Ministers want to reform SEND - but they are treading very carefully

In the next few weeks, the government is expected to outline its plan to overhaul the crucial yet complex system of support for children with special educational needs and disabilities (SEND) in England - and it could prove contentious.

The SEND system is vital to hundreds of thousands of parents and children in England.

Almost every MP will tell you it's an issue that regularly tops their inboxes; last month, the prime minister acknowledged SEND was probably raised with him more than any other topic in the House of Commons.

Given the strength of feeling, it's perhaps no surprise that some Labour MPs have been nervous about what the government is planning, mindful of previous missteps on issues of public concern like winter fuel payments and welfare.

With the prime minister's authority and judgement having been openly questioned by some in his own party in recent days, it's even more crucial for the government that they get this right.

And SEND reform is an issue fraught with potential pitfalls.

"The problem is there's such a huge trust deficit between parents and government on this issue," one Labour backbencher said.

"They know the current system doesn't work, but they worry a new system won't make it better and might make it worse and there's not enough trust in the bank to be able to trade on that."

Few would dispute the need to reform the SEND system.

In recent years demand has spiralled upwards, with a record one in five children in England now requiring support.

Many parents find themselves facing a system under strain, with provision patchy and families often locked in lengthy legal battles to get support for their children.

Meanwhile, the Office for Budget Responsibility forecasts that spending on special educational needs and disabilities will have more than doubled in real terms by 2028–29 as compared with 2015–16, and councils have been racking up debts as the cost of support outstrips budgets, leading to warnings of a "total system collapse".

Sources close to Education Secretary Bridget Phillipson say she is prepared to "grasp the nettle" and take the difficult but necessary decisions, driven by the belief that reform is essential to provide children with the support they need.

But the government has been treading carefully.

The schools white paper setting out SEND reforms was delayed last year, with ministers taking time to engage in a series of "listening exercises" with parents and professionals in the sector.

The thinking within government is clear. Ministers favour inclusive mainstream education for more children with special educational needs, where from the early years they get the support they require within local mainstream schools, with specialist school places for those with complex needs.

There is a question about the resources required to make this work. The OBR recently forecast a £6bn funding shortfall for SEND provision by 2028/29, and the all-party parliamentary group on SEND, as well as some teaching unions, have warned that school funding and resources would need to be increased.

A series of recent announcements have been described as a "downpayment" on the government's approach and commitment to funding; in December, there was £3bn to create places for children with SEND in mainstream schools, followed this year by £200m to train teachers in supporting children with SEND and £1bn to create suitable spaces in mainstream school buildings.

The government has also agreed to clear £5bn worth of debts that councils have built up, and take on responsibility for SEND funding from 2028.

One backbench Labour MP said they were "reassured" by the announcements so far.

"It builds my confidence in the fact they're serious about what needs to be done at the get go on this," they said.

But they said they were still waiting and watching for the detail of the government's wider plan.

A potential flashpoint is what the government decides to do regarding Education Health and Care Plans (EHCPs) – the legal documents that underpin a child's right to support.

Official government figures show the number of these plans increased by 166% between January 2015 and January 2025, from 240,000 to 639,000.

There is a school of thought – articulated by parliament's education select committee in a report last year – that providing the support children need from the earliest stages in mainstream school settings will mean fewer parents need to go down the often difficult and adversarial route of pursuing an EHCP to access help.

But MPs are aware that parents fear any erosion of legal rights, with an active campaign underway called Save Our Children's Rights petitioning the government.

"I think probably the key is if a parent can stand up and demonstrate they and their child have got fewer rights today than they had yesterday, that'll be the killer blow," said one Labour backbencher.

"This is where the trust problem comes. I can tell you we're going to put loads of support into mainstream and then it will get better, the trouble is we've lost so much trust and confidence with the public – not just this Labour government but the whole SEND system."

The government has insisted current support and legal entitlements will not be removed, but has not ruled out future changes to the system.

There are Labour MPs who feel encouraged, with one describing "thoughtful thinking" that is taking place in government.

But even among those who are optimistic there is caution, given the complexity and scale of the issue, with repeated warnings that the government has to "keep engaging" with parents and people working in the sector.

Some argue the government needs to go further. The County Councils Network has warned the government not to "duck" reforms, saying in order to improve outcomes for children, costs have to be "tackled and curtailed" and there should be legislative change to focus EHCPs on those most in need.

Every party in Westminster has acknowledged the need to reform England's SEND system.

The Conservatives and the Green Party have not set out clear policies.

The Liberal Democrats have outlined fundamental principles including a "fair funding system" that incentivises schools to accept SEND pupils, while Reform UK is developing its own SEND policy after the party's deputy leader, Richard Tice, said some parents were "abusing the system" – limiting the support for those "genuinely in need".

The challenge for the government is delivering reforms bold enough to improve a system under enormous strain without alienating parents or leading to a backlash from its own MPs – all within constrained budgets.

It's no wonder they're treading carefully.

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