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Schools - prescribing the minimum annual number of learning hours: consultation analysis

A report setting out a quantitative and qualitative analysis of response to a consultation prescribing the minimum annual number of learning hours that was held in 2023.


7. Defining learning hours

The proposed definition of learning hours (Q4) elicited comments from several respondents. Some respondents believed it would need to be clarified further before it could be implemented in regulations. Others made clear that their support for the proposal was dependent on the nature of the definition used.

Learning hours were defined in the consultation paper as:

“Learning hours are the period of teaching that learners receive within the school day. In most cases, they do not include lunch and other break times or extra-curricular activities or provision such as breakfast clubs that may take place around the core school day. It has been accepted practice for at least the last 40 years that around 25 hours per week (or 950 hours per academic year) of teaching time is made available in most local authority run primary schools; and 27.5 hours per week (or 1045 hours per academic year) in most local authority run secondary schools.”

7.1 Learning takes place in many settings

Just under one third of respondents provided further comment in Q4. By far, the most prevalent theme, raised by many who commented, was to highlight that learning can happen in many different ways and does not necessarily occur in a classroom led by a teacher. Several simply highlighted that this is the case, suggesting that the definition implied that learning hours were the same as teaching hours. Others advocated for other ways of learning such as non-curricular activities, web-based learning, homework, supported study, breaks and vocational or community learning, to be incorporated into the definition of learning hours.

It was largely felt that the definition suggested in the consultation document was too narrowly defined and should recognise the value of wider forms of learning. Several expressed concern that if wider activities were not included in the learning hours definition, they might not be prioritised by schools in the future.

“The prescription of learning hours must not artificially restrict the ability of individual schools and local authorities to offer appropriate 16+ Learning Choices and Opportunities for All, which involve a wider range of learning activities. Work experience, including extended work experience, is used successfully to meet the needs of some pupils after careful consideration of these needs. The prescription of learning hours must not artificially restrict the ability of individual schools and local authorities to offer work experience as a suitable preparation for transition to a positive destination, where appropriate.” – West Lothian Council

“With the recent pressure on availability and time spent on “non-academic” activities such as music and other artistic endeavours, I would like to see clear confirmation that such topics are included within the learning hours definition and aren’t sacrificed in order to meet this potentially new legislative requirement. Any reduction in such activities is a reduction in the quality of learning and opportunity, in my opinion.” – Parent

“Describe what these hours may entail - for many, play-based learning does not meet formal academic yet offers so much value. Pupils with additional support needs may need to have a curriculum focus on life skills, and this needs to be made explicit and clear.” – Teacher

Some highlighted that breaks and lunchtimes in special schools involved learning that has been designed, facilitated or led by a GTCS (General Teaching Council for Scotland) registered teacher, and the EIS argued these should be included in the definition. Perth and Kinross Council noted they currently exclude breaks and extra- curricular activities in their learning hours delivery but welcomed the opportunity presented by the proposals to recognise non-teacher-led activities, calling in particular for a statutory soft start/end to each day within a 30-hour weekly framework.

Some local authorities that disagreed with the proposed definition provided more detail on their view in answer to this question and stated it did not reflect current educational structures and delivery approaches. For example, one stated that defining learning hours as delivered only by teachers would limit their ability to create innovative solutions for different communities.

7.2 Further definition required

Respondents commonly requested more details on what activities would be included in the definition of learning hours and felt it necessary to ensure clarity over what was to be provided by local authorities. Respondents frequently mentioned aspects of education that did not necessarily involve teacher contact hours or class-based activities but contributed to positive outcomes for pupils. These included sports, vocational activities, extra-curricular clubs, trips and outdoor learning, play, concerts and plays, parties, homework, and parental engagement activities. It was commonly felt that these should be included in the definition of learning hours, or were valued features of education that should be retained should minimum learning hours be introduced.

“If you agree that play is learning, which based on a lot of the new guidance you do - then breakfast clubs, breaks and after school clubs, assuming good provision and access to free play is no less educational than core school hours… why not include the free play sessions in the requirements. With the gained time, add breaks.” – Parent

In Q1, a few respondents suggested that the proposed definition of learning hours is not in line with the underpinning legislation in Section 2ZA(12) of the Education (Scotland) Act 1980. The EIS felt that instead of learning hours, the proposal should focus on defining ‘hours of school education’.

