An Examination of the Professional Learning Needs of SENCOs as Strategic Leaders in Primary Schools in Ireland

Abstract

This study aims to explore the professional learning and development needs of Special Educational Needs Coordinators (SENCOs) as strategic leaders in primary schools in Ireland. With the SENCO role lacking formal recognition in Irish policy, this research is important to identify the support structures necessary to enhance their effectiveness in leading inclusive education. Employing a mixed-methods sequential explanatory design, theoretically framed by Bronfenbrenner’s Ecological Systems Theory and Wenger’s Community of Practice model, the study first surveyed 371 SENCOs to assess their professional learning experiences and needs. This was followed by semi-structured interviews with nine school leaders, including SENCOs, SENCO principals, and principals, to gather in-depth insights into the role’s dynamics. The Department of Education’s school database was used to contact participants. Data analysis utilised descriptive statistics for the survey and reflexive thematic analysis for the interview data. Key findings indicate a significant demand for formal SENCO-specific professional learning programmes, with a focus on leadership, evidence-informed practices, and community engagement. The study concludes that professional learning for SENCOs should be structured around transformative social learning models and should include postgraduate courses and communities of practice. The research calls for policy development to formally recognise the SENCO role, and provide a coherent framework for their professional learning and development to ensure inclusive educational practices are effectively led and implemented in Irish schools.

1. Introduction

A Special Educational Needs Coordinator (SENCO) is often tasked with the leadership and management of SEN provision and the promotion of inclusive education within the school as a system. In Ireland, while the SENCO role is not recognised in policy, it exists in practice. The SENCO can be a senior school leader, i.e., the Principal or Deputy Principal, a middle leader who is a teacher, or a teacher with no formal leadership status. Best practice places the SENCO role ‘at the heart of the educational processes occurring within a setting, exerting an influence on teaching and learning for all’ (Hallett & Hallett, 2017, p. 2). Research identifies the SENCO role as having both a ‘process management’ and a ‘strategic management’ focus (Hallett & Hallett, 2010, p. 3). Professional learning and development for leaders for inclusion within schools, namely SENCOs, should be based on their learning needs as strategic system leaders and not just as specialists in special education teaching (Fitzgerald & Radford, 2017). Fitzgerald and Radford (2017), in their survey research with post primary SENCOs in Ireland, recommended that SENCOs should undergo specific training regarding special education and leadership for schoolwide inclusive practice to support a universal approach while also having skills, knowledge and competencies in special education to support the needs of children with more distinct and unique needs. Their study was theoretically framed by Hornby’s (2015) model of inclusive special education. Their findings suggest that having specialist knowledge is essential, but the ability to develop systematic collaborative approaches to teaching and learning, to lead professional learning and development initiatives and to develop competency in leading change are also important to leading schoolwide inclusive practice for children with SEN. Limited research exists on the professional learning experiences and needs of SENCOs in Ireland while in other jurisdictions, such as in England, research has documented the professional learning qualifications of SENCOs (Dobson & Douglas, 2018; Dobson, 2019) and provided professional learning guidance for SENCOs (Richards, 2023). Further research is now warranted so that recommendations can be made to support their professional learning and development needs in an evolving system of education.

In Ireland, as previously mentioned, the SENCO role is not formalised or recognised in policy (Fitzgerald & Radford, 2017) and has emerged from the ground up in an ad hoc manner. One of the most extensive studies undertaken in Ireland that explored the professional development needs of special education teachers was a large-scale mixed-methods study (n = 816 schools) by O’Gorman and Drudy (2011). Of the participating schools across primary and post primary sectors, 73% reported having a SENCO in their school. The study highlighted a concern regarding the emphasis on ‘developing individual expertise rather than the need for distributed expertise to enkindle a culture of inclusivity among the whole-school community’ (O’Gorman & Drudy, 2011, p. 165). Their research highlighted the importance of collaborating with colleagues, parents and other professionals. Furthermore, Gallagher (2024) reporting on the profile of SENCOs found that while SENCOs act as specialist teachers, with expertise in special education, they are also strategic promoters of inclusive special education within the primary school context, indicating a shift in how special education is delivered and led in school. Gallagher (2024) further found that SENCOs and principals use collaborative and distributed leadership approaches and are ‘leading learning’ (Hallett & Hallett, 2017) through professional learning communities. As evident in this research, the SENCO was not only a specialist, expert, strategic and collaborative leader but displayed characteristics of an ‘advocacy leader’ (Clarke & Done, 2021), ‘pedagogical lead’ (Hallett, 2022 acted as knowledge gatekeepers and mediators of change. The skills needed to develop pedagogical and advocacy leaders include, for example, critical literacies associated with philosophical, sociological, political, and theoretical framings of inclusion, inclusive education, special education, and disability, along with research, analytical, relational and advocacy skills (Done et al., 2023). These skills, together with communication, are imperative for the SENCO when navigating the various interdependent layers of the education system. Knowledge related to leadership and management, theoretical perspectives, policy, contemporary issues, and evidence-informed practice is necessary to develop pedagogical and advocacy leaders (Done et al., 2023). To be effective, professional learning for the SENCO needs to not only focus on developing specialist knowledge, skills and competencies associated with the ‘SENCO as Expert’ (Kearns, 2005) but should be tailored to the SENCOs’ needs as collaborative ‘system leaders’ (Fitzgerald & Radford, 2017, p. 463).

