Abstract
This case study of one LEA's responses to the national agenda of inclusion reflects the view that 'inclusion is a process, not a state' (DFEE 1997). It describes strategies employed both before and after the Green Paper and Programme of Action to promote inclusion and the move towards more strategic planning across the LEA.
The vision of individuals at LEA and school levels combined with increasing parental preference for mainstream placements led to a range of successful initiatives to promote integration and inclusion in neighbourhood, resourced and special schools.
The Green Paper and Programme of Action provided a valuable focus for evaluating progress and planning for the future. Standards Fund money, to promote inclusion over a 3 year period, led to the formation of a team, initially focussed on the inclusion of pupils with complex learning difficulties in a group of project schools leading to strategic developments within the city to support inclusion.
Introduction
Developing a more inclusive education system, which values and responds positively to diversity is a process, which involves significant change for institutions and individuals. I want to begin by revisiting some of the theories of change in education, before describing a case study of one Local Education Authority's implementation of the inclusion agenda through the work of a nationally funded Inclusion project. In Leeds we are promoting effective and lasting change by addressing the inclusion agenda a number of different levels: individual, institutional and local government (Local Education Authority).
Clark, Dyson and Millward (1995) emphasise the importance of case studies in reflecting the diverse experiences of those involved in developing inclusive practices and contributing to the wider spectrum of research into inclusive education.
My earlier research into the development of the policy and practice of inclusion at institutional level (Longland 1998) highlighted several key findings:
This paper is an opportunity for me to reflect on the process of developing inclusive education from a different perspective that of an LEA.
Theories of change in education
I do not intend to present a comprehensive analysis of this area of educational research, but rather a summary of some elements which I have found particularly relevant in reflecting on my own experiences of the process of change in special needs education. The change referred to includes both externally imposed (top down) and self generated (bottom up) initiatives.
| What makes Inclusion Work? LEA - policy, redirected resources, staff attitudes School - positive leadership, articulated philosophy, shared aims, whole school SEN approach Teachers- commitment, skills, training, resources Parents - informed, supported, vocal, persuasive, assertive Child - pleasant disposition, cooperative, has some basic skills, 'deserving' |
My perspective in this case study
We are working against the promotion of lasting and effective change in special needs education unless we recognise the way in which initiatives at a number of different levels and involving different stakeholders interrelate.
Michael Fullan (TES 23.06.00) emphasises the contribution of infrastructures to the development of 'real and lasting improvement'.
'The key reason why reforms fail to become widespread and sustained is that the infrastructure is weak, unhelpful or working at cross purposes. By the infrastructure, I mean the next layer above whatever unit we are focusing on….
Reform will not be deep or sustained if the infrastructure is not in place to provide the pressure and support needed to overcome inertia and to establish forces that continuously energise and support….
Reform will not be deep or sustained if the infrastructure is not in place to provide the pressure and support needed to overcome inertia and to establish forces that continuously energise and support….
The key is to marry school level development with aligned forces in local, national and international infrastructures.' Michael Fullan (2000)
The initiative to develop a more inclusive education system in Leeds is utilising significant resources (£0.75M over 3 years). How can these resources be targeted to produce real and lasting change?
Background to the Leeds Inclusion Project
Leeds is the 2nd largest Metropolitan Authority in England, providing education for over 113,000 pupils aged between 2 and 19 years in 297 schools. There are
Leeds has a long history of enabling pupils with a wide range of needs to attend mainstream and resourced schools.
The LEA was awarded national funding through a competitive bid to promote the development of inclusive education. The project team
has both a focus in work with mainstream and special schools and also to develop policies and procedures at LEA level through collaborative working with all stakeholders: pupils; parents; health; social services; voluntary agencies. Working to promote inclusion at any one level is essential but not sufficient because of the complexity of the interaction between them.
