The Scottish Government

Introduction

On 22 June 2005 the Scottish Executive published a consultation paper - Finding Practical Solutions to Complex Needs inviting comments on options being considered for changing the arrangements for supported further education places and funding arrangements for students with complex needs. The consultation period closed on 31 October 2005. This document provides a summary of the responses received. The Executive is carefully considering the issues raised and will announce the next steps as soon as possible.

Background

Following the incorporation of most of Scotland's further education colleges in 1992, funding for students maintenance bursaries transferred from local authorities to further education colleges. At that time, local authorities retained a discretionary power to pay bursaries in terms of the Education (Scotland) Act 1980. The sum of £4.7 million was left in the local government finance settlement in recognition of the continuing responsibilities of both Orkney and Shetland Islands Councils for FE Travel and Bursaries and all other local authorities' cross border cases. A proportion of these students are those with complex additional support needs.

The Scottish Executive is committed to widening participation in further education and ensuring that everyone has the opportunity to learn regardless of their background or personal circumstances. We therefore wish to ensure that students with complex additional support needs have the same opportunities as their peers to access further education. This may include access to appropriate further education opportunities outside Scotland if required.

The transition to post school education is a key stage in a young person's life. As pupils approach school leaving age, schools focus on the support that individuals need to move from school to the placement best suited to them. For many young people, this may be into further or higher education, training or employment. However, for a significant number of young people, there may be a need for education provision not currently available in Scotland's post-16 sector. This results in these young people applying to attend one of a number of residential specialist colleges in England and seeking funding from their local authority to meet the cost of provision.

It has become clear over the last few years that local authorities operate different policies in relation to funding students outwith Scotland. Some have taken the decision not to fund cross border students, others have decided only to fund those with additional support needs, while others will fund as demand requires using a capped fund. In the case of students with complex additional support needs, lack of available funding may be a significant barrier to accessing any further education provision.

There also appears to be a varying knowledge amongst young people, their parents and carers about provision currently available in Scotland.

Aims of Consultation

The consultation aimed to find out about the current practices of local authorities in relation to providing funding for students with complex additional support needs. We also wished to look more broadly at the issue of supporting students with complex additional support needs and to consider options for the future support and funding arrangements. We therefore undertook to:

• Investigate current policies and practices of local authorities in relation to provision of funding for students with complex additional support needs attending further education provision outwith Scotland.
• Seek views of local authorities on their role in relation to funding students with complex additional support needs, who chose or need to study outwith Scotland.
• Gather information about the needs of young people that could not be supported through current provision in Scotland.
• Gather information from young people and their parents or carers about their experiences in relation to obtaining funding or study outside Scotland and the impact the availability of funding has on the young person's ability to access further education provision.
• Measure the likely demand for places of specialist provision that does not currently exist in Scotland, over the next 10 years and estimate the cost of meeting that demand.

Consultation Options

Consultees were also asked to express their views on the following three options.

Option 1: Continue with current practice which allows local authorities to have provision in their annual local government finance settlements and the discretionary power to offer bursaries.

Option 2: All or part of the current £5.4 million (increased from £4.7 million in 2005-06) is removed from local authority GAE and allocated to another body to manage on a national basis.

Option 3: Remove the £5.4 million from local authority GAE and split into 2 funds. One to be used for cross-border study, the other to allow a number of Scottish FE colleges to develop their facilities to meet the needs of more students with complex needs in Scotland.

Responses

We received a total of 48 responses to the consultation. These are broken down as follows: 10 from Local Authorities, 16 from FE Colleges, 3 from Parents of Young People with Complex Needs, 4 from Representative Bodies, 8 from the Voluntary Organisations and 7 from other organisations.

In addition, we commissioned the CALL Centre at the University of Edinburgh to consult directly with people with complex needs. Around 30 individuals were interviewed. This process involved a symbol based version of the consultation paper being produced. That report is published alongside this document.

Contents

Annex B Summary of Further Education College responses

Annex C Summary of Parents of Young People with Complex Needs responses

Annex D Summary of Voluntary Sector Bodies responses

Annex E Summary of Other responses

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'Finding Practical Solutions to Complex Needs' Consultation: Summary of Responses from Local Authorities

There were 11 responses from the Local Authority Sector, including COSLA.

Responses were received from 4 undisclosed local authorities and:

COSLA

Dundee City Council (Social Work Department)

Moray Council (Educational Services Department)

Highland Council

East Ayrshire Council

Aberdeenshire Council

North Ayrshire Council (Social Services, Children and Families Disabilities Team)

Key Findings

From the responses received, there appears to be a clear lack of consistency in provision of funding for cross-border students with complex additional support needs across local authority areas. Local authorities themselves are concerned with the inconsistency and lack of guidance and clarity for criteria on which judgements for provision of funding should be made.

Of the local authorities who responded, only 6 young people with complex needs had applied for support, in the past 3 years. North Ayrshire Council, Moray Council and an undisclosed council have not received applications for funding in past 3 years. GAE allocations are made on basis of spend on provision in the previous year. COSLA's response indicated that in the allocated budget for 2005/06, 6 LAs did not receive an allocation from Grant Aided Expenditure (GAE) for this purpose, as they did not utilise the funding the previous year.

An undisclosed council advised that the funding is no longer in existence as a separate and identifiable budget and suggested that this was the case for the majority of LAs who now fund further education for students with special educational needs through alternative budgeting mechanisms.

North Ayrshire Council, East Ayrshire Council, Highland Council, COSLA and an undisclosed council voiced concern that the current arrangements are not fair and equal and do not allow young people with complex needs, similar opportunities for appropriate post-school opportunities as their peers.

Dundee City Council and COSLA voiced concerns over the numbers of young people who leave special schools and do not progress to further education, training or employment.

Dundee City Council, Moray Council, Aberdeenshire Council and two undisclosed councils do not have set policies for funding cross border students, these applications are dealt with on an individual case basis.

The COSLA response highlighted the different stances taken by local authorities: some do not fund cross-border students with complex needs at all; some aim to provide support in Scotland; and others fund as demand requires, using a capped fund. In some cases, other services such as Social Work and occasionally the NHS, make additional contributions to the bursary to provide a package of support. North Ayrshire Council have indicated that their policy in relation to bursaries is currently being reviewed. Their policy applied equally to young people with disabilities and those who have specialist subjects.

Support for these young people tends to require residential arrangements and therefore along with course fees and care support, this type of provision is costly. COSLA, Aberdeenshire Council and an undisclosed council suggest that cost of provision and lack of funding is driving local authority policy in this area. An undisclosed council suggest their GAE allocation does not meet all the costs incurred.

On some occasions, local authorities have identified case studies where a young person has been offered a placement at a local college campus, however a residential college would best meet the young person's needs. North Ayrshire Council are of the view that inclusion in education should be promoted and therefore they would want to support a young person to remain in their own community where this was their first choice.

There is also the issue of parental contribution to costs of the residential placement. An undisclosed council indicated that the parents of one young person they were aware of, was keen to contribute and suggested that this should be considered as should SAAS criteria (at the moment specialist courses are not eligible for grants).

Highland Council, East Ayrshire Council and COSLA specifically voice their opposition to a centralised fund, as although it could be fairer and more equal, it would detract from the partnership approach being strived for through 'Partnership Matters'. It would also pose difficulties for continuation of care when the young person returns and make it more difficult for local authorities to monitor the quality of the placement. North Aryshire Council suggested a person centred planning approach. ASL legislation which came into force in November 2005 also has implications.

COSLA, with support from Highland Council and an undisclosed council suggest that a fourth option should be considered for the way forward including clear eligibility criteria for future applications for funding, applications only to be considered from Recorded young people at point of leaving school and application should be supported by multi-disciplinary assessment. There is also the issue of Family Law 1985 putting obligations on parents to support the child up until age 18 or 18 - 25 years old if in further education or training. Parental contributions should be in line with SAAS guidelines: based on income of parents.

East Ayrshire Council, Dundee City Council and Moray Council are supportive of ring fencing funding but not withdrawing funding. There is some concern that centralised funding and bidding processes will create additional bureaucracy, although there is support for a consistent approach to be applied across Scotland, perhaps through central planning. There also needs to be effective planning for the young person in their home community for their return from college and a continuing partnership between education services, social work and health.

Although, nine of the local authorities who responded were keen to play a role in funding and provision for students with complex needs, an undisclosed council suggested that it did not provide bursaries due to the fact that students maintenance bursaries have transferred to FE Colleges and supported bursaries remaining within FE College funding arrangements.

In terms of potential options outlined in the consultation paper, COSLA do not view the status quo as an option. They are equally concerned about the other 2 proposed options: centralisation goes against partnership working which is required for other aspects of support including the ASL legislation and will hinder continuation of care when young person returns home. They propose a 4th option which includes continued funding to LAs; referral of issue to Three Year Settlement Group for joint consideration by COSLA and the Scottish Executive; review of costing of actual current and future need and provision of adequate resources to meet costs; review of funding procedures to ensure single point of funding in LAs; Creation of a matrix with clear criteria; Clear guidance for young people, their parents and carers and guardians on funding criteria, assessment procedures, advocacy, options and right of appeal; Provision of advocacy support; Clear guidance to LAs and Community Planning Partnerships for Assessment of Need, involvement of service users and their families. They also suggest that a commitment should be made to ensure learning and assessment needs of people with profound complex needs can be met within Scottish Further Education by 2010.

