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Central Advisory Councils for Education

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Section 4 of the Education Act 1944 set-up two Central Advisory Councils for Education, one for England and one for Wales and Monmouthshire.[1] The purpose of the councils was to advise the Minister of Education upon matters connected with educational theory and practice,[2] the advices were used to refine educational policy and develop educational institutes.[3] Starting with a terms of reference, the councils would carryout an enquiry and produce a report which would be submitted to the Minister of Education who could choose to publish the report.

Central Advisory Councils for Education (separate councils for England & Wales)
Statutory Advisory Councils overview
Formed1945
Preceding Statutory Advisory Councils
Dissolved1967–1968
Superseding Statutory Advisory Councils
  • Multitude of non-statutory advisory bodies
JurisdictionEngland & separately Wales
StatusDefunct
Mottof
Parent departmentMinistry of Education
Key document
  • Section (4) of the Education Act (1944)

Purpose of the councils

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Rab Butler who was responsible for passing the Education Act 1944 (aka the Butler Act), elaborated on the purpose of the councils when the bill was moved for a second reading in parliament:

the Minister is to be advised by two councils whose establishment is an earnest of our intention that the central Ministry shall not only gird on the sword of resolution, but shall hold aloft the torch of true learning.

— Rab Butler, President of the Board of Education, Hansard 19th January 1944 - Volume 396 - Column 210

To "hold aloft the torch of true learning"[4] metaphorically described the outcome from applying current educational theory and best practice to improve education.[2][3] To achieve such an outcome, evidence & research based advice was needed to influence government thinking, justify policy change, and set priorities so leading to the reallocation of resources used for education.[5] The enquiries by the councils followed by the publication of their findings in reports were simply the first step to achieving the change needed to improve children's lives for the better.[6]

The reports, socialised out the current practices in education, both good and bad.[7] They often legitimised some sensible ideas for educational change which were previously considered radical & progressive by the educational establishment.[8] They had an unequalled ability to obtain a broad consensus for change across both the public and education profession.[9] They established a blueprint for best practice and encouraged its adoption and they set parents expectations for the education of their children.[10][11] Most importantly of all, they economically demonstrated the relationship between education and growth which helped to justify the significant post-war expansion in public education services.[12] The reports often achieved their aims slowly by influencing government though exerting political pressure and extracting commitments which eventually led to the change needed to improve the lives of children.[13]

The councils were learned, independent and respected. They received and absorbed evidence across a diverse range of opinions and undertook detailed research and surveys to support their findings.[14][15][16] The result was the reports often became the definitive documents on a particular education service and were sometimes best sellers in their own rights.[17]

To this purpose and over their 22 year lifespan, the councils investigated some of the most pertinent educational questions of the time with the results of their most important enquiries being published in reports by His Majesty's Stationery Office (HMSO).[18] In addition the Ministry of Education sometimes received advice in the form of reports from the councils but then chose not to publish, these are on public records at the National Archives in Kew.[19]

Composition of the Councils

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The Minister of Education appointed the chairman & members for each council and supplied the secretariat from the Ministry of Education.[20] The Education Act obliged the minister to appoint both persons who had experience of the public education system as well as persons who had an experience of educational institutions not forming part of that system,[note 1][21] the original aim was to enlist the help of representatives of different aspects of the national life, whether they be industrial, scientific or cultural.[4] This resulted in an eclectic mix of people on the council as evidenced by the membership of the inaugural English council, which was appointed by Rab Butler, the first Minister of Education:[22][23] -

Inaugural (1945) Central Advisory Council for Education (England)[22][23]
Name Role Position Representing
Sir Fred Clarke Chairman Director of the Institute of Education in the University of London Educationalists

& Academics

Mr. W. O. Lester Smith Member Director of Education, Manchester.
Sir Charles Darwin, K.B.E., M.C., F.R.S. Member Director, National Physical Laboratory
Sir Henry Clay Member Principal, Nuffield College, Oxford
Professor B. Dobrée, O.B.E. Member Professor of English Literature, Leeds University
Professor R. A. B. Mynors Member Professor of Latin, University of Cambridge.
Professor Willis Jackson Member Professor of Electro-Technics, University of Manchester.
Professor J. A. Scott-Watson, C.B.E. Member Chief Education and Advisory Officer, Ministry of Agriculture.
Miss M. F. Adams Member Headmistress Croydon High School for Girls Practitioners