“The EIS believes that the proposed definition in the consultation document would, if adopted, see subordinate legislation in conflict with the statute under which the regulations are constituted.” – EIS

7.3 Agreement with the definition

Several respondents, primarily individuals, left a comment explaining why they agreed with the definition provided, mostly describing it as clear and straightforward. A majority of participants in surveys conducted by respondents agreed with the definition, one by Pedagogy, Praxis and Faith Research and Teaching Group, School of Education, University of Glasgow and one by the CLD Standards Council Scotland. However, the CLD member survey found just over half in favour of the definition (55%), with some concerns expressed that other forms of learning were not included.

Two local authorities - East Dunbartonshire Council and East Renfrewshire Council - responded that the proposed definition aligned with their approach to defining learning hours. However, East Dunbartonshire Council cautioned that quality was more important than quantity, while the East Renfrewshire Council highlighted that pupils may not attend school for many reasons and that breaks and lunches should be included for special schools where appropriate. East Renfrewshire Council also suggested changing the wording of the definition to: ‘Learning hours are the period of teaching that learners are offered within the school day. In most cases, they do not include lunch and other break times or extracurricular activities or provisions such as breakfast clubs that may take place around the core school day.’

7.4 Aspects to consider in any definition

Specific suggestions were made by several respondents of points the Scottish Government should consider if prescribing learning hours. As well as including non- teacher-led activities in the definition, respondents felt the following should be considered:

  • Registration periods that do not involve learning.
  • ‘Soft’ outcomes, such as improved wellbeing or being ready to learn
  • Partnership delivery arrangements in the senior phase.
  • Secondary school courses and associated teaching hours should align with prescribed hours and allow time for learning consolidation prior to exams
  • The quality of teaching delivery
  • Travel time, e.g., for senior pupils travelling between sites or in rural areas.
  • Lowering core learning hours to enable local flexibility regarding the remaining delivery hours

The EIS argued that the distinction between teaching hours and learning hours in the suggested definition in the consultation paper is unnecessary. Where learning hours exceed 22.5 hours in primary schools, they are delivered to a class by another teacher. The EIS also expressed concerns about the lack of reference in the proposals to the Scottish Government’s commitment to reduce teacher contact time. Further, the EIS cautioned against increasing administrative burdens on teachers and on using teacher planning processes as a means of ensuring accountability for the number of hours provided.

The GTCS’s response noted that the suggested definition seemed to equate learning hours with teaching time and called for greater clarity about whether learning hours would be delivered by a suitably qualified teaching professional.

7.5 Breaks

Several respondents commented on breaks and rest periods. Most emphasised the need for pupils to take sufficient breaks or argued that fewer learning hours would aid concentration and energy levels and could help reduce learning overload. One felt having breaks every 45 minutes would promote relaxed movement between classes to benefit pupil wellbeing, another highlighted the benefit of free school lunches for eligible pupils. Another felt traditional ‘teaching’ was not the best learning approach:

“Asking to concentrate in class for that length of time is too much. They need less time in class doing directed lessons and more time working on their own doing independent learning.” - Teacher

A small number of respondents commented that the definition should not include breaks or lunchtimes.

7.6 Protecting time with a teacher

Ensuring children have protected time with a teacher was raised by several respondents, including two organisations - The NASUWT and the Pedagogy, Praxis and Faith Research and Teaching Group, School of Education, University of Glasgow.

These respondents indicated it would be useful to ensure learning hours with teachers were maintained, particularly in the context of recruitment challenges. A few mentioned that maintaining teaching input was necessary following the pandemic and for pupils with additional support needs. Others also called for more learning hours than was proposed.

“I do not agree with the total hours per week. Secondary schools should be longer than the current 27.5 hours per week. The example of reduced teaching hours negatively impacting on pupil attainment can be seen as a result of COVID and the detrimental impact this has had on children's wellbeing, education and attainment.” – Parent

Contact

Email: leanne.gardiner@gov.scot

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