There is support from COSLA, East Ayrshire Council, Aberdeenshire Council, Highland Council, North Ayrshire Council for the development of provision for young people with complex support needs in the Scottish further education sector i.e. developing and enhancing the provision at Aberdeen, Elmwood and Motherwell Colleges. Whilst local authorities are not opposed to sending people to England, by doing so, COSLA felt it highlighted deficiencies in Scottish provision. Increasing the accessibility to existing further education to meet the needs of these young people would minimise the differences and discrimination and would promote inclusion.

In response to the suggestion of creating a national residential centre or centres for students with the most complex needs in Scotland, Moray Council are concerned about the cost effectiveness of such a centre or centres and whether there would be sufficient demand. It was also suggested that one national centre would not be appropriate given Scotland's large geographical area.

Aberdeenshire Council are in favour of the Scottish Executive retaining funding to support young people with complex needs who require FE provision outwith Scotland and would also like to see clear criteria being established for funding and support options 2 and 3 outlined in consultation paper.

Scottish Executive

November 2005

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'Finding Practical Solutions to Complex Needs' Consultation Responses from FE Sector

There were 17 responses from the FE Sector.

Responses were received from 7 undisclosed colleges and:

Elmwood College

Banff and Buchan College

Glasgow Metropolitan College

Aberdeen College

Scottish Further Education Unit

Orkney College

John Wheatley College

North Glasgow College - Students from Special Programmes (Group 18)

Cumbernauld College

North Glasgow College - Extended Learning Support

Stevenson College Edinburgh

Association of Scottish Colleges

Key Findings

Q9

Aberdeen College do not believe that LA's should have a role in supporting students if their support is to fund students to attend provision in England.

Cumbernauld College feel that bursaries should be available to those students who wish to study outside Scotland. They feel the money could remain with LAs to meet the needs of students studying outside Scotland, however the funds should be reduced as almost all learners should remain in Scotland. The rest of funding should be given to colleges who develop specialist provision for those with complex needs.

One college believes that Local Authorities have a role to play for those studying out with Scotland.

Q10

Aberdeen College suggest that LA Social Work Departments could have a role, working in partnership with the colleges who are already equipped to deliver for complex needs students i.e. Elmwood College. Social Work Departments could also be funded to develop well-equipped centres locally for people with complex needs to attend post-school activities and local FE colleges could have an input to deliver some courses on part time outreach basis, providing funding was available.

Cumbernauld College suggest the LA role should be in assessing needs, identifying associated resources & allocating costs especially physical and personal care.

One college believes that the LA role should be facilitation of the coordinated support plan process to ensure that needs will be met.

Q11

Aberdeen College suggest that through the current system, LAs are not funding the majority of post-school students. They believe that colleges with well developed provision and services for students should be funded to expand and enhance their service for this client group.

Cumbernauld College are of the view that all FE colleges have a role in providing for complex needs students within their communities. However this requires considerable expertise and provision . Therefore it may be better to develop geographically located specialist colleges. These facilities would need funding.

A college suggested that other partners should be involved i.e. social work, health board and the voluntary sector. Alternatively, they mention the use of an agency such as SAAS, however not if this creates another level of bureaucracy.

Q12

Elmwood College's Student Development Team offers students with additional and complex needs, individual programmes or a place in one of its discrete classes of approximately 8 - 12 students. The students can have a wide range of different disabilities including physical, social/emotional and/or complex learning needs. Programmes are built around SQA units at access 1, 2 and 3 and intermediate 1 along with ASDAN (pioneering curriculum development organisation and internationally recognised awarding body) and locally devised units tailored for each group. There is strong emphasis on developing and expanding life and social skills in every programme. The Department offers full and part time courses and have good links with SEN units at local secondary schools. Classroom assistants are provided by the college to give additional help if required in group settings. There are approximately 65 full time and 100 part time students in the department.

Elmwood also has a large team which supports students with additional support needs on a 1-1 basis. The college also offers supported accommodation.

A college offers support to a wide range of students who require significant additional support. In academic year 2004/05, extended learning support was provided to 7 students on mainstream provision who had more complex problems. High level of 1 to 1 support required as well as significant investment by the college in assistive technologies. In the same year special programmes provided school link classes in college to about 20 students from local schools who have complex needs. The college provides specialist staff who teach significant number of students in outreach centres to students from local schools.

One college runs a range of special programmes for students with support needs. These programmes are full and part time and have been developed in partnership with other agencies. The college offers a Vocational Assessment Programme which includes a work experience placement for school leavers and students are encouraged to consider progression to an Access course at the end of the year. The college has excellent liaison with local schools, psychological services and Careers Scotland. They offer a range of part time programmes delivered on an outreach basis. The college has an outreach centre in Cumnock which offers design programmes to those in the community with mental health difficulties. Most of these students have mild to moderate learning difficulties. Fear that FE colleges could become substitute day centres.

The College is committed to improving its support for students with additional support needs. It can support some students with complex learning needs who can cope with vocational courses leading to employment.

Another college offers a broad range of full time and part time provision for students with support needs across a wide range of abilities. They offer two courses for young adults leaving school with profound learning difficulties. They follow a life skills programme which require high levels of support in literacy, numeracy, self-advocacy and independent living skills. Some students are wheelchair users who require personal care and educational support. The college works with social services for provision. Other full time programmes are tailored to the needs of students who will have previously attended a school links programme designed to assess the level of provision required and familiarise them with college life. They also offer part time provision, mainly for mature students with support needs and mental health problems. The college also deliver to groups following a varied programme of leisure and core skills provision who have physical disabilities (with support from ESF funding).

Banff and Buchan College offer part time programmes in association with special schools and social work departments. Programmes tend to be one day per week and for to 6 students per annum.

Another college has a long standing record of provision for all learners with additional support needs. The college's Faculty of Supported Learning manages this area of work across all their sites, outreach and community locations. In academic session 2004/05 the college enrolled approx. 1920 learners within Group 18 and extended learning support categories with a range of needs including complex needs, physical, mental and behavioural difficulties. Approx. 400 of their learners in 2004/05 would be within the SE definition of Complex Needs. Group 18 programmes are offered in a variety of modes of attendance to suit specific needs of learners and a variety of progression routes put in place to ensure learners progress on group 18 programmes and onto mainstream college programmes. The college has significant resources for sensory impaired and visually impaired learners.

Glasgow Metropolitan College provides a very small number of discrete, bespoke day release type courses for students with more complex needs. At the moment the college does not provide opportunities for students with more complex cognitive barriers to learning. Individuals with more physical barriers are supported well on an individual basis. A pre-entry level full and comprehensive needs assessment is carried out in-house by a member of Extended Learning Support Team.

Aberdeen College has course provision and support for students up to the upper end of "severe needs". Aberdeen College's interpretation of Complex Needs refers to individuals with 2 or more additional needs, based on this interpretation, the college are unable to deliver provision for students with complex needs.

Orkney College offer a 'Moving On' programme which includes core skills, life skills, personal development and work in a range of different subject areas. The college is moving toward individualised programmes for students with additional needs. The college operate an Open Learning Centre and run a link course with the local high school.

John Wheatley College offer a wide programme of educational activities for learners with ASN, including transitional vocational programmes and Bridges programmes which are at SQA Access levels 2/3. For students with complex additional support needs the college offer experiential and practical learning activities within the Options, Lifestart, SVS schools and some Outreach programmes. Learners with most complex needs undertake sensory, experiential learning activities in the school supported and outreach programmes, facilitated on 1 to 1 basis.

Cumbernauld College currently has a few students with complex needs as defined in the paper. The college is currently being refurbished and is developing facilities to support complex needs students. Educational support is provided however few students receive personal care.

Stevenson College Edinburgh has a broad curriculum which offers a number of DPG 18 courses, NCs, HNs and up to advanced higher in some subjects. They aim to provide, as far as possible, appropriate level of curriculum available to any student who applies. Their Student Support Team provides needs led model in identifying appropriate support. They have on occasion, supported students with one or more sensory impairment or complex condition. However the college does not have facilities for students who might need access to therapies or medical treatments during the day.

One college has an extensive range of provision for those with complex needs. Some of which are on DPG 18 special programmes, whilst others are on ELS mainstream provision.

North Glasgow College's Student Service Unit offers equality of opportunity to all students regardless of their individual learning difficulties, however there are staffing and resource constraints which Partnership Matters should help address. In 2004/05 the unit have 12 students at the more complex end of the spectrum.

North Glasgow College's (Students on Special Programmes - Group 18) Dept. indicated that they have around 20 students on the more complex end of the spectrum. The College offer specialised, flexible individual timetables based on individual needs recorded on their Personal Learning and Support Plan. The college provides two welfare auxiliaries and individual support workers are provided by Social Work Department. Adaptations are made to the curriculum to include a sensory, tactile or practical approach. Moon and Braille may be provided where students have a visual impairment.

One college offer a number of short courses which are open to all and therefore include a number of people with fairly complex needs. The students are supported in the group of around 8 students. The college work in partnership with the local Autistic Society, offering one swimming class. The college also delivers 2 classes on outreach in a local Resource Centre, this is aimed at meeting the needs of students with more complex needs. The most accessible areas of their curriculum are in arts subjects. The college offer some certification at Access level. The college have a small number of staff with the skills and experience to work with people with more complex needs. The volume of the college's provision has decreased in recent years as the SUMs cap has required the college to prioritise provision for students who are gearing up for some form of employment.

