Quality and standards in education and training in Wales. A report on the quality of. Carmarthenshire Local Authority Education Services.

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1 Quality and standards in education and training in Wales A report on the quality of Carmarthenshire Local Authority Education Services May 2009 by Estyn, Her Majesty s Inspectorate for Education and Training in Wales

2 The purpose of Estyn is to inspect quality and standards in education and training in Wales. Estyn is responsible for inspecting: nursery schools and settings that are maintained by, or receive funding from, local authorities (LAs); primary schools; secondary schools; special schools; pupil referral units; independent schools; further education; adult community-based learning; youth support services; local authority education services (LAES); teacher education and training; work-based learning; careers companies; offender learning; and the education, guidance and training elements of the Department for Work and Pensions funded training programme. Estyn also: provides advice on quality and standards in education and training in Wales to the National Assembly for Wales and others; and makes public good practice based on inspection evidence. Every possible care has been taken to ensure that the information in this document is accurate at the time of going to press. Any enquiries or comments regarding this document/publication should be addressed to: Publication Section Estyn Anchor Court Keen Road Cardiff CF24 5JW or by to This and other Estyn publications are available on our website: Crown Copyright 2009: This report may be re-used free of charge in any format or medium provided that it is re-used accurately and not used in a misleading context. The material must be acknowledged as Crown copyright and the title of the document/publication specified.

3 Contents Page Context 1 Background to the authority 3 Summary 7 Recommendations 10 Findings: How good is the local authority s performance and will performance improve? 11 Strategic management 11 Promoting social inclusion and wellbeing 13 Additional learning needs (ALN) 14 Access and school organisation 17 Support services 19 The local authority s response to the report findings 23 Appendix 1 The grade profile Appendix 2 Local authority performance data Appendix 3 The inspection team

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5 Context The Inspection 1 Local Authority (LA) inspections are carried out under section 38 of the Education Act 1997 and the Children Act The inspection framework for this cycle is on the Estyn website 2 This inspection took place from 11 May 2009 to 20 May The focus of this inspection is on Carmarthenshire local authority s strategic management, access and school organisation, additional learning needs, inclusion and support services. Before the inspection, Education and Children s Services reviewed these aspects of its services and produced a self-evaluation report. Key judgements 3 The inspection team makes two key judgements about each service. These are: (1) How good is the local authority s performance? 4 The local authority s performance in discharging its responsibilities is rated on a four-point scale as follows: Grade 1 good with outstanding features (***) Grade 2 good features and no important shortcomings (**) Grade 3 good features outweigh shortcomings (*) Grade 4 shortcomings in important areas (2) Will the local authority s performance improve? 5 The prospects of improvement are rated on a four-point scale as follows: Grade 1 improvement prospects are good, with significant improvements already in place Grade 2 improvement prospects are good, with no major barriers Grade 3 some good prospects, but barriers in important areas Grade 4 many important barriers to improvement 1

6 Key questions 6 In order to make the two key judgements, inspectors evaluate the authority s performance in relation to each of four key questions: How effective is the authority s strategic planning? How effective are the authority s services? How effective are leadership and management? How well do leaders and managers monitor, evaluate and improve services? 7 These four key questions and the evaluations are set out in findings section. They are recorded as grades, using the four-point scales set out at (1) and (2) above. All of the grades are included in the grading profile. 8 Estyn s reports follow its guidance for the writing and editing of reports, which is available on the Estyn website ( The table below shows the terms that Estyn uses and a broad idea of their meaning. The table is for guidance only. Nearly all with very few exceptions Most 90% or more Many 70% or more A majority over 60% Half/around half close to 50% A minority below 40% Few below 20% Very few less than 10% 2

