Cornwall Local SEND Reform Plan 2026

Classification: Official

The Local SEND Reform Plan

March 2026

Annex A: Local SEND Reform Plan

Developing a Local SEND Reform Plan is an important first step for local areas to set out how they will lay the foundation for reform, and

design an approach tailored to their local context. A shared plan which focuses on co-designing the local approach as system partners

and with children, young people and families will help foster collective responsibility for delivering the reforms.

It is critical that all system partners, including health, education and childcare settings, work together to design and deliver the Local

SEND Reform Plan, under the local authority’s leadership. It is also crucial that representative family carers e.g. the local Parent Carer

Forum, are involved in the development of the plan.

The expectation is that this plan is discussed, agreed, and signed off at your relevant SEND Governance Board. As a minimum, the plan

must be formally signed off by the Local Authority Chief Executive (Ceo), the Integrated Care Board (Icb) Chief Executive, the Local

Authority Director of Children’s Service (Dcs), the Integrated Care Board NHS Place Director, and the Local Authority Chief Financial

Officer (Cfo/Section 151 Officer). We encourage other colleagues and partners who have contributed to also review and sign-off the

plan, particularly early years, school, college and trust leaders.

Name of Local Authority: Cornwall Council

Name of Integrated Care Board: NHS Cornwall and Isles of Scilly Integrated Care Board

Local SEND Reform Plan Sro: Joint Sro’s - Eveleen Riordan and Rachael Rothero

Signatories

Role Name Signature Email contact Date

Kate Kennally LA Chief Executive Cornwall Council Icb Chief Executive Cornwall and Isles of Scilly Integrated Care Board Mark Hackett Kate Evans Hughes LA Director of Children’s Services

Integrated Care Board NHS Place Director Cornwall and Isles of Scilly Integrated Care Board

Susan Bracefield

Local Authority Chief Financial Officer (Cfo/Section 151 Officer).

Annabel Scholes

Executive Summary

A brief summary of your local system ‘change story’ – your local context, where you are now, where you want to get to in the next 3 years, how you know you are succeeding and how you will know you have achieved your vision for the next 3 years. Please include a brief qualitative summary. This summary should also include your assessment of current and forecast performance against the headline metrics. Please structure your ‘change story’ using the following aims:

▪ Build a 0-25 system where children and young people receive support to achieve and thrive through (a) more inclusive settings and

(b) stronger local partnerships ▪ Improve capacity and capability of the mainstream and specialist workforce to identify and meet need ▪ Improve confidence of children, families, and stakeholders in reform and readiness of the system ▪ Stabilise finances and improve value for money Local Context

Cornwall is taking a clear and deliberate step forward in how it supports children and young people with SEND. Over the next three years, we will continue our work to build a more inclusive, consistent and sustainable system where needs are identified earlier, more children are educated clos er to home, and families experience a system that works with them rather than one that feels combative.

Cornwall is a large, predominantly rural county, isolated as a peninsula and surrounded on three sides by water, with dispersed communities and significant geographical variation in access to services. Coastal communities, rural isolation and limited transport infrastructure creat e barriers to social mobility, access to education, health and care, while workforce recruitment challenges, particularly for specialist roles, impact service delivery. These factors have contributed to uneven access to provision, long travel distances and reliance on independent specialist and out-of-area placements.

Despite these challenges, Cornwall has strong foundations on which to build. Early years integration, Family Hubs, Best Start in Life, early support services and nationally recognised work through Partnerships for Inclusion of Neurodiversity in Schools (Pins) are already strengthening early identification and intervention and bringing system stakeholders together in strong collaboration. We have invested in workforce development, early language support and improved engagement with families. Through co-production with our parents, carers, children and young people, we are developing stronger mechanisms for participation, trust and shared, evidence informed decision-making. Our SEND Centres of Excellence (CoE) project, which began a year ago, has been recognised regionally and nationally as best practice with the LA as convener supporting MATs (multi-academy trusts) to drive the mainstream changes we could already see were required. This convenor role supports the White Paper, Every Child Achieving and Thriving, intention. As this work matures Cornwall will have, by autumn 2026, a shared and agreed understanding across the Duchy of what good inclusion looks like, captured in our Inclusion Charter1 as well as a co-produced Ordinarily Available Inclusive Practice Framework2 operational across all schools.

Using a Theory of Change approach informed by our Joint Strategic Needs Assessment (JSNA), Self Evaluation Framework, Maturity Assessment (Appendix 1) and Local Area SEND Inspection findings, we have identified six priorities for reform:

1 See Appendix 23 2 See Appendix 4

• Children and young people with SEND are identified and supported earlier and effectively in mainstream settings.
• Children and young people with SEND are educated closer to home through inclusive local provision.
• Alternative Provision operates across a three-tiered3 model, including an Alternative Provision Taskforce, supporting improved reintegration and better outcomes for children and young people.
• Post-16 pathways are diverse, including employer led opportunities, and genuinely prepare young people for adulthood by delivering improved independence, employment and participation.
• Ensuring long-term sustainability and effective use of resources, stabilising SEND finances and improving value for money through upstream investment and more effective commissioning.
• Children, young people and families have confidence in and positive experiences of the SEND system.

To deliver these priorities sustainably, we have established nine multi-agency workstreams accountable to the SEND, Inclusion and Alternative Provision Board. These workstreams will oversee planning and implementation, supported by shared approaches to co-production, financial sustainability and continuous improvement.

Where We Want to Be in Three Years

By 2029, inclusion and sustainability across Cornwall will have improved significantly. More children and young people with S End will thrive in mainstream settings close to home, families will report greater confidence in the system, and practitioners will adequately resourced and better equipped to meet need. Success will be reflected in both lived experience and measurable outcomes.

Our ambitions by 2028/29 include:

Increasing Area Resource Base (Arb) capacity from 418 to 673 places across Cornwall’s six place-based areas, creating a minimum of 255 additional local places.

Moving the system from a position of increasing Inmss (inclusion within mainstream) placements and specialist post-16 institutions, and move the system to a sustained equilibrium, focusing on not increasing placements beyond 2027 figures 4.

Expanding access to Educational Psychology, Speech and Language Therapy, Occupational Therapy and specialist teachers through our Experts at Hand model.

Reducing spending on independent specialist provision and shifting demand towards local provision.

Slowing growth in EHCNAs while increasing the proportion of needs successfully met at SEN Support level.

Expanding Mental Health Support Team (Mhst) coverage to all schools

Sustaining reductions in waiting times for NHS therapies such as Speech and Language Therapy and Neurodiversity diagnoses

Demonstrating measurable improvements in parent, carer and young people’s confidence through co -produced feedback measures.

Financial Sustainability and Value for Money

Cornwall is one of the lowest-funded local authorities in England for high needs, with a Dedicated Schools Grant (Dsg) in year deficit of £35.8 million in 2025/26 and increasing demand continuing to place pressure on resources. This reform plan is designed to improve outcomes while bending t he long-term cost curve.

Investment of over £9 million in 2026/27 will expand area resource bases and inclusion bases as well as adapting mainstream settings, reducing reliance on costly independent and out-of-area provision. Alongside this, we will strengthen commissioning and market management to meet predictable need by:

3 Tier 1: Prevent → support in mainstream, Tier 2: Intervene → short-term AP + reintegration, Tier 3: Transition → longer-term placement and next step 4 Our strategy is a focus on earlier intervention and stronger mainstream inclusion, rather than expanding capacity in a way tha t risks embedding dependency on high-cost provision

• Aligning education, health and care commissioning decisions.
• Acting as a proactive system leader, convener and market shaper.
• Challenging high-cost provision and securing better value.
• Embedding stronger financial oversight and accountability.
• Linking investment decisions to evidence of impact, affordability and outcomes.
• Delivering a credible trajectory towards Dsg recovery.

How We Will Measure Success

By 2029, we expect to see more children thriving in mainstream settings, fewer requiring independent specialist or out-of-area placements, greater workforce confidence and stronger family trust in the system.

Progress will be measured through the quality assurance of inclusion for example using the Compass Inclusion Audit co-produced with the SWRIIA5, family and young people feedback, and a live integrated performance dashboard overseen by the SEND, Inclusion and Alternative Provision Board. Together, these measures will provide a clear picture of improvements in inclusion, outcomes, sufficiency, financial sustainability and lived experience.

5 Regional Partnership for children’s services across the southwest

Section 1 – Vision and Goals

1. What the local area partnership is trying to achieve?

Our Vision

Cornwall's local area partnership will collaborate to deliver an inclusive, outcomes-led, evidence based and financially sustainable SEND system, where children, young people and their families receive the right support, at the right time, as close to home as possible. This vision is shared across education, health and social care. It is directly aligned to the Schools White Paper6, the NHS 10-year Plan and Cornwall's Families First Partnership7 approach to children's social care reform and has a commitment to meeting predictable need through earlier intervention and integrated community services. This includes using the Best Start in Life Strategy and Family Hubs to strengthen early identification and multi-agency support from the earliest stages. Parent/Carers and Children and Young People will be central partners in shaping and delivering this vision, with stakeholder confidence metrics to be co-produced with Youth Council and the Cpcf in Year 1 as a meaningful measure of progress.

System Goals (2026–2029)

The partnership has agreed six measurable system goals with supporting KPIs, directly aligned to the Schools White Paper and Cornwall's SEND Strategic Plan:

• Children and young people with SEND are identified and supported earlier and effectively in mainstream settings; increasing the proportion of children

with SEND whose needs are met through SEN support and in mainstream settings, measured by a reduction in Ehcna requests, slowing EHCP growth and improved attainment and attendance.

• Children and young people with SEND are educated closer to home through inclusive local provision; evidenced by fewer out-of-area and independent placements, reducing need for transport and reduced cost, an increase in inclusion base places.
• Alternative Provision operates across a three-tiered model supporting improved reintegration and better outcomes for children and young people;

evidenced by higher reintegration rates from AP to mainstream, reducing SEND exclusions/suspensions and higher proportion of AP placements with a day-one reintegration plan.

• Post-16 pathways genuinely prepare young people for adulthood delivering improved independence, employment and participation; evidenced by a reduced reliance on bespoke high-cost placements, and a reduction in SEND Neet rates.
• Ensuring long-term sustainability and effective use of resources, stabilising SEND finances and improving value for money through upstream

investment and more effective commissioning; evidenced by reduced spend on independent and distant placements, a stabilising High Needs Block and improved cost-effectiveness of early intervention.

• Children, young people and families have confidence in and positive experiences of the SEND system; evidenced by reduced complaints and disputes,

increased trust in mainstream provision, and robust co-production arrangements with impact measures developed in partnership with the Parent Carer Forum and young people.

Progress will be owned by our SEND, Inclusion and Alternative Provision Board ensuring accountability for delivery of these goals.

6 Every Child Achieving and Thriving 7 Families First Partnership programme - Gov.UK

Section 2 – Strategy

2. Where the local area partnership expects to be in the next 3 year

A description of what your local system would look like in the next 3 years in line with the national vision set out in the Schools White

Paper and set within the context of where you are starting from as a local system.

In particular, as commissioning system partners, you should reflect on and agree what your fully fledged Experts At Hand Offer model

should be and how this will be deployed via mainstream settings and providers (including those not based in your area – e.g. further

education colleges attended by your young people) to build their capacity as well as identify and meet the needs of children and young

people earlier and without the need for a statutory assessment for Education, Health and Care.

