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CHAPTER XIII
THE DEVELOPMENT PLAN
Any scheme for the constitution of local education authorities must be such as to preserve and stimulate local interest in educational affairs. White Paper on Educational Reconstruction.
IN previous chapters I have fried to sketch the possibilities of the Education Act. To a large extent these possibilities have still to be translated into realities. Undoubtedly the sweeping Labour victory in the General Election has put new heart into those who have laboured long and hard in the cause of popular education. The British people have said goodbye to 1939 and all that. It has elected a new Government, and given it marching orders to go ahead - equality of opportunity in education has a prominent place in the programme of the Labour Government. In the November municipal elections, equally definite instructions were given to many Borough Councils. No I doubt next spring the County Council elections will reveal the same determination on the part of the people to go ahead with the building of a better Britain.
In the tremendous task of educational reconstruction, the Borough and County Councils are all important. For it is on these bodies, or rather on the Education Committees appointed by them, that the chief responsibility rests for carrying out the provisions of the Education Act. They are the bodies who actually do the job - train the teachers, build the schools and find a great deal of the money. Thus clause II of the Act is most important. It instructs every local education authority to draw up and submit to the Minister of Education, not later than 1st April, 1946, a Development Plan, estimating the immediate and prospective needs of its, area, and showing the action which it proposes to take for securing that there shall be sufficient primary and secondary schools available for all the children in its area.
When completed by the local education authorities, approved and
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co-ordinated by the Minister, these plans will constitute a complete blue-print of the new educational system. It is vitally Important, therefore, that the Development Plan of every area should be not only comprehensive and well balanced, but that it should be thoroughly understood and accepted by all those concerned in its operation - parents and teachers as well as administrators.
In this connection, clause 76 of the Act contains an important innovation. It reads as follows:
In the exercise and performance of all powers and duties conferred and imposed upon them by this Act, the Minister and local education authorities shall have regard to the general principle that, so far as is compatible with the provision of efficient instruction and training, and the avoidance of unreasonable expenditure, pupils are to be educated in accordance with the wishes of the parents.
Here is the opportunity for parents to have their say in the carrying out of the Act, not only through the councillors whom they elect, but even more directly. How is this legal right of consultation to be made effective? The most obvious form of organization for this purpose is the Parents' Association, bringing together the parents of the children in each school or group of schools, with the help and guidance of the teachers. Such organizations have played a very active part in the progressive development of education in the United States and in Russia. Up to now in this country, Parents' Associations have not been general, though those that do exist have been effective in obtaining the practical co-operation of parents in the interest of the school in which they are particularly concerned. Some secondary schools, and nearly all nursery schools, have set up active and enthusiastic associations of this kind, a number of which are linked together by affiliation to the Home and School Council of Great Britain. Since the passing of the Act, many parents are taking an increasing interest in the new reforms, and are asking what they can do to help things along.
Here is something that they can do now. At the Easter Conference of the National Union of Teachers, the General Secretary, Sir Frederick Mander, called for 20,000 parents' meetings before the end of the year. There is no doubt that a network of parents' organizations throughout the country would be a most effective guarantee for the speedy operation of the Act. The issue at this moment by the Minister of a circular encouraging their formation would undoubtedly meet with an immediate response.
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Teachers too are vitally concerned, and have a lot to contribute to the Development Plans. They, better than anyone, know the needs of their own areas and of their own particular school. They are in intimate and daily contact with parents and children. Their experience and first-hand knowledge will add the human and personal touch, which is too often lacking in official plans and documents. Through their teacher representatives on the local education authorities, and their local organizations, they must be encouraged to play their part in the drawing up of the Plan.
Parents and teachers are most directly concerned, but every citizen ought to be drawn in to make his or her contribution, either as an individual or as a member of an organization. The work of the Council for Educational Advance, since its establishment in 1942, must be followed up by the setting up of local committees in every area, bringing together representatives of all organizations on the widest possible basis.
