Transformational Review of Specialist Provision

EAST AYRSHIRE COUNCIL

CABINET - 22 JANUARY 2020

Report by Depute Chief Executive and Chief Financial Officer

TRANSFORMATIONAL REVIEW OF SPECIALIST PROVISION

PURPOSE OF THE REPORT

The purpose of the report is to propose changes to educational provision in relation to children and young people with Additional Support Needs towards a model of inclusive, specialist Supported Learning Centre (SLC) provision across identified Education Groups to meet the needs of children and young people who are experiencing significant difficulties accessing their learning in a mainstream environment.

The report also addresses capacity pressures within Willowbank School and Grange Campus.

RECOMMENDATIONS

It is recommended that Cabinet:- i) Agrees to undertake statutory consultation on a proposal to expand the current level of Specialist Provision across East Ayrshire; ii) Agrees the inclusion of Park School within the Supported Learning Centre consultation; iii) Agrees to undertake statutory consultation on a proposal to relocate the senior phase (S4-S6) of Willowbank School to St Joseph’s Campus; iv) Notes that further reports will be provided to Cabinet at appropriate junctures within the formal statutory consultation process; and v) Otherwise notes the content of the report.

INCLUSIVE EDUCATION

Scottish education has an inclusive ethos. Everyone involved in the education of Scotland's children and young people is working towards a single, clear vision for Scottish education – excellence and equity for every child and young person in Scotland.

The Scottish Government has made extensive policy and legislative changes over the last two decades to enable learners with additional support needs to thrive as part of their class, their school and their wider community. This approach strives to make sure that all of our children and young people feel included and can participate and achieve to their full potential.

An inclusive approach affords all children and young people the opportunity to be a part of a community, boosting their emotional wellbeing and aiding the development of social skills. Scotland's inclusive approach celebrates diversity and allows all children and 1

young people to develop an understanding and acceptance of differences, contributing to the development of an increasingly inclusive, empathetic and more just society.

LEGISLATIVE DRIVER

Section 15 of the Standards in Scotland’s Schools etc. Act 2000 states that the education of all children should be provided in mainstream schools, unless certain, specified, exceptions apply. The intention behind the duty within the act is to establish the right of all children and young persons to be educated alongside their peers in mainstream schools unless there are good reasons for not doing so.

There is no doubt that the presumption of mainstream education, outlined in the Act, benefits all learners. The inclusion of learners with additional support needs, when properly prepared; well-supported and takes place in mainstream schools, creates opportunities to reduce prejudice, understand others and create a positive ethos. Such inclusion helps schools to develop an ethos which benefits all learners in both a local and wider societal context. It also helps meet the wishes of many parents and carers that their children should be educated alongside their peers in their local school.

The presumption of mainstreaming ensures that children and young people have equitable access to a quality education which meets their needs and helps them achieve their full potential.

BACKGROUND

East Ayrshire has the following standalone specialist provisions:

 Hillside School  Willowbank School  Park School

Hillside School and Willowbank School support learners with severe and complex needs. Park School supports children with moderate learning disabilities within a campus setting. East Ayrshire is moving towards a more inclusive campus model in education to ensure that all our learners achieve their full potential.

Barony Campus has been designed with this philosophy and incorporates primary and secondary mainstream schools along with Hillside School and two Supported Learning Centres within its campus.

Historically learners who attended specialist provisions can feel stigmatised. Supported Learning Centres provide an inclusive education model incorporating not only curricular inclusion alongside peers but social and emotional resilience with empathy, acceptance and understanding at its heart.

Last year learners from Cumnock Supported Learning Centre were voted Prom King and Queen, this is one of the highest accolades that a young person can receive from their peers and demonstrates the power of inclusion across the whole school.

Supported Learning Centres facilitate sharing of effective inclusive pedagogy in terms of curricular approaches, strategies, resources, ethos values as well as enabling early intervention and prevention of all learners’ needs.

