Leicester Local SEND Reform Plan 2026 to 2029

Leicester Local SEND Reform Plan

2026 to 2029

Local SEND Reform Plan

Name of Local Authority: Leicester City Council Name of Integrated Care Board: Leicester, Leicestershire and Rutland ICB Local SEND Reform Plan SRO: Sophie Maltby (Director of SEND and Education, Leicester City Council)

Signatories and sign-off

Role Name Date

Local Authority Chief Executive (CEO) Alison Greenhill 18 June 2026

The Integrated Care Board (ICB) Chief Executive Toby Sanders 15 June 2026

Local Authority Strategic Director, Social Care and Education Laurence Mackie-Jones 11 June 2026

Chief Nursing Officer LNR Cluster ICB Maria Laffan 15 June 2026

ICB Executive for Place Prof Nil Sanganee 16 June 2026

Local Authority Chief Financial Officer (CFO/Section 151 Officer) Amy Oliver 18 June 2026

Internal Leicester City Council governance

Board Presented to Date presented

Children’s Social Care and Education Lead Member Briefing (LMB)

Councillor Elaine Pantling (Assistant City Mayor - Children and Young People) Thursday 11 June 2026

City Mayor Briefing (CMB) Sir Peter Soulsby (City Mayor) and executive members Thursday 18 June 2026

Content

• Executive summary 4
• Section 1 – Vision and goals 5
• Section 2 – Strategy 6

2.1

• What is the Local Area Partnership’s Strategy for delivering the blueprint - Theory of Change 14

2.2

• What is the local area partnership roadmap for the next 3 years? 14

2.3

• What will the local area partnership deliver in the first year? 22

2.4

• How will the local area partnership deliver the first-year plan? 25

2.5

• Other funding 26

2.6

• System partner and stakeholder engagement, and co-production. 27

2.7

• Risks and mitigations 29
• Section 3 – Monitoring and Evaluation 32

3.1

• How will the local area partnership know delivery is on track? 32
• Section 4 – Governance 33

4.1

• How will the local area partnership ensure delivery of plans remain on track? 33
• Supporting documents 36
• Annex A - Experts at hand offer - Needs based design rationale 36
• Annex B - Co-production and engagement evidence summary 40

Executive summary

Leicester City's SEND system has strong foundations: valued specialist services, active Parent Carer and CYP Forums, trusted relationships with schools, and over 300 additional specialist base places delivered in recent years. As a participant in the DfE Change Programme, Leicester has built organisational capacity for reform, revised EHC needs assessment processes, and trialled new provision models including ELSEC. EHC needs assessments have reduced from 754 in 2023 to 401 in 2025 without a corresponding rise in tribunal activity, demonstrating improved decision-making and pathway management. The May 2025 DfE High Needs Management Plan forecast a mitigated in-year deficit; the actual outturn came in below that forecast, indicating that Change Programme activities are having measurable financial impact. However, these strengths are not yet experienced consistently. The graduated response is not a reliable alternative to statutory assessment in all settings, families report variation in early identification and inclusive practice, and demand for specialist placements outstrips local capacity. Approximately 500 children are waiting for a special school place, INMSS placements have grown by 30% to 224, with a corresponding rise in cost, FE placements have increased by 58% in three years, and ISP placements have increased by 82%. Neurodevelopmental (ND) diagnostic waits average 3–4 years, and SaLT intervention can take up to 2 years post-assessment. The challenge is clear: to move from pockets of strong practice to a system that is coherent, consistent and sustainable.

Building a 0–25 system where children and young people receive support to achieve and thrive. Our plan establishes locality-based Experts at Hand clusters providing mainstream settings with direct access to specialist advice, educational psychology and speech and language and occupational therapy (OT) expertise. A co-produced universal offer and extension of our BERA framework will set consistent expectations across early years, schools and further education. SEND Support Services (SENDSS) will be transformed from reactive casework to early intervention at scale. Targeted programmes will address secondary SEMH, communication and interaction needs, and specialist support will extend into FE for the first time.

Improving capacity and capability of the workforce. A multi-agency workforce development plan will strengthen inclusive practice across all phases, with enhanced SENDCo support, neurodivergent inclusion pathways building on the PINS model, and expanded speech and language therapy and OT capacity to strengthen early intervention and school readiness. Special school capability will be strengthened through targeted strategic development and system leadership. An expanded Early Education Development Team will improve inclusive provision within PVI settings, aligned to the Best Start in Life Plan.

Improving confidence of children, families and stakeholders. Extensive co-production has directly shaped this plan. Families identified waiting lists, inconsistent practice and difficult navigation as priorities. Our response – a "no wrong door" approach, clearer pathways, accessible communication across Leicester's diverse communities and visible early support – is designed to build confidence that needs can be met without escalation.

Stabilising finances and improving value for money. The sufficiency programme, enhanced special school capability and earlier intervention will move the High Needs Block toward sustainability, building on the trajectory established through the Change Programme.

Section 1 – Vision and goals

Our vision is a coherent, inclusive and sustainable SEND system where every child and young person in Leicester receives the right support, at the right time, and families experience a system that is accessible, responsive and trustworthy. For most children and young people, that will mean a school in their neighbourhood with the capacity and confidence to meet their needs. We want CYP with SEND to achieve and thrive in their local settings, supported by a confident workforce, strong partnerships across education, health and care, and a graduated response that meets needs early without unnecessary escalation.

This vision is shared across the Leicester Area Partnership and has been shaped through co-production with families, children and young people, schools, health partners and specialist services, aligned to the national vision set out in the Schools White Paper.

We will measure progress against five goals:

Outcomes for children and young people

Increase the proportion of children and young people whose needs are met in local mainstream and maintained specialist provision, reducing reliance on independent placements.

• Improve attendance of pupils with SEND across mainstream and special schools.

Confidence of parents, carers and young people

• Improve family and young person confidence that needs can be identified and met without escalation to statutory assessment.
• Reduce mediations and tribunal appeals, reflecting earlier resolution and greater trust.

Management of finances to secure value for money

Stabilise the High Needs Block in-year deficit through expanded local capacity and earlier intervention that prevents escalation of need and cost.

Section 2 – Strategy

Where the local area partnership expects to be in the next 3 years The baseline challenges – variable inclusive practice, rising demand for specialist placements and a significant High Needs Block deficit – are set out in the Executive Summary. This section describes how the reform strategy will address them.

Our model integrates the Universal Offer and Experts at Hand (EAH) as interdependent components of an integrated locality-based system, not separate workstreams. The Universal Offer establishes a consistent baseline of inclusive practice across all settings; EAH provides specialist expertise that strengthens that baseline through the same locality clusters and governance structures. This ensures specialist input builds mainstream capacity over time, and that families experience one coherent pathway rather than navigating between different offers. The Integrated SEND Reform Model illustrates how these elements work together across the graduated continuum.

