In 2010 the Education Review Office (ERO) was tasked with reporting on the progress of New Zealand schools in the inclusion of students with high needs. This paper will explore how ERO limited the concept of inclusion to suit Government policy and limit discussion of inclusion to the parameters set by the resource allocation scheme known as Special Education 2000 (SE2000). This practice of "shaping the debate" is consistent with past practice, such as the 2003 ERO report regarding disability. Current conceptualisations of inclusion will be considered which will be contrasted with ERO usage and the confinement of a discussion on inclusion to resourcing and teacher practice. Finally, it will be suggested that the Ministry of Education should embrace an open discussion of inclusion through collaboratively reflecting on values and beliefs.