6.2.1 Provision and resourcing

The provision of education for children and young people with special educational needs is an ongoing priority for Government

The overall policy objective of the Department of Education is to promote inclusive education for children and young people with SEN in mainstream settings. Where this is not possible, the policy commitment is to provide for specialised settings through special-class or special-school placements. The vast majority of children and young people with SEN now attend mainstream schools with additional supports.96 The Department’s annual expenditure in the area of special education is considerable. In 2020, over 19% of the Department’s overall budget was expended on special education.

There has been considerable growth in resources to support children and young people with special educational needs; the growth rates in special needs assistant provision are unprecedented

Over the period to which this report refers, there have been considerable increases in resources provided to schools to support pupils/students with SEN (Table 6.1). From September 2016 to December 2020, an additional 641 special education teachers were employed in primary schools, and an additional 477 in post-primary schools, representing a growth of 7.4% at primary level and 12.5% at post-primary level. These figures need to be seen in the context of growth rates of 0.55% in the total number of primary pupils in schools and 7.6% in the total number of students in post-primary schools. An additional 97 teachers were employed in special schools, representing a growth of 7.1%.

During this period, even higher growth rates were recorded in the number of special-needs assistants (SNAs) employed in schools. An additional 3,576 SNAs were employed in primary schools (an increase of 46%), an additional 361 SNAs in special schools (an increase of 15%) and an additional 1,142 SNAs in post-primary schools (an increase of 45%) (Table 6.1). This overall increase in the number of SNAs in the system relative to the pupil/student population was unprecedented.

Figure from page 176

Figure from page 176

96 Inspectorate, Department of Education (2016) Review of the pilot of a new Model for Allocating teaching resources to Mainstream Schools to Support pupils with Special Educational needs, p.1. Available at: https://www.gov.ie/en/collection/inspectoratepublications-evaluation-reports-guidelines/?referrer=http://www.education.ie/en/Publications/Inspection-Reports- Publications/Evaluation-Reports-Guidelines/Review-of-the-Pilot-of-a-New-Model-for-Allocating-Teaching-Resources-for- Pupils-with-Special-Educational-Needs.pdf#special-needs

Table 6.1: Provision for children and young people with special educational needs: September 2016 - December 2020*

	Primary schools and special schools		Post-primary schools
	2016	2020	2016	2020
Total number of teachers	35,669	38,604	26,27397	30,739
	8.2% increase		17.0% increase
Number of special education teachers in mainstream schools	8,68298	9,323	3,819	4,296
	7.4% increase		12.5% increase
Number of teachers in special schools	1,365	1,462	N/A
	7.1% increase		N/A
Number of special needs assistants in mainstream schools	7,709	11,285	2,554	3,696
	46.3% increase		44.7% increase
Number of special needs assistants in special schools	2,371	2,732
	15.2%
Number of special classes in mainstream schools	814	1,321	294	517
	62.3% increase		75.9% increase

Source: Statistics Section, Department of Education. Also see Education Indicators for Ireland 2021 available at: https://www.gov.ie/en/publication/055810-education-statistics/#latest-statistical-reports

Where relevant, figures are rounded to the nearest whole-time equivalent (WTE).

The National Council for Special Education reviewed the SNA scheme and proposed an alternative method of SNA allocation for schools. The need for a training programme for SNAs was also identified

In 2016, at the request of the then Minster for Education and Skills, the National Council for Special Education (NCSE) undertook a review of the SNA scheme and published comprehensive policy advice for the scheme in 2018.99 The NCSE review reflected similar concerns to those that had been expressed in an earlier review100 of SNA provision to which the Inspectorate contributed in 2011; essentially, this was that the provision of SNA assistance could have the effect of reducing the direct teacher-student contact time for children with SEN. The NCSE also concluded that the growth rates in SNA provision were unsustainable and proposed an alternative method of SNA allocation for schools. At the time of writing, the introduction of that new arrangement had been postponed from September 2020 to the beginning of the 2022/23 school year.