East Ayrshire has the following integrated specialist provisions:

 Crosshouse Communications Centre  Loudoun Communications Centre  Barshare Supported Learning Centre  Cumnock Supported Learning Centre  Patna Supported Learning Centre  Doon Supported Learning Centre

These enable children and young people to have their needs met within a local educational context. Supported Learning Centres were designed to meet the needs of learners in the south of our authority within an inclusive model. However, with the exception of the integrated specialist provision within Doon Supported Learning Centre, there has been a marked increase in learners accessing specialist provision as shown in Table 1:

Table 1

2014/15 2015/16 2016/17 2017/18 2018/19 2019/20 Crosshouse CC 31 34 40 48 50 55 Loudoun CC 9 12 18 21 34 44 Barshare SLC 22 25 32 33 41 41 Cumnock SLC 46 39 43 43 47 52 Doon SLC 26 26 20 21 16 17 Patna SLC 6 7 7 11 13 13 Park School 106 103 102 116 121 135 Hillside School 25 25 24 22 29 29 Willowbank School 48 57 60 66 74 82 Total 319 328 346 381 425 468

The overall landscape within the whole specialist provision (including Willowbank and Hillside Schools) has increased from 319 in Session 2014/15 to 468 in Session 2019/20, an increase of nearly 50%.

The integrated specialist provision (omitting Willowbank and Hillside Schools) has grown from 246 learners in 2014/15 to 357 in 2019/20 with a further projected increase of 62 learners in 2020/21. The total number of learners potentially requiring a specialist placement for 2020/21 is therefore 419 for Session 2020/21, which equates to an increase of 70%. This is the number of children requiring access to an integrated specialist provision across the whole of East Ayrshire, in addition to Willowbank and Hillside Schools.

There are a number of variables that are believed to be contributing to this level of increase which include;

 The incidence of Adverse Childhood Experiences (ACES) and their impact on learners and their families;  Population migration;  Poverty and the impact on learners; and  Improved assessment.

As with any model there is a natural time when the demands placed on the service provision outstretch the capacity. In order to determine when this is likely to occur, the following criteria were identified as indicators, namely,

 current building design and working capacities;  staffing requirements.

Current establishments are unable to match the demand forcing further investment, on a recurring annual basis.

Although additional investment in staffing has alleviated the immediate pressure on our specialist service provision, it does not offer a sustainable long-term solution. Accordingly, in June 2019 initial scoping confirmed the need to undertake a re-modelling exercise and transformational review of our specialist provision.

REVIEW OF SPECIALIST PROVISION

Initially, a desk review of the Specialist Provision was undertaken during August and September 2019 to explore the possibility of expanding the SLC model across the Kilmarnock area and identifying a realistic solution for capacity issues within Willowbank School and Grange Campus.

The staffing solution for the proposed SLC model, outlined in the following section takes cognisance of the capacity issues at Grange campus.

Willowbank School, is omitted in this section of the paper, with a specific solution being discussed separately in paragraphs 60-65.

SUPPORTED LEARNING CENTRE PROPOSAL

As well as capacity issues within Grange Campus there would be a requirement to increase current staffing levels to meet the needs of children requiring access to our current specialist provisions across East Ayrshire.

In meeting the increase of an additional 62 learners (2020/21), indicative staffing costs would be in excess of £470k; ASN transport costs would be approximately £270k, requiring a combined £740k investment. Building designs within current establishments would be unable to accommodate the increase in numbers resulting in children and young people potentially requiring access to additional educational support either within their local mainstream school or out with our authority at significant additional expense.

Three options were considered. Firstly, keeping the status quo. This was discounted as current building designs and staffing allocations could not accommodate the 4 anticipated increase in learner numbers. Park School’s roll will increase from 135 children to 180 and there is no capacity within the campus to accommodate that number of learners.

Secondly, a hybrid model was explored which would enable children and young people to remain in their local mainstream school with bespoke individualised timetables. This model was also discounted as it is unlikely to deliver the best outcomes for individual learners and is cost prohibitive due to increased staffing requirements, consequently it would not represent best value.

The table below outlines projected staffing requirements for 2020/21in the first two models.

Table 2

ESTABLISHMENT STATUS QUO HYBRID MODEL No of No of No of No of Additional Additional Additional Additional Classroom Classroom Class Teachers Class Teachers Assistants Assistants Barshare SLC - - - - Crosshouse CC - - - - Cumnock SLC 1 1 1 1 Doon SLC 1 1 1 1 Loudoun CC 1 1 1 1 Patna SLC - - - - Park School - Primary 4 4 - - Park School Secondary 1 1 - - Kilmarnock Academy - - 1 1 Stewarton Academy - - - - Nether Robertland PS - - 1 1 Netherthird PS - - - - Shortlees PS - - 2 2 Onthank PS - - 3 3 TOTAL 8 8 10 10

Based on teachers at UT3 and classroom assistants at spinal point 10 (0-5 years’ service) the costs of the status quo and hybrid model would be:

 £470,500 for 8 class teachers and 8 classroom assistants; and  £588,125 for 10 class teachers and 10 classroom assistants.