Over three years, this model will deliver a system where more CYP have their needs identified and met earlier in mainstream provision; where capital investment creates over 300 additional inclusion base places and targeted special school expansion addresses the most complex needs locally; where SENDSS shifts from reactive casework to early intervention at scale; and where families experience a coherent, accessible system. Improved pathway management has already reduced EHC needs assessment volumes from 754 in 2023 to 401 in 2025. While volumes may rise in the short to medium term as national reforms take effect, the EAH model and earlier identification are designed to exert sustained downward pressure on statutory escalation. A detailed narrative is set out in the Leicester SEND Blueprint, supported by a needs- based data rationale for EAH.

Local blueprint for the next 3 years

Where we are Where we will be in the next 3 years

The local authority has maintained a comprehensive SEND support offer, including educational psychology, specialist teaching and advisory services, valued by schools. The BERA framework and Inclusive Practice Review programme provide a strong quality assurance foundation, though inclusive practice is not yet consistently embedded across all phases and settings.

A co-produced universal offer, signed off by the LA, Icb, Mat representatives and PCF, will establish consistent expectations across all phases and settings, underpinned by needs-based data and aligned with emerging national inclusion expectations and future National Inclusion Standards where applicable. The BERA framework will be extended to provide a consistent quality assurance approach.

Building Block 1: Strengthening Inclusion Across Education Settings

The graduated response is not yet a reliable alternative to statutory assessment. Families report variation in early

identification, reasonable adjustments and understanding of neurodivergent needs, reducing confidence that support can be accessed without escalation. CYP highlighted inconsistent experiences of inclusion and support and described transition support as inconsistent and not always beginning early enough. Secondary non- statutory top-up places have increased by 60% in three years to March 2026, reflecting success in supporting more children without statutory assessment but also growing demand. Mainstream EHCP placements have increased by 20% in three years, although some growth reflects pupils maintained in mainstream while waiting for special school places. Parental concerns are particularly evident at key transition points, including entry to school, primary to secondary and post-16 progression.

The SEND Support Service will shift from reactive casework towards early intervention, cohort-based support and whole-school capacity building, becoming the primary mechanism for delivering early intervention at scale. The locality model will build capacity in neurodivergent inclusion through professional development, coaching, peer support and approaches building on the PINS model and neurodiversity profiling, supporting earlier identification of need within settings and reducing pressure on clinical diagnostic pathways.

Workforce development will strengthen confidence and capability across all phases, including professional development focused on neurodivergence, communication needs and SEMH. Targeted SENDCo leadership development will strengthen inclusive practice and locality collaboration.

EHC needs assessments increased from 375 in 2019 to a peak of 754 in 2023 before falling to 401 in 2025. This reduction occurred despite requests remaining broadly stable, suggesting improved decision-making and pathway management. It has not resulted in increased tribunal activity, which remains below the regional average. EHCPs issued showed a similar trajectory: 434 in 2020 to 739 in 2023, reducing to 400 in 2025. Since reform announcements, requests have increased significantly, reflecting a wider national trend.

Speech, language and occupational therapy capacity will be expanded through multi-disciplinary EAH, building on the ELSEC model. Earlier identification, through the 2-year check and an expanded Early Education Development Team, will strengthen early years support and reduce reliance on statutory processes, aligned with the Best Start in Life Plan and Family First Family Hubs. Transition planning from early years to primary will also be strengthened.

Early years settings are experiencing increasing reliance on SEND support and statutory processes, with variable universal inclusive provision across PVI settings. Many lack specialist capacity, and transition planning into

The SEND Support Service will extend into FE for primary school is inconsistent. the first time, strengthening ordinarily available provision and supporting preparation for adulthood and transition pathways.

Building Block 2: Access to Specialist Support and Local Placements

Access to specialist advice and support is variable across phases and settings, with support often accessed through referral pathways or statutory processes rather than earlier intervention. Existing specialist services, including educational psychology and advisory support, are highly valued but capacity is largely focused on casework and responding to escalating need. This limits opportunities for earlier multi-disciplinary input and whole-setting capacity building.

A locality-based EAH model will strengthen access to specialist advice and targeted support through multi-disciplinary locality clusters, giving settings direct access to expertise without referral delays. Teams will bring together educational psychology, speech and language and occupational therapy expertise alongside specialist lead teachers providing coaching and targeted inclusion support. EAH will also offer school readiness, workforce development and targeted consultation within mainstream and early years settings, with earlier access to SaLT reducing demand on clinical referral pathways. The EAH model will underpin a more integrated system of universal, targeted and targeted-plus support, strengthening the graduated response across education, health and care. Delivery will be jointly planned with the ICB through formal partnership arrangements with provider organisations and overseen through the SEND and AP Partnership Board with a named SRO, agreed outcome measures and joint reporting arrangements.

Over the past 3–4 years, Leicester has delivered over 300 additional specialist base places, including DSPs, SEND Units and Internal Alternative Provision. Despite this, demand outstrips capacity. Approximately 500 children are waiting for a special school placement. Where local provision is unavailable, the system relies on INMSS at significantly higher cost and distance from home.

Special school capacity has grown by just 2.2% and is effectively full. INMSS placements have grown from 166 in 2023/24 to 224 in 2025/26, an increase of 30%. INMSS and independent special school spend has risen substantially between 2023/24 and 2025/26. This trajectory is directly linked to the shortage of maintained places and the capability of the maintained sector to meet the most complex needs locally.

Locality planning and needs-based allocation will ensure support is distributed equitably across settings and communities, including early years and out-of-area post-16 providers. EAH will

Demand is concentrated at transition into Reception and early primary, and mid-secondary where SEMH and communication and interaction needs drive demand for statutory assessment and specialist placements. FE placements have increased by 58% in three years, with ISP placements increasing by 82%. Transport costs have risen as more children travel further from home.

strengthen existing pathways and specialist support rather than replace them.

Maintained special schools will be supported through targeted strategic development to strengthen their role within the graduated response and as system leaders. This includes building their capacity to provide outreach, specialist advice and workforce development to the wider system, positioning special schools as active partners in building inclusion across Leicester.

Alternative provision will be collaboratively recommissioned to align with the 3-tier model. The APST outreach offer will support schools managing SEMH, EBSA and communication and interaction needs as part of the wider graduated response, preventing escalation and supporting re- integration.

Capital investment will deliver over 300 additional inclusion base and DSP places and targeted special school expansion, focusing on language, communication and interaction, SEMH and highly complex needs. Provision will be distributed across planning areas to minimise travel distances, with all proposals subject to transport impact assessment. Collaboration with MATs is systematic, with five Trusts represented in the current network and further sites identified through expressions of interest.

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

Leicester has a well-established SEND partnership with strong relationships across education, health and care. Co-production is a genuine strength, supported by an active Parent Carer Forum and meaningful CYP engagement. Relationships with schools and MATs are strong, providing a foundation of trust for reform.

Locality-based partnership arrangements and shared decision-making will support more integrated working across education, health and care, reducing duplication and improving the experience of families.

Delivery will be jointly governed through formal partnership arrangements, shared outcome measures and locality-based implementation oversight.

However, day-to-day experience is inconsistent. Parents describe a system that is difficult to navigate, where families repeat their story across services. Families from diverse communities report additional barriers in accessing information and early help. Mediation and dispute resolution arrangements are in place but will need to be reviewed against the strengthened expectations set out in the reform programme.

