Norfolk SEND Joint Strategic Needs Assessment

Norfolk is seeing a significant and sustained rise in the number of children and young people with special educational needs and disabilities (SEND) placing growing pressure on services and settings. 

• In 2025, 30,132 children and young people aged 0-25 were identified with SEND, an increase of more than 60% since 2016  
• Around 12,100 children and young people have an Education, Health and Care Plan (EHCP) 
• Around 18,000 school-aged children (aged 5 to 16) receive SEN Support 
• One in five pupils in Norfolk schools now require additional support  
• The number of pre-school children flagged through the Early Identification of Need (EIN) process has nearly tripled since 2017, rising from 114 to 327 in 2024 
• EHCPs have increased by 177% since 2016, with the highest concentration in the 11-15 age group, particularly around key school transitions 
• Norfolk's EHCP rate now exceeds both national and regional averages, with the gap widening since 2022. 
• SEN Support numbers have also grown, from 14,200 in 2016 to 18,000 in 2025, but the increase has been less steep.  

How the council is working 

• Despite rising demand and a tough national landscape, timeliness in issuing Education, Health and Care Plans (EHCPs) within 20 weeks has improved in Norfolk (now at 56% compared to 40% in the East of England and 46% in England)  
• 91% of EHCP annual reviews are completed (91% compared to 91% in the East of England and 86% in England). 
• New tools developed locally by the county council including the Identification of Needs Descriptors in Educational Settings (INDES) are helping Norfolk better understand the complexity of children's needs.  
• INDES data shows a high prevalence of social, emotional and mental health (SEMH) needs, 74% higher than the national average for EHCPs, with SEMH the most common primary need among SEN Support pupils.  
• INDES data shows speech, language and communication needs (SLCN) are rising rapidly, especially in younger children. 
• INDES highlights that many children have overlapping and complex needs that are not well captured by a single primary need label.  

Vulnerability

• Children with EHCPs are more likely to be receiving Early Help, twice as likely to have Child Protection Plans, and three times as likely to be Looked After.  
• Children with EHCPs are disproportionately represented in Youth Justice Services and more likely to be eligible for free school meals, highlighting the economic challenges many families supporting children with SEND face. 

Educational outcomes 

• The percentage of children with an EHCP or SEN Support achieving a good level of development at Early Years Foundation Stage (nursery or pre-school) outperforms our national and regional neighbours in relation to children with SEN Support. 
  • Children with EHCP
    • Norfolk - 5%
    • East of England - 5%
    • Statistical neighbours - 4%
    • England - 5%
  • Children with SEN support
    • Norfolk - 29%
    • East of England - 25%
    • Statistical neighbours - 27%
    • England - 25%
• The percentage of children with an EHCP or SEND Support achieving the expected standard at Key Stage 2 (junior or primary school) was as follows.
  • Children with EHCP
    • Norfolk - 8%
    • East of England - 8%
    • Statistical neighbours - 7%
    • England - 9%
  • Children with SEN support
    • Norfolk - 19%
    • East of England - 26%
    • Statistical neighbours - 22%
    • England - 26%
• The percentage of children and young people with an EHCP or SEN Support achieving average Attainment 8 at Key Stage 4 (secondary Year 11) is good compared to statistical neighbours.
  • Children with EHCP
    • Norfolk - 16%
    • East of England - 15%
    • Statistical neighbours - 13%
    • England - 14%
  • Children with SEN support
    • Norfolk - 32%
    • East of England - 33%
    • Statistical neighbours - 31%
    • England - 33%
• The percentage of young people with an EHCP or SEN Support remaining in education, training or employment after Key Stage 4 (secondary school) is relatively strong with Norfolk outperforming regional and statistical neighbours. 
  • Children with EHCP
    • Norfolk - 92%
    • East of England - 90%
    • Statistical neighbours - 87%
    • England - 88%
  • Children with SEN support
    • Norfolk - 88%
    • East of England - 89%
    • Statistical neighbours - 87%
    • England - 87%
• A snapshot of local data from Summer 2025 shows that around 23% of electively home educated children have an EHCP or SEN Support. 
• Children with an EHCP are, on average, absent from school around 14% of the time compared to around 7% of those without SEND 
• Permanent exclusion rates are higher for both EHCP and SEN Support cohorts compared to those without SEND. 

Norfolk SEND Survey 2025

Norfolk's SEND Survey 2025 brings the voices of children and young people, parents and carers and professionals into the SEND JSNA report and shows how they are experiencing SEND services and provision.  

It shows that while children with SEND share similar aspirations to their peers they face greater barriers in education, mental health, safeguarding, and social inclusion. Families report emotional and financial strain, and professionals highlight ongoing issues with capacity, funding, and public understanding. 

The data paints a clear picture: Norfolk's SEND system is under pressure, and while progress is being made not all needs are being met.