Forgotten. Left behind. Overlooked - The experiences of young people with SEND and their educational transitions during the Covid-19 pandemic in ...
←
→
Page content transcription
If your browser does not render page correctly, please read the page content below
Forgotten. Left behind.
Overlooked.
The experiences of young people with SEND and
their educational transitions during the Covid-19
pandemic in 2020
Report Spring 2021
This is not an official publication of the House of Commons or the House of Lords. It has not been approved by either House or its committees. All‑Party Parliamentary Groups are informal groups of Members of both Houses with a common interest in particular issues. The views expressed in this report are those of the group. 2 | Forgotten. Left-behind. Overlooked.
Foreword
This is the first report of the APPG for
SEND. When we formed as a group in
early March 2020, we had no idea of
the turmoil that we all would face just
a few short weeks later as the Covid-19
pandemic hit and the country went into
lockdown.
The group formed with the aim of
supporting special schools and SEND
provision in mainstream school and
college settings. This past year has
seen young people with SEND, their
families and their educational settings
needing support and a platform more As an APPG we don’t have the power to
than ever, as the Covid-19 pandemic has make changes to policy or to systems
held a magnifying glass to the existing but, as MPs, we do have influence. This
problems in the SEND system. This report aims to further that influence and
report serves to highlight their stories; to crystalise suggestions of how things
be a platform for their voice. can be improved. And they must be
improved.
When we began thinking about the
inquiry, the members of the APPG We thank all the organisations who
were particularly keen to focus on submitted evidence to this inquiry, and
how the transitions that young people we are in the privileged position to be
with SEND face had been impacted by able to bring together evidence and
the significant changes in education statistics from the important research
provision since March 2020. they have conducted over the past year.
Moving between education settings, for But particular thanks go to the parents
either a change of phase or for enhanced and young people themselves, who
or different provision, is difficult for all submitted written evidence but also
children, but how has this been impacted spoke at virtual oral evidence sessions
by the pandemic and what has been the in front of Members of Parliament and
specific experience for the children and hundreds watching online across the
young people with additional needs? country.
While transitions were the focus of the We are grateful to each of you for
inquiry, it is clear that the needs and sharing your experience. We hope this
experiences of young people and their report and our representations can
families are wide-ranging, emotional contribute to improving that experience
and often desperate. Many of the during the ongoing pandemic and
submissions we received were raw and beyond.
anxious – they were reaching out to seek
help for their child in a system that has Olivia Blake MP
long needed change. Chair of the APPG for SEND
APPG for SEND Report Spring 2021 | 3
“ “
It is very sad to see that the lives and care
of our young people is regarded as so
unimportant that the services we rely on
for support... were deemed non-essential
and closed down for six months.
4
2 | APPG for SEND Report Spring 2021
Contents
Foreword ........................................................................................... 3
Introduction ..................................................................................... 6
Executive summary ...................................................................... 8
Key recommendations ................................................................ 9
Overview of the written and oral responses..................... 11
Hearing their voice: young people and parents in their
own words ...................................................................................... 32
Summary of recommendations ............................................. 39
Appendices ....................................................................................... 51
Acknowledgments ....................................................................... 54
APPG for SEND Report Spring 2021 | 5Introduction
Members of the APPG for SEND combination of all of these
• To make recommendations to
Government on its role in mitigating
Olivia Blake MP Labour (Chair) and remedying the impact that
Covid-19 has had upon children and
Conservative young people with SEND during
Sally-Ann Hart MP
(Vice Chair) transition
Rob Butler MP Conservative
The inquiry
James Daly MP Conservative
The inquiry was launched at a meeting
Marsha de Cordova MP Labour of the APPG for SEND on 15 July 2020.
From there, it was publicised through the
Jack Dromey MP Labour APPG’s website, the APPG’s mailing list
and on Twitter.
Liberal
Tim Farron MP
Democrats There was an open invitation to submit
written evidence and the terms of
Emma Hardy MP Labour
reference for the inquiry were publicly
available on the APPG’s website. At all
Julian Sturdy MP Conservative
stages it was emphasised that hearing
directly from parents and young people
James Sunderland MP Conservative was of particular importance.
An invitation to register interest to
Objectives of the inquiry submit evidence at the oral evidence
sessions was issued on 7 September and
• To further build the evidence base
there were 49 offers received.
of the impact that Covid-19 has had
upon young people’s mental health
In each oral evidence session, the group
and wellbeing during transition
sought to hear from at least one young
• To further build the evidence base
person and one parent as they felt it
of the impact that Covid-19 has had
was important to hear directly of their
upon learning outcomes during
experiences. To facilitate the evidence
transition
of young people, the group contacted
• To examine the impact that Covid-19
national organisations representing and
has had upon children and young
supporting young people with special
people with SEND during transition,
needs and disabilities. We are thankful to
specifically in relation to the social
these organisations for facilitating and
and emotional wellbeing within the
supporting the young people to give oral
community.
evidence.
• To establish where the capacity and
responsibility to address the impact
This is primarily qualitative research,
of Covid-19 lies, whether this be with
with written and oral submissions to tell
the Government, the sector, parents
a story. We have collated quantitative
and young people themselves or a
research that was submitted.
6 | Forgotten. Left-behind. Overlooked.Key dates for the inquiry
Date Event
Inquiry launched at meeting of the
APPG for SEND and written evidence
15 July 2020
invited. Terms of reference for the
inquiry available on the APPG’s website.
Invitation to submit oral evidence and
7 September 2020 confirmation of the dates for 4 APPG
meetings with oral evidence sessions.
First oral evidence session with a focus
23 September 2020
on communication and interaction.