97 The figure for 2015/2016 quoted in the last Chief Inspector’s Report was 26,804. This figure included teachers of Post Leaving Certificate (PLC) courses. PLC figures are not included in this table. 98 The number of special education teachers in 2016 includes both resource teachers and learning support teachers. 99 National Council for Special Education (NCSE) (2018) Comprehensive Review of the Special Needs Assistant Scheme: A New School Inclusion Model to Deliver the Right Supports at the Right Time to Students with Additional Care Needs. Available at: http://ncse.ie/wp-content/uploads/2018/05/NCSE-PAP6-Comprehensive-Review-SNA-Scheme.pdf 100 Department of Education (2011) A Value for Money Review of Expenditure on the Special Needs Assistant Scheme 2007/8 to 2010. Available at: https://www.gov.ie/en/collection/value-for-money-reviews/

The need for a training programme for SNAs was also identified by the NCSE in its review of the SNA scheme. Following a public procurement process, University College Dublin (UCD) School of Education, in conjunction with UCD School of Nursing, Midwifery and Health Systems was selected to develop and deliver the programme. The National Training Programme for Special Needs Assistants commenced in January 2021, with the enrolment of 500 SNAs in the first year. The programme, which is free of charge, is open to all SNAs working in primary, post-primary and special schools.

There has been substantial growth in the number of special classes at primary and post-primary levels

Over the timeframe to which this report refers, there has been a substantial increase in the number of special classes, with an additional 507 special classes in mainstream primary schools, representing a 62% increase, and an additional 223 special classes in post-primary schools, representing a 76% increase (Table 6.1). An additional 2,674 pupils were enrolled in special classes in primary schools, representing a 55% increase, while an additional 1,296 students were enrolled in special classes in post-primary schools, representing an 83% increase (Table 6.2).

The establishment of special classes for children and young people with autism accounts for the greatest rise in special classes. Since 2016, 427 new special classes for pupils with autism were provided at primary level and 178 provided for students at post-primary level. In the same period, the number of other additional special classes, such as classes for children and young people with specific speech and language disorders, remained broadly unchanged.

Table 6.2: Number of pupils/students in special classes in mainstream primary schools and postprimary schools: 2016-2020

	2016	2017	2018	2019	2020
Pupils in special classes in mainstream primary schools	4,836	5,572	6,229	6,822	7,510
Students in special classes in post- primary schools	1,560	1,814	2,136	2,406	2,856

Source: Statistics Section, Department of Education. Education Indicators for Ireland 2021. Available at: https://www.gov.ie/en/publication/055810-education-statistics/#latest-statistical-reports

In contrast with the substantial growth in special classes in mainstream primary and post-primary schools, the number of special schools remained the same over the period to which this report refers (Table 6.3). There was a small increase (almost 6%) in the number of pupils/students in these schools.

Table 6.3: Number of pupils and teachers in special schools: 2016-2020

	2016	2017	2018	2019	2020
Number of special schools (NCSE supported only)	114	114	114	114	114
Pupils in special schools	7,567	7,662	7,728	8,035	8,018
Teachers in special schools	1,365	1,387	1,400	1,435	1,462

The National Council for Special Education is developing policy advice for the Minister in respect of special schools and special classes

The National Council for Special Education (NCSE) was asked by the Department to provide policy advice to the Minister in respect of special schools and special classes. In particular, it was asked to advise on the educational provision that should be in place for pupils/students in special schools and classes, and to make recommendations on the provision required to enable them to achieve better outcomes. As part of this process, the NCSE published a Progress Report - Policy Advice on Special Schools and Classes in 2019.

The report acknowledged the substantial investment made by the Department in special education, noting that almost 18% of the total education budget in 2019 was allocated to support pupils/students with special needs. According to the report, consultation groups agreed with the principle that all learners should be educated together. There was noticeably less agreement around whether this was achievable or even desirable for all learners, particularly those with the most complex needs.

In moving towards greater inclusion, the report highlighted that aspects of the current system would need to be adapted, for example, school buildings, pupil-teacher ratios, and psychological and therapy supports. It also noted that fundamental change would be required to initial and continuing teacher education. The NCSE deliberations in relation to the publication of a final report were ongoing at the time of publication of this Chief Inspector’s report.

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