To help you fully consider the scope and scale of change required, you may find it useful to structure your response using th ese 4

building blocks of an inclusive system, reflecting on what is working well in your system, what you are most worried about, what needs

to change, and how the enablers will help you achieve your 3 year vision.

When summarising where your local area partnership currently is, please include an assessment of where you are in reference to the

core minimum requirements above and how you bridge the gap, making reference to and attaching additional documents that provide

underlying evidence for your summary.

Overview

Cornwall enters this reform period from a position of genuine strength but significant pressure. The SEND Centres of Excellence programme (development of the Inclusion Charter, Oaip and early, pre White Paper, models of E@H architecture), nationally recognised partnership practice through Pins, and well-established early identification through Family Hubs, Early Support, Health Visiting and multi-agency working provide a strong foundation. Real-time data and intelligence infrastructure and sufficiency modelling are increasingly informing planning and decision-making. However, the system faces substantial challenges that demand urgent and sustained reform. Inclusion is inconsistent across mainstream settings, particularly at secondary phase. Around 600 children are educated outside the local system at high cost, and post-16 SEND spend significantly exceeds that of statistical neighbours. Workforce shortages, patchy application of the graduated response, and fragmented co -production with families all constrain system performance. These pressures are compounded by a deeply unfavourable financial position. Cornwall ranks among the lowest -funded authorities in England for high needs, receiving up to £17m less annually than the national median. The in year Dsg deficit reached £35.8m in 2025/26 and, even with the workstreams being developed, is projected to increase further to c£56m in 2026/27 - driven by a forecast 20% net increase in EHCPs, and a cash-flat 2026/27 settlement that fails to reflect rising demand or inflation. Cornwall's reform strategy responds directly to both challenges. By embedding the Experts at Hand model, strengthening Ordinarily Available Inclusive Practice (Oaip), expanding local mainstream and mainstream special sufficiency, further developing our Early Support offer and improving post-16 pathways, the partnership aims to meet more needs earlier, reduce costly escalation, and build a financially sustainable system that works for every child. We have set out our plan in a set of slides to support readability and flow these can be found in Appendix 3. See Appendix 24 for the methodology used for the data template.

8 Ordinarily available inclusive provision

Building Block Where we are - Our current achievements and

Where we want to be in the next 3 years

challenges

agencies such as the police, to ensure timely identification and a coordinated, whole-system response

Building Block 2 Access to Specialist Support and Local Placements

What are we currently achieving? Strong AP quality assurance is in place across 100+ approved providers through our central commissioning framework (Qa framework attached in appendix 9). Data improvements demonstrate real progress: Salt waiting times over one year reduced from 1,058 to 845 (Jan–Sept 2025); children waiting over 28 days without a booked appointment fell from 600 to 53 over the same period.

Significant reduction in out-of-area placements The sufficiency planning will inform the commissioning for inclusion bases, ARBs and specialist provision and specialist outreach across all neighbourhoods. This will also be supported by a planned increase in special school places and specialist bases, underpinned by Cornwall’s current lower density of provision compared to neighbouring authorities, alongside capital investment already earmarked to expand local capacity. We expect capacity within the local system to grow over time; however, initially, demand for Inmss is anticipated to track against overall increases while reform workstreams come online and capital programmes are delivered. From 2027 onwards, Inmss paces will be capped, and changes will begin to stabilise resulting in a demonstrable turning of the curve away from Inmss towards mainstream special and mainstream, with no further increases. Over time, the number of Cyp educated outside the local mainstream / mainstream special system (currently c.600) is expected to reduce significantly, as greater local mainstream provision enables more children and young people to be supported nearer to home. This will contribute to improved Dsg sustainability, driven by earlier intervention and reduced reliance on high-cost placements.

Sufficiency geo-mapping and demand modelling are reviewed annually, improving accuracy and providing the analytical foundation to our time-bound Sufficiency Plan.

Expressions of interest were sought from schools. Responses were mapped against the geo-maps of profiled and predicted need to identify several sites of interest for Arb development. These projects are now underway and will see an increase in Arb places of 80 in the next 12 months growing to maximum capacity of 200 within 3 years with phased intake. Public consultation is ended and we await the outcome of significant change requests from the DfE.

Timely, integrated Mdt support for every child who needs it via Experts at Hand Offer

The neighbourhood model co-developed by Vcse, NHS/Icb and LA provides the architecture for locality-based specialist support and will inform the development of the E@H model. (Appendix 6)

E@H neighbourhood teams, combining EPs, SALTs, OTs, Semh and Nd specialists as well as specialist teachers, will provide timely expert training, guidance and strategies for schools thus facilitating in situ expertise to support targeted and targeted-plus children without the need for statutory assessment. This approach will bring high quality, professional support to mainstream settings to build sustainable inclusive practice ad create neuro- affirmative environments. In addition, by end of 2029, we aim for Mhst coverage to have 100% pupil coverage by (assuming investment follows as per plan in 2027/28 and 2028/20).

What are our challenges in ensuring specialist support

and local placements?

• Around 600 Cyp are currently educated outside the

mainstream system at high cost and sometimes at distance from home - sufficiency analysis is well developed in translating this into delivery of local provision.

9 Alternative Provision Specialist Taskforce Building Block Where we are - Our current achievements and Where we want to be in the next 3 years

challenges

demand will be redirected to mainstream post-16 specialist provision to shift local delivery to a more sustainable path.

Building Block 3: System Leadership, Partnership Collaboration and Co- production

What are we currently achieving? Strong governance foundations are in place (Section 4 – Governance); the SEND, Inclusion and Alternative Provision Board is co-led by senior LA and Icb leaders; Existing workstreams, including those under SEND Centres of Excellence, are co-led by Mat leaders, NHS and LA, these will become Lsrp workstreams; Area Inclusion Partnerships, which bring schools together to work with their geographical neighbours, have been reinstated. As highlighted in the Local Partnership Maturity Assessment, there are changes to the staffing structures of the partnership (Icb & LA). Pins was recognised for parent-partnership delivery by Nhse, and the Plymouth University peer-research partnership demonstrates commitment to evidence-based co-production. These provide the platform from which a more coherent and connected system will be built. As mentioned in previous building blocks the real strength in Cornwall is how partners work well together. In a highly academised landscape such as Cornwall (82%) the LA cannot rely on command and control levers. Instead, we need to work hard in our role as convenor, providing support, challenge and infrastructure to allow others to be at the heart of driving necessary change within their specialisms for example the Mdt leading of the SEND Centres of Excellence workstreams or the implementation of Siag (Support,

Cpcf as a genuine equal strategic partner Cornwall Parent Carer Forum will receive the support they need to have a clear, agreed strategic role with a reset shared vision. The Lundy Model of Participation11 will be used in our work with children and young people, and the 9 strategic workstreams will support this work as a common thread. The partnership will build in participation and engagement training to staff Cpd to underpin this work and improve the sustainability of joint working as business as usual. Representation will be broadened to reflect Cornwall’s geographically diverse communities. SENDIASS12 capacity and independence will be reinforced to strengthen family voice across the system.

Lived experience systematically shaping decisions The Partnership Intelligence Hub (appendix 8), which is a medium through which to collate, analyse and share information received from families, children and young people but also the wider sector, will be fully operational and systematically collate and act on intelligence from Cyp and families - led by the Core Data Team. A consistent ‘you said, we did’ approach will be embedded across all services closing the feedback loop that families currently describe as broken and ensuring lived experience directly informs commissioning and service design. Families and young people also emphasised that inclusion must be understood broadly recognising how other aspects of a child's identity intersect with their SEND needs and school experience, and this will inform revisions of the Inclusion Charter.

Diverse and seldom-heard voices consistently represented

11 Lundy Model of Participation says that children’s voices must be supported through four elements: a) space to express views, 2) voice to share them, 3) an audience who listens, and

• influence so their views can genuinely shape decisions. Our adopted rights of a child give children the right to be heard, and the Lund y model makes that real for Cornwall’s children.

Our commitment can be evidenced in this Cabinet paper from Dec 2025 - 20251217 - Cabinet - Adoption of the United Nations Convention on the Rights of a Child - Report - Public.docx 12 Home - SEND Iass - Cornwall

10 Cace is the group comprising of the chief executives of our multi academy trusts and the Council’s Service Director for Education and Community Health representing our maintained schools.

Building Block Where we are - Our current achievements and

Where we want to be in the next 3 years

challenges

constructively, recognising the value of our parent carer voice in shaping services and improving outcomes.

• The ‘you said, we did’ mechanism needs to improve.

Intelligence from Cyp and families is fragmented with no systematic route for views and active engagement into strategic decision-making.

• Seldom-heard groups (rural, disadvantaged – particularly

North Cornwall) remain insufficiently engaged, although our Community of Groups referred to above seeks to actively address this.

• Icb restructuring has created gaps in system working

that require active management and renewed joint ownership.

• Shared responsibility across agencies, particularly

schools and MATs, is improving but consistency remains variable.

Our enablers

Joint Commissioning Strategy; in place; governance refresh underway.

Lundy model of participation; accepted, used and understood across Cornwall

Partnership governance - SEND, Inclusion and Alternative Provision Board, Cornwall Education Partnership, Cornwall Academy Chief Executives (Cace) and Area Inclusion Partnerships; established and functional.

Plymouth University peer-research; in early stages, developing understanding in best practice supported employment.

Sendiass: in place, with more to do to strengthen capacity and independence through links and resourcing under the Best Start Inclusion Programme.

Youth Engagement strategy; bringing together key stakeholders and young people to shape pathways to

Building Block Where we are - Our current achievements and

Where we want to be in the next 3 years

challenges

employment, increasing the number of young people participating and reducing the number of young people Not in Education, Employment and Training. (Neet)

Building Block 4: Encouraging Inclusive Culture and Behaviours

What are we currently achieving? Cornwall has genuine commitment to inclusive support which is enabled via: the Inclusion Charter, co-produced with all system stakeholders including Cyp and families, and driven by schools leaders; Sendit Forward, a mechanism to capture the lived experiences of children and young people through creative participation and inform future decisions and commissions; the Compassionate Cornwall framework embedding trauma-informed values; and the Right On Survey capturing qualitative insight from over 13,300 children and young people across all phases. Family Hubs and co-located services support community-based relational practice. These reflect real commitment and provide the cultural base to build from.

Belonging as a consistent experience, not a postcode lottery The Inclusion Charter will be adopted and actively embedded across all settings—mainstream, AP, post-16 and early years—as a shared system commitment. Its impact will be realised through collective leadership and consistent practice within settings, supported by partners to ensure belonging, equity, voice and partnership shape everyday interactions with children and families. This will drive a visible culture shift within and across settings, so that inclusion is experienced consistently regardless of where a child lives or which setting they attend (see Appendix 23).

Driving engagement and culture change through shared accountability

The Sw Compass inclusion audit tool will underpin a common approach to self-evaluation and peer review across settings, moving beyond compliance to active engagement in improvement. Expanded for use by schools and MATs, it will support settings to assess, reflect and continuously strengthen their inclusive culture and practice, rather than operate as a retrospective LA assurance tool. Through regular peer review, shared learning and transparent benchmarking, inclusion will become:

In our SEND and AP workstreams there is active engagement and leadership from colleagues across MATs, education and health which informs our approaches to engaging all settings.

What are the challenges in encouraging inclusive culture

and behaviours?

- owned at setting level, not externally driven

Children and young people with SEND report lower levels of school belonging, with experiences varying significantly by geography, school ethos and Mat membership.

- visible and measurable, but grounded in practice

- collectively improved, through collaboration rather than isolation

This approach will build a shared language of inclusion across Cornwall, supporting sustained culture change where inclusive practice is expected, understood and consistently delivered across all settings.