I have written at some length about the part that parents, teachers and citizens in general can and should take in the working out of a Development Plan, because I am convinced that there is no other way of mobilizing the will of the people behind the Act, and that only by means of such a mobilization can we make certain of the speed and punch needed to get the Act working.
That is the job of the local education authority, working through an Education Committee, which has in its administrative service a number of officials headed by the Chief Education officer. Normally, the detailed work is done in a number of sub-committees reporting to the full committee. The important work of drawing up the Development Plan is usually delegated to a special sub-committee consisting of the chairman of the sub-committees and other leading members. This sub-committee starts its work by considering a draft memorandum submitted to it by the Education Officer.
How does the Education Officer go about his job?
Let us follow the progress of the Education Officer for Barset. He made a close study of the Act itself and of the various circulars and pronouncements of the Minister before and since the passing of the Act. For the benefit of his committee and to buttress his arguments for a wide and ambitious programme, he noted down some of the more striking passages, beginning with the quotation from Disraeli which stands at the head of the White Paper:
Upon the education of the people of this country, the fate of this country depends.
Also in the White Paper he found:
The Government's purpose is to ensure a fuller measure of education and opportunity for young people and to provide means for all of developing the various talents with which they are endowed, and so enriching the inheritance of the country whose citizens they are ... In the youth of the nation, we have our greatest national asset. Even on a basis of mere expediency, we cannot afford not to develop this asset for the greatest advantage.
In the Explanatory Memorandum to the Education Bill, issued by the then President of the Board of Education, he underlined this important sentence:
What is involved is a recognition of the principle that the public system of education, though administered locally, is the nation's concern, the full benefits of which should be equally available to all alike, wherever their homes may be.
Speeches of the ex-Minister and of members of the new Government also provided useful ammunition.
Next, being a practical man, he drew up, with the help of his colleagues in the office and in the schools, a comprehensive and realistic survey of his area - school population, actual and estimated, its distribution, numbers of teachers and schools, state of repair and adequacy, playing fields, and all the thousand and one things that come directly or indirectly within the purview of education in its broadest sense. This was, of course, a survey of things as they were, with all the deficiencies and inadequacies due to the past and to the ravages of war. He was then able to rough out a balance sheet, showing what was needed to bring the schools to the new standards laid down in the Act and the Regulations. The result was something of a shock, and he recalled regretfully the efforts he made in those dead years between the wars to get his Committee to approve expenditure for this and that. Then he was met too often with rebuff from the economaniacs, the careful custodian of the rates, and, the diehard Colonel Blimp, who used to snort wrathfully at the very mention of spending money on the education of working-class children, though he had two sons at Eton costing him not less than £500 a year. "Well," he said to himself with a hopeful smile, "old Blimp and his friend Bumble are not likely to give much trouble after November.
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All this may be a shock to the Committee, but I can count on the Chairman to back me up - he's no Red, but he is an old scholarship boy, and has always done his best for the schools."
At this stage he picked up his papers and went into conference with his Chairman. Talks with the Town Clerk, with the Borough Surveyor about housing schemes, with the teacher representative and last, not least, with the Borough Treasurer, followed.
