The social inclusion of learners with special educational needs (SEN) in mainstream schools has been a dominant discourse in global education and academic research. Concerns have been raised globally, and in England, that learners with SEN underachieve compared with non-SEN learners. Studies have linked challenges faced by learners with SEN to inadequate training of teachers, delayed intervention and the lack of clarity in educational policies relating to learners with SEN. This paper draws on Carol Bacchi's (2009) 'What is the Problem Represented to be' (WPR) framework to analyse 10 policy documents relating to the education of learners with SEN in mainstream schools in England. This analysis aims to identify 'problems', tensions and gaps in educational policies relating to learners with SEN and to establish the effectiveness of these policies in addressing the social inclusion of learners with SEN in mainstream schools. The analysis revealed that the educational policies create 'problems' for learners with SEN due to their outcomes-focused approach. There is little consideration given to inclusive education and the social inclusion of learners with SEN in mainstream schools. This paper argues that for successful social inclusion of learners with SEN, policies must prioritise empowering teachers to effectively promote inclusive education.