Evaluation of the School Based
Supply Cluster Model Project
Mae’r ddogfen yma hefyd ar gael yn Gymraeg.
This document is also available in Welsh.
© Crown Copyright Digital ISBN 978-1-83933-398-9
SOCIAL RESEARCH NUMBER:
50/2019
PUBLICATION DATE:
12/11/2019
Evaluation of the School Based Supply Cluster Model Project
Author(s): Brett Duggan, Alison Glover and Tanwen Grover,
Arad Research, and Annalisa Feehan.
Full Research Report: Duggan, B., Glover, A., Grover, T. Feehan, A. (2019).
Evaluation of the School Based Supply Cluster Model Project. Cardiff: Welsh
Government, GSR report number xx/201x.>
Available at: https://gov.wales/evaluation-school-based-supply-clusters
Views expressed in this report are those of the researcher and not
necessarily those of the Welsh Government
For further information please contact:
Katy Marrin
Social Research and Information Division
Welsh Government
Cathays Park
Cardiff
CF10 3NQ
Email: [email protected]
1
Acknowledgements
The research team would like to thank all of the supernumerary teachers,
headteachers, school senior managers and other stakeholders who took part
in the interviews and survey. The authors would also like to thank,
Welsh Government officials, Gail Deane, Lucy Durston (Education and
Public Services Group), and Katy Marrin (Knowledge and Analytical
Services) for their guidance and support.
Mabon ap Gwyn at Arad Research who coordinated fieldwork and
assisted with presenting survey results.
2
Contents
List of tables…………………………………………………………….………………….……….3
List of figures………………………………………………………………………….……………3
Glossary ................................................................................................................................. 4
1. Introduction ............................................................................................................... 5
2. Methodology .............................................................................................................. 8
3. Project context ........................................................................................................ 12
Policy context ................................................................................................................... 12
Project objectives ............................................................................................................. 15
Approaches used to provide supply cover in cluster schools prior to the Project ............. 15
4. Management and delivery ....................................................................................... 17
Engagement and recruitment ........................................................................................... 17
Delivery models adopted by the clusters .......................................................................... 20
Monitoring and evaluation ................................................................................................ 27
5. Project outcomes .................................................................................................... 28
Teaching and learning ...................................................................................................... 28
Wider school improvement ............................................................................................... 33
Cluster collaboration ......................................................................................................... 37
Supernumerary teachers .................................................................................................. 42
Efficiencies and financial benefits ..................................................................................... 50
6. Sustainability ........................................................................................................... 54
7. Conclusions and issues for future consideration ..................................................... 58
Annex A: Research tools ..................................................................................................... 67
Annex B: Summary of cluster school online survey responses (Spring 2019) ..................... 85
Annex C: Pilot cluster case studies ...................................................................................... 96
3
List of tables
Table 2.1: The pilot school clusters and completed interviews. ........................................... 11
Table 4.1: The strengths and challenges of the different delivery models. .......................... 26
Table 5.1. Overview of the cost comparison to provide supply cover .................................. 51
Table 7.1. Examples of potential tapered intervention support ............................................ 65
List of figures
Figure 4.1: Timeline of cluster engagement with the Project ............................................... 18
Figure 4.2: The structure of each of the pilot clusters. ......................................................... 21
Figure 4.3: Example of block timetable ................................................................................ 23
Figure 4.4: Example of fixed timetable ................................................................................. 24
Figure 4.5: Example of flexible timetable ............................................................................. 24
Figure 4.6: Example of combination timetable ..................................................................... 25
4
Glossary
Definition
Additional Learning Needs
Autistic Spectrum Disorder
Headteacher or senior manager in a school responsible for
coordinating Project activity across a cluster.
Continuing Professional Development
English as an Additional Language
The education and training inspectorate for Wales which provides
independent inspection and advice on the quality and standards
of education and training provided in Wales.
Education Workforce Council, the independent regulator in Wales
for teachers in maintained schools, Further Education teachers
and learning support staff in both school and FE settings, as well
as Youth Workers and people involved in work-based learning.
Higher Level Teaching Assistant
Learning Support Assistant
Newly Qualified Teacher
Physical Education
Planning, preparation and assessment (time)
Qualified Teacher Status
School Development Plan
Science, Technology, Engineering and Mathematics
A floating teacher employed by one school or a cluster of schools
to provide cover for absent teachers.
Welsh Local Government Association, an organisation which
represents the interests and views of local government in Wales.
5
1. Introduction
1.1 In July 2018, Arad Research was appointed by the Welsh Government to evaluate
the School Based Supply Cluster Model Project (the Project). The Project provided
£2.7 million grant funding for two years for 18 school cluster pilot projects in 15 local
authorities to trial approaches to employing recently qualified teachers on a
supernumerary basis to manage absence cover (planned or unplanned).
1.2 Each cluster pilot project allocated a cluster lead school, where the headteacher or
senior manager was responsible for co-ordinating project activity across the cluster;
and acted as the main point of contact with the Welsh Government and the local
authority, and as the employer for the supernumerary teacher/s. One hundred and
three schools were involved in the Project, with 50 supernumerary teacher roles
available; 47 of these posts were filled. During the course of the pilot there have
been school mergers and in some cases more teachers needed to be recruited as
supernumerary teachers secured permanent posts before the end of the Project.
1.3 The Project intended to support workforce capacity by employing recently qualified
teachers to the posts advertised by clusters. Local authorities and schools are
responsible for maintaining effective staffing within schools and making decisions
around delegated staffing budgets and this pilot Project supported this approach.
The financial support given to clusters was tapered over the project period: during
Year 1 (from September 2017) clusters were provided with grant funding to cover
100 per cent of the project’s costs; during Year 2 (from September 2018) clusters
were provided with grant funding for 75 per cent of costs. Although no grant funding
was available to clusters into the third year, the intention was that arrangements
would be sustainable, with schools continuing to employ supernumerary teachers
on a self-financing basis at either local authority or school cluster level from
September 2019.
1.4 Although the Project was initially intended to be operational from September 2017, it
was decided that the start date would be delayed until after the start of the
academic year, later than September 2017, so that the Project would not cause any
disruption to the normal job market and work opportunities for recently qualified
teachers in securing permanent positions.
6
1.5 The aims of this evaluation were to:
Review the implementation and delivery of the Project;
Assess and provide advice on project monitoring and reporting;
Assess how the projects have contributed to the broad outcomes of the Project
and their own objectives; and
Make recommendations regarding future models of supply delivery in Wales and
whether arrangements for collaborative direct employment model should be
extended/ encouraged.
1.6 In recent years, a number of reports
1
have explored issues surrounding the
deployment and management of supply teachers and the impact on learner
outcomes. In May 2015, in response to the Children, Young People and Education
Committee’s inquiry into supply teaching
2
, a Supply Model Taskforce was
established to consider future delivery options for commissioning supply teachers in
Wales. From September 2019, the National Procurement Services Supply Teachers
Framework for Wales will apply, with schools encouraged to use agencies
complying with the framework, which includes a minimum pay point for supply
teachers
3
.
1.7 The Taskforce was charged with reviewing national and international models of
delivery for the supply workforce, engaging with key stakeholders to take evidence
with a view to recommending alternative delivery options going forward. The
Taskforce reported with recommendations in February 2017
4
. Several of the
recommendations advocated greater support for recently qualified teachers who
found themselves in short term supply roles and the introduction of a collaborative
approach to delivery. The School Based Supply Cluster Model Project was
developed in response to these recommendations.
1
Estyn (2013) The impact of teacher absence; Wales Audit Office (2013) Covering Teachers’ Absence;
National Assembly for Wales (2014) Covering Teacher’s Absence
2
National Assembly for Wales (2015) Inquiry into Supply Teaching
3
Welsh Government (2019) The National Procurement Services Supply Teachers Framework for Wales
4
Ministerial Supply Model Taskforce (2017) Report to the Cabinet Secretary for Education
7
1.8 The evaluation addressed the following research questions:
1. What different models of supply delivery have been developed?
2. Are project monitoring systems appropriate for assessing the progress and
outcomes of projects?
3. How can the cost savings and efficiencies of the Project be assessed?
4. What barriers and facilitators to collaborative working have been experienced
by clusters?
5. To what extent have clusters delivered against the broad outcomes of the
Project?
6. To what extent have clusters met their own objectives?
7. To what extent have clusters contributed to school improvement activities?
8. Are clusters self-sustaining in year three (2019/20)?
9. Should and how could local authorities and Welsh Government support such
initiatives in the future?
1.9 The pilot nature of the Project offers significant opportunity for learning both in terms
of reforms to the current education system in Wales and impetus for collaborative
regional working with schools considering alternative ways of meeting supply
needs, which could be sustainable in the longer term. This independent evaluation
delivers an assessment of the design, implementation and outcomes of the Project
and aims to provide learning for future policy and practice in this area.
1.10 The report presents the findings from the research activity conducted from
September 2018 to July 2019, and focuses on the implementation and impact of the
Project during years 1 and 2. A short follow-up report will be published in
September 2020, which will be informed by surveying cluster leads and
supernumerary teachers, exploring longer-term impact of the Project, reporting on
any changes in the way schools address their supply needs and the impact of the
supernumerary role on teachers’ employment experience. The follow-up report will
also contain a final cost effectiveness analysis, as the final monitoring data
submission from clusters was not available for this report.
8
2. Methodology
2.1 A mixed methods approach was undertaken, with opportunities provided for all
clusters and key stakeholders to contribute at various points during the evaluation.
The evaluation drew on data from multiple sources including monitoring data,
primary qualitative data and quantitative data, which provided opportunity for deeper
analysis and the corroboration of findings. During the scoping phase of the
evaluation all project documentation such as project background information and
clusters’ applications for the grant funding were examined. As the Project
progressed all clusters submitted termly monitoring forms, which included data on
the number of supernumerary teachers employed, the total number of absence
days that required cover in the cluster, the cost of agency supply cover and the
number of days covered by the supernumerary teachers. End of year reports
summarised each cluster’s delivery of the Project and reported impact; and these
were also shared with the research team. Primary data was collected during
interviews where the perspectives of senior managers, supernumerary teachers and
other relevant stakeholders provided insights into the Project’s design, planning and
delivery. Table 2.1 provides an overview of all contributors and how the information
was collected. More detail of the various stages of data collection is provided below.
2.2 As a first stage of the evaluation, a series of stakeholder interviews was carried out,
focusing on the policy context and background to the Project, its aims, design and
delivery to date. Interviews were carried out with Welsh Government officials (3),
Estyn (1), Education Workforce Council (EWC) (2), Welsh Local Government
Association (WLGA) (1) at the beginning of the evaluation, and with local authority
representatives (3), other headteachers and deputy headteachers (8), Newly
Qualified Teacher (NQT) mentors (2) and learners (4) later on in the evaluation
process. All interviewees invited to participate in the evaluation were given the
opportunity to participate in the language of their preference, with interviews
conducted by telephone or face to face. The outcomes of the scoping interviews
were used to inform the ongoing design and delivery of the evaluation, providing
further context to the Project and identifying supplementary questions to be asked
9
during fieldwork with cluster leads, supernumerary teachers and other participating
schools.
2.3 The monitoring forms submitted by clusters were used to establish the cost
effectiveness of the Project. The total number of cover days needed and the cost of
this cover provided by agencies, along with the number of days covered by the
supernumerary teacher/s were used to work out the total spend on cover if the
cover provided by the supernumerary teachers had been provided by agency
supply. The average daily supply cost for the agency cover used by clusters was
also calculated (Section 5).
2.4 A key aim of the evaluation was to ensure good levels of engagement with
participating clusters and to understand their experiences of the Project at different
points in time. Cluster leads were invited to take part in interviews in autumn 2018
and interviews were completed with all 18 cluster leads. These discussions focused
on project delivery to date, how supernumerary teachers were deployed,
collaboration with cluster schools, support for supernumerary teachers’ professional
development, and any barriers or challenges faced. Further interviews were carried
out during summer 2019 with 17 out of the 18 cluster leads: these interviews
focused on project management over the course of the Project, and its impact on
learners, on supernumerary teachers, on wider school staff and the contribution to
wider school priorities. The information collected during these summer 2019
interviews was used to inform all clusters’ end of year 2 reports.
2.5 Telephone interviews were completed with 25 supernumerary teachers from across
15 clusters. These interviews provided insights into teachers’ motivation for
applying, recruitment processes, models of deploying teachers, management,
professional development, experiences of working across different schools and key
stages, benefits, and future plans. The research team gained consent to re-contact
the supernumerary teachers by telephone or email for follow-up interviews during
the 2019/20 academic year to record whether, and where they are teaching post-
Project.
10
2.6 In addition, an online survey was designed to collect the views of other schools
involved in the Project. The survey explored similar topics to those discussed with
cluster leads. 34 out of 85 schools (excluding cluster leads who were not invited to
complete the survey) responded. When appropriate, links to the survey findings are
included in the narrative of this report, referenced as supporting data from other
cluster schools/headteachers.
2.7 Table 2.1 provides a breakdown of the numbers of individuals who contributed to
the various stages of the evaluation outlined above. All interview schedules are
included in Annex A and a summary of the online survey results are presented in
Annex B. Case studies were also developed to present further detail on specific
themes to emerge during the evaluation, such as managing a large cluster of
schools, recruiting and deploying specialist cover for Welsh-medium schools and
Special schools. As a result, the case studies reflect the Project experience across
different parts of Wales and in different types of schools. Information for these case
studies was collected during half day visits to the cluster lead school and telephone
interviews. Cluster leads, other headteachers and other relevant stakeholders such
as NQT mentors, and local authority representatives contributed to the development
of the case studies. Annex C contains the full case studies, which are also
referenced as appropriate throughout the report.
11
Table 2.1: The pilot school clusters and completed interviews.
Cluster
No. of
schools
in
cluster
No. of
SN*
teacher
roles
Completed interviews
Survey
Cluster leads
SN*
teachers
**Other
stakeholders
Cluster
schools
Spring
2019
Autumn
2018
Summer
2019
Spring
2019
Blaenau
Gwent A
5
4
1
1
1
Blaenau
Gwent B
6
2
1
1
2
Caerphilly
7
1
1
1
2
1
4
Cardiff
10
10
1
1
4
3
3
Carmarthen
7
3
1
1
2
Conwy A
6
4
1
1
4
Conwy B
6
3
1
1
3
3
Merthyr
Tydfil A
7
1
1
1
1
2
Merthyr
Tydfil B
7
1
1
1
1
Monmouthshire
1
1
1
1
1
Neath Port
Talbot
10
5
1
1
2
1
5
Newport
2
1
1
1
1
3
1
Pembrokeshire
3
3
1
2
Powys
6
1
1
1
1
4
Rhondda
Cynon Taff
2
2
1
1
1
1
Torfaen
4
2
1
1
1
2
Vale of
Glamorgan
6
1
1
1
1
Wrexham
8
2
1
1
2
8
3
103
47
18
17
25
17
34
Note: Some cluster schools merged during the course of the Project; individual schools have not
been named as only the names of the local authorities participating in the pilot Project were
announced by the Welsh Government.
*SN – Supernumerary
**includes NQT mentors, headteachers, local authority education officers and learners.
12
3. Project context
Policy context
3.1 In September 2017, the Welsh Government stated in their Action Plan for Education
in Wales that ‘Education has never been more important. Education reform is our
national mission’
5
. Strengthened teacher training delivery, new professional
standards for teachers
6
, the National Academy for Educational Leadership
7
and the
implementation of Successful Futures
8
with the development of the new curriculum
for Wales
9
, all underpin this education reform for Wales. A key objective to be
achieved by 2021 is the establishment of more effective workforce planning
systems, which includes developing ‘alternative models to ensure the quality and
sufficiency of supply teachers for schools’
10
.
3.2 Collaborative working between schools is also key for progressing professional
learning for teachers
11
and for schools to develop as learning organisations
12
and
this pilot Project contributes to further progress in these areas. The Welsh
Government also has responsibility to ensure all employment practices are lawful
and ethical
13
, and the introduction of the National Procurement Services Supply
Teachers Framework for Wales
14
will be revised on a geographical lot basis and will
be active from September 2019. This Framework includes a minimum pay point,
transparency of fees and the abolition of particular working practices, with
professional learning and induction support required and will provide schools with ‘a
greater degree of choice and flexibility in which supply agencies to work with’
15
.
5
Welsh Government (2017) Education in Wales: Our national mission Action plan 2017-21. p. 2.
6
Welsh Government (2019) Professional standards for teaching and leadership.
7
National Academy for Educational Leadership Wales
8
Donaldson, G. (2015) Successful Futures: Independent Review of Curriculum and Assessment
Arrangements in Wales
9
Welsh Government (2019) Curriculum for Wales 2022
10
Welsh Government (2017) Education in Wales: Our national mission Action plan 2017-21. p. 4.
11
University of Wales Trinity Saint David (2018) The National Approach to professional learning in Wales:
Evidence base.
12
OECD (2018) Developing schools as learning organisations in Wales: highlights
13
Welsh Government (2016) Code of Practice Ethical Employment in Supply Chains.
14
Welsh Government (2019) The National Procurement Services Supply Teachers Framework for Wales
15
Welsh Government (2019) Supply teachers Guidance
13
Twenty-seven supply agencies are part of this Framework and schools are being
encouraged to use it to source supply teachers.
