New analysis by NFER has highlighted the uneven distribution of pupils with special educational needs and disabilities (SEND) across mainstream schools in England, which is potentially leaving some schools under greater strain.
This uneven spread matters because schools with disproportionately high levels of pupils with SEND may face particular pressures on staffing, funding and access to specialist support. At the same time, these schools may also be better placed to develop greater expertise and capacity in supporting pupils with SEND, because higher concentrations of need could prompt schools to invest in staff training, strengthen internal systems, and build stronger relationships with specialist services.
The findings come ahead of the delayed schools white paper, now expected early next year, which is set to outline the Government’s SEND reform ambitions.
The NFER report, funded by the Nuffield Foundation, finds that more than half (56 per cent) of pupils with Education, Health and Care Plans (EHCPs) - legally binding documents for pupils with the most significant and complex special educational needs - are now educated in mainstream schools, up from 49 per cent in 2015/16, with the fastest growth in primary settings.
In 2024/25, primary schools with the highest rate* of pupils with EHCPs, had, on average, six times as many as those with the lowest rate. A similar pattern is seen among secondary schools, where those with the highest rate of pupils with EHCPs had around five times as many as those with the fewest.
Primary and secondary schools with the highest rate of pupils with any form of SEND (including both pupils with EHCPs and SEN Support) have, on average, more than twice the proportion of pupils with SEND as those with the fewest. SEN Support refers to the extra help provided in school for children with special educational needs who do not have an EHCP.
The research team identified two groups of schools with higher proportions of pupils with SEND. The first group includes schools with above-average proportions of pupils with EHCPs compared with their local area and nationally, referred to as ‘high EHCP schools’. The second group includes schools with higher-than-expected proportions of pupils with EHCPs and/or SEN Support. We call these ‘high-any-SEND schools’.
While ‘high EHCP schools’ and ‘high-any-SEND schools’ are broadly similar to other schools, there are some notable differences in the pupils they serve and their outcomes. Both groups are more likely to draw from more disadvantaged communities and have lower average test scores than other schools. This is particularly the case for ‘high-any-SEND schools’.
These are interim findings based on an analysis of administrative school data from the Department for Education’s National Pupil Database. The interim report also explores Local Authority (LA) perspectives, examining the factors LAs believe are shaping this uneven spread of pupils with SEND and its consequences. These insights reflect LAs’ statutory responsibilities and system-level perspective.
Local Authority interviews highlighted that:
- Schools with resourced provision or SEN units – dedicated classes or groups within a school for pupils with specific SEND – may demonstrate stronger expertise and inclusive practice, but these settings can also attract additional pupils with EHCPs, further increasing demand on resources.
- Variations in school identification practices, parental choice and school ethos contribute to the clustering of pupils with SEND in particular schools.
- Parental choice influences which schools pupils with SEND attend. Some families are drawn to schools known for inclusive practices, while others avoid those perceived as less supportive.
- Accountability pressures also play a part. In some areas, performance concerns were reported to discourage schools from admitting pupils with SEND.
Commenting on the research, Matt Walker, Principal Investigator and Senior Research Manager at NFER, said:
“Our latest findings show the uneven spread of pupils with SEND across mainstream schools risks creating significant pressures on those with the highest intakes of SEND students. These schools are often working tirelessly to provide inclusive education but may be facing growing financial and operational challenges.
“As the Government prepares its delayed schools white paper, these schools are likely to be most affected by any future reforms. The evidence underscores the need to take decisive action to create a fairer, more sustainable SEND system – one that supports inclusive schools rather than working against them - and ensures every child receives the right help in the right setting.”
Alice Reeves, Research Grants and Programmes Manager at the Nuffield Foundation, said:
“This report makes clear that the huge increase in the number of children with SEND over recent years has impacted some schools much more than others. The uneven spread of pupils with SEND has multiple drivers, including inconsistent admissions and identification practices, which the second phase of the research will further illuminate.
The Government must recognise and address these issues to achieve greater inclusion in mainstream schools.”
Further evidence will be gathered through a large-scale survey of primary and secondary school leaders, alongside in-depth interviews with school staff and parents. The full project report, which will explore these patterns in more depth and provide further evidence to inform policy and practice, will be published next summer.