7 Background to the authority 9 Carmarthenshire is the third largest county in Wales. The county is a mix of affluent and severely disadvantaged areas, following the decline in heavy industries. The majority of the population of Carmarthenshire, around 65%, live in 20% of the county s area. This is in the south and east of the county. Many of the wards in this area rank among the poorest 20% in Wales and are where the county s five designated Communities First Wards are located. The more rural areas of the county also have aspects of deprivation such as isolated communities, poor transport links, a decline in rural agriculture economies and low wages. 10 Carmarthenshire has a total population of 175,579, of which 30,405 are aged between 10 and 24 years. Over half the population are able to speak Welsh. This rises to 64% of the working population. Carmarthenshire has the highest number of Welsh speakers of any other local authority in Wales. Schools and pupils 11 Carmarthenshire currently has 118 primary schools with a total number on roll of 14,676 pupils, and one nursery school with 81 pupils. Sixty-seven of these primary schools are designated Welsh-medium 1 ; 14 are dual stream 2, 14 are transitional 3, six are predominantly English with significant Welsh 4 and 27 are predominantly English Welsh-medium Primary School: Curriculum Pupils are taught wholly through the medium of Welsh for early years and key stage 1 (KS1). Welsh is the main teaching medium at key stage 2 (KS2). English is introduced as a subject at KS2 and is taught through the medium of English, and English is also used for some aspects of some subjects. At least 70% of the teaching at KS2 is through the medium of Welsh. Language of the School Welsh is the language of the day-to-day business of the school. Welsh is used as the language of communication with the pupils and the language of the school's administration. The school communicates with parents either in Welsh or in both Welsh and English. Dual Stream Primary School: Curriculum Two types of provision exist side-by-side in these schools. Parents/pupils opt either for the mainly Welsh-medium or mainly English-medium provision which is delivered respectively as in categories 1 and 5. Language of the School Both Welsh and English are used in the day-to-day business of the school. The language of communication with the pupils is determined by the nature of the curricular provision, but in some schools high priority is given to creating a Welsh-language ethos throughout the school. The school communicates with parents in both languages. Predominantly Welsh-medium with significant use of English: Curriculum Both languages are used in teaching for early years, KS1 and KS2 but with greater emphasis on Welsh. Welsh is used as the medium of instruction for between 51% and 70% of the primary curriculum overall. Language of the School - Welsh is the language of the day-to-day business of the school, but some English is also used as a language of communication with the pupils. The school communicates with parents either in Welsh or in both languages. Predominantly English-medium with significant use of Welsh: Curriculum Both languages are used in teaching, for early years, KS1 and KS2 but with greater emphasis on English. Welsh is used as the medium of teaching for between 20% and 50% of the primary curriculum overall. Language of the School The day-to-day language or languages of the school are determined by the school's linguistic context. Both languages are used as languages of communication with the pupils and also as languages of the school's administration. A high priority is given to creating a Welsh ethos. The school communicates with parents in both languages. Predominantly English medium: Curriculum Pupils are mainly taught through the medium of English for early years and at KS1. English is the main teaching medium at KS2. Welsh is taught 3

8 12 There are 14 secondary schools with a total number on roll of 12,999. Three of the secondary schools are 2A 6. Three of the secondary schools are bilingual category 2B 7 and a further three are bilingual category 2C There are two special schools. 14 There are two Pupil Referral Units (PRU). 15 In January 2009, the proportion of pupils in Carmarthenshire schools with statements of special educational needs (SEN) was 4%, compared with the all-wales figure of 3.2% The proportion of pupils entitled to free school meals in Carmarthenshire in January 2009 was 15.2% compared with the Wales figure of 17.0%. Political governance 17 Carmarthenshire County Council has 74 councillors. The current political make up of the Council is as shown in the table below: Political alliance Number of Members Independent Alliance 31 Plaid Cymru 30 Unaffiliated 2 Labour The Council s political structure is based on a Leader and Cabinet executive model with the executive known as the Executive Board. The Executive Board is an alliance between the Independent Alliance members and Labour. The Leader of the Council also chairs the Executive Board. The new structure encompasses County Council, the Executive Board, Scrutiny Committees, the Standards Committee and other specialist regulatory and quasi judicial committees for such matters as planning and licensing. An Audit Committee has also been established. 19 The current administration came to power following elections in May The County Council (all 74 Councillors) appoints the Leader and Deputy Leader, and will make decisions on the budget and policy framework on the recommendation of the as a second language in KS1 and KS2, and some aspects of some subjects may be taught in Welsh. Less than 20% of the teaching is through the medium of Welsh. Language of the School - English is the language of the day-to-day business of the school, but some Welsh is also used as a language of communication with the pupils. The school communicates with parents either in English or in both languages. Category 2A At least 80% of subjects (excluding Welsh and English) taught only through the medium of Welsh Category 2B At least 80% of subjects (excluding Welsh and English) offered through the medium of Welsh but also offered through the medium of English Category 2C 50-80% of subjects (excluding Welsh and English) offered through the medium of Welsh but also offered through the medium of English Source: Stats Wales 2008: Pupils with statements of SEN in Wales Welsh Assembly Government 4