3.3 Several challenges have been highlighted regarding the management of supply
teachers and the impact on learners in Wales. The collaborative Estyn and Wales
Audit Office reports noted the negative impact of supply teaching on learner
progress and behaviour and difficulties encountered by supply teachers to establish
effective working relationships with learners. The difficulty schools face sourcing
Welsh speaking supply teachers, those able to fulfil roles in rural or economically
deprived areas, or those able to teach shortage subjects such as mathematics and
physics was also reported
16
. It was also noted that appropriate professional
development was lacking for those engaged as supply teachers, hindering teachers
securing a permanent post
17
.
3.4 In May 2015, a Supply Model Taskforce was established to consider the future
delivery options for commissioning supply teachers in Wales. The Taskforce found
that supply provision was often variable and inconsistent; with supply teachers paid
different rates of pay and experiencing different terms and conditions dependent on
how they were employed. These were not always commensurate with the terms of
the nationally agreed School Teachers' Pay and Conditions Document
18
or the
qualifications, skills and experience held by supply teachers. Teachers on short
term supply may not be able to access learning and professional development
opportunities in the same way that those on longer term supply contracts can and
there may be retention issues among NQTs employed as supply teachers. With one
in ten of the Welsh teaching workforce working as a supply teacher, and of those a
third have been in the profession less than five years, with just over a fifth not
having completed their induction year
19
, the pilot Project provided opportunity to
support NQTs to complete their induction year requirement and deliver ongoing
professional development.
16
Estyn (2013) The impact of teacher absence. p. 3-4.
17
Estyn (2013) The impact of teacher absence. p. 5.
18
Department for Education (2018) School teachers’ pay and conditions document 2018 and guidance on
teachers’ pay and conditions.
19
Education Workforce Council (2016) An analysis of registered supply school teachers. p. 2-5.
14
3.5 The Taskforce report made a number of recommendations in light of the issues
highlighted above including one related to the development and trialling of a
regional collaborative model for the delivery of supply teaching. Such an approach
was viewed as having the potential to address some of the specific difficulties
experienced in a number of areas by deploying recently qualified supply teachers in
clusters of schools to meet the demand for absence cover (planned and unplanned)
often at short notice.
3.6 There are also wider policy developments within Wales which run alongside this
pilot Project. The powers to determine Teachers’ Pay and Conditions were formally
transferred to Welsh Ministers in September 2018. In July 2019 the Minister for
Education announced an increase in pay for newly qualified school teachers from
September 2019, as well as an increase for all other school teachers
20
. This
followed recommendations made by the Independent Welsh Pay Review Body
aimed at raising the status of the profession and supporting the recruitment and
retention of high-quality teachers and leaders
21
.
3.7 Another current priority for the Welsh Government is the work of the Managing
Workload and Reducing Bureaucracy Group, which is looking at managing
workforce well-being and workload
22
. This Group’s priorities are to develop a
workload and well-being toolkit for the school workforce, to promote reducing
workload resources, to develop training models and exemplar case studies and to
carry out a sector-wide audit.
3.8 In May 2019, the Fair Work Commission’s report Fair Work Wales was published.
The report made a number of recommendations relating to Welsh Government’s
role in the fair work agenda
23
. Welsh Government will now be establishing a Social
Partnership and Fair Work Directorate to drive forward fair work in Wales.
3.9 This pilot Project reflects the ambitions of the above policy developments, working
to ensure the education workforce (including supply teachers) is provided with
20
Announcement of teacher pay rise as teacher pay devolved to Wales - July 2019
21
Independent Welsh Pay Review Body, First Report – 2019
22
Plenary Statement 11 June 2019
23
Plenary Statement 7 May 2019
15
opportunities for fair work, effective well-being and workload support and a
minimum standard for professional learning provided for supply teachers.
Project objectives
3.10 Welsh Government identified broad outcomes of interest relating to the extent to
which the pilot Project:
Implements alternative and innovative arrangements that address school
absence cover (planned and unplanned absence);
Supports NQTs in short term supply roles in terms of professional development
and retention;
Aids efficiencies, evidence added value and potential cost savings against the
school;
Promotes best practice in collaboration and joint working across school clusters.
Approaches used to provide supply cover in cluster schools prior to the
Project
3.11 Cluster schools commonly used external supply agencies to address their supply
needs. In some cases, cluster schools had built positive relationships with particular
supply agencies to facilitate the process. Some cluster schools also commonly used
various internal supply options to address their supply needs. In particular, smaller
primary schools were more likely to use internal cover exclusively, due to these
schools not having a dedicated external supply budget. Internal supply options
commonly included the use of cover supervisors and Higher Level Teaching
Assistants (HLTAs). Insurance was also available to cluster schools in certain
circumstances (such as when staff absence extended beyond five days) and one
cluster had developed its own internal insurance mechanism. Yet it is important to
note that schools’ insurance policies varied. The survey completed by other cluster
schools provides an overview of approaches used by some of the schools to cover
absence (see Annex B).
16
3.12 Cluster schools reported that, prior to the commencement of the Project, they were
facing a number of common challenges linked to supply, most notably: the rising
costs of supply cover, particularly when school budgets are under pressure; the
reduced quality of teaching provided through supply cover; challenges accessing
specialised supply such as Welsh-medium supply teachers or supply teachers
experienced in supporting pupils with additional learning needs, (see Case studies 2
and 4 for further discussion on this issue) and the burden of spending time on
supply management instead of on other school priorities.
3.13 Many clusters were able to build on previous partnership working and collaboration
(such as collaboration on transition or school improvement, or a shared attendance
officer) however this prior partnership working did not include joint approaches to
supply cover.
17
4. Management and delivery
4.1 This section discusses the management and delivery of the Project, including initial
engagement and recruitment; delivery models; and monitoring and evaluation.
Engagement and recruitment
Key findings
Local authorities were informed about the Project in July 2017.
Some schools facing particular supply challenges were targeted.
Recruitment of supernumerary teachers took longer than anticipated for some
clusters.
Some clusters were unable to access the full 100 per cent funding for the full
first year, due to delayed start.
Some supernumerary posts required re-advertising when teachers secured
permanent jobs during the Project.
4.2 The timeline for the announcement and implementation of the Project is
summarised in Figure 4.1. The Welsh Government invited local authorities to submit
expressions of interest in taking part in July 2017. Subsequently, local authorities
informed clusters about the Project, in some cases targeting schools they were
aware faced particular supply challenges (e.g. accessing Welsh-medium supply
cover) or identifying clusters deemed to be well-placed to deliver the Project.
However, an initial delay to the start date of the Project (with schools able to start
recruiting only in the autumn) resulted in clusters initiating recruitment processes a
few months into the 2017-18 academic year. As a result some clusters were unable
to access the full 100 per cent grant funding for the full first year of the Project.
18
Figure 4.1: Timeline of cluster engagement with the Project
19
4.3 Recruitment took longer than some cluster lead schools had anticipated, with
repeated rounds of advertising before appointing supernumerary teachers in some
cases. Schools reported receiving fewer applications than expected for the
supernumerary posts (based on previous recruitment experience), which some
attributed to the time of year. In some cases this led to delayed start dates. Cluster
lead schools reported that greater lead-in time would have been helpful, as well as
the opportunity to recruit for the start of the academic year.
4.4 A minority of supernumerary teachers secured permanent positions (either within
the cluster or elsewhere) during the pilot period. In each case, clusters have re-
advertised and have not faced many challenges in replacing these supernumerary
teachers. Although clusters report that re-advertising and recruit anew to these
posts has disrupted project delivery, schools also recognise that providing a route
into full-time teaching posts is a measure of the Project’s success.
4.5 All clusters outlined their anticipated outcomes for the Project, with some clusters
identifying national/regional priorities that the Project would help support, including:
The development of the Curriculum for Wales
24
;
Contributing towards establishing a self-improving school system;
ALN transformation programme
25
;
Providing support for More Able and Talented learners;
Reducing the attainment gap.
4.6 For other clusters, proposed outcomes supported school-based or cluster-wide
priorities, such as:
Building capacity across the cluster;
Cost savings for supply cover;
Continuity of provision through the deployment of supernumerary teachers;
Improved learner outcomes – progress, attainment, literacy/numeracy/digital;
Improved school-to-school working – collaboration, sharing good practice;
Improved quality of teaching;
24
Welsh Government (2019) Curriculum for Wales 2022
25
Welsh Government (2017) Additional learning needs (ALN) transformation programme
20
Enhanced professional development of supply teachers;
School Development Plan (SDP) priorities;
Staff wellbeing;
Sustainability.
Delivery models adopted by the clusters
Key findings
The number of schools and supernumerary teachers in each cluster ranged
from one to ten.
Clusters welcomed the flexibility and autonomy they had to design and
implement the Project.
The different delivery models adopted by clusters;
o Block timetable (half or whole term in each school)
o Fixed weekly/fortnightly timetable in several schools
o Flexible timetable according to demand
o Combination of flexible and fixed
4.7 A range of delivery models was adopted by clusters, with a range in the type of
school that have served as cluster leads (i.e. clusters have been led by primary,
secondary, middle and special schools). As illustrated in Table 2.1 the configuration
and structure of each cluster also varied. The number of both the schools and the
supernumerary teachers in each cluster ranged from one to ten. Figure 4.2 provides
an overview of the structure of each pilot cluster.
4.8 Welsh Government gave clusters flexibility regarding the approach they took for the
Project, the number of supernumerary teachers to be employed and the number of
schools which would form the cluster. This autonomy was welcomed by cluster
leads and the other headteachers in the clusters, with the diversity of approaches
adopted by clusters reflecting this. The delivery model of each pilot cluster was
decided by cluster leads and other cluster headteachers during the design stage.
Key decisions included:
Who would manage and mentor the supernumerary teacher/s;
21
How would the supernumerary teacher/s be shared between the cluster schools
(proportion of time in each school and timetabling approach e.g. set blocks in
each school or weekly timetable); and
What type of cover would the supernumerary teacher/s be providing (e.g.
sickness or for planning, preparation and assessment time (PPA)).
Figure 4.2: The structure of each of the pilot clusters
22
4.9 Clusters adopted a range of approaches and, following feedback from
supernumerary teachers and cluster schools, a couple of clusters altered their
approach for the second year. It is possible to identify four different models based
on the timetabling approach clusters used for the supernumerary teachers;
1. A block timetable, based on supernumerary teachers spending a half term or
whole term in each cluster school
2. Fixed weekly or fortnightly timetable in several cluster schools
3. Flexible deployment, led by demand from the cluster schools
4. Combination of fixed and flexible approaches
4.10 Block – half or whole term timetable. Some of the clusters allocated the
supernumerary teacher to each of their cluster schools for a term, with the teacher
teaching in the smaller cluster schools for half a term. This approach proved useful
for one cluster (see Figure 4.3), as the supernumerary teacher was able to observe
teaching and behaviour management in the larger cluster school at the beginning of
the process, before spending at least a half term in each of the other cluster
schools. Another cluster only applied this approach at the beginning; following a
week of preparation time, the supernumerary teacher taught each Year 7 class for a
week, using more of a ‘primary teaching approach’ to support learners’ transition to
secondary school. This meant that the secondary school received their full
allocation of supernumerary hours at the beginning of the Project. However, as
movement between the cluster schools was less frequent for the supernumerary
teacher, sharing of practice and collaborative work was less apparent over the short
term.
23
Figure 4.3: Example of block timetable
Powys Cluster
Allocation
Management
6 schools
1 teacher
All rural/semi-rural primary schools
The teacher was allocated to each
school in the cluster for a full term
each, but with the two smaller schools
sharing over a term. The first term was
spent in the larger school, observing
teaching and behaviour management to
‘develop ground rules as to what was
acceptable’, this was then transferable
to the other cluster schools.
4.11 Fixed weekly or fortnightly timetable. Pilot clusters that allocated supernumerary
teachers using a fixed timetable assigned teachers to cluster schools for an agreed
number of days each week or fortnight. The teacher’s role at a school could vary;
teaching the same class each week or covering some regular classes with other
time allocated according to the need in the school at the time (e.g. sickness cover,
staff professional development). Adopting this format allowed clusters to release
staff on a regular timetable to work on school-level priorities or for PPA time. This
model also allowed the supernumerary teachers to deliver specific projects to all
cluster schools on a regular basis e.g. STEM (Science, Technology, Engineering
and Mathematics) or PE (Physical Education) focused cluster projects. Even where
clusters adopted a more flexible approach based on demand, some cluster schools
chose to request the teacher for the same day each week (or similar), to help them
maintain momentum and consistency in classroom teaching. An example of this
approach is provided in Figure 4.4.
For her first staff
meeting at each school
we wanted to learn
about what she had
been doing, what had
she seen? And what
did she think worked
well? (Cluster lead)
24
Figure 4.4: Example of fixed timetable
Carmarthenshire
Cluster
Allocation and role
Benefit of the model
7 schools
3 teachers
Each teacher had a regular
timetable, teaching in two or
three schools each week. Cover
was provided for management
duties, INSET, transition projects,
triad working and sickness
absence. For example one
teacher focused on PE, and
delivered sessions in the primary
schools and organised events at
the secondary school.
4.12 Flexible according to demand from the cluster schools. A further model used less
frequently by clusters was a flexible model, allowing cluster schools to book
supernumerary teachers’ time as and when they were needed to provide cover.
This model was usually administered either through an online booking calendar
(see Figure 4.5) or through a central administrator in the cluster lead school. This
model lent itself to short-notice cover (such as sickness absence) but was also used
to book supernumerary teachers’ time ahead of time and/or on a regular basis. As
such, this flexible model could still be used in much the same was as a fixed
timetable if cluster schools chose to book supernumerary teachers’ time on a
regular schedule. Clusters found that this approach could effectively meet the needs
of cluster schools as they arose but could potentially be more burdensome to
administer. Equitable division of the supernumerary teachers’ time between cluster
schools needed to be monitored within this model.
Figure 4.5: Example of flexible timetable
Pembrokeshire Cluster
Allocation and role
3 schools 3 teachers
The secondary school had the administrative capacity
to manage the project. Time between the schools was
allocated according to pupil numbers. An online
booking calendar through Hwb was used for planned
cover, with teachers re-allocated when an emergency
cover was needed.
Without the project we
would have had much
less school self-
evaluation and
monitoring going on;
this year we have been
able to do more than we
usually do.
(Cluster lead)
25
4.13 Combination of fixed and flexible. Pilot clusters which used a combination of both a
fixed and a flexible timetable usually took one of two approaches: allocating each of
the supernumerary teachers a partial fixed timetable, with the remaining time
allocated flexibly to meet demands; and/or allocating a fixed timetable to one
supernumerary teacher and a more flexible timetable to another supernumerary
teacher. This model allowed regular release of staff to focus on school priorities
and/or PPA while maintaining an element of responsiveness to school needs. An
example of this model is provided in Figure 4.6.
Figure 4.6: Example of combination timetable
Blaenau Gwent Cluster
Allocation and role
5 schools 4 teachers
Within the learning community, teachers were used to
cover sickness absence and cross-phase activity in the
primary phase, and the teacher in the secondary phase was
allocated a partial fixed timetable in the learning resource
base (with the remaining time dedicated to sickness and
CPD (Continuing Professional Development) cover). In
other cluster schools, teachers covered for sickness
absence, PPA and transition activities.
4.14 Table 4.1 provides an overview of the common strengths and challenges associated
with the different models of delivery. Other strengths and challenges associated
with Project delivery relate more specifically to the nature of individual cluster
projects; for example, the teaching background of supernumerary teachers may
dictate which key stages they are comfortable covering, or a cluster school may
wish to use the supernumerary teachers primarily for sickness absence cover,
which may not be possible if the cluster as a whole is using a fixed timetable to
allocate their time. The survey of other cluster schools (see Annex B) also found
that the majority of schools found the deployment of the supernumerary teachers to
be satisfactory; for example, ‘all schools got a fair allocation of the supply teachers
and were able to build up good professional relationships with them’ (headteacher).
26
Table 4.1: The strengths and challenges of the different delivery models
Delivery model
Strengths
Challenges
Block timetable
Working relationships with staff
and learners developed
quickly.
Consistent procedures for
supernumerary teacher.
Less opportunity to share
practice between schools on
an ongoing basis.
Fixed
weekly/fortnightly
timetable
Class teachers released
regularly to focus on school
priorities.
Consistency for
supernumerary teachers and
learners.
Less flexibility to respond to
short-notice / emergency
cover needs.
Opportunity for NQT
observation/assessment with
regular classes.
Flexible timetable
Cover could be provided at
short notice.
Can be burdensome to
administer.
Monitoring of equitable share
needed.
Difficult to ensure NQT
induction requirements were
met.
Combination
timetable
Regular PPA cover provided.
Flexibility for emergency cover
available.
Ensuring opportunities for
NQT observations were
fulfilled.
27
Monitoring and evaluation
Key findings
Cluster leads reported the monitoring of the grant by the Welsh Government
was flexible.
Cluster leads reported that the monitoring requirements were proportionate to
the amount of financial support received.
Occasionally there were some challenges experienced by clusters in collating
monitoring data.
The end of year one reports varied in the level of detail provided by clusters.
A template and support were provided for the end of year two report.