Q13

At the moment, Elmwood College has been unable to respond positively to students with complex needs. Elmwood is a small college and would have difficulties coping with large numbers of students who had severe mobility problems who wanted to access the college at one time. Possible future funding issues and disagreements between the college and social services over what is deemed personal care in terms of what the student needs for attendance at college, especially with autism. Negotiating funding packages is also very labour intensive.

One college enrols students across the whole continuum of complex needs but is aware of the need to provide services in a financially secure manner. Present funding methodology does not provide resources which would allow the college to make provision for students requiring fewer than 5 students in a class group.

Another college offers support to a small number of students with complex needs. That number has been growing year on year. The college try to provide a tailor made programme for these students. They currently have one student who is severely disabled in a wheelchair with limited physical abilities and cannot speak. The college have provided a highwriter and tailored a programme with IT & Business and Supported Learning. Kilmarnock College find it difficult to make provision not because of the continuum of need but often the students' aspiration, employability and qualifications framework. Some of the SQA units are extremely challenging for student with complex needs even with assistance from a Learning Assistant and the student may only achieve some of the units.

Another college identified that students requiring a higher level of personal care i.e. administration of medication or whose physical disabilities were very profound, would present difficulties. Also, those requiring very specialist equipment that was not already in place may be difficult to provide for.

Banff and Buchan College cannot provide 1 to 1 support for students, therefore unless they can access this level of support from social work this is not possible.

Another college finds it difficult making provision for students requiring 1 to 1 or 2 to 1 support, and with complicated health or mobility needs or a learner with autistic spectrum disorders. They feel that the transitional planning stage is vital to ensure appropriate placement of a student. They are also concerned about the appropriateness of a college environment for students with emotional or behavioural difficulties. The college currently support many learners with sensory impairment, particularly deaf and hearing impaired. The college are finding difficulties in finding trained staff. The college have liaised with partners to identify appropriate routes for individual learners where there have been specific issues regarding access to campus. The College would also like to highlight that the expectations of parents, carers may be different from individual learner.

Glasgow Metropolitan College would find it difficult to support students with more complex cognitive difficulties or learning disabilities such as Down's Syndrome.

Aberdeen College has course provision for students who can participate and undertake the course tasks and activities with support. It is not considered appropriate for students to attend a course when their needs do not allow them to participate in the activities and tasks required even with reasonable adjustments and considerable support.

Orkney College is already exceeding it's SUMs target in terms of activity so has great difficulty in introducing new programmes and subject areas. In some cases the college will be able to meet the needs of a student with very complex additional needs but in another situation it may be unable to offer what is wanted by a student with quite straightforward additional needs.

John Wheatley College is only able to make available limited provision to learners who have the most complex and profound needs with the support and collaboration of local partners, i.e. schools, social work day centres and third sector agencies.

Cumbernauld College are unable to offer provision which requires major adjustments which would undermine or lessen academic standards and require 1 to 1 attention to attain progress.

Stevenson College Edinburgh do not have medical or therapy facilities. They have also found it difficult to find people with appropriate specialism.

One college feels that as long as personal care support continues, this should ensure a suitable and safe learning environment. The college would have difficulty making provision where the curriculum focus was not educational or vocational. They may not be able to accommodate everyone, as finite number of rooms and a capped SUMs target. It is essential that students can benefit from appropriate curricula.

North Glasgow College Student Services Unit would find difficulty where funding was withdrawn from the student. These students need support from healthcare professionals, personal care, communication aids, electronic note takers etc. The college does not have a pool of learning assistants and cannot provide individual staffing across college therefore outside agencies must be organised for specialist support and funding routes. North Glasgow College would have difficulty making provision for students with behavioural issues.

Another college identified the level and means of communication with students as being the main issue. The college do not have the skills to sign or use PECs for instance. They also work on the basis that students can work in a classroom environment, including noise and distractions. The college would have difficulty making provision for a student who could not work in a group environment or work within the staff ratios outlined in response to Q12. Most of the college's classrooms are general purpose or specialist rooms that are used by other groups during the week. The college have also highlighted the issue of students with complex needs managing around the college, e.g. at break times.

Q14

Elmwood specialise in providing support for students on the Autistic Spectrum and have a number of such students supported in mainstream classes. They also provide personal programmes to allow students to bridge between mainstream and special education classes.

One college has a specialist facility for assisting those whose learning difficulty arises from dyslexia.

Another college has developed a course to attract students with visual handicaps into learning through computing called Sign Up/Log On.

Another college offers no specialist provision although they do cater for students who are on the autistic spectrum. One full time staff member has worked extensively with this group and the college have employed a support worker with expertise in this area.

Banff and Buchan College have no specialist facilities.

Another college's provision from Group 18 programmes is exceptionally wide and varied. Their provision for deaf and hearing impaired students attracts learners from other parts of the UK and occasionally internationally.

Glasgow Metropolitan College has a good track record in supporting students with physical barriers to learning. They also have a good reputation for supporting students who are D/deaf, however there are financial challenges as availability of provision is limited. They also have a good track record of supporting students with autism.

Aberdeen College do not specialise in any particular need.

Orkney College do not concentrate on any one specialism, it focuses on supporting a wide range of students. Due to tightly defined geographical area with diverse needs, unlikely to be in best interests of population to pursue any one specialism. However, over a period of time, staff have built up a specialist knowledge commensurate with the needs of the students in attendance at the college.

John Wheatley College do not specialise, they work in partnership with other agencies to provide suitable and inclusive learning experiences for all.

Cumbernauld College do not offer specialist provision.

Stevenson College Edinburgh have a number of specialists amongst their staff, including a member of staff involved in an inclusiveness project aimed at facilitating transition of young people with Asperger's Syndrome and ACC users.

Another college embraces a wide range of students and does not specialise as such.

North Glasgow College does not currently provide courses for specific areas of specialist provision.

One college does not specialise in any particular need but they do try to work to take account of individual differences and needs. The college also offer Access awards, all their short course provision also offers a subject based college certificate so they are not straight jacketed by course prescriptions.

Q15

Elmwood College have been able to meet demand so far, however demand is growing each year. Ability to meet demand has largely been down to good working relationships with social services. ELS funding alone does not provide the appropriate levels of support.

One college has indicated that it has met demand to date.

Another college has indicated that there has been an increased demand from individuals with complex learning needs. The college have met some needs of some students, provided their aspirations are realistic i.e. manual dexterity required to become beautician. There are also funding issues due to the cost of provision for complex needs students. College staff feel under pressure to accept complex needs students even although they may not have the necessary skills required to be successful on the programme.

Another college have indicated that demand is high from those for whom there is no suitable provision with other agencies or little in the way of appropriate employment opportunities. Young people who have reached their potential at college are often reluctant to leave and some may be attending college for some time. The college does not feel that demand has exceeded supply. They have been able to accept most students who have applied to them even if for a part time period of integration and assessment.

Another college have been able to meet the demands of most of their learners to date. They are aware that more young people about to leave school do have more profound and complex needs and there is a need to work more closely with partners to address this issue. The college feel that there is a need for more information to be available to all partners post-statutory education including numbers of young people about to leave statutory education; detailed information relating to their needs and specialised services required; effective multi-agency transitional arrangements; strategies for young people with complex needs for whom FE is not an appropriate placement.

Glasgow Metropolitan College do not believe that demand exceeds supply. However, increases in D/deaf students would challenge the college's capacity to fund resources. There are no fire lifts in the college which would pose difficulties for students with mobility difficulties.

Aberdeen College accept most applicants, however in a small number of cases a place was not offered, as after assessment, it was not considered the best match to the student's needs.

Orkney College is best described as fully subscribed rather than over subscribed in terms of places for additional needs students. As the college has exceeded it SUMs target, it is unable to extend its range of level 1 provision.

John Wheatley College are able to meet all provision requests at the moment through partnership working, however demand has increased in recent years.

Cumbernauld College believe that demand does exceed supply as they are only able to offer limited facilities to complex needs students.

Stevenson College Edinburgh do not believe that demand exceeds supply.

The Scottish Further Education Unit (SFEU) feel that expectations from learners, their parents and carers are increasing and are more aware of their rights and to be included and have their needs met by mainstream services, rather than bolted on additions.

Another college feels that specialist provision is still quite new and therefore demand does not exceed supply, however they expect it is likely to occur in time.

North Glasgow College indicate that demand for places on certain courses exceeds supply.

Another college try to outline which courses are open to all and which require prerequisite skills and knowledge to best match with learning need. They suggest that many people do not apply for some of their courses. The college routinely turns away as many students as they accept and try to offer places to first time students. Through the college's work with local special schools, they are aware that some young people do not apply to their courses as they do not see them as being appropriate to meet the needs of the young people. The college estimate that there must be a handful of young people who leave school each year with needs which could not be met by the college.

Q16

Elmwood College feel that additional funding would allow them to provide some specialist facilities including sensory room and equipment and more appropriate disabled toilets. A major issue due to location is locating taxis etc for students with electric wheelchairs. The college have adapted a minibus but this is not enough and is expensive. There is an issue around how to get students to use their mobility allowance to travel to college. Funding for staffing, at moment, reliant on funds from social services resulting in short term contracts being awarded.

