Individuals with Disabilities

Education Act (IDEA) 2004

The
Least
Restrictive
Environment

A Primer for Parents

and Educators

Legal Requirements and Best Practices

2006
 Prepared by:
John Copenhaver
Mountain Plains Regional Resource Center
1780 North Research Parkway, Suite 112
North Logan, Utah 84341
(435) 752-0238 Extension 16
E-mail: [email protected]
 LEAST RESTRICTIVE ENVIRONMENT

“To the maximum extent appropriate, students with

disabilities are to be educated with students who are
not disabled.”

SPECIAL EDUCATION IS NOT A PLACE; IT IS

SERVICES AND SUPPORT FOR GENERAL
EDUCATION.

The general education curriculum can be delivered

in other educational environments.

Inclusion and mainstreaming are not addressed in

federal regulations
 Contents

Overview of the Least Restrictive Environment ----------------------- 1

Least Restrictive Environment Baker’s Dozen ------------------------- 6

Standards for Determining Placements ---------------------------------- 7

Placement is Based on the IEP ----------------------------------------------7

Full Continuum of Service Options --------------------------------------- 8

Continuum of Service and Least Restrictive Environment --------- 9

Justification Statements and Sample Cases --------------------------- 13

LRE Questions and Answers --------------------------------------------- 15

Learning Opportunities in the General Classroom ----------------- 18

12 Principles for Inclusive Schools -------------------------------------- 20

LRE Letter from OSEP ------------------------------------------------------ 22

 OVERVIEW OF THE
LEAST RESTRICTIVE ENVIRONMENT
Since the Education for All Handicapped Children ActCnow known as the Individuals
with Disabilities Education Act 2004—was passed in 1975, States have been required to
make available to students with disabilities a free appropriate public education (FAPE)
in the Least Restrictive Environment (LRE). The LRE standard that each school district
must establish includes

STANDARD
Aprocedures to assure that, to the maximum extent appropriate, children with
disabilities, including children in public or private institutions or other care
facilities, are educated with children who are not disabled, and that special classes,
separate schooling, or other removal of children with disabilities from the general
educational environment occurs only when the nature or severity of the disability
is such that education in regular classes with the use of supplementary aids and
services cannot be achieved satisfactorily@ (IDEA 2004).

“Supplementary aids and services” means accommodations and modifications that

ensure success in the general education classroom. LRE differs for each student with a
disability receiving special education and related services. Basically, a student=s LRE is
the environment where the student can receive an appropriate education designed to
meet his or her special educational needs, while still being educated with
nondisabled peers to the maximum extent appropriate. Depending on the student=s
individual needs, the LRE could be the general classroom, with or without
supplementary aids and services; a pull-out program for part of the day with the
remainder of the day being spent in the general classroom or in activities with students
who do not have disabilities; a special education class within the student=s
neighborhood school; or even a separate school specializing in a certain type of
disability. Thus, one student=s least restrictive environment—where that student can
get the education he or she needs while still interacting with nondisabled peers—may
be very different from another student=s.

Determining the Student=s LRE

In a November 23, 1994 memorandum to the Chief State School Officers, the U.S.
Department of Education offered clarification regarding IDEA=s LRE provisions, which
state the strong preference for educating students with disabilities in general classes
with disabilities in general classes with appropriate aids and supports (Heumann &
Hehir, 1994, p. 3) (IDEA 97 refers to Asupplementary aids and services@). This memo
made it clear that a student=s placement in the general education classroom is the first
option the IEP team must consider.

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An integral part of deciding whether or not the student will be educated within the
general education classroom is an IEP team inquiry into the possible range of
supplementary aids and services that are needed to ensure that the student can be
satisfactorily educated in that environment. If the IEP team determines that the student
can be education satisfactorily in the general education classroom, Athat placement is the
LRE for that student@ (Heumann, 1994, p. 2).

However, the IEP team may determine that the student cannot be educated
satisfactorily in the general education classroom, even when supplementary aids and
services are provided. An alternative placement must then be considered. Accordingly,
schools have been, and still are, required to ensure that Aa continuum of alternative
placements is available to meet the needs of students with disabilities for special
education related services.@ This continuum includes a range of alternative placements
such as Ainstruction in regular classes, special classes, special schools, home instruction,
and instruction in hospitals and institutions.@ (Committee on labor and Human
Resources, 1997, p. 11).

The required continuum of alternative placements reinforces the importance of the

individualized inquiry, not a “one size fits all” approach in determining what
placement is the LRE for each student with a disability. As such, the requirement for
a continuum of alternative placements supports the fact that determining LRE must be
done on an individual basis, considering the student in question and his or her
special needs.

State=s Obligation to Ensure LRE

IDEA 2004 maintains the presumption that students with disabilities are most
appropriately educated with their nondisabled peers, and that special classes, separate
schools, or other removal of students with disabilities from the general educational
environment occurs A...only when the nature or severity of the disability of a child is
such that education in regular classes with the use of supplementary aids and services
cannot be achieved.@ Generally, students with disabilities are educated in the same
school and in the same classes that they would normally attend if they did not have a
disability, unless the student=s IEP cannot be implemented satisfactorily in that
environment, even with the provision of supplementary aids and services.

*IDEA 2004 LRE PROVISIONS

LEAST RESTRICTIVE ENVIRONMENT.—
IN GENERAL. To the maximum extent appropriate, children with disabilities,
including children in public or private institutions or other care facilities, are
educated with children who are not disabled, and special classes, separate
schooling, or other removal of children with disabilities from the regular
educational environment occurs only when the nature or severity of the

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 disability of a child is such that education in regular classes with the use of
supplementary aids and services cannot be achieved satisfactorily.” 20 U.S.C.
§1412(a)(5)(A).