9 Executive Board. The Executive Board is made up of 10 Councillors, including the Leader and two Deputy Leaders, each with specific portfolios. All Councillors except those on the Executive Board will sit on one of seven Scrutiny Committees, including a Policy and Resources Committee together with a further six thematic Committees, which will scrutinize decisions made by the Executive Board. Education and Children s Services Scrutiny committee oversees decisions related to local authority education services. Corporate structure 20 Carmarthenshire revised its organisational structures in 2006 to amalgamate education and children s social services into one directorate; Education and Children Services (ECS). 21 The authority s strategic management role is currently overseen by the team consisting of the Chief Executive and five directors. They are joined in the corporate management team by other corporate heads of business and resources functions. 22 Education and Children Services has one lead Director supported by five strategic heads of service, each with responsibility for a specific portfolio of services. The director of ECS is the lead director for Children and Young People. The Director is does not have responsibility for all the areas of Support Services as inspected. Funding 23 The Welsh Assembly Government s Standard Spending Assessment (SSA) 10 per head of population for Carmarthenshire County Council for was about average for local authorities in Wales. However, the education component of SSA (the education Indicator-Based Assessment (IBA) 11 ) was above the Wales average. At million, the education IBA represented 4,621 for each pupil in Carmarthenshire schools compared with the Wales average of 4,485 per pupil. 24 During the last five years, the council has gradually reduced its net education budget relative to IBA from what was formerly an unsustainable position. In , the council set the education budget at a level of 101.2% of IBA 12, yielding a net education budget per pupil of 4,677 compared with an average of 4,472 for Wales as a whole. In contrast to the education budget, the council s overall level of spending on all services for was marginally below the level of SSA. 25 Carmarthenshire s net education budget for increased by 2.5% compared with an average 3.3% increase across Wales. This reflects the increased efficiency of the authority s schools system. Delegated budgets per pupil (including grants) for both primary and secondary schools have fallen marginally relative to those in other authorities but they remain comparatively high. At 3,515 per pupil in , average primary school delegated budgets are eighth highest among authorities in Wales. Average secondary school delegated budgets per pupil amount to 4,202 per pupil, fourth highest in Wales. 10 SSA is the means by which the Welsh Assembly Government distributes Revenue Support Grant to local authorities. 11 Education IBA is that part of SSA relating to the delivery of education services. 12 Education IBA is not intended as a spending target and councils are free to spend at levels above or below IBA, in accordance with their priorities. 5

10 26 The council has invested about 49.6 million capital expenditure, in education, over the four years to This represents about 1,800 per pupil, which is well above average in Wales. 6

11 Summary Local authority education services How good is the local authority s performance? Will the local authority s performance improve? Strategic management 2 2 Promoting social inclusion and wellbeing 2 2 Additional learning needs (ALN) 2 2 Access and school organisation 3 2 Support services 3 2 Strategic management 27 The authority has a far-reaching vision for integrated and inclusive services. Importantly, the integration of services is now beginning to demonstrate positive outcomes for children and young people. 28 Senior managers provide confident leadership and plan well to drive service integration and improvement. They consult and communicate very well with staff and schools to help them to understand and contribute to key strategic developments. 29 Performance management by the corporate team, senior managers and elected members is robust. Scrutiny is becoming more effective, in particular through its policy review work. However, the authority has not yet embedded monitoring, evaluation and quality assurance across a few services. In addition, on occasion, staff do not always use data well to help measure impact or target services. 30 The Council and senior managers are clearly committed to education and invest significant resources to progress key priorities. Overall, the authority has made significant progress to achieve greater integration and improve outcomes for children and young people. However, there is still significant work remaining to improve the fabric of school buildings and further reduce surplus places. The uncertainty of future long term funding remains a challenge. Promoting social inclusion and wellbeing 31 The recent service amalgamation has improved provision and outcomes for those at risk of social exclusion. Senior officers work well to raise the capacity of schools to meet inclusion challenges. Effective multi-agency partnership working is well established and is helping staff work more effectively together. 32 The co-ordinated use of provision for those at risk of exclusion has improved outcomes for children and young people whose behaviour is challenging. Attendance in primary and secondary schools has improved and is now at the Welsh average. However, there is no rigorous and consistent analysis of outcome data to inform performance management and strategic planning. 7

12 Additional learning needs (ALN) 33 The authority makes good provision and provides high-quality professional advice and support for pre-school and school age children and young people with additional learning needs. 34 The authority makes reasonable adjustments so that individual disabled children can access mainstream education, either in their local school or in resourced provision within one of the linked clusters of schools. However, this work is proceeding too slowly and provision is not equitable across schools. 35 Systematic monitoring of outcomes for pupils with ALN is underdeveloped, leaving the authority unclear of the impact of some services on pupils achievement and limiting its capacity for future strategic development. 36 There has been outstanding partnership with other agencies in developing support, including a key worker system for pupils with complex needs and their families. 37 Recent changes within the statutory assessment department, including the appointment of Pupil Progress Officers, is helping the authority to give better focus on monitoring the progress of pupils receiving support at School Action Plus 13 and those with statements of SEN. However, systematic monitoring of outcomes for pupils with ALN is underdeveloped. Access and school organisation 38 The authority, through its Modernising Education Programme (MEP), has successfully removed 1244 surplus places from the authority s schools since 2001 and will have delivered an investment of 90m in new and refurbished school buildings by However, pupil numbers have continued to fall and 26.2% of the authority s primary places remain unfilled. This is the third highest in Wales. 39 Nearly half of the authority s primary schools (57 of 116) and a majority of its small schools (34 out of 54) have more than a quarter of their places unfilled. Both of these figures are the highest in Wales. 40 Further rationalisation and improvement projects, identified in the MEP, provide a sound base for future progress. To date the local authority has funded the MEP primarily from its own resources but success of future delivery would be increasingly reliant on significant WAG funding. Support services 41 The authority provides effective support services for its schools. In recent years, the authority has improved most of its support services through reconfiguration and additional investment. 42 There is a productive relationship between schools and the majority of support services. The majority of services use consultation well to develop and improve 13 School Action Plus: stage of statutory assessment when additional advice or support is provided from outside specialists 8

