SEND Strategic Partnership Board minutes – 16 December 2025

Draft

These are the draft minutes of the SEND Strategic Partnership Board. This note will be removed once the minutes are signed off at the next meeting.

Attendance

• Alison Brooks, Strategic Advisor (Minutes), Devon County Council
• Amy Bickford, SEND Participation Lead, Devon County Council
• Amy Carey-Jones, Information Advice & Support Lead, DiAS
• Brian Gale, SEND Adviser, DfE
• Councillor Denise Bickley, Cabinet member for SEND, Devon County Council
• Councillor Richard Jeffries, Cabinet member for Children’s Services – Children’s Social Care, Devon County Council
• Councillor Sara Wilson, Devon County Council
• Dan Harris, Head of Financial Systems & Processes, Devon County Council
• Donna Manson, Chief Executive, Devon County Council
• Emma O’Connell, Children and Family Health Devon Acting Director
• Hannah Smart, Executive Headteacher, Devon Special Schools
• Jack Newton, Deputy Director – Education and Schools, Devon County Council
• Jonathon Mitchell, Service Manager (Disabled Children, Support and Advice, and DCSO), Devon County Council
• Julia Bonell, Co-chair of Parent Carer Forum Devon (PCFD)
• Julian Wooster, Director of Children and Young People’s Futures, Devon County Council
• Kellie Knott, SEND Strategic Director, Devon County Council
• Liz Williams, Devon County Council
• Mark Tucker, Senior Learning Disability and Autism Programme Assurance Manager and SEND Lead NHS England and NHS Improvement South West, NHS England
• Mark Vickers, Chief Executive Officer, Olive Academies
• Melanie Coleman, Programme Manager for SEND Transformation Programme, Devon County Council
• Natalie Wilkins, Care Group Director- Women’s Agreement and children, NHS Devon
• Paul Holmes, Commissioning Officer, Devon County Council
• Rachel Shaw, CEO Exeter Learning Academy Trust
• Sally Heath, Deputy Director of Transformation & Business Services, Devon County Council
• Steve Brown, Director of Public Health, Devon County Council
• Victoria Mitchell, Co-chair of Parent Carer Forum Devon (PCFD)

Apologies

• Su Smart, Director of Women and Children’s Improvement, NHS Devon
• Trevor Doughty, Chair of SEND Strategic Partnership Board, Independent

1. Welcome, introductions and apologies

Julian Wooster chaired the meeting in the absence of Trevor Doughty. Apologies were noted.

Julian confirmed that the new independent Chair, André Imich, will start in January and induction preparations are underway.

2. Review of previous meeting minutes and actions

The Board reviewed the minutes page by page. The following points were highlighted:

• Page 5 Action: JW to speak with JN & KK about what we can do about addressing the issues raised at the Board. Work is ongoing relating to communication issues, emotional health and wellbeing, and CAMHS thresholds. Conversations continue, but no detailed plan exist yet due to complexity and resourcing requirements. Once a plan is confirmed, this will be taken forward by the Transformation Board.
• EHCP QA Work: A regional QA project focused on EHCPs for vulnerable groups has been approved and will take place in January using AI analysis. The report will go first to the Transformation Board and then return to this Board.
• Clarification from Amy Carey-Jones: Amy requested amendments to previous minutes to better capture her comments regarding CAMHS thresholds and gaps in Local Offer information. She will provide revised wording.

No further amendments were raised.

3. Young people’s voice

Amy Bickford provided an update from young people ahead of the January coproduction workshop with young people and families. The January meeting will be a workshop involving young people (YP) and their families, to explore how best to engage and work together. Young people have been clear that they do not wish to raise any themes in advance, preferring to shape these collaboratively during the session.

In advance of the workshop, it was timely to share a video that young people have produced focused on the importance of language and how professionals speak to and about young people – Language Matters.

The video was shown during the meeting.