Second oral evidence session with a
14 October 2020
focus on cognition and learning.
Third oral evidence session with a focus
11 November 2020 on social, emotional and mental health
difficulties.
Deadline for submission of written
15 November 2020
evidence
Fourth oral evidence session with a
2 December 2020
focus on sensory and/or physical needs.
APPG for SEND Report Spring 2021 | 7Executive summary
Contributors to this inquiry have used Delays in the process of assessing for
powerful words to describe how young and implementing Educational and
people with SEND and their families Health Care (EHC) Plans impacted
have felt during the Covid-19 pandemic: on the transitions of young people
forgotten, left-behind and overlooked. with SEND. This meant they started
in a new setting without the provision
The Covid-19 pandemic has amplified the they required or, in some cases, not
problems and issues that were already attending school. Not being able to visit
present in the SEND system. new settings increased the anxiety of
transitions for young people with SEND.
The manner and speed in which
the lockdown and closure of school Changes to the school set-up and
happened had a negative impact on staffing provision has caused anxiety and
children and young people with SEND disruption which has been felt acutely by
and their families. Many were left without children with SEND.
support.
Specialist resources and support that are
Funding for SEND provision has been of available for young people with SEND
long-term concern with local authorities, in school settings cannot be replicated
school settings and families reporting in the home environment, which has an
deficits in the high-needs budget. impact on their ability to learn.
The impact on schools of Covid-19
related costs and losses of income has Therapists and technicians who support
exacerbated this crisis. the provision for young people with
SEND have in many cases not been
The government guidance for special allowed on to school sites due to Covid
schools and alternative provision was restrictions.
frequently published later than guidance
for mainstream schools. This led settings There are some positive experiences
and young people with SEND to be seen from the impact of the pandemic on
as, and feel like, an “afterthought”. learning which emphasises how every
child has unique needs. However, they
The Coronavirus Act and the reduction are positive because they mitigate
in requirements of local authorities and existing issues and problems.
schools to make ‘reasonable endeavours’
has had a negative impact of the support Mental health of young people with
available for young people with SEND SEND, and that of their families, has
and their families. There is concern that been widely impacted by the pandemic.
this impact could be long-lasting. Anxiety was frequently reported.
In some cases, risk assessments were The Government and Department for
used to refuse attendance in school Education did not do enough to support
for young people with SEND. These children and young people with SEND
assessments were often conducted during Covid-19. Our most vulnerable
without the input of families or the children were failed and schools and
young people themselves. families were left to pick up the pieces.
8 | Forgotten. Left-behind. Overlooked.Key recommendations
1. That the Department for Education 6. That urgent funding is given to
ensures that all future guidance support the mental health of young
pertaining to schools and other people with SEND as part of recovery
educational settings are fully from the pandemic. That all mental
cognisant of the complex range health provision is fully accessible for
of needs and challenges for SEND young people with SEND and tailored
children, schools, families and carers. to their needs.
Critically, that such guidance is
timely and considered as a priority 7. An urgent review of high-needs
both during national emergencies funding is undertaken. This has been
and as we emerge from the current long-called for, but the pandemic
lockdown measures. has highlighted issues in the funding
of provision for SEND. Funding will
2. That an urgent and time-bound be crucial in the recovery from the
parliamentary review is undertaken pandemic.
by government in order to assess
the impact which Covid-19 has had 8. That the Secretary of State for
upon children with SEND in order Education publishes the long-awaited
to ensure that the support provided SEND review and commits to working
as we recover from the global with the APPG SEND and allied
pandemic is focussed on the most APPG’s in order to ensure that SEND
vulnerable. Such a review to include Children and Young People are placed
all stakeholders including children at the centre of government’s policies
and young people, parents and carers and decision making.
and organisations with a legitimate
interest. 9. That support for children and young
people with SEND must be a feature
3. That new and additional funding is of all future pandemic planning.
made available in the short, medium
and long-term to support SEND
children and young people with the
Covid-19 recovery.
4. Specific funding to be given to
addressing the delays and backlog
in the process of assessments for
Educational and Health Care (EHC)
Plans.
5. That the process of applying and
assessing for EHC Plans is made
simpler and more compassionate.
That families should not have to fight
for support for their child, even more
so in a pandemic.
APPG for SEND Report Spring 2021 | 9“
“
My input was added once the decision
that my son had to stay home had
already been made.
10 | APPG for SEND Report Spring 2021Overview of the written and oral
responses
Learning at school during the not given a ‘choice’, however false,
whether to attend school or learn at
initial lockdown
home. Respondents to a survey2 by
Adoption UK “expressed frustration” that
Despite children with Education Health
places were not offered despite their
Care (EHC) plans being one of the
child meeting the criteria. This was felt
groups able to access learning at school
to add to challenges caused by previous
during the initial lockdown, several of the
disruptions to a child’s education.
submissions said that this was not the
case.
The Children’s Services Development
Group (CSDG), whose members
A survey1 by 1Voice, a charity that
collectively operate over 90 special
supports users of augmentive and
schools as well as providing foster care
alternative communication (AAC), found
and children’s homes placements for
that 83% of respondents did not access
young people with complex needs,
school at all between March and July.
reported that they became aware that a
They cited that this was due to their
number of non-member special schools
medical vulnerability and the increased
had to cease provision during the first
risk they face because of their personal
lockdown and asked children to return
care needs which meant that school felt
to their families. In some instances, this
too risky. Respondents to the survey
was sadly triggered by local authority
reported feeling ‘forced to choose’ to
commissioning decisions. (CSDG)
keep them at home, which left them
without care support because the lack
of testing meant the risk to life took Support stopped or reduced
precedence.
