Advisory Committee: Report into the Education of Children with Severe Low Incidence Disabilities

ANNEX G

Riddell Advisory Committee: Information Gathering Exercise

1 The Process

1.1 The purposes of the exercise

• To ascertain the views of grant aided schools on their role in making educational provision for children with special educational needs.
• To ascertain the views of a sample of local authorities on their current use and perceptions of grant aided schools.
• To make these views available to the Committee in the form of individual reports and an overall summary report.

1.2 Schools visited

1.3 Authorities visited

Edinburgh City and North Lanarkshire, as high users of the grant aided sector

Falkirk and Dumfries & Galloway, as medium users

Aberdeen and Highland, as low users

1.4 Conduct of the interviews

In advance of the meetings, those to be interviewed received copies of the Committee's definition of severe low incidence disabilities and the draft interview schedule. Some interviewees were therefore well prepared and had facts and figures to use in their responses. Others provided the overall picture with less precise detail.

Those interviewed were, without exception, keen to have their views known and gave extended responses to each question posed, often ranging over several of the areas to be covered within the one response. It was also clear that there were certain issues of concern to respondents to which they returned on several occasions. Not all of these were explicitly covered by the schedule. The schedule served to provide the broad context for the interviews and as a checklist to ensure that all the main areas of interest to the Committee were covered, but was rarely followed formally. Although there were two versions of the schedule - one for high users, one for low users - in practice these overlapped, with even high users volunteering information about why they did not make more use of grant aided schools. The summaries prepared from notes and from transcripts of the interviews roughly follow the order set out in the schedules.

1.5 Outcomes

Interviews were recorded on audio tape and handwritten notes were made. Tapes were later transcribed, corrected, and a summary prepared. All of the schools and some of the local authorities provided additional documentation in support of their responses. This final report draws together the main points covered in the course of the interviews. In respect of East Park School, there is no transcript since the tape was subsequently found to have recorded on side B only. Fortunately, school staff had prepared a detailed written response to the questions on the schedule and this was used to supplement the handwritten notes.

In the following report, where comments relate to points made by a particular authority, this is indicated. In other cases, it can be assumed that the point represents views more generally expressed.

2. The Local Authorities

2.1 Preamble

Not all interviewees made a distinction in their answers between grant aided and independent schools (or even state schools in other authorities) unless pressed to do so. The distinction that was made was between local schools and schools outwith the authority.

Some interviewees asked to be reminded which schools were grant aided, several omitting East Park from their list, for example. (None of the authorities visited had pupils at East Park.)

Opinions varied as to whether the growing numbers of children with emotional / behavioural difficulties fall within the definition adopted by the Committee. Perhaps only those requiring extreme measures do.

Present and future use of grant- aided schools

2.2 Policy

International and national policies on inclusion, recent legislation, and the tide of educational and public opinion generally are leading authorities to rethink their policies. Those interviewed now have, or are developing, policies which explicitly state that children should be educated within their own communities except in extreme cases. Local provision is being developed accordingly. The extent to which their resources allow local authorities to apply this policy varies. Some of the variables cited are listed below:

• City areas with a large population base (Edinburgh, Aberdeen) felt they were able to provide more easily for a compact and larger group of youngsters than sparsely populated areas. However, this view is not always borne out by the statistics. Other variables may be more significant.
• Some areas happen to have grant aided schools within their borders, and they feel it does not make sense to replicate that provision themselves. To some extent, therefore, grant aided schools tend to serve as local schools for those areas in which they are located.
• Some areas had inherited substantial provision after local government re-organisation, others had not. Where they initially had little provision of their own, authorities have been using other schools. However, even rural authorities are investing in new models of provision and expect their use of external provision to fall as their own comes on stream (Highland).
• Decisions made by the Courts to place children in residential accommodation sometimes conflict with local authority policy, but have to be implemented and funded by them.
• Current and developing models of provision

Current models of provision for children with severe low incidence disabilities encompass local mainstream provision with in-school or visiting support, special schools and units; other local authority provision; placements in grant aided and independent schools within the authority, elsewhere in Scotland and in England. Some new models and support mechanisms are being put in place, eg:

• Support for children in mainstream provision is sometimes a joint venture with other authorities (North and South Lanarkshire have shared sensory services).
• Multi-disciplinary area support teams are being set up to support children in mainstream primary schools (Highland).
• Support departments in mainstream secondary schools are being monitored to ensure an appropriate mix of skills to support the particular children in the school (Highland).
• Mainstream schools are required, in their development plans, to give consideration to training their staff in order to provide a widening skills base which, over time, will enable them to provide for a wider range of needs (Highland).
• Skills base of staff working with hearing impaired pupils is being broadened through training in order to provide support for the differing needs of deaf children in mainstream schools (Aberdeen).
• Local authorities (eg. Aberdeen, Dumfries & Galloway) are working in partnership with other local authorities and voluntary organisations (eg. the Aberlour Trust, National Children's Homes) to create small local units capable of meeting local needs.

