The Minister of State, Department for Education (Baroness Smith of Malvern) (Lab)
My Lords, as others have, I will start by thanking the noble Baroness, Lady Monckton, for securing this debate on the contribution of special schools and colleges. The noble Baroness and I did our maiden speeches on the same day and she has continued to be, as she was then, an enormously important advocate both for the project that she leads and for children and young people with special educational needs and disabilities.
I am also grateful for the excellent contributions today from across the House. As the noble Lord, Lord Addington, said, there has been a breadth of discussion. There has also been an understandable use of personal experience and an emphasis on the experiences of individual children. As my noble friend Lady Hazarika said, this is about how we ensure that every child gets the best possible start in life and the best possible opportunities to achieve their potential in life. That is why we said in our manifesto that we were committed to breaking down barriers to opportunity, so that every child, regardless of their background, their family circumstances or their needs, is supported to achieve and thrive.
Sadly, that is not happening in our special educational needs and disability system at the moment. We have inherited a system in crisis. As others have identified, it is a crisis of provision and a crisis of confidence. Outcomes for children and young people are often poor in a system which can be adversarial for parents and carers to navigate. This was reinforced this morning with the publication of the National Audit Office’s report referenced by the right reverend Prelate the Bishop of Lincoln. The NAO report on the SEND system exposes the full extent of the failure. It reveals a system that has been neglected to the point of crisis and, consequently, has failed children and families with special educational needs on every measure.
I also identified that the noble Lord, Lord Bilimoria, in a broad speech, concluded that the one answer was more money. Of course it is important that this area receives the resources it needs, but one of the most worrying things about the National Audit Office report was that it identified that, although the annual budget has risen by 58% in a decade, this has not led to better outcomes for children with special educational needs. Money is not enough in this case. I think that is because—as I the noble Lord, Lord Jamieson, very ably spelled out—we have a whole range of pressures and a whole system that is broken. Therefore, we need to take a systemic and radical approach to the way in which we think about special educational needs and disabilities.
It is both a cause and an effect that, in recent years, we have seen a significant surge in demand for SEN support in education, health and care plans, and in special school placements. The number of children and young people with EHCPs has increased markedly, from 330,000 in 2021-22 to 400,000 by 2023-24. That rise is particularly pronounced among specific need types. Over this period, the number of children and young people with autism recorded as their primary need grew by 27.9%. Similarly, those with speech, language and communication needs have seen an increase of 36.4%, and those with social, emotional and mental health needs have risen by 25.4%. Those sharp increases highlight the growing pressures on the SEND system. As noble Lords identified, they also demonstrate the need for not only an education-wide response but a government-wide response, where the contribution of health, for example, will also be important.
The Government’s ambition is that all children and young people with special educational needs and disabilities, or in alternative provision, receive the right support to succeed in their education and as they move into adult life. That is why we are committed to taking a community-wide approach, improving inclusivity and expertise in mainstream settings, as well as ensuring that specialist settings cater to those with the most complex needs.
My noble friend Lady Hazarika talked about the experience of many families and children in mainstream schools, where their failure to get the support necessary drives them into this battle for an education, health and care plan. Today, we have published independently commissioned insight that suggests that, if the system were extensively improved, using early intervention and better resourcing in mainstream schools, that could lead to tens of thousands more children and young people having their needs met without an EHCP, and having their needs met in a mainstream setting rather than a specialist placement. That is what is at stake here. We are determined to rebuild families’ confidence in a system that so many rely on. There will be no more short-termism when it comes to the life chances of some of our most vulnerable children. We understand how urgently we need to address this, but the reform that families are crying out for will take time.
I say to my noble friend Lady Morris that that will obviously mean that there will need to be a further opportunity for debate—in this House, yes, but also across the country, with the families, the children and those who are supporting them also having the opportunity to take part. My right honourable friend the Secretary of State is absolutely determined to engage widely as we do this.
The noble Lord, Lord Farmer, made an important contribution when he talked about the role of parents—the significance of the support they provide to their children, the crucial relationship they need with the schools and, of course, their contribution to the debate. Their voices and concerns must be heard as we take forward systemic reform in this area.
We also understand that people are impatient and we have already taken several steps to deliver on this vision. We have restructured the Department for Education, with much more focus on support for children and young people with SEND as part of our schools provision. The part of the department that does the core work on SEND and alternative provision has moved into the schools group, so it sits under the Schools Minister and the schools director-general. It is being considered as a central component of that wider schools work, including school standards, curriculum and assessment, and the operation of the education system as a whole.
We have begun the work to address the serious workforce challenge facing the school system. We are recruiting an additional 6,500 teachers while providing support to areas facing specific recruitment challenges. We are investing over £21 million this year to train 400 additional educational psychologists, ensuring better support and education for our young people.
The noble Lords, Lord Bilimoria and Lord Addington, and others rightly emphasised the need for early intervention and identification. We are similarly determined, therefore, that the early years sector receives the support it needs to grow and to develop further skills. In September, the department published a new, free online training module and SEND assessment guidance and resources for early educators aimed at supporting children with developmental differences and with special educational needs and disabilities. In the new core schools budget grant in July, we provided special and alternative-provision schools with more than £140 million of extra funding to help with the extra cost of this year’s teachers’ pay award and the outcome of the pay increase negotiations for support staff. This is important to support the recruitment, retention and development of dedicated specialist and support staff, ensuring that they continue to play that crucial role in providing high-quality education and care for pupils with SEND. As my noble friend Lady Morris said, special schools and colleges employ a high proportion of such support staff. They play a critical role in the education of the children and young people with the most complex needs, building that team around the child that is so crucial.