4.15 Cluster lead schools were generally positive about the flexibility with which the
Welsh Government had approached the monitoring of the grant. While regular
monitoring was required, cluster lead schools generally reported that they and the
Welsh Government had approached the Project as a pilot, allowing clusters to act
flexibly and trial approaches while maintaining overall general monitoring.
4.16 On the whole, cluster lead schools found the monitoring requirements (in particular,
claim forms) proportionate to the amount of financial support received as part of the
Project. Clusters did face some challenges in collating and submitting monitoring
data on occasion, such as: ensuring data was gathered consistently from all cluster
schools; ensuring the way in which supernumerary teachers had been deployed
was logged appropriately; and ensuring school-level data could be translated into
claim form sections correctly.
4.17 Clusters were also required to submit end-of-year reports summarising the progress
and impact of their pilot project. There was no specific template for these reports
and so reports at the end of the first year were varied, with some clusters providing
a greater level of detail than others. Arad Research supported clusters with this
process (including providing a template) for the second end-of-year report.
28
5. Project outcomes
5.1 This section discusses the outcomes and impact of the Project. Specifically, it
reports on key findings relating to teaching and learning; wider school improvement;
cluster collaboration; impact on supernumerary teachers; and efficiencies and cost
savings.
Teaching and learning
Key findings
Cluster leads and other cluster headteachers reported that the Project has had
a positive effect on teaching and learning.
Cluster leads and other cluster headteachers reported that the positive impact
of the Project on teaching and learning stems from supernumerary teachers
being integrated into staff teams and providing consistency in teaching and
learning.
Over time supernumerary teachers have increasingly been given fixed
timetables or have taken on responsibility for classes on a more regular basis,
making a positive difference to pupil progress.
The Project has led to greater consistency of teaching, supporting the
emotional well-being of learners and providing a more stable and better quality
learning experience for pupils.
Supernumerary teachers have helped support effective transition and
progression of teaching and learning between key stages.
Clusters felt that having teachers work across primary and secondary schools
encouraged them to plan more strategically across phases, leading to benefits
to teaching and learning.
Supernumerary teachers have made a positive difference to behaviour by
becoming familiar with and applying schools’ behaviour management
approaches.
The Project has been used by some clusters to support ALN provision,
impacting positively on learners.
29
5.2 Cluster leads and other cluster school headteachers reported that the Project has
had a positive effect on teaching and learning. By becoming immersed in school life,
supernumerary teachers have come to understand schools’ teaching and learning
strategies and have supported their delivery. Cluster leads reported, quite early in
the Project, that the pilot Project had led to increased quality of teaching, compared
with supply teachers sourced through traditional supply routes. One school reported
that this had resulted in fewer complaints from parents about the impact of supply
cover on their children’s learning. Teachers whose classes were frequently covered
by supernumerary teachers were reassured that experienced teachers who
understood their pupils were delivering their lessons. One cluster lead noted:
‘Without this Project classes may have been covered by HLTAs or cover teachers
who are not familiar with the school, the learners or the data tracking systems. The
consistency has been hugely valuable’.
5.3 Cluster leads and other cluster school headteachers reported that the positive
impact of the Project on teaching and learning stems from supernumerary teachers
being integrated into staff teams and providing consistency in teaching and learning.
It was also reported that as supernumerary teachers become established in a
school or in several schools, their lesson planning and pedagogy improve. ‘The
most successful aspect of the Project has been the quality of teaching and learning
across the phases and standards as a whole’ (Cluster lead). Cluster leads valued
the fact that supernumerary teachers came to understand exactly what was
expected of them to become well-prepared and independent teachers. Cluster lead
schools also reported that the Project helped alleviate pressure on other teachers,
knowing that when they had to be away from their class that ‘learners were in safe
hands because the teacher had built relationships with the children, which is first
and foremost the most important thing’ (Cluster lead). Invariably, cluster leads and
headteachers in other schools compared the model favourably with other supply
cover arrangements.
5.4 During the second year of the Project, in particular, many supernumerary teachers
were given fixed timetables or took on responsibility for classes on a more regular
basis. Some clusters planned to use supernumerary teachers’ subject specialisms,
which has impacted positively on the quality of teaching and on learners’ progress.
30
This includes in Welsh-medium secondary schools, where supernumerary teachers
brought skills in specialist subject areas where there has traditionally been a
shortage of teachers. Indeed headteachers in participating Welsh-medium schools
– primary and secondary – reported continuing challenges in sourcing good quality
supply teachers. The Project has contributed towards filling a gap in this sector. The
Project has been seen as an investment in the quality of supply teachers, as well as
in capacity.
5.5 The Project has led to greater consistency of teaching, supporting the emotional
well-being of learners and providing a more stable and better quality learning
experience for pupils. On balance, evidence from across the clusters indicates that
the increased quality of provision delivered by supernumerary teachers has made a
difference to learners. This observation by cluster leads was provided early on in
the Pilot Project. A number of cluster leads recognised, however, that it is not
possible to make a direct link between the Project and learning attainment given the
range of other factors that impact on learner progress and outcomes. In some
clusters supernumerary teachers provided support for vulnerable learners and
learners with additional learning needs. This has made a difference as learners
transition into the next phase of education or as they prepare to transition into
adulthood and their lives after school. As a result of the additional capacity provided
through the Project, schools have been able reduce the student: staff ratio.
31
Importance of consistency for quality of teaching and learning
One cluster lead commented on the positive impact of having a consistent
supply teacher for the learners and other teaching staff in the school;
‘When we have had to have supply to supplement it [the cluster supply model],
the children’s learning hasn’t been as good. The children are happy to see a
familiar face and the children respond really well. When children are told that a
cluster teacher is covering a class they can go home settled as they know who
they have got. For children who find change stressful preparing them the day
before regarding who the cover teacher is, is very useful. Easy communication
between the class teacher and the cluster teacher means the cover teacher is
fully informed on issues that could impact the emotional well-being of the
children. The standard of work that children produce is much improved to
regular supply teaching and it is marked appropriately.’ (Cluster lead)
5.6 Supernumerary teachers have helped support effective transition and progression
of teaching and learning between key stages. Supernumerary teachers who have
worked in primary and secondary schools within a cluster have supported improved
planning of provision in Year 7 to enable better progression and avoiding duplication
of learning at the beginning of Key Stage 3. This has been achieved through shared
teaching and learning approaches and collaborative planning involving
supernumerary teachers and core staff teams.
Positive impact on transition: One supernumerary teacher was delivering
year 7 Science and discussed with one of the primary headteachers the skills
that the learners would need in year 7. As a result, some of the Year 6
curriculum was altered, this was welcomed in the primary school, particularly
when the relevance for learners’ progress to year 7 was taken into account.
(Cluster lead)
5.7 Cluster leads felt that having teachers work across primary and secondary schools
encouraged them to plan more strategically across phases, leading to benefits to
teaching and learning. In one example, some of the more vulnerable learners in
32
year 6 were identified and allocated to a supernumerary teacher’s tutor group for
year 7 the following year. ‘Parents were delighted when they saw that the member
of staff their child was going to be with was a teacher who already knew their child.
The learners were also delighted they were to have her as their tutor’. (Cluster lead)
5.8 Supernumerary teachers have made a positive difference to behaviour by becoming
familiar with and applying schools’ behaviour management approaches. Cluster
leads and other cluster school headteachers reported that the relationships formed
between supernumerary teachers and learners led to a reduction in instances of
poor behaviour. This was noted during the early stages of the pilot Project. Cluster
leads also reported that often pupils – particularly older pupils – will ‘test the
boundaries’ when agency-sourced supply teachers are brought in to cover lessons.
This has been less of an issue with supernumerary teachers: schools report there is
greater accountability built into the model (as a result of the teacher being based in
the cluster) and lessons have been more focused and beneficial.
5.9 The Project has been used by some clusters to support ALN provision, impacting
positively on learners. In some clusters, there was a specific focus on supporting
ALN provision. Case study 2 discusses the difficulties Special schools experience
when trying to recruit skilled personnel. Supernumerary teachers have been used to
provide additional capacity to support learners with ALN, both in mainstream
schools and in Special schools involved in the pilot. One Special school used the
Project to cover long-term sickness, providing ‘enormous stability and continuity to a
group of students who would have had rolling supply’. The headteacher in this
school noted the difficulties in finding a teacher through a supply agency with the
right skillset would have been ‘almost impossible’.
5.10 The Project has also led to increased capacity to deliver Welsh-medium ALN
provision in mainstream schools. Through the Project a specialist Welsh-medium
teacher has been released to work across Welsh-medium primary schools,
delivering targeted support to learners. The cluster lead estimates that, as a direct
result of this support, facilitated through the supply clusters pilot, six learners have
been retained in mainstream education who would otherwise have transferred to
special schools. The Project has therefore delivered cost savings by retaining
33
children in mainstream education
26
and enhancing Welsh-medium ALN in
designated Welsh-medium schools, supporting wider policy priorities set out in the
Welsh Government’s additional learning needs (ALN) transformation programme.
Wider school improvement
Key findings
It was common for cluster leads and other cluster school headteachers to
report that without this Project, they would have been unable to release staff to
the same degree.
Some cluster schools chose to release members of staff to focus on
progressing school improvement priorities.
Cluster schools also reported using supernumerary teachers to release staff
for planning / PPA purposes (particularly to support new curriculum and
assessment arrangements).
It was common for cluster schools to use supernumerary teachers to release
staff for professional development (either training courses or school-based
professional learning activities).
Cluster leads were often able to provide examples of the improvements they
had seen within their schools as a result of releasing staff for school
improvement purposes.
There were examples of the supernumerary teacher role directly supporting
school improvement priorities to a greater extent than external supply agency
teachers are able to do.
Cluster leads emphasised the positive impact such additional supply cover
can have on wider staff well-being.
5.11 Rather than using supernumerary teachers to cover short-notice sickness absence,
many cluster schools have tried to make purposeful use of the supernumerary
teachers’ time to gain added value from the Project. This has meant releasing staff
from classrooms to work on more strategic, whole-school improvement activities. It
26
It has been estimated that educating a child in a special school costs approximately £25,000 per annum.
34
was common for cluster schools to report that without this Project, they would have
been unable to release staff to the same degree.
5.12 It was usual for teachers who were released to be allocated particular tasks or
activities to focus upon, relating closely to priorities identified in the school
development plan. Other teachers were released to focus on particular projects,
such as regional collaborative projects. The Project thus provided added supply
capacity and the following are some examples of the ways in which cluster schools
released staff to focus on school improvement priorities include:
Allowing the literacy coordinator to review the school’s literacy provision;
Undertaking learning walks with a particular focus, such as on assessment for
learning;
Undertaking action research relating to school improvement areas;
Planning for improved moderation across the school;
Allowing senior managers to focus on improving evaluation and monitoring
systems across the school;
Allowing senior managers to focus on transition planning;
Establishing school-wide behaviour approaches; and
Supporting a regional formative assessment project.
Addressing school priorities
One cluster lead provided an example of how the Project supported the school
to improve standards; ‘As a school we have found the Project invaluable in
allowing us to provide quality cover immediately for staff illness. However, the
greatest value of the Project has been the ability for school to regularly (e.g.
weekly for [our school]) utilise [the supernumerary teacher] for internal
moderation and standardisation of work within school. This has allowed SLT
and subject leaders to continually monitor and raise standards of teaching and
learning.’ (Cluster lead)
5.13 Cluster schools also reported using supernumerary teachers to release staff for
planning / PPA purposes. This was highlighted as a particularly important element
of preparing the teachers and the school for the new curriculum and assessment
35
arrangements. Examples of the type of activities undertaken by teachers released
for this purpose included cross-curricular planning to meet the requirements of the
new curriculum and planning collaboratively with colleagues (for instance planning
in triads). This type of cross-curricular planning was reported as being challenging
to achieve when teachers are not able to be released from the classroom.
Supernumerary teachers also provided cover for wider PPA requirements which
would ordinarily have been covered through other supply mechanisms.
5.14 In addition, it was common for cluster schools to use supernumerary teachers to
release staff for professional development. This included releasing staff to attend
particular courses (such as training on ALN) as well as to allow them to focus on
their own professional development and professional standards. Examples of the
type of professional development available to teachers released in this way include:
Releasing teachers to address the new professional standards by working
collaboratively with colleagues; observing practice in areas where improvement is
needed; ensuring senior members of staff (such as headteachers) are not called in
to cover PPA time on a regular basis.
5.15 Cluster schools provided examples of the improvements they had seen within their
schools as a result of releasing staff for school improvement purposes. Such
examples include improved self-evaluation processes; establishing monitoring and
assessment processes ahead of time; improved planning for delivering the new
curriculum requirements; improvement in standards following an Estyn inspection;
and consistent leadership to progress key priorities.
36
Impact of the availability of additional cover
One cluster school had invested in ‘Thrive’ (a well-being support programme).
‘Well-being is a big agenda in our school, and there is a lot of work associated
with it and being able to release a member of staff to move those things forward
and knowing we have got scope to do that in an organised way – that we can do
it without there being a negative impact on the class – has been very important
for us’.
The staff were trained during the first year, but there was limited opportunity to
put into practice what staff had learnt from the training. The well-being lead has
been able to focus on that this year, and there is now a comprehensive package
available for pupils. As a result, the school ‘is getting the value out of the money
invested in the training and our pupils are getting the benefit of the expertise
that staff have developed’. (Cluster lead)
5.16 There are also examples of the supernumerary teacher role directly supporting
school improvement priorities to a greater extent than external supply agency
teachers are able to. For example, cluster schools on occasion have been able to
make best use of supernumerary teachers’ existing skillset and expertise to address
particular improvement areas (such as supporting nurture activities). On other
occasions, supernumerary teachers have been able to support extra-curricular
activities (such as residential trips), when external supply agency teachers are
usually unable to do so. Case study 3 provides an example of supernumerary
teachers supporting such priorities. Supernumerary teachers have also been able to
share learning with colleagues in different schools to support professional learning,
having observed teaching and learning in different settings. However, a minority of
headteachers responding to the cluster school survey noted that some
supernumerary teachers were unable to teach Foundation Phase, which limited the
cluster’s ability to meet their intended aims for the Project.
5.17 On occasion, cluster schools emphasised the positive impact such additional supply
cover can have on wider staff well-being. Without such supply cover, cluster schools
reported that teachers would commonly complete school improvement activities
37
(including evaluation activities) in their own time. This is seen to place an additional
burden on teachers who already face a heavy workload; ‘the most successful part of
the Project has been having a spare teacher to release the senior management
team to carry out their role more effectively. In the past, and next year, teachers will
be writing these monitoring reports in their own time, because I can’t afford to
release them – that has been the greatest benefit’ (cluster lead). The survey of
cluster schools also found that the Project had resulted in a positive impact on
workload for staff and other school priorities in some, but not all, cluster schools
(Annex B). Cluster leads and headteachers from other cluster schools also
occasionally commented during interviews that classroom teachers have also
benefitted from increased confidence in the cover available, knowing that they can
take time away from their classroom without detriment to learners’ education.
Cluster collaboration
Key findings
The Project has been effective in strengthening cluster collaboration.
Cluster schools shared effective management approaches.
Supernumerary teachers shared teaching and learning approaches between
cluster schools.
Successful collaborative cluster school projects were completed.
Teachers have been able to lead developments, and take on ownership and
responsibility for initiatives.
There has been a positive impact on transition processes for schools and
learners.
Increased motivation to engage in future collaborative working between cluster
schools.
5.18 The Project has been effective in strengthening collaboration between cluster
schools. Some cluster leads who commented that there was strong collaborative
cluster working before the Project reported improved collaboration. Effective
collaboration was evident from the planning stage; for example, once all the
headteachers in one cluster had agreed to apply for the grant funding, a smaller
cluster sub-group developed the submission. Occasionally cluster leads reported
38
that their collaborative working was strong prior to the Project and the Project had
not had any impact on this. A collaborative approach was undertaken to allocate the
supernumerary teachers’ timetables, and three quarters of the other cluster schools
responding to the survey agreed that the supernumerary teachers had been
deployed fairly, with the feedback they provided during cluster meetings informing
this. Having flexibility in the allocation of the supernumerary teachers was viewed
positively, with some clusters able to accommodate individual school requests to
alter when they received their share of the supernumerary teacher’s time.
5.19 Cluster leads and other cluster school headteachers reported that the clusters
discussed the management and delivery of the Project regularly and communication
between schools was effective. The frequency of meetings between cluster schools
varied widely, with some arranging meetings every half term and others meeting
termly. In some cases, the Project was an agenda item on monthly cluster
meetings. One cluster lead commented that even though they work with other
schools ‘unless you have a specific reason to meet, sometimes you can go weeks
without meeting and this [the Project] has almost created an official calendar that
we have to meet as we have to fulfil certain obligations and as a result other things
are added to the agenda and discussed’.
5.20 Some cluster leads reported that cluster schools shared effective management
approaches and tools throughout the Project. For example, an online calendar was
used to oversee the allocation of the supernumerary teachers, with the calendar
easy for the supernumerary teachers and the different schools to access, the cluster
discussed in Case study 1 used this tool effectively. This approach also meant that
supernumerary teachers had access to their timetable in advance. Having a single
member of staff, usually at the cluster lead school, as the main point of contact for
supernumerary teachers was also effective and ensured clear communication. The
approach used to share information online during the Project has been used to
share other collaborative documents within one cluster. For example, School
Development Plans, and the Cluster Improvement Plan was developed
collaboratively using the same online platform.
