Inclusive education across Europe: reflections upon 10 years of work from the European agency for development in special needs education.

The European Agency for Development in Special Needs Education is an independent, self-governing organization established by member countries to act as a platform for collaboration in the field of special needs education among the 28 member and observer countries. The year 2006 marked the 10th anniversary of the Agency. This article aims to present reflections on some of the main developments in the field of inclusion over that period, as reflected in the work of the Agency and its member countries.

European Agency for Development in Special Needs Education: An Introduction

The European Agency for Development in Special Needs Education was established in 1996, with the goal of increasing collaboration among various European countries in the area of special needs education. Following a three-year trial period that was funded by the Danish education authorities, the member countries at that time, including 15 European Union member countries, Iceland, and Norway, took over the responsibility for the Agency. The Agency became an independently functioning European organization, working toward implementing a number of activities that focus upon learners with special educational needs as well as the professionals involved in their education.

The Agency, a unique organization in the field of special needs education, does not promote a particular philosophy or present information from only a specific viewpoint. Rather, the aim is to facilitate the effective transfer of European and country-specific information relevant to individual countries' national contexts and to identify the strengths and weaknesses of various policies and their implementation. The Agency, essentially a network of member country representatives and experts nominated by the respective ministries of education, gathers and presents information on the collective behalf of these country representatives.

The Agency is maintained by the Ministries of Education in Austria, the Flemishand French-speaking communities of Belgium, Cyprus, Czech Republic, Denmark, Estonia, Finland, France, Germany, Greece, Hungary, Iceland, Ireland, Italy, Latvia, Lithuania, Luxembourg, Malta, the Netherlands, Norway, Poland, Portugal, Spain, Sweden, Switzerland, and the United Kingdom. Bulgaria and the Republic of Slovenia participate as observers. In addition, the European Commission and Parliament support the Agency, both politically and financially.

The Agency's working language is English; however, as much information as possible is presented in the languages of member countries in newsletters, publications, reports, and a Web site (www.european-agency.org). This Agency Web site provides topic databases, comparative information, specific Web information services, and national pages with country-specific information for each member country. Furthermore, contact between different users is also facilitated through Agency seminars, conferences, events, study visits, and exchange programs.

The Agency's ultimate aim is to improve policy and practice for learners with special needs across Europe through debates on inclusive education, equal opportunities, accessibility, and the promotion of quality of education, while recognizing the differences of countries' policies, practices, and educational contexts. The Agency promotes the principles of equal opportunities for quality education and for genuine access to learning experiences, based on individual differences, by facilitating the transfer of accurate and reliable information from the member countries. Its key objectives focus upon: 1) promoting quality in the field of special needs education through the maintenance of a long-term framework for extended European collaboration, 2) providing a reliable reflection of the reality of special needs education across Europe with up-to-date information on individual countries' national contexts, 3) identifying key factors that hinder or support positive experiences, and 4) facilitating the effective exchange of knowledge and experience among and within member countries

All aspects of Agency work are aligned with key international statements related to equal opportunities and special needs education, such as the UN Standard Rules (United Nations, 1993), the Luxembourg Charter (1996), the Dakar Framework for Action (World Education Forum, 2000), the Madrid Declaration (2002), and the EU Council Resolutions (Council of the European Union, 1996,1997, 2000) and European Commission Communications concerning inclusive education (European Commission, 1999, 2001). In addition, the UNESCO (1994) Salamanca Statement regarding inclusive education provides a clear guiding principle for the Agency's work:

   Regular schools with this inclusive orientation are the most
   effective means of combating discriminatory attitudes, creating
   welcoming communities, building an inclusive society and achieving
   education for all; moreover, they provide an effective education to
   the majority of children and improve the efficiency and ultimately
   the cost-effectiveness of the entire education system. (p. 8)