Families will access support more easily through a clearer “no wrong door” approach, with support available at the point of need. Communication and engagement will be strengthened across Leicester’s diverse communities. Co-production will be reflected in families’ lived experience, with clear evidence of how CYP views influence service development. The partnership will adopt the NHSE minimum co-production benchmark and self- assess in Year 1. SENDIASS provision will be reviewed against minimum service standards, ensuring families are confident in the independence of the service within mediation processes. Mediation and dispute resolution arrangements will incorporate parent and CYP perspectives, monitored through timeliness, resolution rates and effectiveness metrics.

Building Block 4: Encouraging Inclusive

Where early support is variable, families and professionals look to statutory assessment for clarity and

Families will experience earlier identification, visible support before school and smoother

Culture and Behaviours

access. CYP described varied experiences of inclusion and raised concerns that agreed support and adjustments are not always implemented consistently, highlighting the importance of staff understanding, inclusive culture and consistency of support, particularly in relation to neurodivergent needs. The challenge is to move from a system with strengths that are inconsistently experienced to one that is coherent and consistently delivered, requiring a wider cultural shift alongside earlier, more effective intervention.

transitions, increasing confidence in support available without an EHCP. Workforce development will strengthen inclusive practice across staff groups and phases, improving confidence in responding to neurodivergence, communication needs and SEMH, directly addressing the cultural shift that CYP identified as essential. The result will be a more consistent and reliable mainstream offer, reducing variation between schools and increasing family confidence.

Approximately 500 CYP are currently waiting for a special school place, with some remaining in placements that cannot sustainably meet their needs. As reform enables more of these children to access appropriate specialist provision, this will improve outcomes but will also increase placement costs in the short to medium term, a pressure the partnership will need to manage alongside the broader shift toward earlier intervention and local sufficiency.

The combination of reduced demand through early intervention, strengthened mainstream provision, a reoriented support service, improved FE pathways, enhanced special school capability, and expanded local capacity will deliver a system where more CYP have their needs met within their local communities.

Enablers Capital: Significant investment has delivered over 300 additional specialist base places. The High Needs Block continues to carry a significant in-year deficit in 2025/26. The mitigated position forecast within the High Needs Management Plan (May 2025) projected a deficit substantially lower than the unmitigated position, reflecting the positive impact of measures already implemented.

Capital: Capital investment will deliver expansion of specialist bases and targeted special school places. Combined with enhanced special school capability, this will reduce reliance on high-cost independent placements while maintaining children’s connection to their communities. Sufficiency decisions incorporate transport impact assessment, and provision is distributed across all five planning areas.

Workforce: The SEND Support Service is heavily focused on casework demand, reducing capacity for early intervention. Special school workforce needs to continue adapting to meet the most complex needs. SENDCo capacity and professional development are inconsistent.

Workforce: SENDSS will be transformed to deliver early intervention at scale. Multi-disciplinary teams in locality-based inclusion clusters will provide direct specialist access. Special schools and SENDCos will receive enhanced support and professional development. Speech and language capacity will be expanded building on the ELSEC model. OT capacity will be strengthened through the wider multi-disciplinary inclusion model. A SaLT Advanced Practitioner, recruited across LLR, will provide strategic clinical leadership for speech and language therapy elements of the EAH and lead a programme to grow the SaLT workforce through university partnerships, student placements in education settings and promotion of SaLT degree apprenticeships.

Data/Digital Systems: System-level data tracks trends in EHCP volumes, placement types and spend, but is not yet used consistently to drive early identification, target intervention or monitor the impact of the graduated response.

Data/Digital Systems: Data and digital systems will underpin the “no wrong door” approach, enabling families to tell their story once. Improved data use will support earlier identification, targeting of intervention and monitoring of the graduated response. A particular priority will be developing measures for universal provision effectiveness, understanding how many CYP are being supported successfully within settings without escalation to statutory processes, which current data systems do not capture. Cross-partner operational and workforce mapping will support clearer pathways, improved information sharing and reduced duplication across services.

Success measures Baseline

Target Metrics

Total number of CYP receiving Top ups with no EHCP. – 1447

Number of CYP with EHCPs in mainstream – 1351

Number of children and young people in specialist bases – 430

Exclusions of CYP with SEN Support – 41

Rate of persistent absence for CYP with EHCPs – 24.88%

Rate of persistent absence for CYP with SEN Support – 16.6%

Total number of CYP receiving Top ups with no EHCP. – 1995

Number of CYP with EHCPs in mainstream – 1615

Number of children and young people in specialist bases – 627

Exclusions of CYP with SEN Support – 30

Rate of persistent absence for CYP with EHCPs – 16.3%

Rate of persistent absence for CYP with SEN Support – 10.9%

2.1 What is the Local Area Partnership’s Strategy for delivering the blueprint - Theory of Change

Leicester’s participation in the DfE Change Programme has built the organisational infrastructure to deliver reform. Through the programme, the Quality Inclusion Team (QIT) developed internal change management and project delivery capacity, the authority trialled ELSEC as an early language and communication intervention model now being extended across settings, and revised processes for EHC needs assessments contributed to the number of assessments almost halving without a corresponding increase in tribunal activity. The High Needs Management Plan demonstrates that activities undertaken through the Change Programme are having financial impact. This existing capacity, in programme management, process redesign and multi-agency coordination, will be mobilised and expanded through transformation funding rather than built from scratch.

Our theory of change is that the system pressures described in the Executive Summary are driven by three reinforcing root causes: inconsistent early identification, particularly in early years; variable inclusive practice across mainstream settings; and insufficient local specialist provision.

Our reform strategy integrates three interdependent responses: A consistent Universal Offer and strengthened early identification, including an expanded Early Education Development Team and ELSEC provision.

An Experts at Hand model delivered through locality clusters, giving settings direct access to specialist expertise and building mainstream capacity.

Expanded specialist provision through inclusion bases and enhanced special school capability.

This system is illustrated in the Integrated SEND Reform Model, designed to shift Leicester from a reactive, escalation-driven system to one that is proactive, inclusive and financially sustainable. Progress is tracked through the Co-produced Local Partnership Maturity Assessment.

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

Local roadmap for the next 3 years 2026/27 2027/28 2028/29

Building Block 1: Strengthening Inclusion Across Education Settings

Universal offer: Develop and implement a shared universal inclusion offer across early years, schools and FE, building on

Embed the universal offer and inclusive practice standards across all phases through the refreshed QA

Maintain consistent implementation of the graduated response through sustained workforce

existing evidence-based approaches and ensuring consistency of expectations and support.

framework. Complete SENDSS transformation and implement the balanced delivery model across outreach, coaching and direct support. Embed the FE inclusion offer with dedicated specialist capacity and agreed arrangements for out-of-area providers. Preparation for adulthood pathways implemented across post-16 provision, with post-16 transitions planned at least 12 months in advance. Extend SENDCo support across all settings.

development, peer networks and continuing professional development. Strengthen workforce confidence and capability in neurodivergence, communication needs and SEMH. Integrate FE pathways and preparation for adulthood arrangements. Refresh and review the universal offer to ensure alignment with national policy and inclusion expectations. Strengthen transition support across all phases.