Inside the

Public

Education

System

Mr. J. F. Wolfenden, C.B.E. Member Headmaster, Shrewsbury School.
Mr. Ronald Gould Member Headmaster, Welton School, Somerset
Miss E. Dodds Member Warden, Bishop Creighton House, Fulham
Lady Allen of Hurtwood Member Chairman of the Nursery School Association of Great Britain
Dr. C. F. Brockington Member School Medical Officer, Warwickshire County Council.
The Right Reverend the Lord Bishop of Bristol Member Secretary, Council of Church Training Colleges, and Christian Education Movement. Educators

Outside

the Public

Education

System

Rev. Dr. A. W. Harrison[23] [note 2] Member Secretary, Methodist Education Committee.
Lieutenant-Colonel the Honourable N.A.S. Lytton-Milbanke Member National Catholic Youth Association.
Sir Phillip Morris, C.B.E. Member Director-General of Army Education.
The Honourable Mrs. Youard. Member Rural Education.
Mr. Harold Clay Member Transport and General Workers' Union Employers

& Unions

Sir Claude Gibb, F.R.S. Member General manager and Director of C. A. Parsons & Co. Ltd.
The Honourable Josiah Wedgwood Member Managing Director, Josiah Wedgwood & Sons Ltd.
Miss M. S. Smylie Secretary Ministry of Education, H.M. Inspector Secretariat
Miss J. M. Crafter Assistant Secretary
Miss M. E. Forsyth Clerk Clerk

History

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The constitution of the councils only changed organically over the first decade as originally the tenure of membership was set on a rotating basis allowing for some change to the council composition whilst still ensuring continuity,[24] this organic change included the fact some councillors resigned of their own volition or passed away and those vacancies were filled, during this historical phase there was only one change in chairman as Sir Fred Clark was replaced by Samuel Gurney-Dixon.[23][25][26]

This way of operating changed in 1956 when Sir David Eccles started to re-constitute the main English councils for each new enquiry, subsequently it was reconstituted 3 times by the Education Minister of the time:[27] -

  • In March 1956, by the minister, Sir David Eccles under the new chairman, Sir Geoffrey Crowther[28][29][30]
  • In March 1961, by the minister, Sir David Eccles under the new chairman, Lord Amory,[31][32] who resigned during his tenure forcing the vice-chairman, John Newsom to then step-up to chairman[33]
  • In August 1963, by the minister Sir Edward Boyle under the new chairwoman, Lady Bridget Plowden, with John Newsom dropping back down to vice-chairman.[34][28][35]

Organisation

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The councils were public bodies within the government of the United Kingdom, for context : -

  1. The role of Minister of Education was created under the Education Act.[3]
  2. The Prime Minister appointed a member of parliament to the role.[3]
  3. The Education Minister produced an annual report for parliament.[36]
  4. The Education Minister was scrutinised by parliament and its committees.[37]

The two advisory councils fitted into this organisation as follows: -

  1. The central advisory councils were created under the Education Act so they were statutory.[1]
  2. The Education Minister appointed the chair and members of the council.[20]
  3. The Education Minister provided terms of reference for the enquiries.[2]
  4. The councils could also set their own terms of reference and could make independent enquiries as they saw fit.[2]
  5. By statute the annual report of the Ministry of Education included information on the workings of the councils.[36]
  7. This information enabled parliament and its committees to scrutinise the work of the councils.[38]

This model resulted in the councils being partially autonomous rather than completely sub-ordinate to the Minister of Education.

Education ActPrime MinisterParliament
Minister of EducationParliamentary Report
Enquiry Remits
Central Advisory Councils
Own Remits
Sub-Committees
Legend: -Written ArtefactsGovernment Bodies

Remits of the published enquiries

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Each of the enquiries undertaken by the councils were under a terms of reference (aka remit) which defined the scope & bounds of each enquiry. The councils either enquired on the questions raised by the minister or on questions independently identified by the councils themselves.[2]