Already the draft plan was taking shape, and the time had come for the Sub-Committee to decide on certain important questions of policy. It was a long-term policy, so that questions of priority did not arise immediately. Nevertheless, our Education Officer, being concerned to get something done as soon as possible, decided to ask authority to put forward an immediate programme as soon as the Development Plan had passed the Education Committee, and without waiting for its approval by the Minister. This proposal was accepted by the Sub-Committee, in spite of remarks about blank cheques from Mr. Councillor Bumble. The next question caused a sharp discussion. What should be the policy for the secondary stage? In addition to a new secondary school for boys, the Borough possessed a large and fairly modern senior school, but no girls' secondary school. Owing to war conditions, reorganization had not been completed, so that senior pupils were scattered in a number of buildings throughout the Borough. The Municipal Technical College also had a small junior technical school. The Education Officer's draft report showed that when the age was raised to sixteen, it would be necessary to provide secondary accommodation for some 2,000 pupils. He recommended the extension of the existing boys' school to take 600, the conversion of the senior school to take 600 girls, and the building at the earliest possible date of a new mixed secondary school on a site on the outskirts of the Borough. This proposal, he explained, would involve the adoption of the multilateral school idea. He was sharply opposed by the Chairman of the Technical Sub-Committee, who was anxious to retain the small junior technical school. He was reminded that all the accommodation at the Municipal College was already earmarked for full-time day students over the age of sixteen. The position of the Paper-maker's High School - a Direct Grant School for Girls - was also raised. The Chairman joined in at this point with strong support for the very sensible and realistic proposal of the Education Officer, which, while looking forward to a policy in line with the new
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conception of education in the Education Act of 1944, made the fullest use of existing accommodation. The adoption of the Plan would allow of an early reorganization of the primary schools, which was urgently needed, and could not wait for the provision of new buildings. Eventually, this section of the report was approved, in spite of strong protests from Councillor Bumble. It was also agreed to include in the Development Plan proposals dealing with further education - County Colleges, adult classes, including a community centre, youth service. On the question of finance, it was agreed that estimates should be submitted to the Council, on the understanding that expenditure would be spread over a number of years, and that a strong request would be made, through the Association of Education Committees, to the Government to provide additional grants from the National Exchequer. The Chairman and the Education Officer were authorized, subject to approval by the full Committee, to open informal negotiations with the managers of the one Roman Catholic school in the Borough.
Finally, and only after considerable discussion, it was agreed to ask the full Committee to authorize the publication, in an illustrated brochure, of the draft Plan, and to arrange for a series of parents' meetings round each school or group of schools, at which the plan could be explained by members of the Committee, and discussed by the parents themselves. A request from the local Teachers' Association for the attendance of the Education Officer to explain the plan was also agreed to.
The Education Officer had surmounted his first hurdle. A fortnight later the draft Plan was approved by a majority of the Education Committee, though some objection was raised to the proposed brochure and the parents meetings. This brought a spirited reply from a Labour Councillor, who was also the Secretary of the local Council for Educational Advance. He taunted the objectors with being afraid of their constituents, and of the forthcoming Council elections. At this stage Colonel Blimp, who had taken no part in the discussion beyond an occasional interjection, was heard to remark that the country was going to the dogs, and that the proposed plan would ruin the Borough anyway. After this bright interlude the vote was taken, only the Colonel and his friend Councillor Bumble voting against, though a number of councillors abstained.
In due course the brochure was published and turned out to be a best seller, thanks largely to the efforts of the Council for Educational
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Advance, and the local Teachers' Association, which undertook an independent campaign, generously supported by the local paper. An Educational Exhibition was organized illustrating by photographs and diagrams, the main facts about education, both in the Borough and in the country as a whole. Some of the schools invited the parents to open days. Another popular feature was an Educational Brains Trust, having meetings in many centres, where all manner of questions from parents and, often, children were answered. Thanks to this advance publicity, the parents' meetings were attended by more than fifty per cent of the parents in the Borough. The speakers were bombarded with questions, and a number of suggestions were made. Councillor Bumble made one appearance only. His gloomy prophecies about the effect on the rates, though listened to with with some impatience, made a certain impression. It was clear that the financial question was a real difficulty. Once again the Secretary of the Council for Educational Advance saved the situation. He made no attempt to deny the heavy cost, but argued that the expenditure involved was the minimum necessary to secure a decent chance for the children of the Borough. He pointed out that the whole question of Local Government finance was under review by the Government, and urged the meeting to support the draft Plan while pressing for immediate relief of the rates.
The cost to the rates was not the only controversial issue arising from the discussion of the Development Plan. One of the parents' meetings was held at the County School, and chaired by the Headmaster, a keen and progressive educationist. The Director was present in person to explain the plan. The Headmaster's opening remarks were a direct challenge to the multilateral idea, which was the kernel of the Borough plan.