SENDSS transformation: Refocus SENDSS towards preventative and early intervention approaches, increasing capacity for outreach, coaching and group- based support.

Quality assurance: Align existing quality assurance approaches into a single framework that supports consistent inclusive practice across education phases.

Workforce: Develop a multi- agency workforce strategy to strengthen confidence and capability in meeting a broad range of SEND needs, including targeted support for SENDCos.

Embed ND profiling into routine practice, with measurable impact on earlier identification and reduced demand on clinical diagnostic services. Expand speech and language capacity and strengthen the 2-year check as an early identification pathway. Roll out targeted SEMH and C&I support across secondary settings. Integrate APST

Early years, post-16 and targeted pathways: Strengthen inclusion support across early years and FE, alongside targeted approaches for SEMH, communication and interaction

regulation, functional skills, workforce development and targeted consultation, integrated within EAH locality hubs.

secondary C&I and SEMH, and early years specialist provision. Expand special school capacity and strengthen pathways supporting children and young people with more complex needs to access provision locally. Implement step-up/step-down pathways and reduce reliance on independent and non- maintained provision. Complete a detailed sufficiency review to inform Year 3 priorities. Ensure all proposals include travel impact assessment.

inclusion support through special schools, APST and wider targeted provision. Establish an inclusion base network across all planning areas and reduce waiting times for specialist placements.

Extend SENDSS (EAH) into post- 16 and FE: Strengthen ordinarily available support through specialist advice, workforce development and earlier transition planning aligned to preparation for adulthood pathways.

EBSA support offer for schools developed to provide support for mental health and attendance.

SEMH targeted support model for secondary schools developed.

APST outreach offer developed to provide coordinated support for schools supporting CYP with complex needs and risk of placement breakdown.

ND inclusion approach expanded building on the PINS model, including piloting the 'Knowing Me' ND profiling tool in selected settings, supporting earlier identification and reducing

pressure on clinical diagnostic pathways.

Special schools: Strengthen strategic planning and workforce capacity within special schools to improve responsiveness to children and young people with the most complex needs.

Capital sufficiency: Expand local specialist provision through additional DSP and SEND Unit places, ensuring provision growth aligns with identified need and supports access to education closer to home.

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

Governance: Establish clear partnership governance and accountability arrangements across education, health and parent/carer partners.

Implement locality clusters across the city with integrated multi-agency decision-making arrangements. Establish joint dashboards and repeat the maturity assessment process. Extend co- production into operational delivery and strengthen school partnership arrangements with the LA and ICB. Implement SENDIASS improvements

Implement the “no wrong door” model across the partnership. Strengthen accessible communication and embed co-production within strategic and operational delivery. Embed collaborative school networks linked to EAH and repeat the maturity assessment process to support continuous improvement. Strengthen

Locality partnerships: Develop locality-based approaches that improve coordination and integration of support.

Co-production: Strengthen co- production with children, young people and families to ensure

Westgate special school TMB (30 places) and Oaklands Secondary pilot (10 places), 2025–28.

Phoenix Centre 32 places expansion to Netherhall

DSP Post 16 provision Part 2

Oaklands Secondary Expansion (40 places)

Deliver additional places through the capital programme. Inclusion base network established at scale. Capital investment aligned with long-term sufficiency requirements.

Feasibility studies for special school expansion. Transport impact assessment on all proposals. MAT collaboration on inclusion base sites.

DSP Post 16 provision (Part 1)

Workforce: Recruit EAH specialist workforce. Recruit SaLT Advanced Practitioner across LLR to provide clinical leadership for SaLT and longer-term SaLT workforce pipeline. Begin SENDSS transformation. Special school specialist recruitment. SENDCo support programme. Expand Early Education Development Team. FE specialist recruitment.

Additional special school places operational. Travel impact demonstrated. Capital programme aligned with demographic need.

Workforce: Embed sustainability through CPD, peer networks and workforce development pathways. Strengthen recruitment, retention and flexible deployment across the graduated response.

Workforce: Full EAH workforce in place. SENDSS transformation completed. Speech and language capacity expanded. Special school workforce strengthened. SENDCo programme delivered at scale.

Data/Digital Systems: Integrated systems supporting the “no wrong door” approach. Real- time demand monitoring and embedded analytical capability informing planning and decision-making. Universal provision effectiveness measures

Data/Digital Systems: Map existing systems. Establish shared partnership dashboard. Begin quarterly DfE data returns. Build analytical capability. Establish demand monitoring and early identification tracking. Begin

Data/Digital Systems: Joint dashboards operational. Data used to target interventions, monitor graduated response and track family experience.

2.3 What will the local area partnership deliver in the first year?

The table below sets out the five Year 1 workstreams and the building blocks they contribute to. Detailed quarterly milestones, target trajectories and lead responsibilities are held in the partnership's internal delivery plan and are monitored through the governance arrangements set out later in this plan.

Building Block Strengthening Inclusion Across Education Settings

Workstream 1 - Inclusive practice foundations and workforce capacity

Outcome

A shared framework for inclusive practice is established across early years, schools and post-16, including an agreed universal core offer, aligned standards and a workforce development approach. Year 1 activity will strengthen system capacity, improve consistency of inclusive practice and establish the foundations for a strengthened graduated response and reduced reliance on statutory assessment and specialist provision over time.

Key activities

Co-produced universal core offer and standards across all phases, including key transition points

Reviewed and aligned QA frameworks (BERA, IPRs) to universal offer

SENDSS transformation model designed, shifting from casework to balanced delivery

Co-produced multi-agency workforce development plan

Early Education Development Team expanded

Success measures

• Adoption of universal offer and standards across settings
• Increased proportion of FE providers implementing the agreed FE universal offer
• Improved consistency in QA outcomes across phases and localities
• Increased workforce confidence in meeting SEND including FE providers (survey-based)

Workstream 2 - Experts at hand and Targeted Inclusion Support

Outcome

Children and young people increasingly access earlier advice and targeted support through strengthened multi-agency inclusion arrangements, reducing reliance on formal referral pathways.

Year 1 delivery will establish and begin implementation of locality-based support models, with particular focus on early years, speech and language, secondary SEMH and FE inclusion.

Key activities

• Locality-based inclusion clusters and Teams Around the Setting designed and piloted
• SENDSS (EAH) extended into post-16 and FE
• EBSA support offer and SEMH targeted model for secondary schools
• APST outreach offer developed
• Special school capability to meet the most complex needs strengthened
• ND inclusion approach expanded (PINS model, Knowing Me profiling)
• Targeted SENDCo support programme co-produced
• ELSEC SaLT model extended; OT early intervention offer developed
• SaLT Advanced Practitioner recruited across LLR

Success measures

• Increased proportion of support accessed through EAH locality clusters.
• Improved attendance and reduction in EBSA-related escalation in secondary
• Increased access to specialist advice in FE without formal referral
• Uptake of EAH model within FE providers
• Increased access to multi-agency support at Targeted and Targeted+ level
• Reduced waiting time for SaLT and OT through EAH compared with clinical referral pathway
• Increased proportion of CYP accessing health advice through EAH without formal referral
• Health partners actively participating in EAH locality clusters across pilot localities
• Increased ND identification through setting-based profiling, reducing pressure on clinical pathways

Workstream 3 - Local SEND sufficiency and inclusion provision

Outcome

Local SEND sufficiency is strengthened through phased development of additional specialist provision and improved placement planning. Year 1 activity will establish the delivery pipeline for DSP, SEND Unit and special school expansion, with initial increases in local capacity and reduced reliance on independent provision expected over time.