Placement-neutral Funding
If a State uses a funding mechanism that distributes State funds on the basis of the type
of setting in which a student is served, the funding mechanism must not result in
placements that violate the requirements of least restrictive environment. Further, if the
State does not have policies and procedures in place to ensure compliance, the State is
required to provide the Secretary of Education with an assurance that it will revise its
funding mechanism as soon as is feasible. Funding formulas should not be designed to
reward school districts for “numbers served” in special education.

Supplementary Aids and Services

ASupplementary aids and services,@ can be a critical part of enabling students with
disabilities to succeed within the general education setting. The IDEA provides a
definition of supplementary aids and services, as follows:

AThe term >supplementary aids and services= means aids, services, and other
supports that are provided in regular education classes or other education-related
settings to enable children with disabilities to be educated with nondisabled
children to the maximum extent appropriate.”

LRE and General Education

Many familiar components of the IEP have been modified to weave in an emphasis
upon student involvement in the general curriculum, and an entirely new IEP
component has been added. The IEP must now include

Aan explanation of the extent, if any, to which the child will not participate with
nondisabled children in the regular class and in the activities described in clause
(iii)@ [extracurricular and nonacademic activities].

Prior to the enactment of EHA in 1975, the opportunity and indication to educate
students with disabilities was often in separate programs and schools away from
students without disabilities. IDEA 2004 contains a presumption that students with
disabilities are to be educated in general classes. Therefore, the legislation requires that
the IEP include an explanation of the extent, if any, to which a student with a disability
will not participate with nondisabled student in the general class and in the general
education curriculum, including extracurricular and nonacademic activities.

Every decision made for a student with a disability must be made on the basis of what
that individual student needs. Nonetheless, when the decision is made to educate the
student separately, an explanation of that decision will need, at a minimum, to be stated

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as part of the student=s IEP.
Permissive Use of Funds and Incidental Benefit
When the students with disabilities are educated in the general education classroom,
the possibility exists that a nondisabled student might benefit from the special
education and related services being provided to a student with a disability. A school
district may now use Part B funds to pay for special education and related services and
supplementary aids and services provided in a general class or other education-related
setting to a student with a disability in accordance with the IEP of the student, even if
one or more students without disabilities benefit from the services. This effectively
removes one of the roadblocks in the way of educating students with disabilities in the
general education classroom.

Participation in Assessments
In keeping with IDEA’s intent to strengthen student involvement in general education,
the legislation requires that students with disabilities be included in State and district-
wide assessment programs. Modifications may be made to facilitate students=
participation. For those students with disabilities whose participation is not
appropriate, States must develop alternate ways of assessing their progress.

Additionally, each student=s IEP must now include a statement of how the
administration of State or district-wide assessments will be modified for the student so
that he or she can participate. If the IEP Team determines that the student cannot
participate in such assessments, then the IEP must include a statement of (a) why the
assessment is not appropriate for the student, and (b) how the student will be assessed.

Performance Goals and Indicators

IDEA also requires States to establish performance goals for students with disabilities
and to develop indicators to judge the students’ progress. Interestingly, the
performance goals must be Aconsistent, to the maximum extent appropriate, with other
goals and standards for students established by the State.@ Indicators must address, at
the very least, the performance of students with disabilities on assessments, drop-out
rates, and graduation rates,

While not on LRE issue per se, the principle of LRE runs beneath this new requirement
of law. Again, the law would place student with disabilities as much as possible
alongside their peers without disabilities—in this case, we need to expect things of
them, establish goals for them, and these need to be consistent, to the maximum extent
appropriate, with what is expected of other students.

Early Intervening
IDEA allows school districts to use up to 15 percent of their total federal IDEA funding
to provide services to students before they are identified as having a disability. This will
allow districts to use their funds with flexibility and creativity to address difficulties
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young students may have, prevent a disability from developing, reduce the severity of
any potential disability, or identify students earlier as needing to undergo the
evaluation process of IDEA.

School districts can choose whether or not to used 15 percent for early intervening.
Before the 15 percent can be used, all eligible students with disabilities must receive
FAPE/LRE; if funds are still available, up to 15 percent can be used for early
intervening. Districts can use early intervening funds to support professional
development activities, educational supports and services, positive behavioral supports
and evaluations, or other activities to help children succeed in the general education
curriculum.

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 LEAST RESTRICTIVE ENVIRONMENT
(LRE)
BAKER’S DOZEN
1. Full inclusion is not a legal mandate; LRE regulations are the standard for
determining where services will be provided.

2. Placement decisions must be made on an individual basis by the IEP team.

3. Each school will have alternative placements available in order to ensure that each
student with a disability receives an education that is appropriate to his or her
individual needs.

4. LRE also applies to all preschool students (3- to 5-year-olds) with disabilities who are
entitled to receive FAPE. Public schools that provide preschool programs for non-
disabled preschool students must meet LRE requirements. Schools that do not
operate programs for non-disabled preschool students are not required to initiate
such programs solely to satisfy the requirements regarding placement in the LRE.

5. The school must ensure that each student=s placement is in the LRE where the
unique needs of that student can be best met, based upon the student=s IEP.

6. School districts may use up to 15 percent of their total federal funds to provide
services to students before they are identified as having a disability.

7. When a student with a disability is so disruptive in a general classroom that the

education of other students is significantly impaired, the needs of the student with
a disability cannot be met in that environment. Therefore, regular placement
would not be appropriate to his or her needs.

8. When placing a student with a disability in an alternate setting, a factor to be

considered is the need to place the student as close to home as possible—in the
neighborhood school.

9. Students with disabilities must also be provided nonacademic services in as

integrated a setting as possible.