There is no consistent measure of belonging or inclusive practice across settings with a lack of common definition of inclusion.

Schools are confident about supporting children and young people

Settings may report being under resourced or lacking on confidence to be able to provide the best support for

with SEND

Building Block Where we are - Our current achievements and

Where we want to be in the next 3 years

challenges

response to SEND reforms, front loading this so that the offer remains up to date for our families.

Transformed post-16 culture with a dedicated youth voice

Post-16 Inclusion Pathway development has been in development with commissioning and Cpcf. Following the engagement and analysis, post-16 provision will be transformed through the Preparation for Adulthood pathway, clearer information and advice to families, strengthened employer engagement and a comprehensive staff training offer bringing a more inclusive culture. Building on the established youth voice model, a dedicated post-16 youth voice structure will ensure young people are active partners in shaping provision (appendix 10 for Post-16 Inclusion Pathway Theory of Change).

Strengthening joint commissioning arrangement and refreshing the

sufficiency strategy Initial needs analysis has been done for sufficiency which highlighted the need to develop an evidence-based SEND Sufficiency Strategy. The strategy will move the system from a position of increasing Inmss placements and specialist post-16 institutions through the expansion in ARBs by developing banded funding models and strengthening focus on lower-cost scalable provision (Appendix 3 slide 40-44 for trajectories charts). Establishing and maintaining strong relationships with providers and continuing joint governance alignment to address current fragmentation are key to encouraging an inclusive culture.

In addition, an ongoing analysis of need and understanding of commissioning landscape has been completed to define capital and revenue spend for inclusion. This will allow Cornwall to assess value for money and return on investment in a strategic way.

Success Measures Baseline

Target Metrics (3-year)

Ehcna rate of growth slowing year-on-year from Year 2, as higher proportion of needs met at SEN support level

Number of Cyp educated outside the local mainstream system reducing from ~600

Number of EHCPs in Cornwall (2025): 5,575

Annual Ehcna requests (2025): 1,545

% of Cyp with SEND educated in mainstream settings: 46%

3. What is the local area partnership’s strategy for delivering on the above?

A brief summary of your local system’s theory of change or reform strategy. Reflect on the output of your Local Partnership Maturity

Assessment Tool, particularly your Local System ‘change story.’

Evidence from the Local Partnership Maturity Assessment (Appendix 1) confirms strong partnership working, but highlights the need to strengthen governance, accountability and the coordination of intelligence. In response, Cornwall will establish a Partnership Intelligence Hub to p rovide a single, shared view of need, demand and impact, alongside a clearly defined governance framework linking the SEND Inclusion and AP Board through to strategic g roups and programme workstreams.

Co-production will be strengthened and broadened, refreshing the approach with the Cornwall Parent Carer Forum and extending this through a ‘Community of Groups’ (CoG) model. This will ensure a wider range of voices shape both design and delivery, including children and young people through the Youth Council and targeted, creative engagement approaches. A clear and consistent communications approach will underpin this, supporting great er transparency, trust and shared ownership across the system.

Cornwall’s theory of change (Appendix 3, slide 3) sets out a transition to a co-produced, inclusive and predictable needs-led system, with a strong emphasis on earlier intervention. This is underpinned by key enablers including system-wide workforce development, improved shared data, strengthened co-production, and place-based delivery through Family Hubs and integrated neighbourhood teams. Together, these will increase system capability and co nsistency, reducing reliance on statutory assessment and specialist provision, while improving outcomes and supporting long-term financial sustainability.

Family Hubs and emerging Integrated Neighbourhood Teams (INTs) provide the delivery infrastructure for this shift, enabling earlier identification of need, integrated multi-agency working and accessible, community-based support. This creates the conditions for Experts at Hand to operate as a responsive, place- based model, aligned to local need and supported by shared accountability and joint decision-making.

This approach is already reflected in Cornwall’s Home Learning Environment and early years programmes, where investment in parental engagement, practitioner capability and early language development is demonstrating improved outcomes and reduced reliance o n specialist assessment and provision.

4. Please upload a completed copy of the Local Partnership Maturity Assessment Tool.

See document in Appendix 1: Local Partnership Maturity Assessment Tool 19 June 2026 - Cornwall

5. What is the local area partnership roadmap for the next 3 years?

Reflecting on the broad timescales and expectation for deliverables set out in the Schools White Paper, key documents and core

minimum requirements set out in this document, please provide a high-level roadmap for the next 3 years. Please highlight key

milestones and a trajectory to the target metrics identified above, including leading indicators.

In the 2026-27 column, in particular, please reference how you plan to meet the core minimum requirements in your narrative, including

details and evidence in supporting documents.

You can insert or upload supporting documents including graphics/visuals that illustrate your data trajectory.

See document: Appendix 3, Slides 40-44 for our expected data trajectory.

Workstream & enablers Description 2026/27 milestones 2027/28 milestones 2028/29 milestones

Oaip finalised and socialised by September 2026 accompanied by a comms and engagement plan to ensure all settings know how to embed it. This includes workshops to support practitioners to develop their own ‘inclusion toolkits’

Embedding the SEND Centres of Excellence workstreams into the SEND Reform implementation programme by September 2026

Oaip offer is maturing with evidence-based peer review; in- house research ongoing

Oaip baseline informs opportunities for capital projects

Annual peer-review event held to set and refine baseline

Oaip adopted consistently across schools, MATs, Fe and early years settings

Inclusion Charter (developed through SEND Centres of Excellence) single vision embedded; branding and partnership consolidated

Oaip reviewed and updated as part of continuous improvement cycle

Consistent universal practice evidenced across all settings

System confidently demonstrates shift toward mainstream inclusion

National Inclusion Standard incorporated into Oaip when published

Workstream 1

Finalising and implementing the Oaip framework as

Effective Practice and Universal Offer

Building Blocks:

Cornwall's shared universal offer across

✓ Strengthening

inclusion across education settings ✓ Encouraging inclusive

schools, MATs, Fe and early years settings

culture and behaviours

Enablers:

• Compass Sw

inclusion audit tool

• Inclusion Charter
• National Inclusion

Standard (when published)

• Ordinarily Available

Provision (Oaip) framework

• SEND Centres of

Excellence

Compass Sw inclusion tool tested and refined; ready to launch by Autumn 2026

Work with Swriia underway to create Mat and school level audit tool

Inclusion Charter (Ic) launched Sept 2026; Oaip, Ic and audit tool aligned

Comms and engagement plan with settings to encourage take up and monitor early use.

Agreement on Sw Riia funding to support development of the audit

Annual peer-review event continues and matures

Inclusion audit data used across stakeholders to understand barriers (e.g. part-time timetables) and inform commissioning plans, traded offers and locality-based resource planning

Marjon’s attendance research and in house Health Determinants (Hdrc) and Inclusion research utilised to strengthen evidence base

Inclusion audit tool embedded as routine practice across all settings

Consistent data used to track progress and target support where needed

Inclusion measures linked to outcomes frameworks and reported publicly

Developing inclusion audits and shared inclusion measures to improve consistency across mainstream settings Workstream & enablers Description 2026/27 milestones 2027/28 milestones 2028/29 milestones

Inclusion measures embedded in quality assurance and governance processes

tools and establish processes for their use including peer review and best practice sharing

Inclusion Charter embedded as business-as-usual; evidence of cultural shift

Higher attendance, reduced exclusions and improved sense of belonging evidenced

Fewer family complaints; increased trust between families, settings and wider professionals

Inclusion Charter launched Sept 2026 with comms plan

Charter aligned to Oaip and Experts at Hand

Parent Engagement Framework, (Appendix 22) Trauma-informed practice and wellbeing toolkits embedded via Charter

Inclusion Charter recognised and adopted across schools, MATs and Fe settings

Workforce development strategy aligned to Inclusion Charter developed

All secondary schools linked with school nurses and MHSTs

Supervision mechanisms for education staff strengthened

Developing and embedding the Inclusion Charter to create a shared county-wide definition of inclusion

Neurodiversity inclusive practice programmes routinely delivered across localities

Reasonable adjustments guidance fully embedded in schools and settings and well understood

Workforce competency framework for Nd practice developed and in use

Nd inclusive practice embedded as standard across all mainstream settings

Measurable reduction in movers to Ehe, exclusions and off- rolling of Nd pupils

Cornwall recognised as a model for neurodiversity-affirming education practice

Strengthened Nd workforce offer - attached to E@H offer

Autism in Schools team expanded to cover wider neurodiversity needs

Consistent Cpd and upskilling of workforce commenced

Sensory integration OTs deployed alongside specialist teachers to support settings to be neurodiversity-affirmative environments by design

Expanding neurodiversity inclusive practice

programmes, including workforce

development and reasonable adjustments approaches

Agreed E@H operational model by Sept 2026

Initial impact measures established.

Comms and engagement plan launched for system and families

Core Hub Coordinator Fte (~18 Months) to be recruited to lead the Core E@H offer

6 place-based neighbourhood teams to be set up with assigned coordinators for each

6 Nd support Nd practitioner officers recruited by July 2026 – subject to guidance and affordability

E@H offer operating routinely across all pilot localities

Core workforce in place with clear career pathways and minimum standards defined

New Ep model routinely delivered across Cornwall

Nd practitioner officers embedded in locality delivery; Nd profiling integrated into E@H offer

Integration with health neighbourhood teams strengthened; Mdt working embedded as Bau

Initial impact measures established and monitored.

E@H fully embedded as Cornwall's coordinated locality offer across all schools and settings

Equitable access to specialist support and expertise evidenced across mainstream settings

Data and outcomes from E@H used to inform commissioning and continuous improvement

Locality model reviewed and aligned to wider system architecture

Second tranche of feedback loop to be closed by sharing

Workstream 2

Developing integrated multidisciplinary Cornwall’s Expert at Hand Offer (Appendix 6 for more detail on E@H Briefing) neighbourhood support models linked to the Experts at Hand approach

Building Blocks:

✓ Strengthening

inclusion across education settings ✓ Access to specialist

support and local placements Enablers

Workstream & enablers Description 2026/27 milestones 2027/28 milestones 2028/29 milestones

Experts at Hand Guidance

Experts at Hand joint commissioning group

Existing locality offers, structures and relationships (all mentioned in the E@H Briefing)

Pins learning

Remodelled Ep service

Cornwall Parent Carer Forum

Ep, Salt, Ot and specialist teacher recruitment plan to be developed by June 2026

Youth mentorship programme to begin by June 2026 via Youth Council as suggested by the Youth Council (detailed session notes in Appendix) – subject to guidance and affordability

Ep options paper produced by Sept 2026; transitional service in place by March 2027

Cpcf to mobilise parent-led school capacity building across 6 localities using learning from Pins

All secondary schools/settings linked with post 16 transition support for young people who are risk of becoming Neet. This identification is supported by an at risk of Neet identification tool. Schools and post 16 providers will be supported to identify interventions and support that enable an effective transition.

Youth mentorship programme operating across 6 E@H localities

Parent-led capacity building training/coaching ongoing.

First the of feedback loop to be closed by sharing impact stories

Post 16 transition team support transition to mainstream education by bridging support from secondary education to post 16. This work will embed employment focused learning and careers progression though quality careers offer and embedding vocationally profiling to ensure planning for employment from year 9.

Enablers will include supported Internships and vocational training to support young people to access employment.

impact stories and quantifiable impact measures.

Reduced Neet in line with national average and support pathways clearly identified.

