Written evidence submitted by Medway Council (HTS0029)

Medway Council response

1.1 Summary of Key Messages

Medway recognises the national upward trend in demand and cost for SEND transport, driven by rising numbers of Education, Health and Care Plans (EHCPs), shortages of local specialist school places and inflationary pressures in transport provision.
Medway supports the PAC’s focus on national and regional co-ordination, evidence-based use of Personal Travel Budgets (PTBs), and scaling-up Independent Travel Training (ITT) to promote independence and reduce long-term costs.
Medway recommends greater data-sharing across authorities, investment in preventative and independence-focused initiatives, and adoption of a whole-family approach to SEND transport planning.
These measures would support a more financially resilient, equitable and inclusive transport system nationally and locally.

Introduction and Medway Context

Medway is a unitary authority with a population of 279,800, of whom 23.4% (approx. 65,400) are under the age of 18. 1,876 SEND pupils receive travel assistance by the council. Reflecting national trends, Medway has experienced a sustained rise in children and young people with EHCPs requiring specialist provision, increasing both journey lengths and costs.

Medway’s SEND transport budget has grown by 51% in three years, rising from £9.27m in 2023/24 to £14.9m in 2025/26. The budget has grown significantly to match demand, with the largest jump between 2023/24 and 2024/25 (over 32%). Growth continues into 2025/26 but at a slower rate (14%). This growth has been driven primarily by increased EHCP numbers, more complex needs, and inflationary pressures within the transport market.

Financial Year	Budget (£)	% Change
2023/24	9,274,434	-
2024/25	12,280,756	+32.4%
2025/26	14,009,343	+14.1%

2.1 Key drivers for the growth in transport budget include:

EHCP growth: A steady increase in complex needs requiring specialist provision and tailored transport.
Population change: Inward migration and demographic growth increase the number of eligible pupils.
Complexity: More children with multiple or severe needs now require bespoke, high-cost transport.

Medway’s Education Travel Assistance Policy (2025–26) sets out a clear, statutory framework to ensure equitable and safe access to education, balancing duty of care with fiscal responsibility.

2.2 Local Government Reorganisation - Context

Medway Council is currently going through the process of Local Government Reorganisation (LGR). The final proposal submission deadline to government is 28 November 2025, and vesting day, when new authorities go “live”, is April 2028. Within the context of LGR, there are both challenges and opportunities linked to home-to-school transport.

The move to larger councils can create uncertainty around governance and contracting arrangements and could disrupt established transport networks. Medway Council’s proposed 4d model for reorganisation mitigates these risks by aligning to natural travel patterns and established communities.

In the long-term, LGR and future devolution arrangements presents significant opportunities to integrate planning across education, health, social care and transport delivery. Larger councils will also be able to deliver economies of scale in potential fleet management. For SEND transport specifically, new, larger unitary authorities will allow councils to improve data-sharing and co-ordinate provision.

LGR can create the opportunity for more strategic and efficient transport services for children and young people, as outlined below.

2.3 Opportunities for cost containment through LGR include:

Shared procurement: Joint tendering for SEND transport and travel assistance contracts to deliver economies of scale.
Centralised administration: Consolidating eligibility assessments, route planning and invoicing to reduce duplication.
Cross-border route optimisation: Co-ordinating transport across larger geographies for efficiency.
Integrated ITT: A Kent and Medway-wide programme to share expertise and promote independence.

2.4 Opportunities for managing extended demand through LGR and Devolution include:

Unified policy framework: Aligning eligibility and contribution criteria to ensure fairness and avoid demand displacement.
Enhanced data sharing: Shared demand forecasting and planning across authorities.
Sustainable travel promotion: Joint investment in ITT and active/public transport alternatives.

2.5 Key considerations

Currently, different authorities manage travel assistance differently because statutory guidance allows flexibility. With LGR and the amalgamation of several authorities, there is a risk of conflicting processes and expectations. A clear governance framework will be essential to:

Decide which policy takes precedence.
Harmonise eligibility criteria, contribution levels, and enforcement measures (e.g., penalties for non-payment).
Ensure consistency for families across the new authority.

Managing Rising Demand

3.1 National Picture

Nationally, costs for SEND transport have increased 77% in real terms since 2015, with EHCPs up 140% over the same period. Demand now outpaces both DfE high-needs funding and local authority budgets.

3.2 Local Context

Medway has seen similar trends. As of November 2025, the Council provides travel assistance to:

2,341 mainstream pupils (forecast to reach 2,500 by year end).
1,876 SEND pupils.

None of Medway’s transport is currently delivered in-house, and 310 young people travel outside the borough for suitable provision, with contractors responsible for route planning.

3.3 Medway’s Approach and Future Focus

Method	Description
Individual needs-based assessments	Assessing each child case-by-case via a SEND Travel Assistance Panel, which is reviewed annually.
Encouraging sustainable models	The council’s Sustainable Modes of Travel Strategy promotes active and public transport options where possible.

Sector research shows that rising demand is managed best when linked to regional co-ordination and early intervention (e.g., more local specialist places, consolidating contracts, pooling demand and data sharing across authorities). Therefore, the confirmation from the DfE to pilot regional data-sharing between local authorities and ICBs to forecast demand is welcomed.