Key activities

• 70 additional DSP and SEND Unit places delivered (Year 1 target within the Phase 3 programme)
• Additional special school capacity designed and agreed
• Future year resource base needs identified; sufficiency strategy refined
• INMSS stabilisation through expanded local capacity and repatriation programme

Success measures

• 70 DSP and SEND Unit places delivered
• Reduction in waiting lists for specialist provisio
• Increased proportion of CYP with EHCPs educated in mainstream and local provision
• Stabilisation in INMSS placements
• Increased proportion of CYP with complex needs educated within local provision

Building Block: Encouraging Inclusive Culture & Behaviours

Workstream 4 - System Enablers: Data, processes and workforce alignment

Outcome

Shared governance, workforce and operational improvement arrangements are strengthened across education, health and care to support better coordination, clearer pathways and more consistent multi- agency working. Year 1 activity will focus on improving understanding of system pressures, information-sharing challenges and opportunities to strengthen alignment and reduce duplication across services.

Key activities

• Cross-partner workforce and operational mapping across education, health and care
• Multi-agency governance and collaboration arrangements established
• Opportunities to strengthen coordination and reduce duplication identified
• Multi-agency workforce development priorities agreed

Success measures

Cross-partner governance and collaboration arrangements established

Increased shared understanding of pathways, roles and system pressures

Priority areas for improving coordination and reducing duplication identified

Multi-agency workforce development priorities agreed

Formal SLA between LA, LPT and ICB in place with agreed performance measures and quarterly reporting• Formal SLA between LA, LPT and ICB in place with agreed performance

• measures and quarterly reporting
• Health referral pathways mapped with priority areas for simplification identified

Building Block: System leadership, local partnership, collaboration and co-production

Workstream 5 – Integrated Decision-Making & Service Coordination

Outcome

Locality partnership arrangements across education, health and care are strengthened to support more coordinated decision-making, clearer access routes and a “no wrong door” approach to earlier multi-agency support for children, young people and families. Year 1 activity will focus on aligning approaches with developing Family First arrangements and piloting locality-based partnership approaches to inform wider implementation.

Key activities

• Align SEND reform partnership arrangements with developing Family First/locality approaches
• Establish pilot locality partnership arrangements across education, health and care
• Review and refine locality-based decision-making and family navigation approaches

Success measures

• Locality partnership and governance arrangements established within pilot areas
• Increased shared multi-agency working in pilot localities
• Improved understanding of effective locality-based decision-making
• Learning from pilot activity used to inform wider implementation
• Health partners represented in locality governance with named accountability
• Evidence of joint health and education decision-making within pilot localities

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

Project delivery capability

Leicester’s participation in the DfE Change Programme established internal change management and project delivery capacity within the Quality Inclusion Team. This existing capability provides the foundation for reform delivery. Transformation funding will expand this capacity to coordinate delivery across the five workstreams, with a programme lead reporting to the SRO, supported by workstream leads drawn from

across SEND, education, health and specialist services. The programme function will maintain a delivery tracker aligned to Year 1 milestones, coordinate quarterly reporting to the Partnership Board, and manage the risk register.

Data and analytics capability

The partnership recognises that current capacity to track, analyse and report on system performance is not yet sufficient for the scale of reform required, reflected in the maturity assessment where data and understanding of need is rated Emerging. Transformation funding will build analytical capacity to develop the SEND operational dashboard, produce quarterly data returns to the DfE, and support evidence-based decision-making. This includes developing the ability, where possible, to link data across education, health and care to provide a joined-up picture of demand, provision and outcomes. A particular priority is developing measures for universal provision effectiveness, understanding how many children and young people are being supported successfully without escalation, which current data systems do not capture.

Resource prioritisation

The SRO and programme lead will manage competing demands, ensuring the SENDSS transformation is phased to maintain casework capacity during transition and new initiatives are sequenced to avoid overloading frontline teams.

2.5 Other funding

Block transfers: No block transfer from the Schools Block to the High Needs Block has been made for 2026-27.

Capital/sufficiency

Leicester City’s capital investment strategy places inclusion at the core of sufficiency planning. The local authority operates 21 Designated Specialist Provisions and 2 SEND Units across primary, secondary and specialist phases, offering 337 commissioned places. Despite delivering over 300 additional specialist base places in recent years, demand continues to outstrip capacity: 77 primary-age children are waiting for a Communication and Interaction DSP place, with demand concentrated in the North and Central areas, and forecasting shows a deficit of up to 315 places by 2033. The capital programme is the primary mechanism for reducing reliance on INMSS.

The capital sufficiency strategy is being delivered through phased investment to increase specialist capacity. Phase 3, supported by High Needs Capital funding, will deliver 165 new DSP and SEND Unit places between 2026–2028, including a Year 1 target of 70 places in 2026–27. Ten priority schools have been identified, providing the additional commissioned places by the end of 2027. Eight sites use existing accommodation, with only two requiring Temporary Modular Buildings, supporting cost-effective delivery. DSP Phase 4, supported by a further High Needs Capital allocation (2028-2030), provides additional specialist places focused on primary Communication and Interaction (C&I)

provision in the North and Central areas, secondary C&I and SEMH provision, and early years specialist provision. Collaboration with schools and Multi-Academy Trusts is embedded within the programme, with five MATs currently represented in the network, four expressing interest in further expansion, and 15 schools submitting expressions of interest through ongoing strategic engagement.

Where plans propose additional special school places, the rationale is clear. Existing special school capacity has grown by just 2.2% and is effectively full. The needs profile is increasingly complex, including co-occurring autism, SEMH, communication needs and behaviours linked to trauma and neurodivergence, requiring substantially different curricula and highly individualised approaches that cannot be delivered in mainstream settings including DSPs. Where local maintained provision is unavailable, the system relies on INMSS at a cost per place, excluding transport, that is substantially higher than maintained special school provision. The route to reducing INMSS reliance is through building sufficient local maintained capacity so that fewer children are placed independently in the first instance. Special school expansion will target language, communication and interaction, SEMH and highly complex needs, accompanied by a programme to strengthen special school workforce capability. All sufficiency decisions incorporate transport impact assessment. Provision is distributed across all five planning areas to minimise travel distances. The capital programme also includes adaptations to improve mainstream inclusivity, including sensory rooms, quiet areas and accessible facilities, designed in collaboration with specialist practitioners. The partnership will explore innovative uses of capital including investment in assistive technology. The detailed sufficiency and place planning strategy is set out in the Leicester City SEND Sufficiency Plan.