"Multilateralism", he declared, "as interpreted by the London County Council, is a totalitarian monstrosity. The multilateral school of 2,000 pupils will be more like a barracks or a factory than a school. It will destroy individual initiative in teachers and pupils. It will sacrifice the able pupil to the less able, and so lower the high standards of scholarship, which the secondary schools have built up in the last forty years. The poor scholar will no longer have a chance to compete successfully with the wearer of the old school tie."
These criticisms, put forward with obvious sincerity by a much respected Headmaster, made a considerable impression on the audience.
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These parents were justifiably proud of the fine record of the County School. Their sons had successfully negotiated the "scholarship" hurdle. They had won on their merits "equality of opportunity". They were highly suspicious of anything which might seem to lower standards and to deprive their boys of the chance to climb the educational ladder. So our friend, the Director, when he got up to make his address, faced a highly critical audience. But he was equal to the occasion.
"I congratulate the Headmaster", he began, "on a forthright and courageous defence of the secondary school. I taught for nearly twenty years as Head and assistant to three secondary schools, and I yield to no one in my admiration for the achievements of our secondary schools. They have met and beaten the Public Schools on their own ground. They have enabled the free place scholar to compete successfully with all comers for the blue ribands of university scholarships. If I thought for one moment that the changes which I have advocated threaten these great achievements, I would resign rather than be the instrument of such a disaster.
"But is not my friend the Headmaster unduly fearful? If he were as sure, as I am, of the solid and unshakable success of the secondary school, I think he would be more willing to consider the next stage of advance. So far, the prestige of the secondary school has been built largely on the successes of its ablest scholars. Can it claim as much for its handling of the average pupil? I fear not. Too many of them have to be crammed - I will not mince my words - through a course which is designed, in the main, for a few academically-minded pupils, who are, and will always be, a small minority. I have no anxiety for these brilliant pupils. My experience teaches me that, given guidance and encouragement, they will always find their way to the top. But we must not sacrifice the many average pupils to the brilliant few. We need - and need desperately - both quality and quantity. We need, too, a new approach to knowledge and education. Neither the theories of Plato, nor the practice of Arnold of Rugby, are suitable for this atomic age. The secondary school must move with the times, or sink back into stagnation and obscurity, as did the grammar school in the nineteenth century, until it received a transfusion of blood from the free place scholars of the elementary school.
"Let me turn now to the second point of criticism of the multilateral idea, which has been advanced tonight - size.
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"The Headmaster has called the London County Council comprehensive school a totalitarian monstrosity. Well, abuse is no argument. The multilateral school has its home in the home of individualism - the United States - not in Nazi Germany. However, it may turn out that a school of 2,000 pupils is too big. Certainly in our Borough plan, the largest school contemplated is one of 800. Is that too big? Certainly, the Head of such a school will not be able to know each pupil individually. But I wonder if the Headmaster really knows individually each of his 350 pupils? If he does, he is even more of a superman than I thought! It can t be done by one person. Nor should it be attempted. Real, intimate knowledge of every pupil is only possible in much smaller units, and can only be achieved by a properly organized form system. A form teacher can really get to know his own form of thirty pupils, and should go up with them right through the school. That is possible, and should be the rule in all schools.
"My friend, the Headmaster, is appalled by the large school. But he will, I am sure, agree with me that it is not possible, except in a fairly large school, to get together a well-qualified and varied staff, able to cultivate all the different aptitudes, abilities and interests. Nor is it possible in a small school to provide all the facilities in the shape of laboratories, workshops, handicraft rooms and equipment necessary to provide variety. The fact is that many of our secondary schools, especially in the country districts, are far too small for efficiency. I have no dogmatic theories about the ideal number of pupils. I would only claim here, as in other matters, we must not be afraid to experiment.
