Care Proceedings Bundle Preparation: A Guide to the Public Law Outline

Last updated: March 2026

By Stevie Hayes

Quick Answer

The Public Law Outline (PLO) governs how care proceedings move through the family court. It sets out a structured timetable — ordinarily 26 weeks from issue to final hearing — with specific stages, each requiring particular documents and evidence. Whether you are a parent responding to proceedings, a family member seeking to care for a child, or a professional preparing the local authority's case, understanding the PLO and what goes into the court bundle at each stage is essential. A well-prepared bundle does not just satisfy procedural requirements; it helps the court focus on what matters most — the welfare of the child.

---

Introduction

Care proceedings are among the most serious cases the family court hears. They can result in children being removed from their parents' care, placed with relatives, or made the subject of adoption orders. The stakes could hardly be higher.

The Public Law Outline was introduced to bring structure, fairness, and efficiency to these proceedings. Before the PLO, care cases could drift for months or even years without resolution, leaving children in uncertainty and parents without clear timelines. The Children and Families Act 2014 introduced the 26-week time limit, and the PLO — set out in Practice Direction 12A — provides the procedural framework to make that timetable work.

According to the Children and Family Court Advisory and Support Service (CAFCASS), 13,459 children were involved in new public law applications in England during the year ending March 2024. Behind each of those applications is a family navigating one of the most difficult experiences of their lives. If you are one of those families, or are supporting someone who is, this guide is written for you.

---

What Is the Public Law Outline?

The PLO is the procedural code that governs care and supervision proceedings under section 31 of the Children Act 1989. It is contained in Practice Direction 12A of the Family Procedure Rules 2010 and applies to all applications by local authorities for care orders, supervision orders, and related orders.

The PLO exists to ensure that:

• Cases are resolved within 26 weeks wherever possible
• All parties know what is expected of them at each stage
• The court receives the evidence it needs, in the right format, at the right time
• Delay is minimised, because delay is harmful to children

The 26-Week Timetable

Section 32(1)(a)(ii) of the Children Act 1989 requires the court to draw up a timetable for disposing of the case within 26 weeks of the application being issued. Extensions are possible under section 32(5), but only if the court is satisfied that the extension is necessary to resolve the proceedings justly and the reasons for the extension are set out.

In practice, around 40% of care cases exceed the 26-week target. Common reasons include late assessments, the need for expert evidence, or issues arising from connected family members coming forward. The court will not sacrifice fairness for speed — but it will expect parties to explain why additional time is needed.

---

Pre-Proceedings: The PLO Letter

Before issuing care proceedings, the local authority is expected to follow the pre-proceedings protocol. This involves sending the family a formal letter — often called the "PLO letter" — which sets out the local authority's concerns and invites the parents to attend a pre-proceedings meeting.

What Happens at Pre-Proceedings

Why Pre-Proceedings Matter for Your Bundle

The documents generated during pre-proceedings — the PLO letter, the written agreement, minutes of meetings, assessments carried out — will all form part of the court bundle if proceedings are issued. Keep copies of everything. If you are a parent, ask your solicitor to maintain a complete file from the outset.

---

The Four Stages of the PLO

Once proceedings are issued, the PLO divides the case into four stages. Each stage has its own requirements for documentation and evidence.

Stage 1: Issue and First Hearing (Day 1–2)

When the local authority issues an application for a care or supervision order, it must file a bundle of documents with the court. This bundle must include:

• Application form (Form C110A)
• Annex documents — social work chronology, social work statement, the current care plan, an allocation proposal, and a threshold document (schedule of findings sought under section 31(2))
• Copies of previous court orders relating to the child
• Any initial assessments already completed

The court will list a Case Management Hearing (CMH) — usually within 12–18 days of issue. In urgent cases, the first hearing may take place on the day the application is issued, particularly if the local authority is seeking an interim care order or emergency protection order.

