Equity and inclusion in the Curriculum for Wales: a qualitative study (summary)

This report is part of the formative evaluation of the Curriculum for Wales. 

It presents the findings of qualitative research into equity and inclusion, led by Cardiff Metropolitan University. 

The research aimed to provide answers to 2 main research questions:

1. How is Curriculum for Wales guidance being implemented in practice to support equity and inclusion?
2. How are settings and practitioners supported to enact the Curriculum for Wales in a way that supports equity and inclusion?

The methodology is set out in chapter 2 of this report and included: 

• recruitment of 9 schools and 1 pupil referral unit (PRU) to take part in the study
• semi-structured discussions and focus groups with senior leaders with overall responsibility for the curriculum, Additional Learning Needs Coordinators (ALNCos) and practitioners in a range of roles with responsibility for supporting equity and learner inclusion
• thematic content analysis of discussion transcripts 

The report highlights a number of limitations associated with this study, notably:

• the small and self-selecting nature of the sample, meaning that findings are not generalisable
• the fact that findings were based on evidence collected at a single point in time, limiting opportunities to explore schools’ progress over time
• limited time available to be able to explore all aspects of schools’ planning, design and implementation
• limited information provided by participants in relation to practice to support learners with protected characteristics and learners who are eligible for free school meals
• the fact that activity to promote equity and inclusion in schools is linked to a range of broader statutory and non-statutory guidance; consequently, it was not always clear whether decisions and actions reported were based on wider policy and guidance or directly related to their enactment of the curriculum 

The findings of the study are structured around 5 sections, reflecting the principal recurring themes to emerge from the discussions. 

Changes to learners’ experiences of learning through Curriculum for Wales

Most senior leaders and practitioners reported that they were supporting equity and inclusion through a range of school-wide strategies and practices introduced to support the realisation of Curriculum for Wales. Most schools reported that Curriculum for Wales had led to an increased focus on equity and inclusion for all learners. While some of the changes reported may have been underway prior to Curriculum for Wales arrangements, they felt that Curriculum for Wales had accelerated or complemented developments.

Senior leaders and practitioners from all schools noted that the Curriculum for Wales Framework and guidance had provided them with the opportunity to develop a curriculum tailored to the needs of their learners and communities.

Senior leaders frequently reported a greater focus on identifying learner needs and adapting approaches to address these in more inclusive ways. These included:

• a focus on differentiated pedagogy and support in response to the needs of learners with particular characteristics
• changes to pedagogy to support greater equity in how learners experience the curriculum (including targeted support on study methods and improved learner feedback to help learners better understand the skills and knowledge they needed to progress). 

Some senior leaders and practitioners referred to changes to classroom practice to include more one-to-one support and work with smaller groups to support learner progress. 

During discussions, senior leaders and practitioners across the sample made only limited references to eFSM learners and those with protected characteristics. Senior leaders and practitioners did note, however, that by focusing on meeting the individual needs of all learners, they believed they were inherently addressing the needs of eFSM learners and those with protected characteristics.

Overall, the data indicated a shift away from grouping learners by ability, however, some senior leaders and practitioners reported contrasting experiences and success in relation to this.

Most schools reported that Curriculum for Wales had contributed to changes in how they assessed learner progress, including renewed impetus for identifying and supporting individual needs. This included increased use of ongoing assessments and, in some cases, the use of one-page profiles to inform planning. Many senior leaders and practitioners noted that this enabled a more individualised approach, better reflecting learners’ starting points and progress.

In some schools the introduction of progression steps marked a shift from age-based attainment goals towards developmentally and pedagogically appropriate practice. While some senior leaders and practitioners found the progression steps helpful, others criticised their perceived ‘vagueness’ and noted that the descriptions of learning under each step were difficult for learners and their parents or carers to grasp.

Some practitioners and senior leaders noted that changes introduced under the new curriculum arrangements had also led to increased use of self-assessment and peer assessment, fostering greater learner independence and responsibility.

Reviewing curriculum learning and experiences

All schools reported that they had made changes to incorporate and reflect learners’ needs within their curriculum in ways that support equity and inclusion. They emphasised the importance of ensuring learning and teaching was relevant and of interest to learners, reflecting learners’ needs when designing learning experiences.

Schools frequently reported that they drew on learner feedback to inform curriculum development, reviewing and adapting the curriculum to ensure they were appropriate for specific types of learners and classes. 

Some schools reported that planning the curriculum in a way that accommodated diverse needs was leading to benefits in terms of learners’ engagement. Some practitioners felt that there was a link between improved curriculum planning and levels of attendance. 