In addition to the investment in staffing, within the status quo model, it is anticipated that the ASN transport costs would be approximately £270k.

Thirdly, an analysis of the demographic profile of learners’ needs was explored to inform and identify potential SLC sites. If the needs of the children and young people are not met within our local specialist provision there is a risk of the number of out with placements increasing which would frustrate our ambition of providing our own young people with educational opportunities within our own authority area.

Five potential sites have been identified and Table 3 is a hypothetical representation of the proposed SLC model. This model is based on projected numbers for 2020/21 and the assessed need of children and young people currently attending Park School.

Table 3

Class Teacher Classroom Projected Principal hours required Assistant No of Teacher Class (Primary 25 Hrs Hours Pupils No Of Class Teacher committed & Secondary 27 Required 2020/21 Classes hours required hours Hrs per class) (27.5 hrs per ANNANHILL/ PARK 54 5 112.5 12.5 125 137.5 SHORTLEES 22 3 62.5 12.5 75 82.5 ONTHANK 25 3 62.5 12.5 75 82.5 GRANGE/ PARK 62 5 122.5 12.5 135 137.5 KILMARNOCK 17 2 41.5 12.5 54 55 TOTAL HOURS 180 18 401.5 62.5 464 495

Current Budgeted Allocation 414.0 397.8 Current Surplus Hours (requirement to 12.5 (97.2) actual hours)

The current allocation to Park School is 644 hours, of which, 414 hours is contact time for teaching staff and 397.8 hours for classroom assistants. There is enough flexibility within their current allocation to reconfigure the physical space, within the campus, and utilise the staff in a more inclusive model across the Kilmarnock area.

The staffing allocation within the proposed model is based on teacher and classroom assistant contact time and the hours of education that children are required to receive; 25 hours in a Primary School and 27 hours in a Secondary School. This new model would require 464 hours for teaching staff and 495 hours for classroom assistants.

An analysis of the current staffing allocation to Park School has been carried out and demonstrates that there is flexibility within the existing staffing allocation, particularly at management level, to support a new SLC model.

This is important as the SLC model requires two significant changes to take place for implementation to be successful. Current staff need to be re-distributed across the Kilmarnock area and appropriate management structures need to be in place to support the new model.

The proposed SLC model is based on the guidance set out by the Scottish Negotiating Committee for Teachers (SNCT) in respect of Class Sizes for Special Schools and Units.

The recommendations are summarised below:

Additional Support Needs arising from: Number of pupils Moderate learning difficulties 10 Profound learning difficulties 10 ** Severe physical impairment 8 Severe learning difficulties 8 Significant hearing impairment 6 Significant visual impairment 6 Language and communication difficulties 6 Social, emotional and behavioural difficulties 6

Note: ** This figure applies where teachers are complemented by support staff and councils are recommended to apply an adult/pupil ratio of 1: 2.5.

The advantages of the SLC model include:

 It can be delivered within existing staffing complements which is helpful in terms of the challenge of recruitment to these specialised posts and in terms of funding and;  It enables children to access their education within their local community (Education Group) – promotes the inclusion agenda.

The SLC model takes cognisance of the recommended SNCT ratios and we have built in staffing flexibility to support the model during implementation.

We can safely conclude that the model supports the reconfiguration of staff across the Kilmarnock area. Sharing the expertise and skills of the current staff within Park School provides appropriate support and knowledge across the Kilmarnock area to expand the SLC model and enable children to access the right support within their local community.

The review quickly ascertained that the model would need to expand across the whole of East Ayrshire to make sure that learners could access the right support at the right time within their local community. Current resources and staff could be reinvested in a more streamlined and efficient system of support. This is dependent on the whole specialist provision being altered to match learners’ needs.

PROPOSAL AND PHASED IMPLEMENTATION PROGRAMME

The proposed model is ambitious and carefully constructed and takes cognisance of the needs of our learners as well as appropriate support and training for staff to manage the change process.