One college feels that funding would allow the college to facilitate small class sizes; finance the purchase of appropriate assistive technologies; provide for ongoing professional developments of key staff throughout the college.

Another college feels that monitoring and supporting complex needs students can be very challenging and emotionally difficult for staff and this is not adequately recognised. They feel that better partnership working is required to ensure that necessary care is provided.

Another college would look to identify areas where partnership working would allow access to the curriculum from people with complex needs whose other support requirements would be met by other agencies, i.e. personal care and transport.

Banff and Buchan College feel that more accommodation and more specialist staff would allow them to better meet the needs of students with complex needs.

One college feels that a real time funding model and training of staff who support Complex Needs students and funding for staff development at a national and college wide level.

Glasgow Metropolitan College indicated that changes that would allow the college to better meet complex students' needs include: easier funding/payment for non-medical personal help; dedicated learning environments - independent living suites; staff with appropriate skills, experience and qualifications in teaching students with complex needs; systems and staff for partnership working; structural issues i.e. fire lifts.

Aberdeen College are of the view that public funds should be directed to colleges who already have courses developed for students with complex needs.

Orkney College feel increased provision of supported employment opportunities; increased availability of supported housing; additional resources to develop and fund increased range of level 1 programme options; and the ability to claim genuine costs, would be helpful in fully meeting needs of students with complex additional needs.

John Wheatley College feel that funding should be attached to learner and not the service. The lack of continuity from school support acts as a barrier to effective transition between school and college.

Cumbernauld College are currently in process of reconfiguration which will remove some existing barriers. The college is also seeking to develop partnerships to address some of the care package issues of funding which present barriers. More targeted specialist training in Autism Communication disorder behaviour management and learning difficulties is required if colleges' provision is to develop further.

Stevenson College Edinburgh believe that changes which could be made, include better partnership working with LA to ensure less time spent on negotiating care packages. College is employing and Access and Inclusion Co-ordinator to work with these services.

The Scottish Further Education Unit (SFEU) feel that the relatively small numbers of learners with complex additional support needs in itself creates a problem - they are not a homogenous group. Need to make better use of partnerships and collaboration across agencies. Should develop a needs-led model.

One college feels that provision of personal care and financial support for travel would allow the college to increase provision for students with complex needs. There is also a need for continuing staff development and curriculum development to ensure the college can meet the needs. The other issue relates to the fixed Sum counter for the sector, which can limit growth.

North Glasgow College suggest that changes which would allow them to better meet the needs of complex needs students include enforcement of Partnership Matters; review of funding: ring-fenced budget for colleges to claim specific staffing and resources to meet the needs of individuals as and when the need arises. Staff Development, extended access to multi-disciplinary teams and time to develop programmes.

Another college suggests that resourcing is the main issue. Smaller groups and more support, access to specialist training such as in alternative communication methods and challenging behaviour management. The college also suggest consideration should be made to modifying the learning environment. The college suggest that realistically colleges could make the best contribution in partnership with other organisations who have these skills sets and know their clients. Teaching could be carried out either on outreach in an appropriate environment or in college as the students' skills develop.

Q17 and 18

Elmwood would like to establish themselves as a centre of excellence. Elmwood have a person-centred approach. They have mainstream staff who are supportive of complex needs students going mainstream if they are academically suited. The college are currently negotiating with social work to provide education and support for 2 students who are currently studying at a residential school in England as they believe they can offer an equally good experience for less cost. The college's supported accommodation allows them to attract students from other parts of Scotland and England.

Elmwood suggest it would be useful to have an audit of what Scottish colleges currently offer and the expertise and specialisms which could be developed into residential centres. Any centres should not be separate from mainstream education.

One college suggests that there is much expertise in this area in Scottish FE colleges and consideration should be given to creating such centres in a number of the FE colleges already involved in such provision. They feel that there may be advantage in creating centres of excellence in a number of FE colleges, each addressing a specific complex need. This arrangement could generate benefits in identifying best practice and in terms of Research & Development.

Another college are in favour of encouraging specialisation of colleges. They highlight that parents may still complain that provision is not local. The college feel that a reasonable balance needs to be established which recognises the different missions of colleges. This college focus on employability and will provide whatever support is necessary in partnership with other agencies, if the student has the capabilities to be successful on a vocational programme.

Another college believe it would be appropriate and valuable to have residential and specialist accommodation in Scotland. The inclusion agenda has encouraged providers to ensure the needs of all learners are met where possible, the level of reasonable adjustment required to meet those with very complex needs are in some cases too great for a college setting. This college feel that it may be appropriate for some colleges to extend their provision, however they would like to emphasise appropriate i.e. if the educational provision is right for the learner and they will benefit from the college experience. This would also be in the proviso that personal care needs, medical administration and travel costs are supported by other agencies.

Banff and Buchan College believe that there should be national residential centre(s) in Scotland. They feel it is unacceptable that students must travel away from home communities. Paints a poor picture of provision in Scotland. If some colleges were to specialist, Banff and Buchan feel that all colleges should be able to access the expertise of the specialist centres and arrangements between national and local centres should assist in the integration of students.

Another college ask what types of profound and complex needs cannot currently be met in Scotland?; Could this provision be met in Scotland? What are the projected number of next 1 - 10 years? Other than FE colleges, which other agencies are currently in a position to deliver post statutory provision? How could this further developed within partnership working arrangements to build on joint resources?

Glasgow Metropolitan College feel that if there is demand from families for national residential centres in Scotland, it would be better to provide support in Scotland, rather than students having to travel to England, away from their families. They would prefer a small number of colleges to specialise and extend their provision for students with complex needs. This would make it clearer to users and service providers who provides what. Rather than all colleges specialising, funding would best be shared amongst a few. All students should have choice and this could be achieved by increasing the number of colleges extending their provision.

Aberdeen College believe that for a relatively small number of students with complex needs, post-school provision should not be delivered in FE colleges. They feel that a national residence or 2/3 smaller centres in Scotland where social work could work in partnership with local FE providers could deliver provision which best met the needs of the young person. They suggest that other post-school provision should be developed, rather than students remaining in FE making no progression due to there being no alternative. The college feel it is inappropriate use of public funds to fund students to attend specialist colleges in England, it is unsettling and would make re-integration difficult.

Aberdeen College feel that colleges which currently deliver for students with complex needs should extend their provision to accommodate a larger number of this client group. Funding all colleges to facilitate provision for complex needs students is not good use of public funds.

Orkney College indicate that any off-island educational provision can be distressing to both parents and student. The 2 priorities of students is quality of FE experience and accessibility. Orkney College would welcome an increase in the number of accessible choices available in Scotland. Key requirements are quality provision and reasonable transport access.

John Wheatley College feel that a national centre would prove costly especially given the limited numbers applying to residential centres in England. Instead, adequate support for lifelong learning, as part of a community care assessment and package would help make learning at their local college a reality. John Wheatley feel that with the right support package, learners should be able to access appropriate provision at their local college. This would promote social inclusion. The college feel that a small number of colleges providing specialist provision would create educational ghettos and not develop an inclusive society.

Cumbernauld College have highlighted the need to consider geography and distance including the separation from family and local community. The college believe that localised provision would be more appropriate. They are conscious that needs and ability to provide should be matched and the best location found locally where possible.

Stevenson College Edinburgh believe that for some students a national specialist centre(s) is their ideal provision and this would overcome some of the problems experienced when managing transition back into home community. The college are in favour of a number of FE colleges extending their provision and suggest looking at a shared campus model.

The Association of Scottish Colleges (ASC) believe that the range of subjects provided by a single Scottish residential centre for students with complex needs may be limited. Given the relatively low numbers travelling to England, the Scottish centre may be under used in some years and be unable to meet demand in others. This could lead to staff recruitment and retention issues as well as financial problems. The ASC are more in favour of a small number of colleges extending their provision and would offer complex needs students more educational choice without having to leave Scotland. Some colleges already offer specialised provision and are interested in expanding this provision.

One college feels that if the experts came to the college that may be more cost effective and by bringing the expert to the college could develop the range of knowledge across the sector. They also suggest attaching funding to the learner. The college are aware of the advantages of a small number of colleges extending their provision however individual choice and people's expectations would be an issue - expect that local college can provide for them on their return from specialist provision.

One respondent believes that students should have the opportunity to study near their families and therefore argues for increased provision in Scotland. Establishing a single Scottish residential centre may limit the range of subjects. They are also concerned about value for money for a group which appears to be small in number. Fluctuations could leave the unit under-used and financially unstable or unable to meet student demand in any single year. This would be the case particularly where it was stand alone rather than associating with an existing college. The support needs of people with complex needs varies enormously and a single centre is unlikely to provide the full range of specialised support required. The respondent finds the option of a small number of colleges extending their provision more favourable, offering students more choice in courses within Scotland. Potentially students from Scotland's remoter areas might study within reasonable travel distance of home. Some colleges already have a degree of specialised provision and some are keen to expand this.

North Glasgow College Student Services Unit feel that specific residential provision would seriously limit choice for the individual. National Residential Centres appear to be the way forward and Scotland has experience of this at present e.g. for gifted student who wish to specialise e.g. dance. They are more in favour of centres of excellence as this could provide a full range of subjects by buying in specialists from other experienced lecturers from neighbouring colleges.

