SCN0178

Written evidence from SENCO Forum

 

 

  1. This submission to the SEND Inquiry sets out challenges experienced by many special educational needs co-ordinators (SENCOs) as they carry out ‘front-line’ duties in implementing the 2014 SEND reforms in England. As well as highlighting barriers to carry out these duties, the commentary highlights examples of good practice.

 

  1. Evidence presented cuts across ‘key themes’ identified as priorities by the Select Committee for its Inquiry.

 

  1. Following the implementation of the Children and Families Act 2014 and the introduction of a new Special Educational Needs and Disability Code of Practice: 0 to 25 Years – both applicable to England – special educational needs co-ordinators (SENCOs) have been key ‘front line’ professionals with regard to introducing reforms in mainstream schools across England (see Appendix 1). With this in mind, it is worth reflecting on ‘how things are going’ in both academy and local authority affiliated schools.

 

  1. The long-running and well established Department for Education supported SENCO-Forum (see Appendix 2) e-discussion group provides us with a helpful, and I think fairly accurate barometer for ‘reading’ the challenges that SENCOs have experienced in trying to spearhead (Appendix 2) the implementation of the reforms since September 2014, and how they have been able to meet these. Currently (June 2018) the Forum has a membership of over 2,500 - comprised of SENCOs or other special educational needs and disability (SEND) professionals - working in schools, related settings and services.

 

  1. Postings on the Forum have averaged in the region of 300 + in school term months (with additional offline discussion also taking place) since 2014 and most of these have focused on specific issues linked to the (SEND) reforms (Waller, 2016). The following summary of these does not claim to be ‘fully comprehensive’, but it does reflect priority demands placed on SENCOs – as noted in Forum discussion -  and the schools that they work in*:

 

Quality first teaching

 

  1. SENCOs have reported challenges in trying to ensure that all teacher colleagues take responsibility for using the graduated approach to identify and meet the needs of children and young people with SEND support needs in their lessons. Some SENCOs have devised – and shared – observation templates designed to monitor the quality of teaching in their schools. These have also been used to support the development of effectively differentiated teaching that is also focused on achieving good outcomes for learners. Providing effective support for teachers requires ring-fenced time so that SENCOs can work with collaboratively with their colleagues. Not all SENCOs are allocated sufficient time to undertake this school-wide development work or the range of professional development activities to enhance a school’s SEND ‘capacity’.

 

  1. ‘I have met far too many SENCOS that aren’t given enough time to plan strategically and end up ‘fire fighting’ rather than being able to build in proactive strategies’**

 

  1. Pressure on SENCO time reflects wider pressures on school leadership decision making in relation to resourcing various aspects of curriculum and staff provision. In some schools it also appears to reflect the low strategic priority given by leadership teams to SEND provision.

 

SEND Support ‘eligibility’

 

  1. SENCOs are clearly striving to refine criteria for determining whether a child or young person has SEN Support needs (rather than more complex needs requiring Education, Health and Care plan support) that warrant using the assess-plan-do-review graduated approach to intervention. Views vary with regard to the level of need associated with the concept of moderate learning difficulty and whether disabled learners are eligible for SEN Support. Some SENCOs benefit from advice provided by local authority/area SEND advisory service professionals. These are particularly effective when they are linked to local SENCO networks designed to support schools as they refine their use of the graduated approach.

 

  1. Other SENCOs do not find it easy to access formal external advice and seek support from members of the SENCO-Forum (or use the Forum to complement local guidance).

‘My main frustration is not being able to access any support from the LA [local authority] unless the student is at rock bottom. My EP [educational psychologist] has 15 schools to work with and so can only focus on the really serious cases and if they don’t have a Statement/EHC plan then we have to pay £300 for an assessment.’

 

  1. Linked to the issue of eligibility is the use of formal identification and assessment tools. SENCOs frequently use the forum to ask for advice on the value of particular assessment instruments used in their schools and whether more up-to-date or more valid test resources might be available. Members of the forum with extensive experience and relevant skills (e.g. educational psychologists or specialist advisory teachers) frequently share advice on resources and how these should be used. In some instances, advice and support is also provided ‘off-line’ as an extension of Forum conversations.

