Managing challenging
behaviour
Age group
0–19
Published
March 2005
Reference no.
HMI 2363
© Crown copyright 2005
Document reference number: HMI 2363
Website: www.ofsted.gov.uk
This document may be reproduced in whole or in part for non-commercial
educational purposes, provided that the information quoted is reproduced
without adaptation, and the source and date of publication are stated.
Managing challenging behaviour
1
Executive summary 3
Main findings 4
Behaviour: the national picture 5
Behaviour in the settings visited 8
Action to manage and improve behaviour 10
Effective support from other services 21
Monitoring, evaluating and improving provision 25
Views of children and young people and parents and carers 27
Contents
Managing challenging behaviour
Executive summary Managing challenging behaviour
3
This report gives an account of behaviour in schools based on
national evidence and provides an analysis of behaviour in a
range of educational settings based on visits by Her Majesty’s
Inspectors (HMI).
The settings included early years provision, mainstream and
special schools, pupil referral units (PRUs), secure training
centres and colleges. The visits by HMI were informed by
research Ofsted commissioned from the University of
Birmingham. They set out to establish the types of behaviour
that schools and other settings find challenging and to
evaluate their responses to it.
Some of the findings in this report are based on a wider range
of Ofsted’s evidence including that gathered from inspections
of behaviour, bullying and minority ethnic achievement;
inspections of programmes such as Excellence in Cities and
Education Action Zones; local education authority (LEA)
inspections; analysis of LEA behaviour support plans; and
scrutiny of more than 1,550 reports of inspections of schools
that have been inspected at least twice by Ofsted.
The great majority of children and young people enjoy
learning, work hard and behave well. Among the schools
inspected in 2003/04, behaviour was good or better in 90% of
primary schools, 68% of secondary schools and 80% of special
schools and PRUs. However, Ofsted’s annual reports have
highlighted the fact that the behaviour of some pupils, usually
boys, remains a serious concern for many schools and other
settings. Their behaviour troubles others, affects the climate of
the learning community and disrupts their own and others’
progress.
Considerable emphasis has been put on inclusion in recent
years, exemplified in the revised Special Educational Needs
Code of Practice.1 A recent Ofsted report, Special educational
needs and disability: towards inclusive schools, confirmed that
pupils with emotional, behavioural and social difficulties
(EBSD) are the most difficult group for schools to manage.
Conflicts can arise between meeting individual needs and the
efficient education of other children.
Between 2001 and 2003 there was a 25% increase in the
number of pupils educated in PRUs. Between 2001 and 2004
there was a 14% increase in the number of pupils placed by
LEAs in independent special schools catering solely or mainly
for pupils with special educational needs (SEN). Most of the
pupils admitted to these schools have EBSD or severe learning
difficulties (SLD), often with associated challenging behaviour.
As the successful practice described in this report illustrates,
schools and other settings can be expected to solve most
behaviour problems themselves but they cannot solve them all.
They need specialist support from other services. Some schools
need to make special provision to cope with poor behaviour
and to deploy additional resources to assist whole-school
change. The substantial funding which the Department for
Education and Skills (DfES) has provided to support provision
in schools is proving generally beneficial.
Executive summary
1 Special Educational Needs Code of Practice, Department for Education and Skills
(581/2001), 2001.
Managing challenging behaviour Main findings
4
The behaviour of the very large majority of pupils and
students remains satisfactory or better. Most schools and
other settings are successful at managing behaviour and
creating an environment in which learners feel valued, cared
for and safe.
The most common form of poor behaviour is persistent,
low-level disruption of lessons that wears down staff and
interrupts learning. Extreme acts of violence remain very
rare and are carried out by a very small proportion of pupils.
A significant proportion of pupils with difficult behaviour
have SEN and face disadvantage and disturbance in their
family lives. Many have poor language skills. Problems with
reading and writing often begin early and continue into
secondary school, limiting achievement in a range of
subjects.
Behaviour is significantly better in settings which have a
strong sense of community and work closely with parents.
In these settings learners feel safe and are confident that
issues such as bullying are dealt with swiftly and fairly.
A strong lead by senior managers who set high standards
and provide close support to staff contributes significantly
to the effective management of behaviour.
Most schools and other settings recognise that an
appropriate curriculum and effective teaching engage
learners and encourage good behaviour, but about a quarter
of those visited in this survey have difficulty in ensuring
that their provision meets the standards needed in these
respects.
Staff in some settings require more training in managing
and improving the behaviour of more difficult pupils.
The quality of accommodation has a significant impact on
behaviour. Accommodation that is welcoming, stimulating
and well maintained tends to foster good behaviour.
The extent of LEA support for schools in managing more
challenging behaviour varies. A common weakness is the
lack of detailed evaluation of the benefits of the support
given by LEAs.
LEAs and schools recognise the importance of working with
other agencies but less than half have established strong
partnerships with health and social services.
Schools, PRUs and colleges are generally weak at
monitoring and evaluating their own strategies and the
impact of support from other agencies on the attitudes and
behaviour of more difficult pupils.
Recommendations
Schools, colleges and PRUs should:
focus on improving the quality of teaching and the
provision of an appropriate curriculum that engages the
more difficult pupils
do more to improve the literacy and other communication
skills of pupils with difficult behaviour
improve systems for tracking academic and social
development, and make better use of this information to
help pupils improve and manage their behaviour
provide more systematic training for senior managers,
teachers and assistants in behaviour management and in
child and adolescent development
review the way they link with parents
underline the need for consistency among staff in the way
expectations of behaviour are set and maintained.
LEAs should:
monitor and evaluate schools’ responses to pupils with more
challenging behaviour in order to target support more
effectively
build on initial teacher training in order to provide longterm
programmes of professional development in child and
adolescent development and on the application of
behaviour management strategies
encourage effective partnerships with other services and
create more opportunities for joint training.
Main findings
Behaviour: the national picture Managing challenging behaviour
5
The great majority of children and young people enjoy
learning, work hard and behave well, but the poor
behaviour of a small minority continues to present a
challenge to schools and other settings.
Lack of agreed definitions of what constitutes challenging
behaviour makes it difficult to gauge the full extent of it.
Perception of poor behaviour is conditioned both by the
context and by the observer’s expectations.
The challenging behaviour of many younger pupils arises
mainly as a result of poor language and social skills and
emotional development fitting to their age.
The most common form of poor behaviour is low-level
disruption of lessons, perpetrated much more often by
boys than by girls.
Ofsted school inspections
1. Of all the schools inspected by Ofsted in 2003/04,
behaviour was at least satisfactory in over 90%. It was
good or better in 68% of secondary schools, 80% of
special schools and PRUs and 90% of primary schools.
2. The great majority of pupils enjoy school, work hard and
behave well. A strong sense of community and positive
engagement with parents are features of schools where
behaviour is good.
3. Analysis of inspection judgements since 1996/97 shows
that behaviour in primary schools has gradually improved.
Figure 1. Percentage of primary schools where behaviour
is judged good or better.
4. By contrast, the proportion of secondary schools in which
behaviour overall has been judged good or better has
declined since 1996/97 from over three quarters to over
two thirds. Over the same period, the proportion where
behaviour is unsatisfactory, at just under one in ten
schools, has not reduced.
Figure 2. Percentage of secondary schools where
behaviour is judged good or better.
5. Evidence from inspections confirms that the most common
form of poor behaviour in schools continues to be that
identified by the Elton report: low-level disruption of
lessons.2 The Elton report detailed what are in themselves
minor discipline problems that involve pupils talking out of
turn, avoiding work themselves and hindering the work of
others, being rowdy and making inappropriate remarks.
Such problems continue to feature, to one degree or
another, in most schools. While teachers usually deal with
such behaviour effectively, the cumulative effect can be
frustrating and stressful for both teachers and the
generality of pupils.
6. Incidents of verbal and physical abuse aimed at peers and,
less frequently, staff by a small proportion of pupils are a
problem in most schools. Acts of extreme violence are very
rare; they are mostly directed towards other pupils rather
than staff.
2003/2004
90
85
80
75
70
65
60
55
50
2002/2003
2001/2002
2000/2001
1999/2000
1998/1999
1997/1998
1996/1997
76
72
74 75 75 74
72
68
2003/2004
95
90
85
80
75
70
65
60
55
50
2002/2003
2001/2002
2000/2001
1999/2000
1998/1999
1997/1998
1996/1997
79 80
83
86 86
89 90 90
Behaviour: the national picture
2 Discipline in schools, DES, 1989.
Managing challenging behaviour Behaviour: the national picture
6
7. Incidents of poor behaviour increase with age, rising
steeply from the age of 9. However, 20% of poor
behaviour in primary schools involves pupils aged 4 to 6
years. This group comes to school ill-prepared socially and
emotionally. In secondary schools behaviour worsens during
Key Stage 3. In 2002/03 the percentage of lessons in
which behaviour was unsatisfactory rose from less than 5%
in Year 7 to over 8% in Years 8 and 9.
School exclusions
8. The chart below shows the trend in permanent exclusions
over a 10-year period.
Figure 3. Permanent exclusions from schools.
9. The DfES carried out a detailed survey of the extent of and
reasons for fixed-term and permanent exclusions for the first
time in the summer term of 2003. While there are some
concerns about the reliability of the figures provided, they
indicate that exclusions involved 62,000 pupils, most of whom
had only one fixed period of exclusion; 20% had two or more.