39
5.21 Supernumerary teachers shared teaching and learning approaches between cluster
schools. The sharing of practice and ideas, such as approaches to the new
curriculum, behaviour management strategies, approaches to support learners or
specific curriculum delivery ideas were viewed by headteachers as positive
outcomes to emerge from the Project. One cluster school headteacher commented
that the supernumerary had taken ‘best practice and strategies back to the other
school and added value to them’.
Sharing effective practice
One cluster lead commented on an example where the supernumerary teacher
observed a child struggling to build sentences independently. The teacher
recalled seeing a programme delivered at one of the other cluster schools on
building sentences in a systematic way; this was then used to support the child.
It proved successful, and the child is continuing to use the programme. (Cluster
lead)
5.22 Successful collaborative cluster school projects were completed during the Project.
Cluster projects have been directly supported by supernumerary teachers delivering
activities across cluster schools, or by the supernumerary teachers providing the
cover of lessons needed for other teachers to complete such activities, attend
meetings or training in order to progress a cluster project. Examples of such
projects include:
Areas of Learning and Experience meetings to inform the development of the
new curriculum.
Humanities – main class teachers taught alongside the supernumerary teachers
for a term, also providing the opportunity to withdraw small groups of learners to
focus on specific elements of the project.
Maths curriculum development – all supernumerary teachers attended training
and have had input across all cluster schools into the development of a
consistent maths curriculum across one cluster
More Able and Talented training
Restorative Justice training
40
Shared attendance officer
Shared Welsh teacher
Sharing behaviour and learning management approaches across phases
resulted in a better understanding of the approaches for one cluster
STEM – the supernumerary teachers assisted class teachers to deliver a half
term project, which culminated in a presentation attended by all the cluster
schools
5.23 Activities initiated by the Project have helped ensure that collaborative working is
becoming an increasingly integrated part of how schools plan and deliver,
supporting wider school-to-school working. Teachers have had the time to lead on
developments and take on ownership and responsibility. However, one
supernumerary teacher’s poor attendance record limited the progress one cluster
was able to make against the cluster’s objectives.
5.24 The Project has had a positive impact on transition processes for schools and
learners. The Project has enabled collaboration between schools that has
supported schools’ transition activities. Supernumerary teachers working across
phases were able to develop longer term relationships with year 6 learners and the
‘familiar face’, and consistency in approach to behaviour and learning supported
effective transition to the secondary phase. A couple of clusters reported specific
transition projects developed as a result of the grant funding; for example, PE
lessons were delivered to all primary cluster schools, with activities also held at the
secondary school.
41
Future collaborative working – Having established a shared behaviour officer
for the cluster recently, the Project has meant that the cluster schools are talking
more about their teaching and the structure of their schools. Discussions are
taking place about the possibility of ‘pooling HLTAs’ – this would not have
happened without the Project. (Cluster lead)
As a result of the Project the cluster is sharing teaching assistants, this means
experience, expertise and teaching methods are shared between schools. For
example, one completes all the English as an Additional Language (EAL)
assessments for the cluster and experienced Autistic Spectrum Disorder (ASD)
staff from across the cluster came together to develop a consistent approach for
all the cluster schools – ‘all the capacity to be able to lead and manage this has
come from being able to release some of the staff in the primary schools to
focus on these priorities’. (Cluster lead)
‘If it can work with supply, why can’t it work with ALN? Why could it not work
with PE or attendance?’ (Cluster lead)
5.25 The motivation to engage in future collaborative working between cluster schools
has increased. One cluster lead noted that the Project has helped to increase the
pace of development for the cluster to work collaboratively, with another reporting
that delivering the Project had instigated more discussion regarding ‘what the
cluster want to do [collaboratively] and how they can achieve it’. This particular
cluster confirmed that there is now an effort to deliver joint staff training, and
opportunities such as proposed visitors into schools, are shared more with other
cluster schools now.
42
Supernumerary teachers
Key findings
The Supernumerary teachers benefitted from the development of their skills,
competence and confidence.
A range of professional development opportunities were delivered to
supernumerary teachers.
Supernumerary teachers benefitted from the consistent mentor support
received for their NQT induction.
Many supernumerary teachers completed their NQT induction.
Occasionally, a lack of consistent, regular teaching in classes to allow for the
preparation/evaluation element required to achieve the NQT induction was a
barrier.
Several teachers gained permanent employment.
The pay and conditions associated with the role were considered better than
for regular supply work.
Several supernumerary teachers’ contracts were extended.
Development of positive relationships with the wider school community has
been an additional outcome.
Benefits experienced by supernumerary teachers
5.26 Supernumerary teachers have benefitted from the development of their skills,
competence and confidence whilst undertaking their role in the Project, particularly
through the experience of teaching different age groups, in a range of schools with
varying pedagogical approaches. One cluster lead commented ‘the supernumerary
teacher’s confidence has grown, although she was always confident about planning
lessons, this has definitely improved. She has taught across all years and covered
for sickness, PPA and moderation. She has built a strong skill base, due to the
experience in the different schools and she is able to address any challenges
regarding ALN/ behaviour with a lot less support now’.
43
5.27 A range of professional development opportunities have been delivered to
supernumerary teachers during the Project. CPD has been provided within the lead
school and also in schools across the cluster. The frequency of training varied and
has included: specific NQT training; weekly PPA sessions at the lead school;
weekly twilight INSET sessions; whole school staff training days (where
supernumerary teachers have felt included as part of the staff team); opportunities
to observe other members of staff; and individual training courses booked to
support NQT induction. The range of training provided has addressed both
individual teacher requirements as well as school development targets such as
pedagogy / teaching approaches / implementation of the new curriculum.
Supernumerary teachers considered that the professional development
opportunities were an important aspect and benefit of the role, particularly having a
consistent school mentor. Headteachers also underlined the importance of having a
designated mentor working across the cluster able to organise and coordinate CPD
activities and support for NQT supernumerary teachers. The evaluation found that it
was perceived by cluster leads and supernumerary teachers that the regular and
structured CPD had a positive impact on the quality of teaching and professionalism
of supernumerary teachers. In a small minority of cases, supernumerary teachers
felt that the support available from mentors was less consistent and attributable to
poor communication between schools across the cluster.
44
Positive professional development experience
One supernumerary teacher described the varied professional development
opportunities they had received. This included training during regular PPA
periods on differentiation in teaching methods, supporting EAL learners and
well-being. This differed greatly from their experience of working as a supply
teacher as they now feel well supported and ‘there is someone to ask’.
‘There’s a whole group of people you are going through your NQT stuff together
and that wasn’t the case before – you were on your own. In addition to the team
of supernumerary teachers there are also all the other NQTs at the school.’
(Supernumerary teacher)
‘It would be good for every teacher coming out of college to do this or have a
similar experience (to that of supernumerary teachers through this Project) – I
think it almost provides an apprenticeship experience for new teachers and
gives teachers an insight into four, five, six different schools. It gives a rich
experience and dovetails well with what people are trying to achieve through the
curriculum and the emphasis on school-to-school working.’ (Cluster lead)
5.28 Supernumerary teachers have benefitted from experiencing a range of approaches
to CPD across clusters. This has enabled them to draw on and apply different
strategies and methods across the schools they’re working in. Case studies 1 and 4
illustrate the sharing of practice between cluster schools. As one supernumerary
teacher commented; ‘I have been given a range of opportunities throughout this role
and across the three schools within the cluster. I have a greater depth of
understanding of ways of implementing the four purposes of the curriculum for
learners through undertaking a wide range of cross-curricular lessons based on
real-life authentic contexts’.
45
5.29 Thirty-eight supernumerary teachers
27
completed their NQT induction while
employed in schools as part of the Project. Supernumerary teachers explained they
often received additional support from the school to provide them with opportunities
to address the necessary elements to complete the induction. For example,
enabling the teacher to undertake several lessons within the same class to plan a
sequence of lessons. NQTs have also benefitted from experiencing strategies and
policies that are common across the cluster with opportunities in some instances for
supernumerary teachers to share planning, preparation and assessment time with
other members of staff/supernumerary teachers. Teachers also highlighted the
challenge of access to CPD and NQT support when working as a daily supply
teacher and the difficulty in addressing required elements of the practising teacher
standards (such as planning a sequence of lessons or discussing pupil progress
with parents) in contrast with the support received in their supernumerary role.
Facilitators and barriers experienced by supernumerary teachers during the Project
5.30 Supernumerary teachers benefitted from the consistent mentor support they
received for their NQT induction, and the facilitated opportunities to complete the
required lesson planning/preparation/evaluation. Cluster leads attributed
improvement in the quality of teaching from supernumerary teachers during the
Project to the consistent support and monitoring of progress they received from
school and external mentors. Cluster schools noted the higher standard of
experience and quality of teaching provided by the NQTs improved during the
course of the Project supported by the consistent monitoring of progress by school
and external mentors. One supernumerary teacher noted, that in addition to CPD
there is the ‘support from the mentor to complete NQT information required by the
EWC’. The teacher was very positive about the whole experience and struggled ‘to
see a downside’ other than aspiring to have their own class to teach.
27
Note that the pilot Project was for teachers in the first three years of their career, as a result some had
already completed their NQT induction year prior to being employed as a supernumerary teacher. Only one
teacher failed to complete the induction year, due to a poor attendance record and the resulting lack of
observation opportunities.
46
5.31 Adequate NQT and PPA time was provided in most instances but on occasion it
was difficult for clusters to ensure an appropriate workload for NQTs to meet the
induction standards. A lack of consistent, regular teaching in classes to allow for the
preparation/evaluation element required to complete their NQT induction was also a
barrier on occasion. Some supernumerary teachers had reported this as a barrier to
completing their NQT induction year while on supply, resulting in NQTs taking
longer to complete this due to the lack of opportunities to plan, prepare and
evaluate when working for supply agencies on daily supply. Also, a minority of
teachers reported that their time and skills could have been used more effectively
e.g. if they had a particular subject specialism. It was also noted that some schools
found it a challenge to provide additional NQT support for the supernumerary
teacher (such as NQT time and CPD) which was considered an additional demand
on schools not ordinarily required when employing a supply teacher on a day to day
basis: ‘Even though NQTs are supported in schools by a mentor it is really hard to
give the NQT the amount of time that they need.’ (Cluster lead)
5.32 NQT requirements and induction support could be built into the model e.g. plan for
blocks of teaching when allocating the supernumerary teacher’s timetable class
support /deliver a specific intervention/ work on a specific school priority. One
cluster lead commented that ‘It is important that there is some element of teaching
responsibility on their timetable, so that they are able to fulfil planning, feedback to
parents etc. requirements for their NQT year.’
47
Mentor support
One supernumerary teacher commented on the important role their mentors had
on their opportunities, activities and success;
‘Personally, I have had excellent mentors throughout the process who have
always been supportive and have allowed me to develop the areas we both felt
needed to be developed such as developing my use of Welsh in all lessons. We
researched ways to do this together and I developed Welsh mats with phrases,
and I was able to observe other teachers. I was encouraged to go on the NQT
courses run by the local authority and attended the ones I felt would develop my
practice further. I have had two mentors throughout my NQT year, one who was
a primary specialist and one who was a secondary specialist. This has given a
breadth of knowledge across phases.’ (Supernumerary teacher)
5.33 Twenty-seven teachers gained permanent employment while undertaking the
supernumerary role and commented that they had increased confidence due to the
experience of teaching a range of age groups in different schools alongside their
CPD. Schools have consequently had to re-advertise the supernumerary role.
However, one headteacher viewed this as a positive outcome and a measure of the
Project’s success as it demonstrated ‘the calibre of the supernumerary’s teaching to
have moved on to a permanent position’.
5.34 Supernumerary teachers were positive about the pay and conditions associated
with the supernumerary role, and welcomed the recognition of their professional
status, with the consistency and stability of the role regarded better than day to day
supply teaching.
5.35 The supernumerary teachers have benefitted from the variety of experiences
provided within each different delivery model. Part of their day-to-day roles has
involved teaching in multiple schools in varying catchments across the cluster and a
range of different classes/subjects within the school, as well as teaching a specific
class regularly and experiencing the benefits of independent planning, progression,
differentiation and assessment. Supernumerary teachers have also had experience
of implementing school policies such as behaviour management strategies; working
48
and sharing their skills/practice with colleagues helping them develop versatility of
approach while also demonstrating their attainment of professional teacher
standards.
5.36 Many supernumerary teachers have taught across phases; Foundation Phase/Key
Stage 2/Key Stage 3, and have had the opportunity to support transition between
primary and secondary schools seeing progression between year groups and
experiencing a different pedagogical approach to subjects. One supernumerary
teacher commented ‘working across the key stages is such a massive benefit, being
able to teach across all the key stages and understand what happens in the infant,
junior and secondary school. I think that is such a massive experience and I think
every teacher should have the opportunity to know that’.
The future for supernumerary teachers and additional outcomes for the Project
5.37 Some teachers wanted to continue working within their current/lead school or within
the cluster and felt they were in a better position to apply for these jobs knowing the
pedagogical approaches across the cluster as well as the experience and training
gained to support their application. One supernumerary teacher commented that
she intended to find a permanent role either in this cluster or another cluster and felt
she would be in a good position to gain a permanent role as she was able to
network with other schools and members of staff as a supernumerary teacher.
5.38 The supernumerary contract was extended for 14 teachers and they will continue in
the role until 2020, reasons for this included clusters that decided to self-fund the
Project for the third year and others where they have been provided with financial
support from the local authority (Section 6 discusses the future sustainability of the
Project in more detail). Other teachers noted that they would have welcomed the
opportunity to be able to continue in the role. Nevertheless, some teachers
explained they would like to move on to experience teaching their own class and felt
they had developed the skills to do so as part of the supernumerary role, adding
that their opinion of teaching was more positive since undertaking the role.
49
Employment
One cluster lead reported on the success of the Project with four supernumerary
teachers completing their NQT induction process and the employment
opportunities secured by the supernumerary teachers.
‘The secondary school supernumerary has gained a one year fixed-term post at
the school. Another supernumerary has gained a job in another school and
another has gained a job in a [third sector] community engagement project,
supported by their experience of working across the cluster. Only one
supernumerary has yet to find a new role. They have benefitted from regular
work within the classroom, experience of engaging with parents, participating in
regular trips, accessing relevant CPD.’ (Cluster lead)
5.39 Development of positive relationships has been an additional outcome of the Project
with supernumerary teachers commenting that the regular work in schools enabled
them to ‘get to build a relationship with’ the school and feel part of the school team
including teachers and pupils. Teachers had opportunities during PPA/NQT time to
collaborate with other supernumerary teachers or NQTs and share continuity of
approaches and good practice experienced across the cluster. ‘Since the
supernumerary teachers are permanently based in the cluster, they have been able
to develop an understanding of key improvement areas within the [cluster], school-
level objectives and policies, have been party to school-level reviews, have
experienced an Estyn visit and have benefitted from appropriate CPD.’ (Cluster
lead)
5.40 The consistency of the role enabled supernumerary teachers to feel part of a school
community, provided recognition of professional status as a teacher and they felt
they were a valued member of a wider team of staff, pupils, parents and the wider
community. One cluster lead explained ‘she is noticing how the respect of the
children towards her has improved in the cluster schools as they know her, so she
feels this has a positive impact on children with behavioural difficulties and for her
personally. Also members of staff such as LSAs (Learning Support Assistants) have
50
said how pleased they are when she has returned to the class – she feels accepted
as part of the school team.’
Efficiencies and financial benefits
Key findings
There is some evidence that the Project has supported efficiencies in supply
management.
Using supernumerary teachers placed fewer demands on colleagues’ time.
£2.7 million grant fund was available, with £1,296,294 grant claimed (Nov
2017 - March 2019).
Teachers employed through the Project have covered just under 30 per cent
of all teacher absence across participating clusters: 22,242 was the total
number days requiring cover in cluster schools, with 6,539 of these days
covered by supernumerary teachers.
There are inconsistencies and gaps in data schools provided.
Alongside cost savings, the pilot Project has provided added value to cluster
schools which is challenging to quantify; allowing them to release staff to work
on school improvement priorities.
5.41 There is some evidence that the Project has supported efficiency in supply
management. Clusters who normally use external supply agencies to provide some
of their supply cover were able to reflect on the time and resource benefits to using
regular supernumerary teachers. Cluster schools reported that using
supernumerary teachers reduced the time that their regular staff spend on
administrative tasks. For example, staff would normally need to commit time to
introducing external supply teachers to the school environment (including basic
steps such as giving directions) and explaining school policies (such as behaviour
policies), whereas supernumerary teachers are familiar with these policies.
Teachers would normally need to commit time to preparing work to leave for
external supply teachers to use with their classes (occasionally leading to less
meaningful activities being led by the supply teachers) whereas supernumerary
teachers are familiar with lesson plans and/or can deliver their own lessons.
51
5.42 One approach to identifying the cost efficiency of the Project is to compare the total
Welsh Government grant amount claimed by clusters to date, with estimates of the
financial value of the number of supply days covered by supernumerary teachers. A
total of £2.7m was available from the Welsh Government for this pilot Project; the
actual total is likely to be lower than this by the end of the Project, partly due to the
fact that the Project could only start in most clusters from the second term of the
first year, due to the decision to not disrupt the normal job market. When the Project
grant was calculated it was based on a projected spend which assumed all teachers
recruited would have three years’ teaching experience, which would result in them
being higher on the teacher pay scale, but in effect many were recruited directly
from their teacher training course and paid at a lower grade. In addition, some
clusters faced challenges in recruiting the anticipated number of supernumerary
teachers.