 

SEND Interventions

 

  1. SENCOs are thinking more carefully than ever about the efficacy of interventions used in their schools to enhance quality first teaching and the implementation of the graduated approach with individual learners or particular groups of children and young people (Wedell, 2015a). Forum discussion has provided a ‘safe space’ to ask critical questions about the efficacy of off the shelf resources/interventions (e.g. those designed to improve literacy or numeracy skills) and specifically tailored interventions designed to support individual learners with complex needs. Interestingly, discussion and advice on these tailored interventions has included balanced commentary on the importance of  understanding the unique needs of a learner and drawing on evidence based approaches that may need adapting (e.g. for a pupil on the autism spectrum or a pupil experiencing information processing difficulties).

 

  1. SENCOs in secondary schools are continuing, with colleagues, to make use of vocational and other non-National Curriculum teaching programmes designed to help students to achieve outcomes pertaining to employment, independence and wider social participation. Following a period of uncertainty, when concerns have been raised about the value of alternative curriculum programmes, their value is be clearly being re-evaluated in response to student needs and aspirations.

 

  1. Some SENCOs are reporting on the development of innovative on and offsite provision for students (sometimes organised in partnership with other providers) and would like to see more national level support for these person centred initiatives.

 

Notional SEN budgets

 

  1. Some SENCOs find it difficult to identify funding available to make effective provision for learners assessed as needing SEN support. In some instances there would appear to be a shortfall in available funding and in others, SENCOs may find it difficult to access relevant funding information in their schools. Greater transparency is clearly needed and inequity in available funding for schools (a matter of national concern) is problem that the government intends to address in future. SENCOs welcome this but want to ensure that they are fully aware of SEND budget allocations in their schools and that resources will be focused on eligible pupils, including those who are also entitled to pupil premium intervention support. Effective SENCO networks play a role in helping SENCOs to understand aspects of SEND budgeting. The strategic management of financial resources is becoming an increasingly important aspect of the SENCO’s role (Robertson, 2012).

 

Education and Health Care (EHC) plans

 

  1. A number of SENCOs have highlighted concerns about ‘new bureaucracy’ when they refer a child or young person to a local authority for a possible EHC plan assessment. Eligibility thresholds appear to vary in different parts of the country, and the possible use of ‘blanket policies’ (e.g. in relation to particular groups of learners) by some local authorities has been noted. Clearly, there is a continuing need to  ensure that local authorities comply with legal requirements and disseminate accurate information about policy and practice to schools, SENCOs, parents/carers and, where appropriate, to children and young people. In some local authority areas SENCO networks are used to ensure clear information on EHC assessment procedures is shared. In some instances networks are also involved in developing assessment application moderation protocols with local authority SEND assessment teams.

 

  1. Few SENCOs have commented on or sought advice about the use of personal budgets (by parents and/or young people). This raises issues with regard to the desire for ‘take up’ and the development of local schemes by local authorities that families are aware of.

 

Deployment of teaching assistants (TAs)

 

  1. Many SENCOs appear to be confident about the deployment of teaching assistants and other learning and pastoral support staff in their schools/settings. Forum discussion shows that SENCOs, with other colleagues have, in recent years, sharpened their thinking about deployment, and this is reflected in TA job descriptions, their involvement in running effective teaching interventions and the professional development they receive. Concerns about the effectiveness of TA deployment – detailed in extensive research carried out during the past decade – appear to have been fully understood by schools and SENCOs. Members of the forum share innovative and effective practice on a regular basis. Less experienced and new to role SENCOs have benefited from advice concerning the effective deployment of learning support staff provided by Forum colleagues and this is offered quickly with an emphasis on practical solutions (Wedell, 2016b).

 

Access and examination arrangements

  1. During the past three years there have probably been more forum postings on ‘access arrangements’ than any other topic. SENCOs in secondary schools/settings (and colleagues in further education) have reported concerns about the lack of notice with regard to the latest information about access arrangement applications for students, lack of clarity about associated procedures, and perhaps most importantly, a big increase in workload.

