Research conducted by the National Children's Bureau (NCB) found examples of children who were registered at a school, but had not attended for months or years as a result of being illegally excluded.
Other examples included children who were missing school as a result of having special educational needs, because they were a victim of domestic violence, or because their parents have moved to England from abroad and do not understand school admissions processes.
The study also found local authorities had different ways of recording information on children missing education, different ways of allocating resources, and different approaches to delivering their statutory and non-statutory duties, which was contributing to the problem.
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