10. The most common reason for both permanent and fixedterm
exclusion, accounting for more than one fifth of all
cases, was persistent disruptive behaviour. Assaults against
pupils accounted for 14% of permanent and 16% of fixedterm
exclusions, while assaults against staff accounted for
12% and 5% respectively.
11. In primary schools, boys are 10 times more likely than girls
to be excluded. In relation to the most challenging
behaviour the ratio of boys to girls is twelve to one.
Research evidence
12. Lack of agreed definitions of what constitutes challenging
behaviour in schools makes it difficult to gauge the full
extent of it. Some instances of violent behaviour in schools
attract considerable media and public attention, but
research indicates that such instances are rare. Research
suggests that up to 5% of pupils may display challenging
behaviour at some time in their schooling, though by no
means all of this behaviour involves violent conduct.
13. Sound international comparisons on the extent and nature
of poor behaviour in schools are difficult to come by.
Figures for the United States and Canada appear similar to
United Kingdom figures. In the United States, incidents
involving firearms and other weapons capture attention,
but acts of extreme behaviour are by no means
commonplace. Challenging behaviour is mostly associated
with boys aged 8 to 9 and 12 to 15, and most often with
boys with SEN and those from low-income families.
Research in Germany shows a low incidence of challenging
behaviour in schools, mainly involving boys aged 11 to 15,
usually from low-income families among whose adult
members anti-social behaviour is common; many of the
pupils concerned have repeated a year of schooling.
Figures for the proportion of pupils in Scandinavian schools
with challenging behaviour are substantially higher, at
11%. This higher level is hard to explain; differences in
perceptions of what constitutes challenging behaviour may
well account for it.
14. University of Birmingham research commissioned by Ofsted
for this survey indicates that when behaviour is discussed
in schools there is little agreement as to the meaning or
use of terms to describe challenging behaviour.3 Perception
of challenging behaviour is relative and is conditioned both
by the context in which the behaviour occurs and by the
observer’s expectations. There is, however, widespread
2,000
4,000
6,000
8,000
10,000
12,000
14,000
1993/19941994/19951995/19961996/19971997/19981998/19991999/20002000/20012001/20022002/2003
11,181
11,084
12,476 12,668 12,336
10,400
8,323
9,135
9,535 9,290
3 Challenging Behaviour Research Project, A study of children and young people who present
challenging behaviour, University of Birmingham/Ofsted, 2005. Available on the Ofsted website
(www.ofsted.gov.uk). The purpose of the research was: to review published material to determine
the range of characteristics and definitions of challenging behaviour used by academic researchers
and practitioners; to survey a range of educational practitioners as to their perceptions of
challenging behaviour; and to determine factors that account for effective practice in relation to
pupils with more difficult behaviour. The findings were used to inform fieldwork by HMI.
Behaviour: the national picture Managing challenging behaviour
7
agreement that two types of behaviour are challenging,
whatever the particular circumstances. The first is overtly
aggressive behaviour: physical acts such as biting and
pinching, throwing furniture and assaulting people. The
second is aggression that is mainly verbal, for example,
streams of abuse, temper tantrums, and invasion of
personal space intended to be threatening. The second
type includes behaviour which defies teachers’ authority in
refusing to follow instructions.
15. Very few instances of serious misbehaviour in schools
involve police investigation and judicial proceedings. The
great majority of the incidents classified as youth offending
take place somewhere other than in schools, although
some take place in school time.
16. A survey undertaken in 2003 on behalf of the Youth
Justice Board showed that youth offending in all contexts
showed a slight decline over the previous two years.
Research commissioned by the Board provides a good
understanding of the factors in young people’s lives which
make offending more likely. These factors are:
aggressive behaviour by the young person, including
bullying
family conflict and breakdown
low achievement beginning in primary school
lack of commitment to school, reflected in truancy
peer involvement in problem behaviour
the availability of drugs.
Managing challenging behaviour Behaviour in the settings visited
8
17. In this survey, HMI visited 78 settings of very different
types: early years provision; mainstream primary and
secondary schools; maintained and independent special
schools; PRUs; secure training centres; general further
education (FE) colleges and independent specialist
colleges.4
Types and extent of challenging behaviour
18. The visits showed that the number of children and young
people identified as showing challenging behaviour varies
considerably between settings, even among those serving
broadly similar communities, and reflects inconsistency in
the use of the term.
19. Reports of the numbers of pupils showing challenging
behaviour varied from very few to up to 40% of pupils in
some early years settings and up to half in some of the
primary and secondary schools. One PRU reported that
none of its pupils had challenging behaviour, while others
reported that over three quarters did. In the special schools
visited, numbers vary from very few to all pupils on roll.
Schools for pupils with EBSD and schools for pupils with
SLD, as well as some for pupils with autistic spectrum
disorders (ASD), tend to regard all their pupils as
challenging. In schools for pupils with moderate learning
difficulties (MLD) and a wider range of needs, proportions
fall to an average of 10%. By comparison, the proportion
of students showing challenging behaviour in general FE
colleges is very low, while, not surprisingly, in independent
specialist colleges catering in particular for students
with SLD and ASD the proportion is reported as high
and growing.
20. Schools visited reported an increase in the number of pupils
displaying behaviour related to medical needs, in particular
those medically assessed as having ASD. The behaviour of
these pupils may be verbally and physically aggressive,
disruptive, withdrawn or sexualised. Many display a lack of
awareness for their personal safety. In some special schools
and independent specialist colleges many pupils with ASD
and SLD present challenging behaviour on a daily basis
within environments equipped to meet their needs.
21. A small number of pupils in about half the settings visited
are withdrawn, anxious or depressed. These characteristics
are most commonly reported by special schools, PRUs and
secure training centres. Withdrawn behaviour that may
indicate the onset of mental illness is often difficult for
staff in schools and colleges to detect. It can go unnoticed
in the classroom, especially when other groups present
more disruptive behaviour. The University of Birmingham
research indicated that pupils displaying withdrawn,
anxious and depressed behaviour were potentially underidentified
in all types of setting. Incidents of self-harm,
usually involving very small numbers of pupils, occur in
about a third of primary, special schools and PRUs and in
over half of secondary schools. There are isolated incidents
of sexualised behaviour in early years settings, in about a
third of primary schools and half of secondary schools. This
type of behaviour is more common in three quarters of
PRUs and almost all special schools.
22. In one in five of the secondary schools visited gang culture
is perceived to be widespread, although few schools had
firm evidence of it. There were instances of the carrying of
knives and other potential weapons reported in less than
half the secondary schools and PRUs and in about half of
the colleges visited. The prevalence of gang culture and
weapon-carrying clearly varies considerably from one area
of the country to another.
23. Drug abuse is a daily challenge in some of the settings for
older pupils visited, more often PRUs and colleges than
schools. In most secondary schools there are drug-related
incidents at least once a term.
Characteristics of learners showing challenging
behaviour
24. This survey confirms that boys are more likely than girls to
be defiant and both physically and verbally abusive. This is
true from primary to further education. In general FE
colleges, the majority of more difficult students have EBSD
and are aged 15 to 16. Loud and raucous behaviour by
boys is often a focus of teachers’ attention, while
inappropriate behaviour by girls is sometimes unnoticed or
Behaviour in the settings visited
4 These settings were in eight LEAs: Camden, Croydon, Durham, North
Somerset, Shropshire, Stockport, Sandwell and Wiltshire. HMI held discussions
with local education officers, headteachers and senior managers, teachers,
teaching assistants, learning mentors, parents, pupils and representatives of
voluntary organisations. They also observed lessons and other activities, and
scrutinised policies and records.
Behaviour in the settings visited Managing challenging behaviour
9
ignored. In schools, units and colleges girls predominate in
instances of self-harm, depression and eating disorders.
25. Many of the pupils with the most challenging behaviour in
schools, units and colleges have joined at times other than
the usual point of admission. As pupils move in and out of
different schools and units their learning is disrupted and
they have difficulty forming relationships with peers and
staff. Most affected are those schools in coastal towns and
those serving social-housing estates; in these cases,
parents move frequently throughout their child’s school
career. To engage, motivate and involve pupils who have
little sense of belonging to a community demands a great
deal of special effort by staff in schools; some are more
able to supply the effort than others.
26. The survey shows that many of the pupils showing
challenging behaviour in early years settings, schools and
PRUs are from troubled families or are in public care. These
vulnerable pupils are more likely to display difficult
behaviour when they feel that responses to them by staff
or other pupils are insensitive or derogatory.
27. Irregular attendance is an issue for a significant number of
pupils with challenging behaviour in just under half the
secondary schools and PRUs and about one third of the
schools for pupils with EBSD. This leads to breaks in
learning which affect pupils’ behaviour and the
development of positive relationships with staff and peers.
28. Pupils with SEN that require ‘school action’ or ‘school
action plus’ or those who have a statement of SEN form at
least one third of the pupils identified as having
behavioural difficulties in the secondary schools visited. In
the primary schools few of those identified have a
statement for EBSD but about one third require ‘school
action’ or ‘school action plus’. Despite DfES guidance
about the placement of pupils with statements in PRUs
there are many such pupils in units. In three quarters of the
PRUs, between 20% and 50% of the pupils with the most
challenging behaviour have statements for EBSD and a
significant number have been excluded from day and
residential special schools. Increasingly, pupils placed in
PRUs are younger, with more 5 to 7 year olds needing part
or all of their education off-site.
