7. Discussions and implications
7.1 Introduction
A number of countries have a high percentage of small schools, often located in sparsely populated rural areas. In this chapter the principal findings relating to this study of small schools in Scotland are brought together to answer the research questions. Comparisons are made between the findings from the previous research conducted in 1996 (Wilson & McPake, 1998) and this current study. However, these must be approached with caution as the scope, sample size and response rate of each varied. Use is also made of the published literature on small schools and HMIe school inspection reports. The report concludes with a discussion of some of the implications of these findings.
7.2 The principal findings
Small primary schools
Question: What are the issues facing small schools?
Only a small body of research on the issues facing small schools emerged from this study. Some emanates from other European countries, such as Norway and Finland, that have a high proportion of small schools, and also from Australia. There is still very little published research on small schools in Scotland. The original research commissioned by the Scottish Office Education Department (Wilson & McPake, 1998) remains an exception. Most studies report that small schools in their respective countries are experiencing very similar problems caused by demographic changes, financial pressures, curricular innovation and the duality of the role of teaching headteacher. There has been no recent systematic review of the possible savings from closure of small schools. Amalgamations and federations of small schools are also under researched. In general terms over the past ten years the debate in the literature about headship has shifted from management to leadership. By 2006, both England and Scotland had developed standards for school headteachers, which it is expected that all new appointees will demonstrate. The duality of the role of teaching headteacher is the predominant feature of headship in small schools in both Scotland and abroad, but this is often not reflected in discussion about standards of headship. There are few examples of development opportunities having been tailored to meet the specific needs of small school headteachers. Programmes at the NCSL in England and also in Queensland are exceptions. The main point to emerge is that leadership in small schools is developed within a context of having to lead multiple innovations with few other staff and resources, while at the same time effectively teaching multi-age and -stage classes.
A picture of small schools in Scotland
Question: What is the profile of small primary schools in Scotland?
During the past ten years the number of primary schools in Scotland has fallen by 5% from 2313 to 2194, of which 20% (431) now have school rolls of less than 50 pupils. Three-quarters of these very small schools (326) are concentrated within ten local authorities, in which at least 50% of their schools are small. In the research sample, 47% of responding headteachers (31) of schools with 50 pupils or less perceived their school rolls to be stable or increasing in 17% of schools (11). However, over a third (23) reported rolls to be decreasing and around a third perceived the threat of closure was never far away. The number of teachers, including the headteacher, employed in the sample schools ranged from 1 to 4.5 FTEs. Thirty-six per cent of schools (24) had two teachers, the largest single number of schools, but almost a third (21) of schools were led by a single-teacher headteacher supported only by a part-time teacher. Almost all the sample headteachers reported that their schools were located in rural and/or island locations: 74% (49) in rural areas and 24% (16) on islands. In 1996, just over half (372) of the sample headteachers reported that their schools were geographically isolated, compared to 39% (26) in 2006. Almost a quarter (16) of sample headteachers in 2006 also associated geographical isolation with feeling stressed. A comparable figure for 1996 is not available. Accommodation in small schools appears to have improved in the past ten years: only 14% (9) of sample headteachers reported that their school had poor or inadequate accommodation compared to 17% in 1996, but 86% (57) indicated that the facilities for games / PE were inadequate compared to 53% in 1996. A small increase in the availability of e-mail within schools can be seen with 39% (26) of headteachers reporting that they had access to it compared to 37% in 1996. (Caution must be exercised with this finding, as it does not correspond with the percentage of those who claim to use e-mail as a management tool in 6.2.)
Profile of small school headteachers
Question: Who are the small school headteachers and what characteristics do they share?
A profile of small school headteachers emerges from this research. The overwhelming majority of sampled headteachers were female (92% in 2006, 81% in 1996).The surveyed group was older than their counterparts had been in 1996. The majority (52%) were over 50 years of age, 44% aged between 35 - 50 and only 5% under 35. Most (74%) had attended a Scottish college of education, 27% a Scottish university and 20% other institutions. The percentage holding a College Diploma in Education had declined from 77% in 1996 to 52% in 2006. There had been a corresponding rise in the number of graduates (not necessarily from a Scottish university) from a third in 1996 to 45% in 2006. For the majority (72% of surveyed headteachers) their current post was their first headship compared to 82% in 1996. Most of the surveyed headteachers had been in post for ten years or less, but approximately a third (23) had remained in the school in which they were headteacher in 1996. Forty-six per cent of surveyed small school headteachers originally came from a rural area, and 32% had been educated in a small school. This is a slight increase over 1996 when 41% came from rural areas and 31% had attended a small school. The majority of surveyed headteachers (69% in 2006, 71% in 1996) lived outwith their school's catchment area. Over three-quarters of small school headteachers in the sample (76% in 2006, 79% in 1996) had undertaken some management training, but for most this was after taking up their appointment. A small percentage of surveyed headteachers, 12% (8) had either completed (9%, 6) or were near completion (3%, 2) of the Scottish Qualification for Headship. Headteachers in small schools appeared to be more settled than their counterparts had been in 1996: 52% were content to remain in post (47% in 1996) and only 9% (6) wanted to apply for the headship of a larger school compared to 21% in 1996.