Options paper for inclusion bases completed by Sept 2026

Procurement/contract amendment to ensure specialist outreach from AP and special schools

Accelerated delivery of ARBs (already underway, awaiting sig change outcomes from DfE)

Transport and cost reduction strategy aligned with ARBs and Inclusion bases

Community spaces mapped for use as local provision hubs

Joint work with settings scoping specialist support into mainstream plan and testing.

First tranche of inclusion bases commissioned, aligned to Sufficiency Plan

Specialist outreach models expanded to additional localities

Pilot locality model evaluated and scaled to other localities

Specialist provision for short-term and assessment placements increased

Inclusion bases covering all Cornwall localities and key phases

Specialist outreach routinely available to all mainstream settings

Pilot locality learning embedded across the Duchy

Robust Qa mechanisms in place for Individual Support Plans (Isp) and inclusion bases

Expanding inclusion bases, specialist and

Workstream 3

AP outreach and Expanding Inclusion Bases, Specialist Outreach and Local Provision Pathways local provision pathways aligned to identified community need and Cornwall's rural context

Building Blocks:

✓ Strengthening

inclusion across education settings ✓ Access to specialist

support and local placements

Enablers Workstream & enablers Description 2026/27 milestones 2027/28 milestones 2028/29 milestones

National guidance and SEND reform framework

Pilot locality and SEND Centres of Excellence learning

SEND Sufficiency and Inclusion Base Delivery Plan

MAT-led locality pilot underway; learning documented and shared

Qa planning started

Joint governance arrangements reviewed and further developed in response to the requirements of SEND Reforms

Develop a cost plan for:

Joint commissioning structures operational and regularly reviewed

Consistent commissioning frameworks applied across education, health and care

Improved accessibility and equity of specialist support services

Shared data and performance management arrangements embedded

Joint commissioning mature and sustainable; long-term value for money demonstrated

Reduced duplication and fragmentation across sectors

Commissioning drives inclusion and independence outcomes

System-wide accountability mechanisms in place

Workstream 4

Strengthening joint commissioning arrangements across education, health and

Sufficiency, Commissioning and Place Planning

care to improve o Special schools (state-led) o ARBs and mainstream inclusion

Strengthened focus on lower-cost scalable provision

Develop banded funding models for post 16, based on need

Define “fair cost of education” locally

Analysis of need and understanding of commissioning landscape completed to define capital and revenue inclusion

SEND Sufficiency Strategy developed and aligned with Education Sufficiency Plan

Define boundaries between: Education (Hnb) + Health (Icb) consistency, accessibility and

Building Blocks:

✓ Access to specialist

long-term sustainability of specialist support

support and local placements ✓ System leadership,

services

local partnership collaboration and co- production Enablers:

Joint Commissioning Strategy

Pins governance learning

SEND Sufficiency Needs Analysis and data

Needs analysis and forecasting completed; findings socialised (this already happens on an annual basis)

SEND Sufficiency Strategy developed with strategic plan and geo-mapping

Aligned with Education Sufficiency Plan

Sufficiency Strategy phased implementation underway

Dashboard used to review sufficiency plan and track placement trends

Reduction in new Inmss and out- of-area placements evidenced

Sufficiency model embedded as operating standard

Out-of-area and independent specialist placements (Inmss) significantly reduced

Cornwall's rural context addressed through distributed local provision

Strengthening SEND sufficiency

planning through geo-mapping, forecasting and locality-based provision planning to reduce reliance on

Workstream & enablers Description 2026/27 milestones 2027/28 milestones 2028/29 milestones

Framework for collaboration between Family Hubs, early years and schools developed

Plans developed to engage Vcse for peer support and voluntary group delivery

Commissioning plan for early support offer developed

Locality schools’ meetings reviewed with early years focus

Targeted training delivered as part of universal offer; trauma-informed practice embedded

Clear thresholds for identification, assessment and support agreed and implemented

Early years data integrated with school-level inclusion data

Evidence of earlier intervention reducing escalation to higher- needs support

On track to meet NHS and DfE targets for good levels of development (Gld)

Transitions from early years to school strengthened and data- informed

Vcse and community partners embedded in early identification offer

integration between

Improve Early Years Identification and Strategies

Family Hubs, early years services and

schools

Building Blocks:

✓ System leadership,

local partnership collaboration and co- production ✓ Strengthening

inclusion across education settings ✓ Encouraging inclusive

culture and behaviours

Enablers:

Best Start in Life Strategy

Digital Transformation driven by NHS 10 Year Health Plan

Family Hubs

Integrated data and locality frameworks

Agreed evidence-informed review framework and toolkit implemented across all settings (including expectations on data, outcomes and impact reporting)

Baseline established on quality and variation of EHCP review decisions, with audit cycle in place

Initial data capture from reviews developed to inform cohort-level analysis

Consistent evidence-led decision- making evident across the majority of reviews, with reduced variation in outcomes

Review data routinely used to inform placement decisions, provision planning and commissioning

Demonstrable impact on timeliness and appropriateness of amendments, including clearer stepped up/down pathways

EHCP reviews function as a core system control point, actively shaping demand, sufficiency and spend

Integrated data enables predictive planning (e.g. trends in need, provision effectiveness, escalation risk)

Sustained evidence of improved outcomes and value for money, with decisions consistently defensible and transparent

Workstream 8

Implement a consistent, evidence-based review process that improves the quality Data informed decision making and Evidence-Led Reviews of EHCPs of decision-making, links individual case

Building Blocks:

✓ System leadership,

reviews to system-

partnership & co- production ✓ Encouraging inclusive

wide intelligence, and actively manages demand and spend through systematic step-up

culture and behaviours

Workstream & enablers Description 2026/27 milestones 2027/28 milestones 2028/29 milestones

and step-down approaches.

Enablers:

Data and insight on EHCP quality

Integrated data dashboard (development)

Outcomes and independence frameworks

Post-16 Inclusion Pathway co- designed with providers, young people and families (mainstream- first) and align SEND, Neet and PfA outcomes.

Post-16 Inclusion Pathway implemented and refined across providers

Fair Education Fee framework introduced and applied to commissioned provision

Stage 3 decision-making processes embedded; earlier and clearer commissioning conversations

Standardised fee-setting for EHCP and higher needs learners rolled out

Earlier reviews and decision-making reducing delays and repeat placements

Embed early identification and support from year 9, to include clear careers education and vocational profiling and PfA (preparation for adulthood).

Support programmes pre and post 16 focus on inclusion and enabling young people to build skills for employment, i.e. travel training, work experience.

Clear pathways to employment which include Supported Internships, apprentices and vocational learning.

Consistent inclusion-first post- 16 pathways embedded; reliance on bespoke provision reduced

Improved relationships with providers through clearer expectations and system skills

Financial forecasting and Vfm improving through ESFA alignment

Workstream 9

Implementing a strengthened Preparation for Adulthood and post- 16 inclusion pathway focused on improving

Post-16 Inclusion Pathway and Improving Transitions

Commercial process explored to contractualise bespoke provision creating a mechanism to hold providers to account more robustly.

Co-design with providers for Fair Education Fee model begun

Cost breakdown templates and fee structures developed for EHCP/higher needs placements

Financial grip on commissioned place returns strengthened to improve forecasting

Develop a strong governance for the Youth Engagement Strategy, which aims to support interventions to reduce Neet. Strengthen the work of the SEND employment forum which brings stakeholders together to strengthen pathways and support to employment. As part of this work will be to develop work with Employers “Diversity to Thrive” which aims to build opportunities for work experience,

transitions,

Building Blocks:

✓ Access to specialist

increasing confidence in

support and local placements ✓ Encouraging inclusive

mainstream pathways and reducing reliance on

Plan-do-review cycles embedded across all post-16 provision

Preparation for Adulthood outcomes improving; reduced Neet rates. Young people are supported with clear routes and planning to employment.

culture and behaviours

bespoke high-cost Enablers:

ESFA returns and financial data

Post-16 commissioning Theory of Change

Provider relationships and co-design processes

Youth Engagement Strategy to strengthen employability Pathways provision.

Workstream & enablers Description 2026/27 milestones 2027/28 milestones 2028/29 milestones

Increase in specialist provision from 542 to 658, with 116 new places operational

6. What will the local area partnership deliver in the first year?

Please outline the key workstreams, milestones and trajectory your local area partnership will deliver and achieve in 2026-27 as well as

how you plan to spend the investment allocation that will help fund this year’s delivery. Please share key milestones and anticipated dates,

success measures, cost breakdown and category. These should incorporate the core minimum requirements, be mapped to the building

blocks above and should reflect a more detailed trajectory to the narrative, milestones and target metrics outlined in the 2026-27 column

above.

WS1: Effective Practice and Universal Offer

Q2 July – September 2026 Q3 October – December 2026 Q4 January – March 2027

Milestones Target trajectory Milestones Target trajectory Milestones Target trajectory

Oap framework finalised, published and communicated (Sept 2026)

Inclusion Charter formally launched with full comms plan (Sept 2026)

Compass Sw inclusion audit tool refined; schools trained on use

Sw Regional Inclusion in Action (RiiA) funding agreement confirmed

SEND Centres of Excellence unified project plan developed by Sept 2026

3-year plan comms tool ('plan on a page') launched for system and families.

Peer-review baseline established. No major shift in Ehcna rates expected at this stage.

20% of MATs across all localities engaged with Oap training programme.

Qa framework designed

Annual peer-review event held; inclusion baseline scores established across settings.

Oap and Inclusion Charter in consistent use across settings; training underway

Workforce development strategy aligned to Inclusion Charter in development.

All secondary schools linked with school nurses and MHSTs confirmed.

Cpd for Nd practice commenced.

Consistent Qa framework developed, drawing on Pins evaluation.

Ownership of Qa data collection and collaboration confirmed across teams.

Peer-review baseline established. No major shift in Ehcna rates expected at this stage.

20% of MATs across all localities engaged with Oap training programme.

Qa framework designed

Oap adopted consistently across schools, MATs, Fe, and early years.

Inclusion Charter signed up to by MATs

SEND Centres of Excellence single vision embedded, branding consolidated.

Evidence of Oap impact on settings' confidence gathered and reported.

Year 3 peer- review planning agreed

Inclusion Charter sign- up: 30% of MATs.

Parental confidence survey co-produced and baseline established.

40% of MATs across all localities engaged with Oap training programme. Qa framework piloted with 10% settings across localities.

Responsible Lead: Head of Inclusion and SEND – LA Supported by: Education Leaders (Cornwall Education Partnership)

Outcome: A consistent, well-understood universal offer is in place across all settings. Mainstream settings are confident in meeting a wider range of needs. The Oap and Inclusion Charter are embedded and routinely used to drive inclusive practice.

Success measures:

Increased mainstream inclusive practice evidenced through inclusion audit scores

Reduction in growth of EHC Needs Assessment (Ehcna) requests year-on-year

Increased proportion of children supported effectively within universal and targeted layers.

Reduced variation in inclusive practice across localities.

Reduced number of Ehe requests linked to unmet need.

Improved consistency of inclusive practice across settings (peer review data)

Improved parental confidence in mainstream provision

Qa framework in use across all settings with regular self- assessment cycles.