5.43 Table 5.1 provides an overview of the comparison of cost to deliver the supply cover
from the start of the Project until the end of March 2019.
Table 5.1. Overview of the cost comparison to provide supply cover
Total grant available
£2,700,000
Amount claimed (Nov 2017-March 2019)
£1,296,294
Total number of absence days requiring cover
22,242
Days covered by supernumerary teachers
6,539
Estimated cost of using external supply agencies
to cover the absences covered by Project
supernumerary days
£902,382 – £1,078,935
28
This comparison suggests that the grant funding has been used fairly effectively for
supply cover, but that there will also be other overheads, such as the requirement
28
The lower figure is based on the average day rate clusters pay for supply agency teachers, based on information
provided in Project claim forms - £138. The higher figure is based on a Welsh Government rate paid to release teachers
for the Welsh Language Sabbatical Scheme, a national teacher training programme for Welsh language - £165.
52
for non-teaching time (PPA) associated with the employment of a supernumerary
teacher. These figures will be updated for the follow-up evaluation report to be
produced in 2020, using figures provided by clusters in claim form 6 (April – August
2019), which at the time of writing have not all been submitted to the Welsh
Government.
5.44 However, these figures do not necessarily provide a full account of the way in which
supernumerary teachers have been allocated during the Project. Firstly, there are
some weaknesses and gaps in the data provided within cluster claim forms; for
example, some clusters have interpreted the requirements of particular questions a
little differently, leading to some inconsistency in data. Secondly, not all cluster
schools would have been paying for external supply agency teachers to meet their
cover needs, instead using internal supply options instead (such as HLTAs). Thirdly,
the Project has provided added value to cluster schools by allowing them to release
staff to work on school improvement priorities; releasing these staff so regularly
would have otherwise been difficult or impossible, without the funding to cover staff.
However, this also means that there are limitations to any conclusions relating
directly to the overall value of supply cover provided by the supernumerary teachers
compared to Welsh Government and cluster financial input, and previous supply
systems. This means that the Project has allowed cluster schools to benefit from
additional supply cover which they would not necessarily have accessed without the
project; their use of supernumerary teachers does not therefore necessarily reflect
usual supply requirements. The supernumerary teachers have, in other words,
provided additional capacity for schools to undertake desired activities. One cluster
lead summarised this added value within their Project claim form:
‘In essence, because [the supernumerary teacher] has worked for 71 days
across the two schools covering absent staff, the total…equates to 71 days
multiplied by £150 daily rate as both schools use a recruitment agency which
charges this daily rate. However, neither school has had any sickness absence
and it is questionable whether the activities that [the supernumerary teacher] has
covered staff to perform, though incredibly valuable, would have been covered in
this way without the project due to tight budgets. Historically schools have found
other ways to cover staff or alternatively, there has been an expectation that staff
53
engage with these activities at the end of the teaching day. This will detract from
the quality of the work and this has been noted in previous reports.’ (Cluster
claim form)
5.45 As a closing point, it is important to note that the Project has delivered efficiencies
and improvements to teaching and learning that cannot easily be quantified but
which, nonetheless, are important to bear in mind. These include investments in the
quality of the supply teaching workforce, recognised by cluster leads and other
cluster school headteachers as a key outcome of the Project. The Project has
resulted in enhanced capacity to deliver provision to a number of target groups,
including learners with ALN providing evidence that targeted approaches in the
future may result in similar outcomes. As noted in an earlier section of this report,
Project activity has enhanced ALN provision in Welsh-medium schools in one local
authority area, resulting in learners being retained in mainstream education as a
result, according to cluster representatives. There are substantial financial savings
through such outcomes. The Project’s impact on teacher workload and morale has
also been noted and although this is also impossible to quantify it demonstrates the
Project’s wider impact.
54
6. Sustainability
Key findings
The management and administration of school clusters would have been
sustainable in the long-term should funding have continued.
The administration of the Project was not overly burdensome or time-
consuming.
Around a third of clusters are either continuing or considering continuing some
elements of their project into the third year.
Cluster lead schools reported significant disappointment with their inability to
continue with the Project.
Cluster lead schools not continuing their projects are likely to return to their
previous supply models in the short term.
In the long-term, some willingness to re-consider running a similar supply
project was expressed.
6.1 Cluster lead schools reported that the management and administration of their
project would have been sustainable in the long-term. Clusters had not found the
administration of the project overly burdensome or time-consuming once they had
established appropriate processes. As discussed in section 4, clusters adopted a
variety of different models for managing and deploying supernumerary teachers
and, on the whole, cluster lead schools reported that the final administrative model
adopted suited their needs well.
6.2 Around a third of clusters are either continuing or considering continuing some
elements of their project into the third year, following the end of Welsh Government
funding.
One cluster reported that, since their project was a little late starting and the
local authority is also financially supporting the project, they are continuing the
project for a whole two years, running into 2020. See Case study 1 for a
description of this project.
55
One cluster lead school reported that
they will aim to use supernumerary
teachers instead of traditional internal
or external supply cover but only
within the school’s primary phase.
This was still to be confirmed.
One cluster is continuing into the third
year as the cluster considered the
project to be a three-year Project; all
schools therefore recognised that
they were required to continue for
another year following the end of
Welsh Government funding.
Another cluster is funding the project
into its third year. The cluster lead
school is expanding and they hope
the supernumerary teacher will
remain at the school once the project
finishes. The same pattern of
allocation is expected for the third
year.
One local authority has adjusted school budgets to continue the employment of
a seconded teacher (released through the Project) into the third year.
6.3 The remaining clusters are not planning on continuing the project into the third year.
Clusters did hold discussions on the possibility of continuing and cluster lead
schools reported a clear desire amongst almost all schools to continue if possible.
Considering the perceived benefits of the project (for example on teaching and
learning) as discussed in section 5, cluster lead schools reported significant
disappointment with their inability to continue their project.
Example of a cluster’s decision to
continue – One cluster intend to
pool a group of around four or five
staff from across the schools
(including the supernumerary who
secured a post at the secondary
school and HLTAs). The supply
cluster model will be replicated. The
original plan was to continue the
project with exactly the same model
(employ more NQTs, share them
across the schools, meeting the
costs between the schools), but
decreasing budgets has prevented
this.
The schools will continue to use
agency supply, but the project has
made the schools realise that there
is potential for them to negotiate a
group of staff (four/five) from the
agencies, who would know the
cluster well.
56
6.4 There were a few key barriers to sustainability identified by cluster schools:
The higher costs associated with employing permanent supernumerary teachers
in a salaried position compared to the ad hoc costs of recruiting supply teachers
through external supply agencies. Though cluster schools maintained that there
were clear benefits to teaching and learning from employing supernumerary
teachers, the difference in cost was significant enough to dissuade clusters from
being able to continue with their project.
The higher costs associated with employing permanent supernumerary teachers
compared to the limited costs of using internal supply cover (such as HLTAs,
existing cover supervisors and supply insurance schemes). Smaller primary
schools in particular tended to report limited or no budget for external supply
provision, which means limited or no budget to continue with this project.
Inability to realise cost savings in a climate of financial deficit. While cluster lead
schools did recognise that the Project has led to cost savings for individual
clusters by providing external funding for supply cover, schools are often facing
a financial deficit; cost savings are not therefore realised in practice and cannot
be used to fund the Project going forward.
The potential for wasted resources associated with employing permanent
supernumerary teachers compared to accessing other internal or external supply
cover as and when needed. Cluster schools reported that it would be a financial
risk to employ a full-time member of staff when, in practice, supply needs might
be particularly low that academic year.
In addition, as discussed earlier, in many cases clusters have been able to use
the supernumerary teacher cover to release staff which they would not ordinarily
have been able to release. Following the end of the Welsh Government funding,
most of these clusters will need to revert back to using supply cover less
frequently.
57
Example of a cluster’s decision not to continue
Despite the very positive outcomes arising from the Project, the cluster has no
plans to continue to employ a supernumerary teacher following the end of Welsh
Government funding. The cluster sees this as a shame, but many of the schools
involved are facing financial deficits. The cluster lead school already employs
HLTAs who are competent to provide supply cover and insurance is available. As
such, there is no budget for external supply agencies which could be allocated to
recruiting supernumerary teachers. Cluster schools are uncertain how they will be
able to maintain the same level of progress made to date on school improvement
priorities as a result of non-contact time allocated to staff.
‘We’re devastated the project can’t continue…we’re devastated because we feel
we’re losing a member of staff, the ability to keep standards as high and the
ability to monitor as regularly as we have done.’ (Cluster lead)
6.5 Cluster lead schools who are not continuing their projects into the third year
reported that they are likely to return to their previous supply models in the short
term. This includes reverting to using internal supply cover (such as HLTAs and
cover supervisors who are already employed and able to provide cover) and
external supply (such as reverting to the usual supply agencies). Nevertheless, the
Project provided the participating schools with an opportunity to explore alternative
solutions to cover their teacher absence and potentially deploy their budgets in a
different way.
6.6 In the long-term, clusters expressed some willingness to re-consider running a
similar supply project within their cluster but only under certain circumstances.
Examples of circumstances under which clusters may be able to reconsider running
another project include: a reduction in the financial deficit currently facing schools;
changes to teacher pay and conditions to take into account the new supernumerary
role; opportunities to establish paid-for supply cluster models similar to existing local
authority-level supply pools.
58
7. Conclusions and issues for future consideration
Conclusions
7.1 The evaluation of the School Based Supply Cluster Model Project has examined the
benefits and challenges associated with the design, implementation and outcomes
for the Project. This section outlines the main conclusions regarding the Project’s
level of success to;
implement alternative and innovative arrangements that address school absence
cover (planned and unplanned absence);
support NQT teachers in short term supply roles in terms of professional
development and retention;
aid efficiencies, evidence added value and potential cost savings against the
school;
promote best practice in collaboration and joint working across school clusters.
The implementation of alternative and innovative arrangements to address
school absence cover
7.2 The pilot Project has been successful in designing and implementing a range of
alternative and innovative arrangements to address teacher absence cover. The
number of schools and supernumerary teachers in each cluster varied from 1-10;
with varying structures created and different types of schools taking on the role of
the cluster lead.
7.3 Different approaches to managing and timetabling the supernumerary teachers
were employed; ranging from specific blocks of time in each school (e.g. a half term
or whole term) to an entirely flexible timetable according to the demand from
schools for cover. The strengths and challenges reported for each of the
approaches focused on the opportunities to build working relationships with staff
and learners, the ability to deliver consistent procedures in schools, the ability to
release staff to fulfil school priorities, opportunities for supernumerary teachers to
complete NQT requirements and other training, and the administrative burden
required to allocate and monitor the Project. The embedded professional learning
opportunities for the supernumerary teachers aligns with the new National
59
Procurement Service Framework requirements for induction and professional
learning.
7.4 As a result of the different approaches to timetabling and using the additional
capacity, supernumerary teachers were deployed to address a range of tasks;
including emergency supply cover, regular PPA cover; which could include the
delivery of consistent cluster-wide projects; set regular class/subject lessons and
transition project work. Online calendars were used to book and monitor the
deployment of supernumerary teachers. This access to a shared online calendar
was also used to support joint-planning and the delivery of other cluster activities.
The autonomy and flexibility the Project allowed meant clusters were able to assess
the effectiveness of the design and delivery model they used, and a small number
adapted their model for the second year following feedback from cluster school
headteachers and their supernumerary teachers.
The support for NQT teachers in short term supply roles in terms of
professional development and retention
7.5 The pilot Project has supported a range of professional development opportunities
for supernumerary teachers, providing training to address individual teacher
requirements and school development targets such as pedagogy / teaching
approaches / implementation of the new curriculum. Supernumerary teachers also
benefitted from the development of their skills, competence and confidence,
particularly through the experience of teaching across different phases in a range of
schools. They were also positive about the pay and conditions associated with the
role, and welcomed the recognition of their professional status, with the consistency
and stability of the role regarded better than day to day supply teaching.
7.6 The pilot Project has supported many supernumerary teachers to successfully
complete their NQT induction and they often received additional support to provide
them with opportunities to address the required elements needed. Some
supernumerary teachers highlighted the challenge of access to CPD and NQT
support they had experienced when working as a daily supply teacher previously,
and the difficulty in addressing the required elements of the practising teacher
standards in contrast with the support they received in their supernumerary role.
60
The consistent mentor support supernumerary teachers received also helped their
progress. However, for some supernumerary teachers there was a lack of regular
teaching in classes to allow for the preparation/ evaluation element required to
complete the NQT induction and this was a barrier on occasion.
7.7 The pilot Project has supported several teachers to secure permanent employment
while undertaking the supernumerary role, and some wanted to continue working in
their current role or within one of their cluster schools. They believed that they are
now in a better position to apply for these jobs knowing the pedagogical approaches
across the cluster as well as the experience and training gained. For other
supernumerary teachers, they would continue in the role until 2020, and other
teachers noted that they would have welcomed the opportunity to be able to
continue in the role, with others reporting that the role had prepared them well to
move onto taking on their own teaching class. This demonstrates the potential for
similar future projects to improve the retention of teaching staff. Aligned with this is
the additional outcome reported, that the supernumerary teachers had built positive
relationships within the school and wider community.
Efficiencies, evidence of added value and potential cost savings
7.8 There is some evidence that the pilot Project has supported efficiency in supply
management. Clusters who normally use external supply agencies to provide some
of their supply cover were able to reflect on the time and resource benefits of using
regular supernumerary teachers. Teachers would normally need to commit time to
preparing work to leave for external supply teachers to use with their classes
whereas supernumerary teachers were familiar with lesson plans and/or could
deliver their own lessons. Cluster schools reported that using supernumerary
teachers reduced the time that their regular staff spend on administrative tasks.
7.9 Although £2.7 million was available for this Project; the actual total is likely to be
lower than this by the end of the Project, partly due to the fact that the Project could
only start in most clusters from the second term of the first year. The amount
claimed (Nov 2017-March 2019) by clusters was £1,296,294; the total number of
absence days requiring cover for this period was 22,242, with 6,539 of these
covered by supernumerary teachers. The estimated cost of covering these
61
supernumerary days using external supply agencies is between £902,382 –
£1,078,935. This suggests that the grant funding has been used fairly effectively,
but that there will also be other overheads associated with the employment of a
supernumerary teacher, such as the time required for the supernumerary teachers
to complete CPD and induction training requirements.
7.10 However, these figures do not necessarily provide an accurate portrayal of the way
in which supernumerary teachers have been allocated. Firstly, there were some
weaknesses and gaps in the data provided within cluster claim forms with some
inconsistencies in data due to differing interpretations of the requirements by
clusters. Secondly, not all cluster schools would have paid for external supply
agency teachers to meet their cover needs, but instead would have used internal
supply options such as HLTAs. Thirdly, the Project has provided added value to
cluster schools by allowing them to release staff to work on school improvement
priorities; releasing these staff so regularly would have otherwise been difficult or
impossible, without the funding for cover.
7.11 Consequently, this means that there are limitations to any conclusions relating
directly to the overall value of supply cover provided by the supernumerary teachers
compared to Welsh Government and cluster financial input, and previous supply
systems. The Project has allowed cluster schools to benefit from additional supply
cover which they would not necessarily have accessed without the Project; their use
of supernumerary teachers does not therefore necessarily reflect usual supply
requirements. The supernumerary teachers have, in other words, provided
additional capacity for schools to undertake desired activities.
7.12 Potential exists for a similar project in future, as the management and administration
of clusters was reported to be sustainable in the longer-term. Clusters had not found
the administration of the project overly burdensome or time-consuming once they
had established appropriate processes. Around a third of clusters are either
continuing or considering continuing elements of their project into the third year. The
remaining clusters held discussions on the possibility of continuing and cluster lead
schools reported a clear desire amongst almost all schools to continue if possible.
Cluster lead schools reported significant disappointment with their inability to
62
continue their project. A few key barriers to sustainability identified by cluster
schools included:
The higher costs associated with employing permanent supernumerary teachers
in a salaried position compared to the ad hoc costs of recruiting supply teachers
through external supply agencies or using internal supply cover such as HLTAs;
The inability to realise cost savings in a climate of financial deficit;
The level of risk associated with employing permanent supernumerary teachers
compared to accessing other internal or external supply cover as and when
needed.
7.13 In the long-term, clusters expressed some willingness to re-consider running a
similar supply project within their cluster but only under certain circumstances. Such
circumstances include: a reduction in the financial deficit currently facing schools;
changes to teacher pay and conditions to reflect the new supernumerary teacher
role; and opportunities to establish a paid-for supply cluster models similar to
existing local authority-level supply pools.
The promotion of best practice in collaboration and joint working across
school clusters
7.14 Cluster collaboration has been strengthened and promoted across clusters during
the Project. The management and delivery of the Project was regularly discussed
by schools and communication was effective between the schools involved.
Effective management approaches were shared and built upon during the Project,
with some clusters using an online calendar to oversee the allocation of the
supernumerary teachers.