Over the first year of the project the national situation regarding inclusive education has continued to evolve. It is both more supportive and yet continues to present tensions. There is a clearer legislative and guidance framework evolving. This highlights the human rights and educational basis for inclusion and emphasises the roles and responsibilities of all in this process:
However the tension between the national drives for inclusion and raising achievement continues to present difficulties because there is no national recognition for the achievement of pupils who are working below the national benchmarks for their age group.
The Leeds Inclusion Project - aims, objectives and outcomes (Appendix A)
The project's aims, objectives and the five main themes under which the project's work are grouped can be addressed at a number of different levels:
individual
institutional
LEA
Although the project's outcomes were originally planned for over 3 years and appeared to move from institutional initiatives in a small number of mainstream and special schools to strategic developments across the LEA, in practice this did not happen. Initiatives at school and LEA level began to develop in parallel due to national, local and institutional developments. All the initiatives which I mention are making a valuable contribution to the development of a more inclusive education system in Leeds, but on their own none would be sufficient.
The Leeds Inclusion Project - developments at LEA level
At LEA level the project is addressing the issues of raising awareness and debate about inclusion and creating structures to support inclusion.
SEN Strategic Plan Consultation
Inclusion is one of the key themes underpinning the consultation and has enabled us to debate with all stakeholders the philosophy and practical implications of our response to the national agenda. There is widespread support for the principle of inclusion, but recognition of the complexities of translating this into practice. Issues addressed in this process include the changing role of special schools in Leeds, funding mechanisms to support inclusion, training to develop the confidence and expertise of staff and the need for effective multi agency partnerships. The resulting action plan will reflect the views and emphasise the roles and responsibilities of all stakeholders in the development of a more inclusive education system in Leeds.
Inclusion Chartermark
Schools identified a concern that actions to promote inclusion were valued less than the achievement of high results in national tests. The Chartermark is a project based on collaboration between schools and the project team to agree criteria which would indicate a good inclusive school and develop a mechanism for validating and celebrating the achievements of schools which are striving for excellence in this area.
Good Practice in Inclusive Education video and information pack
Parents and professionals have worked together on an initiative led by the Parent Partnership Service and the Inclusion Project to produce a video and information pack which illustrate good practice in a range of inclusive settings for children with a diverse range of needs. Although the final product will be invaluable in raising awareness about inclusion, perhaps the process of collaboration between parents and professionals in drafting the leaflets and planning the video script has been as important.
The Leeds Inclusion Project - developments at institutional level
Although work in the project schools has had a positive impact in individual settings, outcomes such as guidelines for Learning Support Assistants and differentiated units of work can be used to support other schools.
Inclusion audits and development plans
All schools working with the project team engaged in self review, highlighting factors which were promoting and hindering the process of inclusion and set both short and long term targets for the further development. Funding and time from the team were made available to schools to support the priorities in their development plans. Some schools used the funding to work on priorities themselves: improving record keeping systems; developing partnerships with parents. Others used the expertise of team members to support priorities: auditing and developing their use of learning support assistants; curriculum planning and delivery to meet a wider range of pupil needs.
Curriculum development
Members of the project team have worked with several schools to enable pupils with complex learning difficulties to access the curriculum and demonstrate achievement. In one high school we collaborated with staff in all subject areas to plan one unit of work, develop teaching materials and assessment techniques. Through this collaboration we have been able to develop skills and experience which they will be able to use without our support in the future. This work can also be used by the project team as the basis for professional development activities with other schools.
Effective classroom support
Several schools have used the project team to provide training for Learning Support Assistants and to conduct audits about their role and training needs. Observation and assessment of the learning and behaviour of individual pupils has provided opportunities for working with teachers and support assistants to review how support can be used more effectively in a particular setting.