Remits for the Published Enquiries Undertaken by the Central Advisory Council for Education (England)
Enquiry Date of Inception Chairman of Council at Inception Education Minister at Inception of Enquiry Enquiry Incepted by Terms of Reference
School and Life 1944[39] Sir Fred Clarke[23] Rab Butler[39] Council with the agreement of the minister[39] "The subject to which the Council proposes to address itself first is the transition from life at school to independent life. It will examine the content and methods of education in those schools from which the actual transition is made, and proceed to the influence of earlier education from the nursery school onwards, and at the other end of the scale to the special problems of part-time education. The general purpose of the enquiry will be an appreciation and criticism of existing education as a preparation for a useful and satisfying life."[39]
Out of School 1947[40] Sir Fred Clarke[25] George Tomlinson[40] Minister of Education[40] "To consider and report on the natural interests and pursuits of school children out of school hours; the provision made for these outside their homes; the value of such provision and the desirability of further or different provision; and the extent to which school work and activities can and should be related to and develop these interests."[40]
Early leaving 1952[41] Sir Samuel Gurney-Dixon[26] Florence Horsbrugh[42] Minister of Education[42] 'To consider what factors influence the age at which boys and girls leave secondary schools which provide courses beyond the minimum school-leaving age; to what extent it is desirable to increase the proportion of those who remain at school, in particular the proportion of those who remain at school roughly to the age of 18; and what steps should be taken to secure such an increase.'[41]
15 to 18 1956[43] Sir Geoffrey Crowther[44] Sir David Eccles[43] Minister of Education[43] "To consider, in relation to the changing social and industrial needs of our society, and the needs of its individual citizens, the education of boys and girls between 15 and 18, and in particular to consider the balance at various levels of general and specialised studies between these ages and to examine the inter-relationship of the various stages of education".[45]

This was extended by the education minister (Lord Hailsham) on 1 July 1957 through issuance of circular 326: -[45][46]

"to consider whether any, and if so, what arrangements should be made for the examination of those secondary school pupils for whom the General Certificate of Education was recognised to be inappropriate"[45][46]

Half Our Future 1961[47] Lord Amory Lord Eccles[47] Minister of Education[47] Original: - 'To consider the education between the ages of 13 and 16 of pupils of average or less than average ability who are or will be following full-time courses either at schools or in establishments of further education. The term education shall be understood to include extra-curricular activities.'[48]
Children and their Primary Schools 1963[49] Lady Plowden JP Sir Edward Boyle[49] Minister of Education[49] 'To consider primary education in all its aspects and the transition to secondary education'[50]

Own Remits

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The unique difference between the councils and the commission which proceeded it or the committees which followed was the ability to set its own terms of reference, independently of the minister of education.[51][52]

Major published reports

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English publications

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The following are the six reports published by the English council: -[53]

Date Report Title Parts Pages Chairman at Publication Minister of Education at Publication
1947 School and Life[54] One Part 96 Sir Fred Clarke Ellen Wilkinson[55] [note 3]
1948 Out of School[56] One Part 519 Sir Fred Clarke George Tomlinson
1954 Early leaving[57] One Part 99 Sir Samuel Gurney-Dixon Florence Horsbrugh
1959 15 to 18[58][59] Volume I - The Report[58] 519 Sir Geoffrey Crowther Geoffrey Lloyd
1960 Volume II - The Surveys[59] 240
1963 Half Our Future[60] One Part 298 John Newsom CBE Edward Boyle
1967 Children and their Primary Schools[61] Volume I - The Report[61] 555 Lady Plowden JP Anthony Crosland
1967 Volume II - The Research & Surveys[62] 633

Welsh publications

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The following are the ten reports published by the Welsh council: -[63]

Date Language Report Title Pages Chairman
1949 English & Welsh The Future of Secondary Education in Wales[64] 160 Professor Richard Aaron
1951 English & Welsh The county college in Wales: Y coleg sir yng Nghymru!.[65] 126 Professor Richard Aaron
1953 English Arts in Education; Music in the Schools of Wales[66] 53 (not named in bibliography)
1953 English The Place of Welsh and English in the Schools of Wales[67][note 4] 110 (not named in bibliography)
1954 English & Welsh The Arts in Education; Drama in the Schools of Wales[69] 53 A.B. Oldfield-Davies
1956 English & Welsh Arts in Education; Art and Crafts in the Schools of Wales[70] 88 A.B. Oldfield-Davies
1960 English & Welsh Education in Rural Wales[71] 168 A.B. Oldfield-Davies
1961 English & Welsh Technical Education in Wales[72] 146 A.B. Oldfield-Davies
1965 English & Welsh Science in Education in Wales Today[73] 169 Llewellyn-Jones, F.
1967 English Primary Education in Wales[note 5][74] 646 Charles Gittins
Welsh Addysg Gynradd Cymru[75] 668 Charles Gittins