WS2: Cornwall’s Expert at Hand

Q2 July – September 2026 Q3 October – December 2026 Q4 January – March 2027

(E@H) Offer

Milestones Target trajectory Milestones Target trajectory Milestones Target trajectory

Responsible Lead(s):

E@H operational model finalised and published (Sept 2026)

6 Nd practitioner officers in post and operational (July 2026)

Ep remodel options paper produced (Sept 2026); transitional service planned

E@H core delivery team assembled; roles confirmed

Communications and engagement plan for E@H launched across system

Existing locality structures formally aligned to E@H model

Youth-mentorship programme to be co- designed

Recruitment and model finalisation focus. No measurable shift expected against core metrics.

Baseline for all E@H metrics confirmed and validated.

30% MATs formally co- producing E@H

E@H pilot delivery commences in 2 pilot localities

Nd practitioner officers active in localities; Nd profiling underway

Mdt neighbourhood support sessions running in pilot areas

Ep transitional service in place; remodelled service on track for March 2027

Monitoring and evaluation framework established

Settings, families and health partners actively engaged

Minimum of 2 pilot localities receiving E@H support.

Early qualitative evidence of improved setting confidence.

No significant quantitative movement expected at this stage.

E@H routinely operating across all pilot localities

Core workforce in place; career pathways and minimum standards defined

Integration with health neighbourhood teams strengthened; Mdt embedded

Early impact evaluation completed; learning documented for Year 3 scale-up

Year 3 expansion plan across all localities developed

40% of settings in pilot localities engaged with E@H offer.

Early evidence of improved confidence from practitioner feedback.

Baseline for exclusions, attendance and Ehcna established for Year 3 comparison.

40% of schools in the pilot localities accessing support via the Ep offer as part of E@H

Programme of Care Lead, Maternity, Children and Young People - Icb Head of Inclusion and SEND - LA SEND Support Services Lead Principal Ep

NHS SaLT Lead Outcome: Schools and settings have equitable, timely access to integrated, multidisciplinary expertise. Mainstream workforce capability is built and reliance on specialist referrals reduced across all localities.

Success measures:

Increased access to specialist expertise evidenced across localities

Reduced suspensions and permanent exclusions

Improved attendance and reduced Ebsa

Reduction in Ehcna requests from settings receiving E@H support

Increased confidence of mainstream settings

Improved parental confidence in mainstream provision

Measurable reduction in waiting times for specialist support.

Ep new model in transitional delivery phase; full remodel plan agreed

WS3: Expanding Inclusion Bases,

Q2 July – September 2026 Q3 October – December 2026 Q4 January – March 2027

Specialist Outreach and Local

Provision Pathways

Milestones Target trajectory Milestones Target trajectory Milestones Target trajectory

Inclusion base options paper completed and signed off (Sept 2026)

Procurement/contract amendment for specialist outreach from AP and special schools completed

SEND Sufficiency Strategy with geo- mapping finalised and endorsed

Community spaces mapped for use as local provision hubs

Locality pilot learning documented and assessed for scalability

Governance and commissioning arrangements for inclusion bases established

Planning and commissioning preparation focus.

Baseline data for cost and nature of out- of-area placements and Independent specialist provision. (Nmms)

SEND Sufficiency Strategy signed off by partnership.

First tranche of inclusion bases commissioned in line with Sufficiency Plan

Commission specialist outreach

Physical special spaces for short-term placements identified and confirmed

Referral pathways and placement criteria for inclusion bases published

Monitoring framework for inclusion base impact established

140 new inclusion base places commissioned.

Pilot locality model evaluated; learning scaled to 1 additional locality

Specialist outreach delivery commenced to pilot locality

First wave of inclusion bases operational

Structured outreach from inclusion bases to partner mainstream schools commenced

Year 3 sites and phases for additional inclusion bases confirmed

Impact on transport usage, placement stability and specialist referrals reported

561 inclusion base places operational.

Specialist outreach reaching 6 MATs

40% settings engaged in specialist outreach reporting increased confidence in meeting needs locally.

Responsible Lead(s): Head of SEND Commissioning - LA Head of Inclusion and SEND - LA Outcome: A network of accessible, high-quality inclusion bases and specialist outreach is developed across Cornwall's localities, reducing reliance on independent and out-of-area placements and ensuring children are supported closer to home. Success measures:

Increase in inclusion base places commissioned

Reduction in new out-of-area placements

Reduction in independent specialist placements

Increased proportion of children supported locally

Improved placement stability

Reduced transport costs associated with out-of-area placements

WS4: Sufficiency, Commissioning

Q2 July – September 2026 Q3 October – December 2026 Q4 January – March 2027

and Place Planning

Milestones Target trajectory Milestones Target trajectory Milestones Target trajectory

Responsible Lead(s):

Joint commissioning governance structures formally established; Pins learning applied

Joint Commissioning Strategy 5 priorities agreed and communicated across partners

Sufficiency dashboard under development; live tracking of placement trends beginning

SEND Sufficiency Strategy phased implementation commenced

Commissioning landscape analysis and Vfm review completed

Governance and strategy implementation focus.

Increase of local provision by 80 placements.

Joint Commissioning Strategy signed off by all partners.

Joint commissioning structures fully operational with regular partnership forums

Consistent commissioning frameworks applied across education, health and care

Shared performance management data arrangements established

'Quick win' mitigations for most acute sufficiency pressures implemented

Spot purchasing protocols tightened; unit cost visibility improved

Early evidence of consistent commissioning approaches across sectors.

Joint commissioning arrangements reviewed; Year 3 plans developed

Accessibility and equity of specialist support services evidenced

Shared data and performance management fully embedded

Sufficiency strategy implementation assessed against plan milestones

Financial sustainability contribution evidenced and reported

Evidence of Joint commissioning decisions made using shared data.

Increase of local provision by a further 70 placements.

Head of SEND Commissioning - LA Deputy Programme of Care Lead - Maternity, Children and Young People - Icb Outcome: A coherent joint commissioning strategy ensures specialist support is accessible, consistent and sustainable. Local provision planning reduces reliance on high-cost and out- of-area placements and demonstrates value for money.

Success measures:

Joint commissioning structures operational and regularly reviewed

Reduction in out-of-area placements

Improved accessibility and equity of specialist support services

Reduced fragmentation and duplication across education, health and care commissioning

Improved value for money (Vfm) in specialist provision

Publish Market Position statement

WS5: Align AP Practices with the 3- Tier AP Model

Q2 July – September 2026 Q3 October – December 2026 Q4 January – March 2027

Milestones Target trajectory Milestones Target trajectory Milestones Target trajectory

Responsible Lead(s):

Clear Tier 1-3 AP definitions, thresholds and pathways published across system

Development of reintegration framework

AP governance structure agreed with providers and LA

AP Strategic Lead recruitment in progress

Iap standards introduced alongside Tier 1 mainstream strengthening

Commissioning reform: framework contracts developed; unit-cost visibility improved

Joint governance with Cornwall & Isles of Scilly Icb established

Focus on pathway publication and governance establishment.

Baseline for all AP metrics confirmed.

Pex rate: 3 per 1,000 SEN Support pupils.

Suspension rate: 177 per 1,000 SEN Support pupils.

3-tier model locally defined and socialised across all schools and AP providers

Tier 2 model operating with time-limited placements and reintegration expectations

Workforce development for AP Tier 1 underway at scale

Framework commissioning for AP underway; spot purchasing reducing

15% of AP providers signed up to reintegration framework.

Baseline Pex and suspension data confirmed.

30% MATs engaged with Tier 1 workforce development.

3-tier model embedded in practice across all schools and AP providers

Consistent Tier 1 offer reducing exclusions; early evidence gathered

Tier 2 fully operational; reintegration plans mandated for all placements

AP/SEND outcomes and finance dashboard live

Year 3 Tier 3 sufficiency plan developed

Commissioning framework reviewed; impact assessed

Early qualitative feedback on improved pathway clarity.

Pex rate: 2 per 1,000 SEN Support Pupils reduction of 30%.

Improved % reintegration from AP.

Unplanned AP placements reducing.

Senior Officer SEND - LA Senior Education Effectiveness Officer - LA Outcome: AP provision is aligned to the 3-tier model with clear referral and reintegration pathways. AP is recognised as a time-limited intervention rather than a destination, reducing permanent exclusions and supporting mainstream inclusion.

Success measures:

Reduced permanent exclusions and suspensions

Increased reintegration rates from AP into mainstream

Reduced instances of Ebsa

Improved attendance for Cyp in AP

Clearer and consistent AP pathways embedded across the system

Reduction in unplanned or spot- purchased AP placements

AP/SEND outcomes and finance dashboard designed and development commenced

WS6: Strengthen Co-production and Participation

Q2 July – September 2026 Q3 October – December 2026 Q4 January – March 2027

Milestones Target trajectory Milestones Target trajectory Milestones Target trajectory

Responsible Lead(s):

Relationship-building workshop with Cdc to clarify Cpcf strategic roles held

Existing meetings mapped; streamlined approach to parent involvement designed

Vcse landscape mapped; joint working opportunities identified and documented

Comms plan and 'plan on a page' for 3-year plan launched as iterative tool

Mapping and planning focus.

Baseline of parent carer participation activity established.

Parental confidence survey tool designed and ready for deployment.

Parent/carers engaged in a defined workstream involving co- production activity in Q2.

Partnership Intelligence Hub development underway; design agreed

Peer-research project with University of Plymouth actively progressing

Cpcf formally embedded in key decision- making forums

'You said, we did' approach piloted in at least one service area

3 Cpcf members in active strategic roles.

2 service areas piloting 'you said, we did'.

Early qualitative evidence of improved Cpcf engagement.

Partnership Intelligence Hub launched; Cyp and parent/carer intelligence collated strategically

'You said, we did' process embedded as routine across services

Cpcf representation broadened; diverse voices represented

Co-production principles routinely adopted across services

100% of workstreams where Parent/Carers are necessarily and actively involved include joint decisions born out of co- production.

Initial families engaged through Partnership Intelligence Hub with positive qualitative feedback.

Complaints/escalations reduced by 5% from the baseline.

Parental confidence baseline established.

SEND Innovation and Partnerships Lead - LA

Cpcf Co-Lead Outcome: Families, children and young people are active partners in shaping the SEND system. The Cpcf has a strengthened strategic role and lived experience consistently informs service design and commissioning. Success measures:

Expectations of co-production and engagement clear across the system

Co-production consistent across all service levels

Improved parental confidence and satisfaction with the SEND system

Cpcf representation broadened to reflect diversity of Cornwall's families

Cyp voice regularly informing decision-making

Reduced number of complaints and escalations

Plan for Partnership Intelligence Hub developed and agreed with partners

Co-production principles agreed and published across services

3-year plan updated with outcomes-based progress report

WS7: Improve Early Years Identification and Strategies

Q2 July – September 2026 Q3 October – December 2026 Q4 January – March 2027

Milestones Target trajectory Milestones Target trajectory Milestones Target trajectory

Responsible Lead(s):

Framework for collaboration between Family Hubs, health visiting and Ey drafted

Commissioning plan for early identification offer developed

Vcse engagement plan developed; organisations mapped

Workforce and partnership foundation focus.

Baseline of early identification practice and referral pathways established.

Best Start in Life inclusion workers in post across Family Hubs

Integrated early support pathways agreed across Family Hubs, health visiting and Ey

Locality schools’ meetings relaunched with Ey integration focus (Oct 2026)

Workforce training commenced; uptake and impact monitored

Thresholds for identification, assessment and support agreed and communicated

Vcse organisations engaged for peer support delivery

Ey data collection framework established

6 Best Start in Life inclusion workers in post.

30% of Ey settings engaged with new early support pathways.

Training uptake: 50% of identified workforce members.