2.4 Reducing use of external provision

All authorities said that their use of schools outwith the authority (including grant aided schools) was reducing and likely to reduce further. Some of the reasons given were:

• More parents wanted local provision, provided this was of sufficiently high quality (Aberdeen).
• According to Highland, pupils prefer to remain in their own communities. Donaldson's, however, reports a preference amongst youngsters for deaf peer groups.
• Authorities are actively engaged in developing their own provision and envisage that, as that comes on stream, use of outside resources generally will fall. Some authorities appear to have stated categorically that they will not 'refer out' when there is what they regard as suitable provision within their borders. Some may be finding it more difficult than envisaged to provide for profound and complex needs and have started to 'refer out' again. (The last two points are cited by Stanmore, but not mentioned by the authorities visited.)
• Some authorities have inherited situations which will not be repeated. For example, one authority suggested that pupils currently in Donaldson's will not be removed, but no further deaf children will be placed there. Similarly, pupils placed in an MLD school which after re-organisation fell with-in a neighbouring authority are to remain there until they no longer require the provision. Pupils needing MLD provision now or in the future will be placed in an MLD school within the authority's boundaries.
• Closer working relationships between Education and Social Work which are developing as a result of recent changes in legislation are expected to result, over time, in fewer residential placements being made. In some cases, Social Work may seek residential placements because of family needs for respite care, although educational needs could be met locally. Developments in other services, such as social work, are also tending towards more localised provision of services, so that, for example, social workers will try to place children in local foster care in preference to a residential placement outwith the authority (Highland).
• Efforts are being made to persuade Children's Panels that residential placement outwith the area is not the only, or necessarily the best, solution for children with behavioural problems. Money from the Alternatives to Exclusion fund is being used to this end (Dumfries and Galloway) . Aberdeen is working in partnership with the Aberlour Trust and National Children's Homes to develop small local units, and sees this sort of provision as the way forward.
• The Children (Scotland) Act requires local authorities to treat children placed in residential placements as "looked after". This has implications for monitoring etc. which are difficult to fulfil if children are in school distant from the authority.

2.5 Continuing use of external provision

All the authorities said that they do make some use of residential schools at some time, and that this occasional use was likely to continue, the above points notwithstanding. This is because:

• There are, and will always be, some young people who present constellations of needs which cannot be met by the resources available within the authority or which require an expertise which local staff do not have.
• There are, and will always be, young people whose family cannot support them to the extent they require, for what ever reason, and who therefore need the additional support which a residential placement can provide.
• Some children have a high level of need for medical or health care or therapy which cannot be provided by the local health board or other services. Although their educational needs could be met locally, shortage of resources in other services means a placement outside their local community is the only practicable solution.
• There is an acute shortage of respite care in Scotland, sometimes none at all in a given area. External residential provision is sometimes the only solution to the problem.
• Even as local authority services develop there will probably always be children from outlying isolated areas whose needs cannot be met by local authority provision.

2.6 Budgetary considerations affecting choice of placement

All interviewees insisted that, in making decisions about placements, the aim is always to find the provision which best suits the needs of the child. They look first at their own provision, then at provision in neighbouring authorities. They then look at the independent sector (including grant aided schools). The criteria governing choice of placement in the independent sector are match-to-need and quality of provision. No school is ever chosen on the basis of cost alone. To this extent the reduced fees at grant aided schools, though welcome, are incidental and have no bearing on the decision. Some other budgetary considerations are seen as more significant:

• Transport can cost almost as much as the fees, especially when coupled with the cost of one, or sometimes two, escorts. It may be more cost effective to upgrade provision locally than to send away at such cost.
• It doesn't make financial sense for the local authority to spend large sums of money outwith the authority, for the benefit of one child, when the same sum of money, without detriment to the child, can be spent developing local resources which will be of benefit to many. A decision to spend money on a residential placement outside the authority is also a decision not to spend the money creating the jobs which could provide an alternative solution. (Highland pointed out that they could employ an additional teacher and buy extra equipment for the price of one residential place. Dumfries and Galloway drew attention to the importance of jobs in a rural economy.)