13 service provision. However, not all support services identify opportunities to work in partnership to develop services or to compare performance and share ideas. Significant weaknesses remain in the provision of property services. The service does not effectively plan, allocate budgets, prioritise its work or seek opportunities to secure value for money. The service is vital to maintain the fabric of and improve the condition of the authority s 128 schools. Its impact is therefore significant. 43 The authority currently lacks a comprehensive strategic approach which sets out corporately agreed standards and protocols in the provision of support services for schools. The quality of service provided among the support services varies too greatly and quality assurance processes are not sufficiently embedded. 9

14 Recommendations A report on the quality of 44 In order to secure the improvements needed, the local authority should: R1 R2 R3 R4 R5 ensure that effective quality assurance, monitoring, use of data and evaluation are embedded across all service areas and contribute to self evaluation; continue and expand work to reduce surplus places in schools; improve the capacity of the service by developing further more cohesive working between Pupil Progress Officers, education psychologists and School Improvement officers; develop robust exit criteria to manage statemented and school action plus in order to deploy resources better and improve resource delegation; and ensure that the shortcomings identified in the management and delivery of property services are overcome. 10

15 Findings: How good is the local authority s performance and will performance improve? Strategic management Performance: Grade 2: Good features and no important shortcomings Prospects for improvement: Grade 2: Improvement prospects are good, with no major barriers 45 The authority has a bold and far-reaching vision for integrated and inclusive services. Managers articulate this clearly through the Children and Young People s Plan and other key strategies. The authority gives focus and priority to meeting the needs of children and young people, particularly those who are most vulnerable. Senior managers, elected members and staff at all levels and within schools understand and enthusiastically share this vision. Service plans, decisions and actions across all education services very clearly reflect the principles and aims of the vision. 46 Working in partnership is embedded in the culture and practice of the organisation. The Local Service Board unblocks barriers to partnership working very effectively at a strategic level. The Opening Doors 14 group within Education and Children s Services supports and improves service integration. In addition, Carmarthenshire County Council works closely with other local authorities through the South West and Mid Wales Consortium to share practice and to identify and deliver options for joint service delivery. 47 Senior managers provide strong and confident leadership. This distributive leadership has been a key factor in creating positive momentum and achieving an effective integrated service. More widely, there is a good focus on building staff skills and knowledge within authority and its schools. 48 The authority consults and communicates well with staff, schools, learners and the Welsh Assembly Government. For example, all key partners show commitment to reshaping educational provision in the Dinefwr area. 49 Corporate and service plans are comprehensive and well linked. The authority s key priorities are clear and reflected in actions, targets and the work of individual staff. Where thematic strategies and plans such as the Children and Young People s Plan or the Corporate Parenting Strategy exist, priorities and actions are built into service plans. 50 Financial management is rigorous and annual budget setting links well to corporate planning. The authority responds well to risks to corporate and service improvement through robust risk management. At a school level, there is good ongoing work through the school budget forum to review funding arrangements. 51 Performance management is robust. There is a very good track record of achieving actions and targets such as those in the Improvement Plan. Senior managers and elected members monitor progress against planned actions and performance 14 Opening Doors group is an internal group tasked with overcoming hurdles to integration. 11