Integrated early identification pathways embedded across all Cornwall Ey settings

Trauma-informed practice embedded in training programme

Ey data beginning to integrate with school-level inclusion data

Evidence of earlier intervention reviewed; impact on escalation assessed

Vcse early years support commissioned; delivery underway

30% of Ey settings using integrated early support pathways.

Workforce confidence in early identification: 40% returns on survey.

Early qualitative evidence of improved transitions.

Head of Early Support - LA Early Years Lead – SEND - LA

SEND Support Services Lead - LA Head of Community Health

Outcome: Needs are identified and met earlier through consistent, evidence-based practice aligned to Hle and Elsec delivery models. Practitioners are confident in identifying and responding to speech, language and communication needs as part of everyday provision, supported by Best Start Inclusion Practitioners, Family Hubs and targeted interventions such as Early Talk Boost and Early Words Together.

Early qualitative evidence of improved pathway clarity.

Success measures:

Reduced Ehcna requests originating from Ey settings

Increased proportion of children with speech, language and communication needs supported at universal or targeted level without referral

Improved good levels of development (Gld communication and language measures)

Reduction in referrals linked to unmet early language needs

Increased parental engagement in early language development programmes

WS8: Data informed decision making and Evidence-Led Reviews of EHCPs

Q2 July – September 2026 Q3 October – December 2026 Q4 January – March 2027

Milestones Target trajectory Milestones Target trajectory Milestones Target trajectory

Responsible Lead(s): Inclusion and Participation Co- ordinator - LA Statutory SEND - PfA Lead - LA Core Data Team - LA Outcome: Implement a consistent, evidence- based review process that improves the quality of decision-making, links individual case reviews to system- wide intelligence, and actively manages demand and spend through systematic step-up and step-down approaches Success measures:

Define and agree a standardised evidence- informed review framework, including:

Framework agreed and implemented across all EHCP review teams

Toolkit developed, tested and published

Reporting dashboard established

Roll out framework across a defined first tranche of settings / cohorts Undertake a baseline audit of EHCP reviews, assessing: quality of evidence

• clarity of recommendations
• consistency of decisions

Identify variation hotspots (by setting type, cohort, or need type) Establish a formal audit cycle:

• sampling methodology agreed
• moderation processes in place
• governance route for findings (e.g. SEND Board / operational group)

15% EHCPs reviewed within the academic year through new evidence-led process.

Dashboard operational with key datasets integrated.

Early movement on independence and outcomes metrics.

No major shift in EHCP rates expected at this stage.

Define a minimum dataset for EHCP reviews, for example:

• outcome progress (met / partially met / not met)
• changes to provision
• placement recommendations
• escalation / de- escalation indicators

Develop or adapt systems to enable structured data capture (rather than narrative only) Begin routine capture of review data from participating settings Produce first cohort- level analysis, identifying:

• patterns in decision-making
• provision effectiveness signals
• areas of emerging demand

Toolkit and guidance based on audit findings and user feedback communicated to SENCos Training gaps identified and targeted support provided to outliers Year-end position statement issued covering:

clear expectations on outcomes reporting (progress against outcomes, not activity)

minimum evidence requirements (education, health, care inputs)

expectations on demonstrating impact of provision Co-produce and publish a practical review toolkit (templates, guidance, exemplars):

standard review report format

decision-making guidance (amend, maintain, cease)

worked examples of strong evidence Align framework with:

• SEND Code of

Practice requirements

• local thresholds and

provision pathways Deliver briefings and training to SENCOs, partners and case officers

improvement in review quality

identified variation

initial insights from data

next steps for system use

Regular EHCP review cycle in place with the right partners involved

EHCP quality improving year- on-year

Independence and outcomes measures improving for EHCP cohort

Data dashboard operational and used in strategic decision- making

WS9: Post-16 Inclusion Pathway and Improving Transitions

Q2 July – September 2026 Q3 October – December 2026 Q4 January – March 2027

Milestones Target trajectory Milestones Target trajectory Milestones Target trajectory

Post-16 Inclusion Pathway implemented and published to all providers

Fair Education Fee framework piloted with selected providers

Stage 3 decision- making processes embedded across commissioning teams

Standardised cost breakdown templates in use for all EHCP/higher needs placements

ESFA financial returns improved; forecasting strengthened

Post-16 Theory of Change reviewed and updated

Framework developed during 2026/27 to go live from 2027/28 academic year

Baseline: Neet (SEND cohort): Yr12/13- 9.9% (Neet EHCPs 2025).

Baseline: bespoke post- 16 placements: 119 (Mainstream Post 16 specialist provision + specialist Post- 16 institutions).

Fair Education Fee framework applied consistently to commissioned provision

Standardised fee-setting for EHCP and higher needs learners rolled out

Earlier reviews and decision- making reducing delays and repeat placements

Provider relationships strengthened through clearer expectations

Post-16 data integrated into sufficiency planning dashboard

Fair Education Fee Framework designed and agreed for providers (incl. consultation/signoff)

New approach in place across all providers (aligned to fee framework go live / commissioning cycle)

10% improvement in Stage 3 decision timescales.

Early evidence of reduced repeat courses.

Consistent inclusion-first post-16 pathways embedded across providers

Plan-do-review cycles established across all post-16 provision

Preparation for Adulthood outcomes data collected and reviewed

Year 3 post-16 improvement plan developed

Framework goes live for the 2027/28 academic year.

First evidence point for reductions against baseline. - 20% reduction target reduction across following academic year 27/28.

Neet rate (SEND cohort): 9.9% (target: 7%-year 12/13).

Post-16 high-cost provision spend reporting method agreed tracking working towards a 10% reduction in spend.

Responsible Lead(s): Commissioning Lead – SEND - LA

Inclusion and Participation Co- ordinator - LA

Statutory SEND - PfA Lead - LA Outcome: Young people with SEND have access to a strengthened, mainstream-first post-16 offer. Transitions are smooth, financially sustainable and focused on preparation for adulthood, independence and reducing Neet.

Success measures:

Financial forecasting and Vfm evidenced through ESFA alignment

Reduced reliance on bespoke and high-cost post-16 provision

Improved timeliness of post-16 transitions

Reduced repeat course placements

Improved Stage 3 decision- making timescales

Improved preparation for adulthood outcomes

Reducing Neet rates for young people with SEND

Projected Investment Spend per Quarter

Cornwall have been allocated £3.7m to spend in year 1 as part of the Experts at Hand and Local Authority SEND Transformation fund . We recognise the requirements for this funding allocating;

• A minimum of 80% (£2,970,000) for the direct delivery of Experts at Hand to settings, staff and children and young people
• Up to 10% (£371,000) on administrative costs for the delivery of the Experts at Hand offer
• Up to 10% (£371,000) on local authority transformation costs, including staff or other associated costs

Our proposed year 1 spend has been considered and allocated to comply with the above requirements but is subject to change as we work to co-produce and build the Experts at Hand offer with partners, parent carers and children and young people.

7. How will the local area partnership deliver the first-year plan?

Please set out how you will ensure the required capacity and capability is in place from organisational corporate functions to support

implementation of the plan. This could include reference to how you plan to build or bring in project delivery capability to manage

delivery against the plan, support prioritisation, and effective use of resources; and how you plan to build the capacity and capability

in data and analytics to support effective tracking against the measures in the plan and reporting that informs decision maki ng.(250

words)

Overall leadership will be provided through a multi-stakeholder SEND Inclusion and AP Board, jointly chaired by senior LA and NHS leaders, holding collective accountability for outcomes, trajectories and value for money. A Steering Group will translate the plan into delivery priorities, resolve dependencies and manage risk across workstreams. Delivery will be monitored through a refreshed SEND Inclusion and AP Board with active repres entation from Youth Council, Special Schools, AP, Mainstream Schools, Public Heath, NHS, the LA (Education and Social Care) and Cpcf. The existing SEND Centres of Excellence workstreams provide a ready-made delivery architecture, with named leads across health, MATs and the LA aligned to the building blocks of the reform plan and as such they will be fully integrated into the Lsrp workstreams. In 2026/27, Cornwall Local Area Partnership will invest in additional capacity through a co -designed workforce plan developed jointly between the LA and health. The recent merger of Icb Cornwall with Icb Devon creates an opportunity to draw on a wider workforce footprint, particularly for North Cornwall, identified as facing greater challenges in recruitment due to its rural geography. The Icb Devon lead's involvement in the Ex perts at Hand workshop signals commitment to addressing gaps in specialist roles across the system. Joint commissioning plans will ensure capacity and capability are built consistently across the system, with finance and comm issioning colleagues targeting investment at agreed priorities for value for money, and Hr and workforce colleagues supporting recruitment and capacity planning. A core priority from co-design is an inclusive, accessible communications plan for both the system and families, with a plan-on-a-page approach and heightened Cpcf engagement ensuring families are active partners in delivery from the outset.

8. Other funding Local Authorities.

Block Transfers: If you have made a block transfer (Schools Block to High Needs Block) for 26-27, please set out how your plans for

this funding align with the activities outlined above. (250 w)

Block Transfer Cornwall currently benefit from the full block transfer of £1.913m in 26/27 and we expect to negotiate for block transfers of c£1.971m in 27/28. This supports the re- distribution of Hnb funding through the high needs protection formula which provides additional funding to schools with higher incidence of children with SEND. This model provides additional resource to those schools who are the most inclusive.

The impact of this methodology of resource distribution on outcomes of children and young people will be evaluated. Alternati ve ways of using these funds to support inclusion have been suggested and will be debated and considered by Schools Forum. One reco mmendation currently being explored is the re-distribution of funds going to directly to neighbourhood clusters of schools allowing them to pool their funding and commission into any local gaps . The blueprint for this will be developed and tested by the pilot locality, one of the SEND Centres of Excellence workstreams. This pilot brings together schools, including 7 Mats, affiliated by the fact they are community neighbours rather than because of any legal association. The intention being that they assess t he needs of their communities and curate a menu of graduated services available to their ‘community village’. This will include primary care offers through the integrated neighbourhood teams as well as Duchy-wide and local offers from the LA and other stakeholders including the voluntary and charity sectors. Any gaps could be commissioned into using the high needs protection funding from the block transfer. Alignment with other funding streams SEND Reform funding adds value by aligning and strengthening existing investment across complementary programmes, including t he Better Start in Life (BSiL) programme and Family First Partnerships, rather than operating as a standalone initiative. While BSiL focuses on early identification and inclusive practice in the early years, and Family First Partnerships drive earlier help and whole-family support to reduce escalation, SEND Reform funding creates the system conditions to translate these inputs into consistent, evidence-based EHCP decision-making and provision planning. Together, these funding streams create a coherent pathway from early support through to statutory intervention, enabling needs to be identified earlier, support to be better targeted, and demand for specialist provision to be more effectively managed. The combined impact is greater than the sum of its parts, as each programme reinforces the others to imp rove outcomes, strengthen consistency, and support long-term financial sustainability across the system

Capital: We have announced at least £3 billion in high needs capital between 2026-27 and 2029-30 to support children and young

people (Cyp) with SEND, or those requiring alternative provision (AP). This funding is intended to support place delivery across the full

0-25 age range, including early years and post-16. We expect funding to support the following outcomes:

a. Inclusion at the core of high needs sufficiency strategy, resulting in more children and young people with SEND accessing

suitable places in mainstream settings, across all phases of education

b. Every child or young person who needs a place in an inclusion base can access one

c. Fewer children and young people with SEND needing to travel a long way to access a suitable placement

d. Improved suitability of the mainstream estate to support children and young people with SEND, with adaptations to improve

inclusivity and accessibility of the physical environment

We also welcome innovative uses of high needs capital to drive inclusion, for example, investment in assistive technology for use in

mainstream settings.