Special Education in Ireland: Implications for SENCOs’ Professional Learning and Development

The educational system in Ireland has undergone radical transformation with a move away from a system that pathologises students using labels to a needs-based approach to resource allocation in schools under the Special Education Teacher Allocation Model, (SETAM) (Department of Education and Skills, 2017; Department of Education, 2024). In Ireland investment in special education has increased from EUR 1.2 billion in 2011 to EUR 2 billion in 2020 (National Council for Special Education, 2024). Almost 28,000 students are educated in specialist provision in Ireland, namely special schools and special classes in mainstream schools, and it is predicted that 5% of the student population in Ireland will be educated in specialist settings by 2030 (National Council for Special Education, 2024). SETAM (Department of Education and Skills, 2017; Department of Education, 2024) represents a paradigm shift in understanding and responding to SEN and disability, granting greater autonomy to schools to deploy additional supports to students identified with the greatest level of need, without the need for a formal diagnosis of disability to secure resources. Such an approach, while welcomed, has had implications for schools, not only in relation to the need for high-quality assessment of needs and data-informed deployment of resources, but also in relation to governance, accountability and monitoring of the effectiveness of additional supports. Since the move to a needs-based approach in 2017, the numbers of students now accessing special education teaching has increased and impacted significantly on the workload of the SENCO (Colum & Mac Ruairc, 2023). A move away from categorical and deficit perspectives on SEN, towards needs-led, strength-based profiling of students requiring responsive, flexible and assessment-led schoolwide support has implications for SENCOs’ professional learning and development, both as specialists and as leaders for schoolwide inclusive education provision for students with SEN.

Teachers’ professional learning has become increasingly important in the Irish educational context. The significance of access to sustained, high-quality, and relevant professional learning opportunities in Ireland is underscored in frameworks and guidelines established by The Teaching Council and the Department of Education (DE). The Teaching Council, which is the statutory professional standards body, is mandated in law to promote and regulate the teaching profession. The Council was established in 2006 and since then it has been building a framework of standards for three stages of teachers’ learning. In 2016, the new framework to support teachers’ learning named Cosán (meaning pathway in English), was published (The Teaching Council, 2016) which outlines a continuum of teacher education spanning a teacher’s career and represents the three I’s—initial, induction and in-service teacher education. The emphasis on ongoing professional learning as a fundamental aspect of teaching practice is highlighted in the Cosán framework, which suggests standards that allow teachers to recognise and pursue relevant and meaningful learning opportunities, apply this learning to their professional practice, and approach this cyclical process with a critically reflective mindset. Complementary policy frameworks such as the Looking at Our Schools (LAOS) (Department of Education Inspectorate, 2022a) quality framework and the School Self-Evaluation process (Department of Education Inspectorate, 2022b) offer a systematic approach for primary and post-primary schools to self-evaluate teaching, learning, leadership, and management practices. A key objective of the LAOS quality framework and standards is to assist teachers in identifying their current strengths and needs in these areas, ultimately guiding efforts toward capacity building and engagement in professional learning.

Fundamentally, current policy recognises that students’ learning depends on teachers’ learning (The Teaching Council, 2016). Developing a culture of ‘powerful professional learning’, based on teachers’ active engagement in their own learning for the benefit of themselves and their students, is a foundational principle of Cosán (The Teaching Council, 2016, p. 3). To support teachers’ induction and in-service professional learning, state funded professional support services such as Oide and the National Council for Special Education hold responsibility for teachers’ professional learning and development.

In some jurisdictions, award-bearing models of professional learning and development include postgraduate programmes for SENCOs. Such models can also enhance teacher agency (Kennedy, 2014). For example, prior to 2024, in the UK it was mandated that the SENCO or ‘coordinating’ teacher undertook postgraduate professional development (Winwood, 2013) and completed a postgraduate programme, the National Award for SEN Co-ordination (NASENCo). The NASENCo was focused on developing effective systems to promote inclusive and special education from a whole-school perspective and included three competency areas, namely ‘Professional Knowledge and Understanding’, ‘Leading and Co-ordinating Provision’, and ‘Personal and Professional Conduct’ (Hallett & Hallett, 2017). SENCOs who completed this programme reported that it raised their leadership profile, although a significant number felt that their ability to influence whole-school policy was limited due to viewing their identity as middle managers as opposed to strategic leaders (Brown & Doveston, 2014). There is no such qualification akin to the NASENCo in Ireland specific to the SENCO role, because the role is not formally recognised in policy. However, the Postgraduate Diploma in Inclusive Special Education offered across higher education institutions in Ireland leads to a master’s level professional qualification for teachers wishing to qualify as special education teachers. It is fully funded by the Department of Education. While it does not lead to a specific SENCO qualification it does provide a solid basis for role development. Fitzgerald and Radford (2017) recommended the development of a SENCO-specific postgraduate programme, while Walsh (2023), in her case study research exploring approaches to leadership and management in inclusive and special education in eight mainstream primary schools in Ireland, argued for formal postgraduate qualifications in SEN, with an emphasis on leadership skill development, to increase professional capital, confidence, and competence. However, the feasibility of such mandatory programmes may be questionable from a budgetary and logistic perspective and the mandating of such programmes could potentially act as a barrier to a teacher assuming the SENCO role.

Limited research has explored the professional learning and development needs of SENCOs in primary schools in Ireland. This paper provides insight into the professional learning and development requirements of SENCOs with the aim of identifying support and a professional learning infrastructure that enables SENCOs to enact their role as strategic leaders for inclusive special education provision.

