The latest progress report on the 35 pathfinders said 12 of them had reported no joint commissioning across health, education and social services.
Eight had reported intermediate levels of joint commissioning and only 15 could claim widespread joint commissioning.
A spokeswoman for the Department for Education and Skills said the research was carried out in the "early days" of the pathfinders, when many had "not yet got their joint commissioning strategies in place".
But she warned that the department was expecting to see more joint commissioning when it next looked at the issue. "The evaluation team will be reporting again this summer, and we expect the position will have improved significantly by then," she said.
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