Psychoeducational reports prepared by the Educational Psychological Service are foundational for special educational support in Norway, ensuring equitable opportunities for development, learning and participation among children with special educational needs in mainstream Early Childhood Education and Care settings. This qualitative study examines the characteristics of recommended goals and support measures in these reports, and how they promote or inhibit inclusion. Through a holistic approach, the study explores individual and social contextual considerations within the recommendation sections of seven reports for children aged 3-5 years. Employing reflexive thematic analysis, our findings suggest that while certain measures promote children's participation in inclusive communities, there is a predominant focus on the individual child. This emphasis often centres on skill acquisition and ability development through performance-based goals and compensatory measures. However, while most recommendations are individually oriented, certain measures appear generalised and broadly applicable to most children, highlighting the challenges of addressing each child's unique needs in their specific context. The study's implications underscore the necessity for a holistic approach in the field of special education, both at the policy and legislative levels. Such an approach is essential for enabling psychoeducational reports to promote inclusion in early childhood education and care settings.