GCSEs Come Too Late to Judge Education Quality, Says NIAO
The Northern Ireland Audit Office (NIAO) has stated that GCSE examinations occur "too late" in a child's educational journey to effectively assess the quality of education they receive. The audit report also highlighted a lack of evidence that the substantial investment in Special Educational Needs (SEN) is being utilized effectively or providing a high-quality education to those requiring support.
Additionally, the NIAO noted that the Department of Education (DE) lacks a clear definition of what constitutes "quality of education". Education Minister Paul Givan acknowledged the report's emphasis on the necessity for reliable, comprehensive, and earlier assessment data to better support children's learning.
What Did the Report Say About GCSEs?
The NIAO report evaluated the quality of education in Northern Ireland, emphasizing that GCSE and A-level results represent only one metric for assessing the education system's performance. GCSEs often serve as the initial formal indicator of a pupil's academic progress.
"This is very late in a child's education journey and is the end of the formal education process for some,"
"It is therefore too late to target support and address underachievement."
"The department is without basic information on pupil, school and system performance.
Current performance measures do not provide the department with a complete picture of the quality of education being provided."
From 2030, Northern Ireland plans to introduce new national assessments in reading, maths, and science for primary school pupils and those in Year 10. Significant reforms to GCSEs and A-levels are also planned.
The NIAO further revealed that approximately 1,900 pupils were excluded by their schools from overall GCSE exam results. While pupils may be deemed ineligible for inclusion in a school's public GCSE and A-level results for reasons such as illness, welfare concerns, or withdrawal from school, this practice remains controversial and has faced criticism.
Education Spending in Northern Ireland
Annually, around £3 billion is allocated to Northern Ireland's education system, which serves approximately 350,000 pupils across about 1,100 schools. This figure excludes further and higher education, which falls outside the Department of Education's remit.
The NIAO acknowledged that investment in education yields numerous benefits.
"Countries that adequately invest in basic education, higher education, and vocational training see stronger economic resilience and higher capacity for innovation,"
"Enhancing the quality of education should be at the core of any education system."
However, the report emphasized that education encompasses more than academic achievement; it also involves equity, inclusivity, and cultivating a learning environment where every child can thrive.
Separately, the Department of Education has issued warnings to schools about facing "serious challenges" due to budget increases limited to approximately 1% in the 2026/27 financial year.
Challenges with School Inspections in Northern Ireland
The NIAO reported that school inspections conducted by the Education and Training Inspectorate (ETI) have been disrupted by industrial action from teaching unions. Teachers have boycotted inspections as part of pay dispute actions short of strike.
Between 2018 and 2023, only 13 primary schools underwent full inspections unaffected by industrial action, and no post-primary schools received a full inspection during this period. Full inspections involve ETI inspectors directly observing classroom teaching and learning, but industrial action has limited this process.
"As a result, the department was not obtaining assurance on the quality of education being provided in schools over this period,"
"As well as impacting assessment of the quality of education, disrupted inspections have also impacted evaluation of child protection arrangements, increasing the risk that vulnerable pupils were not receiving adequate support."
The Department of Education has indicated plans to introduce legislation to fine teachers up to £2,500 for non-participation in school inspections, though such legislation has yet to be presented.
Impact of Family Income on Academic Performance
The audit report confirmed that family income continues to affect academic outcomes. There remains a "significant" performance gap between children entitled to free school meals (FSME) and their peers.
For instance, in 2025, just over half (53%) of FSME pupils achieved five or more GCSEs at grades A* to C, including English and Maths, compared to approximately 80% of pupils not entitled to free school meals.
Funding and Effectiveness of Special Educational Needs Support
Funding for special educational needs (SEN) has increased from £255 million in 2017/18 to £622 million in 2024/25. Despite this, the NIAO found limited evidence that this substantial expenditure is being used effectively or delivering high-quality education to those with SEN.
Recent reforms have been introduced concerning classroom support and school placements for children with SEN. However, parents have expressed concerns regarding some of these reforms and the insufficient support for young people with SEN in employment and education after leaving school.
The Department of Education welcomed the NIAO report, describing it as "an important and constructive contribution to improving outcomes for children and young people." Minister Paul Givan stated:
"High‑quality education is fundamental to the wellbeing of our children and to the future prosperity of Northern Ireland."
"The report rightly highlights the importance of having reliable, comprehensive and earlier assessment information to support children's learning."