MANAGEMENT OF CHANGE

This proposed development is transformational and it will require a high degree of support both in the consultation element and the preparation for change.

Staff and learners will need support through the management of change process and any movement needs to be on an assessed basis. Learners in S4, S5 and S6 in Session 2020/21 will not be considered for any change moving forward unless children, parents or carers specifically request that the child attends their local SLC.

This is to minimise disruption at a key stage in a child’s journey through school. Similarly, children who will be in P7 in Session 2020/21, will not be considered for any change until Session 2021/22 when they will be transitioning to their secondary school unless children, parents or carers specifically request that the child attends their local SLC.

Children who are in P7 in Session 2019/20 within the Kilmarnock area would either transition to Grange Academy or Kilmarnock Academy in session 2020/21 maintaining them within their catchment school.

Careful consideration will be given to the assessed needs of our children ensuring that any transition arrangements are carefully planned and agreed with our families.

The SLC model in the Kilmarnock area has capacity to support 196 learners. The number of learners currently receiving support at Park School is 135 and next session the projected number is 180. This means that the model can comfortably absorb the projected increase for session 2020/21 and there is additional capacity within the SLC model to accommodate any future increases in numbers which has been the trend over the last five years.

The working staff: pupil ratio (1:8) is deliberately low for the early stage of implementation to allow for change processes to be supported via training and pedagogy.

The SLC model across the Kilmarnock area will also assist with the current capacity pressures at Annanhill Primary and Grange Academy as the space within the campus is re-configured to support the SLC model. The model will enable all primary aged children to be taught on the ground floor and provide the setting for an inclusive campus.

Initial scoping has identified Grange Campus as having capacity to develop a Supported Learning Centre model to meet the needs of learners, and within the campus there is scope to develop an appropriate Primary and Secondary Supported Learning Centre with access to an inclusive mainstream environment.

It is proposed that Supported Learning Centres within the Kilmarnock area are situated initially within two Education Groups:

1. Kilmarnock Education Group (Onthank Primary School, Kilmarnock Academy). 2. Grange Education Group (Park-Annanhill Primary, Shortlees Primary, Park- Grange Secondary School).

This would have clear implications in the longer term for the Kilmarnock area, as learners’ progress through, and into the secondary education system. It is anticipated that the model would expand to include a more streamlined support mechanism at Kilmarnock Academy.

The proposal is that Onthank Primary School’s current targeted resource will become a Supported Learning Centre in line with the Implementation Plan during session 2020- 2021.

Further sites at Stewarton Academy, Nether Robertland, Netherthird and Dalmellington Primary Schools were also identified through the review.

A staged process is therefore envisaged that will commence immediately if Cabinet approve the proposals:

 planning and liaison with appropriate colleagues in January 2020 in preparation for a formal statutory consultation commencing in February 2020 and concluding in August 2020 for the Kilmarnock area – this will also include the proposed changes to Willowbank School; and  preparation for a second statutory consultation commencing in January 2021 and concluding in June 2021 for Loudoun, Stewarton, Doon and Barony Education Groups.

To ensure clarity regarding the staged approach proposed developments will be kept under review and will take account of learning- regular cabinet reports will be produced at appropriate intervals.

Subject to Cabinet approval, completion of the statutory consultation exercises and ratification that the model has had a positive outcome, a. the proposed implementation programme to develop Primary and Secondary School Supported Learning Centres would be rolled out across six education groups on a phased basis and concluded by August 2022; b. the status of the schools would be amended to reflect the inclusion of a Supported Learning Centre; c. Current Park School facilities would be reconfigured to accommodate Annanhill Primary/Park Primary SLC and Grange Academy/Park Secondary SLC within Grange Campus as part of the integration model; and d. the inclusion of Willowbank Senior Phase within St Joseph’s Campus.

WILLOWBANK SCHOOL WORKING CAPACITIES

The population of Willowbank School has increased from 44 learners, when it first opened in 2013, to the current level of 82 learners.

As part of the desk review consideration was given to capacity issues at Willowbank School.

Interim solutions for Session 2019/20 have been accommodated within Willowbank School but this is not sustainable in the long-term as it has impinged on their flexible learning spaces. Given the proximity to St Joseph’s Campus and available space within

9 the campus, it is proposed that statutory consultation will be undertaken in February 2020 to explore the possibility of Willowbank Senior Phase being established within a specifically designed and reconfigured area at St Joseph’s Campus.