All schools noted that they placed an emphasis on supporting learners’ social and emotional skills, providing opportunities for learners to develop confidence and resilience. This was seen as part of a more holistic approach to supporting learners’ skills and progress.

Almost all of the schools reported that they supported high aspirations and fostered skills in ways that promote the principles of equity and inclusion. This included encouraging learners’ participation in arts and sports activities, encouraging the development of cross-curricular and lifelong skills such as communication, leadership, and empathy, as well as developing employability skills. 

Many of the secondary schools reported being unsure of how to reconcile the more holistic, learner-centred approach to curriculum enactment with the requirements associated with GCSE qualifications. Senior leaders and practitioners in secondary schools raised questions about how to successfully embed an equity and inclusion-driven approach to the curriculum if accountability systems continue to prioritise examinations results.

Identifying individual needs and providing appropriate support 

Most schools were making efforts to embed equity and inclusion by identifying individual needs and family circumstances and putting in place appropriate support. Many senior leaders and practitioners reported that this had led to a greater understanding of the factors that affected learners and their progress, that were often beyond their direct control. 

Several schools reported increased efforts to engage with families, supported by family engagement officers. Some schools reported that this enabled them to adapt learning and teaching and provide appropriate support for learners.

Several participants expressed caution that, in striving to meet the needs of specific groups of learners, it was difficult to ensure that all learners were appropriately supported and there was a risk that some learners’ needs could be overlooked as an unintended consequence of focusing on groups with particular learning needs. 

In addition, some primary and secondary school senior leaders expressed concern that budget constraints could present challenges in continuing support targeted at particular groups of learners, including learners affected by poverty. This included a reduction in teaching assistant positions and extra-curricular activities, potentially limiting opportunities to support more individualised approaches to teaching and learning, something viewed as central to efforts to support equity and inclusion through curriculum enactment. 

System capacity to support equity and inclusion

Enacting Curriculum for Wales in a way that supported equity and inclusion had led to changes in practice which were reported, across all schools in the sample, to have placed additional demands on senior leaders and practitioners. While senior leaders and practitioners valued the agency to tailor learning to diverse needs overall, some noted that developing, planning, and resourcing these approaches were time-consuming and underfunded. Discussions with some senior leaders and practitioners revealed the constraints they were facing, with these participants specifically referring to challenges in: 

• time for planning for and responding to individualised and differentiated learner support needs
• accessing appropriate professional learning to support, notably to support curriculum design and approaches to monitoring learning progression
• providing additional support for newly qualified teachers (NQTs), who were at times not adequately prepared to support the realisation of Curriculum for Wales after completing their ITE, according to some senior leaders and practitioners
• balancing their responsibilities associated with Curriculum for Wales alongside their duties under the ALN reforms, resulting in increased workload pressures

Variability of practice

While most practitioners valued the ability to tailor the curriculum to reflect the needs of their learners, there were some who worried that inconsistent interpretations and practices could inadvertently result in greater variations in learner experiences between schools.

Many senior leaders and practitioners reflected on variation in practices between schools, including differences in curriculum enactment between primary and secondary schools. Concerns were also raised surrounding broader socio-economic factors, such as the unequal availability of resources, which practitioners feared could undermine their efforts to provide equitable Curriculum for Wales experiences. This included concerns about the financial constraints facing some families in disadvantaged communities which influenced the type of experiences and excursions schools were able to offer learners as part of their curriculum. Some senior leaders and practitioners noted that better-resourced schools or schools with better facilities (including those serving more affluent communities) would be at an advantage. These participants (mostly secondary school representatives) noted that socio-economic factors could contribute to variations in how schools respond to the reforms and potentially widen gaps in learner experiences and outcomes. 

Some primary school senior leaders and practitioners attributed variability in practice within their own schools to different mindsets among practitioners: some practitioners, including experienced practitioners who were used to implementing a more prescriptive curriculum, were reported to have found it challenging to adapt their pedagogy to the more flexible, learner-centred approach required under Curriculum for Wales. 

These perspectives highlighted a tension: while local agency was often seen as positive for designing a learner-centred curriculum, some participants feared that it could also lead to fragmented practice.

More specific guidance on how curriculum approaches can help meet the needs of learners with ALN, MAT learners, learners experiencing poverty, and those with protected characteristics

Participants valued the flexibility provided by Curriculum for Wales to adapt the curriculum to reflect learners’ individual circumstances. However, most participants could not identify Curriculum for Wales-specific strategies tailored to particular groups such as learners with ALN, learners affected by poverty (including those who were eFSM), or those with protected characteristics. The findings of the study suggest that most of the schools would have benefited from more detailed guidance about how Curriculum for Wales can directly support these groups of learners. This could help define and clarify the contribution that Curriculum for Wales is intended to make to improvements in equity and inclusion within schools.

