School absence fines remain inconsistently applied across England, despite the introduction of a National Framework two years ago intended to standardise enforcement, think tank finds.

A new analysis by the Education Policy Institute (EPI) found that while overall penalty notice (PN) rates have plateaued, they remain at an all-time high and well above pre-pandemic levels — even as rates of unauthorised absence have fallen compared to the previous year.

Regional disparities are stark. London issued the fewest fines in the country at 3.6% of enrolments, while Yorkshire and the Humber issued almost three times as many at 10.3%. The data also suggests a geographical overlap between disadvantaged areas and higher rates of late-paid fines and prosecutions for non-payment.

The findings come as the Government's schools white paper sets a new attendance target of over 94%, and as ministers continue to champion a support-first approach to tackling pupil absence.

‘Our analysis shows that where a parent lives still has a bearing on how likely they are to receive a fine, or face prosecution, for their child's unauthorised absence,’ said Maxime Perrott, Researcher (Post 16 and Skills) at the EPI.

‘Areas with near-identical absence rates are taking markedly different enforcement approaches, which suggests the National Framework is yet to deliver its intended consistency.’

Perrott also said the data raises ‘serious questions’ about whether fines are the right tool for tackling absences.

‘Nine in 10 fines are issued for family holidays, yet holidays account for just seven per cent of all absences. The most pressing absence problems clearly lie elsewhere and issuing more penalties is unlikely to solve them, particularly at a time when many families are already under significant financial pressure,’ she said.