Unpublished enquiries

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England

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The English council additionally completed five enquiries where the Minister of Education chose not to publish the reports, also one enquiry completed but with just a memoranda and one enquiry was not completed: -

  • 1947 - 1948; - Education of the young worker (report produced - unpublished).[76][77]
  • 1948 - 1951; - The crisis in the primary school (report produced - unpublished).[78][79]
  • 1949 - 1949; - County College (memoranda produced - unpublished).[80]
  • 1948 - 1950; - Relations between technical and general education.[81]
  • 1951 - 1954; - Premature leaving from secondary schools (report produced - unpublished).[82]
  • 1949 - 1952; - The relation between school and university (report produced - unpublished).[83]
  • 1950 - 1954; - The age of compulsory school attendance (report produced - unpublished).[84]

Wales

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The Welsh council was smaller than its larger English counter-part and dealt with less significant enquiries but all ten of its enquiries resulted in reports which were all published.[85][86]

Dissolution

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After the issuance of the Plowden report, the final meeting of the central advisory council for education (England) was held on 16 October 1966, with the tenure of all the members allowed to expire on 30 November 1966.[87] Similarly, after the issuance of the Gittins report, the equivalent council for Wales met in March 1967 and the tenure of their members was also allowed to expire shortly afterwards.[88] Neither council was ever re-constituted again but the statute under which they were instituted [section (4) of the Education Act 1944] remained in law until finally repealed on 1 November 1996.[89]

Replacement bodies

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The educational advisory function was instead carried out by a multitude of non-statutory advisory bodies who were indirectly constituted at the behest of Ministers rather than being constituted directly under an act of parliament as were the two councils.[90] In 1971, the Secretary of State for Education & Science (Margaret Thatcher) explained the change to the 'advisory machinery' and named many of the bodies who had replaced the work done by the two statutory advisory councils: -[90]

Permanent (standing) advisory councils with thematic remits: -[91]

Ad-hoc (expert) committees with single issue remits: -[92]

Reasons for replacement

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The reasons the statutory councils were dissolved and replaced by non-statutory advisory bodies were manifold. Some education ministers such as Anthony Crosland, did not want an independent body contemplating the long-term vision needed for education instead the ministry of education under political control should carryout this fundamental activity and so the internal advisory capability of the ministry was improved.[93][94] By their nature, the reports were often publicly critical of the status quo which was often construed as criticism of the education minister which was not appreciated.[95] Ministers no longer considered it necessary for the councils to come-up with their own terms of reference and they were not keen on funding such work.[96] The councils were subject to statutory reporting which led to more parliamentary scrutiny than with non-statutory advisory bodies.[96]

Notes

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  1. ^ Kogan suggested that the appointment of outsiders was intended to prevent an echo chamber affect otherwise the prevailing view in the education profession may simply be echoed by the council.
  2. ^ Rev. Dr. Archibald Harrison died in 1946 whilst a sitting member of the English council[23]
  3. ^ Ellen Wilkinson died whilst in office shortly after receipt of the report and her successor George Tomlinson published in her stead[55]
  4. ^ Both an English & Welsh summary (69 pages) of this report was also produced[68]
  5. ^ This report was published late enough to have an ISBN[61]