 

  1. ‘Exam and access arrangements … a major task that requires greater support from external agencies in implementing the policy and JCQ guidelines.’ Concerns about access arrangements and eligibility in relation to primary school testing have also been expressed. The Forum’s advisory group has raised concerns about access arrangements with the DfE, Ofqual and JCQ (e.g. in relation to unnecessary workload demands and continuing made to JCQ guidance to schools and other settings).

 

  1. More positively, SENCOs are upgrading their skills and qualifications and undertaken accredited qualifications pertaining to access arrangements and testing. This may also mean that schools/settings need to rely less on external expertise to support these arrangements. A downside of this is that shared expertise and opportunities to discuss access arrangements and related issues in a broader context is lost.

 

  1. SENCOs and other members of the Forum have also discussed, in great detail, the problem of exam anxiety experienced by some students and how this can be addressed appropriately (Wedell, 2016a).

 

Professional development

 

  1. SENCOs frequently ask Forum members for advice about undertaking the National Award for Special Educational Needs Co-ordination (mandatory qualification for new to role SENCOs in mainstream schools), which courses are recommended, how much work is involved etc. SENCOs undertaking the Award also ask Forum colleagues for advice on research projects they are carrying out. Demands of completing the Award and then meeting expectations in school are sometimes reported as challenging.

 

  1. ‘Last year I found I was able to manage the demands of teaching, SENCO and completing the NASENCO course, but this year my teaching load has increased dramatically. My headteacher expects me to spend too much time on quality assurance procedures (data tracking, marking, reviews, learning walks) etc., and so I am feeling more and more detached from the SENCO role itself.’

 

  1. Reasons for this are not entirely clear, but there is some evidence of a mismatch between SENCO and headteacher perceptions of the SENCO role and how it should be carried out in accord with SEND Code of Practice guidance (Department for Education, 2015).  Where this is the case some Forum members advise SENCOs to actively seek the support of the school’s governing body and/or its lead SEND governor.            

 

  1. Experienced SENCOs note that the National Award qualification should not be the only continuing professional development opportunity for SEND leaders (including those in post before the introduction of the Award). SEND leadership focused training should also feature more centrally in the government’s wider educational planning (Department for Education, 2016), a point also noted by Robertson (2016a)

 

Employing specialist staff

 

  1. Perennial concerns about the lack of access to appropriate levels of external support from key professionals have been discussed on the forum in recent months but with a new perspective (Wedell, 2015c). More schools/settings appear to be employing speech and language therapists directly, or doing so in partnership with other local schools working together formally or informally (Tomes, 2016). In some instances, this approach has been taken because of frustration about the lack of provision. In others, schools and SENCOs have taken the opportunity to commission the service that they think will meet the needs of their children and young people. A number of forum members have asked about how to work in new ways with external providers of services and it is evident that SENCOs will, in the future, be more outward facing than ever before in carrying out their key duties (Robertson, 2012).

 

Health and social care support

 

  1. SENCOs regularly comment on major difficulties experienced in trying to access support from health and social care professionals and the time involved in ‘chasing this’. As noted above, this has led to a growth in direct commissioning by individual schools or groups of schools (e.g. Multi-Academy Trusts). However, problems persist and appear to represent a significant barrier to implement the SEND reforms successfully.

 

  1. ‘Lack of support from health and social services is causing me a great deal of stress.’

 

  1. Problems appear to be of two kinds. First, accessing advice and support when needed is extremely difficult (making effective early intervention hard). Second, engaging with health and social care professionals to carry out integrated education and health care planning assessments is time consuming and frustrating (in some instances the key professional has insufficient knowledge of the pupil being assessed).

 

  1. Despite new developments in the joint commissioning of services, SENCOs are reporting that health and social care services are playing ‘catch up’ with the SEND reforms. Too often it seems joint commissioning appears to involve the maintenance of status quo policies rather than responding to shortfalls or changes in provision demand.