2. Theoretical Framework

To theorise factors contributing to the development of the SENCO role, and the associated professional learning needs, two socio-cultural theories informed the current study. These theories are Bronfenbrenner’s (1979) Ecological Systems Theory and Wenger’s (1998) Communities of Practice (CoPs). Adopting more than one theoretical perspective enhances our understanding of the nuanced processes and contexts that influence the SENCO role.

2.1. Ecological Systems Theory

The SENCO role is complex and is influenced by a raft of interacting and interdependent factors at the individual SENCO, class, school, community, and national levels. These factors have a cascading effect on the professional learning needs of the SENCO. Consequently, Bronfenbrenner’s (1979) Ecological Systems Theory (EST) seems an appropriate theoretical framework to describe the complex interactions between SENCOs and their environment. The SENCO is situated at the centre of multiple nested systems that interact with each other, including the microsystem, mesosystem, exosystem, macrosystem, and chronosystem (Figure 1). EST offers a sophisticated framework for analysing the complex dynamics influencing individuals’ roles within the educational ecosystem. Bronfenbrenner’s theory describes how individuals are influenced by interconnected systems. Ultimately, this has the potential to conceptualise the professional learning needs of the SENCO role across time, and in response to an education system in a constant state of flux. Bronfenbrenner’s theory permits a broader analysis of the various interconnected systems, ranging from immediate microsystems, such as classrooms and schools, to broader macrosystems which encompass political and societal contexts across time (chronosystem) (Bronfenbrenner, 1979), that influence the professional development and learning needs of SENCOs.

2.2. Community of Practice

Conceptually, literature makes a distinction between professional development and professional learning (Timperley et al., 2007; Mockler, 2013; Vermunt et al., 2019). The term “teachers’ professional learning” is preferred over “teacher professional development” with “learning” being increasingly used to differentiate active forms of professional development from more passive approaches, which are often seen as something conducted towards others (Easton, 2008; Mockler, 2013). Conceptually, teachers’ professional learning encompasses all activities and processes that engage teachers’ thinking and enhance their professional knowledge, ensuring that their practices remain critically informed and up to date (Mockler, 2013). Models of professional learning occur along a spectrum from transmissive to malleable and then transformative, which ultimately seeks to increase teachers’ capacity for autonomy and agency (Kennedy, 2014). Transformative models, with a bias on critical reflection, involve teachers asking critical questions about their practice and engaging in teacher research and collaborative problem-solving (Kennedy, 2014; de Paor & Murphy, 2017). While “one-shot” (Conway et al., 2009), “spray-on” (Mockler, 2005), or “drive-by” (Senge et al., 2000) professional development experiences might contribute to professional learning, they fall short of enabling teachers to adapt their practices to meet the increasingly diverse and dynamic needs of their students (Mockler, 2013). Furthermore, the term “training” tends to suggest a superficial understanding of the skills necessary for effective teaching. Though training can equip individuals with skills, even to a routine level, the decision-making regarding choice, sequence, and assessment of impact associated with these skills is more aligned with the adaptive professional domain rather than the routine one (Timperley, 2011). Ultimately, the ability to change is rooted in deep learning (Easton, 2008).

The community of practice model (Lave & Wenger, 1991; Wenger, 1998) has the potential to transform practice and engender deep learning that is critically reflective (Brennan, 2017). This evidence-based approach, underpinned by social learning theories (Dewey, 1916; Bandura, 1969; Vygotsky & Cole, 1978; Schön, 2017), emphasises the importance of social interaction and collaboration in learning and development to enable teachers to share, expand upon, and transform their understanding of effective practices. Essentially, communities of practice can empower SENCOs ‘to act as a frame and as a bridge’ (Girelli et al., 2019, p. 103) as they bridge social capital and therefore connect people ‘with others beyond their immediate reference group, opening up new ways of seeing, relating and learning’ (Swaffield & MacBeath, 2009, p. 45).

3. Materials and Methods

3.1. Design

This paper draws from data gathered from a larger mixed-methods sequential explanatory study investigating the SENCO role (Creswell & Plano Clark, 2018). Phase one involved a large-scale national survey of SENCOs in Irish primary schools to develop a profile of the SENCO role, duties involved in the role, existing qualifications, and the leadership status of these SENCOs in schools. Phase two employed interviews with SENCOs and principals to probe into the dynamics of leading inclusive and special education in schools and the implications for the development of the SENCO role. Specifically, this paper reports on the combined results from both phases of this project but with a focus on the professional learning needs of SENCOs within Irish primary schools.

3.2. Sampling

Phase one used list-based sampling that involved inviting the entire SENCO population in primary school settings in Ireland to participate in the survey (n = 3104). The target sample size of the SENCO population was determined using the Qualtrics (2022) sample size. There are 3104 primary schools in Ireland (Department of Education, 2021) and the associated sample size, assuming a 95% confidence interval and 5% margin of error, is 342 SENCOs. The invitation to participate and survey link were shared through social media platforms and SENCO professional learning networks. Within phase two, stratified purposive sampling identified participants from three groups, namely SENCOs, principals who were also SENCOs in their schools, and principals who were not SENCOs in their schools. This sampling approach involved selecting participants based on variation regarding school type, composition, socio-economic status, the language of instruction (i.e., English or Irish-medium schools) and geographic location (urban/rural).