Note on Fees

There are usually two core fees (day and residential) which reflect provision available to all the children in the school. Charges for additional needs are negotiated with placing authorities.

2.7 Use of Independant Schools

In making decisions about appropriate placements, no distinction is made between independent and grant aided schools. Relative costs are irrelevant.

Apart from Harmeny, which is for primary aged children, all the residential schools dealing with social/emotional/behavioural difficulties are independent. The growing demand for EBD placements means a growing demand for independent schools, although some authorities are developing their own EBD provision (Dumfries & Galloway, Aberdeen).

The courts, when making decisions about placements, tend to favour residential placements, usually in independent schools since it is they who, by and large, provide places for children with emotional behavioural difficulties. The authority has no power to change that decision even if they do not agree with it (Dumfries & Galloway).

2.8 Use of schools outwith Scotland

Schools outwith Scotland are viewed as part of the continuum of provision. If no suitable placement can be found in Scotland, schools in England are considered. There is a great reluctance to send children so far away. The following reasons for doing so were cited:

• There is an acute shortage of respite care in Scotland. Where children and/or families need a high level of support throughout the year, suitable provision may only be available south of the Border.
• Sometimes families have moved to Scotland but do not wish their child to be moved.
• Occasionally, strong parental preference for a school they have visited.
• Inherited situations, in which the decisions taken some time ago are unlikely to be repeated.
• There are no schools in Scotland which can cater for the needs of high flyers with special needs.

Perception of Grant-Aided schools

2.9 STRENGTHS

Grant aided schools have an advantage over independent schools in that, nominally at least, they follow national curricular guidelines. Other than that, the strengths of grant aided schools are seen as similar to those of independent schools, namely:

• The ability to focus on a particular area of need, allowing a certain expertise to be built up which may not be available in local authorities, including information and technology provision and maintenance.
• The provision of a customised package of provision which includes health and care needs as well as educational ones.
• The provision of 24-hour care in support of families who may not, even with support from the local authority, be able and/or willing to provide that.

The work of some grant aided schools was appreciated by the authorities which used them:

• Dumfries and Galloway buys assessment services from the Royal Blind School.
• Aberdeen expressed satisfaction with the work done by Stanmore and, in particular, Harmeny.
• Edinburgh has developed good working relationships with Harmeny and the Royal Blind school in order to integrate them more closely with local authority provision.

2.10 Weaknesses

Some of the weakness cited appeared to contradict points which were also offered as strengths. Usually this was due to a perceived discrepancy between policy and practice, or because the range of criteria which authorities use before deciding on such a placement means that they must weigh up the balance of strength/weakness against the particular constellation of needs presented at the time. Sometimes the final decision is seen as a compromise between care and educational needs.

• Although in principle grant aided schools follow national curricular guidelines there was generally felt to be more attention given to medical and health care and concerns were expressed about the educational curriculum on offer in some of the schools. Authorities felt that educational needs could be equally well, if not better, catered for in local schools. They felt there were no solely educational reasons for placing children in grant aided schools or any other residential schools.
• There appears to be conflict between the authorities' statutory responsibility to provide appropriate education for the children and the difficulty of effectively monitoring the quality of what grant aided schools provide. Most feel they exercise an ad hoc watching brief by reason of their contacts with a school when children are placed there. Some have relied on the funding body (Scottish Office) to exercise overall quality assurance and their confidence has been shaken by recent well publicised events. Others have been clear about their own responsibility for monitoring but feel, never-the-less, that there is an absence of national quality standards for grant aided as well as independent schools.
• Authorities with grant aided schools within their boundaries were attempting to form partnerships with those schools. The extent to which they have been able to do this varies. Some grant aided schools have very strong historical identities and resist pressure to conform with local authority guidelines and policies. Highland found independent schools more open to discussion about their policies and provision than some grant aided schools. All felt that grant aided schools need to be more responsive to local authority needs and priorities.
• In general, as authorities build up their local skills base they are becoming more confident of their ability to provide for their children services which are just as good as, or better than, those which grant aided schools can provide - except in a few cases of extremely low incidence medical conditions.
• Grant aided schools, by their nature, are distant from most children's homes. In the current climate of opinion this is less acceptable than it was. Aberdeen, for example, feels that there is no justification for sending away any deaf child who has no overriding medical condition.
• Despite the fact that need for care outwith school hours may be the prime reason for choosing a residential placement, of the grant aided schools only East Park provides care outwith the school term. For this reason independent schools sometimes have to be chosen in preference to grant aided provision. (None of the authorities visited used East Park. Some were unaware that it was a grant aided school.). Some concern was expressed about the lack of separation between educational and living accommodation, which was felt not to be in the children's best interests. Some of the schools are now addressing this concern.)