29. In most of the primary schools only a small proportion of
pupils with challenging behaviour are from minority ethnic
groups. The proportions are higher in secondary schools and
PRUs and in some of the special schools in inner-city areas.
30. In over half the primary, secondary and special schools
and in three quarters of the PRUs some pupils are on
medication as a result of their difficult behaviour.
Numbers vary from a few in the primary schools to 10
or more in some of the secondary schools. In some of the
SLD and EBSD schools up to two thirds of pupils may be
on medication. The number is also high in the secure
training centres.
31. In over half the secondary schools visited, about half the
EBSD schools and PRUs and one fifth of general FE
colleges, a small proportion of pupils with the most
difficult behaviour are reported as being involved in
criminal proceedings.
32. A significant proportion of pupils with challenging
behaviour have poor language and social skills and limited
concentration spans. This association is evident in all the
early years settings and in three quarters of primary schools
visited. Difficulties, especially in literacy, often begin early
and continue into secondary education and beyond. Two
thirds of pupils who have been excluded from school have
reading ages two to three years below their chronological
age when they begin secondary school and thus struggle to
read and comprehend material in lessons. They also tend to
write badly.
Managing challenging behaviour Action to manage and improve behaviour
10
Consistency of approach
Inspection and research confirm the importance of
consistency in approach by staff.
Strong leadership and management are crucial to the
effective management of behaviour. Clear direction and
support to staff are keys to maintaining a positive ethos in
which each pupil is valued and respected and, where
necessary, learns to manage and improve their behaviour.
A thorough induction programme helps schools with a
high staff turnover to ensure consistency in approach.
Regular training, focused on classroom practice, combined
with in-depth appreciation of child and adolescent
development, is central to understanding and managing
behaviour.
Schools that use information systems well to monitor
pupils’ behaviour are best placed to take speedy and
effective action.
Policies on behaviour
33. Most of the schools and colleges visited have behaviour
policies which set out expectations clearly. In two thirds of
the schools, almost all the PRUs and independent specialist
colleges, and about half the general FE colleges, the policy
is implemented consistently by staff.
34. In a small number of the schools, policies are over-complex,
do not promote consistency of expectation or do not
emphasise the encouragement of positive behaviour. In the
general FE colleges, systems are not always followed
consistently by all faculties. Children and young people
recognise the importance of rules and sanctions being
consistently applied and often resent it when this basic
principle is not observed. When there are inconsistencies,
those who have more difficulty in moderating their own
behaviour are unclear about boundaries.
Hairdressing students at a general FE college are
encouraged to develop their own group rules at the
beginning of the course. They devise an incentive system
in which points are awarded for attendance, behaviour
and achievement. The students determine who gets
points, and these are tallied monthly. Winning students
are rewarded with treatments in the hair and beauty
salons and are put forward for the ‘Student of the Year’
award in that vocational area.
35. A negative emphasis in behaviour policies often results in a
focus on dealing with problems after they have occurred. In
the schools in which such emphasis is evident, too little
consideration is given to the changes needed to promote
good behaviour, notably improving the quality of teaching
and developing an appropriate curriculum.
36. In the secondary schools visited, incidents of permanent
exclusions were broadly in line with the national average
but in a number the rate of fixed-term exclusions was very
high. In a small proportion of the schools, exclusion is used
as a way of enabling teachers to cope more effectively with
difficult behaviour. This does not necessarily enhance
teachers’ confidence and ability to manage poor behaviour.
Ethos
37. This survey indicates that, in all early years settings and at
least two thirds of primary and secondary schools, a positive
and consistent ethos is promoted by the headteacher and
senior management team, reinforced by staff and
understood by pupils. There is close liaison with parents.
38. In early years settings this creates a secure environment
where children thrive, develop confidence and begin to
take responsibility for their own actions. This generally has
a positive impact on their attitude to learning. High
expectations for behaviour are shared with parents so that
there is consistency between home and school.
39. A school’s ethos provides the context within which children
feel secure, know they are valued as individuals, are safe
from emotional and physical harm and are able to discuss
their interests and voice their fears in a supportive
atmosphere. The development of a school’s ethos falls to
the senior management team but its growth and
maintenance depend on the involvement and co-operation
Action to manage and improve
behaviour
Action to manage and improve behaviour Managing challenging behaviour
11
of the whole staff. Inspection and research continually reaffirm
the importance of consistency in the way staff
themselves behave and act in and around the school. This
particularly helps boys to behave better and achieve more.
Boys’ attitudes
40. An Ofsted report on boys’ achievement showed that:5
the relationship between the ethos of a school and the
achievement of its pupils is close. Boys tend to respond
well to an ethos that encourages and stimulates high
standards, that engages their interest and commitment,
and that insists on good behaviour and close partnership
with parents
the importance of a clearly defined disciplinary
framework is especially marked for boys. Boys respond
best when there is a consistent and fair-minded approach
to discipline, backed up by effective pastoral systems and
learning support
boys tend to respond well to teachers who set clear limits
and high expectations, direct work strongly, show
enthusiasm for their subjects, use humour and reward
good work. There is evidence that boys are rather less
inclined than girls to learn from indifferent teaching.
41. The report went on to say that, although there is nothing
as clear-cut as ‘a boys’ learning style’, many schools have
found certain approaches to be particularly helpful. For
example, although many boys are willing to contribute
orally, they can be helped to become more reflective in
their replies. Their motivation can be enhanced by giving
them greater access to computers for interactive learning or
to help them improve the presentation of their work. Boys
often respond better to lessons that have a clear structure
and a variety of activities, including practical and activitybased
learning, applications to real-life situations and an
element of fun and competition. Many boys find it helpful
to be given short-term targets and feedback that focuses
on how they can improve.
Support for staff
42. The most difficult behaviour is almost always managed
well in schools where strong senior managers give clear
direction and reassuring support to staff. These effective
leaders monitor the management of behaviour. The regular
presence of senior managers around the school is seen by
teachers as important in developing a sense of calm and
order and enabling managers to understand the difficulties
with behaviour that teachers face. Regular opportunities
are organised so that staff discuss behaviour issues and
have opportunities to learn from colleagues and to
observe good practice. A strong staff team is created in
which the emphasis is on mutual support. In the majority
of the schools visited staff are well supported in
understanding and responding to difficult behaviour.
However, in a small number of the schools, mostly
secondary and special schools, staff feel that they receive
inadequate support.
43. Almost all the secondary schools visited had lost at least
10% of their staff in the course of the preceding year. In
one in five, the figure was 25%. In over half of early years
settings, special schools and PRUs, between one and three
posts are filled by temporary teachers. In the smaller PRUs
this represents up to half the staff. These figures are higher
in almost all secondary schools. High staff turnover and a
significant proportion of temporary teachers can lead to
inconsistencies of approach towards pupils with more
challenging behaviour.
44. Good-quality written guidance – for example, in staff
handbooks – helps new staff to come to terms quickly
with the standards and expectations of the school.
However, written documents need to be supported by
a thorough induction programme if expectations are
to be consistently reinforced and a positive ethos
maintained.
45. Most of the schools and units visited have policies and
procedures for staff induction. In early years settings and
PRUs in particular, induction usually includes team
teaching, training and mentoring. For example, in one PRU
visited, the rapid turnover of staff has had little impact on
pupils’ behaviour because induction is thorough and
expectations consistently reinforced.
5 Boys’ achievement in secondary schools (HMI 1659), Ofsted, 2003.
Managing challenging behaviour Action to manage and improve behaviour
12
46. Arrangements for the induction of new staff are less
consistent in other settings. Where the number of new
teachers is high and where the recruitment of middle
managers is difficult, mentoring and induction
arrangements for new staff are not always followed. In
some secure training centres staff are initially employed on
a temporary contract. They work alongside others for nine
weeks as they are inducted and trained, particularly in
behaviour management. Similar arrangements exist in some
independent specialist colleges; programmes consisting of
observations, attending training courses and sharing
common language often last for three months.
Staff training
47. Regular training that links classroom practice to an
understanding of how children develop socially and
emotionally is central to the effective understanding and
management of behaviour. In the schools which have
difficulty managing behaviour, more systematic training for
headteachers and senior staff is needed.
48. The standards for qualified teacher status introduced in
2002 increased the emphasis on training in behaviour
management. Trainees have to demonstrate that they:
know a range of strategies to promote good behaviour
and establish a purposeful learning environment
set high expectations for pupils’ behaviour and establish
a clear framework for classroom discipline to anticipate
and manage pupils’ behaviour constructively, and
promote self-control and independence.
49. Nevertheless, newly trained teachers often report that
their initial training contained very little specific guidance
as to how to understand and manage pupils’ difficult
behaviour. In both initial teacher training and in-service
training, more emphasis is needed on child and adolescent
development and the application of behaviour
management strategies. This requires more than one or
two sessions and needs to be seen as the start of a longterm
programme of training which extends over the
teaching career. LEAs have an important role to play in
organising or facilitating training focused on applying
knowledge about effective practice and management. Too
often, school and LEA training activities react to a
particular difficulty rather than forming part of a planned
programme designed to prevent difficulty.