Leading and managing small schools
Question: Is there a small school leadership style?
Almost all of the sample headteachers were teaching headteachers of small schools. Only 6% (4) led federated or clustered schools, compared to none in 1996. The essential nature of being a teaching headteacher of a small school is that in effect it entails undertaking two jobs: teaching and leading a school. The predominant feeling expressed by small school headteachers was one of juggling, with lack of time identified as a significant challenge. Despite the changes that have taken place during the past ten years, small school headteachers in 2006 expressed more positive views towards change than their counterparts had in 1996: 52% (96% in 1996) thought it was a period of rapid curricular change; 64% (92% in 1996) management change, and 20% (40% in 1996) societal change. However, most sampled headteachers still reported that these changes produced particular pressure for small schools (94% in 1996, 90% in 2006) and reported levels of stress were high (59% in 2006; 66% in 1996). Sampled headteachers' main complaint in both 1996 and 2006 was with the pace of change: reported by 52% in 1996, 57% in 2006. Despite this, more small school headteachers were prepared to consider each change on its merits: 56% in 2006 compared to 35% in 1996. A number of sampled headteachers identified personal qualities that they thought helped headteachers lead and manage small schools. These include flexibility, adaptability, ability to organise and prioritise, and a sense of humour. Leading by example, consulting and communicating, being a good teacher and knowing the children they teach were all considered to be essential qualities for a small school headteacher. The leadership style that emerged from both survey and case study evidence in 2006 was composed of three elements: a vision for the school based upon learning and teaching; a collegiate approach to leading and managing the school, and the ability to utilise all available resources both within and outwith the school. Within schools, experienced and empathetic teaching colleagues were the biggest source of support to small school headteachers. All the sample heads recognised the need to communicate with the community and appreciated the support they received from it. The percentage of small school headteachers consulting parents formally increased from 67% in 1996 to 89% in 2006, and informally from 80% in 1996 to 89% in 2006. Most small school headteachers were skilled networkers and utilised both formal and informal contacts to support themselves and expand the opportunities for pupils and other staff. The most popular method was informal contact with other headteachers. Significant challenges to effective leadership of small schools identified by the headteachers included: uncertainty arising during periods of acting headship; a local authority's policies regarding placing children with additional educational needs in small schools; absent or unskilled teaching colleagues; probationer teachers; and isolation from the main stream of educational practices.
Support and development
Question: What support and development opportunities are available to small school headteachers?
Headteachers in small schools utilised a number of sources of support and development. In both 1996 and 2006 the most frequently used form of support was informal discussion with other headteachers (96% in both 1996 and 2006). A large majority of small school headteachers relied on advice from their local authority (91% in 1996, 80% in 2006). Typically this entailed termly visits from service managers/quality assurance officers to help them with school development plans and to monitor progress. Reliance on their own reading and analysis of documentation from the Scottish Executive had declined from 90% of small school headteachers in 1996 to 76% in 2006. The percentage of sampled headteachers who mentioned taking advice from HMIe increased from 38% in 1996 to 68% in 2006. Headteachers identified three types of schools clusters which could help them: 91% of small school headteachers in both 1996 and 2006 used informal exchanges with other schools; 50% in 2006 (61% in 1996) developed joint policies and materials; and 32% in 2006 (25% in 1996) engaged in full sharing of resources. The percentage of surveyed headteachers belonging to small school networks remained constant over the 10 years at 47% of respondents. Use of e-mail had increased among small school headteachers from 38% in 1996 to 89% in 2006, although caution must be exercised with this finding. (See Section 6.2.) A significant proportion of small schools shared in-service days, however, this had declined from 92% in 1996 to 80% in 2006. The percentage of small school headteachers reporting inadequate clerical support had declined from 38% in 1996 to 18% in 2006. Small school headteachers consulted their staff both formally (82% in 2006, 91% in 1996) and informally (94% in 2006, 89% in 1996), with a slight shift to informal methods of consultation. The percentage consulting School Boards also increased from 42% in 1996 to 61% in 2006.