10. Sometimes the general education classroom is the most restrictive environment.

11. Sometimes social benefit is more important than academic benefit.

12. LRE does not always apply to Extended School Year services (ESY).

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13. The general education curriculum is not a “place”; it can be taught in other settings.

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 STANDARDS FOR DETERMINING THE
LEAST RESTRICTIVE ENVIRONMENT
Standard—Services are provided in the appropriate educational environment.

1. The student=s educational placement is based upon the unique needs of the student
and made by the IEP team.

2. The parents receive notice and are involved in the placement decision.

3. To the maximum extent appropriate, students with disabilities are educated with
students who do not have disabilities.

4. A full continuum of placement options is made available to each eligible student with
a disability.

5. The student is placed in the school he or she would attend if not disabled, unless the
IEP requires otherwise.

6. The student=s placement is determined at least annually.

7. The use of supplementary aids and services should always be considered to get the
student in the general education classroom—educational accommodations and
modifications.

PLACEMENT IS BASED ON THE IEP

Standard—The IEP team should ensure that the placement decision is determined
individually and is based on unique needs outlined in the IEP.

Avoid decision-making that is influenced by the following:

C Types of established programs

C Availability of space and qualified staff
C Type of disability
C Severity of disability
C Budget factors
C Availability of related services staff
C A school mandate for full inclusion

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Consider the following:

C Present levels of academic achievement and functional performance

C The IEP annual goals
C Unique needs of the student
C Health and safety factors
C Impact of placement on other students
C Parent input

FULL CONTINUUM OF SERVICE

OPTIONS
Standard—Each school shall offer a full continuum of service options starting with
the general education classroom.

General education should be the first environment to consider before moving to a more
restrictive placement.

Avoid decision-making that is influenced by the following:

C Budgetary factors
C Severity of the disability
C Past school programs
C Administrative conveniences
C Teacher preferences

Consider the following:

C Justification of service option starting with the general education classroom.

C A discussion of supplementary aids and services that will assist the student
in staying within the least restrictive environment and having access to the
general education curriculum.
C If a more restrictive placement is suggested, the services should be at the
neighborhood school.
C Provide training for general education teachers lacking skills in working
with students with disabilities.

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 CONTINUUM OF SERVICES AND
LEAST RESTRICTIVE PLACEMENT
Students with disabilities may be in a variety of program options. Below are some of
the program options for serving students with disabilities:

Full Time General Classroom Least Restrictive

General Classroom with Accommodations

General Classroom and Resource Room Services

Part-time Resource Room with Limited General

Class Time

Full Time, Separate Special Class General School Setting

One-on-one Paraeducator

Special Day School In A Separate Facility

Homebound with Support

Residential Program in a Separate Facility

Most Restrictive

Note: As we move from restrictive settings to more general class

placements, researchers have reported positive gains in the overall
school performance. Better attendance, positive attitudes, peer
relationships, and higher achievement were some of the benefits.

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 ACCOMMODATIONS AND MODIFICATIONS

Examples of Accommodations that assist in keeping a student with a disability in the

general education classroom

A. Examinations
___ Reduce the number of exams. ___ Provide open-book exams.

___ Allow more time for exams. ___ Reduce the length of exams.

___ Use more objective items. ___ Provide options to give same exam orally.

___ Student provides answers on tape. ___ Reduce the reading level of exams.

___ Write down exam items for student. ___ Read exam items to student.

___ Give take-home exams. ___ Substitute assignments for exams.

___ Tape record answers for exams and quizzes. ___ Paraphrase questions.

___ Peer helper ___ Use paraeducators to read tests

B. Classroom Assignments
___ Repeat instructions/provide more detailed
___ Provide course outline.
directions/paraphrase.

___Use individual learning packages with ___ Use progress charts, informal individual
clearly stated objectives. feedback interviews.

___ Give instructions through several channels ___ Provide materials that are
(written, oral). programmed/self-checking.

___ Brief student on key points before starting

___ Cooperative learning
an assignment.

___ Use paraeducators to assist student. ___ Other (specify) _______________________

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C. Adapt the assignments.

___ Require fewer correct responses in order to

___ Allow more time for assignments.
receive a specific grade.

___ Reduce the length of assignments. ___ Reduce the reading level of the assignment.

___ Underline/outline major points in the ___ Change the format of the instructional
assignment. materials (fewer problems).
___ Make a bright construction paper border for
___ Use a highlighter to identify key words, the student to place around reading
phrases, or sentences for the student to read. materials in order to maintain his/her
attention to the task.
___ Rearrange problems on the page (e.g., if
___ Use graph paper to math problems,
crowded, create more space between the
handwriting, etc.
problems).

Other (specify) ____________________________

D. Use alternative supplementary materials to the text (workbook).

___ Use differently formatted materials to teach ___ Break the assignment into a series of smaller
the same content. assignments.

___ Use handouts, transparencies, maps, and/or ___ Allow classroom peer to make carbon copies
charts to emphasize major points. of notes for the student.

___ Allow teacher aide/volunteer to take notes ___ Use individualized learning centers,
for the student. contracts, or learning packages.

___ Use adaptive equipment/facilities (jigs,

___ Use visual/audio materials.
ramps, etc.).

___ Share remediation or reinforcement

___ Other (specify) _________________________
materials from other teachers.

___ Provide study aids (hints, cues, spelling lists,

calculators).

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E. Use alternatives to written/reading assignments.
___ Performance/“hands-on” activities, physical
___ Use high interest/motivating materials
assignments (puzzle, games, tapes,
along with drill materials.
manipulatives)

F. Alternatives in Presenting Content

___ Make cassette recording of the lecture for

___ Provide class outline before lecture.
individual feedback.

___ Provide laboratory “hands-on” learning by ___ Use programmed learning, self-checking
discovery experience. materials.