Julian Wooster expressed formal thanks to all young people involved.

The Board discussed how to ensure wider staff groups can also view and learn from this video, the video can be shared within local team meetings.

Board reflections:

Respectful language and system culture:

Members strongly agreed that the video’s messages about respectful, human-centred, relational language must inform all practice across the system – including transport, schools, social care and health.

Key principles highlighted:

• Avoid stereotypes.
• Ask young people for their preferred terminology.
• Write notes and case records sensitively.
• Embed relational practice across staff development.

Individual contributions:

• Julia Bonell praised the eloquence of the young people in describing the challenges they face navigating the system. She emphasised that responsibility sits not only with frontline staff; the Board must model respectful language and avoid assumptions.
• Julia reminded the Board the need to talk with families first and ensure the system does not perpetuate stereotypes.
• Hannah Smart reinforced the principle of ‘doing with, not doing to’. Young people’s views may not always fit traditional feedback models, but must not be devalued.
• Brian Gale highlighted the importance of identity for young people, who do not want to be defined by disadvantages. We need to encourage the focus to be on needs, not deficits, including in case reviews.
• Donna Manson reflected on national and local challenges around labelling, language, and the wider societal context. Donna stated that relational, inclusive practice is a message relevant across all of DCC, not only children’s services. Furthermore, Donna assured the Board she is committed to taking this message into staff engagement sessions in early 2026.
• Councillor Denise Bickley noted that parents may also unintentionally use incorrect language or terminology, reinforcing the need for clear guidance (e.g. ‘autistic person’ vs. ‘has autism’). Denise emphasised recognising individual preference, as no two people are the same.
• Brian Gale shared Scottish Government communication guidance and suggested Devon consider adopting or adapting it. Inclusive communication – Supporting disabled children, young people and their families: guidance
• Victoria Mitchell observed that sharing a video link does not guarantee that staff will watch it. She further asked how organisations can ensure meaningful engagement.
• Donna Manson requested clarity on the training programme for relational practice across 2026, and how this extends beyond DCC to partner agencies. Kellie Knott confirmed that the Inclusion and Learning Service is undergoing restorative practice training, and relational practice work is embedded internally (including the Social Work Academy), but joint multi-agency training has not yet been undertaken. Kellie suggested that consideration be given to including relational and respectful practices within Member Development programmes, ensuring elected members have an understanding that supports early help and reduces judgment-based approaches.

4. Early themes emerging from the JSNA

Liz Williams provided an update on the SEND Joint Strategic Needs Assessment (JSNA). The JSNA is structured into three sections:

1. Devon baselines and locality context.
2. Needs analysis, including SEMH, neurodiversity and speech, language and communication needs, with a strong focus on the voices of children, young people and parent carers.
3. Alignment with existing strategies and identification of gaps.

JSNA content and progress

The JSNA is being developed to provide a deep understanding of inequalities experienced by children and young people with EHCPs, incorporating lived experiences from CYP, families and carers.

It reflects age-related needs, including early years, school age children and young adults. The JSNA aligns with wider national reforms, including the forthcoming Families First Reform proposals.

Two sections are in final draft, with the remaining section nearing completion. A full draft and slide pack will be available by the end of the week.

Liz thanked all contributors, particularly the young people and families who participated.

Julian Wooster raised concerns that key health datasets had not been received. Liz confirmed this had not prevented progress; national and alternative datasets had been used to maintain robustness.

Sally Heath queried whether an alternative sign-off route was required given that the January Partnership Board will be repurposed for coproduction workshop with children, young people and families. She stressed the need for the JSNA to be drafted, shared and signed off well ahead of any future inspection.

Julian proposed the following timeline:

• Final JSNA draft completed by end of December 2025
• Circulated to the SEND Transformation Board for detailed review
• Returned to the March Partnership Board for formal signoff

Brian Gale highlighted the lack of national focus on the growing cohort of 19–25 year olds with EHCPs, and asked whether this group had been analysed.