North Glasgow College Special Programme - Group 18 department would support the idea of residential provision in Scotland where students, families, carers need this service. They believe that there is a need for a small number of residential centres each with a coordinated inter-agency structure, developed to deliver a holistic programme of supportive education for each candidate. Further to this, each centre might be encouraged to develop its own area of expertise.

One college has reservations about sending vulnerable school leavers to residential schools anywhere, even if the programmes are rigorously educational, unless clearly for some level of respite from or for families. The college highlight that transitions are hard enough for this group and spending a year away from their local communities might simply be fudging the issue of finding appropriate post-school provision closer to home. The college suggest that sending these young people to residential colleges is hugely expensive for local authorities and is something of a postcode lottery. The college suggest that more needs to be developed in local communities so that existing support arrangements such as family can remain involved and the transition to adult life managed more incrementally.

Another college agrees that some FE colleges across Scotland extending their provision, although ideally they feel that provision should evolve in all local communities. They suggest that where small numbers are involved but specialist delivery is essential it would make sense to draw students together, even on a Monday to Friday residential basis.

Q19

Elmwood have highlighted that meeting the needs of students with complex needs is labour intensive. Funding from LAs can be sporadic.

One college highlighted that this type of learning provision can be extremely resource intensive and a change to present funding methodology would be beneficial in pursuing an inclusiveness agenda.

Another college would like to re-emphasise the importance of appropriate provision for students with complex needs. They are concerned that FE colleges may only be suggested in the absence of any other suitable provision. They have also highlighted the issues of provision of personal care, medication administration and travel funds. They feel that potential learners and carers should understand what colleges can provide and what other agencies provide. Many carers have high expectations and expect the college to be a one-stop shop which places enormous burden on colleges without appropriate funding.

Banff and Buchan College highlighted that provision for complex needs students is expensive and requires a lot of additional support which is dependent on the individual and difficult to plan. Partnership working is critical.

Glasgow Metropolitan College believe that all staff in a college would have to be trained in teaching students with complex needs, as it would be important for these students to be fully included in all parts of college life.

Aberdeen College have indicated that there is currently no agreed and accepted interpretation of 'complex needs'. They also wish to highlight that not all post-school provision needs to be delivered in FE colleges and other services should be developed. The post-school curriculum for this group should be robust and appropriate to their learning and support needs, learning abilities and be developed so that it can be established whether learning has taken place. They believe that if all FE colleges were expected to develop facilities and a curriculum for this client group, it could dilute the service. They suggest that colleges currently delivering courses should be funded to expand and enhance this service; colleges should work in partnership with social work to develop and deliver progression routes; all colleges being funded to deliver, on an outreach, part time basis, elements of course provision at centres. The college indicate that in their experience, students returning from specialist provision in England, find the transition to local FE college than the students who came directly from school.

Orkney College believe that lifelong learning is important for all students regardless of the complexity of their needs. They have highlighted the issue of when a 1 or 2 year course comes to an end and the student is faced with a choice of what's next, this can be difficult in the absence of supported employment.

John Wheatley College highlighted the need to recognise the substantial barriers there are in transition from school to adult life, including post-education. A more detailed review of the current system is required. More data is required on the numbers of learners currently identified as having complex needs.

Cumbernauld College feel that current funding methodology does not provide enough finance to support the high staff student rations, learning assistants and specialist equipment potentially required. They suggest Extended Learning support weighting on top of the 1.8 weighting would help address shortfall.

The Scottish Further Education Unit (SFEU) believe that securing adequate educational opportunity should not hinge on the individual or their advocate's ability to deal with complicated referral systems. The SFEU believe that undertaking some formal research would be beneficial and give a better indication of how many young people with complex needs will require provision/timescale; their geographical location and chronology/Inequalities and social background and whether this had a bearing on their ability to access the right provision.

One college pointed out that one size fits all does not work with this group. Each student has individual needs. Colleges should not be the only option for people with complex needs.

One respondent felt that support should be available consistently to all students and particularly for students with complex needs, decisions should be available sufficiently promptly for appropriate education to be planned.

North Glasgow College Student Services Unit indicate that adult returners who did not have complex needs when they came through the education system may not have the full benefits of social work etc and therefore college staff may have to source all levels of support. Careers Scotland need to honour their role as 'honest brokers' or advocacy services.

One college suggested that there are a number of issues which need to be taken into account when designing education post-school for young people with complex needs. These include the nature of the educational needs of the students such as to develop life skills, particular communication skills, and personal and social development through a holistic approach; the environmental balance between having appropriate surroundings for learning and the chance to develop social skills in shared public environments; Skills and motivation required to work with people with complex needs which may be learned amongst colleagues by those who volunteer rather than are timetabled.

OPTIONS FOR THE FUTURE

One college is in favour of (3rd option) splitting the fund into two so that some colleges can develop their facilities to meet specific needs.

Another college is in favour of (3rd option) clawing back the funding from LAs and splitting into two funds, one for a national fund and the other to build capacity. They feel this would address the national position in moving towards the development of Scottish provision.

Aberdeen College (modified version of 3rd option) are not in favour of the status quo or the central authority to administer a new fund as they do not believe the suggested bodies would be in a position to administer the fund appropriately. They favour a modified version of option 3 which splits the fund into two. Their modified version includes funding colleges who currently offer provision to complex needs students and also developing other post-further education facilities and services.

The Association of Scottish Colleges feel that should the Executive opt for a national centre or colleges extending their provision, they should also look at funding arrangements for the students. They believe that the monies may be better managed on a national basis. The ASC also suggest that the Scottish Funding Council would be best placed to manage the GAE on a national basis. Complex needs could be a new special category within the funding methodology with money distributed to colleges as additional funding for asylum seekers. There may well remain some students who require to study outside Scotland and they suggest the Executive will have to make arrangements for this.

The Scottish Further Education Unit (SFEU) believe that we should continue to allow outwith Scotland placements where they are more appropriate - but ensure a consistent and transparent mechanism for allocating and funding and consider what happens when that placements is finished. They have asked some questions relating to the building of one of more specialist residential provision within Scotland - what remit, for what needs or curriculum range and where would they be? They suggest further developing inter agency collaboration, concerned that FE doesn't take the place of day centres. Insisting that all colleges make provision for all learners is very impractical given the competitive student volumes currently imposed by capped funding. SFEU suggest implementing all options to some degree.

One college suggested that the difficulty with splitting the funds into 2 to enable colleges to enhance their provision may raise the expectations of those who have attended a specialist centre (within or outwith Scotland) and when course complete, and lead them to believe their local college should be able to provide the same type of support. The college suggest that funding should be attached to learner instead which would allow them to choose options within a global finance package and facilitate transition between local college and specialist.

One respondent suggested that the status quo is not adequate, however if it were possible to ensure that all local authorities provided nationally consistent student support for students going outwith the incorporate sector, there could be advantages to retaining this local provision. On the second option, the respondent suggests that if there were to be a claw back of funds for a national scheme, it should be available to all non-incorporated students, not only those with complex needs. On the third option, the respondent are of the view that any increased provision at Scottish colleges, is likely to increase demand from these colleges for student support and core funds. Development of the physical estate in Scottish colleges and other related changes in provision could appropriately be managed through the SFC. Related increases in student support provision for students at Scottish colleges would also be appropriately managed through the Council.

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'Finding Practical Solutions to Complex Needs' Consultation: Summary of Responses from Parents of Young People with Complex Needs

There were 3 responses from parents' of young people with complex needs:

Responses were received from 2 parents and:

Dr Colin Russell and Mrs Yvonne Russell

Key Findings

Three parents of young people with complex needs responded. The young people's conditions ranged from severe learning difficulties and sensory impairments; microcephalic; and very severe physical disability with a severe visual problem and multiple life threatening health conditions.

Support and provision requirements ranged from one to one support, help with feeding, personal care, medication, physiotherapy, speech and language therapy, hydrotherapy, moving about in wheelchair, transfers from chair to standing frame, 24-hour care, personal care and administration of life saving medication.

Under current arrangements, parents who responded did not believe that FE colleges in Scotland would benefit their children. One child in particular requires highly structured, full time education setting with stimulating activities such as specialised computer provision and music. Part time FE courses, including life skills courses are likely to be beyond his capacity unless they take place in a full time learning environment.

This parent believes that a specialised residential provision with teachers trained to understand and use specialised equipments is best for her child, however there is no such provision in Scotland.

There is a common belief amongst parents that transition is difficult from special school to further education, due to few appropriate places for school leavers. There appears to be little information for parents as to what is available and there is a low expectation of social work services. Parents have highlighted that they will take the placements available rather than the best for the young person..

Parents are also concerned with the unfairness of the system and the 'postcode lottery'. They acknowledge that provision is expensive, however young people with complex needs face being confined to their homes for the rest of their lives due to lack of provision.

Parents' feel that local authorities should have a continuing financial role in supporting students with complex needs due to their statutory role in provision of personal care. By removing local authorities from this supporting role, there is a concern that the young person will disappear from local authority records perhaps until they return to Scotland, when their needs will need to be reassessed. A continuing role would ensure smooth transition of a care package from further education to adult life. Parents feel that local authorities' should tailor their support for individuals rather than each young person adapting to fit the LA standard.

There is parental support for developing a specialist provision in Scotland, rather than sending the young person to England which can be disruptive to the individual and their family.

