The figures were published as work begins on plans to improve and strengthen school governing bodies.
A study in 2007 suggested one in five head teachers thought their governors were ineffective. The same proportion said they were very effective.
Children's secretary Ed Balls said good governors were key to turning round under-performing schools.
As the working group advising ministers on how to strengthen school governance meets for the first time, he said: "We need all governing bodies to lead the work of school improvement.
"Strong governors are central to turning around underperforming schools and will be key to raising standards in our 638 National Challenge schools, where less than 30% get five A* to C GCSEs, including English and maths.
"This is not about making governing bodies paid professionals - the voluntary ethos is here to stay.
"It is about making sure they have the right professionalism, skills and focus on holding schools to account and being accountable themselves to children, parents and local communities."
There are between 235,00 and 350,000 school governors in England, but 11% of posts remain vacant.
Schools in inner city areas find it particularly tough to fill their posts.