7.3 Discussion
Changes over the ten years
Clearly major changes have occurred in the ten years between 1996 and 2006 that separate the two studies of small school headteachers in Scotland. Devolution and a Labour and Liberal Democratic Partnership had introduced a host of new educational policies, and more changes are promised in the manifesto of the Scottish National Party's new administration ( SNP, 2007). Both groups of small school headteachers in the two studies were trying to implement initiatives, albeit different ones. In 1996, we (Wilson & McPake, 1998) argued that successful management of change required headteachers who could undertake a realistic appraisal of their current situation, develop a shared vision of the future, and plan the first few practical steps for implementation. For many of the headteachers working in small schools, this was implicitly understood. The 1996 respondents articulated a vision of the future firmly based on benefits for the children and communities which they served, and achieved this largely through their efforts as curriculum leaders. They neither perceived themselves to be, nor referred to themselves as, educational managers but pragmatically led their schools by continuing to develop as teachers on to which they had bolted a set of specific leadership and management activities to meet the particular circumstances in which they operated. They demonstrated a contingent management style which took full account of the particular circumstances in which most small school headteachers found themselves as teaching headteachers with few other colleagues or resources to help them. Their main concerns at that time were the pace of change, the growth of management activities, the amount of paperwork, the lack of clerical support and the invisibility of small schools in national educational policy.
Have things changed in the intervening ten years? In fundamental ways the answer is 'No'. The main element of the job remains one of being a teaching headteacher, with all its attendant pleasures and difficulties. Most small school headteachers were still operating with a contingent style of leadership that took account of their particular situations, albeit there was more reference to consulting supportive colleagues and using clerical staff than there had been in 1996. Most of the small school headteachers who participated in the 2006 research operated with a very similar philosophy to the one that underpinned the work of the group in 1996. (35%, 23, of the 2006 sample, were still in the posts they held in 1996, and therefore, participated in both studies.) Most still enjoyed teaching and leading small schools and were clearly committed to maintaining small schools for the benefit of children and rural communities in Scotland. Case Study 4 headteacher encouraged others to be " very positive". She actually liked being " the boss, not having to follow someone else's management line" and felt there was more scope for action in small schools. Most still preferred to consult informally with other headteachers than use any other source of support. Others pointed out that there were few if any discipline problems, that local communities were extremely supportive and that parents were more than willing to provide additional resources. Most also thought that pupils in small schools became independent sooner than those in larger schools and were willing to take responsibility for themselves and for younger children. However, these positive aspects did not prevent respondents from recognising that many small school headteachers face serious problems; time (or lack of it) was still perceived to be the most disabling. Case Study 4 headteacher identified the lack of it - " time just isn't there" - as a serious problem facing small school headteachers. She also recognised the need to have a strong team and said that " things were great when it works but you can imagine in a school that didn't get on, it would be very difficult." The consensus appeared to be that when things were going well a small school headship could be one of the " best jobs in the world" but the question remains: is it sustainable given the demands currently being made of headteachers?
A sustainable job?
Case study headteachers were asked whether they thought the job of teaching headteacher was sustainable: their answers were qualified. Reluctantly, respondents expressed concerns which focused on the pressures of juggling, the need for additional resources, recruitment difficulties and wider societal expectations of education. Although headteachers' attitudes towards change had changed for the better since 1996, there was still a perception that the changes had placed particular pressures on small schools (94% in 1996; 90% in 2006). In addition, the reported level of stress amongst small school headteachers was high and had improved only slightly since 1996 (66% in 1996; 59% in 2006.) Case Study 1 headteacher thought that in the future "it will become more difficult to fill posts [in small schools], the last job advertised around here only got one application, the acting HT won't apply for it." Reluctantly, she concluded that
"…the teaching head job is not sustainable. The only reason I took this job [as a cluster headteacher] was that I couldn't sustain the level of quality in learning and teaching and management that I have given all those previous years." (Headteacher, Case Study 1)
Another headteacher who was highly committed to small schools, reflected on the job of teaching headteacher.
"Is the job sustainable? In all honesty, no. Just the way education is, just the way society is, we are teaching children to go into a very different world, we have to think out of the box. Curriculum for Excellence is making us think about it, it is the quality, the quality of teaching. We have to be in the classroom 90% of time. It is about giving them quality. I feel that I am juggling plates. A manager of a school needs to be focused on managing a school - all aspects. It is about your health as a manager. I sometimes think I never get off the mark with the paperwork. Got to prioritise it, but there is so much of it nowadays, all this instant access, the pace of it is too fast". (Headteacher, Case Study 2)
A similar decision had been reached by the headteacher in Case Study 3.
"I don't think the job is sustainable. I've come to this in the last year. The workload is huge, demands on both jobs so huge [teaching and managing] , can be very stressful. Burn out has not happened to me, my background helps, so it hasn't happened. The job is changing." (Headteacher, Case Study 3)
The headteacher in Case Study 9 didn't know whether small schools were sustainable. She pointed out the disproportionate effect that a demotivated teacher, for instance a management support teacher who views herself as a supply teacher, and/or a probationer, who requires more support can have on a small school and the workload of its headteacher. She questioned her own authority's practice of putting probationer teachers in small schools and then not employing them which resulted in a constant turnover of a third of her staff on an annual basis. These factors have a disproportionate effect on very small schools, as do HMIe inspections.