2.11 Centres of excellence

All the authorities expressed doubt that grant aided schools could be considered as centres of excellence. To them they were simply part of the external provision which they could access. Some authorities questioned the equity of selecting some independent schools for subsidy and not others. They affirmed that being a grant aided school was no guarantee of excellence, although some grant aided schools have tended to market themselves as if that was the case. Such claims are felt to be misleading, and a source of some friction between parents and local authorities.

Most of the authorities felt that the role of grant aided schools as national centres of excellence could be improved under certain conditions.

• They should be less independent and autonomous, and more in tune with national priorities and policies. This may involve withdrawing grant aided status from some schools and awarding it to others.
• They should be more accountable, perhaps to a national standing committee (including local authority representatives) which would monitor performance and oversee development according to specified guidelines. The local authorities in which the schools are located could be given a quality assurance role as agents of the national committee.
• They should be given a clear remit to provide outreach training and consultancy services to assist local authorities in making their own provision.
• They should be willing to establish small 'satellite' units which would help local authorities to make use of their expertise in a local context.
• Central funding should not be applied to fees reduction but to strategic planning, so that the schools must develop in ways which reflect national priorities.

2.12 Outreach

Although the grant-aided schools visited varied in the amount of outreach and in-service work they reported, the authorities visited were in agreement that they received no such services from grant aided schools, other than that which was incidental to the placement of a child in one of the schools. When pressed, some authorities said that they had bought assessment or training from the Royal Blind School, or had exchanged teachers with them.

Those authorities in which grant aided schools are located reported a different sort of relationships with 'their' grant aided schools, though even in Edinburgh, which has three grant aided schools, the nature of the relationship varies from one school to another. Most 'host' authorities are making their in-service opportunities available to grant aided schools and attempting to bring them into their schools support network. The extent to which the reverse occurs was not clear.

Difficulties encountered in making provision

2.13 Changing demands

Grant aided schools cover some specialisms, but not all. There is a growing demand for provision for children at the severe end of the autistic spectrum and for children with emotional/behavioural difficulties. There is a growing demand for places which can accommodate children with high dependency needs, arising from higher infant survival rates. There are increasing demands by parents and children for provision within the community.

2.14 Training

The change in emphasis towards local provision means that authorities have a wider range of training needs which are proving very difficult to meet. This is particularly true in authorities outwith the Central Belt who cannot afford the time and transport costs required for staff to follow a course which requires regular attendance at one of the usual centres. Training of the quality authorities are looking for, in a format they can access, is not always obtainable, or not within Scotland. (Aberdeen is buying hearing impaired training from Birmingham because it offers what they need in distance learning format.)

2.15 Inter-Agency working and budgetary difficulties

Recent legislation, international as well as national is making new demands on authorities. Several authorities drew attention to the Children (Scotland) Act which emphasises the corporate responsibility of authorities. This requires education and social services to work more closely together. In some places organisational mechanisms are in place which are supporting changes in this direction. In others there are still problems arising from placements being made for different reasons by different services, sometimes without consultation.

Inter-agency working can be facilitated or hindered by the financial arrangements which a local authority has in place. These arrangements vary from one authority to another, with education and social work coming to ad hoc agreements where necessary (for example, to allow joint funding of a placement selected because of care needs.)

Some instances quoted during interviews:

• One authority has found itself having to arrange suitable educational placements outwith the authority, at short notice, because of decisions made about foster care.
• Another finds it difficult to budget for decisions regarding residential placements which are made by the Children's Panel, with which they may not agree but which they are obliged to fund.
• Health Boards are independent of the local authorities, have borders which may not coincide with those of local authorities, and have their own budgeting priorities. There are instances of Health Boards being unable to provide the therapy deemed necessary for a child, because of budget or staffing shortages. In some cases the education budget may be used to make up the short fall. Where there is a shortage of Heath Board personnel, either the child's identified needs are not being met, or a placement is selected by the authority which, although not ideal in terms of educational needs, nevertheless provides the therapy the child requires. The perceived freedom Health Boards have to decline to meet the needs identified if they do not have the resources to do so is a source of some dismay to authorities who feel their statutory duties do not allow them that solution.