Please outline your strategy for how this funding will meet the outcomes above, with reference to the core minimum requiremen ts and

other workstreams in this reform plan where appropriate. We would like to see detail around your plans to increase capacity for

inclusion bases (formerly known as SEN units, resourced provision and pupil support units – Su/Rp/PSUs), such as schools, colleges

or early years providers identified, engagement with relevant settings and trusts, and target cohort of needs.

If your plans include increases to places in special schools or specialist post-16 institutions, please include a clear rationale, showing

the need that is being met, and why it cannot be met through other types of provision, such as inclusion bases.

If you are receiving additional capital funding to replace one or more planned special or AP free schools, please set out how this funding

will meet need in your area, and plans for engaging relevant trusts in your sufficiency planning. (500 words)

Cornwall’s approach to deploying capital funding, places inclusion at the core of the high needs sufficiency strategy, ensuri ng that the majority of children and young people with SEND can access suitable provision within mainstream education across all ed ucation phases. Capital investment is explicitly aligned to the SEND Reform programme, the Education Sufficiency Strategy and the system ambition to strengthen ordinary available inclusive practice so that escalation to specialist placement is reduced. The commissioning plan is attached as appendix 14.

Investment is already prioritising the development and expansion of Area Resource Bases and Inclusion Bases within mainstream early years settings, schools and colleges. We are already piloting this approach in some schools and have we have developed a pilot multi-agency sufficiency model in a pilot locality (Mid-Cornwall) as part of the SEND Centres of Excellence, this workstream is led by strategic school leaders working with the LA to create local pathways. This means we are establishing clear routes through the various stages from early years right through to post 16, building in opportunities for step down and mainstreaming at every phase transfer (Appendix 15). We are developing inclusion bases which will be planned as integrated, campus-based provision rather than separate pathways. Settings will be prioritised and identified through place-based sufficiency analysis, focusing on areas of higher demand, limited local capacity or longer travel distances. This analy sis has already taken place and hotspot data shared with schools, post 16 providers and NHS colleagues. It is already informing dec ision making and implementation. Our culture change work under the four SEND Centres of Excellence work is already well underway and ensures shared ownership and deliverability. Inclusion bases will be designed to meet the needs of clearly identified cohorts, including children and young people with autism, speech, language and communication needs, social, emotional and mental health needs, and moderate learning difficulties, where needs can be met through adapted environments, skilled staffing and access to specialist advice. Inclusion bases will also be hubs for staff Cpd ensuring a consistent and sustainable mechanism for professionals from a range of organisations to learn whilst doing. Capital investment will ensure that these bases sit fully within the main campus, enabling children and young peopl e to access a broad on site offer as part of ordinarily available inclusive practice. This includes purposeful opportunities that support engagement, regulation and inclusion, such as sport including activities like boxing, vocational and therapeutic learning such as animal husbandry, and outdoor or practical learning alongside academic programmes. This aligns with our intentions to see the child at the centre supported by curriculum (adaptive curriculum, quality first teaching), campus (SEND affirmative environments designed to accommodate the majority of needs) and community (e.g. E@H, Integrated Health Networks, Peer Mentorship) within Cornwall. To reduce the number of children and young people travelling long distances to access provision, capital decisions will be informed by geographically distributed sufficiency planning that reflects Cornwall’s rural and coastal context. This approach aims to reduce reliance on independent specialist provision while retaining flexibility for those with highly complex needs. Capital funding will also improve the suitability and inclusivity of the mainstream estate, including sensory friendly adaptations, quiet and regulation spaces and wider accessibility improvements. Technology will play an enabling role. Investment will sup port tools such as telepresence robots to allow children and young people experiencing emotionally based school avoidance to participate in learning remotely while remaining on campus. These approaches will be used as structured reintegration tools, keeping pupils physically close to staff, peers and routines. Where additional capacity is proposed within special schools or specialist post 16 provision, this will be clearly justified. Investment will be limited to cohorts whose needs cannot reasonably be met through mainstream adaptation or inclusion bases, even with targeted support and access to specialist expertise. This ensures that specialist capacity is used appropriately, while the system becomes more inclusive, local and sustainable. The significant investment in specialist bases demonstrates the intended capital outlay on supporting children and young peop le to remain in inclusive mainstream settings with the support needed to achieve and thrive. Some capital spend on specialist places is required given current trends and the aim to support more children and young people with such needs in LA maintained provision, rather than in Independent and Non-Maintained Special Schools. It is anticipated that there may be spend on Support Bases as well as Specialist Bases. At this time, capital outlay has been based on current spending profiles, but this position may change over time to deviate away from Specialist Bases and Special School places. Engagement with families has highlighted that inclusion bases work best when they are well staffed, accessible to all who need them, and free from stigma. This insight will inform base design, staffing models and communicatio n, ensuring bases are experienced as a valued part of mainstream provision rather than a segregated or pressured space.

We are well into capital delivery planning with our partners and sufficiency manager and have split our activities into short , medium and long term workstreams:

• Workstream 1: Immediate action for areas with current deficits exceeding 25 pupil places and deliver places by September 2026.
• Workstream 2: 1-3 year look ahead for areas where deficits are forecast to exceed 25 places.
• Workstream 3: Produce a SEND Sufficiency Plan and Business Case that focuses on capital delivery and outlines how capital investment can be used to provide sufficient high-quality specialist education places.

All three workstreams will be coordinated to ensure a strategic and impactful solution, whilst we realise there is a lot of emphasis on inclusion bases / hubs we know that some schools already have them and no capital investment has been required as they have been created from surplus places , which we have an ever increasing supply of, given the downward trajectory of the birthrate in Cornwall. Our assumption is that we can create more inclusion bases or SEND units, without major capital investment which has been the case so far hence not updating our capital delivery forecast to include any more detail to this respect until we work our way through the workstreams. It is assumed that all expenditure will be funded from the DfE SEN High Needs Capital Fund grant (i.e. no borrowing or utilising any local capital receipts).

9. System partner and stakeholder engagement, and co-production.

Please outline how the local area partnership plans to engage system partners and stakeholders to develop and implement the plan –

include planned engagement with schools and early years settings, alternative providers, Fe and post-16 providers (including those

your young people attend that are not within your local area), Parents and Carers and children and young people with SEND, with

reference to the core minimum requirements. Consider changing roles and responsibilities in the context of the Schools White Paper

and how you work collaboratively to manage the transition. Please indicate where additional support is required to engage partners or

stakeholders - senior officials at the Department for Education will be available to contribute to summer term events with education

leaders and parent carer forum leaders.

Delivery of Cornwall’s SEND Reform Action Plan is being driven through a strong and mature local area partnership, bringing t ogether education, health, care, voluntary sector partners, and children, young people and families around a shared transformation agenda. The plan has been collaboratively developed and will be implemented through clear governance, defined roles and sustained system wide engagement. Leadership sits with the SEND, Inclusion and Alternative Provision Board, with oversight through SEND Performance and Engagement group, Start Well and the Directorate Leadership Team, with sovereign governance coming from Icb and cabinet, thus ensuring clear accountability and coordination. Overall responsibility rests with a named Senior Responsible Officer within the local authority corporate leadership team, acting as the single point of accountability to DfE and NHS England while partners retain their st atutory duties.

Engagement sessions facilitated by the Council for Disabled Children in early 2026 with children, young people and parent carers have directly shaped this plan. Families told us that the quality of SEND support varies too much between schools, that staff need to be more knowledgeable and empathetic, and that children and young people must be involved in planning their own support and in checking whether it is working. This is reflected in our Ordinarily Available Inclusive Practice framework, Inclusion Charter and the commitment to co-produced support planning. Families said inclusion bases can be stigmatising or oversubscribed when poorly

designed. This will be taken into consideration when shaping our capital and sufficiency approach. Young people were clear that Experts at Hand will only work if teams are properly staffed, reinforcing workforce sufficiency as our primary delivery risk. (see Appendix 12 for further detail).

The SEND Centres of Excellence programme, launched in 2025, is central to driving system change. This includes the development of clearly defined ordinarily available inclusive practice, supported by the Cornwall Inclusion Charter and an Inclusion Audit Tool developed with Whole Education and the Southwest Regional Improvement and Innovation Alliance. These mechanisms establish consistent expectations, facilitating peer support and challenge and strengthening improvement across early years, schools, colleges and alternative provision. They are underpinned by shared data dashboards and a partnership maturity assessment approach to review governance effectiveness, strengthen accountability and improve coordination of intelligence.

Engagement with system partners is structured and sustained through formal governance and sector representation. Early years, schools, academies, multi academy trusts, alternative provision and further education are embedded within partnership structures, with clear escalation routes into the SEND Inclusion and Alternative Provision Board. Wider engagement is secured through the Cornwall Education Partnership and established leadership networks, including Cace, Caph, Cash and locality meetings, ensuring parity of voice, constructive challenge and shared problem solving across all phases (see Appendix 17, 18 & 19 for further detail engaging with system partners in alignment with core requirements).

A universal annual inclusion peer review cycle will form the core mechanism for engagement and quality assurance. This will align with ordinarily available inclusive practice, the Inclusion Charter and the Compass Sw audit tool, and operate through a triad model with shared data and agreed lines of enquiry. Findings will feed directly into partnership governance to inform commissioning, workforce development and sufficiency planning. Inmss and out of area providers accessed by Cornwall young people will be engaged through commissioning arrangements and preparation for adulthood pathways, with expectations aligned to the same assurance framework (see

The plan strengthens dispute resolution and decision making to ensure issues are addressed early and consistently. This includes expanded early resolution capacity through a SEND Resolutions and Solutions Officer and System Navigators, alongside transparent, legally grounded decision making through a three-stage panel model. Improvements include clearer recording of rationale, routine Way Forward meetings and strengthened mediation and legal triage. Escalation routes are proportionate, with senior oversight for complex or high cost decisions, external observation for transparency and Sendco involvement in Stage 1 panels from June 2026. The impact of the early resolution strategies, instigated under Dbv, are already evidenced through Cornwall’s tribunal rate which is 2.3% compared to 3.2% nationally (see Appendix 20 for further detail).

Recognising evolving roles within the education system, Cornwall will work closely with trusts and education leaders through the Cornwall Education Partnership to embed inclusive practice and collective accountability. Additional support will be sought where it adds value, including DfE and NHS England contributions to strengthen shared understanding, pace and confidence in delivery.

10. Risks and Mitigations

What are the key risks that could affect the successful implementation of your Local SEND Reform Plan, and what mitigation strategies

are in place to manage these risks? Please include a maximum of 5 risks with impact and likelihood Rag for each risk. See Annex C for

suggested risk matrix.

11. Dependencies

Please detail the key areas of the local area partnership’s proposed SEND future state and roadmap that may be impacted by wider

reforms nationally and locally and outline how you will manage these. We expect these will include but not be limited to: (500 words)

• NHS reforms

• Local Government Re-organisation

• Reforms to Children’s Social Care

• Best Start in Life, including Family Hubs

• Curriculum and Assessment Review

Delivery of the Cornwall SEND Plan is dependent on a range of interrelated national and local factors, reflecting the complex ity of the SEND system and the need for coordinated action across education, health, social care and wider partners. While Cornwall is committed to delivering reform at pace, successful implementation relies on greater clarity, certainty and partnership from central government, alongside alignment of key system levers.