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

Leicester has established engagement mechanisms that provide the infrastructure for sustained partnership working throughout reform delivery. The SEND & AP Partnership Board, co-chaired by senior health and LA leaders, includes representation from the LA, ICB, PCF, schools, colleges, SENDIASS and CYP participation groups. Termly Mat Ceo briefings, Head Teachers' conferences and SENDCo networks maintain active dialogue with education leaders. The Parent Carer Forum meets monthly and is chaired by a parent who also chairs the East Midlands regional forum. Big Mouth Forum and wider CYP participation groups influence strategic priorities through their annual manifesto and delivery plans. The multi-agency co-production model used to develop this plan will be sustained termly to support rollout and evaluation, aligned to Partnership Board reporting.

Schools, MATs and early years

The partnership maintains regular engagement with senior education leaders across all phases, including MATs, through established forums that will support implementation and gather feedback on reform delivery. The universal offer and Experts at Hand models will be formally signed off by LA, Icb, Mat representatives and PCF. As school groups and pooled Inclusion Share funding are introduced, the partnership will work

with MATs and schools to shape how groupings integrate with the EAH offer. The expanded Early Education Development Team will provide ongoing engagement with PVI settings from Year 1, aligned with the Best Start in Life Plan and Family First Family Hubs.

FE and post-16 providers.

SENDSS will extend into FE for the first time in Year 1, with an agreed engagement protocol for out-of-area providers. The partnership will work with neighbouring LAs to develop collaborative arrangements for colleges serving multiple local authority areas. We will work with LLR partners to agree an MOU setting out how delivery will be coordinated across the partnership area, clarifying roles, responsibilities and referral pathways, and ensuring a consistent offer for young people regardless of which FE setting they attend.

Alternative provision

AP will be co-designed with settings and collaboratively recommissioned to align with the 3-tier model. The APST outreach offer supports schools managing children with EBSA and associated mental health and attendance issues.

Parents and carers

The PCF is represented on the Partnership Board and resourced to sustain engagement throughout delivery. Locality-based engagement will continue to ensure reform is experienced as intended across Leicester's diverse communities. SENDIASS provides independent information and guidance; the partnership will review provision against minimum service standards in Year 1 and ensure families are confident in the independence of the service within mediation processes.

Children and young people

CYP voice is captured directly and distinctly from parent voice through Big Mouth Forum, the Health Youth Advisory Board and the Young Researchers programme. Evidence of how CYP input shapes decisions will be reported through governance, with the Big Mouth manifesto providing an ongoing accountability mechanism.

The partnership will adopt the NHSE minimum co-production benchmark and self-assess in Year 1. Mediation and dispute resolution arrangements incorporate parent and CYP perspectives, monitored through timeliness, resolution rates and effectiveness metrics. Reform brings significant changes to roles, responsibilities and funding including school groups and evolving expectations on MATs; the partnership will work collaboratively to manage this transition, ensuring engagement is sustained throughout.

2.7 Risks and mitigations

Risk Impact Likelihood RAG Mitigation Residual

the impact of reform. Requests have already risen since reform announcements, reflecting a wider national trend. The government’s transitional protection — guaranteeing special school places for all children placed by September 2029 — may also accelerate demand from families seeking to secure a specialist placement before the reformed system is fully in place. This could overwhelm SENDSS at the point it is transitioning to early intervention.

over the long term, but the plan assumes increasing demand in the medium term at a decreasing rate. Communication strategy developed with PCF to build parental confidence in the reform direction and the continued availability of statutory assessment where needed. Demand monitored quarterly through the data dashboard with escalation triggers agreed.

• Local Government Reorganisation. Leicester

City is expected to be subject to LGR, with a possibility that the authority’s geographic area, pupil population and school estate will increase substantially. This would affect sufficiency planning, EAH forum coverage, workforce requirements, capital programmes, partnership structures, data systems and transport mid- way through reform delivery. The timing and scope remain uncertain.

High High Red Reform plan designed around functions and system principles rather than fixed organisational boundaries, enabling the model to scale. Locality forum approach is inherently adaptable to a larger geographic footprint. Sufficiency strategy includes demand forecasting methodology that can be extended to new planning areas. Early engagement with DfE and MHCLG to understand LGR timeline. Transition planning will begin as soon as proposals are confirmed. Developing relationship with Leicestershire and Rutland to support coordinated joint working, including exploring common approaches to FE and special school commissioning.

Amber

• NHS reform and joint commissioning.

Structural changes to NHS commissioning and

High Medium Amber Formal SLA between LA, LPT and ICB specifying the health contribution, shared

Amber

Risk Impact Likelihood RAG Mitigation Residual

competing demands across the health system could affect the pace and consistency of the health contribution to multi-disciplinary EAH delivery.

expectations and joint accountability. ICB represented on the Partnership Board with shared KPIs and quarterly reporting. Relationship with LPT as therapy provider established directly, providing continuity through any structural changes to commissioning. Joint governance arrangements include agreed routes for resolving delivery challenges at pace.

• Inconsistent inclusive practice undermines

confidence. Mainstream inclusive practice varies between settings, and families report inconsistent early identification and reasonable adjustments. If the universal offer is not experienced as a genuine improvement, parental confidence will not improve and demand for statutory assessment will persist.

High Medium Amber Universal offer co-produced with schools, MATs, PCF and ICB, with formal sign-off creating shared accountability. BERA framework and Inclusive Practice Reviews provide an established QA mechanism, being aligned to the new offer in Year 1. Phased implementation through early adopter settings enables learning before wider rollout. Family confidence tracked through satisfaction measures and EHCNA request trends. PCF engaged as ongoing partners in monitoring whether the offer is experienced as intended.

Amber

Section 3 – Monitoring and Evaluation

3.1 How will the local area partnership know delivery is on track?

Monitoring tools and processes

The partnership will establish a SEND operational dashboard bringing together data from across education, health and care into a single view of system performance. The dashboard will be maintained by the LA’s data and analytics team, with investment from transformation funding to build analytical capacity. It will be used operationally on a weekly basis to identify emerging trends and inform conversations with settings, and strategically by the Partnership Board quarterly to inform decisions on prioritisation and delivery. Key performance indicators will be drawn from the DfE data template and aligned to the headline success measures in the Blueprint and Year 1 plan, ensuring consistency between local monitoring and national reporting.

Tracking demand

The dashboard will track EHCNA requests by volume, source, primary need type and locality, enabling the partnership to identify whether earlier intervention is reducing escalation to statutory assessment. Conversion rates, assessment timeliness and tribunal activity will be monitored alongside request volumes. Placement demand will be tracked through DSP and special school waiting lists, INMSS placement numbers and Fe/Isp volumes, with quarterly comparison against sufficiency programme milestones.

Tracking service delivery

EAH delivery will be tracked through specialist deployment data including EP, SaLT and specialist teacher activity across localities, uptake by setting type and coverage relative to the target population. Sufficiency delivery will be tracked through capital programme milestones, places commissioned and occupied. Workforce recruitment against target will be reported quarterly. These measures will identify whether EAH support is reaching all parts of the system equitably.

Tracking service quality

The Quality Inclusion Team provides quality assurance across DSPs, special schools, AP and mainstream settings through the BERA framework and Inclusive Practice Review programme, which will be aligned to the Universal Offer. The QIT's monitoring cycle will extend to cover new provision as it comes online. Parental and CYP satisfaction will be captured through an annual survey coordinated with the Parent Carer Forum and participation groups including Big Mouth, with results reported to the Partnership Board.