Citations

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  1. ^ a b Education Act 1944b, s. 4.(1).a,There shall be two Central Advisory Councils for Education, one for England and the other for Wales and Monmouthshire
  2. ^ a b c d e Education Act 1944b, s. 4.(1).b,and it shall be the duty of those Councils to advise the Minister upon such matters connected with educational theory and practice as they think fit, and upon any questions referred to them by him.
  3. ^ a b c d Education Act 1944a, s. 1.(1).
  4. ^ a b Butler 1944.
  5. ^ Kogan 1974, p. 283.
  6. ^ Kogan 1974, p. 283 para(1),the publication of a Report then is often only the first stage in the process of achieving social or educational change.
  7. ^ Kogan 1974, p. 283 para(2), they can also highlight for a wider audience what has become common practice within a profession.
  8. ^ Kogan 1974, p. 283 para (3),reports can bring together and legitimize radical, progressive or just plain commonsense ideas current within the education or health service world.
  9. ^ Corbett 1978, 'their unique capacity to create a consensus of change.' Kogan & Packwood 1974, page 283 para(5)
  10. ^ Kogan 1974, p. 283 para(4),they can establish, document, publicize and encourage good practice in schools - and in day-to-day dealings between professionals, parents and children.
  11. ^ Kogan 1974, p. 284 para(2), they can be invaluable, in the awareness of parents about what they should demand of those (educational) services and of themselves in ensuring the best for their children.
  12. ^ Kogan 1978, p. 136, the economists in demonstrating the relationship between education and economic growth in the reports, for example were exceptionally important in justifying educational expansion.
  13. ^ Kogan 1974, p. 282 para(5), the value of the councils does not seem to lie in being able to make governments act promptly and decisively. The intention seems to be to influence government thinking.
  14. ^ Kogan 1974, p. 281,the Great Debate, highlighted more than anything else the value of an independent and widely accessible body to investigate issues, receive evidence and opinions and act as a focal point for reform - a body in fact like the Central Advisory Councils for Education
  15. ^ Kogan 1974, p. 283 para(6),they (the councils) can receive and absorb a range of evidence and opinion and undertake detailed research,
  16. ^ Spearing 1971, col 1189(a),the personnel of these Advisory Councils would be most important and the composition, personnel and qualifications of the Councils must form a kind of acid test of the spirit and attitude of the Board.
  17. ^ Rogers 1984, p. 283,and thereby become definitive documents on a particular (education) service, the Plowden Report became a bestseller;
  18. ^ National Archives: ED 146, Description; paragraphs 2 - 7.
  19. ^ National Archives: ED 146, Description; paragraph 3.
  20. ^ a b Education Act 1944b, s. 4.(2).
  21. ^ Education Act 1944b, s. 4.(3).
  22. ^ a b Butler 1944b.
  23. ^ a b c d e f Clarke 1947, p. 4.
  24. ^ Spearing 1971, Col 1189"Originally membership was on a rotating basis. People were appointed and retired in rotation so that there was some continuity. There is some merit in this way of doing things. "
  25. ^ a b Clarke 1948, p. 2.
  26. ^ a b Gurney-Dixon 1954, p. ii.
  27. ^ Spearing 1971"But there was a change in the early 1960's. The then Minister appointed en bloc and we had a trio of Councils, each of which was selected specifically for a particular purpose. We had the Crowther, the Newsom and the Plowden Reports, which loom large in the education world."
  28. ^ a b Boyle 1963.
  29. ^ Eccles 1956.
  30. ^ Crowther 1959, p. (x) - (xi).
  31. ^ National Archives: ED 146, Description; paragraph 5.
  32. ^ Eccles 1961.
  33. ^ Newsom 1963, p. viii.
  34. ^ Plowden 1967, p. (x) - (xi).
  35. ^ National Archives: ED 146, Description; paragraph 7.
  36. ^ a b Education Act 1944a, S. 5Annual report to parliament
  37. ^ Parliament 2021.
  38. ^ Spearing 1971, Col 1189b.regarding the councils, "another hon. Member complained that Parliament would not know enough about what was going on." Subsequently, Section 5 (Annual Report to Parliament) of the Education Act was appended to include ' and of the composition and proceedings of the Central Advisory Councils for Education.'
