Feasibility Study into the development of a school for children and young people with Emotional, social, and behavioural difficulties.

Background

“The behaviour of the very large majority of pupils and students remains satisfactory or better. Most schools and other settings are successful at managing behaviour and creating an environment in which learners feel valued, cared for and safe.” Ofsted 2005.

This statement is reflected in the Ofsted reports of schools on the Isle of Wight. The annual performance assessment dataset indicates pupils’ attitudes at primary phase to be very good (42%); good (33%); (25%) satisfactory and at middle and High school phases very good (25%); good (50%); satisfactory (25%). This is based on a sample of 12 and 4 schools respectively.

The most common form of poor behaviour is persistent, low level disruption of lessons which is wearing for staff and interrupts learning.

All behaviour is a complex interaction between the individual, others and the environment. Within a school setting this relationship is complicated further by the nature of the curriculum and its delivery. Whilst it is recognised that some children and young people bring some very specific difficulties to the learning situation, the way in which these difficulties are met in school can have a significant impact to the success or failure of the individual, both socially and academically. Schools which are able to make adaptations to the needs of the individual, rather than relying solely upon the individual having to adapt to the school environment, are likely to be most successful in developing an inclusive philosophy. This, in turn, can help pupils build constructive relationships with adults and peers and facilitate positive identification with the wider community.

The National context

The behaviour of pupils at school is not isolated from the rest of society. The Government has established a number of mechanisms in order to attempt to curb what is perceived to be unruly antisocial behaviour within society and within schools. It has introduced compulsory parenting orders in an attempt to make parents aware of their responsibilities as well as providing them with support and training; acceptable behaviour contracts (abc) in order to limit behavioural excesses and ASBOs (anti social behaviour orders) sanctioned by the courts. In order to limit crime and reduce offending ‘tagging’ has been introduced alongside referral orders administered through referral panels and the introduction of YISPs (youth intensive support projects – linked to Youth offending teams) to promote early intervention with those youngsters most likely to engage in criminal activity.

The national picture described by Ofsted (2005) suggests that:

Ø The poor behaviour of a small minority continues to present a challenge to schools and other settings.

Ø Lack of agreed definitions on what constitutes challenging behaviour makes it difficult to gauge the full extent of it. Perception of poor behaviour is conditioned both by the context and by the observer’s expectations.

Ø The challenging behaviour of many younger pupils arises mainly as a result of poor language and social skills and emotional development fitting to their age.

Ø The most common form of poor behaviour is low level disruption of lessons, perpetrated much more often by boys than by girls. This was also cited in the Elton report (1989) as the most common form of poor behaviour.

Nationally, Incidents of verbal and physical abuse of peers and, less frequently staff, by a small proportion of pupils are a problem in most schools. Acts of extreme violence are rare; they are mostly directed towards other pupils rather than staff. Incidents of poor behaviour tend to increase with age, particularly from year 6 onwards. Poor behaviour in primary schools is principally associated with children who are ill-prepared socially and emotionally within the 4-6 year age group.

In terms of exclusions from school, the most common reason nationally, for both fixed term and permanent exclusions, is persistent disruptive behaviour which accounts for approximately 20%. Assaults against pupils accounted for 14% of permanent exclusions and 16% of fixed term exclusions, whilst assaults against staff accounted for 12% and 5% respectively.

There is also evidence nationally that creating more specialist non-mainstream provision increases the dependence upon such provision, by reducing tolerance and expectations, and this does not reduce reliance on independent provision. Use of specialist provision also has to be considered against a backdrop of legislation which promotes more inclusive educational practice much of which is enshrined in legislation (Education Act 2002) Disability Discrimination legislation.

In the late 1990’s because of Government concern about rising numbers of pupils permanently excluded from schools and the causal link with increasing crime figures amongst juveniles, it introduced a range of measures in order to maintain pupils in mainstream education. DfES targeted resources at those authorities where it was perceived the difficulties were of greatest concern and, at the same time imposed tighter regimes on schools and LEAs with regard to exclusion processes.

Research

Studies by Cooper (1993) and Cole et al (1998) suggest there is enormous variation between EBD schools and units in their effectiveness when measured in terms of pupil well being and attainment. Many, it appears, cope no better than mainstream schools with their population of pupils. Putting together a group of pupils with significant EBD and without the moderating influences of their mainstream peers is considered by some to be questionable practice. It is the case that a higher proportion of EBD schools have been found to have serious weakness, or to need “special measures” than any other type of school. The incidence of exclusions and non-attendance is also higher in these schools (HMI, 1999).