Tracking outcomes

Attendance of pupils with SEND across mainstream and special schools will be monitored as a key outcome indicator, alongside exclusion rates and the proportion of CYP with SEND not in education.

Feedback and adaptation

The Quality Inclusion Team will play a central role in ensuring delivery remains on track across the five reform workstreams. Quarterly progress reviews at the Partnership Board will bring together dashboard data, milestone reporting and feedback from partners and families. The SRO will provide a quarterly report assessing delivery against the Year 1 plan, identifying risks and recommending corrective action. An annual review will assess progress against the Blueprint, refresh priorities and update the Maturity Assessment. The partnership will provide quarterly data returns to DfE and use benchmarked data reports to inform local evaluation.

Section 4 – Governance

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

The Local SEND Reform Plan will be delivered through a clear multi-agency governance structure with defined accountability, oversight and escalation routes across the Leicester local area partnership. Governance arrangements have been designed to meet the DfE core minimum requirements for effective partnership leadership, shared accountability, transparent decision-making and robust monitoring of delivery.

The named Senior Responsible Officer (SRO) for the Local SEND Reform Plan is Sophie Maltby, Director of SEND and Education. The SRO sits within the senior leadership structure of the local authority and leads the delivery of SEND reform across the partnership. The SRO has overall accountability for delivery of the Local SEND Reform Plan, including programme oversight, risk management, resource prioritisation, delivery against milestones and ensuring alignment with wider strategic programmes including the Best Start in Life Plan, Family First reforms and the High Needs Management Plan.

Governance is delivered through three interconnected tiers with clear reporting and escalation arrangements.

The Education, Health and Care Board provides executive and political oversight and accountability for SEND and education services across the city. Chaired by the City Mayor, membership includes councillors and senior leaders across SEND, education, health, public health, adult social care and commissioning. The board oversees strategic priorities including SEND transport and SEND inspection improvement activity and provides democratic accountability and transparency for SEND reform delivery across the partnership.

The SEND and AP Partnership Board provides system-wide partnership governance and shared accountability across education, health and care partners. The board is jointly chaired by the Strategic Director, Social Care and Education and the ICB Deputy Director of Nursing and includes representation from the local authority, ICB, PCF, schools, colleges, public health, social care and health providers. Meeting six times yearly, the board strengthens oversight of local area partnership delivery, co-production arrangements and strategic reform implementation across the system. The board is responsible for sign-off of partnership-wide plans, proposed process changes and strategic decisions impacting the local area partnership. Monitoring and evaluation data, including the SEND operational dashboard, quarterly milestone reporting and delivery performance against shared outcome measures, will be reported through the Partnership Board, ensuring the ICB has direct visibility of reform progress and shared accountability for delivery and outcomes across education, health and care. The Partnership Board maintains a formal link to the Schools Forum, sharing reform priorities and funding implications to ensure coherent engagement on resourcing and inclusion matters. At operational level, named health leads are identified for each workstream and locality, ensuring health accountability is embedded within delivery arrangements as well as strategic oversight. Strategic issues requiring wider executive oversight are escalated to the Education, Health and Care Board.

The SEND and Education Delivery Group provides operational oversight of delivery plans across education, health and care. Chaired by the Director of SEND and Education, membership includes multi-agency representatives from the local authority, Parent Carer Forum, Leicestershire Partnership Trust (LPT), Integrated Care Board (ICB), SEND and Education services and social care. Meeting every six weeks, the group oversees progress against workstreams, milestones, risks and performance measures and identifies issues requiring escalation. Progress monitoring includes oversight of delivery milestones, workforce development, financial monitoring and quarterly reporting requirements aligned to DfE expectations. Risks and delivery concerns are escalated through the governance structure to the SEND and AP Partnership Board.

These governance arrangements ensure that delivery remains on track through a combination of regular performance monitoring, transparent reporting and formal escalation processes. Quarterly performance reports will be reviewed through governance forums and shared with DfE officials and NHS regional SEND leads in line with national monitoring requirements. Progress against key metrics, delivery milestones, workforce recruitment, sufficiency targets, financial performance and risk mitigation will be monitored through the SEND operational dashboard and quarterly data returns.

Together, these arrangements provide robust operational, strategic and political oversight of the Local SEND Reform Plan and ensure that delivery remains aligned to the partnership’s vision of a more inclusive, sustainable and financially resilient SEND system.

The governance structure:

Supporting documents

Annex A - Experts at hand offer - Needs based design rationale

How local needs data has shaped the EAH delivery model

The design of Leicester’s Co-produced Experts at Hand model has been directly informed by analysis of local demand data, primary need profiles, geographic variation and the lived experience of families and professionals gathered through co-production. The EAH model operates as part of an integrated system with the Universal Offer, not as a separate workstream, with specialist expertise strengthening and building upon the inclusive practice baseline across all settings. This integrated, locality-based approach is illustrated in the accompanying Leicester SEND Reform Delivery Framework, which shows how Experts at Hand strengthens the Universal Offer through coordinated neighbourhood delivery, multi- agency working and targeted deployment of specialist expertise.

Delivery will increasingly be informed by an emerging locality-based intelligence and continuous improvement approach, enabling resources and expertise to be targeted according to local need, evidence and impact. The table below sets out the key data insights that have shaped the model, the design response to each, and how Year 1 investment is targeted accordingly.

What our data tells us Design response Year 1 investment

C&I and SLCN are the dominant primary need types driving EHCNA demand and specialist placement pressure. 77 primary-age children waiting for C&I DSP places. DSP waiting concentrated in LE4 (North) and LE5 (Central). SaLT data indicates approximately 35–40% of CYP present with emerging targeted or specialist needs, currently waiting in pathways that are not the most appropriate route for

EAH hubs prioritise speech and language therapy and communication expertise, reducing waiting times and demand on clinical SaLT referral pathways. Locality- based delivery ensures support reaches areas of highest demand without requiring families to travel.

ELSEC speech and language model extended to target settings. Locality inclusion hubs piloted with SaLT, EP and specialist teacher capacity.

What our data tells us Design response Year 1 investment

young people, and professionals report inconsistent inclusive practice across settings. Variation in early identification and reasonable adjustments. Neurodivergent needs particularly highlighted.

produced across all phases. ND inclusion pathway building on PINS model and profiling to support earlier identification within settings. Enhanced SENDCo support programme.

adopter settings. ND profiling piloted. SENDCo support co-designed and piloted supporting earlier identification and reducing pressure on clinical diagnostic pathways.