 

Inspection

 

  1. Experienced SENCOs appear to be familiar with the expectations of Ofsted when SEND provision is inspected in their schools. Ofsted’s current inspection framework has been designed in such a way that schools should not be required to prepare reams of documentation in advance of an inspection. However, some SENCOs – including those new to the role - have asked forum members for advice on preparation for inspection and whether they need to prepare pupil/student case studies for inspectors to scrutinise. Advice on this matter has been sought from Ofsted (by the chair of the Forum’s Advisory Group) and the inspectorate has responded, indicating that case studies are not a requirement. Contributors to the forum have indicated that ‘good systems’ in practice should more than suffice, when evidencing the effectiveness of SEND provision during an inspection. Some SENCOs do use case studies and feel that these illustrate the effectiveness of support for pupils.

 

  1. Questions have been asked on the Forum about Ofsted’s monitoring of compliance with SEND legislation in schools (e.g. in relation to SENCO status and qualifications. Again, clarification has been sought directly from the inspectorate and shared with the Forum community (Robertson, 2016b).  Worryingly, it does not appear that the national inspectorate monitors basic legislative requirements pertaining to the SENCO role in schools.

 

  1. Local Area SEND inspections were introduce introduced in May 2016  and although Ofsted-Care Quality Commission (CQC) teams are not inspecting schools, advice on the forum has highlighted the possible role that SENCOs can play in sharing their experiences of being part of a local authority area’s Local Offer of SEND information and services (e.g. as part of SENCO networks). Published inspection reports (2016-2018) have highlighted the importance of SENCOs (school and area levels) and noted instances of poor local area support and its impact on professional practice (e.g. in relation to key aspects of assessment and intervention for pupils requiring ‘SEN Support’; accessing health and social care services).

 

Academisation

 

  1. SENCOs appear to be able to carry out their duties effectively in both academy and local authority affiliated mainstream schools/settings. However, concerns have been raised by some SENCOs working in academy schools about access to external support traditionally provided through local authority services. Multi-Academy Trusts (MATs) may, of course, be able to share SEND expertise and resources in cost-effective and innovative ways, and purchase their own specialist services (Tomes, 2016). On the other hand, Trusts struggling financially may carry out cost-cutting that has a direct impact on SEND provision (e.g. by sharing a SENCO between schools). A range of concerns pertaining to SEND provision and MATS raised by Forum members and other SENCOs has been submitted to the current Parliamentary inquiry into the work of MATs (Robertson, 2016c) and noted elsewhere (Robertson 2016d, 2016e)

 

  1. SENCOs working in smaller MATs (e.g. groups of 5 or 6 schools in a local area) appear to be better placed with regard to engagement with other SENCOs and local authority SEND professionals. This is regarded as vital, given the statutory SEND duties of local authorities and the carrying out of these in local area schools regardless of their academy or non-academy status. Some SENCOs highlight the positive value of local SENCO networks in ensuring that key aspects of the SEN Local Offer are understood by all education providers in an area and that these providers can actively contribute to the development of SEND provision locally through monitoring, reviewing and refining the Offer in accordance with SEND Code of Practice guidance.

 

Workload

 

  1. Many SENCOs using the Forum highlight concerns linked to excessive administration and paperwork associated with implementing the new SEND Code of Practice. It is not clear yet if these are a ‘knock on’ or collateral effect of system transition or indicative of more deep seated problems with aspects of legislation or policy.

 

‘I am in work at 7 every day and leave between 5 and 6. I am shattered at the end of a working day and try not to access work emails in the evening and at weekends. The previous two SENCOs left because of ill health.’

 

‘I don’t know how anyone does this job on two days a week! [teaching on other days] – there are still not enough hours in the day. I find it impossible to keep on top of the important, long-term paperwork like the SEND Information Report, updating the SEND register, updating One Page Profiles, reviewing the SEND policy etc.’

 

  1. Clearly, many SENCOs are not reaping the benefits of Department for Education and Ofsted guidance and policy that seeks to reduce teacher workload.