Enormous difficulties arise when comparing the situations related to inclusion and special education in different countries. Eklindh (2001) suggests that countries are all moving "at a different pace, but nonetheless striving to develop Inclusive Education or School for All ... where we put full participation, equality and community at the centre--as a clear dimension of quality in education" (p. 65). Therefore, based on the approach of including students with special educational needs in mainstream education, country policies for inclusion can be divided into the following three categories (Meijer, 2003a): 1) countries with a one-track approach develop policy and practice geared towards the inclusion of almost all pupils within mainstream education, whereby a wide range of services are also provided; 2) countries with a multi-track approach have a multiplicity of approaches to inclusion and offer a variety of services between the two systems (the mainstream and special needs education); and, finally 3) countries with a two-track approach have two distinct education systems Students with special education needs are usually placed in special schools or special classes and have little, if any, access to the mainstream curriculum among nondisabled peers. The Agency aspires to support countries by providing the information necessary to develop a wider and deeper understanding of factors supporting inclusion

Reflections Upon Agency Work, 1996-2006 Since 1996, Agency work has been focused upon a number of priority thematic topics related to the further development of special needs education in Europe The following topics have been examined and addressed in various reports and documents: early intervention (Soriano, 1998); provision of special needs education across Europe (Meijer, 1998); teacher support (Soriano, 1999); financing of special needs education (Meijer, 1999); information and communication technology (Watkins, 2001); transition from school to employment (Soriano, 2002); key principles for special needs education (Watkins, 2003); inclusive education and effective classroom practice in primary (Meijer, 2003a) and secondary sectors (Meijer, 2005). Out of these priority topics, the following were selected for revision: provision of special needs education across Europe (Watkins, 2003), early childhood intervention (Soriano, 2005), and individual transition planning (Soriano, 2006). Special needs education policymakers across Europe have a clear interest in sharing detailed information on approaches to legislation, financing, structures, and organizational issues across the education age spectrum: preschool compulsory, and post compulsory phases. In addition, within all thematic work, special attention has been devoted to educational policy and its implementation in practice, while highlighting examples of best and innovative practice

The use of terminology in policy statements and legislation in countries in the European Union mirrors obvious developments in the Agency. Early Agency work (e.g., Meijer, 1998; Soriano, 1999) uses the word "integration," while more recent works very clearly focus upon "inclusion" with its broader connotation of preventing segregation of students with various needs This shift in terminology mirrors a shift in thinking. Early Agency documents and reports focus on students and their difficulties, while current Agency work now centers upon an organization of provision within countries. In addition, a number of the thematic areas mentioned above have been important areas for development in special needs education over the past 10 years.

Policy Developments Towards Inclusion and Schools for All

Agency Representative Board members highlighted the following key factors that support inclusion: 1) development of integrated frameworks of policy and legislation, 2) appropriate resourcing arrangements, 3) effective ways for monitoring evaluation and accountability, and 4) a policy about widening access and opportunity (Watkins, 2003). These recommendations are in line with the more general work conducted by the European Commission (2006a), which looked at the development of quality in education and training in European Union member states. The Commission recommends using the following indicators for quality education: 1) information on attainment levels, educational success, and transition; and 2) monitoring of school education and educational resources and structures.

The Agency work, however, suggests that a number of areas for policy development require further attention. These include: 1) the increasing tension between schools' academic requirements and the capabilities of pupils with special education needs, 2) the development of systematic monitoring and evaluation procedures within the framework of special needs education in inclusive and separate special settings, and 3) the development of flexible frameworks of provision that support inclusive practice applied to all sectors of educational provision (Meijer, 2003a; Watkins, 2003). Huge legislative changes in special needs education can be recognized in some of the member countries (Meijer, 2003b; Watkins, 2007). All Agency thematic work demonstrates that developments in areas of special needs education practice can only occur when they are clearly supported by the existence and implementation of clear legislation and policy frameworks.

Three trends have emerged across a number of thematic areas of Agency work, which focus upon the key actors involved in the end point of the educational process. Their developing roles have vital implications for special needs education policy and practice in the near future. These areas present some of the main challenges facing countries currently and highlight aspects of innovative practice in successful inclusion. The specific findings that relate to these three trends can be found on the Agency's Web site (www.european-agency.org). The following sections present the main recommendations and guidelines arising from these specific findings and validated by the Agency member countries.

