To provide the Children and Young People Scrutiny Committee with an overview of current Alternative Provision in Herefordshire, including the Herefordshire Pupil Referral Service (HPRS), and the capital programme being developed to increase capacity, strengthen early intervention and improve the quality and sustainability of Alternative Provision.

1. The committee received an overview of alternative provision (AP) in Herefordshire and the capital investment programme to increase capacity and improve outcomes for children and young people.

2. Officers explained that AP operates across three tiers: Tier 1 support within mainstream schools, Tier 2 short-term intervention aimed at reintegration, and Tier 3 longer-term provision for pupils with significant needs or permanent exclusion. The discussion focused on expanding Tier 2 and Tier 3 provision.

3. Officers reported substantial growth in demand, driven by increasing numbers of children with complex needs, rising Education Health and Care Plans (EHCPs), social, emotional and mental health (SEMH) difficulties, attendance concerns and pressures on mainstream schools. The number of pupils accessing AP had increased from 126 in 2024 to 305 currently. Demand was greatest among secondary-age pupils but was also increasing in primary schools. Special schools were operating at full capacity, increasing reliance on AP.

4. Children accessing AP were disproportionately likely to have SEND, EHCPs, free school meal eligibility or looked-after status. Herefordshire also had a higher proportion of EHCP pupils within AP than comparable authorities, reflecting difficulties securing specialist placements and suitable educational pathways.

5. Members heard that access routes included permanent exclusion, repeated suspension, Section 19 duties, Education Otherwise Than At School (EOTAS) arrangements and SEND-related needs. At the same time, financial pressures on mainstream schools had reduced access to specialist support and interventions. Rising levels of school avoidance, anxiety, behavioural difficulties and attendance issues were increasing demand for specialist and personalised provision.

6. The committee received details of the Herefordshire Pupil Referral Service (HPRS), which had 64 commissioned places but accommodation suitable for around 47 pupils. Existing facilities were described as outdated and unable to meet current levels of need, limiting opportunities for short-term intervention and reintegration.

7. Members heard that Full Council had approved a £12 million capital programme to expand and relocate HPRS and create a dedicated Tier 2 AP centre – as none currently exists in-county. Officers stated that both projects were necessary to increase capacity, improve facilities and reduce reliance on expensive out-of-county and independent placements. Work to identify suitable premises was ongoing.

8. Officers outlined strengthened commissioning, safeguarding and quality assurance arrangements, including provider monitoring, attendance tracking and safeguarding oversight. These arrangements covered both registered and unregistered providers and had previously been recognised as a strength during SEND inspection activity.

9. Examples were provided of positive outcomes achieved through AP, including reintegration into mainstream education, progression to further education or apprenticeships and attainment of academic and vocational qualifications. Officers emphasised that AP should be viewed as an intervention designed to secure positive long-term outcomes.

10. Discussion highlighted the importance of early intervention within mainstream schools. Officers noted that many pupils could be supported through Tier 1 provision and outlined SEND reforms and locality-based “Experts at Hand” teams, intended to provide quicker access to specialist advice, educational psychology and therapeutic support.

11. Questions explored financial implications. Officers advised that insufficient local capacity increased spending on independent schools, online tuition and commissioned provision. AP placements cost around £21,500 annually compared with approximately £64,000 for independent placements. Expanding local provision was therefore expected to help manage High Needs Block pressures and reduce costs associated with tribunals, complaints and placement delays.

12. Officers clarified that the figure of 305 pupils represented all AP recorded through Department for Education census returns, not solely HPRS placements. Approximately 9.8% accessed unregistered provision, compared with 7.9% three years earlier. Members were advised that unregistered providers remained subject to council quality assurance and safeguarding requirements.

13. Further discussion focused on the wider SEND landscape. Officers advised that all local special schools were full and that shortages remained across SEMH, autism, moderate learning difficulty provision and transition pathways. Expansion of AP formed part of a wider strategy to improve sufficiency and meet future demand.

14. The committee considered delivery arrangements for the capital programme. Officers confirmed that project plans and milestones were in place, although delivery depended on securing suitable sites and any necessary adaptations. Market analysis and provider engagement continued to identify gaps and support development of additional local pathways.

15. Members also discussed future demand forecasts, operational costs and the national AP framework. Officers advised that Department for Education standards had already been incorporated into local arrangements and that projected demand informed the business cases for both schemes. The projects were expected to support educational outcomes while helping manage future High Needs expenditure.

16. The meeting concluded with confirmation that the Department for Education had approved Herefordshire's SEND Reform Plan, enabling the council to receive 90% of its High Needs Stability Grant. Officers welcomed the decision and reiterated that expanding local AP and specialist capacity would be central to delivering the reform programme, meeting demand and managing financial pressures.

The committee unanimously agreed the following recommendations;

1. That the service publishes its reintegration strategy for young people receiving alternative provision and the measures by which its delivery will be monitored.?
2. Herefordshire Council publish the comparator data which supports the assertion that Herefordshire has a higher EHCP share than comparator authorities.?
3. Demand forecasts for alternative provision are provided out to 2030 to support the balance of investment in provision.