The Covid-19 pandemic has resulted in
Ambitious about Autism also cited the educational and therapeutic support
health fears due to co-occurring provided to children with SEND being
conditions or vulnerable members within reduced or stopped completely.
their families as a reason for pupils with
EHC plans not to access learning in Ambitious about Autism reported
school. that 80% of autistic young people and
their parents who responded to their
Careers Connects reported that even survey3 said that support they had been
with specialist settings remaining open accessing before the pandemic stopped
during lockdown, the attendance of or was reduced. This includes access
young people has been low, with many to vital services such as speech and
young people and parents choosing not language therapy, mental health support,
to attend and engage in learning. and respite care. Services have had to
alter, delay or remove provision entirely
Some young people and families were which has increased vulnerabilities.
1 1Voice: survey completed by 12 parent-carers or the young AAC users themselves, who are aged between 8 and 27.
2 Adoption UK: survey of 674 parents/carers of care-experienced and adopted children in early April 2020
3 Ambitious about Autism: survey of over 2000 autistic children and young people and parents/carers conducted
August and September 2020
APPG for SEND Report Spring 2021 | 11organisation with an aim to provide
Their submission contends that better outcomes for children and young
the disadvantage faced by young people with SEN. They found that
people with autism can be mitigated families had witnessed a drastic decline
by exceptional support provided in in usual SEND provision from the start
education, community services and of lockdown, including all areas across
the perseverance of families, but the education, health care, mental health,
capacity to do this has been further respite care, and social care services.
reduced during the pandemic. Almost all respondents to their survey
reported that their family’s special needs
In oral evidence, Sense highlighted how support was “significantly impacted” by
attending school is more than education. the pandemic.
Attending school is often an opportunity
for children to receive treatment and During an oral evidence session, Let
therapies and support from additional Us Communicate, a volunteer-led,
experts such as speech and language independent support group in East
therapists and other healthcare London, told the inquiry that the NHS
professionals. Not being able to attend providers of therapies such as speech
school has impacted on the ability of therapy largely came to a halt. This is
children or families to access that vital supported by the Local Government
care and support. Association (LGA) during their oral
evidence, who pointed out that physical
The initial lockdown period from March development has also been badly
2020 meant that many families lost hit through not being able to access
their access to not only respite through therapies.
education, but any other respite
packages of support they had in place. The Royal College of Occupational
This put a huge strain on many families, Therapists (RCOT) reported that face-
which still continues to impact on them. to-face consultations were limited
(Sense) during the initial phase of the pandemic
in March 2020. Again, families with
1Voice found 58% of respondents to vulnerable children are reluctant to
their survey had no care support at receive people into their homes or
all between March and July. Only one visit a healthcare setting even when it
respondent had the same hours of is permitted. This has made it difficult
support as usual. 22% of those who did for occupational therapists to address
continue to get some care had ‘a lot the needs of young people with SEND,
less than usual.’ Without additional care particularly physical needs that cannot
support, these young people depended be met through virtual consultations,
on their parents for everything. The for example reviewing and adjusting
complexity of their physical disabilities specialist seating or hand splints to
means that they need support with accommodate a child’s growth.
feeding, changing, toileting and
facilitation for interaction in online They also described how social
environments: “The levels of physical distancing regulations have impacted
and emotional stress these youngsters the number of spaces that meet the
and their families have reported is requirements for occupational therapists
enormous”. (1Voice) to conduct confidential conversations
with young people, parents/carers and
SEN Talk is a London-based non-profit educators. Furthermore, a number of
12 | Forgotten. Left-behind. Overlooked.children’s occupational therapists were survey of 4,000 families that seven
redeployed to adult services at the start in ten parents said their child had
of the pandemic. Around one third of the difficulty understanding or completing
1500 occupational therapist respondents schoolwork, and around half said that
to an RCOT survey4 were deployed their child’s academic progress suffered.
elsewhere and others were unable to
work because they were shielding or Sense told the inquiry that parents had
unwell. reported that they have had no contact
at all from their child’s school whilst
A parent who gave oral evidence to the others have had work sent home from
inquiry said: “He needs physio, he needs school that they’re unable to access.
orthotics, he needs a dentist, he needs
speech and language therapy, yet it isn’t In response to unsatisfactory support
there. It’s gone. He is not prepared to from their mainstream primary school,
transition, he hasn’t the tools he needs to a parent/carer of a child with Autism
transition.” Spectrum Condition (ASD/C), Attention
Deficit Disorder (ADHD/ADD), and
A survey by Family Fund found that 62% Pathological Demand Avoidance (PDA),
of families said formal support available replied: “School over Zoom just doesn’t
for their disabled or seriously ill children provide the required support for children
has decreased due to the Covid-19 with complex needs who already
outbreak. struggle with communication and social
interaction.” (SENTalk)
“Through our helplines, Tribunal Support
Service and training we have heard that 54% of respondents to the 1Voice
children and young people with SEND survey did not have work provided in an
did not receive adequate support upon accessible format. “A picture emerges
their transition to remote or a different from the responses of worksheets and
kind of education when educational web links being sent home which the
settings closed in March.” (IPSEA) learners’ physical disabilities meant
they could not access. The work ‘wasn’t
Accessibility of at home adjusted at all’ and was ‘not in grid or
clicker.’ The online lessons were difficult
learning and differentiation
for AAC users to participate in.” (1Voice)
National Deaf Children’s Society (NDCS)
In their submission, IPSEA concurred
reported that remote teaching may not
that children and young people with
be accessible to some deaf children
SEND found it difficult or were unable to
unless additional communication support
access education remotely, either online
is provided such as remote speech-
or on paper. This was because the work
to-text or sign language interpreters.
set was not appropriately differentiated,
“We believe it’s unacceptable that
was provided using software they could
accessibility continues to be an
not access and/or they did not receive
afterthought and would like to see a
special educational provision required
much stronger lead and encouragement
by their SEN that they would have had
from the Department in this area.”
at their setting (e.g. the support of
(National Deaf Children’s Society)
trained teaching assistant 1:1 under the
supervision of a qualified teacher).