An Increasing Focus on Teacher and Interdisciplinary Team Work. Greater cooperation and integration of support services from similar (and also different) professional sectors supports teachers, as well as the pupils with special needs themselves and their families (Meijer, 2003a; Soriano, 2002, 2005, 2006). Early childhood education, the transition from school to employment, and the responsibility for services for pupils with special educational needs must be shared between different services and professionals, such as health, social, employment, and education services. Different professionals from various disciplines need to work together in interdisciplinary teams operating on the basis of cooperative teamwork (Soriano, 2005, 2006). The necessity for cooperative teaching is evident for all teachers working with pupils with special needs (Meijer, 2005).

Agency work has led to the following guidelines, endorsed by all Agency member countries for supporting interdisciplinary teamwork. The Agency suggests that interdisciplinary teams should take a team-building approach. They need to share principles, objectives, and working strategies while their different approaches are integrated and coordinated to reinforce a comprehensive and holistic, rather than compartmentalized, approach. Special attention should be paid to the shared information among team members in order to complement each others' individual skills and competences, as well as to allow for joint decision-making. Facilitating the process requires inservice training that allows teachers to share basic knowledge related to child development, as well as specialized knowledge and competencies about working methods, assessment, and working with families and with other services as a team. The team-building process builds stability, which ultimately leads to quality results.

The Increasing Involvement of Parents As Active Partners in Their Child's Education. The role of parents in selecting schools for their children varies in European countries (Meijer, 2003b). In countries with a strong special school sector, parental pressure for inclusion is increasing, while countries where inclusion is common practice report that parents have positive attitudes (Meijer, 1998, 2003b). Parents' active role in requesting support for their children is also a developing issue. For example, in the preschool sector, a growing number of various services and provisions are available at parents' request (Soriano, 2005). The parents' role and rights during key decisionmaking processes regarding their child's educational future also vary by country (Watkins, 2007). In some countries, parents must help assess and identify a child's disability, and their legal obligation to contribute to the intial assessment process is receiving more attention. All member countries are now examining parents' rights to be informed about educational decisions that affect their child, their rights to question such decisions, and their involvement in the ongoing decision-making process in collaboration with teachers and professionals.

The Agency has established the following guiding principles for working cooperatively with families:

* Families should be considered the main partners for professionals. Professionals should take the lead in initiating such cooperation. They also should develop an open and respectful attitude toward families as they strive to understand the families' needs and expectations and avoid conflict arising from different perspectives on needs and priorities. Most important, professionals should not impose their point of view upon families.

* A team contact person should be nominated according to the skills required for each specific situation. The contact person, who is a reference person for the family and the professional team, should coordinate all necessary actions and ensure regular contact with the family.

* An agreed-upon individual plan should be developed. This may be an individual education plan (IEP) or an individual family service plan (IFSP) prepared by professionals with families. Its aim should be to promote transparency and to present agreed-upon goals, strategies, responsibilities, and evaluation procedures. Both families and professionals would regularly and jointly evaluate this plan.

* The ultimate aim for all services should be meeting the needs of parents and their children. Parents have the right to be well-informed about their child's needs and to make decisions with professionals on the educational provision they feel is best for their child. Professionals should respect a family's decision about an inclusive educational setting. Further, the professionals have a duty to clarify the meaning and the benefits of the type of support and services that they recommend.

* Parents should receive training upon request. Appropriate training will help them obtain the skills and knowledge that will facilitate their interaction with professionals and with their child.

An Increasing Focus on Pupils As Active Partners in Their Own Learning. Two key aspects of pupils' involvement--respecting the personal choices of pupils (Soriano, 2006) and pupils' active participation in learning processes (Meijer, 2005)--are receiving increased attention in member countries. This choice and participation in their own learning may focus upon what and how they learn and also upon how they assess the usefulness of the learning (Watkins, 2007). In order to support pupils' active participation in their own learning, teachers must have a clear role in developing strategies and tools, including different ways of organizing the classroom, forming learning groups, and presenting learning opportunities and assessment (Meijer, 2003a, 2005; Watkins, 2007). Active participation also may include teachers engaging pupils in learning in different ways, such as cooperative learning and "learning how to learn" processes that may contribute to the success of inclusion (Meijer, 2005).