3.3. Participants

For phase one, there were 371 responses to the survey. In total, 91.6% of the 371 respondents were female, and the remaining 8.4% were male. Most SENCOs had 21+ years of teaching experience (54.5%) and less than 5 years of SENCO experience (64.5%). Just over one-third of SENCOs (34.8%) had less than 5 years of special education teaching (SET) experience and an additional 32.6% had 6 to 10 years’ SET experience. Most SENCOs (72.3%) reported that their highest third-level qualification was at the postgraduate level, and 48.7% had a special education specific third-level qualification. Most SENCOs (72.8%) held a formal leadership post related to special education provision.

In total there were nine participants in phase two, which included three SENCOs, three SENCO principals and three principals (Supplementary Material Table S1). All participants had significant teaching experience, with SENCOs and SENCO principals having special education teaching experience ranging from 2 to 12 years. Potentially due to the evolving nature of the role, the SENCOs and SENCO principals had limited time in their roles. All participants held leadership posts related to SEN and 50% of the SENCOs/SENCO Principal participants (n = 3) had postgraduate qualifications specific to SEN. These roles included principal positions (senior leadership), Assistant Principal 1 (AP1), and Assistant Principal 2 (AP2). AP1 and AP2 positions in the Irish education system can be viewed as formal middle leadership roles.

3.4. Ethics

Ethical clearance for the study was obtained from the researchers’ higher education institution (Reference Number: A22-045; Date: 6 October 2022). Participants were identified as S1 (SENCO 1), SP1 (SENCO principal 1), and P1 (principal 1) to maintain confidentiality and anonymity. In phase one, participants provided informed consent via a Qualtrics survey. Phase two involved verbal consent during recorded interviews. Participation was voluntary, with the option to withdraw at any time, though submitted survey data could not be retracted. Assurances of confidentiality and anonymity were provided, and identifying data were removed. Only the principal investigator and co-investigator had access to the data.

3.5. Data Collection

In phase one, an electronic survey was used to collect data through the Qualtrics (Qualtrics, Provo, UT) platform. The survey comprised five sections, which were informed by findings from the literature review, reviewed by one of the co-authors and piloted with three SENCOs (Mertens, 2019). Some clarification and formatting edits were made to the survey based on the feedback from pilot participants. This paper only reports on the results from section five of this survey. Sections one to four sought information on the school context and the profile, responsibilities, barriers, and facilitators of the SENCO role. Finally, section five, the focus of this paper, gathered data on the professional learning and development experiences and needs of SENCOs. Specifically, this section asked questions about SENCOs’ past professional learning experiences, their preferred models of teacher professional learning and development, the need for a SENCO-specific third level programme and the importance of various components of such a programme. These questions were closed questions and included rating and ranking type questions. The survey was live from November 2022 to January 2023 for approximately a 9-week period.

In phase two, nine semi-structured interviews were undertaken. The interview schedule was informed by literature and the relevant results from phase one of this project. Two interview schedules were developed, one for SENCOs and SENCO principals and the other for principals, and contained various discussion topics, including the school context and SEN; the SENCO’s role and responsibilities and their experience of working with the senior leadership team, but the questions of importance for this paper were the questions relating to the professional learning needs of SENCOs. These questions were asked to all three cohorts and included questions such as ‘What are the professional learning needs of SENCOs to allow them to effectively enact their role, and how can these needs be met?’, ‘Are you a member of a SENCO community of practice?’, ‘Have you found this network beneficial and why?’, and ‘Do you think there is a need for a SENCO specific third-level postgraduate programme and if so, why?’. Prior to data collection, the interview schedules were piloted with two practitioners, a SENCO and a principal, to refine the design (Robson, 2011) and clarify questions (Braun & Clarke, 2013). The interviews took place in spring 2023 online via MS Teams for easy recording and transcription. The interviews lasted, on average, 65 min. The lead author conducted all interviews and maintained a neutral and reflexive stance throughout, and in doing so avoided expressing agreement or disagreement on any topics discussed or leading the interviewees.

3.6. Data Analysis

In phase one descriptive statistics were used to summarise the survey responses as percentages for categorical data and a mean (SD) for Likert scale data. Reflexive thematic analysis (RTA) (Braun & Clarke, 2020) framed the analysis of the data from phase two together with the theoretical framework adopted for this study. This approach offers a distinctive way of working with qualitative data that seeks to identify ‘patterns’ in data (Braun & Clarke, 2020, p. 330) and is compatible with the assumptions of a qualitative paradigm (Braun & Clarke, 2020). RTA involves ‘recursive engagement with the data’ (Braun et al., n.d.). The RTA process followed Braun and Clarke’s (2020) six-phase approach for data engagement, coding, and theme development. Throughout the RTA process, there was a continuous circular engagement involving revisiting previous phases, moving ahead, then going back to the beginning, and progressing again. To facilitate the RTA, NVivo 12 was utilised and three themes were developed in relation to SENCOs’ professional learning and development. These themes and the associated coded units of meaning are as follows:

• Theme one: Knowledgeable SENCOs lack the opportunity for formalised SENCO-specific professional learning (48 units of meaning).
• Theme two: SENCOs learn from engagement in communities of practice (55 units of meaning).
• Theme three: There is a need for a formalised SENCO-specific professional learning programme (49 units of meaning).