___ Oral presentations, reports, projects, role

___ Use independent study.
play, etc.

___ Other (specify) ________________________ ___ Speak at a slower pace.

G. Organizational Skills

___ Weekly grade checks ___ Use assignment notebook.

___ Provide set of complete notes. ___ Strategic tutoring, study hall

___ Provide structured time for organization of

___ Other (specify) ________________________
materials.

___ Use a school/home communication process.

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 LRE JUSTIFICATION
STATEMENTS
AND SAMPLE CASES

The following are areas where justification can be used to serve a student with a
disability in a more or less restrictive environment. An example justification statement
is included for each area.

1. Nature and Severity of the Disability

Example: Jaime is an eighth grade female student with severe health care problems.
Jaime requires a respirator for breathing and needs to be catheterized several
times during the day. Jamie has requested that any health care procedures be
conducted in a private location.

2. Diverse Learning Style

Example: Sara learns best using a kinesthetic or tactile approach. The
visual/auditory approach used in the general classroom has not worked in the
past. A resource room setting would be more appropriate for using a tactile
approach, with manipulatives for all academic areas.

3. Need for Specially Designed Materials, Supplies, or Equipment that would

Prohibit Access to the Curriculum and Goals of the General Classroom
Example: Mike is a fourth grade student who is visually impaired and needs access
to a Braille writer. Mike requires a setting with few distractions to complete
written language assignments and a place that won=t interfere with the learning of
other students. The IEP team agrees that the resource room study area would
provide such a setting, where a Braille writer could be used and Mike would not
be distracted by other students.

4. Significant Modification to the General Curriculum that would have an Adverse

Effect on the Educational Program and Learning Environment of Other Students
Example: Billy is a sixth grade student functioning at a readiness level in all
academic areas. The modifications to the general education curriculum would be
so great as to make it unrecognizable. It is, therefore, the recommendation of the
IEP team for Billy to receive academic instruction in a self-contained setting where
one-on-one instruction and appropriate materials are available at his present
academic level.

5. Extent to which the Student is Distractible

Example: Jodi is a sixth grade student with a history of distractibility and off-task

14
 behavior. During her fifth grade year, several attempts were made to include her
in the general education reading groups. Behavior management plans and
reinforcement techniques had little effect on her distracting behaviors. It is the
recommendation of the IEP team that Jodi complete her reading IEP objectives in a
resource room setting to reduce distractions for other students and increase Jodi=s
ability to master reading.

6. Inability to Engage Appropriately with Other Students

Example: Jason exhibits inappropriate social skills in his classrooms. He often uses
profanity and inappropriately touches other students. The IEP team recommends
that Jason=s IEP goal for social skills be implemented in a resource room setting
with one-on-one and small group role playing until Jason has demonstrated the
ability to interact appropriately in a classroom setting.

7. Potentially Harmful Effects on the Student or on the Quality of Services that the
Student Needs
Example: John is a tenth grade student experiencing difficulties in math. His skills
are at a seventh grade level. John is extremely sensitive and values his time with
non-disabled peers. It is the recommendation by the IEP team that John receive help
with his math IEP goals in the general education class with the supplementary aids
and services listed on the IEP. The social factors of general education placement
outweigh the benefits of moving him to a resource room setting.

8. Significant Disruptions that would occur in the General Classroom having a

Negative Effect on the Education of Other Students
Example: Tim is a third grade student who has frequent grand mal epileptic
seizures (4-5 times each day). The violent nature of the seizures is disrupting for
other students, embarrassing for Tim, and are a safety risk because of the many
physical obstacles in the classroom. It is the recommendation of the IEP team that
Tim receive his IEP academic instruction in a setting that is safer and reduces
disruptions to others.

9. Degree to which the Student Would Not Benefit from Services Provided in the
General Classroom
Example: Margaret is a fourth grade student who is recovering from traumatic brain
injury and requires homebound instruction and nursing services. At this point, she
is unable to benefit from the general education program because of her fragile
medical condition. It is recommended she remain homebound until she is
physically and psychologically able to succeed in a general classroom environment.

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16
 LRE QUESTIONS AND ANSWERS
1. Q. What are some factors for determining the location of services for students with
disabilities?

A. The following are some of the factors:

• Present levels of academic achievement and functional performance
• Goals on the IEP
• Severity of disability
• Full continuum of options
• Health and safety factors
• Access to general curriculum

2. Q. Why should the location of services be determined individually by the IEP team and
based upon the student=s IEP?

A. Each student is has unique needs.

3. Q. What elements of the IEP could influence the location of services?

A. These items might come into play:

• Present levels of academic and functional performance
• Annual goals
• Amount of services and types of services
• Modifications needed
• Health and safety factors
• Unique needs
• Access to general curriculum

4. Q. Should the school offer a full continuum of placement decision?

A. Yes, a full continuum offering is a legal requirement.

5. Q. How do supplementary aids and services influence the location of services?

A. Supplementary aids and services must be considered and attempted before

moving to a more restrictive environment. They enable the student to
participate in the general curriculum.

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6. Q. What is the relationship between inclusion and the LRE?

A. Inclusion refers to a placement option on the continuum. Only offering a full

inclusion model is contrary to federal regulations and violates the full
continuum of options.
7. Q. How often does the IEP team review the location of services? Opportunities to
participate with students without disabilities?