The Agency offers the following guidelines to the above process:

* At the policy level, there should be adequate planning and provision of resources. Schools need the necessary time and funds to implement inclusive education. Further, policymakers should help ensure effective use of resources.

* At the practical level, practitioners should aim to better understand pupils' wishes as well as needs. IEPs should be accessible to the pupil to be evaluated, modified, and adapted together, based on their wishes. Practitioners should work to encourage the pupil to discover her/his own skills and competencies as far as possible.

Looking Forward to the Coming Years

The year 2006 was a landmark year for the Agency. Not only was it the tenth year of operations, but the Agency also was accepted as one of six European institutions to be recognized and supported under the new European Union Lifelong Learning Program for 2007-13 (European Commission, 2006b). During 2006, the Agency Representative Board approved a new multi-year work program, under which the priority areas for investigation and development for the coming years are: assessment for inclusion, meeting the needs of immigrant pupils with special educational needs, teacher education for inclusion, providing and organizing special needs education programs, and policy and practice in vocational special needs education. In addition, the Board highlighted three further priority topics for review and update: inclusive education and classroom practice, information and communication technology in special needs education, and early childhood intervention. Further, the Agency Representative Board members have almost unanimously identified effectively meeting the needs of pupils with emotional and behavioral difficulties in mainstream education as their top priority for consideration.

Within all of these thematic areas, countries have indicated the need to consider the emerging issue of individualized learning for all pupils, not just those with special educational needs. The concept of "additional needs," which incorporates a broader understanding of pupils who may require extra or different provisions, is a perspective that will have to be considered in future Agency work. Furthermore, in the coming years, the Agency will aim to incorporate the findings from thematic work to develop indicators for standards that countries and other organizations should consider using.

Overall, the Agency's mission of providing the main source of reliable information in the field of special needs education will continue. With the continued support and involvement of the Agency, member and observer countries, and the European Institutions, it is hoped that, in the short and long term, the Agency can further develop its ability to effectively contribute to the issues regarding inclusion and meet the needs of learners who require additional support.

References

Council of the European Union. (1996). Resolution of the Council and of the representatives of the governments of the member states within the Council of 20. December 1996 on Equality of Opportunity for People with Disabilities. OJ NO. C 012, 13/1/97 pp. 0001-0002.

Council of the European Union. (1997). The treaty of Amsterdam article 13 on the principle of non-discrimination and the declaration No. 22 annexed to the final act of the treaty signed on 2 October 1997. OJ C340 10.11.1997.

Council of the European Union, Nice Summit (2000). The Charter of Fundamental Rights, Article 26, adopted the 11 December 2000.

Eklindh, K. (2001). Special education in Europe. In C. J. W. Meijer & A. Watkins (Eds.), Special needs education: European perspectives--Proceedings of the international conference (pp. 66-69). Middelfart, Denmark: European Agency for Development in Special Needs Education.

European Commission. (1996). Communication of the Commission on Equality of Opportunity for People with Disabilities of 30 July 1996 (Com (96) 406 final)

European Commission, DG XXII. (1996). The Charter of Luxembourg. Brussels, Belgium.

European Commission Communication. (1999). Towards a barrier-free Europe for people with disabilities: A roadmap to the achievement of greater community added value. Brussels, Belgium: Author.

European Commission. (2006a). Commission staff working document--Progress towards the Lisbon objectives in education and training. Report based on indicators and benchmarks. Brussels, 16.5. 2006 SEC(2006) 639.

European Commission. (2006b). Jean Monnet action. Retrieved July2006,fromhttp://ec.europa.eu/education/programmes/ ajm/supportinstit/support_institutions_en.html.