Greater clarity on how progression steps can support equity and inclusion

While all schools noted that they had referred to the progression steps to inform their approaches to monitoring learner progress, many participants (particularly those working with learners with ALN) expressed concern about the vagueness or the number of steps. Consideration should be given to developing examples, as part of additional guidance, illustrating how to use progression steps in ways that support equity and inclusion for all learners. 

Increased support for diverse groups of learners to strengthen equity and inclusion in realising Curriculum for Wales

Welsh Government should give further consideration to how resources are allocated to schools serving disproportionately high numbers of learners with ALN, learners who are affected by the impact of poverty or have other needs. This could include exploring opportunities (including through the Pupil Development Grant) to support additional staffing, professional learning, and community partnerships that can strengthen in-school provision. Efforts are required to ensure the Pupil Development Grant, and other funding streams, are flexible enough for schools to pursue creative approaches (for example extended transition programmes, social-emotional interventions) rooted in Curriculum for Wales principles.

Actions taken by schools to strengthen equity and inclusion could also extend to ensuring that there is equitable opportunity for learners from all backgrounds to be involved in learner voice activity. Diverse groups of learners, including learners with protected characteristics, should be encouraged to participate in engagement activity that informs schools’ approaches to curriculum design and enactment. 

Addressing variability in curriculum enactment to promote equity and inclusion

Variability in practices between schools in their approaches to curriculum enactment risks undermining the aim of ensuring equity and inclusion by making learner experiences heavily dependent on the specific school context. Local authority-led activity to support professional learning could consider facilitating collaborative activity that focuses on equity and inclusion in Curriculum for Wales. This could involve enabling active professional learning partnerships where leaders and practitioners have opportunities to see learning, teaching and leadership that support equity and inclusion outside of their own school that can be harnessed to inform improvements. This could build on previous conversations carried out through the National Network for curriculum implementation, including discussions on equity and inclusion.

Improved collaboration between primary and secondary schools to support continuity in equity and inclusion

Consideration could be given to supporting formal cluster agreements or transition frameworks that specify shared approaches to progression, learner monitoring, and consistent pedagogical approaches between transitions for vulnerable learners (for example those with ALN or who are socio-economically disadvantaged). This could include promoting cluster-wide training opportunities or professional learning communities where primary and secondary practitioners can collaborate on Curriculum for Wales realisation strategies that support continuity for at-risk learners.

Greater focus on Curriculum for Wales and inclusion in ITE and ongoing professional learning 

The study found a need for improvements in ITE and ongoing professional learning to support equity and inclusion. ITE programmes could include specific modules relating to Curriculum for Wales on child and adolescent development including a focus on understanding the needs and development of learners with ALN, learners affected by poverty and those with protected characteristics, and differentiating provision to meet these needs. Induction programmes for NQTs may need to reinforce the Curriculum for Wales ethos by providing structured guidance on inclusive pedagogy and allowing for mentorship arrangements with experienced teachers.

Further research on Curriculum for Wales’s role in improving equity and inclusion

Practitioners’ views throughout this study indicate that Curriculum for Wales’ impact on equity and inclusion requires ongoing scrutiny; particularly as schools’ approaches continue to evolve and new accountability arrangements emerge. A learner-centred perspective is crucial, as direct evidence from children and young people about how they experience Curriculum for Wales is limited. 

Further research is desirable to: 

• examine the extent and quality of provision on equity and inclusion in ITE and induction programmes, identifying where Curriculum for Wales-focused training can be strengthened
• conduct learner-focused research, especially among learners from disadvantaged backgrounds, to assess how Curriculum for Wales changes affect their sense of inclusion and their progression
• explore transition points for learners, particularly primary-secondary transition practices under Curriculum for Wales, evaluating how effectively they sustain inclusive approaches and whether additional interventions are needed. This should build on Estyn’s work on transition and pupil progression^{[footnote 1]}.
• assess the variability in Curriculum for Wales realisation across schools with different socio-economic demographics to identify how this variation influences the attainment of various groups of learners.

[1] Estyn (2024). Thematic Report: Transition and pupil progression

Report authors: Dr Nigel Newton, Prof David Egan, Dr Mirain Rhys (Cardiff Metropolitan University); Brett Duggan, Dr Felicity Morris (Arad Research)

Views expressed in this report are those of the researchers and not necessarily those of the Welsh Government.

For further information please contact:

Curriculum Research Branch
Social Research and Information Division
Welsh Government
Cathays Park
Cardiff
CF10 3NQ

Email: curriculum.research@gov.wales

Social research number: 70/2025
Digital ISBN:978-1-80633-112-3