More than 90 percent of Filipino children with disabilities remain outside the public school system despite a law mandating inclusive education, according to a new study that warned of persistent shortages in teachers, funding and support services.

A policy brief released by the Second Congressional Commission on Education (EDCOM 2) found that only 381,089 learners with disabilities were enrolled in public schools in school year 2024-2025—roughly eight percent of the country's estimated 5.1 million school-age children with disabilities.

The study said millions of children remain excluded from formal education because of weak systems for identifying disabilities, limited access to assessment and intervention services, and a lack of trained personnel.

Even among learners already enrolled, support remains scarce.

Nearly three out of four learners with disabilities attend regular classrooms, but six in every 10 study in schools without a Special Needs Education (SNED) program, Special Education (SPED) Center, Inclusive Learning Resource Center (ILRC), or even a SNED teacher.

This leaves regular classroom teachers handling learners with disabilities despite receiving little or no specialized training, the report said.

The study also pointed to problems in identifying learners who need intervention.

It found that 62 percent of learners tagged in the Department of Education's Learner Information System were identified only as showing "manifestations" of a disability rather than having a formal medical diagnosis.

In addition, one in four teachers surveyed said they were handling students who likely have disabilities but remain undocumented because parents either declined assessments or could not afford to seek professional diagnosis.

Teacher shortages continue to hamper implementation of inclusive education.

According to the report, only 32 percent of learners with disabilities are enrolled in schools with a SNED teacher. Even if all 772 vacant SNED teaching positions were filled, only about half of enrolled learners with disabilities would gain access to specialized instruction.

Funding was also cited as a major constraint. Some schools reported receiving just P20,000 annually for 41 learners with disabilities—about P488 per learner—to cover assessment, instructional materials, teacher training and other interventions. Others received only P5,000 for 15 learners.

The report likewise found uneven compliance with the law's requirement for Individualized Education Plans (IEPs), which are designed to tailor instruction to each learner's needs.

While 82 percent of SNED teachers said they prepare IEPs, only 13 percent of regular classroom teachers reported doing the same. Respondents cited the lack of health professionals, insufficient training and cumbersome paperwork as key obstacles.

To address the gaps, EDCOM 2 recommended expanding SNED teaching positions, strengthening early screening and referral systems, increasing funding for inclusive education, improving teacher training, simplifying IEP requirements and establishing more Inclusive Learning Resource Centers based on local demand.

The policy brief, prepared by EDCOM 2 in partnership with research organization IDinsight and the Department of Education, drew its findings from a nationwide survey of teachers in 1,994 schools and an assessment of the early implementation of the Inclusive Education Act.