Developing and enhancing provision currently available in Scotland will only be effective if colleges are resourced with suitable accommodation, facilities and equipment; and recruit adequate skilled teaching staff/therapists and care staff. Courses would need to meet the standards of the specialist colleges in England. There is also the issue of whether young people with complex needs could cope with mainstream college, it has been suggested that separate units should exist within these colleges.

A local authority policy on referrals and indeed highlighting the existence of such colleges in Scotland would have to be addressed.

One of the other respondents has applied to their local authority to fund their son's placement at Beaumont College in England. The local authority have rejected their application on the grounds that they have previously funded but are not satisfied that it has benefited the young person(s). The local authority have suggested a local placement, however although the college offers a range of courses with communication as a key component, the parents are seeking a course which wholly concentrates on communication, a course currently offered by Beaumont College.

The young person's parents sought information from social workers, their son's school and local authority Transition Worker, all were, in their view, of little help. They could find no official source of information about provision outside Scotland but discovered a wesbite for The Association of Specialist Colleges and a website regarding Post 16 Transition in Scotland. They were also advised by an independent expert in young people with learning difficulties.

Only one of the respondents comments on the options for future funding. They did not feel that the status quo was an option as in their experience bursaries were never awarded and their local authority does not publicise their GAE allocation and so families are not aware that it is a source of funding. They believe that the funds should be ring fenced.

The second option is most favoured, given the national body would be able to work independently and act in the best interests of the young person.

The third option is a possible compromise but there are concerns regarding what would happen to one fund if the other runs out.

The third respondent is the parent of a five year old child. The parent is concerned at her local authority's attitude to her child's education and fears it is hindering her son's chances. Although this child is still some way off further or higher education, his mother believes that it is pointless considering further education in isolation, believing the Executive should be looking at an earlier stage in a child's education whether the system will allow them to fulfil their potential and enter further education.

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' Finding Practical Solutions to Complex Needs' Consultation Responses from Voluntary Organisations

There were 9 responses from the Voluntary Sector.

Responses were received from:

Capability Scotland

Corseford School (Capability Scotland - Charity status)

Down's Syndrome Scotland

Sense Scotland

Sleep Scotland/Teens +

Lead Scotland

The National Autistic Society Scotland

Disability Rights Commission Scotland

Skill Scotland

Key Findings

One of the respondents was a special school who advised that their experience of school leavers seeking college placement in England is 1 per 3-5 years' who's needs cannot be met within FE in Scotland. Those affected are usually from a rural area and/or where the person has had some disruption to their access to services either because of change of school placement or because of delayed access to suitable technology. Students are looking for an environment which provides them with immersion in a community of communication technology users.

Capability Scotland concurs with Skill Scotland's submission (Stakeholder Platform). They have suggested that the Scottish Executive evaluate the effectiveness of the Disability Discrimination Act in terms of FE colleges provision and duties. They suggest that the outcomes from this consultation should dovetail with the ASL Act.

The National Autistic Society Scotland believe that all FE institutions should expect to teach students with an Autistic Spectrum Disorder (ASD) and other disabilities and need to ensure appropriate support is available to meet their needs. They also feel that the Scottish Funding Council needs to have a specific code for ASD in their disability codes so that FE institutions have a better idea of numbers of students with the disability. NAS believe that students with ASD and other disabilities who study elsewhere in the UK should have their courses funded and LAs should lose their discretionary powers to determine who is funded and who isn't. The Executive's LLL strategy should be applicable to all Scots and not exclude those with complex needs. NAS have identified Stevenson College Edinburgh, Banff and Buchan College and Glasgow College of Nautical Studies as being particularly active in supporting people on the autistic spectrum, however the needs of some people with ASD cannot be met in a Scottish FE institution and they have had to attend provision in England.

Sense Scotland were previously unaware that GAE expenditure is allocated to local authorities to fund cross-border students.

The Disability Rights Commission believe that education and learning should ensure that young people have choices and opportunities that enable them to achieve their full potential and promote their social inclusion. Although there have been improvements in legislation and regulation, there is still some way to go to achieve parity with others in education and learning.

The DRC believe that the policy appears to have been operated without effective monitoring and as a result of LA discretion has led to inconsistencies. Young people with additional support needs are still unable to access appropriate further education in Scotland and are unable to access the necessary funding to study outwith Scotland. This runs counter to the Beattie Committee report which advocates an inclusive approach where provision fits learner and not vice versa.

Skill Scotland's response is based on enquiries from parents specifically enquiring about funding and responsibilities towards bursaries for specialist college outwith Scotland. Other enquiries had been from parents who struggled to find local opportunities for their child. Most local colleges do not have the courses, flexibility, expertise or 1 to 1 staff time to provide meaningful learning. Full time or residential courses allow young people to socialise with their peers and allow their parents to work.

Q1 - 8 for LAs

Capability Scotland do not believe that GAE is being used for its recommended purpose to support students and are aware that some local authorities have diverted their allocations to other purposes. They also suggest that a bursary application process should be publicised by local authorities, thereby clarifying how and when to make applications and making this information available in a range of formats and languages.

Capability Scotland would like to acknowledge and commend the way in which some local authorities and FE colleges are addressing the inclusion agenda and using monies to widen and improve access for young people with complex needs.

Sense Scotland are aware of a number of young people applying to attend colleges, in their experience, the young people have been referred to colleges in which the local authority have a partnership agreement, even if this is not appropriate. Placement options are provision-led rather than needs-led.

Q3

Sense Scotland has worked with a number of local authorities. In their experience, some local authorities are extremely reluctant for young people to attend FE provision outwith Scotland. Although not aware of any written policy, they are aware that LAs will encourage young people to visit designated FE colleges to which increased resources have been given to build capacity. This is not always located in the person's home authority.

Q9

Capability Scotland believe that local authorities have a role to play in supporting students with complex support needs, although not under current arrangements, which are often discriminatory and inconsistent across Scotland. They suggest further duties be placed on local authorities, extending the duties placed on them by the ASL Act in relation to school education and transition. In particular, personal care provision and equipment and aids required. There seems to be a particular issue when a young person moves between children's services to adult social services.

Down's Syndrome Scotland also believe that local authorities have a role to play in supporting students with complex needs. They believe that funding should be utilised to support the individual needs of young people within their own communities, unless the young person or their families chose otherwise.

Sense Scotland agree that local authorities have a role to play, if they are allocated GAE funding they should fulfil this role. The application should be considered as an integrated funding arrangement, given that there is not only educational requirements, but transport and personal care and therefore other agencies should contribute to the package.

Lead Scotland believe that Local Authorities have a role to play in supporting students. This role should be in provision of comprehensive information about all available options (including those outwith Scotland); provision of impartial guidance and information about other agencies who can support; financial assistance consistent across local authorities.

Skill Scotland do not think that Local Authorities should have a role to play in supporting students, given that they have no other role in the planning, provision or funding of other FE places. It is therefore, inappropriate for them to have control over bursaries for one particular group of students. They do, however have an important role in assessing for and making provision for care and related services. LAs need to be major partners in planning for better provision for people with complex needs. If LA role was withdrawn, consideration would need to be given to who should fund transport to specialist colleges. It may still be appropriate for social work to provide this due to their role in provision of care of which transport is part. Provision for travel costs needs to be clarified for all parties.

Sleep Scotland carried out a survey of LAs to establish current level of provision for young people from the age of 16. 27 LAs responded, the large majority of which stated that young people stayed at school until 18/19 years of age, however there was no appropriate curriculum for the older age group. Most left school for day centres or with individual programmes for carers. This was a difficult transition for them after a highly structured, familiar school environment. Most FE colleges offer courses rather than full time provision and the young people have a day that is split between home, college and leisure. This is not always the best environment developmentally to make progress.

Sleep Scotland believe that Local Authorities have a role in working in partnership with other agencies in developing locally-accessible services. Sleep Scotland are currently developing a model in Edinburgh which could be an example of good practice of partnership between the voluntary sector and statutory sector. Their project is currently hosted within a Community Education facility and transport is provided by the local authority.

Q10

Sense Scotland suggest that the Learning and Skills Council model operated in England and Wales has some merit.

Q11

The role of supporting students should be joint responsibility of departments of education, health and social work. Where appropriate partnerships with voluntary organisations should be encouraged.

Q12

Sense Scotland have found a huge range in what colleges offer and what they say they will offer to individuals with complex support needs. Some colleges offer a comprehensive and flexible package based around individual augmentative and alternative communication needs. Motherwell College has been identified as a good example of this. Other colleges are investigating a variety of support options. Some colleges are upfront that they will only take on students capable of independent learning and study.

Q13

Sense Scotland have highlighted the difficulties in identifying the continuum of complex needs. Some needs are complex but would not lie on a continuum.

Q14

Sense Scotland have identified Elmwood College working with those on the autistic spectrum disorder. Motherwell College are working with those who require augmentative and alternative communication (AAC). Donaldson's School for Deaf children is offering support from some staff to Deaf students to attend college.

Q15

Sense Scotland advised that there is an impression that demand exceeds supply of places but no records show this.

Q16

Sense Scotland have identified that integrated funding packages would allow money to follow the student. Inter-agency planning (improved as a result of Partnership Matters and hopefully ASL). Changes are required in how staff are deployed. In some cases, escort staff are employed by the student but the resource is not being used efficiently as they are not required when the student arrives at college. Some colleges have employed the escort to be the assistant in class giving a more seamless experience. Funding arrangements need to be flexible for this.

