Curriculum Access for Students with Low-Incidence Disabilities: The Promise of UDL
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Overview
When Congress reauthorized the Individuals with Disabilities Education Act in 1997 (IDEA '97), conditions were set for profound change in the ways disability is viewed in the broader context of schools and society. Originally, in the mid-1970s, Congress acted to ensure that no child, regardless of extent of disability, could be denied a free, appropriate, and public education (FAPE) in the least restrictive environment. At that time, an "appropriate" education meant a special education—one that would be individually designed to address the needs that result from disability. Now, more than thirty years later, the law states that no child may be denied access to the general education curriculum—specifically, that curriculum which schools and school districts make available to all non-disabled students (IDEA '04).
Currently, the general curriculum consists of core subject areas plus varying elective subject options. Broad frameworks for core content areas are more or less determined by individual states, which also set requisite standards for grade advancement and graduation. In the larger, national effort to reform education in general, students with disabilities are not to be denied access to the same opportunities afforded their non-disabled schoolmates. In this way, Congress seeks to align opportunities for students with disabilities with those available to the non-disabled student population. Using broad-scale assessment systems, states now measure the extent to which all students, and the schools they attend, achieve intended outcomes. There is less emphasis on analyzing the discrepancy between what schools actually provide and what they intend to provide (inputs) in favor of greater focus on results as measured by standards attainment (outputs). Better results for schools presumably lead to better adult outcomes for students. Just as schools are held accountable for student learning through standards testing, so too will schools be held accountable for supports and services they provide for students with disabilities in order to allow them to access the general curriculum. Accordingly, students with disabilities are now compelled by IDEA '97 and subsequent amendments to participate in all state- and district-level assessment systems.
Today, the touchstone of special education law remains the Individualized Educational Plan (IEP), which is a document detailing the range and intensity of services and supports intended for each eligible student with a disability. Unlike in the past, however, the IEP now formalizes the collaborative relationship between general and special education and also aligns the general curriculum with specially-designed instruction and other support structures necessary for enabling access to the curriculum. Some support structures relate to how instruction accommodates a student's disability without altering standards (e.g., extra time allotted for task completion, Braille in place of print). Other supports may involve curriculum modifications that adjust performance levels or entry points but continue to address standards' content domain or framework. Accommodations or modifications stipulated in an IEP to adjust instruction or adapt curriculum for a student also apply to the administration of state- and district-level assessments. For students with significant developmental delays, accommodations alone may be neither sufficient nor appropriate. Alternatively, states and districts may employ alternate assessments to ascertain the extent to which students meet goals delineated on their IEPs. Alternate assessments in these cases are modifications of state standards, but they nonetheless follow the broad frameworks identified for each state's core knowledge areas. Alternate assessment procedures can be authentic and performance-based. In frequent use are portfolios, evaluated according to rubrics that reveal the depth to which students meet standards. Alternate assessment procedures are labor intensive both to design and to carry out. Scoring by state authorities is also laborious and time-consuming. Presumably, however, the use of alternate assessments is limited to 1–3% of school-aged children, thus minimizing the extent of onerous time and effort. Moreover, time spent by teachers in initially documenting alternate assessments is well invested, as procedures become more routine over time with an IEP’s implementation.
To many, this adherence to states' curriculum standards for students with significant developmental delays appears unrealistic, but, clearly, Congress' intent in IDEA '97 and IDEA '04 is to remove barriers that historically limit access to the same curriculum taught to non-disabled students. This amounts to a zero-reject from the general curriculum so that all students must participate in and make progress within the general curriculum to the maximum extent feasible. If one conceives of the general curriculum as the vehicle through which all students can achieve adult outcomes outcomes understood in a broad sense as independence, participation, and productivity then, in a just and democratic society, opportunity cannot be denied for students with disabilities.
In the discussion that follows, we examine practices intended to improve access to the general curriculum for students with low-incidence disabilities. For many reasons, this population presents unique and daunting challenges for all committed to meeting IDEA '97's mandates. We follow a question-and-answer format in order to address key issues and to arrive at basic understandings concerning students with low-incidence disabilities. Since much of this report refers to a UDL framework, UDL will be defined. Low-incidence disabilities are then contrasted with high-incidence disabilities to uncover some distinguishing characteristics of this population. Next, particular challenges confronting schools and communities that endeavor to serve these students and their families are examined. We then concentrate on identifying the needs of students with low-incidence disabilities. We also present disability-related needs that are unique to a particular category of specific disability and other, more generic needs that cut across categories. The reason for this is the fact that IDEA retains the use of specific disability categories for eligibility determination and classification. Over the past few decades, however, both professional literature and actual practice have supported alternative approaches for defining and classifying students with low-incidence disabilities. Thus, in order to provide students with low-incidence disabilities with appropriate and effective services, supports, and ancillary aids, it is necessary to examine alternative frameworks, differing from those traditionally in place, for understanding needs.
Specialized curricula and instructional practices that hold particular promise for students with low-incidence disabilities are presented. Just as it is important to understand need from multiple perspectives, so too must curriculum and instructional practices be understood as meeting both unique as well as shared needs among students with low-incidence disabilities. We focus on curricula and practices that are highly specialized as well as those that address more typically shared needs.
Because IDEA requires access to the general education curriculum for all students, it is necessary to examine ways in which specialized curricula and instructional practices can support or otherwise connect with broader approaches for improved access, participation, and progress for students with disabilities. Curriculum is highly complex. Historically, it has been examined through many different lenses. The complicated nature of curriculum theory and practice makes it difficult to envision innovative ways of making it accessible for students with disabilities. Thus, we will also examine and attempt to demystify some of that complexity.
Instructional practices presented in the context of our discussion are intended to bring an effective focus to eliminating or reducing curriculum needs associated with low-incidence disabilities. As with the consideration of need, curricular options and instructional practices can also be both highly specialized to a specific disability and highly generic across disabilities. For example, approaches for engaging students who are blind or deaf can be quite unique to those disabilities, given the varieties of existing communication modes. Other approaches can be quite generic, involving, for example, applied behavior analysis or systematic instruction.
After grounding in student need, curriculum, and instructional techniques, we examine models for collaborative planning. Students with low-incidence disabilities require services and supports beyond the classroom. These may intensify at various transition points throughout a life span and broaden out to include an array of community agencies. We examine the IEP in turn as a tool for pulling services together in support of access to the general curriculum. We then focus on approaches for enabling students with low-incidence disabilities to participate in state- and district-level assessment systems. Finally, we conclude with a consideration of how access to the general curriculum can be improved for students with low-incidence disabilities through the application of principles of universal design.