National Autistic Society found in a
4 RCOT: survey of 1500 occupational therapists (including 175 occupational therapists working with children and young
people) in July 2020
APPG for SEND Report Spring 2021 | 13Dinah, a deaf young person, gave oral A parent told the inquiry, via an oral
evidence to the inquiry and spoke of the evidence session, that: “We don’t, as
need to explain to new teachers what parents, have access to that specialist
support you require, such as reminding software. That’s all in schools, with
them to use the radio aid or to take off speech and language therapists, it’s with
their masks: “That takes quite a lot of the people who make the software.”
confidence, it can sometimes be a bit
embarrassing as well.” The National Autistic Society told
how children who usually receive SEN
Special Needs Jungle, a volunteer Support in school “fell into a gap in
parent-led blog for parents of children provision” during lockdown and were
with SEND, surveyed over 1,000 parents left without any additional support at all.
and carers in June 2020. Only 18% of These children were mostly at home, and
respondents said that their child’s school parents reported that they were unable
had delivered enough SEND support to to provide the specialist support their
enable their child to complete their work, child received at school to enable them
with appropriate differentiation identified to learn.
as a major issue. “A significant minority”
said they had received no work at all. Costs for parents
Resources at home 1Voice told how parents had reported
buying spin bikes, hot tubs and ijoy
A key part of in-school learning are riders out of “desperation” to keep
the resources available to children with their young people as fit and healthy as
additional needs which support and possible. Parents reported ‘huge delays’
enable their learning. While learning at for new equipment, such as leg gaiters,
home, there were noticeable gaps in to enable vital physical therapy at home.
access to these important resources. A lack of space, equipment and support
NDCS reported that some deaf children from NHS services means the physical
were told that they can’t take their radio needs of these learners have not been
aids hearing technology home from met during the pandemic, except for
school at this time, even though this through the additional efforts of families
could support home learning. who have the resources to do this.
Sense reported that, for many children Changes to routines
with complex disabilities, remote
solutions were not appropriate and Both Ambitious about Autism and the
the impact of this was increased social National Autistic Society highlighted the
isolation for those young people. impact that the sudden changes caused
Furthermore, many of the educational by the pandemic had on children and
resources and specialist support children young people with autism. The National
with MSI need cannot be replicated Autistic Society described the impact as
in the home. Accessible resources like “disproportionate and devastating” due
Braille, Easy Read and Picture Exchange to the intense anxiety that is felt around
Communication (PEC) symbol systems unexpected change.
aren’t affordable or available to families
at home to continue learning and Social aspects of school
outcomes. (Sense)
14 | Forgotten. Left-behind. Overlooked.Dr Shepherd and Dr Hancock of the Other activities around
University of Sussex found in their
education
survey of 502 carers that social
aspects of education (interactions
Adoption UK reported that Covid-19
and communication) were the most
restrictions have impacted the type of
affected by the learning at home during
activities that were allowed in schools,
lockdown. Things like taking turns,
which has resulted in an increase in
sharing, group activities and diverse
challenging behaviour. They give the
conversations were not possible at
example of one child in a specialist
home.
secondary social, emotional and mental
health (SEMH) setting, whose parent
Royal College of Nursing highlighted
said their behaviour had become more
the key role that being in school plays in
challenging as the schooling is now more
helping young people with SEND learn
“sedentary” and “academic” than before
social skills, self-value and confidence.
lockdown.
They will likely be unable to use
technology to get in touch with friends
and have limited social opportunities as Communication between
a result. schools and parents
Regional variations Let Us Communicate spoke in an oral
evidence session about the need for
The differences in the experience of better communication with parents:
young people with SEND between “we’re often left in the dark”.
regions and areas was cited as a concern
by several contributors. National Deaf Adoption UK reported that where
Children’s Society noted that online communications between the setting
learning materials, transition support, and home were frequent and effective
early intervention support and recovery during the lockdown, the transition back
plans were available but “not consistently to the setting has been more effectively
across England”. In particular, there were managed and better supported.
gaps around the support for language
and communication. Government guidance
Sense also spoke of a lack of consistency, Numerous contributors to this inquiry
with many Local Authority Sensory cited the guidance produced by
Services sending equipment such as government on SEND provision as an
radio aids home to children who were issue, both in terms of its content as well
shielding. They raised a concern that as the manner and timing in which it
insurance coverage may be a barrier to was produced. A recurring theme is that
this equipment being taken home. They SEND pupils and their needs have been
described a “postcode lottery” of SEND an “afterthought”5 .
provision and urged the government
to revise its approach to local solutions The changing guidance from
and create a guidance framework for government has had an impact on
risk assessment that is appropriate, young people with SEND, their families,
particularly for young people who are and schools, particularly where routine
shielding. is needed to support the young
person. Ambitious about Autism said
5 Submissions from RCOT, PLASN and NAHT
APPG for SEND Report Spring 2021 | 15“ We’ve gone from 24/7 residential Monday
to Friday term-time and PA support at
“
weekends and holidays, to absolutely
nothing and home full-time. I’m a single
parent and feeling the strain physically,
emotionally, and financially. Nothing is
being done to support us.
