Co-production confusion: An exploration of parent and SENCO experiences of participatory decision-makCo-production confusion: an exploration of parent and SENCO experiences of participatory decision-making in the management of education, health and care plans

Partnership working with parents has a long history in Special Educational Needs and Inclusion policies and legislation, from Warnock (DES, 1978) through to the current proposals (DfE/DoHSC, 2023). However, participatory decision-making, and practices fostering co-production, have failed to be consistently established and embedded within education across England (Boddison and Soan, 2021), resulting in persistent dissatisfaction and low parental confidence in the system (Sales and Vincent, 2018; National Audit Office, 2019; HoCEC, 2019). Critical reviews of the Special Educational Needs and Disabilities (SEND) system have highlighted these inadequacies and have endorsed co-production as a way to address the challenges because ‘the best performing SEND systems are those with a consistent focus on co-production’ (DfE/DoHSC, 2022: 75). Therefore, this study sought to provide greater understanding of parents’ and SENCOs’ experiences of ‘co-production’ and their perspectives on participatory decision-making in applying for and managing Education, Health and Care plans. An initial scoping questionnaire to parents (n.76) and SENCOs (n.84) was followed by seven semi-structured interviews analysed using an Interpretative Phenomenological Analysis (IPA) framework. IPA was selected to foreground the individuals’ experiences, including member-checking of the analytic process. Points of convergence and divergence gave insights on the wider challenges parents and SENCOs face understanding and enacting co-production as envisaged in the SEND reforms (2014) and the current political agenda.

Findings highlighted that there is much confusion related to co-production, and the foundations for collaborative practice needs to be evident before a move towards more participatory models, such as co-production, can be considered. Three fundamental areas were identified to build the foundations of co-production. Firstly, the conceptualisation of the SENCO as a caring educationalist to oppose the performative driven agenda because co-production will not happen without care. Secondly, the need for effective dialogue to improve working together, with appropriate training and frameworks to enable this to happen because co-production will not happen without communication. Thirdly, the need for a change in power differences and the systemic structures the SEND system sits within. How we support participatory decision-making is of primary importance because co-production will not happen without choice.

These findings not only contribute to the existing body of knowledge on partnership working, but also provide new knowledge relevant to the development of co-productive practices between parents and SENCOs. The findings are relevant to school leaders, local authorities, and policy makers in planning the current government agenda for wider implementation of co-production (DfE/DoHSC, 2023) because ‘every year that passes without a well-functioning SEND system is another year of a child’s education that is failing’ (House of Lords, 2022: 92).