January 2000

OFFICE OF HER MAJESTY'S CHIEF INSPECTOR OF SCHOOLS

in conjunction with the

AUDIT COMMISSION OFFICE FOR STANDARDS IN EDUCATION

Continued

SECTION 4: SPECIAL EDUCATION PROVISION

Strategy

89. The LEA is working towards a more coherent strategy for SEN but some shortcomings still have to be overcome. The LEA has recently embarked upon a major review of special educational needs provision and has published, after extensive discussion and consultation, a new draft SEN policy and development plan for formal consultation. The policy clearly asserts the LEAs commitment to social inclusion and to the educational practices that flow from this. In this, it builds upon the LEAs 1993 SEN Policy. The percentage of pupils with statements of special educational need is lower than in similar authorities and nationally, reflecting in part the LEAs strategy of focusing support upon pupils at the early stages of the Code of Practice. The SEN development plan gives a clear articulation of the directions to be followed and the framework for achieving its targets. SEN actions are a consistent feature of the priorities to support school improvement outlined in the EDP.

Statutory Obligations

90. The evidence presented by the LEA and from visits to schools suggests that the LEA meets all of its statutory duties except that the percentage of statements drawn up in eighteen weeks falls short of the national guideline figure. The LEA supports annual reviews effectively with a clear rationale for attendance at reviews and uses the occasions well to monitor the effectiveness of the provision in raising attainment. The LEA attends all extra-district, residential and looked-after children reviews and 14+ reviews are conducted very effectively on a multi-agency basis.

91. Appeals against LEA decisions are very low compared to the national figure. This indicates a high level of parental satisfaction with the statementing process, although there have been some cases where communication between the LEA and parents has been poor. Schools find that unacceptably long delays in the process leave the level and nature of funding for pupils uncertain and puts pressure on school budgets. Furthermore, the number and timing of transfer points in the three-tier system in the city often delays the statementing process for individuals.

Improvement and Value for Money

92. The LEA exercises its functions in support of pupils with SEN with a clear focus on securing access to the full curriculum and to raising achievement. It makes a positive contribution to school improvement through its policies of specialist early intervention, both at Stages 1 to 3 of the SEN Code of Practice, and through the emphasis on supporting teaching and learning. This is a feature of the work of all of the support services, especially the educational psychology service. Schools are hindered only by the level of resources available - both in central services and in delegated funds to schools.

93. Overall, the LEA spends £119 per pupil, compared with a national average of £156 and an average in similar authorities of £145 per pupil. Funds for schools are delegated through a sophisticated SEN Index that targets resources to schools in 23 greatest need through a series of proxy indicators. Despite recent budget decisions taken by Members who have increased the amount delegated through the SEN Index, the actual amount spent in schools was greater than that delegated in every school where this was inspected. A particular issue is the requirement for schools to provide the first five hours of support needed for each pupil at Stage 3 and beyond. This can be significantly different from the delegated amount, and makes it more difficult to bid for additional hours at Stage 3 to support the LEAs early interventionstrategy. Given its success in educating a very high proportion of all pupils (98.9%) in mainstream schools, and the positive view of the support schools receive, the LEA is achieving its objectives satisfactorily within the limited financial resources. 94. Central support services are held in high esteem but are also very much in demand. This is a particular issue for the highly regarded autism outreach service and for speech therapy. However, the recently appointed Principal Educational Psychologist and the Principal Education Officer (Pupil Services) have made very significant improvements to targeting the work of services and, in the case of the Education Psychology Service, freeing up time from unproductive administration. This has enabled more early intervention and higher levels of training and development work with teachers in schools. The delegated Special Needs Advisory Support and Peripatetic special needs co-ordinator scheme provides effective support, particularly for smaller primary schools.

Analysis

95. Inevitably, given the LEAs drive towards more inclusive education, the role of special schools has come under scrutiny. Insufficient attention was paid in the early stages of the SEN review to explaining the future role envisaged for them. The lack of clarity was reflected in two mainstream schools which were uncertain as to how far the LEA saw inclusion being taken. The LEA has recognised that its special schools need to be brought more fully into its plans, not least for the specialist knowledge they can contribute. This may also address the isolation felt in some of the special schools, due in part to a change in adviser and officer support for the schools as a result of being attached to partnership groups. It is also a consequence of officer shortages and the LEAs increasing focus on providing SEN specialist support to mainstream schools.

96. Overall, the LEAs support for pupils with special educational needs is characterised by well-qualified staff working energetically with a clear sense of purpose and direction. Services are well managed and are focused on raising pupil achievement and supporting teachers. They were judged to be making a positive contribution to school improvement in nearly all of the mainstream schools visited. Advisory support for special needs co-ordinators (SENCOs), particularly those new in post and for schools with identified weaknesses, is good and SENCO groups are facilitated, both authority wide and in partnership groups. ICT based support is provided for primary school SENCOs. A good range of training support is available, through both long and short courses for teachers and Learning Support Assistants (LSAs). An accredited course for LSAs was observed in three schools to be having a major impact, both in terms of the confidence of the LSA and in the positive effect it was having on other staff.