European Disability Forum. (2002). The Madrid declaration-Non discrimination plus positive action results in social inclusion. Brussels, Belgium: Author.

European Parliament. (1997). Resolution on the Commission's communication on Equality of Opportunity for People with Disabilities of 11 March 1997 (Extra)

European Parliament. (2001). Resolution on the communication from the Commission to the Council, the European Parliament, the Economic and Social Committee and the Committee of the Regions - Towards a barrier-free Europe for people with disabilities adopted on the 4 March 2001 (COM (2000 284 - C50632/2000-2000/2296 (COS)) (Extra)

EU Council Resolution, 99, 00, 01

Luxembourg Charter, 96

Madrid Declaration

Meijer, C. J. W. (Ed.). (1998). Integration in Europe: Provision for pupils with special educational needs. Middelfart, Denmark: European Agency for Development in Special Needs Education.

Meijer, C. J. W. (Ed.). (1999). Financing of special needs education. Middelfart, Denmark: European Agency for Development in Special Needs Education.

Meijer, C. J. W. (Ed.). (2003a). Inclusive education and classroom practices. Middelfart, Denmark: European Agency for Development in Special Needs Education.

Meijer, C. J. W. (Ed.). (2003b). Special education across Europe in 2003: Trends in provision in 18 European countries. Middelfart, Denmark: European Agency for Development in Special Needs Education.

Meijer, C. J. W. (Ed.). (2005). Inclusive education and classroom practice in secondary education. Middelfart, Denmark: European Agency for Development in Special Needs Education.

Soriano, V. (Ed.). (1998). Early intervention in Europe. Trends in 17 European countries. Middelfart, Denmark: European Agency for Development in Special Needs Education.

Soriano, V. (Ed.). (1999). Teacher support: Organisation of support for teachers working with special needs in mainstream education. Middelfart, Denmark: European Agency for Development in Special Needs Education.

Soriano, V. (Ed.). (2002). Transition from school to employment. Main problems, issues and options faced by students with special educational needs in 16 European countries. Middelfart, Denmark: European Agency for Development in Special Needs Education.

Soriano, V. (Ed.). (2005). Early childhood intervention. Analysis of situations in Europe--Key aspects and recommendations. Middelfart, Denmark: European Agency for Development in Special Needs Education.

Soriano, V. (Ed.). (2006). Individual transition plans--Supporting the move from school to employment. Middelfart, Denmark: European Agency for Development in Special Needs Education.

UNESCO. (1994). The Salamanca statement and framework for action on special needs education. Adopted by the World Conference on Special Needs Education: Access and quality. Salamanca, Spain: Author.

United Nations. (1993). The standard rules on the equalization of opportunities for persons with disabilities. New York: Author.

Watkins, A. (Ed.). (2001). Information and communication technology in special needs education. Middelfart, Denmark: European Agency for Development in Special Needs Education.

Watkins, A. (Ed.). (2003). Key principles in special needs education recommendations for policy makers. Middelfart, Denmark: European Agency for Development in Special Needs Education.

Watkins, A. (Ed.). (2007). Assessment in inclusive settings: An overview of policy and practice across Europe. Middelfart, Denmark: European Agency for Development in Special Needs Education.

World Education Forum. (2000). The Dakar framework for action education for all: Meeting our collective commitments. Dakar, Senegal, 26-28 April 2000

Note: All of the Agency documents listed above are available to download free of charge in various European languages from: www.european-agency.org/site/info/publications/agency/index. html. In addition, each thematic project has a dedicated Web area with all country as well as Agency information. These databases can be accessed from the Information Resources section of the Agency Web site: www.european-agency.org/site/info/index.html. The majority of the key guiding principle documents providing international statements and resolutions on special needs education can be accessed from: www. european-agency.org/site/about/index.html#guide

Cor Meijer, Victoria Soriano, and Amanda Watkins Cor Meijer is Director, Victoria Soriano is Assistant Director - European Liaison, and Amanda Watkins is Assistant Director, European Agency for Development in Special Needs Education. Contact: [e-mail]