2.16 Post-school provision

Major concern was expressed in a number of authorities about the lack of provision for moving pupils on into post-school provision. (A number of the schools share these concerns.)

• One authority felt that the current emphasis on lifelong learning showed up a distinct lack of equity where young people with complex needs are concerned.
• Another has a young man still in provision in Manchester at the age of 20 because there is no suitable provision for him locally.
• Higher Still is about to create a new situation for young people with complex needs. Access level courses will undoubtedly prove more attractive to young people and parents than the day care provision which might be the best they can hope for when they leave school. It is anticipated that numbers of young people who would otherwise have left school will choose to stay on, with consequent increases in demand for staff and other resources. The implications of this have not yet been budgeted for.
• Parental expectations had risen as a result of improvements made to the schooling of children with complex needs. They expected provision of comparable quality to be available post school, but it does not yet exist.

2.17 Respite, Nursing and Medical care

The absence of provision of respite for respite care in Scotland was an area of considerable concern to the local authority officers interviewed. The educational needs of the children covered by the Committee's remit cannot be divorced from their care needs, yet it is their care needs which are most difficult to meet and which are the most important single reason for choosing residential placements. With the exception of East Park, which in practice serves only the Greater Glasgow area, grant aided schools are open only in term time.

Authorities questioned the extent to which care and medical needs should determine educational provision, and to what extent the educational budget should be used to pay for medical and nursing care.

In addition, advances in medical practice have led to increased infant survival rates which are beginning to place heavier demands on local authorities for intensive care placements.

2.18 Supporting families

Very often, when a residential placement is selected, the reasons for doing so may be more to do with supporting the family than with meeting the educational and/or care needs of the child. This includes taking into account the needs and rights of siblings. These duties are underlined by recent legislation. Current funding arrangements do not adequately take these various needs into account.

National Policy

2.19 Funding arrangements

In terms of choosing the most appropriate placing for a child, there is no difference, in the minds of the local authorities, between grant aided and independent schools. However, authorities differed in their views as to whether funding should continue in the current manner.

• One authority clearly stated that they would prefer to have their share of the money currently spent on subsidising grant aided schools in order to accelerate their development of quality local services.
• Others were ambiguous: although they felt that the grant aided schools were not fulfilling their role as centres of excellence, they were providing valuable placements for those extreme cases which the authorities could not themselves accommodate. There would be dismay if these resources were to disappear as a result of changes in funding.
• If the schools survived, and if placement in them was selected as the best available to meet the needs of a specific child, authorities would be prepared to pay the economic rate.
• Some authorities felt that the whole question of funding for special educational needs should be reviewed in the light of increasing emphasis on inter-agency working.
• Advice to local authorities included a plea for flexible budgeting arrangements which would allow for virement between budget headings. This would help to compensate for the impossibility of making realistic estimates of spending far in advance of actual needs being presented .
• The whole area of funding for people with complex needs should be reviewed in the light of their continuing need for combined education and care, through to and beyond school leaving age

2.20 Improvements suggested

Despite the general lack of enthusiasm for the present group of grant aided schools except as placements of last resort, authorities did see an enhanced role for a national group of schools such as the present grant aided ones. They had a number of suggestions as to how grant aided schools might be made more effective.

• Range of grant aided schools

The current specialisms of grant aided schools does not necessarily match current or future needs. National needs should be reviewed and the range of schools adjusted accordingly. There is a need for a framework to allow stakeholders to consider their needs and how they can be provided (Highland).

• Strategic funding

Central funding should be applied not to fees reduction but to developments which reflect national priorities.

• Outreach

Instead of large central schools, a number of smaller, more accessible units working closely with authorities would be more in line with current trends. Aberdeen and Dumfries & Galloway gave examples of small-scale local projects in partnership with the Aberlour Trust and National Children's Homes which they saw as the way forward.

• Training and consultancy

The knowledge and skills which schools have acquired should be available nationally to authorities to assist them in making and improving local provision. Aberdeen would like to see a national network of schools, authorities and other agencies which could offer mutual and/or expert support.

• 'Hands on'

The link between theory and practice is a valuable one and should not be lost in any re-organisation. Schools should continue to be the basis for outreach work. For the same reason, local authority support services should always work from a school base.