16 indicators and hold themselves and staff to account regularly. Where heads of service identify underperformance, this is explored and improved. For example, detailed work into why pupils were leaving without qualifications led to improvements in the quality of youth access provision 15 and outcomes. The authority shares electronic performance management systems with partners to account for their delivery of priorities within the Children and Young People s Plan. 52 Elected members have a good understanding of the performance of education services. Officers provide support to help elected members undertake their roles. The Education and Children s Services scrutiny committee has worked well through cross-party task and finish groups to review aspects of policy. This work, such as the review of Welsh-medium education provision in Llanelli, is evaluative and helps to inform further policy development. However, the link between performance monitoring and policy review is not yet embedded enough to ensure that scrutiny is truly challenging in its choice of work. 53 Data and performance information are used well to evaluate overall progress and set strategic priorities. However, data is not always collated and used robustly within a few individual services. In addition, monitoring and evaluation are not embedded across all services areas. As a result, a few services are not well placed to drive forward improvement towards those in greatest need and target resources efficiently. 54 The Council and senior managers show clear commitment to major education priorities and policies such as the MEP, integrated services and corporate parenting. Investment of resources and the reinvestment of efficiency savings in education has been consistently high over recent years. In particular, this has enabled good delivery against the MEP and has reduced the pressure on individual school budgets. However, sustaining the significant funding required for future delivery of the MEP and secondary school reorganisation is a hurdle to progress. 55 Overall, the authority has made significant progress to improve education services and outcomes for children and young people. The creation of an integrated education and children s services directorate was a major change programme which has been managed exceptionally well. As a result, schools, pupils and parents are accessing more seamless service provision. However, there are a very few key recommendations from previous inspections which have not been adequately addressed. Specifically, there is still significant work to be done to improve the fabric of school buildings, reduce surplus places and improve pupil performance at key stage In a few services, quality assurance and evaluation systems are underdeveloped. As a result, there is still too much inconsistency in the quality of a few services. However, there is generally a culture of continuous improvement across the authority. Many of the shortcomings within education services are identified through the self-evaluation report and are already planned for in service business plans and service heads work plans for the coming year. However, despite identifying the shortcomings, the local authority has not always realised the significance of these shortcomings and their subsequent impact on the grades awarded by the inspection team. 15 Youth access provides education for identified pupils at key stage 4. 12

17 Promoting social inclusion and wellbeing Performance: Grade 2: Good features and no important shortcomings Prospects for improvement: Grade 2: Improvement prospects are good, with no major barriers 57 Overall, the authority provides good support to promote social inclusion and wellbeing. Clear vision and visible strategic leadership have a positive impact on inclusion policy, practice and service remodelling. However, not all schools are clear about their responsibilities and entitlements in meeting the needs of vulnerable groups. 58 Attendance in primary and secondary schools has improved and is now at the Welsh average. Unauthorised absence is better than the Welsh average for primary schools and close to the Welsh average for secondary schools. However, to date, the authority has not provided schools with sufficient targeted support or challenge to improve pupil attendance, which is based on a clear analysis of need and transparent criteria. 59 The co-ordinated use of the revised provision at Rhyd-y-gors, Uned Pwll, Aalton House and the youth access provision has improved the attendance of pupils at those centres. It has also increased the number of these targeted pupils at key stages 2 and 3 continuing and completing their education in mainstream schools. 60 The youth access partnership of youth workers, further education, the voluntary sector and other agencies provide a good range of alternative education provision at key stage 4 to young people excluded or at risk of exclusion. All SMART 16 centres offer a range of alternative provision, but does not offer mainstream national curriculum provision. In addition, not all the young people attending this provision have the same access to the range or quality of provision. 61 Both the behaviour support and education welfare services work well with schools and other partners to reduce fixed and permanent exclusions. Currently the authority s main challenge is to reduce the length of fixed-term exclusions of six days or more. The authority has not agreed a formal managed moves protocol with schools. However, where managed moves occur informal arrangements often work well. 62 Authority staff work well in partnership with others to identify vulnerable groups of learners and to ensure that they receive support. The behaviour support community team and educational psychologists provide good advice and support to raise the capacity of schools to meet inclusion challenges. Effective collaboration has improved the support for learners with English as an additional language (EAL) and gypsies and travellers. Attainment outcomes for these groups have improved, specifically for EAL learners whose language acquisition levels progress swiftly from term to term. However, service managers have not consistently put in place rigorous methods to track the progress of, or to evaluate the services for, vulnerable groups. 63 Multi-agency partnership working is a secure foundation for continued improvement in meeting the needs of vulnerable groups. There is a high degree of trust between 16 SMART provides alternative education provision for pupils who do not attend school. 13

18 agencies such as health and education. For example, at a school level, the authority and its partners build on this foundation of partnership through the development of teams around parents, pupils and schools (TaPPaS) and teams around the child (TAC). These targeted service improvements improve the co-ordination of support for the social inclusion and wellbeing of vulnerable groups. 64 The authority provides a very good service for pupils with English as an Additional Language (EAL). There are very good links with other inclusion services through the Multi Ethnic Achievement Service and these links are used to influence anti-racism and the capacity of schools to meet inclusion challenges. This includes effective training and continued support and guidance for teachers and learning support assistants. 65 The authority has recently strengthened its corporate parenting strategy. There is a good, focused strategy to support looked-after children. The authority gives good attention to monitoring and improving looked-after children s attendance, behaviour and performance. 66 There is a range of anti-bullying activity in place with schools. Conferences have been useful in raising understanding of issues, including homophobic bullying, for staff and pupils. However, this work is not always well co-ordinated and the data is not analysed rigorously enough to evaluate impact. 67 In partnership with the voluntary sector, the authority provides appropriate support to young carers. This ensures their inclusion and wellbeing. In particular, pilot work is in place to improve the tracking of outcomes for this vulnerable group. 68 The authority s work to strengthen social inclusion in schools has focused effectively on building on the co-operation which exists with and between key partners. The recent service remodelling has improved the focus of services on meeting the needs of those at risk of social exclusion. However, detailed analysis of outcome data for new initiatives to inform strategic planning is still at an early stage of development. Additional learning needs (ALN) Performance: Grade 2: Good features and no important shortcomings Prospects for improvement: Grade 2: Improvement prospects are good, with no major barriers 69 The authority makes good provision and provides high-quality professional advice and support for pre-school and school age children and young people with additional learning needs. Generally, these pupils achieve good standards in learning and behaviour in the authority s nursery, primary, secondary and special schools. 70 There has been very good and effective development work carried out in partnership with other agencies. The authority monitors the provision well and is very clear about the costs it incurs and the value for money it achieves from the placements. Well-established protocols are in place to enable work with pupils with complex needs and their families to be effective. The multi-agency processes for co-ordinating out-of-county placements is well developed. The identification of the key worker provides benefits to families, children and professional agencies. 14