50. Two thirds of the primary schools in the survey provide
suitable training in managing and improving difficult
behaviour for all staff, including supervisors. Most of the
secondary teachers have received some recent training but
in schools where staff turnover is high, this is rarely
repeated frequently enough. Not all schools and colleges
involve all staff; in particular, teaching assistants and
residential care staff are often omitted. In at least a third of
the primary schools staff identified a need for more
training, including for the management of challenging
behaviour associated with ASD. An increasing number of
secondary schools receive helpful support from behaviour
professionals, funded through the DfES Behaviour
Improvement Programme (BIP) or the Key Stage 3
Strategy. Many teachers in the PRUs have had little
experience of working with pupils who have EBSD and,
even in effective PRUs, training opportunities to develop
strategies for working with the most difficult pupils are
limited. In the FE colleges attendance at staff training is
often voluntary and this can lead to differences in practice
within and between faculties. Some of the college staff
interviewed feel inadequately trained, for example in
relation to physical restraint.
Tracking and analysing behaviour
51. Some of the schools carry out detailed tracking of
behaviour and learning, identify pupils’ needs and quickly
take action. The more effective secondary schools, special
schools and PRUs use this information to timetable lessons,
to organise teaching groups, and to focus attention on
subjects where teaching and learning is less effective.
However, in many of the schools visited pupils’ needs are
identified too late and there is insufficient analysis of
patterns of behaviour. In these schools it is usually a crisis
that leads to belated action.
Action to manage and improve behaviour Managing challenging behaviour
13
Appropriate adaptation of the curriculum
The majority of schools recognise the importance of using
curriculum flexibility to capture pupils’ interests, but this
remains difficult for a small number of primary and special
schools and a quarter of secondary schools.
Additional government funding has allowed some schools
to make adaptations to the curriculum which provide
effective support to pupils with more difficult behaviour.
The provision of out-of-hours activities and residential
experiences offer good opportunities for learners to
develop their social skills.
52. An appropriate curriculum is offered in all the early years
settings visited, in almost all of the primary, special
schools and PRUs and in about three quarters of
secondary schools. In all the schools where the curriculum
is limited and differentiation lacking, there is a high level
of poor behaviour as pupils’ interest, motivation and
involvement decline.
Early years settings
53. In the early years settings visited staff usually discuss
children’s strengths and difficulties and plan the curriculum
to meet their needs. Staff encourage children to select a
broad range of activities then praise them for their choices.
Time spent on particular sessions is sensibly short to enable
children to focus and concentrate effectively.
Primary schools
54. In most of the primary schools the emphasis is on
improving literacy and numeracy skills to enable access to
all areas of the curriculum and so improve attitudes and
concentration. Personal, social and health education
(PSHE) and ‘circle time’ are used to develop social skills. In
about one third of the primary schools, information and
communication technology (ICT) and creative arts are seen
as important motivators for pupils with more difficult
behaviour. In a small proportion of the primary schools the
curriculum is not adapted appropriately for some pupils.
For example, the development of communication skills
is not given enough emphasis in relation to pupils
with ASD.
Secondary schools
55. In the majority of the secondary schools the content and
organisation of the curriculum are recognised as important
factors in capturing and holding pupils’ interest, particularly
those with difficult behaviour. However, for some, delivering
a flexible curriculum remains difficult in practice.
56. In the secondary schools visited few modifications are
made to the curriculum at Key Stage 3 apart from those for
pupils who have been identified as having SEN, and
especially for those with learning rather than behavioural
difficulties. In some, but not all, of the secondary schools
visited the curriculum at Key Stage 4 now includes a range
of vocational and practically based courses. Often such a
curriculum successfully meets the educational needs and
career aspirations of pupils with behavioural difficulties.
57. The quality of teaching is strongly associated with
attitudes and behaviour in lessons. Analysis of this
relationship can play an important role in school selfevaluation
by helping to pinpoint the subjects in which
poor behaviour, as a symptom of low achievement and
disaffection, is most evident. Nationally, the subjects in
which pupils’ attitudes and behaviour are currently least
positive at Key Stage 3 are modern foreign languages,
religious education and citizenship. These three subjects
also feature in Key Stage 4, along with science and
mathematics.
58. A number of the schools visited have received funding from
Excellence in Cities or Education Action Zone programmes.
This funding has generally been used well to adapt the
curriculum to support pupils with more difficult behaviour.
Links with colleges and local businesses have been
extended and pupils spend time out of school acquiring
practical skills. Learning mentors have been particularly
effective in supporting pupils and helping them to manage
and improve their behaviour. Learning support units
provide a variety of activities designed to improve pupils’
Managing challenging behaviour Action to manage and improve behaviour
14
academic, social and behaviour skills. These are most
successful when unit managers liaise closely with other
staff and there are clear systems for re-integrating pupils
into mainstream lessons. However, there are wide variations
between schools. In the least effective units pupils spend
too much time on pointless activities such as copying
material provided by staff.
59. ‘Nurture groups’ have been established in some of the
schools to meet the needs of pupils with EBSD. These have
been established by staff trained to use specific
techniques. The groups have clear boundaries and highly
structured timetables and place emphasis on pupils’ social
and emotional development. They have proved effective in
helping younger pupils to improve their concentration,
behaviour and ability to learn.
A Year 9 pupil with EBSD had poor attendance and
difficult behaviour from the beginning of Year 7. By Year
8 he attended irregularly, was disruptive and was
increasingly excluded. The involvement of an education
welfare officer and the adaptation of his curriculum to
cut out French had little impact. A new approach was
tried in which he followed a curriculum which centred on
his strengths and interests. He attended a local
community farm for two days a week and at school
teachers created an individual timetable which included
attendance at the learning support base. Since then he
has not been excluded, his attendance at school has
improved and he has not missed a day at the farm. He
now has a weekend and holiday job at the farm and is
about to start a course in animal care.
60. Some schools fail to realise the importance of the link
between behaviour and the curriculum. In these schools,
support in lessons is weak, little is done to adapt the
curriculum at Key Stage 3, there is limited opportunity for
work-related learning at Key Stage 4 and too little
monitoring of the curriculum generally. In some of the
schools difficulties recruiting staff have adversely affected
the range of courses offered.
Special schools and PRUs
61. Most of the special schools and PRUs base their curriculum
on a mainstream model but with adaptations to meet
individual needs. In some, in particular in schools for pupils
with EBSD, pupils with more difficult behaviour have
opportunities to follow additional courses in music, physical
education and art. Outdoor pursuits are often included
either weekly or as residential experiences. These
adaptations, when carefully planned, increase pupils’
motivation, improve their attitudes and behaviour and help
build self-esteem. However, in some of the special schools
there is still insufficient focus on developing pupils’ literacy
and numeracy skills and thereby increasing their access to
all areas of the curriculum.
A PRU catering for up to 24 young mothers provides
high-quality teaching through a broadly based and
relevant curriculum with an emphasis on child
development. Expectations are high and relationships are
good and as a result these young mothers make very
good progress. Many exceed the GCSE grades predicted
by their previous schools. Previously most had poor
attendance, had disengaged with school and their
behaviour challenged staff. In the supportive ethos of the
PRU they make very good progress in their personal
development and instances of poor behaviour are rare.
The high-quality on-site nursery makes a valuable
contribution to the regular attendance of these young
mothers. They can focus on their learning, secure in the
knowledge that their children are receiving good care.
FE colleges
62. In the general FE colleges visited the size and number of
courses allows wide choice and there is sufficient flexibility
for changes to be made once courses are underway. Good
progression opportunities exist from programmes followed
by 14 to 16 year olds.
63. The curriculum in the independent specialist colleges is
well adapted to suit the needs of the students; for
example, there is a focus on developing independence and
communication skills.
Action to manage and improve behaviour Managing challenging behaviour
15
Out-of-hours activities
64. Some of the schools, in particular secondary schools, have
found that a good range of additional activities increases
interest and better engages poorly behaved pupils, a
message underlined in the Ofsted report, Improving City
Schools.6 In about half the primary schools, pupils have the
opportunity to take part in extra activities during and after
the school day and to go on a residential trip. In some of
the secondary and special schools summer holiday courses
prior to admission to Year 7 offer good opportunities for
pupils to get to know their peers and develop their social
skills. In special schools there are more opportunities for
pupils to take part in residential experiences but fewer outof-hours
activities because of difficulties with home-toschool
transport. The secondary schools, in particular those
which are specialist schools, increasingly offer a wide range
of activities at lunchtimes and after hours.
The school’s designation as a sports college has led to an
increase in the activities offered, which number over 100.
Pupils are encouraged to find their own special interest
and to become more closely involved. This has a positive
effect on their attitudes, behaviour and their academic
achievement across the curriculum, including those more
difficult and potentially disaffected pupils.
Effective teaching and learning
The most effective teaching for learners with the most
difficult behaviour is little different to that which is most
successful for all groups of learners.
Learning is best when staff know pupils well and plan
lessons which take account of the different abilities,
interests and learning styles.
A positive classroom ethos with good relationships and
strong teamwork between adults encourages good
behaviour.