16 | “Forgotten,
APPG for SEND
left-behind,
Report Spring
overlooked”
2021communicating clearly with children
and their parents has been difficult NAHT cited the example that school
with the complexity and ever-changing transport guidance, required by pupils
nature of Government guidance. They and parents/families prior to the
also highlight that this guidance has summer recess in order to establish
been focussed on mainstream schools expectations for successful September
and colleges. They said many parents 2020 educational transitions, was
and children have felt “forgotten and not published until August - well
left-behind” in decision-making about after the end of the summer term -
education. creating wholly avoidable problems
for local authorities and providers in
National Deaf Children’s Society pointed communicating arrangements with
out that the Department for Education families.
failed to consult with organisations
representing children with sensory The content of DfE guidance is also an
impairments when seeking out feedback issue, suggested NAHT. Speaking about
on draft guidance. the updated guidance provided at the
start of November 2020, NAHT said:
PLASN contended that decision making ”there was a sense that, once again, it
appeared to be centred around the was broadly mainstream predicated
needs of pupils in mainstream schools guidance that did not adequately
and reported a consensus amongst their consider special school and specialist
members that clearer, setting-specific setting needs in catering for pupils with
guidance was needed: “special schools SEND.”
needed to be prioritised by the UK
Government rather than treated as an NAHT said the consequences of delayed
after-thought.” guidance suggests to SEND children,
their families and schools that they
IPSEA highlighted that the concerns are “an afterthought”. It also delays
of parents of children and young the ability of settings to meet their
people who live with someone whose pupils’ needs and puts the schools and
health is at a high risk if they contract children at a disadvantage compared to
Covid-19 regarding their return to mainstream schools when purchasing
educational settings were not addressed. finite resources such as PPE.
Department for Education guidance on
how settings should approach situations The Royal College of Occupational
like this was initially unclear and not Therapists (RCOT) referred to the
updated in a timely manner. (IPSEA) inconsistencies between guidance
from the DfE and NHS England which
The timing of SEND specific guidance has caused problems for allied health
was also reported as an issue by NAHT. professionals employed by the NHS but
86% of respondents to an NAHT survey also working in schools. RCOT said it
in June 20206 did not agree that has been “confusing and, in some cases
Department for Education guidance had conflicting”. Timing is again raised by
been published in a timely manner and RCOT, who said occupational therapists
73% of respondents felt that the delays have been required to read and interpret
in producing appropriate DfE guidance information from both the DfE and NHS
had affected their setting’s ability to and implement guidance often with little
make effective planning decisions. notice.
6 NAHT survey of over 570 SEND school leaders, June 2020
APPG for SEND Report Spring 2021 | 17Sense described the guidance around and Health Care (EHC) Plan, they were
PPE for personal care support as deemed to have met this duty if they
“insufficient”, which has resulted in many had used “reasonable endeavours” to
young people with complex needs who secure the provision. This temporary
require such care being unable to return amendment was in place between 1 May
to school. They commented that it had and 31 July 2020.
taken the DfE and Public Health England
“a significant proportion of time” to National Deaf Children’s Society
review the guidance. expressed a concern that some families
were being given messages implying
An oral submission from Great Minds that their EHC plan can be ‘ignored’.
Together, a multidisciplinary wraparound
team supporting families, schools and Sense reported that this change had
services, described the guidance as a significant impact on many of the
“chaotic and not sustainable for our planning processes required to support
schools’ professionals or parents and an effective transition back to school for
carers”. children and young people with SEND.
Government guidance recommended Sense described the short and long
the use of class or year group bubbles term impact of this amendment as
to help prevent the spread of Covid-19. ‘significant’ for young people with SEND
However, as Pan London Autism School and their families. They were left without
Network (PLASN) identified, this simply vital care and support, and home
did not take into account the unique learning tasks were not differentiated or
context of special schools, where pupils accessible for their needs. Furthermore,
from different classes will be mixing on Sense reported the impact it has had
school transport. on the schools, local authorities and
clinical commissioning groups to plan
Special Needs Jungle said that a large appropriately for these children to return
number of parents who commented to school safely. Many of the children
during their June 2020 survey believed that Sense supports have not had all the
that government had “abandoned or support they are entitled to in their plan
neglected” children and young people reinstated, even beyond the temporary
with SEND when responding to the suspension.
pandemic.
National Autistic Society also expressed
Coronavirus Act and concern over the long-lasting effects of
this temporary suspension.
‘reasonable endeavours’
Both National Autistic Society and IPSEA
The emergency powers provided to the
reported that some local authorities were
government by the Coronavirus Act
retrospectively applying the Amendment
2020 “watered down” the legislative
Regulations to decisions and steps they
entitlements to support for children
had been legally required to take before
and young people with SEND. Section
the amendment came into force on 1
42 of the Children and Family Act 2014
May. The Amendment Regulation caused
was amended so that rather than local
delays to the EHC plans and meant that
authorities having a duty to deliver
young people were unable to participate
the special educational and healthcare
fully in decisions about their transitions
provision set out in a child’s Education
to different phases and schools. (IPSEA)
18 | Forgotten. Left-behind. Overlooked.Blanket policies of Covid, meaning I couldn’t attend the
meetings that normally would happen so
Polly Sweeney, a lawyer specialising in I had a few that were online.”