Liz Williams confirmed it has. Section 2 of each JSNA theme analyses this age group. Findings show persistent issues with attainment, employment and opportunities, suggesting that the system is not yet meeting needs effectively. She is happy to provide further detail outside the meeting.

Victoria Mitchell raised concerns about cohorts of children who were ‘just ahead of’ system reforms and therefore experienced poorer services. She noted these families often feel overlooked and that acknowledging this openly would be meaningful.

She also highlighted:

• The EHCP backlog, which particularly affected older cohorts
• Significant challenges in the transition from children’s to adults’ services, where young people risk becoming ‘lost’ in the system

The Board agreed that further work is needed to understand:

• Who these young people are
• What their needs are, and
• How Devon can strengthen transition pathways and prevent loss of support

5. Update on Inclusion and Learning strategy – role of the Independent Strategic Inclusion Advisor

Jack Newton introduced the commissioned work with Mark Vickers and Olive Academies to support Devon in co designing a shared inclusion strategy.

Overview of work:

• 12 month programme, centred on co production.
• January-February workshops to shape a shared vision and purpose.
• Aim to design a Devon-wide continuum of inclusive practice, rooted in high quality provision at every tier.
• Work will align with the forthcoming SEND/AP White Paper and Ofsted expectations.

The Board agreed importance of clear, accessible communications with families, along with the need for transparency on how parents will be involved throughout.

Schools highlighted as key partners; inconsistent inclusion across schools noted as a major concern for families.

Actions:

• Mark Vickers and Jack Newton to prepare a public facing outline of the programme and engagement routes.
• Comms to work with Parent Carer Forum (PCF) to avoid misunderstandings.

6. Short Breaks strategy and commissioning

Paul Holmes, Children’s Commissioning Officer, presented the Short Breaks Strategy update. He explained that the Short Breaks programme aligns closely with the wider SEND Transformation Programme, and the purpose of the work is to develop a stronger, more coherent graduated response across universal, targeted, and specialist short breaks.

Paul noted that a draft strategy had been shared with the Board and sought confirmation that it aligns with SEND objectives.

Jonathan Mitchell outlined the current position in Devon:

• Devon currently provides short breaks predominantly via formal assessment, meaning every child and family must undergo an assessment before support is offered.
• Devon supports approximately 1,500 families, compared to 250 – 300 families in statistical neighbour authorities such as Cornwall.
• There is significant variation in plans: some require individualised one-to-one support, while others access community based activities.
• Due to volume, assessment and review frequency is below the desired level; staffing would need to double to meet expected standards for annual reviews.
• Devon’s annual spend is £6.6 million, largely on direct payments, making Devon the second highest local authority nationally for direct payment usage.
• Reliance on direct payments contributes to instability, with provider costs increasing by 4 – 20% while the budget has remained static for a decade.
• Families report a clear gap between the universal offer and the more specialist offer, leading to late escalation and pressure on relationships.

Jonathan Mitchell noted that although the system has been working towards reform for several years, the scale of change required – and historic over reliance on individualised packages – makes the journey complex.

Paul and Jonathan described extensive engagement with children, young people and families, including:

• Work with Champions of Change, visits to special schools, and meetings with community groups.
• Multiple Family Fun Days, which have been very positively received across the county.
• Young people identifying:
  • Limited opportunities in their communities, particularly for older age groups.
  • Significant geographical inequalities, especially in West Devon, Torridge, South Hams and Kingsbridge.
  • A lack of clear, centralised information on local activities.
  • Inconsistent inclusivity across Devon.
  • A desire for more varied activities, better support for independence, well informed staff, and clearer communication.

In response, the strategy proposes:

• Strengthening universal and universal plus offers, such as Base Camp sessions and Family Fun Days.
• Commissioning a robust targeted and specialist framework, improving quality and reducing dependency on direct payments.
• Using the Four Cornerstones evaluation model across the graduated offer.

