The findings have led to calls from a social services leader that Sure Starts need to be more targeted to help the most vulnerable children.
Andrew Christie, director of children's services at Hammersmith and Fulham council and a member of the Association of Directors of Social Services' children and families committee, said he might have expected the number of referrals to increase.
He said social services had also been "disappointed" with the reach of Sure Start programmes.
Sure Start workers and social services staff highlighted a lack of operational management capacity within social services to engage in new partnerships.
"It is in part about a need for operational managers in children's social services to see the value of becoming involved," said Christie. "But if they are not as effective it does not support that."
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