Rawpixel.com/ShutterstockInclusion has become one of the most prominent concepts in contemporary education policy in England. Its position at the centre of the Department for Education’s ambitions can be seen in recent guidance on the creation of “inclusion bases”, spaces that support pupils with additional needs, in mainstream schools. It is also present in wider reforms designed to support children and young people with special educational needs and disabilities (Send). These include guidance for schools developing an inclusion strategy. The inclusion bases are designed to include those with Send, pastoral needs and those at risk of being excluded from school. The intention is to provide targeted support while maintaining connections with mainstream education. The guidance promotes inclusion as something that is delivered through high-quality curriculum design and by schools and professionals working in partnership. It requires good leadership and an environment that is accessible.Yet, despite this policy emphasis, a fundamental question remains unresolved. What exactly does “inclusion” mean?Inclusion is often treated as a self-evident term. This is despite it being interpreted in different ways by policymakers, researchers, teachers, parents and learners. It can mean educating children with special educational needs in mainstream schools – including them. But research suggests that inclusion may be better understood through learners’ experiences of belonging, participation and recognition.Defining inclusionThe 1994 Salamanca Statement was an international agreement on inclusive education, adopted at a Unesco world conference on special needs in education. Representatives from 92 governments and 25 international organisations agreed that children with special educational needs should have access to mainstream schools and that schools should adapt to meet the needs of all learners. This takes place in “schools for all” where differences are recognised and supported. However, some inclusion extends beyond disability. It encompasses a wide range of factors that may shape educational experiences. These could be poverty, ethnicity and race, language and migration and LGBTQ+ learners.Research on the definitions of inclusion has found that understandings vary considerably. They range from narrow interpretations focused on where particular children learn to broader conceptions centred on creating inclusive communities. Definitions of inclusion in schools vary. Rawpixel.com/Shutterstock This lack of conceptual clarity has been highlighted in a report on inclusion by Natspec, a membership organisation for providers of specialist education. The report suggests that policy discussions often prioritise the location of education. They position mainstream settings as the preferred site of inclusion. However, learners in specialist colleges frequently describe their experiences as highly inclusive, despite being educated separately from their peers without disabilities. From their perspective, inclusion is defined less by place. What matters more is a sense of belonging, the ability to make their own decisions and being able to participate. A child may spend significant time in a mainstream school and therefore be numerically included. However, physical presence alone does not guarantee meaningful social participation or a sense of belonging. Children may feel “different” and separate from the wider school community.Equally, a child educated within a specialist setting may report strong social connections, positive relationships and a sense of identity and community. Read more: Inclusion bases in mainstream schools – the evidence for this government policy is lacking Questions about how inclusion is defined are also becoming increasingly significant within education accountability systems. Schools inspectorate Ofsted’s renewed inspection framework identifies inclusion as a distinct area of evaluation. It places considerable emphasis on identifying and removing barriers to learning and wellbeing. The framework defines effective inclusion in terms of high expectations and meaningful participation. It extends to disadvantaged pupils, pupils with Send, those known to children’s social care and others facing barriers to learning. This represents a notable shift towards a broader concern with pupils’ experiences within schools. It seems to be a wider definition than the Department of Education’s use of inclusion. If inspectors, schools and policymakers understand inclusion differently, accountability risks becoming a compliance exercise rather than a commitment to participation, belonging and equity.From inclusion to belongingRecent research suggests that educational discourse has shifted from integration to inclusion and is now increasingly moving towards the language of belonging.In my own research, I have found that welcoming is the first step in this journey, when the learner is seen and recognised. They come to experience belonging through connections and participation within the school community. Notably, the government’s guidance on inclusion bases acknowledges the importance of a sense of belonging, suggesting a growing recognition that inclusion encompasses more than physical placement. The focus is on making sure children who are part of an inclusion base feel part of the wider school.The debate about inclusion is not simply about structures or educational settings. Rather it is about values, relationships and the purposes of education itself. Greater attention must be paid to defining inclusion and considering whose voices shape that definition. Inclusion should not be judged solely by where learners are educated, but by whether they are genuinely seen, known, valued and able to participate meaningfully within their educational communities.Julie Wharton does not work for, consult, own shares in or receive funding from any company or organisation that would benefit from this article, and has disclosed no relevant affiliations beyond their academic appointment.