In response to questions on how families will access provision:

• Universal offers will not require assessment and will be open to all families.
• Targeted and specialist support will continue to be accessed via assessment through the Disabled Children’s Service.

When asked whether the number of families receiving individualised support will fall, Jonathan explained:

• Based on national benchmarking, Devon would expect to support around 400 families with individualised short breaks once the new model is fully established.
• However, this transition must be handled carefully to avoid a ‘cliff edge’.
• Families currently receiving support will be reviewed individually, considering age, needs and circumstances.
• Many families have already moved into earlier stages of the graduated response.
• The service anticipates challenges and recognises the need for clear, consistent communication.

Julia Bonell praised the extensive engagement work, especially Paul’s personal involvement in Family Fun Days, which families consistently report as highly positive. She recognised the challenges in shifting from a longstanding model but strongly welcomed the solution focused and phased approach.

Amy Carey-Jones emphasised the need to clearly communicate the intended outcomes of short breaks versus universal offers, along with the importance of recognising access barriers, including lack of transport and families with multiple children with complex needs.

Paul confirmed that work is already underway with Active Devon and community partners to:

• Increase inclusive sports and activity options.
• Support families to try new activities (e.g., bringing gym equipment into youth clubs).
• Provide individual support at Family Fun Days, which has already enabled children with wheelchairs and complex needs to participate fully.

Brian Gale noted that Devon’s transition will be harder than in other areas due to its position as a national outlier in direct payment usage. He asked what lessons had been learnt from other authorities.

Jonathan confirmed that:

• The team regularly engages with other local authorities.
• A shared challenge is shifting from individualised to community-based support.
• Some families will experience change, and challenges are expected, but a coherent, partnership-led approach is critical.

Julian Wooster asked how the short breaks work links with wider youth provision. Paul confirmed strong links with Dan Brown (Space Youth Services) and Josh Adam (Commissioning).

Steve Brown added that Devon’s youth ecosystem includes both commissioned and non-commissioned providers across the county, so ensuring inclusivity will require wider partnership work.

Amy Bickford reported that young people involved in the Youth Council are raising similar themes -especially around ‘places to go and things to do’ – and that this insight is being shared with Space and other youth organisations.

Councillor Richard Jefferies asked about provision for children with complex health needs and the potential for joint commissioning.

Jonathan clarified:

• The ICB is represented on the Short Breaks Board but has not committed to joint commissioning at this stage.
• Historically, health related direct payments were jointly administered, but this has now separated.
• If Devon commissions more targeted services, reliance on health led support may reduce.
• Further conversations with the ICB will be needed, particularly around SEND JSNA findings and the needs of neurodivergent children and those with SEMH needs.

Kellie noted that JSNA insights may support stronger conversations with the ICB around early intervention and emotional wellbeing needs.

Julian Wooster thanked Paul and Jonathan for an extremely helpful and well received presentation and formally acknowledged Paul’s significant contribution to engagement with families and young people.

7. Type 1 Diabetes paper

Following discussions at the previous Board meeting, the Board revisited the arrangements for supporting children with Type 1 diabetes in schools.

Key points

• Devon is unusual nationally in providing direct financial support to schools (£6,000 per school) to help with diabetes related support.
• The future approach will clarify roles and responsibilities across:
  • Schools
  • The Integrated Care Board (ICB)
  • Devon County Council (DCC)

Schools will be notified after Christmas, ahead of changes taking effect in the next financial year.

Residential short break provision is not affected by these changes.

Concerns raised:

• Families experience significant anxiety about the safety of their child in school, particularly where insulin management or technology supported monitoring is required.
• Parents need clear assurance that their children will be safe, supported, and that issues will be addressed quickly.
• Case by case responses remain essential where risks or gaps emerge.
• Communication gaps between ICB and paediatric diabetes teams were highlighted.
• Concerns were raised about the impact on the 20 primary schools currently receiving this funding and the importance of managing the transition sensitively.