3.7. Quality

The external reliability of the survey, in phase one, was enhanced by piloting the interview process and schedule, which resulted in questions that were relevant to the topic area. External validity was enhanced by drawing on a large sample, and while not fully representative of the population of primary schools in Ireland, findings may be transferable to a wider population of SENCOs and principals. In phase two, the credibility and trustworthiness of the data were enhanced through progressive subjectivity, member checking, and triangulation (Mertens, 2019). To maintain progressive subjectivity, the lead author monitored their evolving interpretations and reflexively documented their thoughts, beliefs, and insights in a research diary while also participating in reflective and critical discourse with the co-author. This step aimed to eliminate personal influence during data collection and analysis. Member checking was undertaken to ensure the trustworthiness of the data and to mitigate research bias (Birt et al., 2016). This process involved having participants validate the data and the lead author’s interpretations for accuracy (Mertens, 2019). Lastly, employing multiple participant groups, namely SENCOs, SENCO principals and principals, facilitated the triangulation of data.

3.8. Limitations

For phase two, the data stemmed from a limited group of nine school leaders. As mentioned, although these findings cannot be generalised, they can be considered transferable. Data were not collected from other members from the various levels within the educational ecological system. Incorporating the perspectives of the Department of Education (exosystem), the Teaching Council (mesosystem), third-level institutions and academics (mesosystem) could potentially add to our understanding of the professional learning needs of SENCOs and the feasibility of designing and developing appropriate professional learning programmes. While these viewpoints would be valuable, the current research contributes to our knowledge of the professional learning needs of SENCOs.

4. Results

4.1. Phase One Results

In this section, the survey results (n = 371) are reported in relation to the professional learning experiences and needs of SENCOs. SENCOs were asked to choose their top five preferences for the type of teacher professional learning required for the SENCO role. The results are provided in Figure 2, and it is evident that the preferred type of teacher professional learning was ‘relevant day release courses’ (67.9%), followed by ‘communities of practice’ (65.2%), and then by ‘NCSE school-based support’ (62.3%).

Next, SENCOs were asked if there was a need for a SENCO specific third-level postgraduate programme, and the results are detailed in Figure 3. The majority felt that such a programme is required for the SENCO role.

Finally, SENCOs were asked to rate the importance (1 = ‘very important’ to 5 = ‘not important at all’) of various components for a postgraduate level programme of professional learning for SENCOs and the results are detailed in

Table 1. SENCOs rating of the importance of various components for a postgraduate level programme of professional learning for SENCOs. Mean (with standard deviations) and median responses (1 = ‘very important’, 5 = ‘not important at all’) are provided.

Programme Components	Mean	SD
Teaching strategies for students with SEN	1.26	0.49
Developing alternative curriculum for students with SEN, e.g., evidence-based strategies	1.29	0.53
Identifying pupils whose needs require support at level 2 or 3 on the continuum of support	1.31	0.53
Co-ordinating SEN teams and school supports, e.g., SNAs	1.36	0.60
Inclusion of pupils with SEN into mainstream classes	1.36	0.61
Monitoring of pupil progress	1.36	0.54
Learning difficulties: types, characteristics and assessment	1.36	0.60
Effective allocation and timetabling of SEN provision	1.37	0.61
Developing skills in collaborating with others, e.g., teachers and the senior leadership team	1.38	0.59
Working with parents of children with SEN	1.39	0.58
Psychological assessments: types, characteristics and assessment	1.41	0.63
School policy and planning in SEN	1.42	0.61
Working with external agencies/ support services for SEN, e.g., OT	1.42	0.60
Inclusive policies	1.47	0.65
Mentoring and coaching of SEN staff	1.48	0.66
Co-teaching: types and effective implementation	1.51	0.71
Standardised tests, diagnostic tests, and cognitive assessments (paper-based and online)	1.54	0.70
Administration, record-keeping, and digital literacy skills	1.58	0.72
Contemporary issues in inclusive and special education	1.61	0.73
Supporting pupils’ transitions to and from primary school	1.63	0.72
Leadership and management in education	1.64	0.83
The law and special education needs	1.68	0.80
Information, communication and assistive technology	1.72	0.75
Establishing and coordinating special classes	1.80	0.96
Identifying relevant CPD and providing CPD to staff	1.83	0.79
Theoretical concepts relating to inclusive and special education	1.86	0.82

. The mean and standard deviation of the responses are provided. The component with the lowest mean response and thus closest to ‘very important’ was ‘Teaching strategies for students with SEN’ (1.26), followed by ‘Developing alternative curriculum for students with SEN’ (1.29). All components had a mean response rating of less than 2, which highlights that all SENCOs thought they were ‘important’. This may be reflective of the extensive role of the SENCO and their associated learning needs.

4.2. Phase Two Results

4.2.1. Theme One: Knowledgeable SENCOs Lack the Opportunity for Formalised SENCO-Specific Professional Learning

All participants conveyed that SENCOs were knowledgeable and were seen as the ‘specialist and Guru’ and the ‘go to person’ (P2, Principal). S1 (SENCO) indicated that her knowledge means that she is the person to support and offer advice to staff when she noted the following:

I mean at any given time somebody can just pop their head in the door to say, can I just ask you? Or I have a question, or would you mind if I had a look at, that’s just constant all the time.