 

  1. In relation to SENCO workload issues it is noteworthy that individual SENCOs differ greatly with regard to the number of pupils they have oversight for. In a large secondary school a SENCO might co-ordinate provision for 200-300 pupils. In a small primary school this number might be in the region of 20 pupils. Even in schools with similar pupil numbers and intakes there are significant variations in the amount of time SENCOs are allocated to carry out their strategic leadership and management-co-ordination duties. Forum members frequently express concern about this matter.

 

‘Hours per week to do the job? On paper 10 but this never happens - 0 maybe need 15-20 hours.’

 

  1. Finally, it is evident that a number of SENCOs experience a level of frustration in their work that leads to them stepping down from the role, moving schools or leaving teaching. Although national level data on SENCO retention is unavailable at the current time discussion on the Forum indicates that there is considerable flux and change that may not help to embed the SEND reforms as effectively as possible.

 

‘Schools are going to lose hardworking, conscientious, caring, professional people as they expect a SENCO to do the job of two people. Corners will be cut and inevitably this will lead to errors being made.’

 

  1. The issues discussed above highlight key concerns of many SENCOs as they implement the SEND reforms in England on a day-to-day basis. They also resonate strongly with recently published evidence by the NASUWT (2018).

 

  1. The concerns have been raised through discussion on the SENCO-Forum during the past three years. At the same time, SENCOs have also been fleet-footed in addressing concerns in their schools and generous in sharing their solutions to support their colleagues. Many members of the Forum identify the community as a ‘lifesaver’ in the way that it acknowledges the professional challenges experienced by SENCOs but also always offers timely advice and support.
  2. The Forum operates as a national e-network for SENCOs throughout England (and elsewhere). However, as noted in this briefing, it is also important to recognise the benefits of connecting SENCOs in local areas – in academy and non-academy schools – and local authorities. Good examples of these networks can be found in many local areas and tend to be characterised by a ‘bottom up’ rather than ‘top down’ model of organisation.  The SENCO role in a school can be an isolated one. Face-to-face SENCO networks have the potential to overcome this potential problem and to ensure that local area SEND provision is developed and sustained in ways that are collaborative and effective.

 

  1. *Issues discussed in this briefing note refer to SEND provision and practice in schools. Some of these also apply to early years and post-16 education sectors.  However, both of these sectors, and SENCOs or learning support coordinators working in them, also experience sector specific challenges in implementing the SEND reforms. These are not considered in this note but are discussed on the Forum. Please note that SENCOs (or their equivalent) working in these phases/sectors were largely ignored in Children and Families Act 2014 and the 2015 SEND Code of Practice. This has significant knock effects for children, young people, families and professional staff who support them.

 

  1. ** Comments cited are direct responses to a recent Forum survey (Miles, 2016) that asked SENCO members to reflect on aspects of their work.

 

 

Sources

Department for Education (2015) Special Educational Needs and Disability Code of Practice: 0 to 25 years – Statutory guidance for organisations which work with and support children and young people with special educational needs and disabilities. www.gov.uk/government/publications

 

Department for Education (2016) Educational Excellence Everywhere. Cm 9230. www.gov.uk/government/publications

 

Miles. M. (2016) SENCO Survey: report to the SENCO Forum Advisory Group. 29 February 2016.

NASUWT (2018) Special Educational Needs (SEN), Additional Learning Needs (ALN) and Additional Support Needs (ASN) Survey: April 2018. www.nasuwt.org.uk

 

Robertson, C. (2012) ‘Special educational needs and disability co-ordination in a changing policy landscape: making sense of policy from a SENCO’s perspective’, Support for Learning, 27 (2), 77-83

Robertson, C. (2016a) Educational Excellence Everywhere: for everyone? Presentation (Roundtable 2) to the Labour Party review of the implementation of the Children and Families Act 2014. 24 May, House of Commons, London.