Pupil and teacher outcomes
The members of the project team have been clear that their focus is not individual support, but encouraging schools to adapt their policies and practice to meet needs of all pupils. However it is clear that individuals, both pupils and teachers have benefited from school based work. The project enabled teachers and support assistants in a primary school to attend Derbyshire Language Programme and Makaton training. This has enhanced the curriculum offered to pupils with communication difficulties but also enabled individual pupils to develop friendships with their peers, as adults and children are signing in the playground. The teacher and support assistant working with the project team felt that their confidence working with pupils with communication difficulties had improved and this would have an impact on future teaching and learning activities.
Conclusions
Each aim, objective and outcome of the Leeds Inclusion Project has value in its own right. However we are working towards the goal of a more inclusive education system throughout the city, and no single area of development would be enough to secure this. I return again to Michael Fullan's (2000) plea that we
'marry school level development with aligned forces in local, national and international infrastructures.'
Short term project work is a valuable way of addressing key factors at school and local levels which can promote inclusion, but there is a danger that such initiatives do not have time to become embedded into policy and practice at all levels of the system.
References
Clark C, Dyson A, Millward A 1995 Towards Inclusive Schools? London David Fulton
Clark C, Dyson A, Millward A & Skidmore D 1997 New Directions in Special Needs: Innovations in Mainstream Schools London Cassell
Elmore R 1989 'Backward Mapping: Implementation Research and Policy Decisions' in Moon B, Murphy P and Raynor J (eds) Policies for the Curriculum London Hodder & Stoughton
Fullan M 1989 'Planning, Doing and coping with Change' in Moon B, Murphy P and Raynor J (eds) Policies for the Curriculum London Hodder & Stoughton
Fullan M 2000 'Infrastructure is all' TES 23.06.00
Hodson D 1989 'Towards a Kuhnian Approach to Curriculum Development' in Moon B, Murphy P and Raynor J (eds) Policies for the Curriculum London Hodder & Stoughton
Longland H 1998 'Including pupils with severe learning difficulties: an exploration of the development of policy and practice in a mainstreasm RC high school' unpublished study University of Leeds
Moss G 1998 'SENCOs and Inclusive Education' Special Children 110 1-8 Birmingham Questions Publishing
Appendix A
The context: The Leeds Inclusion Project
The Leeds Inclusion Project is a 3 year action research project funded by the DfEE Standards Fund to promote inclusion.
The aim of the project is "To promote inclusion for pupils with SEN in mainstream schools; to develop links between special and mainstream schools; to provide targeted support for children at risk of developing emotional and behavioural difficulties".
Year 1 - The project team are working with 8 project schools, which provide for pupils from East Leeds, who have complex difficulties. These case studies will inform future developments in the policy and practice of inclusion.
Years 2 & 3 - The project team will be involved in promoting inclusion in other areas of the city. The team will be involved in the development of policy and planning across the LEA.
The context: Leeds Inclusion Project The objectives of the project are:
The context: Project Outcomes
Inclusion Project Outcomes
Ongoing Increased involvement of parent partnership in all aspects of project.
July 1999 Programme of professional development opportunities planned for all teachers and learning support staff in project schools.
Easter 2000 All pupils in resourced and special schools to have individual targets for progress in targeted curriculum areas: (Literacy/Numeracy/ICT/PSD)
July 2000 Improved confidence and expertise of all staff, in project, to meet more complex individual needs (learning and behaviour) thereby improving quality of teaching.
July 2000 LEA and project schools operating regular monitoring systems which evaluate standards, pupil progress, the quality of teaching and the impact of inclusion policies.
2000 Increased Governor knowledge and involvement through training and participation.
2000/01 Inclusion plan based upon evaluation of models implemented through this project to be available to Education committee for approval.
April 2001 All children with moderate/severe learning difficulties from identified project area are placed in inclusive provision, subject to parental preference.
2001 Establish further inclusion Networks of Excellence in the proposed South EAZ.
2002 An Inclusion Handbook and supporting information reflecting good practice.
April 2002 Management and financial structures in place to facilitate the flexible use of human and physical resources between specialist and mainstream settings.
April 2002 Secure increased access to post school provision for older client group through proposed Lifelong Learning Centres.
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