Independent Travel Training, which aims to help those who need extra assistance and support to make journeys safely on their own, is also effective in reducing reliance on arranged transport. Furthermore, it highlights the importance of preventative support and early intervention in offering better long-term value for money with regards to SEND transport provision.

Further recommendations for improving access, management, and service delivery of Home-to-School Transport include simplifying eligibility criteria to make the process clearer and more consistent for families. Streamlining assessments and reducing complexity would improve transparency, reduce administrative burden, and help manage expectations. Additionally, aligning policies across authorities (particularly in the context of LGR) will be critical to ensure fairness and consistency in service delivery.

Available support for young people

Ensuring equitable, flexible and safe travel options is key to Medway’s approach. Preventative and independence-promoting support not only improves outcomes but represents long-term financial efficiency.

4.1 Current Offer

Support	Description
Personal Travel Assistance Budgets	Parents can opt to receive direct funding to arrange their own travel, such as assisting with fuel, taxi fares, or public transport costs. These are reviewed annually to ensure best value.
Fuel Allowance Scheme	Medway reimburses eligible families for two daily return journeys, supporting attendance (must remain above 80%) and flexibility.
Medical and Disability Support	Children with health-related or mobility needs receive specialised arrangements, these can include trained Passenger Assistants.
Post-16 continuity	A 16+ Travel Policy that also offers discounted passes for under-19s provides continued support.

4.2 Gaps and Opportunities

Medway does not currently operate an Independent Travel Training programme; however, this is being explored to assess its viability. At present, Medway provides travel assistance for young people through bus passes, which allows them to travel independently or with an accompanying adult where necessary. A bus pass is also provided for the adult. Fewer than five young people have been awarded Personal Travel Budgets (PTBs). While PTBs can sometimes reduce costs, they are primarily used to support bespoke transport arrangements for young people with complex needs or medical conditions.

Medway’s 16+ Travel Policy demonstrates our commitment to supporting the most vulnerable young people in accessing education beyond statutory school age. This continuity measure is a success as it ensures those with the greatest need can continue their learning post-16. However, implementation has faced barriers, primarily due to budgetary pressures. The policy includes a parental contribution, which is not always paid, resulting in bad debt that, despite all recovery efforts, has had to be written off in the past year. To address this, we have consulted on introducing a penalty for parents who do not pay their contribution, and this measure will come into effect from September 2026.

A key future opportunity for widening support is the implementation of an Independent Travel Training programme. This would enable more young people to develop the skills and confidence to travel independently, promoting greater autonomy and reducing reliance on bespoke transport solutions. Such an approach could also deliver long-term cost efficiencies while supporting inclusion and life skills development.

Efforts to contain costs.

Nationally, SEND transport overspends represent a systemic fiscal risk, with deficits projected to reach £3.9bn annually by 2027–28 (PAC, 2025).

The challenges for containing costs are intensified by rising prices of contracted transport, staff shortages and long distances to specialist provision. Short-term fixes for SEND overspend are insufficient.

Sector research highlights large inefficiencies in overlapping taxi routes and high unit costs. The recommendation to contain these costs include pooled procurement across councils and “route optimisation.” This would mean arranging routes and resources to maximise efficiency while also minimising costs. These examples of sustainable cost management, when implemented alongside regional collaboration with neighbouring local authorities, can also be efficient in aggregating demand.

5.1 Medway’s Existing Actions

Action	Description
Route optimisation	Medway uses tools such as QRoutes to streamline routes and balance efficiency with need. Medway also adheres to DfE guidance on suitable and “reasonably stress-free” journeys: a maximum 45 minutes (primary) / 75 minutes (secondary).
Shared and sustainable transport	Where possible, the Council prioritises shared minibuses and sustainable transport methods. This is to avoid single-taxi journeys (except in exceptional or complex cases).
Annual reviews	The SEND Travel Assistance Panel conducts annual reviews to ensure ongoing value for money.
Parental contributions	Introduced for post-16 travel, as a non-statutory duty.

5.2 Future Opportunities

Medway currently has no formal pooled procurement with neighbouring authorities, but this remains a potential future efficiency opportunity under LGR.

Medway forecasts future demand based on current trends in Education, Health and Care Plans (EHCPs) and demographic changes. We expect demand to increase significantly due to the continued rise in EHCPs nationally and locally, alongside inward migration into Medway. These factors will likely lead to greater pressure on SEND transport services and associated budgets, requiring proactive planning and cost-containment strategies.

Key Recommendations

Medway welcomes the PAC’s scrutiny of home-to-school transport and proposes:

National data-sharing frameworks to link EHCP and transport demand, supporting accurate forecasting and cross-authority collaboration.
Funding for preventative independence programmes, such as ITT and PTBs, to build confidence and reduce long-term reliance on bespoke transport.
Regional commissioning to stabilise markets, reduce duplication and secure best value for councils.
Whole-family approaches, Medway already demonstrates this through flexible assistance packages, including fuel allowances, combining bus passes for the young person and accompanying adult and offering Personal Travel Budgets where families can manage transport creatively.
LGR opportunities to ensure service continuity on vesting day while embedding transformation and integration across education, health and transport systems.

These recommendations reflect Medway’s dual aim: to safeguard equitable access for children and young people while building a financially sustainable transport system capable of meeting future demand.

November 2025