Nationally there were 266 schools for EBSD in 2001/02 (Ofsted, 2003) and 245 schools for EBSD in 2002/03 (Ofsted, 2004).. This represents an 8.5% decrease. The Average school size is 43 (Ofsted, 2003).

Data taken from ‘Special School and Pupil referral units at a glance’, (Ofsted 2002/3): provides the following information regarding the performance of all special schools.

· In 75% of ALL Special Schools pupils’ achievement is good or better. Pupils’ achievement in independent schools is similar to that in LEA schools.

· The quality of teaching is good or better in almost 80% of all special schools

· Leadership and management are very good in almost half of schools, but are unsatisfactory in a quarter of schools for pupils with emotional, behaviour and social difficulties (EBSD). These schools often experience difficulties in recruiting and retaining staff

The Local Context

Within the most recent LEA inspection (2003), LEA support for behaviour was regarded as satisfactory as was the previous inspection, the previous behaviour support plan was criticized however for paying too little attention to raising attainment or reducing fixed term exclusion.

There is a clear link between behaviour support and support for children and young people with special educational needs. The strategy for SEN was regarded as highly satisfactory showing good progress.

The LEA has, in consultation with schools, developed a range of provision to provide support for pupils with emotional, social and behavioural difficulties through the establishment of ‘off site’ pupil referral units (Thompson House and Clatterford), as well as ‘workshop provision’ which encourages practical skill development (WISE). The authority retains a behaviour support service which provides support and advice to schools, staff working increasingly closely with the school improvement team taking forward with schools for example the behaviour and attendance strand of the primary strategy through the use of SEAL (social and emotional aspects of learning). Schools are also supported in developing strategic responses to managing behaviour through the educational psychology service, psychologists also work with schools in individual casework. In addition, the authority through the combined resources of Pupil Services and Children and Families, has supported the development of the Intensive Support Service alongside Health partners to reduce ‘off Island’ placements and support youngsters returning to the Island from residential schools.

The behaviour of pupils is an area of consistent concern where officers of the authority and schools continue to work together in order to manage and resolve those presenting difficulties, however there are no easy or simple solutions.

As is recognized nationally, there is little agreement on what constitutes challenging behaviour since this perception is often relative to previous experience and is conditioned by the context in which the behaviour occurs and by the observers expectations. This is reflected in local experiences where children who are perceived as a major disruption or challenge in one school can transfer to another school and be seen in a completely different light; integrating into the school with relative ease. Some of these difficulties clearly relate to research findings nationally which identify the following as highly significant factors in managing potential difficult behaviour:

Ø Consistency of approach by all staff

Ø Strong leadership and management providing clear direction and support to staff in order to maintain a positive ethos, where each pupil is valued and respected and where they can learn, when necessary, to manage and improve their behaviour.

Ø A thorough induction programme for staff re-iterating the necessity for consistency.

Ø Regular training focused to classroom practice and an understanding of child development.

Ø Effective information systems to monitor behaviour and to take appropriate action.

In addition to these key leadership and management issues is the recognition that an appropriate curriculum which captures pupils’ interests is of central importance together with opportunities for extended curriculum opportunities to develop their social skills. A clear feature of schools where behaviour difficulties are minimized relates to positive classroom ethos; respect for pupils with well organised and considered lessons with appropriate tasks being set.

Within the local context exclusion rates, particularly permanent exclusions from school, have remained consistently low over the last 4 years. This is attributable to the hard work and dedication of school staff and officers of the authority working in partnership to provide creative solutions to difficult problems. This is recognized nationally through the DfES ‘good practice’ website.

Whilst fixed term exclusions from schools have risen consistently year on year, there has been a focus to working with schools to review the use of exclusion as a disciplinary measure in some circumstances, particularly where schools are using one or two day exclusions extensively for relatively minor infringements of schools rules or where those pupils being excluded are ‘looked after’ (in care) of the Local Authority. Exclusions are currently reported to elected members though the quarterly performance management review process. The use of exclusion is a matter for the Headteacher of a school, however there is national guidance and legislation which has to be adhered to when exercising this sanction (circular 10/99; 11/99).