Kellie Knott confirmed the action was brought back to the Board due to concerns raised at the previous meeting.

Kellie explained that DCC has historically filled gaps through this funding, but this is not sustainable, nor aligned with national arrangements.

She stressed that DCC cannot continue to absorb responsibilities that sit with other partners; the system must operate as a partnership and emphasised the need for strong communication with Parent Carer Forum Devon colleagues to ensure:

• The public facing website is clear about where families can get help.
• Schools understand their duties under equality and health needs frameworks.
• Comms materials are developed and implemented carefully so families understand how to access support.

Victoria Mitchell highlighted that signposting alone is not enough; what matters is whether the system works for families in practice.

The core message must be that children will be safe, and parents can trust that support will be handled appropriately.

Victoria asked for clarity on:

• What the new arrangements mean in practice
• How responsibilities will be communicated
• How live cases will be managed during the transition

Kellie Knott responded:

• Reiterated that DCC is not stepping away, but must ensure the correct agencies undertake their statutory role.
• Emphasised the need for ‘spot on’ communications to avoid families feeling abandoned.

Natalie Wickins (RD&E) noted this was the first time she had heard of changes and highlighted that paediatric diabetes nurses sit within her service.

She stressed that the introduction of new technologies (e.g., continuous glucose monitors, pumps) often increases monitoring requirements, not reduces them. Natalie also expressed concern about ensuring families feel their child’s needs will still be met safely in school.

Kellie Knott noted that neither Plymouth nor Torbay offer such funding; Devon may be the only local authority in the country doing so.

Actions:

• Su Smart and Natalie Wickins to meet separately to clarify current provision and future responsibilities.
• Council & NHS to coproduce a clear “Who Does What” responsibilities poster/leaflet, including:
  • Roles of NHS diabetes teams
  • School responsibilities
  • Parent responsibilities
  • ‘What to do if it’s not working’

DCC to ensure comms materials are developed with PACF and that the website provides clear, accessible information.

DCC and ICB to map a process for managing live cases during transition to avoid gaps.

8. SEND Transformation programme

Carried over to next Board meeting

9. Four Cornerstones update

Carried over to next Board meeting

10. Performance report

Key messages to communicate from this meeting

Julia Bonell (Parent Carer Forum) raised concerns regarding the recently published SEND Sufficiency Strategy, particularly in relation to the communication surrounding its release and the extent of family involvement.

Key concerns raised:

• The priorities within the strategy are positive and broadly reflect what parents want to see. However, coproduction had not taken place, despite communications implying otherwise.
• Public messaging suggested families had contributed meaningfully to the development of the strategy, but this did not reflect the experience of the Parent Carer Forum (PCF).
• Julia noted she had repeatedly offered to bring family voice into the development process, yet this was not taken up.
• The way families were referred to – or ‘shoehorned’ – into the executive summary did not reflect a genuine commitment to coproduction.
• The language used in the published material was unclear and lacked transparency about how families had (or had not) been involved.
• There is currently no clarity on how families will be part of ongoing monitoring, KPIs, or oversight of the strategy.

Julia informed the Board that she has drafted a formal response on behalf of the PCF. The response questions:

• Why families were not involved in the development of the strategy.
• How the strategy will ensure that families are meaningfully involved in implementation and review.
• How the concerns heard in today’s meeting about language, communication, and relational practice will be taken into account going forward.

She will circulate the formal PCF response to Board members.

The Board recognised the importance of ensuring future strategy development reflects genuine coproduction, clear language, and early engagement with families.

The Sufficiency Strategy and the associated concerns will be placed on a future Board agenda for detailed discussion.

Actions

Julian Wooster will prepare a formal written response from the Council once the PCF submission has been received.

Date for next meeting: Tuesday 27 January 2025: 1-3 pm