Q17 & 18

Capability Scotland believes that young disabled people should have the same opportunities as non-disabled, in terms of provision, locations and facilities in Scotland. Young people with special needs should have the same opportunities, particularly those who do not wish to travel away from home. Some wish to continue their education in specialist centres for numerous reasons, including their needs being met more effectively or want to mix with their peer group.

Down's Syndrome Scotland are of a similar view in that although they are supportive of a national centre in Scotland, they believe that the availability of choice is more important. Leaving home should be a choice, not one forced upon them due to lack or resources or opportunities.

Down's Syndrome Scotland believe that there is value in a small number of colleges in Scotland extending their provision for students with complex needs, however they recognise the difficulties given demands on their budgets and their whole culture.

Capability Scotland have highlighted issues around placements falling through at the last minute and young person left without provision. There has also been an occasion where a young person has decided to stay on at school until 18 with a view to continuing to college, the local authority then withdrew funding for the person to stay on at school. There is also an issue around appropriate support for young people with complex needs attending FE colleges.

Capability Scotland are aware of instances where the majority of their school leavers have gone into full time placements at local colleges, however one pupil who had been accepted at Beaumont College has been unable to secure funding.

Capability Scotland are also concerned about the differences between full time provision for disabled and full time provision for non-disabled and whether this is sufficient to gain the same qualifications.

Capability Scotland suggest that far more people consider specialist provision in England than the numbers who actually take it up. They suggest the Executive review the level of need as well as level of current take up. This would inform whether a national centre is required in Scotland. Capability Scotland would welcome the opportunity to work with the Scottish Executive in developing policy and practice on specialist further education provision.

Sense Scotland have identified the key components of provision in specialist colleges in England - courses devised around individual needs and have long-lasting effect when student returns home; options at weekend; Individual tutor; pool of experienced staff; personal care needs met without fuss. Any national centre would need to replicate on one or several sites, a similar level of experience in staff.

Sense Scotland believe that the number of colleges extending provision is less important than the quality of provision offered.

Lead Scotland believe that a centre in Scotland could provide additional choice for people with complex needs. However, they also think it is important that current learning providers continue to develop their expertise in inclusion and in the way they work with disabled people. If colleges opt not to include students with complex needs because of the existence of a centre of expertise this would in turn eliminate disabled people's choice. It is important not to segregate disabled people. It will still mean many students will be far from home.

Lead Scotland feel that a small number of FE colleges in Scotland extending their provision for students with complex needs would have a more inclusive approach. The student may also be able to remain in or close to their community. They feel that the expertise needed to work with people with complex needs may benefit other disabled students attending the college; aiding creative thinking to maximise inclusion throughout the college.

Skill Scotland do not believe that a national centre specifically for students with complex needs would be beneficial for these students as Scotland's colleges have taken significant steps to become more inclusive through implementing Beattie recommendations and equalities legislation. Inclusiveness could be hindered through a specialist residential centre because students with complex needs would be directed to the specialist centre as opposed to their local college. They have noted that the number of students at specialist colleges in England and Wales and the cost of specialist provision is increasing rather than decreasing. There is little incentive for local LSCs in England and Wales to encourage development of local provision for learners since a placement at a specialist college is funded from a nationally held budget. This has restricted learner choice. Regional management of the placements budget could help facilitate local development of provision for this group of learners. This could also facilitate progressive specialist organisations that are already exploring collaborative arrangements with local colleges and other providers. Residential provision does not suit everyone, many would prefer to live at home.

Skill Scotland considers that the Scottish further education sector must be able to provide meaningful education for learners with a whole range of needs. This is a long term view. A small number of colleges could focus on extending their provision with the intention of becoming centres of expertise and helping to enable other colleges to also include students with complex needs in the longer term. Choice should be key to this though as students should be able to choose learning that fits their aspirations and life choices and be able to pursue mainstream or specialist provision or a mixture of both. There should be a geographical spread of colleges who extend their provision. Colleges need to extend their provision in partnership with local authorities, health and voluntary organisations with a person-centred approach. Regional partnerships in LSC Eastern region in England provides a good example. Some specialist courses in Scotland are not person-centred and often the student repeats the same course many times without progression into supported employment. Consideration needs to be given to the development work around design and nature of specialist courses in Scotland's colleges.

Sleep Scotland feel that some people are not ready to leave home at 18 and an alternative should be available to these young people, in the same way that other young people have a choice of studying locally or moving away to college.

Sleep Scotland feel that although FE Colleges have made efforts to provide education to all, they cannot and not all offer good, full time provision. Sleep Scotland conducted a national survey and findings showed that colleges offer a range of courses some of which include learning opportunities for students with a range of support needs, however these have capped funding and are more likely to attract students with lower support needs than the envisaged group i.e. the high level of personal care makes them less likely to find a full time place at college. Many colleges offer Access 1 and 2 which are designed for adults. ASL legislation may lead to increased demand for these courses from school leavers from mainstream schools.

Q19

Sense Scotland feel that courses are provision-led not based on individual, it needs to be other way around.

Lead Scotland are aware of learners who's local authority have declined to fund travel costs. This created a barrier to learning. Lead also feel that the quoted number of people who travel to England for specialist provision may not provide the accurate picture as some young people may not be able to travel to England and may be sitting at home. They are aware of a post-school learner who acquired complex needs in his late teens and is not yet ready to access learning out with his home. There are also issues around parental education, some parents may have low expectations of someone with complex needs or do not know where to start looking for information. There are issues around getting some young people ready to attend new Scottish residential centres or a proposed new wing of their local college.

Disablity Rights Commission suggest that the Executive consider a study to determine the levels of students who perhaps wished to attend a specialist college education in Scotland but were unable to access appropriate education in Scotland and did not qualify for funding to travel to England.

The new Disability Equality Duty comes into effect in December 2006. LAs will be bound by this but who will have responsibility for funding until such times as a new policy is brought in as a result of this consultation. LAs should have due regard to their duties. Any transitional arrangements will need to reflect the new responsibilities.

Skill Scotland highlight the importance of partnership working between colleges and key agencies such as social work and health. Any future plans to extend provision should involve LA and NHS Boards at every stage. There are two factors which may affect future planning of FE provision: presumption of mainstream further education from a growing number of young disabled people and the DDA which requires colleges to actively promote equality of disabled people, including identifying gaps in opportunities available to disabled people and taking appropriate steps to address them.

Skill Scotland have also highlighted the lack of information about post-school opportunities and support available. Many families and school staff do not realise the support which can be provided within Scotland's colleges, nor that colleges have responsibilities to provide support. They have also highlighted the importance of the Additional Support for Learning Act 2004; effective transitional planning is crucial.

Sleep Scotland think that the current estimates of the number of young people whose needs are not being met by their LAs is far greater than the 21 - 29% suggested in the consultation paper. These figures are unlikely to account for those young people who have taken up an inappropriate place for want of anything better.

Q20 - 30

Down's Syndrome Scotland believe that families find transition between school and further education very difficult. They find particular difficulty in accessing information and often find a lack of care support that allows parents to go out to work. This can cause increased stress particularly for single parents. Parents often come to voluntary organisations for information at this point. Voluntary organisations should therefore be kept up to date on information relating to structures, resources and funding available.

Sense Scotland indicated that all the young people they work with require a range of specialist provision and/or support. These include consultants; home visiting nurses; specialists i.e. physiotherapists and occupational therapists; social workers; educational staff; Ark housing staff; Sense Scotland advisory staff; escorts; guide dog instructors.

Sense Scotland agree with Down's Syndrome Scotland that young people and their families are rarely told at schools run by local authorities about provision that exists other than that designated by the local authority. Most families were made aware about provision outwith Scotland through social workers or by word of mouth from other parents.

Sense Scotland have advised that the mainstream college courses offered to disabled students are often difficult for them to access. Local authorities funding packages are usually agreed for one or two years, leading to periods of uncertainty for disabled students. Sense have also highlighted that local authorities do not look at the whole package when comparing the costs of a young person attending an institution in Scotland or in England. Sense Scotland are aware of a number of young people who were not able to proceed with their first choice of college or course due to lack of funding and have had restricted choice.

Sense Scotland are aware of young people they have worked with, attending Henshaws Colleges for young blind people; Royal College for blind people; Doncaster College for Deaf Students. None of the people they have worked with have attended Beaumont College; Portland College, Lord Mayor Treloar or Elmwood College, although they are aware of the specialist support they offer. They feel that Elmwood may receive more attention in future due to growing awareness of the autistic spectrum disorder.

Sense Scotland are aware of 53 people who will leave school over the next two years and a number of which will want to pursue FE provision. Sense work with young people from pre-school to service provision for adults. The people they work with have needs which range from 1 to 1 24 hour care, intimate personal care and medication to physiotherapy and these differ to different degrees in different people.

National Autistic Society Scotland have highlighted two case studies of two very academically capable young people with ASD, one who was forced to attend a specialist residential college in England due to lack of provision in Scotland. The parent of the child were not keen to send their child far from home but were concerned that Scottish colleges were unaware of the adaptations required for her son to access the course and gain a qualification. The other case study was based on a young person who completed an HND at college, the college student support service made adaptations and support, however individual tutors did not take on board special requirements, making his experience more difficult. The person is now going to university to study for a BSc.