• Quality assurance and control

Whatever system is in place, quality assurance and control of all residential facilities (whether grant aided or independent) must be improved. It is unrealistic to expect local authorities to do this in any realistic or systematic way. Even if local authorities were asked to serve as local agents, national guidelines and support are needed. A standing committee should be set up to oversee such a development (Highland).

• A National SEN Initiative

Following major national mainstream initiative like 5-14 and Higher Still, North Lanarkshire feels it is time for a major initiative on special educational needs to replace the piecemeal developments of recent years. Falkirk would like young people with complex needs to get a fair deal and not always be at the end of the line.

3. The schools

Characteristics of the schools and school population

3.1 School aims

The substance of schools' aims generally has not changed, but statements of aims have been subject to reviews which have led to rewording or changing of emphasis.

Craighalbert's statements emphasise the Centre's aims not only for the children (therapy and curriculum) but also for parents (working with children), teachers (training in conductive education) and the wider education community (outreach) in Scotland. Children are prepared for integration into mainstream or other settings through contacts with the children's home authority.

Donaldson's statement relates to its aims for the development of pupils and staff. The school has links with mainstream schools for some subjects. Pupils are prepared for entry to mainstream life through preparation for the world of work.

Harmeny's aims for the children emphasise preparing them for reintegration into their natural mainstream setting, including family life. Work is more family centred than previously. Outreach work includes working with families and staff in the schools to which children will be returning.

The Royal Blind School's aims relate to the whole development of their pupils through inter-agency working and community links, preparing them to take their place in the wider community when they leave school. The school's last aim relates to its role as national centre.

East Park has been moving towards a more person centred approach and that that is reflected in the aims as currently stated. The aims relate mainly to the development and care of pupils in the school; statements covering staff development and working with other agencies are intended to facilitate the achievement of those aims.

Corseford's primary aims are concerned with maximising the children's potential through appropriate educational and therapeutic programmes which reflect current thinking and involve parents. The aims include reference to the school's role as a national centre of excellence and to the professional and outreach services it provides.

Stanmore's aims emphasise the individuality of the children and their rights to dignity, respect and freedom from abuse. Partnership with parents and provision of social and recreational activities complement the educational aims of helping pupils to be aware of and respond to their environment, to develop independence and social skills.

3.2 School roll

Craighalbert From 1991 when the school opened, numbers built up to a peak of 41 in 1995. Since then numbers have been falling. Roll now 24.5, which is about half capacity.

Donaldson's The roll has been falling since re-organisation. Currently 52 of whom 4 are in the Speech and Language Unit. Notional capacity around 100.

Harmeny's roll had been dropping prior to re-organisation under new management. Since then it has been rising and accommodation is currently being extended to meet demand.

Royal Blind School Currently 118, of whom 12 are from England. Numbers have risen from 89 in 1995. 24 are day pupils from the Edinburgh area. Projected roll unlikely to fall below 115.

East Park Reduction from 54 to 26 over last decade. Currently 5 in upper primary; 5 or 6 in secondary; 16 in the 17+ age group. Numbers are likely to fall initially as pupils in the post-school group are relocated.

Corseford's roll has fallen slightly in the pre-school unit, and ratio of residential places has fallen, partly due to restrictions on numbers arising from the registration process.

Stanmore is similarly facing a restriction on numbers in residential placements, but numbers overall are steady. The school is operating to capacity in all but the pre-school unit, where they are rising. Five applications have had to be turned away, suggesting the roll could rise if more accommodation were available.

The schools whose rolls are falling attribute this to a preference on the part of the new unitary authorities for educating children locally. Where they are rising, this is attributed to a rise in the incidence of problems in society generally and a shortage of provision to meet the rising level of need.

3.3 Nature of the school population

All the schools report an increase in more 'extreme' or more complex cases. In some cases pupils have been excluded from local authority provision because of challenging behaviour added to complex needs. The three schools which cater for children with cerebral palsy and related disorders see a rising population of children who survived a premature or problematic birth. There are consequently growing numbers of families with children with high levels of dependency who are looking for provision which combines education with intensive therapy and extensive respite care.