Recommendations

In order to improve communication about its policies for inclusion:

more specific information about plans should be provided to all schools and special schools should be more closely involved in the formulation of policy.

In order to meet the national target for completing statements of educational need:

further steps should be taken to speed up the process and to ensure that issues of continuity between middle and upper schools are resolved. SECTION 5: ACCESS

97. The LEA meets its statutory requirements in full and has successfully combined inter-agency approaches in line with clear polices for promoting social inclusion. The LEA, and individual schools, have been successful in drawing down additional funding for initiatives linked to social inclusion and behaviour support. The services provided represent very good value for money. A wide range of plans, including the Childrens Services Plan and the Quality Protects Management Action Plan, are linked with the Behaviour Support Plan and to the EDP. Oxfordshire has clear and comprehensive policies for promoting social inclusion through early intervention and for the welfare and protection of children. These policies secure effective inter-agency approaches through the Childrens Strategy Group, the proposed Childrens Sub-Committee and the newly appointed Childrens Rights Commissioner. The LEA meets its statutory requirements with regard to the organisation of school places and admissions to school. The admissions and appeals process is effective. There is a clear strategic direction and data has been used well to develop the school organisation, infant class size and asset management plans, linking them effectively to school improvement. This has been with the full involvement of schools and the Dioceses.

The Supply of School Places

98. The School Organisation Plan is soundly based, recognising factors such as the County population growth, which is double the national rate, the level of surplus places, and details of growth in the four County towns. The School Organisation Committee has met and agreed the Plan and is developing its own distinctive role supported by briefing from the LEA.

99. The LEA acknowledges surplus places in secondary schools are above comparable levels, and that it needs to take action. A number of measures have already been put in place to address this. However, the LEA needs to be more decisive in its policy and implementation regarding the smallest primary and secondary schools. These need to be appropriately resourced and supported within a clear long-term strategy which considers their educational, social and financial viability.

Surplus Places

100. The LEA has worked hard with schools in an implementation group to develop and implement the Infant Class Size Plan. In January 1998 18% of infant pupils were in classes over 30 and this fell to 5% in September 1999. This was achieved by changes in admissions numbers, more Early Years Units and grant of £1m in 98/99, funding 59 additional teachers. It is not yet clear whether increased KS2 class sizes are related to implementation of the plan or other factors.

101. The LEA has begun consultation on proposals to rationalise provision in Oxford City to two-tier; currently it has the only three-tier system in the County. This decision has been made after years of uncertainty, which has blighted some of the schools. Inevitably there are some complex issues still to be resolved but, appropriately, the LEA has set out a vision for change and improvement based on the need to promote educational improvement, release resources, cut surplus places, improve school buildings and facilities, tackle discontinuity of curriculum, and create a Learning City with specialist secondary schools. The LEA has sharpened its policy of reviewing the viability of under-performing or very small primary schools. It is co-ordinating new school provision appropriately and is developing an innovative joint new build replacement for a special school with a new primary school.

Admissions

102. The LEA has set up an Admission Forum and provides information to parents that meets requirements. A pilot to computerise all admissions applications in the City may be extended as it has improved effectiveness in processing preferences. The LEA co-ordinates admissions to primary reception classes and provides guidelines for admission to nursery schools and classes and early years units. However, a practical consequence of the arrangements is that some pupils stay in nursery classes or schools beyond the age of five, whilst other pupils start school as rising fives, or at four plus in the early years units.

Provision of Education Otherwise Than At School

103. There are effective arrangements for provision of pupils with long term illnesses through the hospital schools and outreach services which also provide home tuition when needed. Provision for excluded pupils is very good. The LEAs aims for inclusion are effectively translated into practice as a result of targeted central support and a high degree of collaboration between schools, especially secondary schools, and with other agencies including the Youth Service.

104. Permanent exclusions in Oxfordshire are very low, falling by 8% to 74 pupils in 1998/9. Rates of exclusion are high in a small number of secondary schools and this is being addressed effectively in most cases. Provision is made through the 6 PRUs and 2 schools for emotionally and behaviourally disturbed (EBD) pupils, although the LEAs policy is one of speedy re-integration and the PRUs have a remit to support re-integration and to assist secondary schools in early intervention strategies to prevent exclusions occurring. Primary schools are also well assisted by the EBD school and the PRU. Schools value this support and, although the Audit Commission survey indicated average levels of satisfaction in secondary schools, the sample of secondary schools visited gave a strong endorsement of both the policy and its operation.

Attendance

105. Attendance in primary and secondary schools is above the national average. The Education Social Worker Service (ESW service) provides effective, and 27 increasingly well targeted, support to families and to schools. The service has been re-organised, minor problems of under-performance have been resolved, and ESWs time has been re-allocated to take account of the differing needs in some areas. Partly as a result of this, referrals to the service are increasing and the success of its targeted work is already being seen. The percentage of pupils attending for less than 80% of the time fell from 7.3% in 1997 to 4.8% in 1998. In schools visited, the ESW was generally felt to be of good quality, working well with the school on initiatives to improve attendance and giving good support to families. Good examples of the Rapid Response strategy were also seen.