NAS believe that more information and support is required for people with ASD who want to access FE. They also feel that an important issue is staff training and development to assist in dealing with people with ASD. Training sessions which they are aware of are optional for staff and is not mainstreamed.

NAS are aware of some colleges who are trying different options to support ASD students; including smaller groups and class sizes. Some run taster courses to familiarise students with buildings and staff before embarking on full time courses. Colleges who had not made adaptations were those which did not have or were not aware of ASD students. There are issues around whether this is an accurate picture, given some students' reluctance to disclose information on their disabilities of which there is no code for ASD and also some students may not have been diagnosed at the beginning of the course. Some colleges run buddying systems and advocacy schemes, others have adapted the readability of their materials.

NAS believes that where a student must study outwith Scotland, their place should be fully funded.

Q31

Most of the families which are in contact with Down's Syndrome Scotland will require access to specialist further education in the future.

Q32

Families of children and young people with Down's Syndrome often find themselves beginning to think about life after school from P7 onwards, if not before.

Q33

Young people with Down's Syndrome require different levels of support. Often people with Down's Syndrome who have more complex needs will also have added difficulties such as hearing, visual impairments; communication difficulties and autistic spectrum disorder. The complexity of needs is very individualised.

Q34

Some families who have contacted Down's Syndrome Scotland have already had discussions with further education colleges, but have often felt frustrated at the lack of provision available to their sons and daughters.

OPTIONS FOR FUTURE FUNDING

In terms of the options outlined in the consultation paper, Capability Scotland does not support the status quo. It welcomes the idea of allocating funding to a national body but would suggest the body work closely with the voluntary sector to ensure the application process and criteria are barrier-free. They suggest Skill Scotland might be an appropriate body to fulfil this role.

Capability Scotland also support the idea of creating 2 funds.

NAS believe that students who study outwith Scotland should have their places fully funded. They believe that funding should be taken from local authorities and are supportive of a single body which takes responsibility for awarding funds. They also suggest that the Executive, in line with it's lifelong learning commitment invest more funding into the Scottish FE sector to specifically improve service for students with additional support and complex needs. Without this funding, young people will continue to attend specialist provision in England. They feel there needs to be an attitude change in the FE sector, in realising that people with disabilities whether moderate or severe can benefit from FE in terms of educational, social and personal development.

Lead Scotland are supportive of a specialist centre in Scotland as a means of providing additional choice for people with complex needs. However, they also believe it is important that current learning providers continue to develop their expertise in inclusion. If local colleges opt not to have some people with complex needs because of the existence of a centre of expertise this would in turn eliminate disabled people's choice. It is important not to segregate disabled people. It will still mean many students will be far from home. Therefore, they are more in favour of a small number of FE colleges in Scotland extending their provision for students with complex needs as this would have a more inclusion approach and the student may be able to remain in or close to their community and the expertise needed to work with people with complex needs may benefit other disabled students attending the college.

The Disability Rights Commission believe that by centralising the funding arrangements for places in specialised colleges is one way to end exclusion. Any new central funding system would need to be set up within a framework which ensures transparency and accountability with stronger integration between relevant agencies including Careers Scotland, LAs, NHS Boards, Social Work and FE Colleges to ensure smooth transitional arrangements for students. They also believe that specialist college provision should be available in Scotland. This would enable more choice which is an important part of greater inclusion for disabled people within society.

Skill Scotland do not believe the status quo to be an option and favour the third option set out in the consultation paper, assuming that the anticipated costs of young people attending specialist colleges can be met within the lesser amount available.

Sleep Scotland feel that rather than dividing up funding on an ideological basis, it would be more sensible to carry out an analysis of need, establish a variety of options and allocate funding accordingly. Sleep Scotland's own project does not have significant additional costs as it is hosted within an existing establishment; re-uses provision for 1 to 1 support and promotes learning rather than simply support; the service is available locally and therefore has no residential component.

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'Finding Practical Solutions to Complex Needs' Consultation: Summary of Responses from OTHERS

There were 6 (Other) responses.

Responses were received from and one other un-named:

Highlands and Islands Enterprise

Cults Academy

Careers Scotland - Edinburgh

Careers Scotland - Paisley

Educational Institute for Scotland (EIS)

Key Findings

Highlands and Islands Enterprise (HIE) feel it is important for funding for provision to be consistent and available and for young people to have the choice to stay in their home area. HIE are in favour of developing centres of excellence in existing colleges as they believe it could bring social and economic benefits including creation of jobs and skills expertise in Scotland; Keeping young people closer to home and therefore maintaining links with local culture and social networks; Actively encourage those who do not currently apply for FE because they would have to leave home, to apply.

Careers Scotland in Renfrewshire are concerned that there is no uniform approach to funding from local authorities. They point out that although the Future Needs Assessment Meeting should take place around two years prior to official school leaving date, this can be up to four years. Recommendations are made at this meeting about the most appropriate post school provision, in their experience, local authorities fail to act on these recommendations and parents often find out a few days before their leaving date about whether or not funding is available. Young people with complex needs have the same rights as any school leaver to access appropriate post school provision. Young people often find themselves in inappropriate provision which fails to meet their needs. Local FE colleges will be able to provide necessary IT support or accommodate personal care requirements but would have difficulty providing the full package - highlights needs for specialist provision. Funding arrangements need to be clarified. Consider the situation in England where funding is centrally managed. Difficult to predict future demand, however Record of Needs system would be good starting place.

(Q17) One respondent indicated that they felt that a national resource or national resources would be useful in keeping funding in Scotland and also allowing young people to be nearer their relatives, though they may be in residential care. This would be more inclusive, long term, less expensive than the current arrangements.

Q9) Cults Academy believe that LAs have a role and shouldn't hand over responsibility for their own young people.

Q10) Cults Academy believe that LAs should continue to provide bursaries and support. Nationally, there is a need to create more equity in provision and procedure and to provide information.

Q17) Cults Academy believe that national residential centre or centres in Scotland are a good idea, if economic.

Q18) Cults Academy believe that colleges extending their provision would be useful however the nature of these complex needs probably means very specialist support, so repeating it in several colleges may not be economic.

Cults Academy favour the third option, with LAs continuing to have a role.

(Q1 and 2) Careers Scotland Edinburgh have claimed that there have been 4 students with complex needs supported in the Edinburgh area between 2002 - 2005, funding split between Health, Education and Social Work - fees between £40,000 and £80,000 per student per year. Social Work Department have tried to claw back money from incapacity benefit. One family is currently pay £3,500 per year to fund day centre placements during summer period as Social Work are refusing to fund.

(Q9, 10, 11) Careers Scotland Edinburgh agree that splitting the funding would allow some colleges to build on existing areas of expertise and the remaining gaps could be filled by allowing a small number of students to attend residential FE outside Scotland. A central body with responsibility, criteria for the allocation of funding could be applied consistently across Scotland.

Q12) Careers Scotland Edinburgh feel that some aspects of college support are diminishing i.e. funding and provision of transport by one college which had traditionally provided, is no longer, asked Social Work to take over responsibility.

Q14) Careers Scotland Edinburgh are aware of a college in Edinburgh who used money from the Implementing Inclusiveness Project to fund a key worker post for students with Asperger's Syndrome and those who use Augmentative Aids to Communication. The college which traditionally supported deaf students no longer specialises in this.

Q17 and 18) Careers Scotland Edinburgh feel that it would be difficult to provide the intensity of specialist provision currently used in England where colleges are usually ran by voluntary sector organisations specialising in a particular disability.

Q19) In Careers Scotland Edinburgh's experience residential college provides a more holistic environment, with greater services and level or expertise. CS Edinburgh have used Motherwell College and James Watt College where appropriate but have advised students to register with local health centres for all their medical needs and have to buy in services from Social Work. Current packages are too fragmented.

Q21) Careers Scotland Edinburgh advised that they have access to COPE which is a national directory of residential provision. NATSPEC - the National Association of Specialist Colleges also produces a directory and internet access is also available.

Q28) Careers Scotland Edinburgh advised that residential colleges used by staff in their area include Beaumont College, Lancaster Dilston College, Northumberland, Hereward College and a range of colleges for students who have a visual impairment.

Q29) Careers Scotland Edinburgh have in the past attempted to locate alternative sources of funding from a range of sources including trust funds when it seemed initially that LAs were unwilling to pay. They found no agency who could offer more than a max. of £2000 per annum towards the costs of residential college provision.

Q34) Careers Scotland Edinburgh have advised that local colleges in their area offer link courses, open evenings, they attend on occasion FNA meetings and are happy to discuss individual circumstances on a 1:1 basis. Some schools locally take pupils to visit Motherwell and James Watt on an annual basis.

Careers Scotland Edinburgh have indicated that on options for future funding, the status quo is not an option. They feel that allocation of funding to a different body could be considered on a national basis, in their opinion, SAAS is predominantly viewed as a HE agency and therefore not appropriate. They feel that 2 funds could be an option but the money needs to be ring fenced for ASN work as it presently competes with dance, drama and bible college applications etc.

EIS feel that resources be developed within the three colleges currently catering for students with complex needs, thereby preventing the need for such students to travel outwith Scotland.

December 2005

Scottish Executive

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