Abstract
With the growing trend towards inclusive practice for all, this paper takes a step backward to examine the lack of policies as they affect inclusive practice in the Ghanaian school system. The paper is based on a research which investigated the state of SEN policy development in Ghana, with 90 participants made up of teachers, policy makers and parents of children with SEN. It is the intention of this paper to argue for the need for policy enactment on SEN as a back up to inclusive practice. It is hoped that attention will also be drawn to the need of African delegates.
Introduction
The initial research, on the issues raised in this paper was carried out in 1996, as part of the dissertation for my M.Ed. degree at the University of Birmingham. There were a total of 82 participants (out of 110 questionnaires sent out). These comprised 66 primary school teachers and head teachers from 6 different schools, staff of the Ghana Education Service and 16 parents of children with special needs. There was a follow-up in May 2000. The purpose of this second research was to investigate the changes (if any) that had occurred between 1996 and the year 2000.
The second research, involved 25 participants, using open-ended questionnaires. The participants included 10 primary school teachers, 10 head teachers and 5 Officers from the Ministry of Education and the Ghana Education Service headquarters in Accra.
SEN policy: the Ghanaian situation
The study in 1996 revealed that 87% of teachers and head teachers were not aware of any existing policy for SEN, and therefore had no arrangements in place for implementation of such policy in their schools. 11% responded that they had a SEN policy, but stated the Education Act of Ghana (1961) as the policy. 65% of teachers strongly agreed that there was the need to have a specific policy in SEN. 30% thought the school structure will not be able to cope with such a policy, and therefore might not make any significant difference to children with SEN. There was a 100% response by parents in support for the enactment of SEN policy.
At the first 'Joint National Delegates Conference on Persons with Disabilities (Ghana)', the Director for Special Education Division, made the following statement which is consistent with the 1996 findings:
'Special education operates on an extension of the legislation of the general education system. There is no separate legislation governing the education of children with disabilities. It is expected that the special education division will interpret and implement general education policies with minimal modification…..' ( Kwaku, 1998).
She also added that, 'this arrangement though appropriate in some sense, does not specify a clear-cut direction on policy, provision/placement, implementation, monitoring and enforcement of special educational provisions.' (p.13).
The state of specific SEN policy was even made clearer by Koray (1998) who stated that, '…there is no clear and definite policy regarding special needs education in Ghana…' These statements are repeated in several pieces of Ghanaian literature, confirming the findings of the research both in 1996 and 2000. Even though attempts are currently being made to put such policies in place, they are yet to filter through the processes necessary for such polices to become useful and accessible.
One of the important attempts made so far, has been the 1998 First Conference on special education which, according to the keynote speaker, was of the 'view of …giving the government a 'pre-plan' that will serve as a working guide and a decision making data bank in the next century' (Nana Konadu Agyman Rawlings, First Lady of Ghana). To this, the Minister for Education added that, 'There is the need, to this effect, to come up with a national policy on persons with disabilities in Ghana.' (p. 10).
The general education policy mentioned above refers to the 1961 Education Act, which entitles all children to have a right to education. To enhance this, in 1962, the Education Amendment Act was introduced to enable the special education division to provide for people with special needs (this did not denote educational provision). Then came the Dzobo Committee Report (1972), which was limiting in scope, mentioning only slow learners and the gifted.
In 1995, the Ministry of Employment and Social Welfare set up a national advisory committee on employment to look at policies on disability in relation to rehabilitation and vocational training. From this committee's report came out general principles and guidelines for training in areas such as craftsmanship. This left out formal education as that was the responsibility of the Education Department. According to Koray (1998) the Ministry of Employment and social welfare held workshops 'on drafting of a national disability policy which is now in its final stage'. Whether this document will embrace educational policies or simply vocational will be uncovered when the said policy is released. In addition to these efforts, more proposals are being made from many fronts. This however, does not represent a SEN policy in itself, but a trend towards the framework of a policy, with the view of having legislation in the future.
Although these historical previews are necessary as background information, it does not form the crux of this paper. As suggested in the introduction, the focus of the paper is to suggest ways and means of closing the huge gap in SEN policy; whether it be the case of absence or lack of awareness and implementation. The effects of the state of SEN policy on the provisions of educational services for children within the category are enormous and disadvantageous.
Challenges and opportunities to the implementation of policy
The issue of whether a SEN policy in Ghana is non-existent or exists, but with a gap in its implementation, remains uncertain. However, the concern for most participants of the research, had to do with the implication that a specific SEN policy will have on the educational structure. 58% suggested that if inclusive polices were enacted in Ghana, children with SEN will 'lack attention in the regular classes'. The reason given for this, (the opinion of a further 24%), was 'large class sizes'. Some of the teachers indicated that they had between 60 to 90 children in their classes. From the view of such an impossible' class-size, it is noteworthy that, for any policy to be effective, attention must be given to the reduction of class sizes. For instance, in one particular school, there were 3,500 pupils with 36 teachers, bringing the pupil/teacher ratio to about 97:1.
In addition the level of awareness of teachers as well as all other citizens of the country regarding any policy on SEN should be stepped up. It was an issue of great concern to reveal that over 78% of teacher respondents had had no contact whatsoever with a SEN policy. More disturbing is the fact that a large percentage, do not think it necessary for such policies to be in place. They suggest the government should rather put certain things in place first, such as reducing class sizes. As understandable as this may be, it is rather like placing the 'cart before the horse'. Teachers are failing to realise that, a specific policy will compel the government to act in setting the necessary requirements for a successful implementation.
Bridging the gap: silver lining……
The call to the government and the people of Ghana is to introduce a tailored SEN policy that will meet the needs of children who fall within this category. It also calls for these children to receive the additional support they may require. A comparable example of such is the Code of Practice for the assessment and identification of children in SEN (1994), as it operates in Britain and other parts of the world. Nigeria for instance, has its own SEN policy: National Policy on Education (1981) and the National Blueprint On The Handicap (1990). Section 8 of the National Policy specifically states the procedure and government responsibility towards the educational needs of children with SEN. It is one thing to have a gap between implementation, and it is another to have an absence of a policy, the latter indicating to be the case in Ghana.
88% of the teachers suggested that unless the following were addressed, SEN policies will not be effective nor will they change the provision and quality of life for children with SEN who need education just like all other children. The points were:
However, in my view and examples from other countries show that, it will only take a policy/legislation to enforce these necessary concerns for the furtherance of SEN practice.
Conclusion
As rightly noted by Ihenacho (1998)
'African governments rather tended to prefer to use policies bills and acts which by themselves have no binding force of law….documentary review of the situation in various countries though most countries are rendering services to persons with disabilities such services are not yet obligatory as a force of law.' This is so because specific laws and policies are non-existent' (p.93).
What this paper has sought to achieve is to create the awareness once again, of the great need for a specific SEN policy in Ghana and to lay down clear parameters for its implementation.
References:
Donani, C.A. (1996) 'Developing SEN Policy for the primary educational sector in Ghana: An agenda for change. An unpublished thesis to the University of Birmingham.
Ihenacho, A, J. (1998) 'Special education policies and legislative practices: a review of some African countries'. In, Proceedings of the first joint national delegates conference on persons with disabilities. University College of Education. Ghana.
Kwaku, M. (1998) 'Review of the state of special education programme/services in Ghana. In Proceedings of the first joint national delegates conference on persons with disabilities. University College of Education. Ghana.
Koray, B.I. (1998) 'Policy trends related to special needs education in Ghana reviewed from an international perspective'. In, Proceedings of the first joint national delegates conference on persons with disabilities. University College of Education. Ghana.
 |
 |