3.4 Strengths

Grant aided schools feel that they complement rather than compete with local authority schools. They feel they can offer:

• holistic provision, integrating social, health and educational needs with a strong focus on the individual child;
• a supportive peer group setting in which children's needs are 'normal' rather than 'special';
• staff trained and experienced in a specialised field, including rarely occurring conditions;
• a high staff / pupil ratio;
• quality and quantity of therapy available from multidisciplinary teams on site, so that a wide range of pupil needs can be catered for on site in a holistic way;
• in some cases, 24 hour care/education / and social respite;
• intensive work with parents;
• more choice for parents.

3.5 Future development

All the school are undergoing a period of change. Some concern was expressed about people making judgments based on outdated perceptions.

Craighalbert is putting greater emphasis on the formal curriculum and developing courses leading to qualification in conductive education.

Donaldson's After a difficult period, Donaldson's is developing policy and practice in a number of areas including residential provision, speech and language provision, information and communications technology, mother and toddler group, extension of services to the deaf community in Scotland.

Harmeny is building new accommodation and has plans to develop further its outreach services. It aims, in particular, to make its expertise in pupil behaviour management available to a wider range of professionals who may be dealing with similar if less extreme problems in their own contexts.

The Royal Blind School plans to continue its programme of refurbishment and to extend the accommodation for multi-handicapped pupils. It would like to develop closer ties with VI services throughout Scotland, but particularly the local service. Outreach work is limited by the time school staff have available. It would like to see more centrally funded national posts based in grant aided schools.

East Park Following an adverse inspection great changes are underway. In the short term, extensive refurbishment has improved residential accommodation on site. In the long term the school plans to open several small residential units off site and to extend its outreach service to families in the Greater Glasgow area. It also plans to develop separate accommodation for respite care. Staff would like closer links with local education networks and services, and a national network of schools and services working in the same field.

Corseford is upgrading its residential accommodation and its pre-school services. It hopes to develop social/respite services for a wider range of children. The curriculum is being developed to take account of Higher Still developments.

Stanmore's main problem is with its residential accommodation which is no longer considered to be appropriate. Until the problem is solved numbers of residential places will be limited. After school clubs are being developed, to counteract the reduction in opportunities for community based activities due to tighter regulations on handling, etc.

3.6 Centres of excellence

The schools all see themselves as sources of accumulated knowledge and experience of the conditions in which they specialise, but the extent to which they make these available varies. Craighalbert, Harmeny and the Royal Blind School are very conscious of their role and of the expectations placed on them. Donaldson's and East Park have no programme for sharing their expertise with local authorities. Harmeny and the Royal Blind School are engaged in an extensive range of outreach services and professional links. Craighalbert would like to have a greater role in outreach training, but experiences little demand from Scottish authorities, although there have been requests for training from Sweden and the Faroes. Corseford and Stanmore run courses for professionals from various services and provide advice as requested to local authorities.

Relationship with Local Authorities

3.7 Placing Authorities

East Park draws pupils almost exclusively from authorities which were formally part of Strathclyde Region. The rest draw from all over Scotland, though not all authorities have pupils attending at any one time, given the low incidence of cases. The Royal Blind School and Donaldson's have higher numbers of children from the local area, the 'Lothian' authorities. Harmeny has particular links with the Lothians and Aberdeenshire. Corseford and Stanmore are entering into partnerships with nearby authorities: Corseford to provide social respite and pre-school services and support for children in mainstream; Stanmore to provide transport for pupils using the school.

3.9 Local Authority Reorganisation

All schools report an increase in administration as they now need to communicate with more authorities. It is proving more difficult to keep up to date as there have been frequent changes in authority personnel. Harmeny felt that there have been some gains, too, with new people generating new ideas.

Schools feel that some authorities are now determined not to refer children outwith the authority boundary, to the extent of concealing from parents information about alternative provision. Tighter budgets are thought to be responsible, and a policy of inclusion which ignores the reality of children's needs. On the other hand, some of the unitary authorities previously in Strathclyde Region now have more freedom to decide their own priorities.

3.10 Fees

In general, fees are specified for those services which are common to all pupils. Where a child requires additional services, perhaps for a limited period, these are negotiated with the local authority. Additional charges usually represent the cost of providing the service (eg. behaviour support). Donaldson's residential fees are likely to rise as services are upgraded.

Corseford's and Stanmore's fees, on the other hand, are invariably global on the basis that all services are available to all children when/if they need them. Stanmore pointed to the impossibility of costing individual services to their children, particularly in view of rapidly changing needs.