We also know how vital it is that all our children have strong speech and language skills. That is why this Government will roll out early language interventions to make sure that all our children get support at the earliest possible point, including continuing the support for the 11,100 schools registered for the Nuffield Early Language Intervention programme, because it is important that we make a difference when our children are young.
The noble Lord, Lord Addington, talked about the contribution of technology support for pupils with SEND, with rapid improvements in the accessibility features built into standard devices. Schools now have more access to assistive technology than ever before, and evidence shows that when used effectively it is a key component of high-quality teaching for pupils with SEND. The Government are committed to helping teachers use technology to support their students with SEND, and we are embedding evidence-based practice, broadening the effective use of assistive technology through research, training, and guidance.
My noble friend Lady Morris and the noble Lord, Lord Addington, rightly talked about the importance of the curriculum and assessment in how we support children and young people with special educational needs and disabilities. In launching the independent curriculum and assessment review chaired by Professor Becky Francis, we have been clear that the review will look closely at the barriers to progress and how we can achieve good outcomes specifically for those with special educational needs and disabilities. Last month, the review launched a call for evidence which will give stakeholders in the SEND sector an opportunity to have their say on the curriculum and assessment system, including what currently works well and where things could be improved.
Several noble Lords talked about the importance of preparing children and young people for adulthood, and that has to be at the heart of the SEND system. We know that, with the right support, the vast majority of young people with SEND are capable of sustained paid employment and living full lives, and they should be supported to achieve that outcome. To help with this, we are supporting schools and colleges to work in line with the Gatsby benchmarks to address individual needs and to raise career aspirations.
The noble Baroness, Lady Monckton, raised the issue of how we can ensure that young people with SEND are able to access apprenticeships. I strongly agree with her about that. We have already expanded the flexibility of English and maths requirements for apprentices with learning difficulties or disabilities, allowing those without an EHCP but facing barriers to achieving level 2 qualifications to complete entry level 3 instead. We are also investing £18 million to March next year to double the number of supported internships, and we are testing this model with young people to support even more young people to achieve, thrive and transition into employment. However, I take the noble Baroness’s point about further flexibility in the apprenticeships programme, and I shall certainly reflect carefully on that.
In thinking about further education, it is of course the case that lots of general further education colleges are doing very good work in the area of special educational needs. But, for young people whose needs cannot be met in general further education colleges, specialist post-16 institutions play an integral role in providing that specialist further education provision. In 2024-25 there were 118 of those institutions for students receiving high-needs funding. It is also worth saying that young people with SEND who choose to progress to university should also continue to access high-quality support. As of the most recent data, almost one-fifth of English higher education students had a disability. Under the Equality Act, all HE providers have a responsibility to make reasonable adjustments for their disabled students, and the Office for Students requires registered HE providers to take all reasonable steps to ensure that students are supported. In their access and participation plans, providers must also outline how they will improve opportunity for underrepresented groups, including disabled students, to access, succeed in and progress from higher education.
Ultimately, we want more children and young people to receive the support they need to thrive in their local mainstream setting, reducing the need for them to travel a long way to access a specialist placement and, as several noble Lords have said, enabling them to learn alongside their friends. Many mainstream settings are already going above and beyond to deliver specialist provision locally, including through resourced provision and SEN units. But there will also always be a place in the system for special schools and colleges for children with the most complex needs.
As we have heard today, special schools and specialist post-16 colleges make an invaluable contribution to the education of nearly 200,000 learners, supporting them to achieve and thrive. Their staff work tirelessly to support children and young people and I take this opportunity to thank them for their dedication. I recognise the point made by my noble friend Lady Morris about how the range of staff and the skills that exist in specialist schools and colleges can inform teachers in all our schools. As the right reverend Prelate the Bishop of Lincoln said, that role of staff and where possible that collocation can enable everybody to benefit. Specialist staff across schools and colleges play a fundamental role in educating children and young people with SEND and supporting their preparation for adulthood.
We have also seen some really positive partnerships between specialist and mainstream colleges that enhance the educational experience for children and young people with SEND. For example, Orchard Hill College and Crawley College have collaborated to support learners with complex health needs, enabling them to access mainstream courses with tailored care plans. Similarly, Newfriars College and Newcastle and Staffordshire Colleges Group are working together to create new supported internships and work placement opportunities, open to students from both settings. Those are the types of partnerships that enable the very best specialist, understanding staff and provision to be shared for all to use.
The noble Baroness, Lady Wolf, talked about other specialist colleges and I take her point about the need for us to have a view about how more broadly specialist colleges need to be organised and contribute to the system. I shall certainly take that point away and take up the challenge to look at that provision.
Several noble Lords once again took the opportunity to raise the issue of VAT on independent school fees. I reiterate, as I have said on every single occasion, that local authority funding already supports the vast majority of pupils with EHCPs who attend independent schools, and they will not be impacted by the introduction of VAT for private schools. Next week, in the Budget, the tax information and impact note will include the impact on special educational needs. I assure noble Lords, including the noble Baroness, Lady Wolf, that the Treasury has been considering how VAT might apply to post-16 institutions; the Government will publish the results of that consultation soon.
For too long, the education system has not met the needs of all children and young people, including those with special educational needs and disability. Educational outcomes for children and young people are too poor, after years of councils and parents being pitted against each other. Special schools and specialist colleges, such as Team Domenica, make an enormous contribution to the education and care of thousands of children and young people, helping them to learn, achieve and prepare for adulthood.
We will work to restore parents’ trust that their child will get the support that they need in a mainstream setting if that is the right place for them, and that there will always be a place in specialist settings for children and young people with the most complex needs. That is central to improving the life chances of children and young people across the country, and I look forward to working with noble Lords to make that vision a reality.