  39. ^ a b c d Clarke 1947, p. 6.
  40. ^ a b c d Clarke 1948, p. 4.
  41. ^ a b Gurney-Dixon 1954, p. 1.
  42. ^ a b Gurney-Dixon 1954, p. vii.
  43. ^ a b c Crowther 1959, p. vii - ix.
  44. ^ Crowther 1959, p. x.
  45. ^ a b c Crowther 1959, p. xxvii.
  46. ^ a b Crowther 1959, p. 484 (Appendix II).
  47. ^ a b c Newsom 1963, p. v.
  48. ^ Newsom 1963, p. xv.
  49. ^ a b c Plowden 1967, p. iii - iv.
  50. ^ Plowden 1967, p. 1.
  51. ^ Spearing 1971, Col 1188 - 1189,before 1944, there was an advisory committee, but it could deal only with matters referred to it by the then President of the Board of Education... under the 1944 Act there is a Central Advisory Council which can initiate.
  52. ^ Spearing 1971, Col 1194,it was therefore appropriate that in addition to advising Ministers on major issues of direct concern to them the councils between specific remits, should also be able to turn to other matters which they considered of sufficient general interest and moment to warrant their attention. Had they not had this power there would have been a danger that consideration of some topics might have gone by default because of the lack of a suitable body to consider them. MARGARET THATCHER's response
  53. ^ Vaughan 1969, p. 19, Section C.iii.(5).(a).
  54. ^ Clarke 1947.
  55. ^ a b Clarke 1947, p. 3.
  56. ^ Clarke 1948.
  57. ^ Gurney-Dixon 1954.
  58. ^ a b Crowther 1959.
  59. ^ a b Crowther 1960.
  60. ^ Newsom 1963.
  61. ^ a b c Plowden 1967.
  62. ^ Plowden 1967b.
  63. ^ Vaughan 1969, p. 27, Section C.iii.(17)(IV).
  64. ^ Council (Wales) 1949.
  65. ^ Council (Wales) 1951.
  66. ^ Council (Wales) 1953.
  67. ^ Council (Wales) 1953b.
  68. ^ Editions 1953.
  69. ^ Oldfield-Davies 1954.
  70. ^ Oldfield-Davies 1956.
  71. ^ Oldfield-Davies 1960.
  72. ^ Oldfield-Davies 1961.
  73. ^ Llewellyn-Jones 1965.
  74. ^ Gittins (English) 1967.
  75. ^ Gittins (Welsh) 1967.
  76. ^ Gillard 2018, section 10.
  77. ^ National Archives: ED 146/15.
  78. ^ Colins 2001.
  79. ^ National Archives: ED 146/20.
  80. ^ National Archives: ED 146/19.
  81. ^ National Archives: ED 146/28.
  82. ^ National Archives: ED 146/25.
  83. ^ National Archives: ED 146/24.
  84. ^ National Archives: ED 146/22.
  85. ^ National Archives: ED 263.
  86. ^ National Archives: ED 136.
  87. ^ Short 1969.
  88. ^ Thatcher 1971.
  89. ^ Education Act 1996.
  90. ^ a b Spearing 1971, Col 1194 - 1198.
  91. ^ Public Bodies 2012, p. 14.
  92. ^ Public Bodies 2012, p. 20.
  93. ^ Kogan 1978, p. 135,Anthony Crosland in 1971 did not conceal his belief that there were 'other ways' in which government could do its long-term thinking. It should improve its planning and not rely on the councils to do its thinking.
  94. ^ Kogan 1974, p. 280,governments frequently complain that such councils are less important now because government departments are better equipped to deal with the demands of swift or radical policy changes, to cope with changing circumstances and more able to provide detailed and valid research and evidence.
  95. ^ Kogan 1974, p. 281 para(1),many of these statutory advisory bodies are being abolished..for it is all too clear that ministers are reluctant to fund organisations which can and do criticize their work and policies.
  96. ^ a b Spearing 1971, Col 1197 - 1198.

References

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Legislation

  • Education Act (Section 1). Parliament of the United Kingdom of Great Britain and Northern Ireland. 1944.
  • Education Act (Section 4). Parliament of the United Kingdom of Great Britain and Northern Ireland. 1944.
  • Education Act (Act Repealed, Section 4). Parliament of United Kingdom of Great Britain and Northern Ireland. 1996.

Reports (England)

Reports (Wales)

Hansard

UK government sources

National archives

Academics

Further reading

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  • Boyle, Edward; Crosland, Edward; Kogan, Maurice (1971). The Politics of Education. Penguin. ISBN 9780140806076.
  • Maclure, Stuart (1979). Educational Documents, England & Wales: 1816 to the Present Day. Methuen. ISBN 9780416782905.
  • Eyken, Willem van der (1973). Education, the Child & Society: A Documentary History 1900 - 1973. Penguin Education. ISBN 978-0140803419.
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