Of the six interviewed SENCOs, five of them had postgraduate qualifications. These included postgraduate diplomas (S1 and SP1), master’s degrees (S2, SP2, and SP3) and a PhD on the role of the teaching principal (SP3 and SENCO principal). Of these qualifications, three were specifically related to SEN. S1 had a postgraduate diploma in SEN, SP1 had a postgraduate diploma in Autism and SP3 had a master’s degree in SEN. While the SENCOs interviewed were undertaking various forms of professional learning, this was in the general area of SEN and not specifically related to the management and leadership of SEN. The lack of formalised SENCO-specific professional learning occurring within schools was also indicated by SP3 (SENCO principal), who highlighted the desire and value for this type of professional learning. SP3 noted that ‘as regards specific in-service for the SENCO, I don’t think that’s there. I would love to see something more formal’.

SP3 (SENCO principal) asserted that there should be release time for SENCOs to do in-service learning and stated that ‘nobody ever gave us any in-service on what the SENCO role is, nobody ever said we can release you as the SENCO to do some in-service in this area’.

Similarly, P3 (principal), added that there was a need to formalise professional learning for the role and create in-service opportunities in schools or ensure SENCOs attend courses provided by third level institutions. P3 remarked the following:

I think that the Department of Education needs to look at the role and identify, prioritise what the role actually is and make that specific and implement training on it.

The data highlighted a gap in the professional learning needs of SENCOs. All participants indicated that there is no formal professional learning for the SENCO role. One principal (P3), emphasised the importance of learning in this area, ‘formal learning, a qualification for SENCOs would be excellent’. None of the participants had a SENCO-specific qualification as one does not exist in Ireland.

4.2.2. Theme Two: SENCOs Learn from Engagement in Communities of Practice

It was apparent from all participants that SENCOs gained knowledge and developed their professional learning from academic courses and from being connected and learning from others. Five of the six SENCOs outlined that they were continuously learning from each other through working collaboratively with all school staff. S2 (SENCO) talked about how the staff meetings facilitated a means to share information and best practices so that all staff can learn from each other in a connected manner. Importantly, S2 (SENCO) insisted that the best form of professional learning comes from collaborating with colleagues in your school. In the quotation below, this SENCO emphasises the value and knowledge that can be gained from engaging in ‘professional conversations’ with staff in the school, as follows:

I think sometimes we get the best form of learning from our colleagues, the person next door, the person who pops in for a quick piece of advice and I think the biggest challenge is offering opportunities where people can collaborate and can have those professional conversations.

Having connections with other colleagues and professionals outside of the school microsystem was indicated as a key aspect in enhancing SENCOs’ knowledge and development. Five of the six SENCOs interviewed referred to the fact that they were members of a community of practice. The value of the SENCO community of practice was highlighted by S3 when she declared:

There is always people to ask for help, which is great, especially with the SENCO community of practice, it’s brilliant to have other people in the same role that you can bounce ideas off or ask questions. I find that group invaluable.

In an area where no SENCO community of practice existed, S2 (SENCO) reached out to neighbouring schools to set up their own support and learning groups. Specifically, this SENCO noted ‘we are also developing a support network just in the town and we are working with the other two schools and their SENCOs’. S2 followed on to state, ‘we are connecting with the others…to set up that community of practice to share practice’. SENCOs’ microsystems differ and by being connected to each other through communities of practice and professional learning institutions, SENCOs can learn from each other and gain relevant knowledge for their own microsystem.

S1 (SENCO) noted numerous benefits related to gaining knowledge by being connected in a SENCO community of practice. These benefits were outlined by S1 as follows:

Schools are so different, liaising with other SETs is really important, it is good to know how others are doing it. If you have a problem, others may have a solution or maybe they have a suggestion.

Communities of practice allowed SENCOs the opportunity to connect with other SENCOs to learn from each other, support each other, discuss, and importantly reflect on best practices, which is central to transformative models of professional development. This observation was clearly articulated by S3 (SENCO) when she said the following about her experience of communities of practice:

The outside speakers are brilliant, but it’s even chatting to each other and bouncing ideas off each other or asking for advice from each other because we’re all in the same boat. We all have the same kind of role, the same challenges. It’s great for ideas and for reflection for yourself.

SP3 (SENCO principal) highlighted how valuable these communities of practice were and indicated that the SENCO group she is involved in ‘is absolutely spectacular’ and is ‘invaluable’ in supporting her and the group as they can identify the areas or programmes that they would like support in. This approach ensures that the community of practice provides professional learning and support for SENCOs that is specific to their needs. In relation to this, SP3 commented the following:

In our group it’s what we want. It is run by teachers…it’s not imposed on us. It’s a nice way to work. It’s coming from the group, it’s intrinsic, so I think that that’s very, very good.

4.2.3. Theme Three: There Is a Need for a Formalised SENCO-Specific Professional Learning Programme

The importance of SENCOs being supported by and through professional learning was indicated in the data. SENCOs, SENCO principals and principals were in support of SENCO-specific professional learning. P2 (principal) indicated that it would add more professionalism to a role that is ever changing and should incorporate aspects of leadership as the SENCO is leading people in SEN and working with best practices. P2 commented the following:

I think the role is very specific and it is ever changing…The SENCO has a big leadership role, they are convincing other people, they are leading in the area of SEN and they are working on best practice. I think that would be very important.

When consideration was given to the possible elements that should be included in a SENCO-specific course it was not only areas within SEN and leadership that were indicated by the data as being important but also learning related to evidenced practices and the newest initiatives available. SP3 (SENCO principal) highlighted that ‘things, ideas are changing and there is new things being written all the time by researchers and educationalists’. She spoke of the need to engage with third-level institutions ‘to disseminate what they know into schools’ and stated the following:

You are getting the best of the best in them (third-level institutions), the newest initiatives that are on stream. You are getting best practice. You are getting things that are evidence based, so I think that is so important to know. It’s coming from the experts, these people that are reading the research, and then it’s the only way to disseminate it into schools by doing a course on this.