A. At least annually.

8. Q. Should students placed in a separate facility be given the general classroom and
curriculum?

A. Yes, integration should occur whenever appropriate.

9. Q. Who determines the location of services: IEP team or school administration office?

A. IEP team, including the parent(s).

10. Q. How is the amount of time a student spends in special education and related services
determined?

A. The following are considered:

• Present levels of academic achievement and functional performance
• Goals on the IEP
• Severity of disability
• Full continuum of options
• Health and safety factors
• Impact on other students

11. Q. What non-academic activities should students with disabilities participate in with
other students?

A. These are some possibilities:

• Recess
• Lunch
• Transportation
• PE
• Assemblies
• Drama/Music
• Field trips

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12. Q. How are related services for special education students delivered?

A. Location of services should be based on the IEP and the unique needs of the
students. Related services should be delivered in or as close to the general
education environment as possible.

13. Q. When is location of services of a student with a disability determined?

A. After the IEP is developed and at least annually.

14. Q. Are services for students in special education located to the maximum extent possible
in the general classroom environment?

A. Yes, with the use of supplementary aids and services.

15. Q. Does least restrictive environment apply to extended school year services?

A. LRE is always determined on a case-by-case basis, including ESY. LRE is not

always possible during ESY.

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 LEARNING OPPORTUNITIES
IN THE GENERAL CLASSROOM

The Benefits of Inclusive Education for All Students

• The best preparation for adult life in a diverse society is education in a

diverse classroom.

Inclusive classrooms can build understanding around human differences.

Are our classrooms artificially homogeneous?

Are our students socially inept at being with people who have some type
of difference?

Are our students growing up with a narrow definition of Awho is okay?@

• Inclusive schools can assist in the development of future citizens who value
people—regardless of learning, physical, or emotional characteristics.

Benefits from learning together:

Friendships. Friendships between students with disabilities and typical students are
most likely to develop and be maintained when students are members of the same class
and have opportunities to interact with one another during academic, extracurricular,
and social activities. Friendships between students are based on knowledge of one
another=s strengths as well as one=s vulnerabilities.

Academic Skills. For too long, students with disabilities have been denied exposure to
interesting and demanding coursework. Should we really be surprised when students
with disabilities surpass our academic expectations when they enroll in general
education classes? Effective educational strategies for typical students—outcomes-
based instruction, process reading and writing, hands-on learning, prescriptive
teaching, and cooperative learning—are also effective for students with disabilities.
Perhaps it is even more critical for students with disabilities to incorporate learning of
reading and math skills within meaningful contexts than to isolate those skills through
rote or repetitive practice.

Learning to Interact in Cooperative Groups. When teachers structure classrooms for

cooperation and interdependence, all students are seen as having something to
contribute and no one has to Alose@ so another can Awin.@ Cooperative learning activities
more nearly represent the challenges that people face working with one another in

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adulthood. We all know that the Asmartest@ of our colleagues are not necessarily the
most successful. People who have Asocial skills@ and who can work as team members
have the most flexibility in the kind of job they get and are more likely to succeed in the
social aspects of the work world.

Organizational and Process Skills. Every activity, whether it is designed for students
working independently, in small groups, or in a large group, has process components
such as initiating, preparing materials, socializing, communicating, and terminating.
The ability to carry out those tasks independently or in collaboration with others has
many applications to home, work, leisure, and community living activities.

Special Interests. When students with disabilities are placed in separate classes, their
curriculum is sometimes less varied than when they are members of a general class.
Opportunities to participate in science, social studies, fine arts, and applied arts (home
economics and industrial arts) can lead to the development of lifelong leisure and
vocational interests for students with disabilities.

Communication, Movement, and Social Skills. A general education class in which

communication skills are recognized as important for all students will provide many
opportunities for students with disabilities to learn these skills as well. Physical
Education class is an obvious place for students to develop lifetime fitness habits, learn
how to play individual and group games and sports, and at the same time, work on
more basic motor skills such as balance, agility, motor planning, and so forth. When
students= IEPs call for professionals to provide those services to students before or after
school, the learning opportunities in the general class are not compromised.

Functional Life Skills. It was once thought that students with disabilities should spend
most of their school day out in the community learning shopping, street crossing, work,
and other Afunctional skills@ very early in life. For all students, there are many
opportunities to learn these skills within the general class or other school environments
without having to remove them from opportunities to interact with their age peers.
Arrival and dismissal time, snack and lunch time, physical education and
extracurricular activities, and classroom and other school jobs all provide opportunities
for students to learn Alife skills.@ When students get into high school, after-school and
summer jobs, co-op work experiences, and summer camp, these experiences can
provide them with the opportunity to learn and practice skills together with their peers.

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 12 PRINCIPLES FOR SUCCESSFUL
INCLUSIVE SCHOOLS
Inclusive schools have the following characteristics:

1. Vision
Inclusive schools begin with a philosophy and vision that all students belong and
can learn in the mainstream of school and community life. Diversity is valued and
celebrated. It is believed that this diversity strengthens the class and offers all of
its members greater opportunities for learning.

2. Leadership
The building principal plays an active, positive, and supportive leadership role in
the development and implementation of inclusive schooling practice and
strategies, meaningfully involving the entire school staff in the planning and
implementation.

3. High Standards/High Quality Staff

All students within an inclusive school, including those with disabilities, work
toward similar educational outcomes based on high standards; what will differ is
the level at which these outcomes are achieved, the degree of emphasis placed on
them, and the content and manner in which these outcomes are achieved.
Strategies for pursuing excellence without sacrificing equity are pursued.

4. Sense of Community
Within inclusive schools, everyone belongs, is accepted, and is supported by his or
her peers and other members of the school community while educational needs
are being met. This sense of community helps to foster self-esteem, pride in
individual accomplishments, mutual respect, and a sense of belonging and self-
worth among all students.

5. Array of Services
An array of services is provided within an inclusive school that are coordinated
across and among educational and community agency personnel.