19 71 The authority meets the statutory requirements of the SEN and Disability Act (2001). Statutory processes are well planned and co-ordinated. Statements are well written and appropriately detailed to clearly specify pupils needs, educational objectives and provision. Over the past year, 97.1% of statements have been completed within statutory time limits. During this time, the authority has given better focus to supporting more pupils at School Action Plus 17. However, not all parents have felt confident that the authority would provide and maintain appropriate levels of support for pupils without a statement. This has resulted in a significant rise in appeals to Special Educational Needs Tribunal for Wales (SENTW). In 2008, there were 19 appeals registered against the authority compared with five the previous two years. Only one other authority in Wales has this high a number. 72 Recent changes within the statutory assessment department, including the appointment of Pupil Progress Officers, is helping the authority to give better focus on monitoring the progress of pupils receiving support at School Action Plus and those with statements of SEN. 73 There are good arrangements for the identification and statutory assessment of pupils with ALN. The number of statements of SEN has remained static over the past three years. This is because of the very good early identification of additional needs in pre-school and early years pupils, leading to a continued reduction in statements for key stage 3 pupils. 74 Consultation with children and families on early years interventions is very good, focusing on assessment of needs and appropriate provision. 75 Carmarthenshire educates 86.6% of its pupils with statements of SEN in mainstream classes and units. Consequently, the authority has developed a number of good initiatives aimed at promoting the inclusion of pupils with ALN in mainstream schools. For example, nearly all pupils identified as having autistic spectrum disorders (ASD) are educated in mainstream schools, leading the authority to develop an effective Autism Friendly Schools initiative. 76 The authority has developed a number of good initiatives to promote the inclusion of pupils in mainstream schools. However, work to improve the accessibility of its schools is proceeding too slowly and present provision does not give access to equitable provision across all schools. An audit, commissioned to identify a planned programme, linked to funding for this work is not yet complete. Despite this, the authority does make reasonable adjustments so that individual disabled children can access mainstream education, either in their local school or in resourced provision within one of the linked clusters of schools. 77 The requirements of the Children Act 2004 and section 175 of the Education Act 2002 are met. Good guidance is provided to schools on implementing safeguarding policies and procedures that promote the wellbeing of pupils with ALN. The Director s Panel and Complex Needs Panel provide an effective mechanism for managing the authority s corporate parenting responsibilities. 17 School Action Plus is stage of statutory assessment when additional advice or support is provided from outside specialists. 15

20 78 Mainstream and special school settings provide pupils with ALN with a broad and relevant curriculum. Good planning is enabling many pupils with ALN to access a range of suitable provision. Provision of additional (often out of school hours) activities for pupils with sensory impairments is good. 79 Specialist teachers, Pupil Progress Officers, support workers and educational psychologists provide schools with good support. However, in spite of making appropriate efforts to attract more Welsh-speaking staff, the authority has not been able to make enough bilingual appointments to specialist posts. A mobility officer provides useful advice to schools about individual pupils with sensory impairments. 80 There is a very good range of training for teachers and others who work with pupils with ALN. A robust partnership arrangement with Elklan 18 is supporting the development and publication of a bilingual training package on specific learning difficulties and dyslexia for teachers and support staff. 81 Systematic monitoring of outcomes for pupils with ALN is underdeveloped, leaving the authority unclear of the impact of some services on pupils achievement and limiting its capacity for future strategic development. However, where monitoring has been effective, this has resulted in significant improvements in provision. 82 The authority has acknowledged the need to improve the monitoring of pupils outcomes and recently appointed three Pupil Progress Officers to undertake this work. This work is still developing, but there is not enough focus on improving capacity by more cohesive working with school improvement officers and educational psychologists. As a consequence, there is some duplication of roles and this is not an efficient use of resources. 83 The authority has recognised the need to update and develop new policies about how to meet the needs of pupils with ALN and many of these are now in the early stages of development. For example, the development of the communication strategy provides positive evidence of the close working between advisory staff for language and communication, dyslexia and literacy, educational psychologists and speech and language therapists. 84 Generally, schools are aware of their responsibilities for pupils with ALN and know what types of support can be provided to children in their care. However, some schools are still unclear of the entrance criteria and this sometimes leads to inappropriate referrals. 85 Multi-agency transition arrangements are good. Staff provide pupils and their parents with clear information about options available at key transition points, such as between key stages and towards the end of pupils school career. In addition, the bringing together of education and children s services has provided the authority with an effective mechanism for continuing to support young people after school leaving age. 18 Elklan is an accredited speech and language training provider giving practical ideas and classroom strategies 16

