A joint local area SEND inspection in Sutton conducted by Ofsted and health watchdog the Care Quality Commission found that there has been insufficient progress over time in implementing reforms introduced in 2014.
"Current leaders are trying to increase the pace of developments and to streamline the area's strategy," a letter outlining the findings states.
"However, providers and parents remain concerned about the quality of leaders' communication and oversight of the reforms."
As part of government reforms, all children with existing SEN statements must be assessed and transferred from the old system on to new education, health and care (EHC) plans by April 2018.
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