6. Flexible Learning Environments to Meet Student Needs

Inclusive schools utilize flexible groupings, authentic and meaningful learning
experiences, and developmentally appropriate curricula accessible to all students.
Even though full inclusion is a goal, a continuum of educational options is present.

7. Research-based Strategies
Research-based practices are implemented to support inclusive schools for all

22
 students—cooperative learning, curriculum adaptations, peer-mediated learning
approaches, direct instruction, reciprocal teaching, social skills training, study
skills training, mastery learning, etc.

8. Collaboration and Cooperation

Inclusive schools foster natural support networks across students and staff.
Strategies are implemented such as peer tutoring, buddy systems, circles of
friends, cooperative learning, and other ways of connecting students in natural,
ongoing, and supportive relationships. In addition, all school personnel work
together and support each other through professional collaboration, team teaching,
co-teaching, teacher and student assistance teams, and other collaborative
arrangements.

9. Changing Roles and Responsibilities

Transformation within inclusive schools will result in changing roles and
responsibilities. Teachers become facilitators of learningCthey provide support
and work together in collaborative arrangements. School psychologists work
more with teachers, parents, and students and spend less time testing students.
Building-based problem-solving teams work together to solve individual student
problems.

10. New Forms of Accountability

New forms of accountability and assessment are developed within inclusive
schools to assess on-going student progress toward identified educational goals.

11. Access
Technology and necessary physical modifications are made to assure full access
and participation of all students.

12. Partnerships with Parents

Within inclusive schools, parents are embraced as equal partners and are
involved in the planning and implementation of inclusive school strategies.

23
 LRE LETTER FROM OSEP

UNITED STATES DEPARTMENT OF EDUCATION

OFFICE OF SPECIAL EDUCATION AND REHABILITATIVE SERVICES

November 23, 1994

Contact Person
Name : Rhonda Weiss
Telephone : (202) 205-5503

OSEP—95-9

TO : Chief State School Officers

FROM : Judith E. Heumann

Assistant Secretary
Office of Special Education and Rehabilitation Services

: Thomas Hehir
Director
Office of Special Education Programs

SUBJECT : Questions and Answers on the Least Restrictive Environment

Requirements of the Individuals with Disabilities Education Act

Introduction
The least restrictive environment (LRE) requirements of Part B of the Individuals with
disabilities Education Act (IDEA) have been included in the law in their present form
since 1975. However, these requirements continue to generate complex and interesting
questions from the field. In particular, questions have been raised about the
relationship of IDEA=s LRE requirements to Ainclusion.@ Consistent with our attempt to

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Page 2—Chief State Schools Officers

provide you and your staff with as much current information as possible and to ensure
that the applicable requirements of IDEA that govern the education of students with
disabilities are accurately understood and properly implemented, guidance on IDEA=s
LRE requirements is being provided in a question and answer format. In most cases,
this question and answer document consolidates the prior policy guidance that the
Department has provided in this area. We encourage you to disseminate this document
to a wide range of individuals and organizations throughout your State. Any further
questions should be directed to the contact person named at the beginning of this
document or to Dr. JoLeta Reynolds at (202) 205-5507.

We hope that the above questions and answers are of assistance to you and your staff as
you carry out your responsibilities to ensure that disabled students are provided a free
appropriate public education in the least restrictive environment.

Attachment

cc: State Directors of Special Education

RSA Regional Commissioners
Regional Resource Centers
Federal Resource Center
Special Interest Groups
Parent Training Centers
Independent Living Centers
Protection and Advocacy Agencies

25
Page 3—Chief State School Officers

QUESTIONS AND ANSWERS

1. What are the Least Restrictive Environment (LRE) requirements of Part B

of IDEA?

ANSWER:

In order to be eligible to receive funds under Part B of IDEA (IDEA), States must,
among other conditions, assure that a free appropriate public education (FAPE) is made
available to all students with specified disabilities in mandated age ranges. The term
AFAPE@ is defined as including, among other elements, special education and related
services, provided at no cost to parents, in conformity with an individualized education
program (IEP). The IEP, which contains the statement of the special education and
related services to meet each disabled student=s unique needs, forms the basis for the
entitlement of each student with a disability to an individualized and appropriate
education. IDEA further provides that States must have in place procedures assuring
that, Ato the maximum extent appropriate, children with disabilities, including children
in public or private institutions or other care facilities, are educated with children who
are not disabled, and that special classes, separate schooling, or other removal of
children with disabilities from the regular educational environment occurs only when
the nature or severity of the disability is such that education in regular classes with the
use of supplementary aids and supports, is found in the statute at 20 U.S.C. '1412 (5) (B)
and is implemented by the Department=s regulations at 34 CFR ''300.550-300.556.
Copies of the relevant statutory and regulatory provisions are attached to this question
and answer document.

2. Does IDEA define the term Ainclusion?@

ANSWER:

IDEA does not use the term Ainclusion@; consequently, the Department of Education has
not defined that term. However, IDEA does require school districts to place students in
the LRE. LRE means that, to the maximum extent appropriate, school districts must
educate students with disabilities in the regular classroom with appropriate aids and
supports, referred to as Asupplementary aids and services,@ along with their
nondisabled peers in the school they would attend if not disabled, unless a student=s
IEP requires some other arrangement. This requires an individualized inquiry into the
unique educational needs of each disabled student in determining the possible range of
aids and supports that are needed to facilitate the student=s placement in the regular
educational environment before a more restrictive placement is considered.