P2 (principal) also outlined support for having a SENCO-specific postgraduate qualification and the elements of such a programme. Regarding this, he stated the following:

There is definitely a need for some type of course for SENCO duties, definitely. It has to be specific for SENCOs and be aligned with the Irish curriculum and all the inclusiveness that is out there. Also look at the whole logistics of carrying out the role, you need a huge skill set. And also in the area of ICT as well of streaming timetables and coordinating hours.

Interestingly, P2 (principal) articulated that any SENCO professional learning should have a practical aspect to it where the SENCO could visit other schools. This could potentially foster the creation of between-school communities of practice which would support sustained transformative and empowering professional learning.

An overview of the key elements related to SENCOs’, SENCO principals’ and principals’ insights into the future direction of professional learning for the SENCO role are displayed in Figure 4. These include elements related to leadership, alignment with curriculum, operational aspects of the role, ICT, third-level postgraduate courses and contemporary research.

5. Discussion

Throughout both phases, it was apparent that there is an overwhelming desire from SENCOs, SENCO principals and principals for professional learning specific to the SENCO role. In phase one, 74.9% of SENCOs agreed that there was a need for a SENCO specific postgraduate programme. When asked to list the importance of 26 potential components of a postgraduate programme for SENCOs, the mean importance rating was between 1 and 2, which aligns with the ratings ‘very important’ and ‘important’, respectively. This is reflective of the enormity of the SENCO role but also the associated learning needs of SENCOs. The components that were rated important included not only SEN specific components, but areas of study related to leadership, theoretical perspectives, inclusive policies, the law, and SEN, as well as contemporary issues in inclusive and special education. The benefits of SENCOs engaging in transformative professional learning approaches, such as communities of practice, were strongly evident in this study.

These findings align with extensive research on the professional development needs of SEN leaders in Irish schools undertaken by O’Gorman and Drudy as far back as 2011 when they indicated that there was an urgent need for professional development in schools for those leading SEN provision. Fitzgerald and Radford (2017) recommended that SENCOs should have access to professional learning and development regarding special education and leadership to support a school-wide, universal approach while also having the skills, knowledge and competencies in special education to support the needs of children with distinct and unique needs. The findings suggest that to lead a SEN approach that is universal, having specialist knowledge is essential, but the ability to develop collaborative approaches to teaching and learning, the ability to lead professional development initiatives and develop competency in leading change are also important (Fitzgerald & Radford, 2017).

In phase two, the participants concurred that there was a need for professional learning specific to the SENCO role and felt that there is ‘definitely a need for some type of course for SENCO duties, definitely’ (P2). Done et al. (2023) indicated that there is a need for a university-based master’s level course, such as the NASENCo, to develop SENCOs’ critical, analytical and research skills, thus enhancing their capacity as advocacy leaders. The participants of phase two provided direction on course content and design and included aspects such as leadership, evidence-informed practices, new initiatives and research, and a profiling of the responsibilities assigned to the SENCO role. The principals also indicated that the course could involve practical elements where the SENCOs work with SENCOs in other schools to observe, consult, collaborate with, and learn from each other, akin to a professional learning community. O’Gorman and Drudy (2011) explored the options for the provision of SEN-related courses. It was found that teachers attending a college or university on block release was the most popular, but interestingly, teachers and principals also reported that collegial discussions, networking, and gaining practical experience were the optimum ways to develop their skills (O’Gorman & Drudy, 2011). In phase one, the SENCOs identified that the preferred type of professional learning included relevant day release courses, communities of practice, school-based support from the National Council for Special Education, substitutable block release to attend a university programme and the opportunity to observe an experienced colleague. This correlates with findings from O’Gorman and Drudy’s (2011) study where transformative social learning models are evident through communities of practice (Wenger, 1998) and peer observation of teaching.

The impact of “one-shot” (Conway et al., 2009) short duration professional development such as ‘a day release course’, which had the highest percentage preference of the SENCOs in phase one, is questionable. Short-term professional development courses and attendance at seminars can help SENCOs learn about new developments but do not provide them with expertise and the necessary authority to work with and guide their colleagues (Agaliotis & Kalyva, 2011; Crowther et al., 2001). Such models of professional development conflict with the transformative approaches to professional development which in contrast are sustained, critically reflective, contextual and empowering. McElearney et al. (2018 in their large-scale survey-based study, investigating how primary school teachers in Northern Ireland accessed professional development, found that teachers most often engaged in courses, workshops and conferences, which lack association with improving practice and student outcomes. The preferred approaches to professional development were collaborative (group work, cluster groups, coaching and mentoring and activity-based sessions) and interactive (reflective, collegial discussion and the use of case study examples) but only a minority of teachers engaged in these forms (McElearney et al., 2018). A process of deep learning and engagement with professional learning is required to successfully adopt and implement new practices and methodologies in schools (King, 2014; Raftery, 2021). Brennan et al. (2021) recommended that professional learning communities should become a central feature in whole-school practice in Ireland as these innovative collaborations can significantly contribute to developing inclusive schools. These communities have the potential to connect SENCOs together in a collaborative setting where they can observe, consult, discuss and learn from each other in a manner that develops their capacities as strategic leaders and critically reflective advocacy leaders (Clarke & Done, 2021) and pedagogical leaders (Hallett, 2022). It is a viable format for professional learning for SENCOs and in phase one 65.2% of SENCOs indicated that it was a preferred type of teacher professional learning. As evident from phase two, communities of practice provided space for SENCOs to collaboratively reflect, analyse, learn and develop in a manner that transforms their practice. Aligned with this, SENCO-specific third level programmes have the potential to equip SENCOs with critical literacies, research, and analytical skills (Clarke & Done, 2021) to allow them to effectively engage in these communities of practice.