 

Robertson, C. (2016b) ‘Inspection and SEND; questions for Ofsted’, https://educationinspection.blog.gov.uk/2016/01/20/busting-myths-on-ofsted-inspections/#comments

 

Robertson, C. (2016a) ‘Multi-Academy Trusts: Special educational needs and disability – policy, practice and provision’ written evidence to the House of Commons Education Committee Multi-Academy Trusts Inquiry. https://www.parliament.uk/business/committees/committees-a-z/commons-select/education-committee/

 

Robertson, C. (2016d) ‘Sharing challenges and solutions’, Special, July, 31-33.

Robertson, C. (2016e) ‘Support for SENCOs’, Special, September, 56.

Tomes, W. (2016) ‘All in it together’, Special, July, 38-39.

 

Waller, T. (2016) SENCO Forum ‘snapshot’: data summary. 28 June 2016.

Wedell, K. (2015a) ‘Points from the SENCO Forum: deciding about interventions’, British Journal of Special Education, 42 (2), 217-219.

 

Wedell, K. (2015b) ‘Points from the SENCO Forum: Putting the 2014 Code of Practice into practice’, British Journal of Special Education, 42 (3), 338-340.

 

Wedell, K. (2015c) ‘Points from the SENCO Forum: the changing context of the SENCOs’ work’,’ British Journal of Special Education, 42 (4), 444-447.

 

Wedell, K. (2016a) ‘Points from the SENCO Forum: SENCOs’ support for students with exam anxiety’, British Journal of Special Education, 43 (1), 92-94.

 

Wedell, K. (2016b) ‘Points from the SENCO Forum: the SENCO Forum’s 21st anniversary’ British Journal of Special Education, 43 (2), 195-198.

 

 

 

June 2018

 

 

 

 

 

 

 

Appendix 1

The role of the SENCO

Legislation and guidance introduced in 2014 confirms an enhanced role for SENCOs. The Code of Practice (sections 6.87 to 6.89) emphasises this in relation to dimensions of professional practice:

The SENCO has an important role to play with the headteacher and governing body, in determining the strategic development of SEN policy and provision in the school. They will be most effective in that role if they are part of the school leadership team.

The SENCO has day-to-day responsibility for the operation of SEN policy and co-ordination of specific provision made to support individual pupils with SEN, including those who have Education, Health and Care (EHC) plans.

The SENCO provides professional guidance to colleagues and will work closely with staff, parents and other agencies. The SENCO should be aware of the Local offer and be able to work with professionals providing a support role to families to ensure that pupils with SEN receive appropriate support and teaching.

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Appendix 1

About the SENCO-Forum

The forum was established 23 years ago – in the early days of e-technology - as an online discussion community for special educational needs co-ordinators (SENCOs), and other professionals involved in the education of children and young people with special educational needs and/or disabilities (SEND). Currently, the forum has a membership of over 2,500 (subject to fluctuation). Members work across the United Kingdom, and in international contexts.

The primary aim of the forum is provide practical advice and support to SENCOs in carrying out their roles. The discussion community is committed to improving inclusive provision and practice for children and young people with SEND. It also operates in accord with principles of collaboration and mutual support, and is solution focused.

For many years the forum was hosted by the British Educational Communications and Technology (BECTA). It is now hosted by the Department for Education (DfE) and members of the forum advisory group meet with a member of the department’s SEND Unit each term to discuss administrative issues and the strategic role of the discussion community. The DfE is not directly involved in forum discussion and is committed to never censoring or amended messages. The forum itself operates with reference to an acceptable use policy.

The Forum’s technological platform ‘crashed’ in November 2017 and was out of action for nearly three months. Following a repair the Forum is operational again. However, the technology supporting it is out-dated and unreliable. The Department for Education has committed to a developing a new and independent Forum in 2018-19.

The forum welcomes new members, particularly new to role SENCOs. Details of how to subscribe to the discussion list can be found on the main SENCO-forum webpage at:

http://lists.education.gov.uk/mailman/listinfo/senco-forum

This page also provides information about the forum’s acceptable use policy and its message archive. This resource is ‘open access’ and allows anyone to search and review messages and discussion topics (by author, date, thread or subject).

Day to day operation of the forum is managed by an advisory group.

 

Christopher is happy to respond to any enquiries about the forum and its activities.