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Page 4—Chief State School Officers

In implementing IDEA=s LRE provisions, the regular classroom in the school the student
would attend if not disabled is the first placement option considered for each disabled
student before a more restrictive placement is considered. If the IEP of a student with a
disability can be implemented satisfactorily with the provision of supplementary aids
and services in the regular classroom in the school the student would attend if not
disabled, that placement is the LRE placement for that student. However, if the
student=s IEP cannot be implemented satisfactorily in that environment, even with the
provision of supplementary aids and services, the regular classroom in the school the
student would attend if not disabled is not the LRE placement for that student.

3. How can IDEA requirements be implemented to ensure that consideration is

given to whether a student with a disability can be educated in the regular
educational environment with the use of supplementary aids and services
before a more restrictive placement is considered?

ANSWER:

The relationship of IDEA=s LRE requirements to the IEP process is key, since under
IDEA, the student=s IEP forms the basis for the student=s placement decision. IDEA
requires that the IEP of each disabled student must contain, among other components, a
Astatement of the specific special education and related services to be provided to the
child and the extent that the child will be able to participate in regular educational
programs.@ 34 CFR '300.346(a) (3). At the student=s IEP meeting, the extent that the
student will be able to participate in regular educational programs is one of the matters
to be addressed by all of the participants on the student=s IEP team before the student=s
IEP is finalized. In addressing this issue, the team must consider the range of
supplementary aids and services, in light of the student=s abilities an needs, that would
facilitate the student=s placement in the regular educational environment. As discussed
in question 4 below, these supplementary aids and services must be described in the
student=s IEP. Appendix C to 34 CFR Part 300 (question 48)

4. Does IDEA define the term Asupplementary aids and services?@

ANSWER:

No. However, in determining the educational placement for each disabled student, the
first line of inquiry is whether the student=s IEP can be implemented satisfactorily in the
regular educational environment with the provision of supplementary aids and
services. This requirement has been in effect since 1975 when the Education of the
Handicapped Act (EHA), the predecessor to the IDEA, originally became law.

27
Page 5—Chief State School Officers

Consistent with this requirement, any modifications to the regular educational

program, i.e., supplementary aids and services that the IEP team determines that the
student needs to facilitate the student=s placement in the regular educational
environment must be described in the student=s IEP and must be provided to the
student. Appendix C to 34 CFR Part 300 (question 48). While determinations of what
supplementary aids and services are appropriate for a particular student must be made
on an individual basis, some supplementary aids and services that educators have used
successfully include modifications to the regular class curriculum, assistance of an
itinerant teacher with special education training, special education training for the
regular teacher, use of computer-assisted devices, provision of notetakers, and use of a
resource room, to mention a few.

5. How frequently must a disabled student=s placement be reviewed under IDEA?

ANSWER:

Under IDEA, each disabled student=s placement must be determined at least annually,
must be based on the student=s IEP, and must be in the school or facility as close as
possible to the student=s home. Under IDEA, each student=s placement decision must be
made by a group of persons, including persons knowledgeable about the student, the
meaning of evaluation data, and the placement options. While the student=s IEP forms
the basis for the placement decision, a student=s IEP cannot be revised without holding
another IEP meeting, which the school district is responsible for convening. If either the
student=s parent or teacher or other service provider wishes to initiate review of the
student=s IEP at a point during the school year that does not correspond with the annual
IEP review, that individual can request the school district to hold another IEP meeting.
If the IEP is revised, following the meeting, the placement team would need to review
the student=s IEP to determine if a change in placement would be needed to reflect the
revised IEP.

6. If a determination is made that a student with a disability can be educated in

regular classes with the provision of supplementary aids and services, can
school districts refuse to implement the student=s IEP in a specific class because
of the unwillingness of a particular teacher to educate that student in his or her
classroom or the teacher=s assertion that he or she lacks adequate training to
educate that student effectively?

ANSWER:

Under IDEA, lack of adequate personnel or resources does not relieve school districts of
their obligations to make FAPE available to each disabled student in the least restrictive

28
29
Page 6—Chief State School Officers

educational setting in which his or her IEP can be implemented. Exclusion of a student
from an appropriate placement based solely on the student=s disability is prohibited by
Section 504 of the Rehabilitation Act of 1973. However, placement in a particular
regular class based on the qualifications of a particular teacher is permissible under
both statutes. The public agency has an affirmative responsibility to ensure the supply
of sufficient numbers of teachers who are qualified, with needed aids and supports, to
provide services to students with disabilities in regular educational environments, and
to provide necessary training and support services to students with disabilities. The
innovative approaches to address issues surrounding resource availability. Factors that
could be examined include cooperative learning, teaching styles, physical arrangements
of the classroom, curriculum modifications, peer mediated supports, and equipment, to
mention a few.

7. Once a determination is made that a disabled student cannot be educated

satisfactorily in the regular educational environment, even with the provision
of supplementary aids and services, what considerations govern placement?

ANSWER:

IDEA does not require that every student with a disability be placed in the regular
classroom regardless of individual abilities and needs. This recognition that regular
class placement may not be appropriate for every disabled student is reflected in the
requirement that school districts make available a range of placement options, known as
a continuum of alternative placements, to meet the unique educational needs of students
with disabilities. This requirement for the continuum reinforces the importance of the
individualized inquiry, not a Aone size fits all@ approach, in determining what placement
is the LRE for each student with a disability. The options on this continuum must
include Athe alternative placements listed in the definition of special education under
'300.17 (instruction in regular classes, special classes, special schools, home instruction,
and instruction in hospitals and institutions).@ 34 CFR '300.551 (b) (1). These options
must be available to the extent necessary to implement the IEP of each disabled student.
The placement team must select the option on the continuum in which it determines that
the student=s IEP can be implemented. Any alternative placement selected for the
student outside of the regular educational environment must maximize opportunities for
the student to interact with nondisabled peers, to the extent appropriate to the needs of
the student.