"Well, I have given my answer to the two criticisms of multilateralism. I have left myself no time tonight to put before you the educational and social philosophy on which it is based. I believe it to be sound, democratic and in tune with our times. You here tonight are the parents of the fortunate few. Their opportunity was won by them largely by the efforts of a band of pioneers, who believed in equality of opportunity. In their day they were often dubbed Utopians and dreamers. Today, we have the responsibility of extending opportunity to all. Let us be sure that we are not depriving others of something that we value highly for ourselves and our children."
From the meeting at the County School, the discussion spread to other parents' meetings, into the local Press and to the homes of
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the people. Education had become a live issue in the Borough.
This little story is of course fiction, but like all good stories, it is founded on fact, and has a moral. Local education authorities are now discussing their Development Plans. Some, like the London County Council, the West Riding, the Boroughs of Southend and East Ham, have already published preliminary reports. It is also a fact that most local education authorities take a real pride in their schools, and that many education officers are progressive, and are keen to get things done. On the other hand, Colonel Blimp and his friend, Councillor Bumble, are by no means exceptional members of local education authorities. Indeed, it could even be claimed that Councillor Bumble at any rate has a case. But what I fear is the largest bit of fiction in my story is the full publicity given to the plan, and the consequent interest and support of the parents. And herein lies the moral. Local education authorities who seek popular support will find it. In a democracy, popular support is needed to give speed and punch to the great effort which is necessary if the benefits of the Act are to be secured for the children of this generation.
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CONCLUSION
IT'S UP TO US
IT remains now to attempt a definite answer to the three questions from which I started. Let me repeat them:
(1) Does the Education Act of 1944 give expression to a modern democratic outlook?
(2) Does it provide the framework needed for a thorough recasting of our educational system?
(3) Can it be made to work efficiently in the next few years?
To the first two questions my answer is - yes. On the whole, and in spite of certain weaknesses, the Act is progressive and democratic. It does provide a practicable working drawing for a new system.
What of the third question? I hardly think that I shall be accused of under-estimating the immensity of the task. Men, materials and money are in short supply, and are needed for all the urgent tasks of reconstruction. Among the administrators and teachers, whose job it is to make the Act work, there is much war-weariness. More dangerous still, previous disappointments have bred much scepticism and even cynicism. We have been fooled too often by promises of pie in the sky, by and by. The political records of some of those who supported the Act in its passage through Parliament, and of others who control the local administrative machine which has to make it work, do not inspire an easy confidence. Already some of the regulations issued under the Act have been used to level down rather than up. There is, up to now, all too little evidence of speed and punch in operation and administration. In the House of Commons the champions of the old school tie have plucked up their courage, and are fighting to retain their privileges. Others are exploiting to the full the delaying tactics of a defeated and retreating army. Even some of the staunchest supporters of educational advance seem inclined to reconcile themselves to a slowing down of tempo.
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The school leaving age is not to be raised to fifteen until April, 1947.
Must we then, if we are honest, admit that it is not possible to make the Act work efficiently in the next few years? That was my third question, and here is my answer. It can be made to work, and work soon. What is more, I believe it will be made to work. I base my confidence on the new spirit of the common people of Britain. I am convinced that, as a people, we have made up our minds to put an end to 1939 and all that - an end to poverty and insecurity, to privilege and to vested interest, to war and threats of war. We understand something of what this involves. A new democratic consciousness is arising. Already it has found practical expression in the surge of feeling which swept Labour into power at the General Election. As the municipal elections have shown, the tide is still flowing. In March it will almost certainly engulf many of the County Councils. It is sweeping away the political obstacles in the path of social, including educational advance.
The first Labour Minister of Education is a woman graduate of Manchester University, who has no claim to any old school tie. Miss Ellen Wilkinson has come up the hard way through the elementary and secondary school, and the pupil-teachers' training. She has shown already that she realizes that there can be no real and lasting democracy without a democratic educational system. We, the common people of Britain - parents and teachers, administrators and officials - share with her a tremendous task and a grand opportunity. It is up to us. "The old is dead. We shall die with it unless we can give birth to the new."
THE END