21 Access and school organisation Performance: Grade 3: Good features outweigh shortcomings Prospects for improvement: Grade 2: Improvement prospects are good, with no major barriers 86 The Modernising Education Programme (MEP) is a well-established authority strategy with clear political support. The MEP aims to raise pupil standards and quality of provision by rationalising the number of schools and improving the quality of school buildings. Implementation of the MEP has removed 1,244 surplus places from the authority s schools since 2001 and delivered significant investment in new school buildings and refurbishment of existing premises. Total investment in completed and committed MEP projects will be approximately 90m by The authority has made good progress in taking action to address the impact of falling pupil numbers in primary schools. However, there remains a great deal of work to do. Although the authority has removed 692 unfilled places from the primary sector since 2001, falling pupil numbers have led to an increase in surplus places over the period. As a result, in January 2008 the authority reported 4,833 (26.2%) unfilled places within its primary schools, the third highest in Wales. Nearly half of the authority s primary schools (57 of 116) and a majority of its small schools (34 out of 54) have more than a quarter of their places unfilled. Both of these figures are the highest in Wales. Projected pupil numbers for 2014 show that recent declines are not expected to continue and at 14,336, will be generally similar to those in January In January 2008, there were 1,869 (13.3%) unfilled places in the secondary sector. The opening of a new building through the MEP in September 2008 reduced the number by almost a third and, taking account of the recent capacity recalculations based on the Welsh Assembly Government s (WAG) revised guidelines, the number of surplus places in secondary schools in January 2009 was 761 (5.78%). Of the authority s 14 secondary schools, two have more than a quarter of their places unfilled. Projected figures for 2014 show that pupils numbers are expected to decrease by 1,358 in relation to January 2009, potentially increasing the number of unfilled places within the secondary sector to 2,119 (16.1%). 89 Two former secondary school sites have been closed, and replaced by a new high school. The new premises were occupied in September 2008, reducing the number of secondary school places in the authority by 552. Discussion on secondary school reorganisation in Dinefwr, embracing tri-level reform and taking account of learning pathways, has delivered useful models for further development and consultation. The Secondary Schools Development Strategy has been initiated to provide a strategic direction for the modernisation of the secondary schools estate. However, a programme for further rationalisation and modernisation of the secondary sector is not yet in place. 90 The authority has recently reassessed the capacities of all its schools based on the revised WAG guidelines. The effect of reassessment on individual primary schools has been evaluated and resulting issues are addressed in the MEP. Similarly the implications for secondary schools are being addressed in the Secondary Schools 17

22 Development Strategy. The authority has an effective system for forecasting the number of pupils in schools and discussions with the local health trust are ongoing to further improve methodology by incorporating birth data. 91 The authority has a good track record in managing school reorganisations and capital projects. Further rationalisation and improvement projects, identified, prioritised and regularly reviewed in the MEP provide a sound, effective base for future progress. Such progress is increasingly likely to require strategic proposals including the needs of wider areas to achieve the aims and objectives of the MEP strategy. The authority s work so far has enabled most stakeholders to know and understand that significant change is inevitable to secure further improvement. 92 The estimated cost of delivering the MEP has risen. Original estimates of capital receipts and of efficiency gains to service prudential borrowing have not been fully realised. To date the MEP has been funded primarily from the authority s own resources but the success of future delivery would be increasingly reliant on significant WAG funding. 93 At present, the Service Asset Management Plan is being updated. Suitability and condition assessments have recently been completed for each secondary site and outline development plans, to address the shortcomings identified in each of the establishment s facilities, have been agreed with the relevant headteacher. 94 The primary sector condition data mainly relies on a survey carried out in 2001 and is only current for those schools that are targeted for action within the MEP. The authority has developed the Carmarthenshire Model School as the template for suitability in the primary sector, and intends to assess its present schools against this model. This work has not been undertaken as yet. 95 When school sites are deemed surplus to the Education Service s needs, responsibility is transferred to Corporate Property. The authority engages well with the local community to discuss options for future use, which may include affordable housing or community use. All capital receipts generated through disposal would be earmarked for use in the MEP but totals realised to date are limited. 96 There are good examples of schools being engaged in the design and construction process, for example linking the sustainable elements of new buildings to a wider understanding of sustainable development and the environment. 97 The authority manages admissions efficiently and consults and co-ordinates arrangements effectively with other admissions authorities. Overall, information for parents is clear and comprehensive and includes details of admission arrangements for voluntary aided schools within the authority. Admissions criteria are clear and consistently followed. 98 The Admissions Forum meets termly and undertakes effective and relevant consultation with headteachers, parents and other stakeholders. Arrangements give appropriate priority to looked-after children and pupils with statements of (SEN). Re-integration of excluded pupils to mainstream education is in general good. The arrangements for admissions and appeals meet the requirements of the Welsh Assembly Government Code of Practice. 18