6. Conclusions

The SENCO role continues to develop outside of any policy and is therefore misunderstood, and lacks the necessary support and access to dedicated professional learning and development. Until the role is formally recognised in policy, and its’ function in the wider ecology of school and policy is understood, SENCOs’ professional learning will develop in an ad hoc manner. Future research with key stakeholders in Ireland such as the Department of Education, state funded support services such as the National Council for Special Education and Oide, universities and all providers of teacher education and the Teaching Council, is necessary to explore the development of a coherent continuum of a professional learning and development for SENCOs, and to align their vision for leadership and management for SEN in schools with increasing empirical evidence of a SENCO role as it exists in practice (Colum & Mac Ruairc, 2023; Fitzgerald & Radford, 2017; Gallagher, 2024; Walsh, 2023).

The critical recommendation from this research is that if it is formally recognised in policy then an appropriate infrastructure of professional learning, development and support could develop. Professional learning related to the SENCO role should commence at the Initial Teacher Education (ITE) stage at the mesosystem level. Competency development for inclusion needs to commence at the initial stage of teacher education (European Agency for Special Needs and Inclusive Education, 2019). ITE could include curriculum content and theory on the significance of leadership and management in SEN and inclusive education. Content could incorporate the roles and responsibilities of SENCOs within the ecology of the school microsystem and aim to develop pre-service teachers’ inter-professional skills to collaborate so that they can effectively work as part of a team in meeting the needs of all students. Pre-service teachers also need to be immersed in special education settings during placements to experience working with children with SEN and engage in collaborative practice with special education teachers. The Programme for Government 2025 (Government of Ireland, 2025) has committed to developing mandatory special education placements for pre-service teachers, which currently does not exist consistently across university programmes.

For SENCOs, professional learning could focus on leadership for inclusive special education to enhance SENCOs’ competencies as strategic leaders. The findings from this study point to the need for third-level postgraduate programmes and access to professional learning communities to develop and consolidate these key competencies. Communities of practice, formalised networks and sustained support should become a central model for SENCO professional learning. Policy structures and procedures need to be established from the exosystem (Department of Education) to foster their growth and development across the mesosystem in Ireland. Higher Education Institutions (HEIs) should consider the development of an accredited postgraduate course for SENCOs and play a role in the facilitation of SENCO communities of practice, with the possibility for collaborative partnership in the facilitation and outreach of such programmes with the NCSE Support Service and the Education Support Centres in operation across Ireland. The feasibility of such programmes and SENCO professional learning infrastructure hinges on policy support from the exosystem (Department of Education) and macrosystem (government) and requires formal recognition of the role in the first instance. Institutions could also consider the development of a suite of micro-credentials that SENCOs could attain over time to lead to a SENCO postgraduate award. Adopting a practical approach to any third-level postgraduate programme emerged strongly from the principals in this research. Institutions should consider how they could structure a postgraduate programme or micro-credential so that placements and practical learning experiences are embedded within the programmes.

The key components of a SENCO specific third-level programme derived from both phases of this research are outlined in Figure 5, Figure 6 and Figure 7. These components are grouped into three competency areas: namely ‘Professional Knowledge’, ‘Professional Skills’, and ‘Leading Provision’. These are in line with the competency and content areas from the previous SENCO related postgraduate programme in England, NASENCo (Hallett & Hallett, 2017). In Figure 5, the professional learning components related to the area, ‘Professional Knowledge’ are depicted. These are the components that aim to enhance SENCOs’ professional knowledge of key content areas relevant to their role. It includes areas such as ‘evidenced informed practice/research developments’ and ‘policy’. It aims to equip SENCOs with the knowledge to lead inclusive special education within the school microsystem.

In Figure 6, the professional learning components related to ‘Professional Skills’ are illustrated. These include skills such as ‘pedagogical skill’ and ‘relational and communicative skills’. The development of these professional skills is essential to enable SENCOs to act as strategic leaders and change agents within the management structures of the school and across the various layers of the educational ecological system. These would also advance SENCOs’ advocacy and pedagogical leadership capabilities and ability to engage and benefit from transformative professional development, such as communities of practice.

Central to any professional learning are components related to ‘Leading Provision’. These components are depicted in Figure 7 and include, for example, ‘leadership’, ‘mentoring’, ‘strategic development’, and ‘digital literacy’. All of these components are necessary to develop the SENCO’s capacity to lead provision within the school microsystem.

In conclusion, this research highlights the critical need for formal recognition and structured professional learning opportunities for SENCOs in Ireland. The study reveals that SENCOs require specialised professional learning and development in leadership and inclusive education to effectively navigate their roles as strategic leaders. Establishing a coherent policy framework and developing SENCO-specific postgraduate programmes are essential steps toward equipping SENCOs with the necessary skills and knowledge. By fostering transformative social learning, including communities of practice, SENCOs can enhance their professional competencies, ultimately leading to improved inclusive education practices and better outcomes for students with special educational needs.