7.15 The promotion of best practice was evident as supernumerary teachers shared
teaching and learning approaches between cluster schools. The sharing of
practices such as approaches to the new curriculum, behaviour management
strategies, approaches to support learners or specific curriculum delivery ideas
resulted during the Project.
7.16 Collaborative cluster school projects were also successfully completed during the
pilot Project with supernumerary teachers delivering activities across cluster
63
schools, or providing cover for lessons for other teachers to complete cross-cluster
activities, attend meetings or training in order to progress a cluster project.
Teachers released by supernumerary teachers have had the time to lead on and
take ownership of school-level developments. This approach links closely to the
intentions for the Welsh Government’s priority to manage workforce well-being and
workload for the sector; as teachers were facilitated to undertake such tasks during
their normal working day, due to the cover provided by the Project, as opposed to
completing such tasks in their own time.
7.17 Joint working to support effective transition processes was also positive for clusters,
with supernumerary teachers working across phases being able to develop longer
term relationships with year 6 learners and be the ‘familiar face’, providing
consistency in approach to behaviour and learning to support effective transition to
the secondary phase.
Future considerations
7.18 Although in most cases clusters have not committed to the joint funding of
supernumerary posts, the evaluation has found a range of positive impacts to
emerge from the Project, as has been highlighted in this report.
7.19 Drawing on the conclusions of the evaluation, it is unlikely that any other school
clusters would initiate joint approaches to addressing the issue of supply cover
without there being grant funding in place to incentivise cluster working in this area
and to mitigate the risks involved.
7.20 One important question is whether there is a case to consider delivering a similar
project in future, drawing on the learning from the pilot clusters. Firstly it could be
argued that the Project has not been fully ‘tested’ for several reasons:
In all cases, clusters operated the Project for less than two years and it took
some time for many to settle on an agreed delivery model;
The fact that clusters did not benefit fully from the 100 per cent grant funding
support during year 1 meant that the financial savings were not fully realised
or appreciated by participating schools;
64
Despite not being sustained in its current form, the Project will continue to
deliver legacy outcomes to clusters and schools (by having moved supply
teachers into permanent teaching posts; through the increased quality of
teaching; through the processes in place to share knowledge between
schools; transition activities trialled through the Project and sustained).
7.21 The Project’s impacts will therefore continue to ripple outwards and at this stage it is
not possible to capture these fully. The follow-up evaluation work to be completed in
2020 will seek to identify any such sustained impacts beyond the end of the Welsh
Government funding period.
7.22 The evaluation team considers that there is sufficient evidence of successful
outcomes from the Project for the Welsh Government to consider supporting a
second phase of the School Based Supply Cluster Project. There are clear learning
points to consider in planning and designing a second phase. These are
summarised below:
i. Ensure sufficient lead-in time to allow for widespread advertising of posts and
recruitment of suitable candidates to start at the time most appropriate for
each school. There is potential to target NQTs, from a central register;
working with EWC and universities.
ii. Aim to ensure that clusters are operational from the beginning of an
academic year, having had opportunity in advance to agree on their model of
delivery.
iii. Consider alternative options for the provision of grant funding in a tapered
way over a three-year period, allowing clusters to embed the process
effectively, examples are presented in Table 7.1.
65
Table 7.1. Examples of potential tapered intervention support
Intervention rate: support for costs of
project
Year 1
Year 2
Year 3
Current model
100 per cent
75 per cent
0 per cent
Alternative A
100 per cent
50 per cent
25 per cent
Alternative B
80 per cent
60 per cent
40 per cent
iv. Continue to take a flexible approach, encouraging clusters to devise and
implement models of working that work best for them (in terms of numbers of
schools, numbers of supernumerary teachers and how the supernumerary
teachers are deployed). Yet the Welsh Government could continue to ensure
that support is clear for monitoring and reporting requirements, with
templates and structure provided as appropriate.
v. Invite applications from clusters to participate in the Project, requiring
clusters to specify how the Project would be used to support wider school
improvement priorities; how CPD will be delivered to NQTs; how the Project
links to wider activities to support the new curriculum.
vi. Conditions should be attached to the funding to ensure that the Project is not
used for long-term supply cover in a single school, ensuring that
supernumerary teachers are given experience of teaching in a range of
schools and Key Stages, where possible.
vii. Clusters should commit to making use of supernumerary teachers’ specialist
skills (with subject specialism or expertise in delivering support to specific
groups of learners such as ALN support used effectively).
viii. It is important that clusters and supernumerary teachers are clear regarding
the line management system and accountability, and who has responsibility
66
for organising NQT support and training. Completion of the NQT induction
requires teachers to plan a sequence of lessons and future similar projects
could ensure that opportunities for this are established with set classes on
the timetable for some of the time.
ix. If a similar initiative is delivered in future and continues to target NQTs, there
is potential to establish and facilitate a network to provide those in the role
with peer support.
x. For similar future projects, clusters could be provided with examples and
guidance regarding advertising for posts, and the allocation of the
supernumerary teacher/s within their cluster e.g. the different possible
timetabling approaches and ensure there is a balance between the needs of
the cluster and the expectation for professional development for the
supernumerary teacher. The four case studies included in this report could
be considered by schools as they explore the possibilities for alternative
models and their potential benefits.
67
Annex A: Research tools
Topic guide for stakeholder interviews (Autumn 2018)
Arad Research has been commissioned by Welsh Government to evaluate the School Based
Supply Cluster Model Project. As part of the evaluation, we are interviewing stakeholders who have
engaged with the Project in some way.
During the interview, we will ask you for your views on: The policy and educational context for the
Project; its aims, design and delivery; and views on the impact on learners, supply teachers and
schools to date.
The information gathered through the evaluation will be used to inform the future design and delivery
of the Project.
Participation in the research is voluntary. All information collected from stakeholders across Wales
will be reported anonymously. The evidence gathered during the project will be included in a report,
and possibly in other publications, by the Welsh Government.
If you wish to view the privacy notice, a copy has been circulated to you via e-mail and is available to
you from the researcher.
Note to researcher: Ask the stakeholder to verbally consent to participate in the research and make
a note of their consent.
Note to researcher: The stakeholders’ knowledge of and engagement with the Project will vary, so
the researcher is to use those questions below which are suitable.
Background
1. Please provide an overview of your own responsibilities in [name of organisation].
2. Please provide an overview of your knowledge / experience relating to:
Education workforce and/or issues impacting on and the management of supply
teachers.
The school based supply cluster model pilot project.
Policy context and challenges
3. What are the key national policy considerations or developments relevant to the Project? And
why are these considerations or developments relevant to the Project?
Prompts: Education strategies, curriculum reform, Professional Standards, pay and
conditions.
4. What are the key developments or challenges currently facing the education workforce with
regard to a) teacher absence and sufficiency and quality of supply, and b) opportunities for
NQTs and newly qualified teachers?
5. Are you aware of any other possible alternative interventions to address these challenges?
What are these interventions?
Prompts: Best practice elsewhere, private sector models, centralised supply options.
68
Project design and objectives
6. What do you think are the key aims and objectives of the Project?
Prompts: Cross-cluster working, support for supply teachers and absence
management, professional development, learner outcomes, cost efficiency.
7. Is the Project an appropriate response to the recommendations of the Supply Cluster
taskforce report?
Prompt: Why or why not?
8. What is your view on the rationale for how the Project was designed?
Prompts: Support for supply teachers, Focus on NQTs / recently-qualified teachers,
scope of the pilot, types of individual projects funded, the trial nature of the Project,
variation across cluster model design and processes.
9. To what extent does the Project support school-level or local priorities or strategies?
Project delivery to date
10. How effective has the process of recruiting supernumerary teachers been across the cluster
projects?
OR: Some projects have found it challenging to recruit supernumerary teachers. Can
you provide any insight on why this may be the case?
Prompt: impact on supply teachers unable to apply.
11. How effective has the collaboration between schools (lead schools and other schools) within
a cluster been as part of the Project?
Prompts: impact on existing supply teachers employed /working relationships within
the pool of supply teachers.
12. What has worked well and what have been the challenges for cluster schools delivering the
projects?
Prompt: Organising and managing CPD (impact on supply teachers not part of the
project).
13. What benefits or added value has been achieved to date – for supply teachers, the school,
the cluster, learners?
Learning points
14. Do you have any recommendations regarding future Welsh Government policy or support for
supply teachers and absence management?
Prompt: Policy or support focused on a cluster-based approach or alternative
approach.
69
Topic guide for Cluster lead interviews (Autumn 2018)
Arad Research has been commissioned by Welsh Government to evaluate the School Based
Supply Cluster Model Project. We are interviewing cluster leads to gather your views on the process
of establishing your cluster, recruitment, implementation and early impact of the model’s delivery.
We are interested in your expectations for the project, and learning points to date regarding design
and delivery – this will inform the project’s future delivery.
We have viewed your cluster’s monitoring data /claim forms and may refer to this during the
interview.
Participation in the research is voluntary. All information collected from cluster leads across Wales
will be reported anonymously. The evidence gathered during the project will be included in a report,
and possibly in other publications, by the Welsh Government.
If you wish to view the privacy notice, a copy has been circulated to you via e-mail and is available to
you from the researcher.
Note to researcher: Ask the cluster lead to verbally consent to participate in the research and make
a note of their consent and gain consent to contact other senior school managers (if required) and
supernumerary teachers. Also gain consent to re-contact next year to follow up on progress.
Background
1. Please provide an overview of how you became involved in the School based supply model,
and as the cluster lead.
a. Why did you decide to become involved? What challenges was the school facing
relating to supply management?
b. Is your role as cluster lead clear? Explanation of tasks/role.
2. What was the approach to the supply delivery across the cluster before the project started?
a. Please provide an overview of the type of supply cover used in the school e.g. the
use of HLTAs and supply agencies.
b. What were the challenges other schools in the cluster faced regarding supply?
c. Did the schools in the cluster collaborate (for supply cover and/or on other issues)
before this project? please explain.
Project design
3. How is the school based model designed in your cluster?
a. Prompts: decision on which school would be cluster lead, role of cluster lead, focus
for cluster (ALN/STEM/Welsh Medium).
b. How does the model support schools’ priorities?
c. Did you receive guidance/support from consortia/LA?
4. How effective was communication and collaboration between the cluster schools during the
planning stage?
Prompts: challenges/agreeing focus for cluster/ determining the cluster lead.
5. How easy are the claim forms to complete?
70
Prompts: are they collecting the right data? How much time do they take (who
completes them (name/role)? Is this less/more/same as the time needed to address
supply cover before the model?
Project delivery to date
6. How did you recruit your supernumerary teachers?
a. Prompts: advertising, existing supply teachers, support from LA/consortia
b. How effective was your recruitment process? Any challenges?
c. If possible provide an overview of timing /number of applications/ calibre of
applicants.
7. How is the deployment of the supernumerary teachers managed within your cluster?
a. Prompts: how is their time allocated across the cluster schools?
b. How do you, as a lead school, administer the deployment?
c. How effective has this deployment process been in terms of managing supply
requirements?
8. How effective has the collaboration between the cluster schools been since the employment
of the supernumerary teachers?
a. Prompts: What has worked well? Any challenges?
b. Are all cluster schools involved in elements of managing the supernumerary
teachers? Explore role of lead school compared to other cluster schools.
c. Has the cluster needed any additional support from consortia/LA to implement the
project?
9. Please can you explain the process to determine the professional development requirements
to be delivered to the supernumerary teachers?
a. Prompts: Existing arrangements/ anything new?
b. Has there been any additional support from consortia/LA to plan/deliver the
professional development?
c. Provide an overview of the professional development to be delivered.
10. Are there any barriers/challenges hindering the model’s progress?
a. Prompts: continued high absence rates across the cluster, quality of supernumerary
teachers.
b. How have these or could these be overcome?
Project-level outcomes
11. What are the key benefits or added value your cluster was hoping to achieve through this
project?
a. Prompts: for supply teachers? Learners? Other teaching staff? For the school as a
whole?
b. Cost savings? Comparison of use of other source of supply before and now. How
have any savings or efficiencies benefitted the school e.g. additional resources for
other school priorities?
12. [May be less relevant to schools with newly recruited teachers] What wider benefits or
added value has been achieved to date across the cluster and for your own school?
a. Prompts: for supply teachers? Learners? Other teaching staff?
71
b. Cost savings? Comparison of use of other source of supply before and now.
13. Do you think the model can be self-sustaining in the long term?
a. Prompts: What is the cluster doing to ensure this? How can it be achieved?
Learning points
14. Do you have any recommendations regarding the future design and delivery of the Project or
any views on an alternative supply delivery model?
Prompts: Changes to aims or focus of Project/ level of funding needed to prime the
model?
15. What have been the most important learning points to date regarding the delivery of the
Project?
Prompts: Timely recruitment/calibre of teachers/ co-operation across the cluster/
support from LA / clear lead cluster role?
72
Annex C: Topic guide for Supernumerary teacher interviews (Spring 2019)
Arad Research has been commissioned by Welsh Government to evaluate the School Based
Supply Cluster Model Project. We are interviewing the recruited supernumerary teachers to gather
your views on the process of being recruited and employed across a cluster. We are interested in
your expectations for the project, and learning points to date regarding views on the professional
development planned/received and the overall implementation/management of the project – this will
inform the project’s future delivery.
Participation in the research is voluntary. All information collected from teachers across Wales will
be reported anonymously. The evidence gathered during the project will be included in a report, and
possibly in other publications, by the Welsh Government.
If you wish to view the privacy notice, a copy has been circulated to you via e-mail and is available to
you from the researcher.
Note to researcher: Ask the supernumerary to verbally consent to participate in the research and
make a note of their consent and gain consent to re-contact next year as a follow up and record
contact details.
Background
1. Please provide an overview of how you became recruited to the School based supply model.
Do you think the recruitment/selection process was adequate? [Note to researcher:
Some may have experience of applying for teaching posts and may be able to
compare]
Please provide a brief overview of teaching/supply experience before (engaged with
schools in the cluster previously? Is this your NQT induction year? previous
CPD/experiences with supply agencies)
2. What do you understand the aims of the Project to be?
Were the aims of the Project explained to you during the application process (in the
job advert)?
3. Were there any elements of this role that appealed to you in particular? If so, what were
these?
Motivation for applying?
How important was the professional development element of the project (opportunity
to complete NQT induction year) to you during the recruitment stage?
How important was the consistency of employment?
Project design
4. What is your role across the cluster and in each school?
Prompts: e.g. sickness cover only/ planned CPD cover / focus of cover-e.g.
ALN/STEM/Welsh Medium /other – please specify.
Set allocation of days for each school stays the same/changes? Collect detail of
working patterns/allocation to different schools and views on the model used.
(years/subjects/ type of cover/length of advance notice received for allocation)
73
How are you managed? One overall line manager/ mentor in the lead school and/or
individual school managers – views on this and how your allocation is communicated
(weekly/daily/ online calendar)?
5. What are you expected to do if you are not needed to cover a lesson?
Prompts: e.g. class support /deliver a specific intervention / work on a specific school
priority.
Was this element clear from the start or has it changed over time?
Project delivery to date
6. How effective is communication and collaboration between the cluster schools?
Prompts: challenges/agreeing priorities/allocation. Any impact on your working
day/week? (clarity of role/job/ time to move between schools/phases)
What works well?
7. Is your cluster using your time and skills as effectively as it could?
Prompts: allocated cover matching your strengths, tasks when cover not required.
8. [NQT induction year only] Please explain how you managed to complete the required
lesson planning/preparation /evaluation to achieve NQT status
Prompts: e.g. school allocated specific PPA cover that you planned/ long term
sickness cover
Have you always received NQT and PPA time (equivalent to 1 day week) as required
during the NQT induction year?
9. Do you input any monitoring data for the project, e.g. hours at each school and role? How
easy is this for you to do?
Prompts: How much time does this take?
10. Please can you explain the professional development planned /already received?
Prompts: specific pedagogy /teaching approaches, leadership /management. Role of
your mentor, support from fellow supernumerary teachers, LA, consortia.
[NQT induction year] How were your (external and internal) mentors allocated?
Have you been able to attend all the training you wanted to?
[If relevant] how does this professional development offer differ from professional
development provided in previous supply roles?
11. What are your views on the quality of training (and for NQT induction year particularly)
support received from mentors?
How effective has the CPD received been in meeting your needs and expectations?
Please explain/ suggested improvements.
How effective has the support you receive from your mentor/s been? Please explain.
74
12. Have you encountered any barriers/challenges to working in this role?
Prompts: continued high absence rates across the cluster, high demand placed on
you across the schools, expectations to undertake extensive planning /marking work,
classroom management /behavioural issues.
[If relevant] Are these barriers/challenges similar to those experienced in previous
supply roles, or do they differ?
[NQT induction year only] Any barriers /challenges to success? (workload, lack of
consistency in classes to allow for preparation/evaluation element)
Project-level outcomes
13. Have you been set any particular performance objectives? If so, what are these?
Prompts: Objectives relating to classroom teaching or school-wide priorities?
Specific to NQT induction year
14. What are the key benefits you hope to achieve/ have achieved by being employed as a
supernumerary teacher?
For you? Prompts: pay and conditions, professional development, permanent
employment opportunity.
For Learners? For other teaching staff? Any wider benefits?