Late starts to lessons, disorganised classrooms, low
expectations and unsuitable tasks allow inappropriate
behaviour to flourish.
Pupils often react badly when staff show a lack of respect
for or interest in them.
Link between teaching and behaviour
65. The Elton report, Discipline in schools, identified 80% of
disruption in schools as being ‘directly attributable to poor
classroom organisation, planning and teaching’. In most,
but not all, of the settings visited in this survey, it is
recognised that effective teaching and learning is a key to
encouraging good behaviour and engaging those pupils
who have the most difficult behaviour. The most effective
teaching for learners with the most difficult behaviour is
little different to the most successful teaching for others.
66. Inspection of schools in challenging circumstances –
reported, for example, in an update to Access and
achievement in urban education – shows that deteriorating
behaviour goes hand in hand with a decline in the quality of
teaching.7 Among the factors that influence this are:
changes of staff; lack of consistency of expectation; failure
to plan lessons satisfactorily to meet wide ranges of need;
and lack of variety in strategies to engage pupils in learning.
67. The visits in this survey found many illustrations,
particularly in secondary schools, of the fact that the
behaviour of the most difficult pupils varies between
lessons and teachers. Pupils’ attitudes, behaviour and
achievement are best where staff know pupils well and plan
lessons which are well matched to their abilities and
interests and take account of their different learning styles.
In these lessons the transition between activities is
managed well. High expectations are constantly reinforced
and staff give meaningful praise. Marking is positive and
takes learning forward. Pupils assess their work and discuss
their progress with staff.
68. Where teaching is effective for all pupils there is good
teamwork between teachers and assistants. Assistants
contribute to the learning of all pupils in the classroom
rather than focusing only on individuals. Roles are clear and
there is a shared understanding about the lesson content.
Relationships between teachers and pupils are good;
humour is used well, which helps pupils to enjoy lessons.
The pace of lessons ensures all sustain concentration and
motivation. Wherever possible, oral instructions are
6 Improving City Schools (HMI 222), Ofsted, 2000.
7 Access and achievement in urban education: ten years on, Ofsted, 2003.
Managing challenging behaviour Action to manage and improve behaviour
16
reinforced by visual clues and realistic time scales are set
for each task. Questioning is highly effective. It is
structured to match pupils’ ability levels so that all are
involved. Staff allow learners time to respond.
In story time for a group of six primary pupils the
teaching assistant read a story aloud while the teacher
observed the children and noted their responses.
Interesting props were used to bring the story to life. A
pupil with a short concentration span and poor social
skills sat in a fairly calm manner for the introduction and
first part of the story but soon became distressed as he
was not actively involved. The teaching assistant quickly
spotted this and deliberately asked him a question before
he had time to demand attention through inappropriate
behaviour. To answer the question he had to get up and
select resources. He did this well, was praised for
knowing the story and thanked for making a correct
choice of resources. He smiled, returned to his seat and
sat quietly for the rest of the story.
69. Pupils with the most difficult behaviour respond positively
when classrooms are well organised, there is a cheerful
greeting from staff on arrival and routines for the start and
end of lessons are clear. Seating plans, especially in
secondary and special schools, help pupils with the most
challenging behaviour to settle quickly. Teachers who are
effective in reducing unacceptable behaviour are quick to
intervene and divert pupils’ attention. They apply a variety
of strategies to engage and hold pupils’ interest and so
minimise the impact of negative behaviour. When
behaviour is more difficult they adopt a consistent and
non-confrontational approach and they always show
respect for pupils.
During a literacy session in a school for pupils with SLD
one pupil became distressed, hitting his head on a table
and kicking out. A teaching assistant sitting close to the
pupil quickly intervened. She followed the clear
guidelines for managing his behaviour, which consisted of
removing him from the classroom. This was done rapidly
but sensitively. After a short time the pupil returned to
class where he settled down to work. After five minutes
the pupil again became distressed and the same
procedure was followed, this time by the teacher. The
teaching assistant carried on with the story and the pupil
soon returned in a calm manner. Throughout the session
individual strategies for managing behaviour were
implemented consistently and disruption for other
learners avoided.
70. In schools where the link between good teaching and
improving behaviour is not clearly made and pursued,
incidents of difficult behaviour are more common. In
particular, in the secondary schools visited, school
procedures for managing behaviour are not always
followed consistently in all lessons. Where disruption is
more common lessons tend to start late, arrangements for
entering the room are disorganised and pupils often wait
too long in corridors at the start. Expectations are low and
the tasks, which tend to be unimaginative, are too simple
or too difficult, especially in relation to pupils’ capability in
literacy. Often teachers give too many oral instructions so
pupils become confused. Lessons seem long and there are
few opportunities for learners to explore and develop their
own ideas. In some of the general FE colleges
inappropriate resources are used which are outside
students’ life experiences.
71. In many settings, there are cases of limited or unhelpful oral
and written comments being given to learners about their
work. In a small proportion of the schools some staff show a
lack of respect by shouting at pupils, making fun of them,
making personal remarks or using sarcasm. Some pupils
react badly to such comments and to those who come too
close, grab, hold or touch them even in mild restraint. Those
with the most difficult behaviour often respond with verbal
abuse. Poor behaviour escalates quickly, lessons are
disrupted and the learning of all pupils is adversely affected.
A Year 2 lesson started late. Too much time was spent in
organising the seating arrangements. The teacher failed
to impose her authority on the class from the outset.
As the lesson progressed the noise level started to rise.
Action to manage and improve behaviour Managing challenging behaviour
17
The teacher constantly told pupils to ‘shush’ but took no
further action. Most pupils ignored this. The whole class
activity of recognising definitions of words was too long
and undemanding. Some pupils became distracted and
lost interest which led to low-level but persistent
disruptions such as pupils prodding and distracting each
other, which gradually affected the learning of all.
Well-focused pastoral support and guidance
Support and guidance tend to be good in schools where
there is a strong sense of community and the staff
regularly celebrate pupils’ successes.
The most effective pastoral support systems are those in
which there is careful and regular tracking of pupils’
learning and behaviour.
The role of the tutor in secondary schools and colleges is
of great importance in supporting those with the most
difficult behaviour. However, the effectiveness of tutor
support varies considerably.
What good pastoral systems can do
72. Pastoral systems that are effective for pupils with difficult
behaviour are designed to support pupils both with their
learning and their behaviour. Where there is a positive
ethos in which staff regularly celebrate success, support
and guidance tend to be good. A strong sense of
community is established. Staff act as excellent role models
and they talk with pupils about appropriate ways to behave
and respond in difficult situations. Strong relationships are
based on mutual respect and staff treat pupils fairly at all
times. Teachers know their pupils well and additional
support is given to pupils who require it. However, in many
of the schools, even where numbers are small, not all staff
know all the pupils and this can have a negative effect on
the behaviour of the most difficult pupils.
73. In the early years settings and most of the primary schools
staff support pupils well. In the secondary schools where
support and guidance are good, all staff, from form tutors
to senior managers, are involved in the process. In the
special schools, PRUs, secure training centres and
independent specialist colleges pupils often receive good
support from their tutors which has a significant impact in
helping them to improve their behaviour.
74. The effectiveness of the tutor system in secondary schools
varies considerably. The daily meeting with the form or year
tutor can provide an excellent opportunity to reduce
tensions, sort out grievances and deal with situations well
before they get out of hand. However, poorly managed
sessions result in quite the opposite. Teachers require
training to ensure that tutor time is used to the benefit of
all pupils.
75. A good example of a school adapting its system better to
support pupils was described by pupils in a school council
meeting.
‘The new tutor system is good. Since we moved to the
new vertical tutoring system people have gotten to know
older and younger pupils better. Older pupils help younger
ones with homework and course work. Younger pupils feel
they know the older pupils and the older pupils look out
for the younger ones. It has helped in reducing bullying
and with the peer mentors others have been involved in
being ‘buddies’ of pupils who have got into difficulty.
Prefects on duty also help reduce bullying and
intimidation and there has been a change in who plays
with each other. Football games involve more mixed ages
than before. We still get incidents of bullying but we also
get quicker and better support to deal with it.’
76. Pastoral systems are most effective when there is careful
and regular tracking of pupils’ social and academic
progress. Setting precise targets and rewarding
achievement for small improvements is an important part
of the process. This happens on a daily basis in many of
the special schools, PRUs and secure training centres,
but less so in some of the secondary schools. Making
time for effective pastoral support is critical and can lead
to the effective resolution of repeated or extended
difficult behaviour.
Managing challenging behaviour Action to manage and improve behaviour
18
In an inner-city area a child in public care with a
statement of special educational needs had attended
five primary and two secondary schools prior to the
current placement. The pupil did not trust adults or
understand his role in relationship to them. As a result,
the boy did not modify his behaviour according to
different circumstances and he frequently challenged
what adults said. This led to innumerable detentions and
fixed-term exclusions.
Learning mentors gathered and tracked information
about his attitude in a range of situations and set up a
‘buddy’ scheme and other elements of a behaviour
management programme. Staff were told about these
and shown how to implement them and additional tutor
time was allocated. A ‘buddy’ acted as a warning for the
pupil, showing him when his behaviour or language was
inappropriate. While the new system had only been in
place a term, the daily round of confrontation has ceased
and there has been only one incident since.
