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CHAPTER 5: THE PARENT FORUM
5.1 Introduction
This chapter provides analysis of the questions 4-7 of the consultation document which relates to the theme of the parent forum.
The draft Bill proposes the introduction of a new type of parent representative body: parent forums which should replace the current system of School Boards. The aim is to create a more flexible, parent friendly system which would encourage the involvement of a wider number of parents and be more genuinely representative. Parents from each school would themselves decide on the arrangements for their school. Parents could incorporate the existing School Board or PTA if they so wish, or combine elements of both into a new structure.
The first two questions (questions 4 and 5) were general questions relating to the parent forum. Question 4 asked respondents, "Do you agree that the current system of parental representation ie School Boards should be replaced by a more flexible system?" Question 5 asked respondents, "The Bill does not prescribe the means of appointment to the new forums (elections to Boards are mandatory) but provides for parents to decide this locally. Do you agree?"
Five subsections in the consultation document deal with different aspects of the parent forum and within each sub section a number of questions are grouped. The subsections are:
1) Education authorities to promote parent forums
2) Establishing the parent forum
3) Membership of the parent forum
4) The functions and financial powers of a parent forum
5) The education authority's duties to the parent forum
This chapter also provides the analysis of questions relating to the first sub section, "education authorities to promote parent forums." Question 6 asked respondents, "Do you agree that education authorities should have a new duty to promote the establishment of a parent forum in each school and to support their operation?" Question 7 asked respondents, "Should the Bill provide for 'composite' parent forums where this is the preferred option of parents in each school in a combined school or cluster of schools?"
5.2 Proposals for a more flexible system
Question 4 was used in order to divide respondents into one of three summary categories to illustrate broad support for the draft legislation, broad opposition to the draft legislation or support for changes of some sort, although not necessarily support for those proposed in the draft legislation. If respondents made a comment that could fit into more than one of the three summary codes used, only one of these comments was counted in the summary codes. The approach taken was to count all those who indicated support for making changes to the existing system in the first instance. Thus, for example if a respondent stated that they were against the proposals and that they favoured making changes to the existing arrangements would be coded as in favour of making changes.
This approach has implications when reporting on key findings emerging in the original non summarised data where all comments by each respondent have been coded. The percentages in the original data could be higher in some codes due to the fact that respondents' comments have been counted in more than one category.
In question 4 respondents were asked, "Do you agree that the current system of parental representation ie School Boards should be replaced by a more flexible system?"
The findings of this question have been used to indicate the overall response to the introduction of forums. Responses were grouped into one of three categories:
- Those broadly in favour of the introduction of parent forums ("pro")
- Those broadly against this proposal ("against")
- Those broadly in favour of changes of some sort, which would require primary legislation although not explicitly in favour of parent forums as proposed ("make changes").
Note that these categories have been used as an additional cross break in the analysis to each question to enable responses to be correlated with levels of agreement or disagreement to the other proposals contained in the consultation document.
As shown in chart 5.1 one in eight (13%) expressed support for the introduction of parent forums as proposed in the consultation document.
More than half of respondents (56%) expressed support for some sort of changes (which would require primary legislation) but were not in favour of all or some of the particular proposals suggested in the draft Bill.
About one in four respondents (27%) stated that they were broadly against the new system.
A small percentage of those in favour of the proposals (7% of all respondents) noted that flexibility was essential. As one respondent stated:
"In principle we welcome the replacement of School Boards with a more flexible system of parent forums because the present way many School Boards operate limits parental involvement, is often overly bureaucratic and in practice sometimes lacks transparency and seems elitist to many parents."
(Representative Body)
When we examine the wider range of comments made by respondents, one in ten respondents (10%) argued that forums could lead to less parental involvement or be less effective because of the lack of statutory powers, responsibilities and duties that the School Boards currently hold. The same proportion also felt that inconsistent standards across the country would make it difficult to regulate and communicate across education authority areas.
Conversely, one in twenty (5%) respondents also argued that forums would make it easier for parents to get involved.
A very small percentage of those in favour (less than 2% of all respondents) also pointed out that School Boards are not effective as they fail to include or communicate with other non board parents, and therefore they do not represent all parents.
A range of reasons and considerations were voiced amongst respondents who were either against the proposals or who supported making changes. Just over one in three (36%) suggested retaining the current system which was felt to work well.
Just under one in ten (9%) felt that the new proposals could result in the creation of cliques, pressure groups or anti-school/headteacher groups, or create conflicts of interest between parents. The problem of "single issue" agendas was also highlighted as an area that should be avoided. Just over 7% noted that there is no evidence to prove that the new system would be any better than the old one.