Behaviour Support

106. There is a wide range of strategies providing effective support for schools in improving behaviour. The early intervention work of the PRUs is referred to above. The Behaviour Support Plan, although focused on pupils with EBD, is based on a comprehensive audit of need and has at its heart the need to support schools through advice and training in developing their approaches to improving behaviour and raising achievement. In this respect the work of the EBD Outreach Service is most effective, providing practical advice and training as well as supporting pupils on an individual basis in schools. The Plan itself was the subject of wide consultation, draws in a full range of inter-agency support and contains helpful guidance on the development of a Whole School Behaviour Policy. The LEA is clearly having an impact in this area, in only one school visited was there a feeling that LEA support was inadequate and that the school was having to make its own way. In the other schools support for improving behaviour was highly rated.

Health, Safety, Welfare, Child Protection

107. The LEA has clear policies on health and safety. Schools are given detailed, well-presented guidance which covers comprehensively the issues related to health and safety in schools. Headteachers and governors have benefited from the training courses provided, for example the training in principles of risk assessment. Officers are usually quick to respond to requests for help and visit schools experiencing difficulties to inspect and give advice as well as monitoring Health and safety in schools generally. Childrens welfare and child protection are a prime concern of the local authority and are supported by clear policies and effective liaison between departments and agencies. The multi-agency strategy on Child and Adolescent Mental Health is an excellent example of co-operation between Health, Social Services and Education driven by the welfare needs of the young people. Training in Child Protection procedures is very good and schools report prompt and efficient working practices.

Looked-After Children

108. Provision for children looked after by the local authority is well planned and is driven by the twin priorities of ensuring that their progress is monitored and that their attendance, wherever possible in mainstream schools, is secured. In the latter the Connect project, to re-integrate children looked after into schools after an exclusion, has had a very high success rate and its funding has now been extended, assuring its medium term future. One school associated with the project has also bid successfully for external funding to run a scheme whereby sixth form students mentor younger pupils. In one school, some difficulties were encountered in maintaining consistent telephone contact with the key staff for children in care as duty rosters meant that follow-up actions by the school were rarely dealt with by the same person.

Ethnic Minority Children

109. The support for children of ethnic minority heritage, including Travellers children, is a strength of the LEA. The delegation of funds to schools from the Ethnic Minority Achievement Grant (EMAG) has proved successful in nearly all schools. In all but one of the visits to schools supported through the grant, good examples of practice were seen with the EMAG staff being well-integrated into the line management of the school whilst still benefiting from the professional support and training provided by the central EMAG service. The service Action Plan has a sharp focus on attainment, an appropriate focus given that the authoritys analysis reveals under-achievement for minority ethnic groups. Exclusions are closely monitored and challenging targets have been set for reducing their incidence.

Social Exclusion

110. The LEA has very clear policies to combat social exclusion. Their two main strands centre around adopting multi-agency approaches to secure coherence across a wide range of public sector and voluntary support and to intervene early to prevent social exclusion. Education policies focus on raising achievement as a key element in preventing disaffection and the LEAs policy of inclusive education supports this well. Good leadership has been given on equal opportunities issues and the councils guidelines on race equality, including the adoption of Race Standards, have recently been revised and re-issued. Good advice and training is offered to schools and there is evidence in their practices and policies to show that the leadership given by the LEA is appreciated by schools. The successful EAZ bid, along with several Single Regeneration Budget projects, brings additional resources into the authority in support of its policies for social inclusion.

Recommendations

In order to make best use of its resources

take decisive action to reduce further the number of surplus places in secondary schools.

APPENDIX: RECOMMENDATIONS

Recommendations

LEA Strategy for School Improvement

In order to ensure that the education service funding is aligned with the LEAs priorities:

implement the planned move toward funding to at least SSA to facilitate the necessary improvements to the formula, an improved level of spend on school property maintenance, and increased financial and ICT central support to schools.

School Improvement

In order to promote school improvement and to achieve higher standards in schools:

provide more consistent challenge to schools to set realistic targets which reflect more accurately the potential of the pupils

focus AIS time more effectively on schools with the greatest need

improve the analysis of the underlying causes of weaknesses in schools identified by OFSTED and the LEA as weak schools, and ensure that support is targeted more rigorously to address the type and level of need

increase Members oversight of the progress of schools with weaknesses

provide clearer guidance about ICT to schools which are not involved in the NGfL, especially secondary schools, and improve the arrangements for their training and support

ensure that the Early Years team give consistent and unequivocal advice about the need to structure childrens learning to achieve the desirable outcomes.

Strategic Management

In order to increase the impact of management support services:

improve the quality and responsiveness of the financial support to schools

broker access to well regarded property services.

Special Educational Provision

In order to improve communication about its policies for inclusion:

more specific information about plans should be provided to all schools and special schools should be more closely involved in the formulation of policy.

In order to meet the national target for completing statements of educational need

further steps should be taken to speed up the process and to ensure that issues of continuity between middle and upper schools are resolved.

Access

In order to make best use of its resources:

take decisive action to reduce further the number of surplus places in secondary schools.

Crown copyright 1999

Office for Standards in Education

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Oxfordshire Local Education Authority

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