Stage 2: Case Management Hearing (Day 12–18)

The CMH is the court's first opportunity to take control of the case. At this hearing, the court will:

• Consider the local authority's threshold document
• Identify the key issues in the case
• Give directions for assessments and expert evidence
• Set the timetable for the child
• Consider whether an interim care order is needed

Bundle requirements for the CMH are set out in Practice Direction 27A. The bundle must be filed and served at least 2 working days before the hearing and should include:

The bundle must have a paginated index, be numbered consecutively, and comply with the format requirements of PD27A.

Stage 3: Further Case Management and Issues Resolution

Between the CMH and the final hearing, the court may list additional hearings to manage the case. These might include:

• Further Case Management Hearings — to review progress, give further directions, or address problems
• Issues Resolution Hearing (IRH) — listed to narrow the issues and attempt to resolve the case without a final hearing

The IRH is a critical moment. By this stage, all assessments should be complete, the children's guardian should have filed an analysis, and the parties should have set out their respective positions. The court will consider whether the case can be resolved by agreement or whether a contested final hearing is necessary.

Updated bundle requirements apply at each stage. New documents must be added, and the bundle must be kept up to date with all filed evidence, position statements, and case summaries.

Stage 4: Final Hearing

The final hearing is where the court makes its decision. The judge will hear oral evidence, consider the bundle, and determine:

• Whether the threshold criteria under section 31(2) are met
• If so, what order (if any) is in the child's best interests, applying the welfare checklist in section 1(3) of the Children Act 1989

The final hearing bundle is the most comprehensive bundle in the proceedings. It must contain all documents that any party intends to rely upon, organised in compliance with PD27A. A poorly prepared final hearing bundle can waste court time, cause adjournments, and ultimately harm the child's interests by delaying resolution.

---

What Goes in a Care Proceedings Bundle?

The contents of the bundle at each stage are governed by PD27A and any specific directions given by the court. However, a typical care proceedings bundle will include:

Essential Documents

• C110A application form and any supplemental applications
• Threshold document — the local authority's statement of the facts it asks the court to find
• Response to threshold — the parents' response to each allegation
• Social work statements — chronological account of the local authority's involvement
• Care plan — the local authority's proposals for the child's future
• Parenting assessments — assessments of parents and any alternative carers
• Viability assessments — initial assessments of proposed family carers
• Expert reports — psychological, psychiatric, medical, or other specialist evidence
• Children's guardian analysis — the guardian's independent assessment and recommendations
• Position statements — each party's summary of their case

Supporting Evidence

• Medical records and health visitor reports
• School records and educational psychology reports
• Police disclosure and criminal records
• Photographs or other physical evidence
• Contact records and observations
• Minutes of professional meetings (child protection conferences, core groups, LAC reviews)

Organisational Requirements

The bundle must be:

• Paginated — every page numbered consecutively
• Indexed — with a clear, accurate table of contents
• Tabbed — divided into sections (A, B, C, D)
• Filed on time — at least 2 working days before each hearing (unless the court directs otherwise)
• Compliant with PD27A — including format, font, and layout requirements

---

Preparing Your Bundle: Practical Tips

For Parents

If you are a parent in care proceedings, your solicitor will ordinarily prepare the bundle (or contribute to a bundle prepared by the local authority's solicitor). However, you should:

1. Keep every document you receive — letters from social workers, assessment reports, contact notes, meeting minutes
2. Read your bundle carefully before each hearing — highlight anything you disagree with or do not understand
3. Provide your solicitor with relevant documents — text messages, emails, photographs, or records that support your case
4. Meet with your solicitor well before each hearing to discuss the bundle contents and your position

For Family Members

If you are a family member (such as a grandparent, aunt, or uncle) who has put yourself forward as a carer for the child, you may be joined as a party to the proceedings. If so, you will need your own solicitor and should be providing evidence to support your application. Your documents will be added to the bundle.