Further comments from those against the new proposals were made by small numbers (less than 5% of respondents) and these included:
- That proposals are too vague and more precise information is needed about what will replace School Boards
- Will lead to disorganisation, chaos and confusion
- Will mean the loss or inability to build up experience that existing School Boards already have
- Unrealistic for parents to build up the forum from nothing.
A wide range of comments were made about the types of changes that could be implemented amongst those expressing broad support for change in general, although not the proposed Bill. A small but significant minority (28%) of respondents suggested building upon the existing system to allow greater flexibility. This is illustrated by the following quote:
"The current system does not need to be replaced. It does need to be modernised. More local flexibility regarding membership and co-options to allow greater inclusion of parents and wider powers to deal with any locally relevant issues are needed. If the ultimate aim is to promote ambitious and excellent schools then parents need a robust system that is democratic, accountable and openly representative that allows parents to get timeous responses and achieve effective solutions for their schools in partnership with headteachers and education managers."
(School Board)
Further comments by those requesting changes, made by smaller numbers (6% or fewer) of all respondents included:
- The forums should have clearly defined structure or rules written into their constitution
- Parents should be given greater powers to influence school management
- Schools or local areas should be able to make their own decision as to whether or not forums are to be introduced and could keep the existing system if they choose
- Parts of the School Board and PTAs could be amalgamated
- Some mode of formal communication between parents and schools should be retained to enable parents to express their opinions or make complaints
- A prescribed framework for their operation would be necessary
- An appeals process is necessary to review forums and measure their effectiveness
- Run pilot schemes to identify what works most effectively
- Set limits for the role of the forum
- A single body would be less time consuming for parents who tend to be very busy.
Chart 5.1
Proposals for a More Flexible System
Base: All respondents
(Source Q4)
When we examine specific sub groups of those responding, around three in five (60%) of those responding on behalf of a School Board were in favour of making changes and 9% were in favour of the proposals. Just over one in four (27%) of this same group were against the new proposals.
Amongst respondents from education authorities 90% were in favour of making changes and only 6% of them favoured the proposals in the draft legislation. Of those responding as individuals slightly fewer than half (47%) were in favour of making changes; just over one in four (27%) were against the new system whilst one in five (20%) were in favour of it. Three in five (60%) of those responding from School Boards favoured making changes, 9% supported the draft legislation as proposed whilst 27% were against it.
Public Consultation Events
Those participating in the public consultation events had mixed feelings about the introduction of parent forums. Some welcomed the more flexible approach. However, some felt that there had been a failure to acknowledge the progress that current School Boards have already made. Some expressed preferences to work with what has already been established. Under the new legislation, parents would be able to keep their existing School Board and build on the best of what they already have if that was their preference. There was some recognition however, that minor changes to the current School Board system could be beneficial. For example some of the weaknesses of the current system were identified.
In addition, participants at the public consultation events were concerned that the proposals overall would not result in an increase in parental involvement.
In summary, the main findings from the analysis of question 4 are:
- Almost 13% said that they supported the introduction of parent forums.
- 56% supported some sort of changes even if they were not in favour of the particular proposals suggested in the draft Bill.
- 27% stated that they were broadly against the new system.
5.3 Prescribed Means of Appointment
In question 5 respondents were asked, " The Bill does not prescribe the means of appointment to the new forums (elections to Boards are mandatory) but provides for parents to decide this locally. Do you agree?"
As shown in chart 6.2, the majority of respondents (52%) stated thatthey were against the proposal or happy with the existing arrangements. In contrast over a quarter (26%) were in agreement with the proposals.
"It is recognised that many parents feel intimidated by the formality of the election process to the School Board and because of the need to undertake training. As a result, School Boards are seen by many as elitist and perhaps the preserve of parents from the professions. However, if the process is left entirely for the parent body to decide, then there is the risk that individuals will be allowed to remain for unspecified time and that cliques will be formed, with the resulting exclusion of majority representation. There must be some guidance on best practice, at the very least."
(School Board)
As shown in chart 6.2, almost a quarter (24%) made requests or suggestions for safeguards, assistance or further information on the means of appointment. These included requests:
- For guidelines or common mechanisms to be used in making appointments
- To make the system appealing to all parents to increase their involvement in it
- To develop a system to enable forums to be reviewed and evaluated, and for appeals to be made to change the content or function of the forum, perhaps through the establishment of an ombudsman.
