The public spending watchdog's report found that although the Department for Education (DfE) has put more money into increasing school capacity, many schools are still under pressure to meet rising demands.
It also found that DfE funding decisions had been based on incomplete information.
As a result, more than 20 per cent of schools were full or over capacity in May 2012.
The research also revealed that the number of infant classes with more than 31 children had doubled since 2007.
The National Audit Office noted that although the DfE had contributed £4.3bn towards the cost of providing places and an additional £982m of school capital funding, the rising birth rate made it unclear if this was enough to meet forecast need.
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