education, community care, healthcare
and medical treatment, told the inquiry Polly Sweeney also reported a backlog
via oral evidence that she was seeing of EHC plan assessments and decisions
too many cases where schools are during oral evidence to the inquiry. She
applying blanket policies which are claimed that one local authority was still
having discriminatory effects. She gave dealing with assessments from 11 months
an example of generic letters being earlier, emphasising that EHC plans were
sent for children to sign up to Covid-19 “vital” in ensuring educational transitions
behavioural policies that young people can be supported and successful. She
with SEND would not be able to adhere noted that delays and backlogs were a
to. problem before the pandemic, but the
relaxation of timescales would inevitably
make the backlog worse. She said that
Delays in the EHCP process
the guidance from government about
how to deal with this backlog was not
1Voice reported that the Covid-19
sufficient despite it being an inevitable
pandemic has caused delays to EHC plan
consequence.
processes which have had a detrimental
effect on children’s education, including
The need for early intervention was also
delays in finalising college places leading
highlighted by Down Syndrome charity
in one case to a young person becoming
Making Chromosomes Count. They
NEET (Not in Education, Employment or
described the information provided to
Training).
families who have a child with Down
Syndrome as “sparse”, with many
National Deaf Children’s Society raised
families not realising they can apply
concerns about the cancellation of
for EHC plan assessment before pre-
routine audiology appointments, which
school age. Making Chromosomes Count
can delay diagnosis and intervention,
also contended that many families are
which will impact on language and
“actively discouraged” from applying,
communication development later in
with local authorities claiming that the
life. They said that there needs to be
child is too young.
an urgent action plan to address this
backlog and emergency funding should
be provided. Transitions
Dinah, a deaf young person, told the The inability of young people with SEND
inquiry in oral evidence of her experience to visit new settings due to their closures
of applying for an EHC plan. She impacted heavily on their transitions.
described is as “a stressful, draining Royal College of Occupational Therapists
and time-consuming process”. She said this was particularly difficult for
highlighted the problems with not being young people with physical and sensory
able to have face-to-face meetings needs, and those who find change
during the process: “It felt as if a bunch difficult. The consequence has been
of strangers were deciding my future a delay in implementing tools and
based on what they knew about me on a strategies to support their needs, and
piece of paper. The application process taking longer to settle in.
was made a bit more difficult because
APPG for SEND Report Spring 2021 | 19Adoption UK reported that, due to the them.
pandemic, barriers have been created
to effective transitions in education for Transitions post-16
young people with SEND. Some were
transitioning with no plan in place, and Sense highlighted the case of one young
vital information had not been shared, person they were supporting, who was in
meaning that, in some cases, EHC Plans the middle of transition to college, which
were not in place. had the added issue of moving between
local authorities for provision. Support
A parent of an AAC user told the inquiry had been available at his current school
via oral evidence how the change in staff but had been stopped at the last minute.
teams impacts her daughter: “Her TA’s, Covid-19 had caused delays in sending
they’re not being trained yet to properly the required paperwork and preparing
support her. And this just exacerbates for transition, which had resulted in the
a problem that happens anyway with new college being no longer able to
transition for children like my daughter, support him. Sense expressed concern
where each year when you change over for the long-term impact on this young
to a new staff team, it’s almost like they person if the situation could not be
go back to square one, re-training all the resolved.
TAs, unless you’re lucky enough to have
continuity, which is quite rare. When it’s Children’s Services Development
left to September that child is constantly Group (CSDG), a coalition of leading
losing probably about half a term every independent providers of care and
year. Obviously as you say Covid has specialist education services, reported
been a huge impact, but it does happen issues with transitions planning during
again and again anyway.” the pandemic for young people
scheduled to leave their specialist
In oral evidence to the inquiry, Let Us provision, which created delays in their
Communicate spoke of young people move into adult services. They told
being “lost in the system” and “still how their members had experienced
waiting in transition”. This was due to pressure from local authorities to extend
ECH Plans not being drafted in time and placements for young people up to age
not able to progress because in-person 21, without recourse to the resources
assessments were not possible. This required or consideration as to whether
resulted in some children not moving on this would really be in the best interests
to their secondary school placements in of the young person. A consequence
September. of this approach is that it creates
placement blockages, limiting future
Royal College of Nursing described access to specialist education and care
how the transition from primary to placements for younger children.
secondary school will have been
negatively impacted by not being able to In 2020, CSDG published its report
have transition days and typical end of ‘Destination Unknown: improving
school/leaving activities. Similarly, they transitions for care leavers and young
say if young people are leaving school people with SEND’7. This found that a
for adult services or employment then lack of consistent and effective transition
the lack of transition is going to make support for young people when they
this life event a lot more difficult for reach 18 and leave care and specialist
7 Destination Unknown: improving transitions for care leavers and young people with SEND http://www.csdg.org.
uk/2020/02/26/destination-unknown-improving-transitions-for-care-leavers-and-young-people-with-send/ (accessed March
20 | Forgotten. Left-behind. Overlooked.education is resulting in unacceptable following the first lockdown caused
life outcomes. CSDG’s own members anxiety and concern for many young
have experienced instances where people with SEND and their families.
support is removed at inappropriate Ambitious about Autism said, via oral
times, making it very difficult for a young evidence to the group, that 70% of
person to complete their education or autistic children and young people and
be appropriately supported to live as their parents and carers have lost sleep
independently as possible in an adult worrying about their return to education
social care setting. and just over half weren’t confident
that the support would be in place to
IPSEA told how intended educational meet their needs when they return to
transitions were disrupted by local education.
authorities and settings’ responses to the
pandemic, leaving children and young The provision required by young people
people without suitable placements for with SEND was often not in place for
longer. their return to school in September
2020. IPSEA described it as “lacking”
“My disabled son has missed out on and reported that they had spoken
his final year at school. This has had a to parents who said there was “no
negative effect on his mental well-being. reintegration plan” and that support
He has had no transition into college, and specified in the EHC plan would not be
I’m worried how he is going to cope”. provided, including 1:1 support.