Small numbers of respondents (less than 2%) also stated that:
- There should be an established minimum and maximum number of forum members
- Pilot schemes could be used to explore different models
- Headteachers should be involved in providing advice and support in making appointments
- Parents may need support
- Additional funding will be needed.
As illustrated in the chart, one in five respondents (20%) identified a range of problems that they expected could be a consequence of the proposal. For example, just over one in six of all respondents emphasised that the appointment procedure must be fair and representative to avoid domination by cliques, interest groups, sycophants or anti-school groups. Small numbers of respondents (less than 3%) felt that membership should not be restricted to parents; that the proposal could lead to rival parent forums within schools; the same people as on the School Board would partake in the forums; flexibility could create problems in setting up the forums or there would be an increase in bureaucracy.
Just over one in ten respondents (12%) made a range of suggestions to improve on the existing arrangements. For example, nearly 7% of all respondents suggested that the current election process could be simplified and just under 6% said that the School Board rules could be relaxed.
As illustrated by the quote below, one issue noted was that board members are volunteers with limited time and resources:
"Having to draft or modify our own constitution from scratch, then having to decide on and run our own selection process without the statutory support and funding that School Boards currently enjoy 4 is a daunting prospect. Board members are volunteers and there is a limit to the amount of time and resources local people can put into developing new processes. Modification of the School Board system to allow more local flexibility seems to be a far more practical and effective approach."
(School Board)
Another respondent noted the need to make improvements to the election process:
"The only area which we feel may benefit from any adjustment would be the election process for parent members onto the School Board. If this process were simplified and made less formal, we are confident more parents would become involved in the present School Board system."
(School Board Chairperson)
Chart 5.2
Prescribed means of appointment
Base: All Respondents
(Source Q 5)
Examining the specific subgroups responding to the consultation, it is not surprising to find that a majority (64%) of respondents who were against the legislation overall, were not in favour of this proposal. Moreover, around one third (30%) of those broadly in favour of the new system, and just over half (54%) of those in favour of changes, also expressed opposition to this particular proposal.
Of those in favour of this proposal, this consisted of just over half (53%) of those who were broadly in favour of the legislation overall and just under one third (29%) of those who were in favour of changes only.
Nearly half (48%) of those responding as individuals were against this proposal, whilst just under a quarter (24%) of respondents from this group expressed support for it. Over half of those from School Boards (53%) were against the proposal and around one quarter (26%) from this group was in favour of it.
Public Consultation Events
Respondents at the public consultation events welcomed the flexibility of the new approach. Guidance on setting up the forums was requested by these respondents who felt that the proposals were too vague. They also felt that the emergence of different models would be problematic for organising training and representation. Respondents also suggested ways of improving the existing system including introducing greater flexibility in terms of the membership and length of time served.
In summary, the main findings from the analysis of question 5 are:
- Over a quarter of respondents were in favour of this proposal (26%)
- The majority of respondents (52%) did not support this proposal
- Just under a quarter of respondents (24%) made requests or suggestions for safeguards, assistance or further information on the means of appointment.
5.4 Education Authorities to Promote parent forums
Question 6 asked respondents, "Do you agree that education authorities should have a new duty to promote the establishment of a parent forum in each school and to support their operation?"
As illustrated in chart 6.3, almost two in five respondents (39%) commenting on this question were in favour of this proposal, while a slightly smaller proportion (32%) were against it or happy with the existing arrangements.
"It is absolutely essential that an education authority promotes the establishment of the forum, but only if it is a body that they can support easily. It is pointless trying to support an amorphous body which does not appear to be representative".
(Education Authority)
Very few other comments were made by those expressing their support.
Among those against the proposal a small number of additional comments were made. For example, a little more than one in ten respondents (13%) stated that the current system should be retained, and one in 20 (5%) stated that education authorities already support parental involvement and School Boards. Respondents in small numbers (less than 3%) also stated that:
- Forums would deformalise and disempower School Boards and would lack the legitimacy of School Boards
- This responsibility described in the proposal should fall to the school or headteacher
- Parents should decide what form of involvement is best for their school.
Additionally, one in ten (10%) respondents made suggestions that could be made to the existing arrangements. Nearly 7% suggested improving the current PTA or School Boards by building on the current legislation.
Small numbers of respondents suggested that the measures should be introduced only where a School Board or PTA does not currently exist.
Around 27% of respondents identified a range of difficulties with implementing this proposal or made suggestions to ease its implementation. For example around 5% of respondents stated that parents should decide on the form of support needed from the education authority. A similar number stated that the duty should be mandatory and regulated by the Scottish Executive. Around 4% requested that education authorities should provide advice, guidelines and examples of good practice as they currently do for School Boards.
