3. Rationale
3.1. Research published by the Department for Education in May 2022 found pupils with higher attainment at KS2 and KS4 had lower levels of absence over the key stage compared to those with lower attainment.
- Pupils who did not achieve the expected standard in reading, writing and maths in 2019 had an overall absence rate of 4.7% over the key stage, compared with 3.5% among pupils who achieved the expected standard and 2.7% among those who achieved the higher standard.
- Pupils who did not achieve grade 9 to 4 in English and Maths GCSEs in 2019 had an overall absence rate of 8.8% over the key stage, compared with 5.2% among pupils who achieved a grade 4 and 3.7% among pupils who achieved grade 9 to 5 in both English and maths.
3.2. For the most vulnerable pupils, regular attendance is also an important protective factor and often the best opportunity for needs to be identified and support provided.
3.3. Where difficulties arise with school attendance, professionals must take a support first approach by preventing a penalty notice from being used in cases where a supportive approach (anything short of a penalty notice or prosecution) is more appropriate instead. For example, support could include an offer of early help, access to local Family Hubs, SEND support, mentoring, M Thrive Hubs, and voluntary agencies. In addition, Social Care can support children and enable adults to parent effectively so that children can achieve to their full potential.
3.4. The National Framework for Penalty Notices is based on the principles that penalty notices should only be used in cases where:
- Support is not appropriate (e.g. a term time holiday) or where support has been provided and not engaged with or not worked, and
- They are the most appropriate tool to change parental behaviour and improve attendance for that particular family.
3.5. In the small minority of cases where parents are unwilling to ensure their children’s regular attendance at school and to engage with support networks, sanctions are necessary. Such sanctions are not intended as punishment but rather as a means of persuading the parents to recognise their responsibilities, comply with the law and ensure their children’s access to education.