(Parent via Family Fund submission)
Polly Sweeney also spoke of cases where
Career Connects found that some young the provision outlined in EHC Plans was
people who were offered apprenticeship not being delivered on the return to
opportunities and supported internship school, particularly 1:1 assistance and
placements were told they were no therapeutic support. She also highlighted
longer available due to the Covid-19 that there was a lack of targeted catch-
pandemic. Therefore, they have been left up, which many pupils with SEND would
without a post-16 option. This has meant need if they had been unable to access
that those young people have suffered online learning while at home.
setbacks and this has again affected
their mental health and wellbeing. “Going back to college, they didn’t have
the ability to support me, so I couldn’t go
National Deaf Children’s Society reported back. If I had an Education Health Care
how the Treasury had announced Plan they would have put things in place”
a package of measures to support – a young person with cerebral palsy and
young jobseekers which include a new learning difficulties via oral evidence.
Kickstart scheme for work placements,
an expansion of traineeships and more In written evidence, IPSEA gave an
careers advisors. They emphasised the example of a child who was meant to
importance that deaf children were reintegrate into secondary school after
considered in such initiatives. being home-educated for a few years.
They needed the special educational
provision in their EHC plan to be
Return to school post-first
implemented to facilitate a successful
lockdown transition. This did not happen “due
to Covid restrictions at school”. They
The prospect of a return to school needed a toilet pass but were told
APPG for SEND Report Spring 2021 | 21“ We have been very isolated. The initial
lockdown was very confusing to our
“
children and now restrictions have been
eased and they are expected to return
to school without any support regarding
transition etc. Their worlds were already very
confusing before coronavirus and are
even more so now.
22 | “Forgotten, left-behind, overlooked”they could not have one due to current example of one pupil whose anxiety and
circumstances. school refusal started getting worse
again because of this.
External specialists on school
sites Alternative support for
transitions
Covid-19 restrictions and risk
assessments preventing external visitors Many mainstream and specialist schools
into school is an issue which has been did their best to support and aid
cited by several organisations and transitions between settings during the
individuals who contributed. pandemic, with many offering virtual
tours and support in lieu of the children
Sense found that whilst some children and young people being able to visit
are now back at school, many settings and spend time there. However, as with
were not allowing external professionals online learning, there were accessibility
back in, resulting in children not having issues for children and young people
access to important therapies. Sense with SEND.
also gave an example of a school
refusing to allow a specialist technician Royal College of Occupational Therapists
on site to fix a radio aid. They noted that reported that some young people with
there was guidance which said this was SEND found virtual tours stressful and
unacceptable but that there was little may not have been able to generalize
accountability. information they were given to a “real-
life context”. Some young people were
Schools being closed meant that unable to access virtual tours due to
occupational therapists could not review lack of access to the internet, limited
accessibility and classroom settings technical skills within their household
ahead of transitions in September. and anxiety about using unfamiliar
“Even when schools reopened to more technology. The transitions of young
students from June 2020, many were people were affected by not having the
reluctant to receive visitors including face-to-face meetings, as it was more
occupational therapists.” The result of difficult for occupational therapists
this is that children returned to school to build up a relationship with young
in September without the equipment people during virtual visits and to
or support they required being in place. identify students/families who would
(RCOT) benefit from additional support.
A parent of a child who uses AAC A parent via oral submission spoke of
told the inquiry via oral evidence that how her daughter could not go and visit
“none of those staff have been able to university as a result of lockdown: “She
be properly trained in using her AAC had to move into accommodation having
because as well as other complications, not been able to see it - we did see a
they haven’t wanted external therapists virtual tour, fortunately there was one
to go in. And so her TAs are not being online - but it’s not quite the same as
trained yet to properly support her.” getting a feel for it as well.”
IPSEA highlighted that parents were also There were some positives to a virtual
not allowed on site to help their children transition identified by Essex Family
transition back to school. They cite the Forum. They spoke of students from the
APPG for SEND Report Spring 2021 | 23Multi-Schools Council who said they had as caring for a child or young person
felt very well supported by transition with SEND in England, found:
from primary to secondary school. A
benefit included that virtual tours were • 75% of respondents said that their
available to watch - and, if desired, re- child had not had a risk assessment,
watch - from home with family and or they did not know if one had been
friends. conducted.
• Of the parents whose children had
A head teacher of a special school in undergone a risk assessment, only 9%
London gave oral evidence as to the way said they had been fully involved.
his school had adapted their transition • Even if they knew a risk assessment
process and identified some positives: had taken place, most parents were
“Because I couldn’t risk Covid mixing - not involved at all.
we’re a Covid-secure school - we invited • In their comments a number
families in on the Saturday and, to be of parents indicated that a risk
honest, it was so good because we could assessment had been used to actively
actually focus our time on the families.” dissuade them from sending their
He spoke about how they had arranged child in or to prevent their child’s
for autistic young people to have special attendance.
visits where they focussed on important
things to make them feel settled, such Children and young people with
as where to go and where to hang their education, health and care (EHC) plans
coat. were at home experiencing the above
difficulties because their setting refused
Masks attendance. (Special Needs Jungle)
For children who had been able to be IPSEA were also told of settings refusing
in school or return to school, Sense attendance based on risk assessments
reported that the wearing of masks with little or no input from parents.
had made it difficult for some children Settings were also unlawfully excluding
to participate. Children who rely on children in response to a perceived
lipreading have had their ability to inability to meet their needs “attempting
understand their teachers and other to rely on Covid-19 as a reason to justify
pupils affected. this”. IPSEA also reported parents’
concerns that risk assessments were
A deaf young person told the inquiry done without their knowledge and many
during oral evidence that: “Socially it were not aware of the requirements for
can be quite isolating with the whole them to be done. Furthermore, they cite
masks thing because at the moment my several examples where local authorities
school has rules that in communal places have acted unlawfully in putting EHC
everyone needs to wear masks… I’m Plan assessments on hold due to the
quite heavily reliant on lipreading.” pandemic.