Relocating learners in the Senior Phase (S4-S6) of Willowbank School to St Joseph’s Campus will offer a relational and experiential based approach to transition planning. By providing a conduit which offers a safe and supported educational environment the young people and their parents and carers will be supported to plan their future with informed knowledge through experience and opportunities. This will allow them to access specific supports and advice from appropriate agencies and partners, in both informal and formal transition planning settings.

It will also enable partners to work together in an environment which is designed to offer a different experience for our young people as they enter one of the most important transition periods of their lives and maximise their aspirations and independence.

In addition, it will enable our young people to experience a new, bespoke setting that will allow them to explore SMART technology in action in a purpose built environment.

It is proposed that statutory consultations commence in February 2020 and conclude for all developments by June 2021.

Any required reports will be presented to Cabinet throughout the formal statutory consultation process.

FINANCIAL IMPLICATIONS

This expansion of the SLC model is more streamlined and cost effective than the existing or hybrid model which does not deliver best value. This expansion is achieved within current teaching parameters and over the next two years we should see a reduction in recurring staff expenditure and transport costs accumulating in potential savings, as learners access their education within their local community. The potential ASN transport saving for session 2020/21 is £180k.

COMMUNITY PLANNING/POLICY IMPLICATIONS

Lifelong learning is a central theme in the Economy and Skills Delivery Plan 2018-2021. The plan supports the progress towards raising educational attainment and achievement for children and young people at risk of not achieving their full potential.

LEGAL/RISK IMPLICATIONS

The proposals contained within the report will allow the council to continue to meet the education needs of children and young people within its schools, and ensure that it complies with the requirements of the Schools (Consultations) (Scotland) Act 2010.

POLICY/HUMAN RESOURCE/EQUALITY/FINANCIAL IMPLICATIONS

The delivery of the plan will require support from Human Resources to manage the relocation of staff to support the new model and appropriate job sizing activity.

Consideration needs to be given to the possibility that staff may choose to leave their current employment due to natural means – retirement or choosing a different career pathway.

The integration of Willowbank School within St Joseph’s Campus will require reconfiguration of the space and adjustments to some of the physical space e.g. tracking for children and changing facilities. Associated costs and proposed plans will be presented to Cabinet once initial scoping is complete following Cabinet approval to commence this exercise.

A full Equality Impact Assessment has been submitted following the review of the Specialist Sector.

CONCLUSIONS

The development of SLCs will create the capacity to cater for current levels of demand within a more inclusive and efficient model. The new model will enable children to access appropriate local support within their catchment area, sustaining friendships and connections, and promoting inclusion and healthy choices. Many children and young people will be able to walk to school or access a local school bus service as appropriate; this model is environmentally friendly as it reduces their carbon footprint and provide opportunities for young people to acquire necessary life skills.

The integration of Willowbank School within St Joseph’s Campus will promote our vision of inclusive education across all of our Education Groups.

Education Groups will benefit from the re-design and if the proposal is approved the Specialist Sector will have the following structure:

 Barony Education Group: Cumnock Academy SLC, Barshare Primary SLC, Netherthird Primary SLC, Hillside School.  Doon Education Group: Doon Academy SLC, Dalmellington Primary SLC, Patna Primary SLC.  Grange Education Group: Grange Secondary SLC/Park Secondary, Annnahill Primary SLC/Park Primary SLC, Shortlees Primary SLC, Crosshouse Communications Centre.  Kilmarnock Education Group: Kilmarnock Academy SLC, Onthank Primary SLC.  Loudoun Education Group: Loudoun Communications Centre and SLC.  Stewarton Education Group: Stewarton Academy SLC, Nether Robertland Primary SLC.  St Joseph’s Education Group: Willowbank School.

Background Papers:

STANDARDS IN SCOTLAND’S SCHOOLS ETC. ACT 2000 - PRESUMPTION OF MAINSTREAM EDUCATION ECONOMY and SKILLS DELIVERY PLAN 2018-21

Person to Contact: Alex McPhee, Depute Chief Executive and Chief Financial Officer Tel: 01563 576279 Email: [email protected]

Implementation Officer: Julie Muir, Strategic Education Manager (Inclusion) Tel: 01563 576004 Email: [email protected]