Small numbers of respondents (less than 4%) also stressed the need for
- Additional funding
- A set structure for the forum
- Communication with all parents
- Collaboration between forum headteacher and school or school management team
- Regular communication between forums and their education authorities
- Support at the set up phase
- Consistency across all areas.
Chart 5.3
Education Authorities to Promote Parent Forums
Base: All Respondents
(Source Q6)
When we examine specific sub-groups responding, it is not surprising to note that nearly 80% of those who expressed broad agreement with the new system overall were in favour of this proposal. Likewise, over half (51%) of those who were against the system overall were also against this particular proposal.
Of those responding from School Boards, views were polarised, with just over a third (35%) being in favour and just under a third (31%) against it.
Over half (53%) of respondents from education authorities were in agreement with this proposal whilst a quarter (25%) were against it.
Just under half (44%) of those responding as individuals were in favour of this proposal, whilst almost a third (31%) were against it or happy with existing arrangements.
In summary, the main findings to the analysis of question 6 are:
- Just under two in five (39%) respondents were in agreement with the proposal.
- Slightly less (32%) were against it.
- Just over a quarter identified specific difficulties or made suggestions to aid implementation.
5.5 Composite Parent Forums
In question 7, parents were asked, Should the Bill provide for 'composite' parent forums where this is the preferred option of parents in each school in a combined school or cluster of schools?
As illustrated in chart 5.4, just over a third of respondents (35%) were in favour of the proposal for a 'composite' parent forum if preferred, whilst 30% of respondents were against it or happy with the existing arrangements. Less than one in ten (7%) made suggestions for improvements to the existing arrangements.
Of those in agreement with the proposal, just over one in ten (11%) emphasised implementing forums in the format requested by parents in line with their needs and what would be most appropriate for their area. A small number (4%) of respondents suggested that small school or schools in rural areas could pool their resources and expertise. Other positive benefits identified by small numbers of respondents (less than 2%) were that this would increase contact and trust between schools enabling them to share ideas or expertise; or would help increase the pool of parents who could get involved and in turn help schools with fewer interested parents.
"Such flexibility is highly desirable, particularly in light of the rural dimension of many of our schools. It would be very helpful in the cluster schools arrangements, and also offers the possibility of secondary / primary clustering arrangements."
(Education Authority)
Those not in favour of the proposal included a small number of respondents (6%) who felt that each school should have its own forum and 4% who felt that the current system should be retained.
"The point of a School Board is to provide a link between parents and other interested members of the board with the relevant school. To combine parent forums would lose this link and almost inevitably one group of parents could dominate the forum to the detriment of the other schools and parents."
(School Board)
As illustrated in the chart, a quarter of respondents (25%) perceived particular problems with the composite forums. For example, nearly one in ten (10%) of all respondents felt that this would result in forums being too big and cumbersome for all interests to be represented and would fail to deal with the varying needs of different schools. A small number of respondents (around 4% of the total) felt that composite forums should only be included if this were in addition to each school having its own forum. Further problems identified by respondents in small numbers (less than 4% of the total) included concerns that:
- Parents tend to be interested only in their own school
- Cliques or interest groups or single agenda groups could develop
- Individual schools' rights could be eroded
- Community involvement could be diluted
- The system might only work in areas, not others
- The system could be unmanageable.
Around one in ten (12%) of respondents made suggestions for the composition of the forums. A small number (5%) suggested that the composite forums should encourage shared practice and regular contact within existing clusters. Other suggestions made by small numbers (less than 3%) included ensuring all schools are equally represented and developing a common framework for operation to avoid disagreement between schools.
In addition, 7% offered suggestions for improvements to be made to the existing system or argued that composite School Boards already exist.
Chart 5.4
Composite Parent Forums
Base: All Respondents
(Source Q 7)
It is not surprising to note that a majority (53%) of those expressing overall support for the proposals and over a third (38%) of those in favour of some changes overall were in agreement with this proposal. Likewise, over two in five (41%) of those against the new system overall were against this proposal.
When we examine specific sub-groups responding, 35% of individuals responding were in favour of this proposal. Equal numbers of respondents from School Boards were in favour and against the proposals, (just over 30% in both cases). The majority of respondents from education authorities (69%) were in favour of this proposal.
In summary, the main findings from the analysis of question 7 are:
- Just over a third of respondents (35%) were in favour of the proposal
- Under a third (30%) of respondents were not in favour of the proposal or happy with the existing arrangements.
- One quarter (25%) perceived problems with composite forums for example, they could become too big or not be able to deal with variable needs.
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