23 99 The authority provides a generally reliable and effective home to school transport service. The home to school transport policy and the code of conduct for pupils, parents, schools, contractors and the authority is clearly defined and accessible. The County Transport Division manages transport provision and integrates services with a range of policy and practical levers to help promote sustainable travel. 100 There is effective monitoring of contractors performance, including vehicle quality, punctuality, costs, and pupils behaviour. 101 A review of SEN transport needs is being undertaken by relevant officers, exploring alternative methods of provision to control a volatile budget more effectively. 102 The authority screens all drivers and escorts through enhanced CRB checks with a three-year review. The process is combined with the issue of an authority approved driver pass. 103 Intervention measures are applied where problems have been identified, for example CCTV to manage behaviour. Codes of practice for all stakeholders have been developed and published following consultation with schools and operators. 104 The Childcare Sufficiency Assessment undertaken in 2008 is comprehensive and provides appropriate data on present levels of provision and projected need. Additional providers are supported where need is identified and sufficiency is reviewed annually. 105 The authority provides support and training for staff working with early years in both maintained and non-maintained settings. An increase in training requirements due to Foundation Phase implementation and long-term staff absence has led to support being targeted according to greatest need. 106 The authority s Children s Information Service is well established and information and advice to parents and carers relating to early years provision is good. Support services Performance: Grade 3: Good features outweigh shortcomings Prospects for improvement: Grade 2: Improvement prospects are good, with no major barriers 107 Overall, the authority generally provides effective support services for its schools. 108 In recent years, the authority has improved most of its support services through reconfiguration and additional investment in resources and capacity building. Income generated through service level agreements (SLAs) is now more appropriate to the agreed service levels. Generally, support services plan well to identify possible changes to customer profile and provision and to manage resources. 109 Nearly all schools have taken up services under the agreements from each of the five support services included within this inspection. The SLAs are due for renewal in and four of the five services are taking a proactive approach to revising and improving current contractual provisions and service standards. In a few cases, schools have the option to select varying lengths of contract. 19

24 110 The majority of support services demonstrate a strong customer-focused approach, with consultation used well to develop and improve service provision for schools. Overall, there is a productive and effective relationship between schools and the majority of support services. Structures such as the Budget Forum enable exchange of ideas about service improvement. 111 A few support services work effectively with external and internal partners to improve services. For example, catering works well with the Local Health Board to improve health through improving eating patterns within schools and communities. However, not all support services identify opportunities to work in partnership to develop services or to compare performance and share ideas. 112 The authority has continued to improve the quality of the services through reconfiguration and investing additional resources. Service Level Agreements are effective in designing and defining services to the benefit of both service users and providers. However, significant weaknesses remain in the provision of property services. The service does not effectively plan, allocate budgets, prioritise its work or seek opportunities to secure value for money. The service is vital to maintain the fabric of and improve the condition of the authority s 135 schools. Its impact is therefore significant on the MEP. 113 The authority currently lacks a comprehensive strategic approach which sets out corporately agreed standards and protocols in the provision of support services for schools. As a result, the quality of service provided among the support services varies too greatly and quality assurance processes are not sufficiently embedded. Catering 114 The authority s catering service is good with outstanding features. The service works effectively to promote healthy eating options for children, young people and their families. The catering service responds well to national policy and schools needs, in particular in linking its work to curricular developments about health and wellbeing. 115 The service has effective mechanisms in place to collate feedback from schools about their work. The service works well with neighbouring authorities to exchange data, compare performance and costs and share training for catering staff. 116 The service has an effective quality monitoring system in place to assure that all schools, whether they receive internal or external service provision, receive a good quality standard of service. The service makes good use of the quality system to identify key areas for improvement. The service also continues to be proactive in working jointly with health organisations and local communities to target schools with low take up of school meals. 117 Within the healthy eating programme, several initiatives have been particularly effective, for example the free breakfast scheme. 118 Two pilot schemes to introduce a cashless payment systems in secondary schools are having a successful impact on meal take up. The Service closely monitors the impact of any such new initiatives on the take up of meals, especially the take up of free school meals as the system removes any stigma. 20