Current provision and expenditure

Current provision is funded through the schools budget block, retained by the LEA to maintain central service provision. This is set out fully within the Education Budget Statement (section 52) and amounts to:

Pupil Referral Units £420,546 (net)

Behaviour Support Services £ 213,595 (net)

Education out of school £ 137, 435 (net)

(2005/6 figures)

In addition to this, individual schools receive funding via their budget to provide support for a range of pupils special educational needs which includes those pupils with emotional behavioual and social difficulties, this amounts to:

Primary schools £959,517

Middle schools £772,847

High schools £677,538

Total £2,409,902

Centrally retained SEN funding allocated on an individual pupil basis £2,194,516

Centrally retained funding independent special schools £1,835,177

Funding for the Educational Psychology service and Education Welfare service are funded through the LEA (£450,773 and £369,555 [net] respectively).

Options for Consideration

In developing a special school for pupils with esbd on the Island the above factors need to be taken into consideration.

Option 1

Build a specialist school

The optimum size for a school of this type is between 40 – 60 pupils. All age schools are not considered appropriate because of the potential diverse age range and negative impact older pupils may have over their younger counterparts. There is no guarantee that pupils will not be permanently excluded from such a school.

The capital costs in respect of a 40 place facility and a 60 place facility are set out more fully in appendix 1, the headline figures for capital expenditure is £1.7 million and £2.5 million respectively which does not include the purchase cost of any land.

Revenue costs for staffing and infrastructure approx £700,000 and £1.1 million respectively per annum (school element only).

If a residential unit (20 place) is required the additional capital cost would be approx £3.2 million.

Revenue costs to be determined.

Option 2

To extend the work of the current Pupil referral units through providing a dedicated centre for those pupils who experience medical difficulties (currently supported through Thompson House) therefore allowing greater responsiveness to behavioural difficulties from year 1 through to year 6.

Capital costs to be determined.

Revenue costs based upon a 20 place facility approx £200,000

Option 3

Maintain the existing systems – costs related to pay awards and inflation.

Option 4

Maintain the existing PRUs and extend the work of WISE by developing a satellite centre in Sandown (this work is already partially underway) .

Capital costs approx £150,000 utilising an existing building.

Revenue costs approx. £75,000

Option 5

Engage with school clusters to develop a behaviour resource centre to serve each cluster of schools. This has the advantage of ensuring that pupils remain the responsibility of schools within the cluster. It focuses attention on a ‘throughput’ of pupils. The potential difficulty is likely to be finding a ’host school’ for such a facility. The same conditions with regard to the age range of pupils apply as in option 1.

Revenue costs for a 10 place facility approx £98,000 per annum per cluster. Total £490,000

Capital costs. This would be dependent upon the physical space available within the host school; If additional space was required installation of a portable building approx £150,000 per cluster. Total Est. £750,000.

Option 6

A combination of option 5 and option 3 therefore extending the range of provision available overall to develop greater flexibility for pupils and schools.

Additional costs as per option 5.

Conclusion

Clearly there is a big difference between special and mainstream education, in that all schools for pupils with EBSD are striving to meet the needs of troubled and troublesome pupils. There is the added difficulty of achieving a consistent and workable definition of what constitutes emotional, social and behavioural difficulties. Given that it is hard to cater for them in large, sometimes incompatible groupings, and with weaknesses in the support available for schools in difficulty, many special schools fail.

Mainstream schools on the other hand, vary in the extent to which they pursue inclusive principles. It is a difficult task for managers in mainstream schools to convince all staff of the need to adapt their teaching approaches to accommodate the attitudes and values of children showing emotional and behavioural difficulties. Entrenched attitudes and values are extremely hard to change. Mainstream teachers are under significant pressure to increase attainment and attract parents and pupils to their school. This can divert energy and resources away from measures that are known to reduce disaffection or prevent children at risk of exclusion from reaching that point. If we compare like with like, that is effective mainstream provision with effective specialist provision, Cooper (1993) suggest that their practices differ only in the intensity with which they are applied.

Regardless of the extent of specialist provision made available the perception that pupil behaviour is increasingly problematic is not likely to change. The risk in developing such provision is that solutions to difficult behaviour are seen to lie outside the school rather than within. Embracing diversity and responding to it through supportive mechanisms schools, which include external support systems such as PRUs and other services is likely to be the only effective way to provide support beneficial to pupils as well as school and central staff.

Any proposals recommended would require consultation and commitment from headteachers and governing bodies because of the potential impact upon individual schools budgets.