It also should be noted that under IDEA, parents must be given written prior notice that
meets the requirements of '300.505 a reasonable time before a public agency
implements a proposal or refusal to initiate or change the identification, evaluation, or
educational placement of the child, or the provision of FAPE to the child. Consistent

30
Page 7—Chief State School Officers

with this notice requirement, parents of disabled students must be informed that the
public agency is required to have a full continuum of placement options, as well as
about the placement options that were actually considered and the reasons why those
options were rejected. 34 CFR ''300.504 - 300.505; Notice of Policy Guidance on Deaf
Students Education Services, published 57 Fed. Reg. 49274 (Oct. 30, 1992).

8. What are the permissible factors that must be considered in determining what
placement is appropriate for a student with a disability? Which factors, if any,
may not be considered?

ANSWER:

The overriding rule in placement is that each student=s placement must be individually-
determined based on the individual student=s abilities and needs. As noted previously,
it is the program of specialized instruction and related services contained in the
student=s IEP that forms the basis for the placement decision. In determining if a
placement is appropriate under IDEA, the following factors are relevant:

$ the educational benefits available to the disabled student in a traditional

classroom, supplemented with appropriate aids and services, in
comparison to the educational benefits to the disabled student from a
special education classroom;

$ the non-academic benefits to the disabled student from interacting with

nondisabled students; and

$ the degree of disruption of the education of other students, resulting in

the inability to meet the unique needs of the disabled student.

However, school districts may not make placements based solely on factors such as
the following:

$ category of disability;
$ severity of disability;
$ configuration of delivery system;
$ availability of educational or related services;
$ availability of space; or
$ administrative convenience.

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Page 8—Chief State School Officers

9. To what extent is it permissible under IDEA for school districts to consider the
impact of a regular classroom placement on those students in the classroom
who do not have a disability?

ANSWER:

IDEA regulations provide that in selecting the LRE, consideration is given to any
potential harmful effect on the student or on the quality of services that the student
needs. If a student with a disability has behavioral problems that are so disruptive in a
regular classroom that the education of other students is significantly impaired, the
needs of the disabled student cannot be met in that environment. However, before
making such a determination, school districts must ensure that consideration has been
given to the full range of supplementary aids and services that could be provided to the
student in the regular educational environment to accommodate the unique needs of
the disabled student. If the placement team determined that even with the provision of
supplementary aids and services, that student=s IEP could not be implemented
satisfactorily in the regular educational environment, that placement would not be the
LRE placement for that student at that particular time, because her or his unique
educational needs could not be met in that setting.

While IDEA regulations permit consideration of the effect of the placement of a

disabled student in a regular classroom on other students in that classroom, selected
findings from Federally-funded research projects indicate that:
(1) achievement test performance among students who were classmates of students
with significant disabilities were equivalent or better than a comparison group
(Salisbury, 1993); (2) students developed more positive attitudes towards peers with
disabilities (CRI, 1992); and (3) self concept, social skills, and problem solving skills
improved for all students in inclusive settings (Peck, Donaldson, & Pezzoli, 1990,
Salisbury and Palombaro, 1993). 1

1
California Research Institute. (1992). Educational practices in integrated settings
associated with positive student outcomes. Strategies on the Inclusion on the Integration of
Students with Severe Disabilities, 3, (3), 7, 10. San Francisco State University. San Francisco,
California.

Peck C.A., Donaldson, J., & Pezzoli, M. (1990). Some benefits non-handicapped adolescents
perceive for themselves from their social relationships with peers who have severe disabilities.
Journal of the Association for Persons with Severe Handicaps, 15 (4), 241-249.

Salisbury C.L. (1993, November). Effects of inclusive schooling practices: Costs to kids and
organization. Presentation at the 1993 Conference of the Association for Persons with Severe
Handicaps, Chicago, Illinois.

32
Page 9—Chief State School Officers

10. Are there any resources that the Department is aware of that have proven
helpful to educators and paraprofessionals in implementing inclusive
educational programs?

ANSWER:

The department has supported a variety of professional development and training

projects (e.g., preservices, inservices, school restructuring projects) that address the
needs of students with disabilities in inclusive educational programs. In addition, the
Department has financed Statewide Systems Change projects which support changing
the setting for delivery of educational services from separate settings to general
education settings in the school that the student would attend if not disabled.
Numerous materials and products have been developed by these projects which have
focused on strategies that support collaborative planning and problem solving, site
based control, curriculum and technological adaptations and modifications, parent and
family involvement, and the creative use of human and fiscal resources. These projects
have underscored the importance of timely access to resources (e.g., people, materials,
information, technology) when they are needed.

Educators can obtain further information regarding these programs by contacting:

National Information Center for Children and Youth with Disabilities

P.O. Box 1492
Washington, D.C. 20013-1492
Telephone: 1-800-695-0285
(Deaf and hearing-impaired individuals may also call this number for TDD)

Consortium on Inclusive Schooling Practices

Allegheny Singer Research Institute
320 E. North Avenue
Pittsburgh, PA. 15212
Telephone: (412) 359-1600
(Deaf and hearing-impaired individuals may also call the Pennsylvania Relay
Service number at 1-(800) -654-5984)

Salisbury, C.L., & Palombaro, M. M. (Eds.) (1993). ANo problem.@ Working things out our way.
State University of New York-Binghamton, Binghamton, New York.

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Page 10—Chief State School Officers

California Research Institute on the Integration of Students with Severe

Disabilities
San Francisco State University
1415 Tapia Drive
San Francisco, California 94132
Telephone: (415) 338-7847-48
(Deaf and hearing-impaired individuals may also call the California Relay Service
number at (800) 735-2922)

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