For All Parties

• Do not leave bundle preparation to the last minute — rushed bundles contain errors, missing documents, and poor organisation
• Check the index against the contents — every document listed in the index must be present, and every document in the bundle must be listed
• Use consistent formatting — PD27A specifies requirements for font size, page margins, and document layout
• File electronically where possible — most courts now expect electronic bundles in PDF format with bookmarks and hyperlinks

---

How BundleCreator Can Help

Preparing a care proceedings bundle is a substantial task. The volume of documents, the strict formatting requirements of PD27A, and the emotional weight of the proceedings make it one of the most challenging bundles to assemble.

BundleCreator provides:

• Pre-structured bundle templates for public children law proceedings, organised into the correct PD27A sections
• Automatic pagination and indexing — so you never have to manually number hundreds of pages
• Drag-and-drop document ordering — rearrange sections and documents without starting over
• Export-ready PDFs — formatted for electronic filing at court

Whether you are a solicitor managing a heavy care proceedings caseload or a family member preparing evidence with the help of a direct access barrister, BundleCreator takes the administrative burden out of bundle preparation so you can focus on the substance of your case.

Try BundleCreator free for 14 days at bundlecreator.co

---

The Threshold Document: A Brief Overview

The threshold document is the foundation of the local authority's case. It sets out the facts that the local authority asks the court to find, in order to satisfy the threshold criteria under section 31(2) of the Children Act 1989 — namely, that the child is suffering, or is likely to suffer, significant harm, and that the harm is attributable to the care given to the child not being what it would be reasonable to expect a parent to give.

Responding to the threshold document is one of the most important tasks for parents in care proceedings. Each allegation must be addressed — admitted, denied, or qualified. A detailed guide to the threshold document is available in our companion article: Understanding the Threshold Document in Care Proceedings.

---

Common Mistakes in Care Proceedings Bundles

---

Frequently Asked Questions

How long do care proceedings take?

The target is 26 weeks from the date the application is issued to the final hearing. In practice, many cases take longer — particularly those involving complex assessments or multiple parties. Extensions beyond 26 weeks require the court's permission and must be justified.

Will I get legal aid for care proceedings?

Yes. Legal aid is available for parents in care proceedings and is not subject to the usual means or merits tests. You should contact a family solicitor with a legal aid contract as soon as you receive a PLO letter or become aware of proceedings.

What is an interim care order?

An interim care order (ICO) is a temporary order made by the court while care proceedings are ongoing. It gives the local authority parental responsibility for the child and allows the child to be placed in the local authority's care (including with foster carers or family members approved by the local authority). An ICO can be made at any stage during proceedings.

Can I see my child during care proceedings?

In most cases, yes. The court will make directions about contact between parents and children during proceedings. The local authority has a duty under the Children Act 1989 to promote reasonable contact between a child in care and their parents. If you are unhappy with the contact arrangements, raise this with your solicitor.

What happens if I disagree with the social worker's assessment?

You have the right to challenge any assessment. Your solicitor can cross-examine the social worker at the hearing, commission an independent assessment (with the court's permission), and file your own evidence addressing the points you disagree with. You may also ask the court to direct a specific assessment — for example, a psychological assessment or a parenting assessment by an independent social worker.

Can a family member be assessed as a carer?

Yes. The court has a duty to consider all realistic options for the child, including placement with extended family members. Family members who put themselves forward will usually undergo a viability assessment followed, if appropriate, by a full connected persons assessment (sometimes called a Regulation 24 or special guardianship assessment).

What is the role of the children's guardian?

The children's guardian is an independent social worker appointed by CAFCASS to represent the child's interests in care proceedings. The guardian will investigate the case, observe contact, speak with the child (where appropriate), and file an analysis and recommendations for the court. For a detailed explanation, see our article on The Role of the Children's Guardian in Care Proceedings.

---

Care proceedings are among the most emotionally demanding experiences any family can face. If you are going through this process, please reach out for support. Your solicitor, the children's guardian, and organisations such as the Family Rights Group (0808 801 0366) can provide guidance and emotional support throughout.