and often not robust enough. A few agencies
contact schools at the end of each week to discuss the performance
of supply staff although very little information is recorded
formally by the school. This feedback is more detailed when
there are concerns about teaching or classroom management and so
feedback to supply teachers tends to focus on the negative aspects
of their work. Local authorities who provide lists of supply
teachers do not request feedback on
performance.’
‘Nearly
all schools have at one time or another raised concerns about the
quality of a few supply teachers. Many schools have had to
ask a supply teacher or cover supervisor to leave the school before
their contract deadline because of unsatisfactory performance.
There are no arrangements for supply agencies to share this
information with Welsh Government or the GTCW unless performance
gives significant cause for concern.’
‘The
majority of cover supervisors in secondary schools do not take part
in formal performance management arrangements, even though most say
they would welcome it.’
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If you think there are problems in this area,
how do you think they could be resolved?
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Please see comments relating to Question
1.
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How significant is this issue? (Please select
one option)
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1 – This is a key, urgent
problem.
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§
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2 – This is a problem that
needs to be addressed.
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X
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§
3 – This is a minor
problem
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4 – Not a problem.
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Question 6
- Do you consider
that local authorities and regional consortia have sufficient
oversight of the use of supply teachers?
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The role of local
authorities and regional consortia in the procurement, monitoring
and training of supply teachers varies considerably but is
generally insufficient and current arrangements are
ineffective.
Estyn noted in its
2013 report that ‘Local authorities across Wales have
different arrangements for the procurement and provision of supply
teachers to schools. The majority provide schools with a list
of supply teachers who are eligible to work in the authority and
have been through their own pre-employment checks. Providing
this list is sometimes outsourced to recruitment agencies. A
minority of other local authorities liaise with supply agencies to
provide schools with a list of supply teachers or cover supervisors
who are eligible to work within the local
authority.’
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If you believe there are problems in this area,
how do you think they could be resolved?
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Estyn’s recommendations for local
authorities and supply agencies encompassed the following
areas:
Local authorities and supply
agencies should:
·
R8 provide schools with comparative
data on teacher absence rates; and
·
R9 seek feedback on and record the
quality of supply staff they register and use the information for
quality control.
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How significant is this issue? (Please select
one option)
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1 – This is a key, urgent
problem.
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§
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2 – This is a problem that
needs to be addressed.
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X
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§
3 – This is a minor
problem
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§
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4 – Not a problem.
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Question 7
- Are you aware of
any local and regional variation in the use of supply teachers and
if so, are there any reasons for this?
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In Estyn’s
2013 report’ we noted that ‘Local authorities across
Wales have different arrangements for the procurement and provision
of supply teachers to schools. The majority provide schools
with a list of supply teachers who are eligible to work in the
authority and have been through their own pre-employment checks.
Providing this list is sometimes outsourced to recruitment
agencies. A minority of other local authorities liaise with
supply agencies to provide schools with a list of supply teachers
or cover supervisors who are eligible to work within the local
authority.’
As school’s
use staff other than supply teachers to cover during teacher
absence and that local authorities hold different types and amounts
of data about the use of supply teachers, we are unable to provide
a more detailed response. However, many of our comments
outlined in response to Question 1 are also relevant to this
particular question.
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If you believe there are problems in this area,
how do you think they could be resolved?
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How significant is this issue? (Please select
one option)
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1 – This is a key, urgent
problem.
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§
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2 – This is a problem that
needs to be addressed.
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§
X
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§
3 – This is a minor
problem
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§
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4 – Not a problem.
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Question 8
- Do you have any
views on supply agencies and their quality assurance
arrangements?
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Our survey found
that ‘Most schools have a preferred supply teacher agency
and use the lowest price as the determining factor rather than
quality. A few schools prefer not to use supply agencies and
a very few have been advised by their local authority not to use
supply agencies. Eighteen local authorities and five further
education colleges and other public bodies have signed a
‘Value Wales’ agreement for supply cover. New
Directions Education, a private limited company, won the contract
for north and south Wales. However, schools are not compelled to
use the contract to procure supply cover.’
‘A few
schools, particularly those who use supply agencies located in
England, have discovered, when the supply teacher has arrived at
the school, that they are not registered with the General Teaching
Council for Wales (GTCW) and cannot teach in Wales. This has
become apparent when staff have checked GTCW registration
documents. In these instances, the supply teacher or cover
supervisor has not been able to undertake the supply work at the
school’.
‘Most
schools do not provide enough feedback to supply teachers. Schools
sometimes share feedback with the supply agency but the quality of
this feedback is too variable and often not robust enough. A few
agencies contact schools at the end of each week to discuss the
performance of supply staff although very little information is
recorded formally by the school. This feedback is more
detailed when there are concerns about teaching or classroom
management and so feedback to supply teachers tends to focus on the
negative aspects of their work. Local authorities who provide lists
of supply teachers do not request feedback on
performance.’
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If you believe there are problems in this area,
how do you think they could be resolved?
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Please view Estyn’s response to Question
1.
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How significant is this issue? (Please select
one option)
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1 – This is a key, urgent
problem.
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§
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2 – This is a problem that
needs to be addressed.
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§
X
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§
3 – This is a minor
problem
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§
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4 – Not a problem.
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Question 9
- Are you aware of
any specific issues relating to Welsh medium education? If so, what
are they?
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Estyn noted that
‘The negative impact of teacher absence is often greater
in some subjects, such as modern foreign languages, Welsh second
language, physical education and design and technology. This
is because non-specialists often cover the lessons and learners are
not able to undertake practical activities. The teachers or
cover supervisors who are covering the Welsh second language lesson
will not have the subject-specific language skills to support and
develop their learning. Often learners will be moved to other
classrooms when their teacher is absent and consequently they will
not have access to the resources that would normally be available
to them. Moving from class to class also gives the impression that
the lesson is less important to the teacher and the pupil. In
the majority of instances, learners note that supply teachers or
cover supervisors tend to ask them to write on sheets of paper
rather than in their normal workbooks and, in most instances, it
does not get marked or followed up. This is time-filling activity
rather than real learning.’
We also reported
that ‘Where teachers are absent for a significant period
of time (longer than two or three days), many schools make
considerable efforts to find teachers with the relevant subject or
phase-specific skills. Secondary schools often have great
difficulty finding teachers of shortage subjects, such as
mathematics and science. When secondary schools are unable to
find subject specialist supply teachers, a few subject leaders
re-arrange teaching groups so that specialist teachers teach
examination classes. This problem is made worse when
departments already lack a full complement of specialist teachers.
Welsh-medium schools and those located in rural or
economically deprived areas have the greatest difficulty finding
suitable supply teachers, particularly when they also require
teachers with expertise in shortage subjects.’
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If you believe there are problems in this area,
how do you think they could be resolved?
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How significant is this issue? (Please select
one option)
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1 – This
is a key, urgent problem.
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§
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2 – This is a problem that
needs to be addressed.
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§
X
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§
3 – This is a minor
problem
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§
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4 – Not a problem.
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