yes - its just a ploy to see if you give up - we had the same DS was 2.5 and not even started Action Plus properly but was obvious to us he would need more than early action plus could provide (which was max 75% 1:1 with untrained TA in nursery + ASD Outreach support which took 5 months to show up and was then very basic) also we needed a statement for special school nursery & / or ABA.
We got a copy of the LEA file under data access and asked them to identify which docs went to panel and proved (as we suspected) some docs had not made it to panel. We also queried a lot of assumptions made eg about IQ. The LEA backed down once we had appealed and got a tribunal date.
We finally saw Ed Psych last week 6 months after starting process and said DS definitely needed a statement which begs the question why they didn't ask him at the start!
Often they try it on and if you actually do the appeal they back down.
Do get their file though as there were a few gems in ours which helped our case.
Also if you have helpful NHS professionals they can't express their view until a stat assessment but then they can write something more useful.
There is a bit in Code of Practice about children whose needs are severe and complex and don't need to go through action plus first. We said we wanted to take an intensive proactive approach and that while the government view was that most children should exhaust Action Plus it was not their intention that children with obvious needs should have to endure months or years of failure when their needs were clearly not going to be met by Action Plus.
If you have support from professionals its very unlikely they will take you to tribunal just over whether to assess. If you have not seen the Ed Psych ask for a referral to be made