National and System Dependencies

National policy direction is set through the 2026 SEND White Paper; however, key elements remain unresolved. These include outcomes from the SEND consultation on Individual Support Plans, EHCP eligibility and the proposed tiered support model. In the absence of confirmed arrangements, areas must plan based on indicative proposals. There is also no confirmed multi-year funding settlement, limiting the ability to plan sustainably and invest in long-term transformation.

Uncertainty continues around the treatment of Dedicated Schools Grant deficits. While government has indicated an intention t o assume future deficits from 2028/29, arrangements for historic deficits remain unclear. Similarly, reform of the High Needs Funding Formula is anticipated but lacks confirmed methodology and timelines. The longer-term funding model to support mainstream inclusion is underdeveloped, and clarity is also needed in relation to health funding pressures, including home-to-school transport.

Alignment between inspection and policy is critical. If Area SEND inspections and Ofsted judgements are not aligned with SEND reforms, schools may prioritise attainment over inclusion, escalate need into EHCPs rather than intervening early, and behave in ways driven by inspection risk rather than outcomes for children.

Education System

Cornwall will work closely with schools, trusts and system leaders to align expectations, promote inclusion and shared accountability, and strengthen relationships with Ofsted and regional Department for Education teams. This will include developing a data-led local inclusion framework, aligning performance management with inclusion outcomes, and investing in workforce development and outreach.

However, current accountability measures, such as attainment, progress and attendance continue to shape behaviour. Without reform, schools may be disincentivised from retaining children with complex needs, potentially driving exclusions, off -rolling and increased demand for specialist provision and EHCPs.

Funding mechanisms must also support mainstream inclusion, with clear resource flows. Without this, early intervention may be underfunded, provision may vary, and confidence in reform may diminish. Strong alignment between national policy, trusts and the local system is essential to avoid fragmentation and inconsistent implementation.

Curriculum and Assessment Review

Proposed reforms include introducing an oracy framework alongside reading and writing, reviewing programmes of study (includi ng GCSEs), and developing evidence-based guidance on curriculum adaptation for children and young people with SEND. The review is underpinned by principles of inclusivity and representation. Proposed changes such as abolishing the EBacc, reframing Progress 8, reducing Key Stage 4 testing time and broadening assessment approaches aim to create a more inclusive and accessible system.

NHS Reforms

The NHS 10-year plan is closely aligned with the SEND Reform plan, particularly in its focus on early intervention, integrated care and personalised support. The plan emphasises strengthening community services and multi-agency collaboration to reduce reliance on hospital-based care and prevent illness, including mental health challenges. Addressing wider determinants of health and tackling inequalities, particularly through improved school inclusion, is central. Joint commissioning, data sharing and co-production with families are critical enablers to ensure coordinated and timely support across services.

Children’s Social Care and Early Help

Cornwall’s approach aligns with the Families First Partnership model, with strong progress in early support, family help and multi-agency working. A streamlined “front door” improves access to services, and the July 2024 Ofsted inspection rated services as ‘Good’ with ‘Outstanding’ features. The Best Start in Life programme, including Family Hubs and universal health services, supports early identification of needs and timely interventio n, reducing escalation and improving transitions.

Local Delivery and Risk Management

Cornwall will maintain strong leadership through robust governance, financial discipline and system-wide collaboration. Delivery will be supported by clear performance management, strengthened commissioning, workforce investment, and continued co -production with partners and families.

However, national uncertainty presents a material risk to delivery. Greater clarity is needed on funding levels, distribution mechanisms, deficit resolution, inspection alignment and the financial model for mainstream inclusion. Sustainable reform will req uire a strong partnership between local and central government, underpinned by a clear multi-year funding settlement and aligned accountability frameworks.

Cornwall will continue to manage delivery proactively, but successful implementation at scale will depend on timely national decisions and strengthened collaboration with government to ensure reforms are both deliverable and sustainable.

Section 3 – Monitoring and Evaluation

12. How will the local area partnership know delivery is on track? (500 words)

Please set out how you will monitor and track progress referencing:

▪ Monitoring tools and processes - the specific tools, systems, and data you will use to track delivery milestones and measure the

impact on outcomes.

Some Local Area Partnerships hold data in a central SEND operational dashboard. This is used by teams on a weekly basis to identify trends in demand or inform conversations with local school or setting leaders.

In some Local Area Partnerships, a view of the Key Performance Indicators (KPIs) is reviewed monthly by a SEND Board to take decisions on prioritisation, resourcing and delivery of services informed by regular data.

Please set out how you will use data to track demand (e.g., EHCP applications for assessment), Service delivery (e.g., Speech and

Language Specialists deployment; places created), Service quality (e.g., parental satisfaction) and outputs (e.g., pupil atte ndance;

pupil exclusions)

▪ Feedback and adaptation mechanisms - what feedback loops and stakeholder input you will use to review progress and adjust

your approach.

Cornwall will draw on learning from Hle and Elsec approaches to strengthen its monitoring framework. This includes tracking early indicators such as Good Levels of Development (Gld), speech, language and communication development, parental engagement and t imeliness of identification. These measures will act as leading indicators of system effectiveness, linking early intervention to downstream outcomes including attendance, ex clusions, and demand for statutory assessment.

Cornwall will maintain a strong, integrated approach to monitoring delivery of the SEND Reform Plan, ensuring the system can clearly evidence whether it remains on track and is delivering intended outcomes and value.

Progress will be tracked through a structured programme management framework, with clear governance via the SEND , Inclusion and Alternative Provision Board, aligned to wider Council programmes and Icb accountability through the Committee in Common. The SEND, Inclusion and Alternative Provision Board will provide strategic oversight, regularly reviewing delivery against agreed milestones, risks and performance indicators, and ensuring timely escalation where required.

At a delivery level, each workstream will operate with defined plans, KPIs, outputs and milestones, supported by consistent programme management disciplines. This will include regular reporting on progress, risks and issues, supported by standardised dashboards to provi de transparency and enable early intervention where delivery deviates from plan as well as understanding impact.

A central component of assurance will be a robust benefits realisation framework. Benefits will be defined and tracked at bot h workstream and programme level and system level, enabling the system to assess whether intended outcomes, such as reduced demand for specialist provision, improved inclusion, and better value for money are being achieved. This will ensure a clear line of sight from activity to impact, and support evidence-based decision-making.

Financial and demand assumptions underpinning the programme will be actively monitored and refreshed at each Board. This incl udes tracking changes in demand (e.g. EHCP volumes, placement patterns), inflationary pressures and market costs, and the delivery of key system shifts such as increased mainstream inclusion and reduced reliance on high-cost provision. Variance against assumptions will be routinely reviewed, with mitigations developed where required to maintain financial sustainability.

Risk and issue management will be embedded throughout the programme, with a dynamic risk register maintained at both programm e and workstream level. This will capture strategic and operational risks, including those linked to national dependencies, and ens ure that mitigating actions are clearly identified, owned and monitored.

Stakeholder feedback will form a critical part of performance monitoring. This includes systematic engagement with children, young people and families, schools, providers and partners, alongside formal co-design activity. Feedback will be used to test whether changes are being experienced as intended at a delivery level and to inform continuous improvement.

Performance will also be tracked through a suite of shared metrics across education, health and care, supported by data dashb oards. This will enable the system to monitor both delivery (outputs and milestones) and impact (outcomes and experience), ensuring a balanced view of progress.

By combining governance, programme management, financial tracking, benefits realisation, risk management and stakeholder insi ght Cornwall will maintain a clear and consistent understanding of whether the SEND Plan is delivering as intended, both at programme level and in frontline delivery to help us understand fully our impact.

13. Reporting to DfE

Using the attached data template, the local area partnership is required to provide quarterly data returns to DfE against selected key metrics. DfE will, in turn, provide quarterly data reports with visualised analysis and benchmarking that will support your l ocal delivery, monitoring and evaluation. This will include data the department holds on Attendance, Exclusions, and Unauthorised absence.

Please use the attached data template to upload your initial data return to DfE.

See document: Local SEND Reform Plan Data Template Submission 19 June 2026 – Cornwall (Appendix 2)

Section 4 – Governance

14. How will the local area partnership ensure delivery of plans remain on track?

Please outline the governance structures in place to oversee delivery. Clearly set out who is responsible for overseeing reform

delivery, what each governance group or individual is accountable for, and how these arrangements ensure progress is monitore d

and decisions are made transparently. Please identify where the named Sro for the Local SEND Reform Plan sits within the

governance structure and ensure your response incorporates the core minimum requirements.

The SEND Reform Plan is jointly owned by Cornwall Council and the NHS Cornwall and Isles of Scilly Integrated Care Board (Icb ). Both organisations retain their respective statutory responsibilities and are accountable for delivery within their constitutional and financial frameworks.

If you have a diagram to show the relationship between these governance mechanisms, please upload this here.

Section 5 – Central Government Support

15. How can we help you? (250 words)

Please outline any practical support you need from central government to implement your plan effectively.

This may include:

• Access to specialist expertise or advisory support
• Help with workforce development or recruitment challenges
• Tools or templates to support data collection, reporting, or evaluation
• Facilitation of peer learning or regional collaboration
• Support with system-level coordination across education, health, and care
• Guidance on navigating regulatory or policy barriers

Delivery of SEND reform is dependent on a number of outstanding issues that need resolving from Central Government ;

• Finalisation of the SEND reform consultation, future Spending Review settlements, resolution of Dsg deficits, and reform of the High Needs Funding Formula. These uncertainties create ongoing risks in relation to affordability, system design, and the pace of transformation.
• Cornwall’s model has been developed through co-production and local evidence. However, the most recent E@H guidance is a prescriptive, clinical model, limiting how local areas can design delivery methodologies. It does not explicitly include key workforce roles such as Educational Psychologist (Ep) assistants or wider skill-mix approaches, and it restricts models that integrate peer-to-peer support and lived experience. A narrow professional model limits scalability and delays access to support. Our request is to allow flexible, locally designed E@H models, including assistant roles and blended workforce approaches.
• While the 2026 SEND White Paper sets a clear direction, key elements of the funding framework remain unresolved. The proposed move to Individual Support Plans, changes to EHCP eligibility, and a tiered support model are still subject to consultation, meaning local areas are planning against proposals rather than confirmed funding mechanisms.
• To date there is no confirmed multi-year funding settlement beyond current programmes, limiting the ability to plan sustainably or invest with confidence.
• Significant uncertainty also remains around Dsg deficits. Although government has indicated future deficits will be centrally managed from 2028/29, there is no clarity on the treatment of existing deficits or future accountability arrangements beyond year 1.
• Reform of the High Needs Funding Formula may materially change funding distribution, but the impact and timeline are not yet known.
• New funding streams, including transformation and inclusion funding, are increasingly conditional on delivery of national pri orities, while the long-term funding model to support mainstream inclusion is not yet defined and has limited evidence base to supp ort it that is tested at scale.
• Expectations for joint health funding also remain unclear as does the funding around Home to School Transport.

Taken together, these factors require central government clarity to support local with strong financial oversight and careful risk management to ensure sustainable implementation of SEND reform. This needs to be in full partnership with government to address the questions above.

As well as clarity on the above Cornwall would welcome support from the government in the following areas to ensure we can deliver the SEND reform requirements and build a more inclusive system;

• Driving culture change: central government has an important role in driving the culture change needed across the system , supporting local areas to bring partners, schools and MATs on the journey and reinforcing the inclusion agenda at a national level

Annex B - Supporting Documents

Annex C – Risk Matrix