Why locality-based clusters

The decision to deliver through locality-based clusters rather than a centralised service reflects two findings from the data and engagement. First, demand for specialist support varies significantly across the city: the Sufficiency Plan identifies that the North (LE4) and Central (LE5) areas account for over half the primary C&I DSP waiting list, and families in these areas report the greatest difficulty accessing timely support. A locality model enables resources to be deployed proportionately to where need is greatest. Second, families consistently described a system that is difficult to navigate, where they are required to repeat their story across services. Locality clusters, aligned to the developing Family First approach, provide a single access point that reduces duplication and enables multi-agency coordination around the child. Mainstream settings will access EAH through defined locality pathways, enabling timely specialist advice and consultation without unnecessary referral barriers. The locality approach also creates opportunities for joint work with parents and carers, including workshops, shared resources and practical advice to strengthen support beyond the education setting. This locality-based approach enables EAH to operate as part of a coherent integrated system alongside the Universal Offer, SEND Support Services, Family First and specialist provision pathways, rather than as a separate intervention pathway.

Why these disciplines

The multi-disciplinary composition of the EAH hubs – educational psychology, speech and language therapy, occupational therapy and specialist teaching – directly reflects the primary need profile. Communication and interaction needs (including autism and SLCN) are the dominant drivers of EHCNA demand and specialist placement pressure. Speech and language capacity is a specific priority, building on the evidence base from the ELSEC model. Occupational therapy capacity will support earlier intervention, sensory regulation, participation and

functional inclusion within mainstream and early years settings. Educational psychology is essential both for early identification and for supporting schools to implement effective graduated responses. Across all disciplines, the emphasis is on coaching, modelling, consultation and evidence-informed workforce development so that expertise becomes embedded within mainstream practice and reduces reliance on ongoing specialist intervention.

Why this phasing

Year 1 prioritises the areas of greatest pressure identified in the data: early years (where EHCNA demand is concentrated at school entry and PVI settings lack specialist capacity), secondary SEMH (where escalating SEMH and Communication and Interaction needs lead to increased requests for statutory assessment), and FE (where demand is growing rapidly with no existing specialist support in place). The phasing ensures that investment is targeted at the points in the system where earlier intervention will have the greatest impact on both outcomes and financial sustainability. Access to EAH support is allocated through locality-based, needs-informed pathways rather than direct setting-led referral, ensuring support reflects assessed need rather than setting proactivity. Locality leads will monitor uptake against the needs-based data profile for each area, including out-of-area FE settings accessing the offer via the LLR engagement protocol.

Annex B - Co-production and engagement evidence summary

Supporting Document- Local Partnership Maturity Assessment

1. Purpose

This document provides a summary of the co-production and multi-agency engagement activity that has informed the development of the Local Partnership Maturity Assessment, the Leicester SEND Reform Blueprint, and the wider Local SEND Reform Plan submission. It evidences the breadth and depth of partnership involvement in shaping the local reform priorities.

2. Summary of engagement programme

The reform plan has been informed by a structured programme of eleven dedicated engagement sessions held between April and May 2026:

This is in addition to the initial maturity assessment completed by the SEND and Alternative Provision (AP) Partnership Board in November 2025 and the ongoing strategic engagement through termly Mat Ceo briefings, Head Teachers’ conferences and school network groups.

3. Multi-agency reform workshops

A series of three structured workshops were held in April 2026, bringing together representatives from across the local area partnership to co- produce the reform plan, including the Universal Offer, Experts at Hand model, Year 1 delivery priorities and three-year strategic direction.

Workshop dates

Workshop 1: 15 April 2026

Workshop 2: 23 April 2026

Workshop 3: 30 April 2026 – outputs from workshops 1 and 2 were shared with all attendees for review and feedback rather than a further in-person session, ensuring that the emerging model and priorities were validated across the full partnership.

Partner representation across workshops:

13 partner groups represented across education, health, care, specialist services and families.

Note: Workshop 3 column reflects the review and feedback round.

4. Targeted sector engagement

Recognising the distinct contexts and pressures facing specific sectors, dedicated phase-specific workshops were held to ensure the reform plan is informed by the realities of provision across the full 0–25 age range:

Early years workshop 24.04.26 (12 attendees) – A dedicated session with early years representatives to explore phase-specific issues including early identification, specialist SEND capacity within PVI settings, transition to school and the role of the Universal Offer and EAH model in early years contexts.

Further education and sixth form workshop 21.04.26 (12 attendees) – A dedicated session bringing together representatives from FE colleges and sixth form providers from across the city, focusing on post-16 pathways, FE inclusion, the ordinarily available offer in FE, transition planning and the needs of young people attending out-of-area provision.

5. Parent, carer, children and young people engagement

Co-production with families and children and young people has been a central feature of the reform planning process:

Parent and carer locality workshops – Five workshops were held across the city’s localities, facilitated by the Quality Inclusion Team in partnership with the Parent Carer Forum. These sessions ensured that parent and carer perspectives were captured from across Leicester’s diverse communities, not only from those families already engaged with strategic forums. Feedback has directly informed the Blueprint, including the identification of priorities around waiting lists, local provision, transition support, neurodivergent inclusion and accessible communication.

Event dates and locations:

• Eyres Monsell Best Start Family Hub – 30 April 2026 between 9am and 12noon
• Thurnby Best Start Family Hub – 30 April 2026 between 9am and 4pm
• Highfields Best Start Family Hub – 27 April 2026 between 9am and 12.30pm
• New Parks Best Start Family Hub – 27 April 2026 between 1pm and 4pm
• Bewcastle Best Start Family Hub - 27 April 2026 between 9am and 1pm
• Children and young people engagement – Two dedicated sessions (16.4.26 Big Mouth Forum and 25.4.26 East Midlands Youth

Inclusion Forum) were held with children and young people to ensure their voice was captured directly and distinctly from parent voice. These sessions explored their experiences of inclusion, support and transitions within the current system, and their views on what needs to change. Findings have been reflected in the Blueprint, including feedback on inconsistent experiences of inclusion within mainstream settings, concerns about transition support and the implementation of agreed adjustments.

6. SEND and AP partnership board

The initial maturity assessment was completed by the SEND and AP partnership board in November 2025 using the DfE template. This provided the baseline from which the co-produced assessment has been developed. The Partnership Board includes senior representatives from the local authority, ICB, Parent Carer Forum and education settings.

7. How engagement has shaped the plan

The co-production activity summarised above has directly informed:

The Local Partnership Maturity Assessment – reviewed and strengthened from the November 2025 baseline through multi-agency and family input.

• The Universal Offer framework – co-designed with schools, MATs, early years, FE, health partners and families.

The Experts at Hand model – delivery approach and locality hub design informed by professional and family perspectives on access, timeliness and system navigation.

The Year 1 delivery plan priorities – workstream focus and sequencing shaped by partner and family input on where the system most needs to change.

The three-year strategic direction (Blueprint) – the “where we are” and “where we will be” narratives incorporate evidence from all engagement activity, including direct quotes from children, young people and families.

8. Ongoing co-production commitment

The local area partnership is committed to sustaining co-production throughout delivery. This includes:

Parent Carer Forum representation on the SEND & AP Partnership Board and governance structures overseeing reform delivery.

Ongoing engagement with children and young people through established participation groups, with their views captured distinctly and used to influence service design and delivery.

Regular refresh of the Universal Offer in partnership with schools, MATs, early years, Fe, Pcf and ICB.

Adoption and self-assessment against the NHSE minimum co-production benchmark in Year 1.

This summary should be read alongside the Local Partnership Maturity Assessment and the Leicester City SEND Reform Plan submission documents