Rewards and celebration
77. Schools which support pupils well are quick to
acknowledge and celebrate pupils’ achievement and reward
systems are applied consistently. Individual rewards help
encourage pupils to take responsibility for their own
behaviour. However, in some of the schools the focus is on
negative behaviour and punishments rather than the
rewarding of successes. In some of the general FE colleges
achievement may be recognised in lessons but there are
few opportunities for the wider sharing of successes.
In one school for pupils with EBSD a meeting is held for
all staff at the end of the day where nominations are
made for ‘star pupils’. These nominations are used to
encourage pupils who have behaved poorly but are trying
to make amends with subsequent good behaviour. Pupils
are praised publicly for their successes. The meeting is
also used to reflect more generally on successes and
difficulties encountered during the day and to review the
strategies used.
Responsibilities
78. In many of the schools and units pupils are encouraged to
take responsibility for every aspect of school life. Pupils
carry out duties in their classroom at an early age and as
they become older the responsibilities increase. In these
schools teachers listen to pupils and involve them in
whole-school decisions, for example, through the school
council. Often they develop school and class rules and
work alongside staff in setting and reviewing their own
targets. ‘Circle time’ is used well in many of the primary
and some of the secondary schools to promote school
rules and develop strategies to enable pupils to take
responsibility. Some of the schools have ‘buddy’ or peer
mentoring systems which support pupils with the most
challenging behaviour well. The involvement of pupils in
supporting each other could be developed further in
many schools.
The school has a centre for nine pupils with ASD. On
admission to the school each pupil is assigned two
‘buddies’ from Year 6. These buddies support the pupil at
assemblies and playtimes. Buddies take their
responsibilities seriously and show pride in being selected
to hold these privileged positions. Their work is carefully
and sensitively supervised by adults. Buddies help pupils
settle in and to remain calm at difficult times.
79. Some of the secondary schools successfully use ‘restorative
justice’ to help pupils take responsibility for their own
behaviour. However, a significant number of schools do not
encourage pupils to take responsibility or to contribute to
decision making processes. Consequently, these schools do
not reach those pupils who are more easily disaffected
by school.
Good involvement of parents and carers
Links with parents are most successful when parents are
seen as partners rather than being blamed for the poor
behaviour of their children.
Parents welcome news of their children’s successes as well
as being informed about unacceptable behaviour.
Action to manage and improve behaviour Managing challenging behaviour
19
80. Overall, early years settings and primary schools are more
successful in involving parents and carers than other
settings. In early years settings staff maintain close links
with parents; in many cases, communication between them
takes place each day. This leads to a consistent approach at
home and school and helps to improve pupils’ behaviour.
When this child started at nursery school, the mother
and practitioner discussed the concerns the mother had
regarding her child’s behaviour at home. The
practitioner carried out some detailed observations of
the child’s play in the nursery and a team of nursery
staff discussed possible strategies to manage the child’s
challenging behaviours. Staff regularly reviewed
strategies with the mother. In the first term significant
improvements in her child’s behaviour were evident at
home and school.
81. Where partnerships between parents and schools are
strong, parents are involved as soon as concerns arise.
Parents are seen as partners rather than being blamed for
the poor behaviour of their children. The quality of
information provided for them is good and the school or
unit has a welcoming attitude towards them. Parents are
encouraged to share in celebrating pupils’ successes
through achievement assemblies, home-school diaries and
newsletters. In a small proportion of the early years
settings and schools, voluntary agencies link well with
home and offer valuable support to parents, pupils and
school staff.
82. In some of the schools, most frequently special or
secondary schools, there are weaknesses in the school’s
partnerships with parents. In some, parents are not made
aware of behaviour policies. In a significant number of the
secondary schools and some special schools, there is not
enough emphasis on sharing with parents the successes of
those with challenging behaviour so that most contact with
them is about unacceptable behaviour. Not all of the
special schools involve parents in the development of
pupils’ behaviour programmes; some merely inform parents
of them. In the secure training centres, liaison with parents
is often difficult because pupils come from a wide area and
turnover of young people is high. Some of the general FE
colleges take the view that parents can get involved if they
want but it is their responsibility to do so. This is not
always helpful in managing the behaviour of the most
difficult students.
A welcoming environment
The quality of accommodation and of the learning
environment has a significant impact on the behaviour of
pupils and students; it should not be underestimated.
Too few schools involve pupils in the design, maintenance
and improvement of buildings to foster a sense of
belonging and help to reduce vandalism.
The lack of a quiet room which pupils can go to calm
down is a handicap for those with more challenging
behaviour.
83. The physical environment is generally better in the early
years settings and primary schools than in the secondary
schools, special schools, PRUs and some general FE
colleges. It is good in less than one in five of the secondary
schools and one in three of the PRUs.
84. The quality of the learning environment has a significant
impact on the behaviour of pupils and students. A
welcoming and stimulating environment tends to foster
good behaviour. In many schools senior staff are aware of
the impact that the environment has on behaviour and
they seek to ensure that the cleanliness and brightness of
accommodation are maintained. A high priority is placed
on the condition of the buildings and much thought is
given to how they are used. When damage occurs it is
quickly repaired. High-quality displays celebrating
pupils’ achievement are evident in communal areas
and classrooms.
85. Such an environment is likely to result in pupils having
pride in their place of learning which, in turn, has a positive
impact on their attitudes and behaviour. In the primary
Managing challenging behaviour Action to manage and improve behaviour
20
schools where play areas for younger children are well
organised and supervised, poor behaviour is reduced. The
schools which have organised lunchtime activities notice an
improvement in behaviour. Those which try to involve
pupils in the design, improvement and maintenance of the
buildings find this fosters a sense of belonging, helps to
develop positive attitudes and reduces vandalism. Too few
of the schools involve pupils in this way.
The school has made the improvement of the
environment a high priority. The playground has been redesigned
with areas designated for team games, a
shelter, painting area, rebound wall and benches. Pupils
report that the playground is much better now and as a
result their behaviour has improved.
86. A poor quality environment has a negative impact on
behaviour. In some schools, mostly secondary, there are few
displays of pupils’ work and, where there are, the quality of
displays varies noticeably between rooms. In some of the
classrooms poor acoustics make it difficult for pupils to
hear or to sustain concentration. Some of the schools are
untidy and disorganised with unattractive communal areas
and confusing layout. Long distances for pupils to travel
between lessons often result in lateness and the need for
corridor patrols to maintain order.
87. The external appearance of the PRUs visited is often poor;
in some, but not all, staff make the best possible use of
inadequate accommodation. In some special schools there is
little space to store resources and equipment. In over half
the EBSD schools there are no specialist teaching spaces for
subjects including music, ICT, and design and technology –
which are subjects that often motivate pupils. In some of
the special schools conditions are cramped; there is no quiet
room in which pupils can calm down. This is a major
weakness: pupils with challenging behaviour need a place to
go to when their behaviour gets out of hand.
88. In a high proportion of the general FE colleges there are
few displays of pupils’ work, buildings are in a poor state of
repair, there are too few recreation facilities for the
numbers of students, and corridors are impersonal. These
inadequacies have an adverse effect on students’ attitudes
and behaviour.
Only half the schools visited have established satisfactory
relationships with an appropriate range of services.
Even when partnerships are strong, evaluation of their
impact is weak.
The quality of LEA support provided for schools in
managing difficult behaviour varies.
Some LEAs co-ordinate multi-agency working effectively,
but too many do not.
Links with social services are weak in most early years
settings and schools.
Links with health services are undeveloped in at least a
third of schools and units.
Increasingly, schools have good links with voluntary
groups and community projects which support pupils and
their families well.
Basis of multi-agency working
89. Effective multi-agency work requires strong collaboration
between partners. However, there are still many instances
where the communication between schools and
professionals is weak, and different organisations fail to
provide well-informed, co-ordinated advice and treatment.
90. About half of schools visited have satisfactory working
relationships with a range of agencies. Some of the
schools have created a base where various professionals
can work together and this helps to promote more
successful joint working.
On an initial visit to a school the parents of a child with
autistic tendencies discussed their child’s needs. The
school listened carefully to the parents, and sought
advice and training prior to the child’s admission. The
class teacher carried out detailed on-going observations
of the child’s behaviour. In collaboration with the special
needs co-ordinator and LEA Behaviour Support Service,
she drew up possible interventions and behaviour
management strategies. These were discussed with the
parents so that a consistent approach was established at
home and school. The close partnership that developed
between the parents, school staff and other professionals
enabled the child to make significant progress in a
mainstream school.
One secondary school visited sets out deliberately to be
at the heart of community improvement and to involve
the community fully in the work of the school. The school
makes extensive use of a wide range of partners and
agencies which are used effectively to motivate pupils
and improve behaviour. Work with agencies is coordinated
well through a multi-agency co-ordinating
group which meets monthly in the school and is chaired
by a senior youth offending team worker. This contact
ensures a consistent approach between agencies and the
school. The work with agencies and partners is
preventative and is having considerable success in
creating the conditions where difficult behaviour rarely
occurs in the school and the community.
91. In about half the schools procedures for working with
external professionals are unclear and information is not
shared effectively. Some of the secure training centres have
few links with other agencies partly because admissions are
from a very wide area. A good range of support is available
to the general FE colleges, but systems for liaison and
sharing information are not well established.