There were also wider influences affecting small schools. The acting headteacher in Case Study 5 explained that demographic trends were causing the school roll to drop: " people don't have children, a lot of people come from the south, stay 2-3 years and move on." Employment trends were also affecting the school roll of Case Study 6 in whose catchment area the number of workers employed in the forestry and hydro-electric industries had declined.
The lack of available training for those who wish to teach in or lead small schools was raised by a number of headteachers. The headteacher in Case Study 7 thought that
"…the trouble is that a lot of training is tailored for bigger schools. People produce resources but I wonder how are we going to use this in small schools. It raises problems. We have to cover all topics and still be fresh for children even when they have covered the topic before. I sometimes find it lonely if there is no other teacher you can talk to about the curriculum." (Headteacher, Case Study 7)
A similar problem, related to initial teacher education, was raised by a student on placement from an Institute of Higher Education in Case Study 2.
"The tutors [of the BEd course] never even mentioned teaching in a small school. They never say one day you might have a class of primary 1-4. I was really nervous [coming on this placement] …We should at least talk about teaching in a rural school." (4 th year BEd student)
Many of these issues, outwith the control of small school headteachers, will need to be addressed if the enthusiasm and commitment which many of them show towards their schools, pupils and communities are to be harnessed fully. We would argue that a key to the success of small school headteachers and their ability to cope lies in the support and training they are given.
Available support
This research questions whether the support available to small school headteachers has increased during the past ten years to a level that enables them to manage a school effectively and also deliver a 21 st century curriculum without experiencing undue stress. In some respects support has increased but in other ways it has failed to develop. Clerical support staff are more evident than they were in 1996, but in many small schools this is still not provided by means of a full-time post. In both 1996 and 2006 the most frequently used form of support by small school headteachers was informal discussions with other headteachers (96% in both 1996 and 2006), although a very high proportion also used their local authority's quality assurance officers. The implication is that small school headteachers tend towards being a self-reliant group who value most the advice of colleagues in similar posts. The obvious danger is that this group may find itself not only geographically isolated but also cut off from the mainstream of educational ideas. There are already signs that the national influence on small schools has declined over the period. Fewer small school headteachers read and analyse Scottish Executive documentation than they did ten years ago (76% in 2006 compared to 90% in 1996). Very few used LTS's website. Few had received any form of management training before their appointment. Very few had completed or were undertaking the SQH - an issue that may need to be considered in any future evaluation of the standard for headship and its relevance to small schools. A large majority relied on advice from their local authorities, through which national priorities may have been filtered. Typically, small school headteachers looked to local authority service managers to help them with school development plans and quality assurance. In addition they were aware of HMIe's standards (an increase from 38% in 1996 to 68% in 2006) over a period when HMIe's influence in educational policy making is thought to have declined. Reliance on supportive colleagues, clerical staff, parents and the community were also evident.
Disappointingly, given small school headteachers' preference for networking, clustering has not developed as might have been anticipated in 1996. The percentage of small school headteachers belonging to a small school network remained constant over the past ten years at 47% of respondents, although some report that their local authorities have withdrawn funding for such activities. Informal clustering of schools remained high at 91% in both 1996 and 2006. However, the popularity of clusters as groups in which to develop joint policies and materials has declined from 81% in 1996 to 50% in 2006, and less than a third of respondents report full sharing of resources, which would help them teach a multi-age and -stage curriculum. These arrangements are areas that could be developed further in order to relieve the pressures reported by small school headteachers.
7.4 In conclusion
In conclusion one of the respondents to the survey pointed out the need to " talk up" small schools at a time when around a third of them feel that they are under threat from possible closure and 70 small schools have closed during the past ten years. It is certainly not the intention of this research to fuel that debate, nor to criticise the effectiveness of small school headteachers, but rather to consider objectively the role of the small school headteacher. By any standards the current role of teaching headteacher is a complex one. Small school headteachers need to demonstrate a high level of expertise in teaching multi-age and -stage classes while at the same time providing effective whole school leadership, usually by operating with a contingent leadership style. Successful leadership of small schools requires an ability 'to juggle' a wide range of competing priorities, with few colleagues or resources. In some ways the people who hold these posts are a self-selecting group, whose qualities fortuitously match the essential requirements for the job. Currently many come from rural areas; their diverse experiences help them cope and they are committed to the pupils. It cannot be assumed that this set of circumstances will remain unchanged. Current incumbents are also an ageing group, who have learnt their skills largely by teaching in small schools. The message from this research is that they need adequate support if they are to maintain their unique style effectively for the benefit of the children who live in some of Scotland's more remote communities.