Sense also report that risk assessments
Risk assessments and refusing
were also often conducted without
attendance input from families and they were
used “sporadically”. Had there been
A survey by Special Needs Jungle, some opportunity to discuss and work
conducted in June 2020, of more than together, then perhaps those children
1,000 families who identified themselves could have returned to school rather
24 | Forgotten. Left-behind. Overlooked.than “blanket decisions” being made attested that there were several factors
about their needs. (Sense via oral affecting whether children could return
evidence) to school, such as the school refusing
them attendance, the pupil’s anxiety,
The lack of a proper framework for illegal exclusion, and no suitable space in
completing the risk assessments meant school for a medical device. “I’m almost
that there was regional interpretation certain that nobody knows this actual
and variation. Sense expressed concerns exact figure at all, as was the case even
that risk assessments were being used prior to the recent pandemic”. (Emma
as a means of keeping children with Mander, Great Minds Together, via oral
additional needs at home, rather than evidence)
making reasonable adjustments at
school, which has meant some children Sense were concerned about the impact
being unable to return. that not being at school would have
on the young person’s support plan, as
Aerosol Generating Procedures assessments would be missed if they
were at home. This has particularly
Royal College of Nursing highlighted an impacted young people who were
area of risk in specialist school settings transitioning to new settings, as they
where children in schools require aerosol were not able to start in September as
generating procedures (AGPs) such as planned due to the required support not
oral suction, tracheal suction or long being in place.
term ventilation. These pupils are only
able to access school if the school Children who are shielding
environment has adequate provision, the
staff have been ‘FIT’ tested, and the risk Sense also raised concerns about
assessment supports their safety and children who were having to shield at
that of their fellow class members. RCN home because of complex medical
members reported that the guidance needs and being extremely clinically
from Public Health England was very vulnerable. They are missing out on
difficult for the school to adhere to. important therapies, but also achieving
(RCN) person-centred outcomes, such as
learning independent living skills, if they
Sense also expressed concern for pupils are having to shield for a long period of
who require AGPs, describing their time, Sense contended that they must be
return to school as “challenging”, with given the support to continue achieving
many unable to return in September and those outcomes at home.
missing further learning. Sense contends
that the “watering down” of rights and Sense also raised an issue about the
entitlements to support under Section guidance on shielding not appropriately
42 of the Children and Families Act, have recognising the needs of those children
led to a lack of forward planning in terms who were required to shield. Many
of identifying spaces to carry out AGPs families have received no risk assessment
in schools. or alternative support from their
local authority throughout the Spring
Pupils unable to return to lockdown.
school
In oral evidence, Great Minds Together
APPG for SEND Report Spring 2021 | 25Funding settings due to the exceptional costs
they are incurring as a result of the
The issue of funding was raised by the pandemic. However, they assert that this
Local Government Association (LGA) will likely be even more acute in SEND
in both their written and oral evidence. and alternative provision settings. This
They said that councils are continuing may lead to schools not being able to
to report the pressures on the High maintain acceptable levels of safety.
Needs funding block as “one of the
most serious financial challenges” they “This does not appear to be due to any
face. They expressed concern that local lack of will or commitment from pupils,
authorities would be unable to meet parents/families nor schools/settings -
their statutory duties to support children more frequently it appears to be due to a
with SEND without additional funding deficit in each sector related to capacity,
being made available. inadequate resource, a paucity of
mechanisms for effective collaboration
“If councils do not receive enough and limited understanding between
funding to cover the high cost of SEND sectors as to what is required for all
they will not have the resources to our pupils to maintain their wellbeing,
allocate extra funding to highly inclusive engagement, progress and learning –
schools that take higher than average this has become particularly clear during
numbers of pupils with additional needs”. Covid-19 (NAHT)”
(LGA, oral submission)
Local councils
Children’s Services Development Group
(CSDG) noticed that the pandemic Local Government Association (LGA)
resulted in commissioning decisions reported a positive relationship between
being made on the basis of short- schools and local authorities which has
term funding concerns. They gave the flourished during Covid-19. They provide
example of placements being ended the example of councils supporting
sooner than planned “to mitigate funding schools to interpret the guidance from
obligations for young people with the DfE, and that it is important that the
SEND”. This meant that children had to positive relationships continue.
return home unexpectedly which meant
there wasn’t time for a transition to be LGA also referenced the government’s
planned and support put in place. SEND review and, from that, there needs
to be a clear accountability network
CSDG also explained that High Needs created and flexibility around funding.
funding has been a developing problem They said that the pandemic has shown
over many years and is something the challenges that councils, schools and
that has been “exacerbated” by the health care providers currently have in
pandemic. This has led to regional fulfilling their duties to support children
variations based on access to services, with SEND.
available funding and “placement
decisions typically now being based on Agencies working together
short-term cost considerations, rather
than the full needs of the child”. Parents painted a picture of the
difficulties they encounter when trying
NAHT referenced the funding issues to achieve the support their children’s
that are being faced by all education needs. One parent, in oral evidence,
26 | Forgotten. Left-behind. Overlooked.You can also read