LEA services
92. Some local authorities co-ordinate multi-agency work
effectively, but there are still many instances where
professionals from different organisations fail to provide
timely, well-informed advice and action. Some have joint
funding arrangements and in a small number education and
social services teams now work within a unified department.
More needs to be done to create opportunities for joint
training and closer working arrangements.
Support from a range of external professionals at this
primary school is good. The LEA Behaviour Support
Service provides good strategic advice to staff in the
specific management of pupils with behaviour that
challenges. The school nurse provides very good support
to the school and individual pupils. She keeps in close
Effective support from other services Managing challenging behaviour
21
Effective support from
other services
Managing challenging behaviour Effective support from other services
22
and regular contact with the school and provides a
valued link between the school and health professionals.
She has strong contacts with local organisations and
refers individual pupils to a variety of support services.
There are only short waiting times when referral is made
to Child and Adolescent Mental Health Services. This is
partly because the school is making use of the full range
of services in the local area, rather than going first to the
mental health services.
93. The quality of LEA support for schools in managing
difficult behaviour varies. LEA inspection reports for
2002/03 indicate that schools receive good or very good
support for behaviour in only one in five LEAs. Many LEAs
provide help through behaviour support teams of specialist
teachers. This is generally appreciated by schools, although
it is often thought insufficient.
94. Links between LEAs and early years settings are at least
satisfactory. Some have inclusion officers assigned to them
whose role is to co-ordinate additional support. About half
the primary schools visited were satisfied with the LEA’s
behaviour and learning support services. One quarter work
closely with them to establish effective procedures for
managing difficult behaviour. For example, they promote
whole-school behaviour management strategies or help
teachers plan more appropriately for the range of needs
and abilities. In one LEA, schools have developed good
relationships with a crisis response service which carries out
preventative work and gives schools confidence in
managing pupils with the most difficult behaviour, but less
than half of secondary and special schools have such links.
Some report that LEAs have little expertise to offer in
helping them to manage these pupils.
95. Most of the LEAs visited offer training for schools in issues
related to managing behaviour. Some support primary
schools in particular, by introducing approaches to promote
pupils’ emotional and social development. In some LEAs
training and support is offered free of charge to newly
qualified and temporary teachers but attendance on many
courses is low.
96. The support which schools and units receive from
educational psychologists varies. In this survey, all the
early years settings, one in six primary schools and one in
four secondary schools reported that support from
educational psychologists is good. In these schools
educational psychologists work with staff to develop
whole-school policies, advise individual members of staff
and assess and support individual pupils. However, at least
half the schools reported difficulties in accessing support
as a result of staff shortages. Almost one in five of the
schools find the support received to be of little help in
managing and improving the most challenging behaviour.
In at least a quarter of the special schools and a larger
proportion of the PRUs, support from educational
psychologists is insufficient and most of their time is spent
on statutory assessments. Links with education welfare
officers are well established in only a small proportion
of the primary schools and in about half the
secondary schools.
Social services
97. Schools tend to feel poorly supported by social services,
although they generally understand some of the difficulties
these services face and appreciate the pressure on staff
from the number of referrals. Evidence from the visits
indicates that support from social services departments is
inadequate in most of the early years settings and schools.
Responses to requests are often too slow, and in at least
half of settings representatives from social services failed to
attend crucial meetings. Links with social services are good
in the early years settings which are funded and run jointly
by education and social services. In such cases staff have
common procedures and information is effectively shared.
98. Nevertheless, when individuals at a local level within
social services, school and the youth service are able to
work together, substantial progress can be made through
joint working.
A Year 10 refugee had been excluded from his previous
school because of violent behaviour. The current school
reviewed the reasons for the exclusion and, together with
Effective support from other services Managing challenging behaviour
23
social services and carers, put together a package of
support on admission. This consisted of the peer mentor
attending all lessons with the pupil, daily contact with a
learning mentor, counselling sessions, support from a
Somali youth worker trained in anger management and
active contact with the wider Somali community, which
strengthened the school’s position. The involvement of
the social worker was crucial. Regular discussions
between the carer, social services and school resulted in a
common home/school approach to managing attitudes
and behaviour. The school has used three fixed-term
exclusions as a planned means to underpin the gravity of
subsequent violent behaviour, but such incidents are now
rare and the pupil is gradually improving with fewer
examples of out-of-control behaviour.
Health services
99. In some areas of the country Child and Adolescent Mental
Health Services (CAMHS) are now working closely with
educational settings. Regional development workers have
been appointed in all areas to improve joint working and to
meet the standards set out in the Children’s National
Service Framework. By 2006, CAMHS aim to provide a
comprehensive service which includes mental health
promotion and early identification.
100. In this survey the numbers of pupils with difficult
behaviour receiving support from CAMHS varied between
LEAs. A few children in a small number of early years
settings and a small number of pupils in about one third
of primary schools receive CAMHS support. In half the
special schools, mostly SLD and EBSD schools, up to 20%
of pupils receive support and in most secondary schools a
small number fall into this group. The highest proportion
of pupils receiving CAMHS support is in the PRUs. This
figure varied from 5% in one primary unit, to over 80% in
one secondary PRU.
101. In at least one third of all the schools and units
partnerships with the health services are weak. There is
little liaison between school and health professionals and
referral times are often too long. In almost a third of the
primary schools support from CAMHS is not available or
response is slow. In about a third of the secondary
schools support from school nurses is well established and
pupils, for example those in danger of self-harm, receive
good support. Some of the special schools, including
independent special schools which cater for pupils with
some of the most challenging behaviour, receive very
little or no support from CAMHS.
Connexions services
102. Support from Connexions service personal advisers is
good in about half the PRUs and secondary schools. On
the evidence of this survey, it is better in the colleges
than schools. Links with the police and with youth
workers are good in almost half the secondary schools.
One college has established a multi-disciplinary
behaviour team made up of senior academic staff,
support staff, therapists and business support staff,
chaired by an educational psychologist. The team
maintains a high profile, manages the whole-college
training programme, and reports to the senior
management team. There is a strong emphasis on
consistent approaches across the college. The team
gathers detailed information on behaviour issues through
the use of the behaviour reports and this information is
used to inform strategy decisions.
Voluntary organisations
103. Some primary schools visited have effective links with
voluntary organisations and where this is so working
practices are well established and staff, families and
pupils benefit from the counselling and training provided.
About half the secondary schools have developed strong
partnerships with counsellors, bereavement officers,
drug intervention projects and other local groups which
help them to manage the behaviour of the more
difficult pupils.
At this secondary school a multi-agency review meeting
is held and attended by heads of year, welfare officers,
Connexions staff, learning support staff, the behaviour
Managing challenging behaviour Effective support from other services
24
support service, the school counsellor and other
professionals when appropriate. The group meets every
two weeks to discuss individual pupils and make joint
decisions about intervention strategies and involvement
from other professionals. The deputy headteacher chairs
the meeting, tracks referrals and identifies the key worker
who will be responsible for pastoral support plans. The
group also provides a training forum for heads of year
and identifies areas for staff development.
Monitoring, evaluating and improving provision Managing challenging behaviour
25
Many schools and colleges have weak monitoring and
evaluation procedures; too little regular tracking of
behaviour takes place.
Most LEAs carry out too little monitoring of how
successfully schools manage difficult behaviour.
104. Wider inspection evidence indicates that schools which
use information systems well are in a good position to
analyse patterns of behaviour and take action accordingly.
Overall, schools, units and colleges are poor at monitoring
and evaluating their own provision and the impact of
support from external agencies on the attitudes and
behaviour of the more difficult pupils. This survey
indicates that in a third of the secondary schools systems
for identifying difficulties and tracking progress are weak.
105. Monitoring and evaluation tend to be better in the small
early years settings than elsewhere. They are well
established in less than half the primary and special
schools, secure training centres, PRUs and FE colleges,
and weak in at least a quarter. In the secondary schools
procedures are good in only one third and weak in a
similar proportion.
Schools and PRUs
106. In schools with well-established procedures for monitoring
the outcomes of interventions for pupils with the most
difficult behaviour, the process involves a range of staff,
all of whom have clear roles and responsibilities. In some
special schools there are isolated examples of good
practice by individuals but in most this is not evident
across the school.
107. An increasing proportion of schools have systems for
tracking pupils’ academic and personal development but
only about a third of the secondary schools identifies and
tracks pupils’ difficult behaviour well. In a significant
number of the schools behaviour targets are often vague
and unhelpful to both pupils and staff. In some of the
secondary and special schools, where pupils are on daily
behaviour programmes, there is a lack of consistency
among staff in discussing and recording pupils’ progress.
In many of the schools insufficient attention is given to
variations between pupils’ behaviour from one lesson, or
one teacher, to another, or at different times of the day.
Little consideration is given to the events leading up to
episodes of particularly challenging behaviour. A lack of
awareness of these factors can result in staff failing to
make some simple adaptations which could help pupils
manage and improve their difficult behaviour.
108. In over a quarter of the schools and units, monitoring is
weak and senior staff or individual teachers are slow to
share information which could benefit all and lead to
changes in the strategies used to manage behaviour. As a
result staff do not have access to well-founded
information or strategies to assist them in managing
pupils with more difficult behaviour.