[If relevant] How do the benefits available within this role compare to benefits from
working in a supply role?
15. [May be less relevant to newly recruited teachers] What benefits have you seen so far of
being employed as a supernumerary teacher?
For you? For Learners? For other teaching staff? Any wider benefits?
Depending on previous experience they may be able to make comparisons to
previous supply working.
16. Do you think the model can be self-sustaining in the long term?
Prompts: cluster working /number of schools involved /timetable allocation / CPD/
retention of supernumerary teacher?
Learning points
17. Do you have any recommendations regarding the future design and delivery of the Project or
any views on an alternative supply delivery model?
Prompts: what has worked well? What has been more challenging? What would you
change?
18. What have been the most important learning points to date regarding the Project?
Prompts: Timely recruitment/ co-operation across the schools/ mentor’s support /
effective line management /allocation across schools?
19. What are your plans for the coming year, and following completion of your role as a
supernumerary teacher?
Thank you and reminder about re-contacting during phase 2.
75
Online survey for cluster schools (not including Cluster lead schools) (Spring 2019)
School Based Supply Cluster Model – School Survey
Introduction
Arad Research has been commissioned by Welsh Government to evaluate the
School Based Supply Cluster Model Project. As part of this work, we are gathering
evidence from cluster schools who have taken part in the project.
Participating in the evaluation is voluntary and you can withdraw your consent at
any point without giving a reason for doing so. All the information gathered will be
reported anonymously. The evidence gathered during the evaluation will be
included in a report, and possibly in other publications, by Arad Research and
Welsh Government.
More information about your data and your rights is available in the privacy notice.
Click here to read the privacy notice.
If you are happy to give your consent, please continue with the survey by clicking
next. If you wish to complete the survey in Welsh, please click here.
If you would like to receive further information about the evaluation, or if you have
any comments about any elements of the work, please contact: Alison Glover on
[email protected] or 02920 440552.
76
School Based Supply Cluster Model – School Survey
Background
Please provide some background information about your school. [This information will not be linked
to individual responses and is solely to monitor survey completion]
* 1. Type of school
* 2. Please select your cluster
3. Before this project how did your school meet its supply needs?
Always Sometimes Occasionally Rarely Never
Agency supply teachers
Agency Higher Level
Teaching Assistants
(HLTAs)
Own established supply
teachers
Other teachers
employed at the school
HLTAs employed at the
school
School senior managers
headteacher
Other (please specify)
School Based Supply Cluster Model – School Survey
Planning
4. To what extent do you agree or disagree with the following statements about planning and
communication for the school based supply cluster model?
Strongly agree Agree Neither agree or Disagree Strongly N/A
disagree disagree
My school worked with
all/most of the other
schools in the cluster
before the project
My school helped to
write the bid for the
project
My school is involved in
decisions about how the
supernumerary
teacher/s in our cluster
is/are deployed
77
There is good ongoing
communication between
the cluster schools
5. To what extent do you agree or disagree with the following statements about the recruitment and
interview stages?
Strongly agree Agree Neither agree or Disagree Strongly
disagree disagree
My school was involved
in writing the job advert
My school contributed to
shortlisting candidate/s
for interview
My school observed
candidate/s teaching at
interview stage
My school was involved
in interviewing
candidates
Please comment in the number and calibre of candidates that applied for the supernumerary role/s
School Based Supply Cluster Model – School Survey
Allocation and role of the supernumerary teacher/s
6. How is/are the supernumerary teacher/s allocated in your cluster? (select all that apply)
Each school has the supernumerary teacher/s for a set period of weeks/months in a block.
The supernumerary teacher/s are in different schools across the cluster over the course of a week/fortnight
depending on demand.
The supernumerary teacher has some ongoing timetabled lessons/classes, while the remainder if their time is
used to cover teacher absence.
An online calendar is used to request cover.
The supernumerary teacher/s is/are contacted directly to request cover.
The supernumerary teacher/s report to the cover manager on a daily basis for their lesson allocation.
Please provide additional comment to explain the allocation in your school.
School Based Supply Cluster Model – School Survey
The effectiveness of the model
7. Deployment of the supernumerary teacher/s
Very effective Effective Satisfactory Not effective
The arrangements used in our cluster
to deploy the supernumerary teacher/s
are:
Please provide additional comment:
8. How does the cluster model compare with previous arrangements to address supply needs?
More effective About the same Less effective
The cluster model is:
Please provide additional comment:
78
School Based Supply Cluster Model – School Survey
The effectiveness of the model
9. Meeting the cluster needs
Strongly agree Agree Neither agree or Disagree Strongly
disagree disagree
The role of the
supernumerary
teacher/s in our cluster
has met the cluster’s
aims for the project.
Please provide additional comment
10. Deployment of the supernumerary teacher/s across the cluster
Strongly agree Agree Neither agree or Disagree Strongly
disagree disagree
The supernumerary
teacher has been
deployed equitably
across all the cluster
schools.
Please provide additional comment.
School Based Supply Cluster Model – School Survey
Impact of the supernumerary teacher/s
11. What has been the impact of the supernumerary teacher/s on learners?
Very positive impact Positive impact Limited positive Negative impact N/A
Impact
Attitude of learners
Quality of work
produce by learners
Behaviour of learners
Consistency for learners
Please note any further impact on learners.
79
School Based Supply Cluster Model – School Survey
Sustainability of the model
12. What has been the impact of the supernumerary teacher/s on staff and the wider school?
Very positive impact Positive impact Limited positive Negative impact N/A
Impact
Workload of other
teachers in the school
Workload of other
teaching/support staff
(e.g. HLTAs)
Sharing teaching and
learning practice
between cluster schools
Transition between
primary and secondary
phases
Introducing new and/or
supporting existing
extra-curricular activities
Contribution to school
development priorities
Collaboration on wider
school issues with other
schools in the cluster
Please note any other wider impact in staff and the wider school (e.g. which school development priorities
have been supported?)
13. Is there anything that has worked particularly well? Or that would be improved when delivering
this project?
Worked well:
Suggested improvements:
14. What are your intentions for the future?
Highly likely Likely Not decided yet Unlikely Highly unlikely
Will be employing the
supernumerary
teacher/s on a
permanent contract
Will be employing the
supernumerary
teacher/s on a
temporary contract
Will continue to work
collaboratively with the
other cluster schools to
address supply needs
Will return to the supply
cover arrangements in
place before the cluster
model project
Will revert to using
private supply agencies
Please provide further comment
80
School Based Supply Cluster Model – School Survey
THANK YOU
*
Thank you for completing this questionnaire, your response is
appreciated. Click 'Done' below and your responses will be saved
automatically.
81
Topic guide for Cluster lead interviews and case studies (Summer 2019)
Note: Year 2 is to be the main focus for responses.
Cluster schools will have completed survey but not the cluster leads.
Each case study has a particular focus – more detail will be needed surrounding the selected focus
for that cluster’s case study and examples to support feedback.
Template report to be completed by Arad and shared with all Cluster Leads, for additional
contributions and information check.
Background
To be completed before interview
Cluster name:
Cluster lead school:
Other schools in cluster:
Project start date:
Number of supernumerary teachers (number of NQTs and completions):
Key aim for the cluster’s bid:
Project management and delivery
1. Has the approach to managing and delivering the project remained the same for the second
year?
a. Have supernumerary teacher/s found permanent posts and further recruitment been
needed?
b. Any changes in the allocation to each cluster school different for year 2? (Why?)
c. Have there been more fixed timetabled lessons for the second year? (Why?)
d. If NQT/s achieved during the first year – what has this meant for the second year of
the project?
Impact
2. What impact has the project had on the learners during the second year?
a. Consistency (e.g. ALN)
b. Quality of work produced during cover sessions
c. Attitude and behaviour
d. Is this impact different to year 1?
3. What impact has there been on transition between school phases?
Prompts: E.g. new joint phase activities; other examples of the impact; comparison to
year 1?
4. What impact has the project had on the supernumerary teacher/s employed?
Prompts: Completion of NQT; Training attended; Permanent employment; progress and
quality of the teacher
82
5. What impact has the project had on other school staff, (teaching and support)?
Prompts: lessened workload, time for other school priorities (e.g.?)
6. What progress has there been to achieve the original objectives for the cluster project?
Prompts: School priorities addressed; differing levels of progress in years 1 and 2;
release of other staff to achieve progress?
7. Please describe the impact the project has had on the collaboration of schools in the cluster.
Prompts: new initiatives developed? Strengthened working relationships; collaboration
would have continued and strengthened anyway?
8. Please can you summarise the costs of supply cover over years 1 and 2 of the project.
Prompts: continued to use agencies throughout? Comparison of sickness/absence rates
during the project compared to other years?
The next steps
9. How will the supply needs for the cluster be addressed next year?
Prompts: sustainability of project? continue collaboration for supply cover? Rationale for
approach and funding implications?
10. What has been the most successful part of the project?
11. What has been the most challenging part of the project?
12. Any suggestions to improve similar projects in future?
83
Topic guide for stakeholder interviews (Summer 2019)
Arad Research has been commissioned by Welsh Government to evaluate the School Based
Supply Cluster Model Project. As part of the evaluation, we are interviewing stakeholders who have
engaged with the Project in some way.
During the interview, we will ask you for your views on: Your involvement in the Project; its aims,
design and delivery; and views on the impact on learners, supply teachers and schools to date.
The information gathered through the evaluation will be used to inform the future design and delivery
of the Project.
Participation in the research is voluntary. All information collected from stakeholders across Wales
will be reported anonymously. The evidence gathered during the project will be included in a report,
and possibly in other publications, by the Welsh Government.
If you wish to view the privacy notice, a copy has been circulated to you via e-mail and is available to
you from the researcher.
Note to researcher: Ask the stakeholder to verbally consent to participate in the research and make
a note of their consent.
Note to researcher: The stakeholders’ knowledge of and engagement with the Project will vary, the
researcher is to use the questions below which are suitable.
[Some stakeholders were interviewed during the scoping phase and will be providing an update on
their experience of the project to date].
Background
1. Please provide an overview of your own responsibilities in [name of organisation].
2. Please provide an overview of your knowledge / experience relating to:
a. Education workforce and/or issues impacting on and the management of supply
teachers.
b. Involvement in the school based supply cluster model pilot project. (e.g. development
of project and since operational e.g. allocating cluster schools /support)
Project design and objectives
3. What do you think are the key aims and objectives of the Project?
a. Prompts: Cross-cluster working (collaboration), support for supply teachers and
absence management, professional development, learner outcomes, cost efficiency,
recommendations of the Supply Cluster Taskforce Report.
4. [New interviewees only] What is your view on the rationale for how the Project was
designed?
a. Prompts: Support for supply teachers, Focus on NQTs / recently-qualified teachers,
scope of the pilot, types of individual projects funded, the trial nature of the Project,
variation across cluster model design and processes.
84
Project delivery to date
5. How effective was the process of recruiting supernumerary teachers been across the cluster
project/s?
a. What approach was used?
b. Prompt: number and calibre of applicants, impact on supply teachers unable to apply
/ uncertainty of being able to complete NQT status in the role.
6. To what extent do you think the project is achieving its aims and objectives?
a. Prompts: improved cluster working, completion of NQT status, training for supply
teachers, lower teacher absence, cost efficiency, consistency for learners
7. What has worked well and what have been the challenges for cluster schools delivering the
project/s?
Prompt: Organising allocation between cluster schools; organising and managing
CPD /NQT training (e.g. impact on supply teachers not part of the project).
8. What has your role been in providing the data for the claims?
Prompt views on the monitoring and scrutineering procedures.
9. What has been the impact of the project to date?
Prompts: staffing and demand for supply? benefits or added value achieved to date –
for supply teachers, the school/s (collaboration), the cluster/s, learners?
Learning points
10. What is the sustainability potential for this project?
Or is there an alternative format which would address future supply demand? Any
recommendations for future Welsh Government policy?
Explore in depth with LA representatives; examples of good practice; strengths and
challenges of different models.
85
Annex B: Summary of cluster school online survey responses (Spring
2019)
Q1
Type of school
Number of
respondents
Infant
3
Primary
25
Junior
2
Secondary
3
Special
1
Q2
Local Authority
Number of
respondents
Caerphilly
4
Cardiff
3
Carmarthen
2
Conwy A
4
Conwy B
3
Merthyr Tydfil A
2
Neath Port Talbot
5
Newport
1
Powys
4
Rhondda Cynon Taff
1
Torfaen
2
Wrexham
3
Total
34
86
87
Additional comments:
- It was difficult to find candidates at times.
- As a cluster, an appointment sub-committee was organised.
- Many NQTs applied for the job each time they were advertised.
- Limited applications. Calibre varied.
- There were over 15 applicants. There were few outstanding on paper; the
field/calibre may well have been restricted, as a high standard of Welsh was cited
as an essential criterion, despite ours being a cluster of English-medium schools.
Of the 3 appointed, one was an outstanding candidate.
- As a very small school, it wasn’t possible to assist the progress in terms of
interviewing and observation.
- Apparently the job advert was placed on the [Cluster lead] website, which would
not attract most primary NQTs, as the website is that of a secondary school. Our
school was not involved at all in any discussions prior to the appointments being
made, we did not have a say in what our requirements were or the strengths or
skills that we would be looking for in successful candidates.
- There were very few candidates applying for the role – some who were too
experienced and therefore we were unable to meet the budgetary requirements
long term.
- The second time we had to advertise the post, the quality of applicants seemed
poor. The second advert came about as a result of the person who originally
secured the post taking a teaching post after completing the first year. I was not
involved in the selection process the first time around.
- Not all known, but some were Foundation Phase trained yet appointed to a ks2/3
post.
- Not all know, but some were Foundation Phase trained.
88
- 2 candidates were interviewed and both were of high calibre and either could
have been appointed.
Q7. Deployment of the supernumerary teacher/s.
The arrangements used in our cluster to deploy the supernumerary teacher/s are:
Very effective
Effective
Satisfactory
Not effective
8
12
5
5
n=31
Additional comments:
Very effective.
- The model has proved extremely effective in releasing staff to carry out
monitoring procedures, observing good practice in other schools and attending
courses regularly.
- At the heart of this is effective communication – but our school and the other
school are part of a co-operation between us where we achieve mutual
accountability.
- All schools got a fair allocation of the supply teachers and were able to build up
good professional relationships with them.
Effective.
- We have used the role to develop good practice. It has not worked as a means for
sickness.
Satisfactory.
- Due to the nature of the timetabling the teacher cannot be used for sickness
cover or other cover needs when allocated to another school.
- Unable to predict staff absences due to illness so can only use the teacher for
planned absences such as training.
Not effective.
- Although our school has benefited greatly from having 2 teachers here, the
system has not been effective and only 1 other school within the cluster has
benefited.
- We were not prepared to pay a daily rate of £150 when the school already
contributed to a [Local authority] pool of arrangements for paid cover.
89
Q8. How does the cluster model compare with previous arrangements to address supply
needs?
More effective
About the same
Less effective
14
5
10
n=31
Additional comments:
More effective.
- Having a fortnightly timetable was extremely helpful in organising procedures.
- Because the teacher is here at school, and takes responsibility for teaching one
or two classes, we can ensure the teacher’s development. This is facilitated by
the fact that pupils get to know the teacher and regard him as a member of the
school community, rather than someone who joins in from time to time. This also
means that the teacher’s confidence is nurtured, he feels a member of the school
community, has an opportunity to contribute more widely to school life in terms of
extra-curricular events, and the teacher is also familiar with procedures and
policies. This is true for both schools in the cluster. As a result, standards are
being raised across both – in terms of pupils and teachers.
- The cluster supply teachers were able to provide consistent cover for releasing
senior leaders to carry out their responsibilities.
About the same.
90
- There is still a need for supply cover as you cannot determine when a person is
going to be sick. What happens when the teacher is needed in school A due to
sickness, but school B also requires them for cover. We have used it for planned
management activities mostly this year.
Less effective.
- Set days does not facilitate this. Needs to be greater flexibility.
- It has been fantastic in terms of developing good practice, providing cover for
performance management tasks and self-evaluation tasks. It has not helped
‘sickness’ cover at all.
- The model could have worked if the cluster lead had consulted with the primary
schools prior to appointing. The cluster lead should also have consulted with the
LA with regards to using the LA sickness scheme to pay for the NQTs to cover
sickness.
- It hasn’t eased the supply needs in either of my schools.
- Unfortunately, it didn’t work as we couldn’t claim from our sickness insurance to
pay for sickness supply as it was felt these were already paid for by the grant and
as such the insurance would not pay twice.
91
Additional comments:
Strongly agree.
- To reduce the cost of supply to the school. It has also enabled 3 NQTs to secure
fixed term/permanent contracts.
Agree.
- Always difficult to arrange staff time to be available in an emergency.
- Our aims matched how we saw it working; we adapted in order to make it
effective.
Disagree.
- Our first teacher secured a permanent post and there have been performance
issues with our second appointment.
- Not able to cover Foundation Phase.
- Unable to cover our Foundation Phase year groups.
92
Additional comments:
Strongly agree.
- Staff are fairly divided according to the size of the schools within the cluster.
- Deployment was timetabled half termly based on feedback from the headteachers
within the cluster.
Agree.
- This has been fairly distributed.
- See previous comment about allocation.
Disagree.