Harmeny and the Royal Blind School drew attention to the fact that their fees relate to actual services provided for the pupil. Capital and development costs are borne by the Trust. In the case of the Royal Blind School, the Trust also contributes to the cost of extra curricular activities.

3.11 Curriculum

Although there was no specific question about the curriculum it was clear that schools are very conscious of the need to develop the curriculum along national lines. In most schools the elaborated 5-14 curriculum is the means by which educational aims are integrated with children's need for various therapies. It is the school's ability to do this in a holistic way that they see as their greatest strength. A great deal of effort goes into planning the individual programmes which will meet all the needs of each child. Stanmore pointed out that detailed planning is essential if the tiny signs of progress made by some of their children are not to be missed.

The inclusion of all children in the arrangements for Higher Still is widely welcomed. Access courses will allow schools to provide a more age-related curriculum for all children over the age of 14. In schools which provide education for children of all levels of ability there has been extensive use of SCOTVEC and other modules. These will be overtaken by the new National Certificate courses and development work is underway to allow these to be introduced smoothly.

The national picture

3.12 Differences between Grant-Aided and Independant sectors

• Funding.
• Pupils in grant aided schools follow a Scottish mainstream curriculum.
• Some independent schools are based on the application of a particular philosophy.
• Independent schools tend to cater for EBD, and not for CP.

3.13 Present funding arrangements

The schools wished present funding arrangements to continue. The guarantee of this makes it possible for them to plan ahead in a way that would otherwise be very difficult, since fees from local authorities are bound to fluctuate with demand.

It also allows them to undertake outreach activities which would not be possible if central funding were not available. The Royal Blind School and Harmeny consider central funding to be essential if they are to fulfil and develop their role as national resources.

Corseford and Stanmore felt that the subsidy helped to compensate authorities for the additional costs incurred in providing specialised transport for their children.

3.14 Difficulties

• Where there are falling rolls it is difficult to maintain levels of staffing (Craighalbert).
• Access to other national services and networks (East Park).
• There is no clear definition of what 'adequate' provision means.
• Children who are placed in grant aided provision sometimes lose their entitlement to local authority services, despite the fact that they spend only part of their lives in school.
• The range of provision available to young people ready to move on from school is inadequate, leading to young people remaining in school provision for longer than is desirable.
• The Children (Scotland) Act has imposed new regulations with which some schools are struggling to come to terms, although they welcome the intention behind them. They find particularly difficult the need to comply with differing expectations and demands from different registering bodies.
• Tighter controls are also affecting the availability of social and respite care, especially for children dependent on high levels of nursing care.

3.15 Advice to Local Authorities

• Make sure parents are informed of all the options available to them.
• Ensure that support teams operate out of school bases where policy can be demonstrated in practice.
• Ensure a sufficiency of staff sufficiently well qualified to accurately assess specific needs. Generalists will not have the skills and experience to undertake in-depth assessment.
• Improve inter-agency working, including funding arrangements.
• Provide time and support for pupils and their teachers when pupils are reintegrated into local authority setting.
• Be aware of the social and emotional needs of the young people, as well as their educational needs, and take these into account when selecting appropriate provision.
• Provide Records of Needs for all children who require them.
• Apply the policy flexibly, around the needs of the children, rather than fitting the children into a predetermined policy.

3.16 Advice to the Scottish Executive

• Continue funding to grant aided schools.
• Consider the possibility of separating assessment from funding, so that assessment will truly be needs-led rather than resource-led.
• If this is not possible, create a central fund which will support alternative provision for those children whose local authority refuses to refer.
• Consider creating more centrally funded national posts. These could be staff based in school but with a specific national remit.
• Define what 'adequate' provision means for a child with complex needs. Is 'adequate' good enough?
• Find a way of ensuring that a child's entitlement to equipment, therapy, etc. is not subverted by deficiencies on the part of one or more of the fund holders.
• Provide a central source of information to parents about alternative provision available to them.
• Maintain support for specialist training, not only for meeting needs, but, perhaps more importantly, for assessing children and identifying needs.
• Consider carefully whether inclusive policies can effectively cater for the full breadth and complexity of difficulties encountered.
• Promote closer integration of education and social work personnel at local authority level, in terms of finance, services offered, etc.
• Review the role of grant aided schools with a view to further developing them as national centres for outreach, resources and training.
• Create a number of small national centres around the country so that services can be delivered closer to home.
• A lingering death is the worst possible scenario for schools. If the grant aided system is retained, schools need a clear remit backed up by advice to local authorities.