109. However, when information over time is collated well and
senior staff act decisively on the analysis of the
information, remarkable change can be brought about.
When one girl transferred from primary to secondary
school her history of organised bullying continued. The
secondary school’s efficient tracking system quickly
identified when and where incidents occurred. This
triggered intervention from the head of year who
allocated learning and peer mentors trained in
‘restorative justice’ techniques to support the girl and her
parents. It transpired the girl had been bullied herself. A
support programme enabled the pupil to explore her own
behaviour and linked her to a friendship network which
minimised her need to threaten others. The change has
been outstanding and led to a real improvement in selfesteem
and a request from the girl to be trained as a
peer mentor herself.
Colleges
110. Assessment and identification of needs are more
consistent in independent specialist colleges than in the
general FE colleges, where practice is variable within and
between faculties. In the general FE colleges, staff are
Monitoring, evaluating and
improving provision
Managing challenging behaviour Monitoring, evaluating and improving provision
26
often unaware of pupils’ difficulties at the time of entry
either because of the poor quality of information
provided by feeder schools or poor internal systems which
preclude the sharing of information. Students joining
courses later than the usual entry time often receive
limited screening and support. The amount of information
independent specialist colleges receive from special
schools varies a great deal.
111. Where monitoring and evaluation are weak it is difficult to
measure the value for money provided by additional
interventions and hence finance can be wasted on
strategies which have limited impact. In most of the
schools little, if any, monitoring and evaluation is carried
out on the impact of the work of external professionals.
Where intervention from external agencies is well coordinated
and managed by senior managers, monitoring
and evaluation of the impact are usually more thorough.
In a very small proportion of the secondary schools this
allows staff to make judgements and comparisons about
the value for money achieved from different services
which support pupils with more difficult behaviour.
Monitoring and evaluation by LEAs
112. Most LEAs carry out very little monitoring of how
successfully schools manage the most difficult behaviour.
Data on permanent exclusions is collected and analysed
and some of the LEAs analyse fixed-term exclusions.
A smaller proportion look at information in detail to
establish which groups cause concerns in which schools.
As more schools carry out audits of behaviour, for
example, through the Primary Strategy and the
Key Stage 3 Strategy, so the information available to
LEAs is increasing.
113. Evidence from a range of Ofsted inspections shows that
the substantial funding which the DfES has provided to
support provision in schools is proving generally
beneficial. Among the examples are learning mentors and
learning support units funded by Excellence in Cities. The
training and inter-agency support for school staff
provided through the Behaviour Improvement Programme
are other examples. However, few LEAs and schools are
good at quantifying evidence of the impact of provision,
so there is often a lack of hard data on the effectiveness
of initiatives.
114. In the last three years there has been a significant
increase in the number of pupils attending independent
schools for pupils with SEN. Many of the pupils admitted
to these schools have EBSD or SLD, often with associated
challenging behaviour. In some LEAs the data on pupils in
out-of-area schools is not easy to access and little
monitoring and evaluation of these placements take
place. However, as LEAs attempt to reduce the use of
out-of-area placements, this can result in pupils with the
most difficult behaviour being placed inappropriately,
usually in PRUs. In a quarter of the PRUs visited the
inappropriate mix of pupils on roll had a negative impact
on those pupils with more anxious, withdrawn and
depressed behaviour.
Views of children and young people and parents and carers Managing challenging behaviour
27
Children and young people
Older pupils appreciate the good support they receive
from assistants and mentors.
They enjoy lessons in which teachers show them respect,
offer interesting activities and make learning fun.
Pupils and students feel they make better progress in their
learning and behaviour when in small teaching groups.
115. The majority of pupils with more difficult behaviour find
that having a particular member of staff whom they trust
and can turn to in times of trouble helps them to manage
and improve their behaviour. They appreciate having a
quiet place to go to calm down when their behaviour has
been unacceptable. In schools which manage difficult
behaviour well pupils feel safe and are confident that
issues such as bullying are dealt with swiftly and fairly.8
116. Pupils describe the good teachers as being those who
respect pupils, offer interesting activities and make
learning fun. A number say they like ‘strict’ teachers who
give clear boundaries. Older pupils in mainstream and
special provision appreciate the good support they receive
from assistants and mentors, especially when support is
discreet and staff are not always sitting by their side.
Pupils feel their behaviour is better with teachers who
have a good sense of humour and who ‘deal with you
privately’. They tend to prefer practical activities, in
particular drama and PE. A few young people in secure
training centres become bored with lessons where
computer work constantly dominates. Such lessons ‘drag
on’ and behaviour deteriorates. Learners like lessons which
start with the teacher explaining the purpose and content.
117. Pupils in the PRUs appreciate the time staff give to
explain things and support them. Some spoke of their
difficult experiences in the past and their pride in the
progress they have made where they are treated more like
adults. Their relationships with others are good, whereas
they had difficulties in previous placements. They feel
that these units have given them a second chance.
118. The small size of groups was seen by pupils in the PRUs,
special schools and students in some of the general FE
colleges as an important factor in helping them to make
progress in their learning and behaviour. In these settings
they receive more individual attention, teachers know
them better and good relationships can be established.
119. In the special schools most feel they are improving their
learning and behaviour. Pupils, especially those in EBSD
schools, appreciate the clear and consistent rules. In one
third of these schools pupils enjoy the varied curriculum
which includes residential trips and opportunities to
experience a range of outdoor pursuits. In the secondary
schools a small number feel that anger management,
social skills sessions and youth clubs have helped them to
improve. However, others would like more appropriate
courses, such as those which provide work-related learning.
120. A significant number of pupils in the secondary schools
dislike the inconsistent expectations shown by different
teachers. They feel that some teachers do not explain
things well, they shout too much, are too strict and
seldom give any praise. In some lessons they feel they
have been branded as a result of past behaviour and a
punishment after each lesson is likely.
121. In a number of the secondary and some of the special
schools and PRUs pupils mentioned the support they
receive from outside agencies and in-school counsellors
as particularly helpful in improving their behaviour and
ability to learn. Meetings between parents, behaviour
support workers and school staff are seen as important.
122. In about one third of the primary schools pupils know
what they need to do to improve their behaviour and
some talk about the strategies they use or the places they
go to help them calm down. Most pupils in the secondary,
special schools and PRUs know their individual targets
and like the system for recognising and rewarding their
achievement. In the PRUs and special schools they tend
to enjoy receiving certificates to celebrate their successes.
Some secondary school pupils feel the rewards themselves
Views of children and young people
and parents and carers
8 For a detailed account of what schools do to counter bullying, see Bullying: effective
action in secondary schools (HMI 465), Ofsted, 2003.
Managing challenging behaviour Views of children and young people and parents and carers
28
need to be better so that they are more motivated to
improve their behaviour.
Parents and carers
In schools and units where difficult behaviour is managed
well, parents and children feel well supported by staff.
Some parents are concerned that there is insufficient
liaison between external professionals and schools.
Transition from primary to secondary education is a
concern for a significant number of parents.
123. Almost all parents interviewed in schools and units where
difficult behaviour is managed well spoke highly of the
way in which staff supported them and their children. For
younger pupils, daily contact through meetings, phone
calls and home/school diaries keep parents well informed.
This support results in good progress in behaviour and
social skills both at school and at home. In the primary
schools parents almost always feel they are listened to
and respected. They appreciate the good support children
receive from staff who provide positive role models and
have high expectations for their children.
124. In the secondary and special schools and PRUs, almost all
the parents interviewed were positive about the schools’
supportive, approachable and flexible attitudes. Some of
the parents feel that, rather than giving up on their child,
teachers, assistants and learning mentors provided strong
support. Communication between school and home is
frequent and parents appreciate both the positive and
negative reports. Many of the parents report
improvements in pupils’ behaviour and relationships at
school and within the home. In a significant number of
the PRUs parents are pleased with the progress their
children make in examination courses and the way in
which they are prepared for a return to mainstream
education.
125. A small number of the parents describe good working
relationships between schools and other agencies, in
particular CAMHS and Connexions. Parents of pupils in
the special schools mostly appreciate the all-round
support offered to them and to their children. Parents of
students in the independent specialist colleges are
pleased with the support they receive in helping to
understand their child’s difficulty and how best to
manage it. However, this positive picture is not replicated
in the majority of settings.
126. Some common areas of concern exist. In the early years
settings parents sometimes find that there is insufficient
liaison between agencies, such as child and educational
psychologists, and that insufficient information is
transferred from outside agencies to receiving schools. In
the primary schools and some of the schools for pupils
with EBSD, a minority of parents describe a lack of
sharing of information between professionals, for
example, between CAMHS and schools. In a small number
of the schools the strategies suggested by external
agencies have not been implemented and parents are
forced to follow this up, sometimes with limited success.
127. The transition from primary to secondary education is a
concern for a significant number of parents. Where good
relationships have been established with staff, parents
have more confidence that the transition will be managed
carefully and anxieties for themselves and their child will
be reduced.
128. Some parents of secondary-aged children consider
learning support units to be most effective in providing
additional support for young people. They appreciate that
exclusion is not used lightly. Other parents were aware
that their child was not difficult in all lessons, only some.
They explained that concentration was difficult when
lessons were boring and restrictive.
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