Further Information can be obtained from Rob Faulkner Head of Pupil Services tel: 823458, e-mail: [email protected]

Appendix 1

EBD SCHOOL FOR 60 PUPILS yr5-11 EBD SCHOOL FOR 40 PUPILS yr5-11

ACCOMMODATION FROM DFES BB77, ADAPTED ACCOMMODATION FROM DFES BB77, ADAPTED

MCS=6 MCS=6

AREAS NO SM SM AREAS NO SM SM

Class Bases 5 54.00 270.00 Class Bases 4 54.00 216.00

Class Bases 5 45.00 225.00 Class Bases 3 45.00 135.00

Group Rooms 6 12.00 72.00 Group Rooms 4 12.00 48.00

Science 1 45.00 45.00 Science 1 45.00 45.00

Food 1 45.00 45.00 Food 1 45.00 45.00

Design 1 65.00 65.00 Design 1 65.00 65.00

Art 1 45.00 45.00 Art 1 45.00 45.00

Library 1 35.00 35.00 Library 1 25.00 25.00

Hall 1 180.00 180.00 Hall 1 120.00 120.00

Teaching Storage Various Areas 120.00 Teaching Storage Various Areas 120.00

Staff Accommodation & Storage 114.00 Staff Accommodation & Storage 76.00

Medical 30.00 Medical 20.00

Pupils' Washrooms/ Cloaks 100.00 Pupils' Washrooms/ Cloaks 66.00

Kitchen/ Dining/ Caretaker/ Plant 258.00 Kitchen/ Dining/ Caretaker/ Plant 172.00

Circulation 335.00 Circulation 223.00

TOTAL AREA 837.00 TOTAL AREA 557.00

COSTS £ COSTS £

Construction 1,674,000.00 Construction 1,114,000.00

External Work 167,400.00 External Work 111,400.00

Fees 276,210.00 Fees 183,810.00

F&E 368,280.00 F&E 245,080.00

2,485,890.00 1,654,290.00

Cost of land variable Cost of land variable

RESIDENTIAL UNIT FOR 20 BASED UPON THE RESPITE CARE HOME

AREA 1,074.00

COSTS £

Construction 2,148,000.00

External Work 214,800.00

Fees 354,420.00

F&E 472,560.00

3,189,780.00

Isle of Wight Council Scheme for Local Management in Schools

Table

Section 52 Budget Statement - Formula Allocation 2005/2006

Special Sector

Page 1

Factor

Unit

Place

Funding per

Funds

Aggregate

Factor Name

Description

Numbers

place

Allocated

Funding

Place Led Funding :

Teaching Staff

Band D - under 11

7,424.40

29,696

348,450

Band D - over 11

7,424.40

148,488

Band E - under 11

10,641.64

42,567

Band E - over 11

10,641.64

127,700

Supply Teaching

Band D - under 11

407.58

1,630

18,477

Band D - over 11

407.58

8,152

Band E - under 11

543.43

2,174

Band E - over 11

543.43

6,521

Learning Support Staff

Band D - under 11

2,406.24

9,625

118,708

Band D - over 11

1,604.16

32,083

Band E - under 11

4,812.48

19,250

Band E - over 11

4,812.48

57,750

SEN Support Staff

251.64

Band D - under 11

1,137.06

4,548

43,060

Band D - over 11

503.29

10,066

Band E - under 11

2,582.04

10,328

Band E - over 11

1,509.82

18,118

Other Non-Teaching Staff

549.15

21,966

Link Courses

33.85

1,354

Maternity Leave Supply Cover

10.83

433

Unit

Number

Factor

Funds

Factor Name

Factor Description

Description

of Units

Value

Allocated

Pupil Led Funding :

Curriculum & Linked premises costs

Pupil Numbers

928.48

37,139

Examination Expenses

Pupil Numbers

237.85

9,514

Additional Educational Needs

Lump sum payments common curriculum

Both Schools

7,328.36

7,328

costs includes LMS Administration

Site Specific Factors

Site Specific factors including - Building Maintenance, Grounds

SEE OVERLEAF

31,782

Maintenance, Energy costs, Cleaning of premises etc

FOR DETAILS

School Specific Factors

Meals Service

Specific cost

7,600.00

7,600

TOTAL BUDGET SHARE BY FORMULA

645,812

2005~06 DELEGATED BUDGET (See Overleaf)

(A)

2005~06 LSC 6th FORM FUNDING

(B)

DfES SCHOOLS STANDARDS GRANT

(C)

THRESHOLD AND PERFORMANCE RELATED PAY GRANT - TOTAL 05~06

(D)

PAPER D

COMMISSION FOR CHILDREN AND SCHOOL RESULTS – 7 SEPTEMBER 2005

The Isle of Wight Context