- Only 2 schools within the cluster benefited from the supernumerary teachers. One
of the teachers was used in a school outside of the cluster.
Strongly disagree.
- Supernumerary staff not always to cluster primaries only, even when these staff
had not been deployed by secondary school.
93
Additional comments:
- Much better than other supply methods as the supernumerary teachers become
part of the staff team and are well respected by pupils.
- We have benefited as 2 of the teachers were based here. They have been used
across the school to release teachers for CPD activities, meetings, headteacher
cover, sickness, ALN support.
- The continuity and familiarity have improved behaviour and provided consistency
for all learners – quality of work has not been disrupted.
- So far, I have only experienced the teacher for half of one term across my two
schools. There is no way I can answer any of these questions with any validity.
Additional comments:
- Supernumerary teachers brought positive practice that they had seen in other
schools. They significantly reduced the number of times interventions were
interrupted due to HLTA's going to cover classes.
- As the model did not work in the way intended, we have not seen these additional
benefits. However, as a school with very limited budget and hardly any PDG it
has been invaluable as we would have struggled tremendously due to increased
numbers in September who are not financed until April. Many of these new pupils
had ALN and have benefitted from being in smaller classes due to having the 2
teachers here. We are grateful to [the cluster lead school] for allowing them to
complete their NQT sessions here.
94
Q13. Is there anything that has worked particularly well? Or that could be improved when
delivering this project? n=13
[Each row signifies an individual’s response]
Worked well:
Suggested improvements:
Consistency for pupils
-
Consistency – same person knows the
children and understands the school
Allocated to a school for a fixed period e.g.
half a term.
Consistency for the pupils and a well-
planned programme of CPD support for the
teachers.
-
The first teacher we appointed was a music
specialist, which we were able to utilise
effectively to support standards of teaching
and learning.
It is difficult to ensure that all the schools’
needs are met with this model, and I’m
unsure of how this can be improved.
Whole project.
-
Shared project amongst cluster of schools.
Flexibility of deployment of staff.
Blocks of time / ability to provide quality
non-contact time for staff with increased
workloads.
To remove the expectation that this could
work to cover ‘sickness’; not practical at all.
The fact that the colleague concerned has
been able to share effective practice, in an
ongoing operational manner, across the
phases.
-
-
Include all schools from the start who are
part of the cluster. Transparency from
cluster lead.
Opportunity for NQT to develop with others
in the cluster.
To be more effective you really need 1
teacher per school.
Nothing of which I’m aware.
I do not believe that this model is workable
in its current format, and provides an
exceptional challenge for any teacher, let
alone an NQT.
-
Full involvement in the process from the
beginning.
-
Greater transparency in the project.
95
Additional comments:
- The lack of funding in schools is a very worrying issue to continue with this model
unfortunately.
- No vacancies exist in the school. Supply can be purchased on a day to day basis.
Budget constraints will not allow the luxury of employing a member of staff.
- Budget constraints affect the employment of staff.
- Due to the issues we have experienced, I would prefer to use a supply agency so
that the cover we need is in place at the most appropriate times.
- This project worked because it was part funded by WAG. If the schools within the
cluster have to fully pay the costs, current budgets do not allow for this.
- With massive cuts and tighter budgets, the decision to use agencies is purely
financial. It can be as much as half the cost per day.
- If budget allowed, we would certainly employ a supernumerary teacher for
continuity and stability.
- My schools’ involvement with this project has not reduced the supply teachers
required at all, as we had the teacher for a set block of time that did not coincide
with any particular set of training etc. The teacher was used, for example, to allow
other staff to work on areas of school self-review and school development that
would otherwise not have been possible.
96
Annex C: Pilot cluster case studies
Case study 1: A large training focused school cluster; Cardiff cluster, lead school Fitzalan
High School
Case study 2: Special Educational Needs cover; Newport cluster, lead school Maes Ebbw,
other cluster school Ysgol Bryn Derw
Case study 3: A large cluster with a smaller number of supernumerary teachers; Wrexham
cluster, lead school Ysgol Heulfan
Case study 4: A Welsh-medium cluster; Neath Port Talbot cluster, lead school Ysgol
Gymraeg Ystalyfera Bro Dur
97
Case study 1: A large training focused school cluster
Background
The first supernumerary teacher started working across the Cardiff cluster in April 2018,
with another nine teachers starting in September 2018 – all were undertaking their NQT
(newly-qualified teacher) year, all successfully completed this by July 2019.
The management and delivery model adopted remained the same for both years of the
Project, with additional local authority funding supporting the absence management
procedures, this post has been the main point of contact for the supernumerary teachers.
A shared Outlook calendar was used to manage the teachers allocation between schools,
deployed by Fitzalan High School (the cluster lead school). The primary trained teachers
were allocated according to their skillset and the ‘best fit’ for a particular school, but if
another school needed cover there was capacity to be able to allocate a teacher. All
supernumerary teachers also received a booklet containing the procedures for each of the
primary schools. This positively impacted consistency across the cluster.
Cardiff cluster
Allocation and role
Impact
10 schools
10 teachers
Cluster lead large
city secondary
school
Each teacher worked across
3 schools each term;
experiencing all 10 schools (1
secondary and 9 primaries)
during the project.
Teachers primarily covered
teachers to work on school
improvement plans, secondly
school cluster events, thirdly
sickness.
One afternoon each week all
cluster teachers trained
together at Fitzalan High
School (the cluster lead
school).
Having consistency with the same people
worked well, the cluster schools were keen
to employ the cluster teachers. It worked
well because the cluster teachers ‘mark
the work and deliver any follow up work’;
they liaise with the class teacher –
‘whereas someone from an agency, would
just appear and go again’.
Training delivered
There is a strong teacher training ethos in the cluster lead school with training delivered
across the cluster; there are opportunities for NQTs and teaching assistants to lead
workshops or training in their area of expertise.
The cluster lead school is an NQT Aspire school, with a team delivering to primary and
secondary staff.
All supernumerary teachers participated in training every Wednesday afternoon at the cluster
lead school, this contributed to them ‘feeling part of the school’.
The supernumerary teachers also participated in all the inset training at the cluster lead
school.
‘The most successful aspect of
the project has been the quality of
teaching and learning across the
phases, and standards as a
whole.’ (Cluster lead)
98
They have also been able to attend a range of CPD (continuing professional development)
opportunities offered by the cluster primary schools.
Strengths
Challenges
Training together means all supernumerary teachers
received ‘the same message in terms of expectations,
and quality of teaching and learning and that has been
really impactful’.
They all understand the new curriculum - the philosophy
behind it and how different schools are implementing it.
The supernumerary teachers have had opportunities to
share and collaborate with each other during training.
Training is regular and planned, and not ad hoc as
opposed to agency supply teachers who receive very little
training.
In order to provide
opportunity for
supernumerary teachers
to complete medium term
planning and
assessment, they
needed to be allocated to
schools on longer term
projects.
This project has been a more ‘supportive way
for these NQTs to start their career; teaching
in a range of schools, meeting all sorts of
different children. The cluster teachers have
been able to teach across phases in one
year – some teachers have never done that
in a career’.
(cluster school headteacher)
‘There’s a whole group of
people you are going through
your NQT stuff together and
that wasn’t the case before –
you were on your own.’
(supernumerary teacher)
99
Case study 2: Special Educational Needs cover
Background
One supernumerary teacher started working across the cluster in Nov 2017. The teacher
completed their NQT (newly qualified teacher) induction during the first year of the Project.
The management and delivery model adopted remained very similar for both years of the
Project. The teacher provided cover for a long-term absence for four days at the cluster lead
school (Maes Ebbw School), spending the fifth day at the other cluster school (Ysgol Bryn
Derw) (the allocation was determined by the size of the schools). The supernumerary
teacher’s role at the cluster school varied; PPA (planning, preparation and assessment)
cover for the same class at the beginning changing to covering a range of classes for PPA
from Spring 2019.
Newport cluster
Allocation and role
Impact
2 schools
1 teacher
Four days a week in the larger
cluster lead school covering a
long-term sickness.
The fifth day in the smaller
school – releasing a range of
teachers to complete reviews
and to allow for the expertise
of the cluster teacher to be
shared with more staff.
It has been possible to plan ahead – with
the specific curriculum focus that is
needed, this has allowed the main
teacher to hand over some responsibility
for a particular subject area.
Contrasting staffing requirements between mainstream and Special schools
Agency supply teachers are not indemnified to be able to use
specific training qualifications such as ‘team teach, handling’
in the Special school. As a result there can be supply
teachers in classes unable to ‘move and handle’, even
though they are trained; this means there is more workload
on the other members of staff in the class.
Such an issue would not be so pressing for a mainstream
school, but for a Special school, there is a greater demand to
move pupils, toilet visits etc., such ‘demands on staff can be
draining’. In this cluster the supernumerary teacher has been
signed off by the headteacher to use such techniques, as she
is employed by the school.
The teaching assistants (TAs)
understand the routines and
systems better than an irregular
supply cover teacher would, with
the teacher needing to take the
lead from them as they know the
children. Unless a teacher is in a
classroom consistently as the
‘teacher’ in a Special school, the
teacher has to take the lead from
the TAs as they know the
children.
The young people have had a
massively good deal out of having
access to [the supernumerary
teacher]. This would not have been
the case with a supply, as [the
teacher] has planned for the future.
(Cluster lead)
100
Staffing challenges
A teacher’s ability to ‘step in and click with a class’ is different in
a Special school. For example, the supernumerary teacher
spent a two week block at the other cluster school. There was a
negative impact on the pupils and class team at the cluster lead
school - it is difficult to explain the situation to the learners. A
more regular weekly pattern can suit learners better; with the
supernumerary teacher spending the same day each week at
the other cluster school, and the lessons delivered in their
absence by a Level 4 HLTA (Higher Level Teaching Assistant)
each week.
However, on the other hand consistency may not be as critical
as in mainstream, when there is only one adult in a class – a
Special school class can have eight children and four adults, if
there is a change in the teacher there can still be a level of
consistency from the support staff.
‘The challenge for the sector is
knowledge of the individual
children and the knowledge of
the way a school works – this is
more important than whether
you have a certificate that says
you are a qualified teacher.
Parents want to know that
someone who knows their child
and understands the needs of
their child is in front of their
child’.
(cluster school headteacher)
101
Case study 3: A large cluster with a smaller number of supernumerary teachers
Background
There are two supernumerary teachers working in the Wrexham cluster. The cluster schools initially
looked at the number of children on role in each school in the cluster and worked out a percentage
allocation which equated to a number of days of supply cover to which each school was entitled per
term; there was some flexibility within this allocation. All of the NQT (newly-qualified teacher)’s
observations were completed in Ysgol Heulfan (the cluster lead school), where they were most
familiar with pupils and school policies such as behaviour management routines. Often, the
supernumerary teachers were used to release staff to focus on school-level priorities such as
professional development and particular projects. Some of the cluster schools have used the
supernumerary teachers’ time on a regular basis e.g. the same day per week. The supernumerary
teachers have also been involved in extra-curricular activities. The cluster finds that it is not
particularly practical to use the supernumerary teachers for sickness cover, which is too ad hoc. The
supernumerary teachers have been in high demand within the cluster.
Wrexham cluster
Allocation and role
Impact
8 schools
2 teachers
An online calendar is used to book the
teachers’ time, with allocation roughly
decided by pupil numbers. Schools
tend to book their supply cover weeks
in advance and in most cases, the
teachers are used to release staff to
focus on school-level priorities such
as professional development and
particular projects. Some schools
book a teacher on a regular schedule.
Teachers are also involved in extra-
curricular activities.
The project has allowed cluster
schools to raise standards within
schools, focusing on school
improvement priorities to a
greater extent than they might
otherwise manage. The teachers
have built good relationships with
colleagues and have benefitted
from a wider range of professional
learning, observing good practice
and experience of extra-curricular
activities.
Making the most of available Supernumerary teacher time
For this pilot project, the cluster decided to trial employing two supernumerary teachers across the
eight schools. The schools judged this to have been correct for a pilot, but of course it has meant
that schools needed to ensure their limited time with the supernumerary teachers was used to best
effect. As such, the cluster schools have made sure they allow supernumerary teachers to deliver
meaningful lessons while providing cover. They have planned and delivered lessons across upper
Key Stage 2 and lower Key Stage 3, for example delivering weekly sessions on literacy, numeracy
and science. They have also been involved in extra-curricular activities; one has supported an after-
school football club and they have attended a residential course with pupils. They have also been
involved in Forest School and one has provided valuable support in the cluster lead school’s
resource provision. The supernumerary teachers were given two weeks of planning time at the start
of the project and in September 2018 to ensure they could deliver valuable lessons while providing
cover. Learners emphasised that they find the lessons just as enjoyable and that the supernumerary
teachers bring new teaching approaches, resources and games to the classroom.
102
Using cover for specific school improvement priorities
The supernumerary teachers have primarily been used to release staff to focus on school
development priorities. For example, using the supernumerary teacher cover:
For staff to work on a formative assessment project (run by the regional education consortium).
For staff to work on levelling pupils’ work and building portfolios.
To focus on monitoring of standards of pupils’ work and to monitor subject areas (it is usually
challenging for them to release staff for such activities). This school also noted that using the
supernumerary teachers in this has allowed them to continue to improve following an Estyn
monitoring period, focusing on developing pupil learning and raising standards.
To release middle managers, each of which have been allocated a priority from the School
Improvement Plan to progress during this non-contact time.
The greatest value of the project has been the
ability for school to regularly utilise [the teacher]
for internal moderation and standardisation of
work within school. This has allowed SLT
(school leadership team) and subject leaders to
continually monitor and raise standards of
teaching and learning.
The teachers know the pupils, staff and routines of
the school which help them to deliver lessons
effectively. Pupil behaviour has been better as the
teachers understand individual pupils’ needs; this
has meant the pupils respond well towards them.
Teaching and learning in class has remained at a
high standard even when we have to release
teachers from their classes.
103
Case study 4: A Welsh-medium cluster
Background
The Neath Port Talbot cluster has piloted different ways of apportioning teachers' time over the
duration of the project. Initially, a specific apportionment was set aside for each school but this
arrangement did not respond effectively to the needs of schools as they arose. Secondly, a flexible
system of allowing schools to use teachers at short notice for the supply of illness or emergency was
piloted. This system caused a burden for Ysgol Gymraeg Ystalyfera Bro Dur, which organised
teachers' time. The cluster has now established a process of apportioning teachers' time to support
the schools' improvement plans (taking into account a sensible number of days for each school).
Ysgol Gymraeg Ystalyfera Bro Dur’s bursar keeps records of the supply teachers' time. Cluster
schools try to provide their needs to the lead school a month in advance, and the bursary provides a
fortnightly schedule.
Overall, the supply teachers have worked across Key Stages. The current system has allowed a
good balance between the needs of schools and the needs of supply teachers themselves.
Neath Port Talbot
cluster
Allocation and role
Impact
10 schools
5 teachers
The cluster has trialled
different approaches to
allocation, starting with an
equal and regular split
between schools, moving
to a completely flexible on-
demand approach and
then finally settling on
using the teachers to
support school
improvement priorities
across the cluster. The
teachers generally work
across key stages and are
allocated periods for
planning together.
Schools have used the teachers to release
staff to focus on school improvement, for
example collaborative planning for the new
curriculum. The teachers are familiar with
schools’ policies, approach and strategies,
including the Welsh Language Charter. The
project has provided consistent Welsh-
medium supply cover, which is often very
difficult to secure.
Usually, when you leave work for
supply teachers, it isn’t always
completed, or not to the standard you
want, and you have to re-do it – this
hasn’t happened. (Translation)
104
Specific benefits for Welsh-medium
cluster schools
The Welsh-medium schools regularly face
challenges in recruiting suitable supply staff
through external agencies, able to teach
through the medium of Welsh to a high
standard. It is not uncommon for schools to
make use of non-Welsh speaking supply
teachers, when faced with a lack of other
options. Supernumerary teachers address
these supply challenges, ensuring schools
can access Welsh-medium supply regularly
and with less difficulty.
Supernumerary teachers are familiar with
the school’s Welsh-language policies,
projects and approaches. For example, they
have been able to work in-line with the
schools’ Welsh Language Charter strategy
and adopt or develop appropriate
resources.
They have understood and supported the
school’s focus on Welsh language and
literacy, using the same drills and language
formats as other teachers. For example,
one supernumerary teacher reported that
running Speaking and Listening sessions
with learners was a specific performance
objective for them.
Benefits the Project has offered to
supernumerary teachers
The teachers have received time for joint planning
at the start and end of term. During this time, they
have successfully created resources, shared
teaching methodologies and focused on school-
level priorities.
The salary offered through this project is more
stable than the normal supply salary, though still
less stable that a permanent teaching post.
Teachers benefit from the status of being a teacher
with permanent roles. They have access to the
training available for other teachers, including
specific courses on themes such as ASD (autism
spectrum disorder) and safeguarding in different
schools.
They have also been invited to join school
communities, participate in social events and
create relationships with co-workers. The early
years of teaching can be very challenging and
feeling part of the community, and having
necessary support, has a positive impact on the
well-being of NQT (newly-qualified teacher) and
supply teachers.
They have been able to gain experience across
different key stages (for example, a secondary-
trained teacher gained some experience in
Foundation Phase). They are now ‘better teachers’,
demonstrated through the performance
management processes.
105