EDUCATION FOR ALL

All written submissions in response to the Public Discussion Document should be sent to:

The Secretariat
NCSNET/NCESS
Education Policy Unit,
University of the Western Cape
Private Bag x17, Belville, 7535

Phone: 021-9593344
Fax: 021-9592389
E-mail: ncsnet@epu.uwc.ac.za

Please note that the deadline for all written submissions to the NCSNET/NCESS is 3 October 1997

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SUMMARY OF PUBLIC DISCUSSION DOCUMENT

1. INTRODUCTION

1.1 How to Use this Document

 1.1. 1 Purpose of this Document

 The purpose of this document is to provide an overview of the preliminary recommendations made by the National Commission on Special Needs in Education and Training (NCSNET) and the National Committee for Education Support Services (NCESS) on the basis of their initial investigations from January - July 1997. Details relating to all aspects of this document can be found in the full Public Discussion Document of the NCSNET/NCESS, released on 4 August 1997.

 Please note that this is a Public Discussion Document and not a report to the Minister. This means that we expect much debate around the many issues raised, and further input into the development of recommendations that will be presented to the Minister in November 1997.

 1.1.2 How you can respond to this document

 We would welcome any written submissions as well as submissions in person. Written submissions should be submitted directly to the Secretariat. Submissions made in person may be made through the eleven Public Hearings to be held at the end of August and during September 1997. When making submissions, please refer to specific parts of the Summary or full Public Discussion Document where possible. This will help us to link it directly to the issues in the Document concerned.

 Please note that the deadline for all written submissions to the NCSNET/NCESS is 3 October 1997.

1.1.3 Public Hearings

Eleven Public Hearings will be held around the country. These will be held in the following towns, on the dates identified.

A team of NCSNET/NCESS members (including the chairperson) will preside at all Public Hearings. National or local organisations and institutions will be invited to make submissions. Approximately 15 minutes will be given for each submission, with a further short time for questions from the NCSNET/NCESS panel. Where members of the public who do not belong to a particular, organisation or institution wish to make a submission, a time for individual submissions will be allowed at each of the Hearings.

 Please contact the Secretariat if you wish to make a submission at any of the Public Hearings. The deadline for acceptance of requests to make a submission at a Public Hearing is

20 August for Hearings in Cape Town and Johannesburg
29 August for all other Hearings

1.1.4 National Conference

 A National Conference will be held in Cape Town from Thursday 25 - Saturday 27 September 1997. Representatives from all national key stakeholders as well as some invited international guests will be invited to participate in this Conference. The purpose of this final event of the NCSNET/NCESS before finalising its recommendations and Report to the Minister is to further clarify and develop common understanding around central issues of its work with key stakeholders: people who are centrally involved in and affected by the recommendations to emerge from the NCSNET/NCESS.

 1.2. What is in this Summary?

This Summary provides:

1. An overview of the terms of reference and process of the NCSNET/NCESS
2. An outline of interim recommendations made in the Public Discussion Document
3. A proposed strategic implementation plan
4. Glossary of key terms

 The interim recommendations are presented in the following way:

•   Future Vision, Principles and Strategies
• Implications for Curriculum and Institutional Development
• Implications for Assessment
• Implications for Organisation and Governance
• Implications for Staffing
• Implications for Human Resource Development
• Implications for Finances and Funding
• *Strategic Implementation Plan

1.3. Terms of Reference of NCSNET and NCESS

1.3.1 Overall Purpose

 The NCSNET and NCESS have been appointed by the Minister and Department of Education to investigate and make recommendations on all aspects of special needs and support services in education and training in South Africa. The focus is on the development of education to ensure that the system becomes more responsive to the diverse needs of the learner population. This includes ensuring that appropriate support is provided to the learners and to the system itself.

 1.3.2 Scope of NCSNET and NCESS

 This investigation covers all aspects of education, at all levels: early childhood development, general education, further education, higher education, and adult education.

It should be noted that all issues, findings and recommendations outlined in this Public Discussion Document refer to all levels of education referred to above unless specific reference is made to a specific level. At times this specificity is necessary owing to differences relating to that particular phase of lifelong learning.

 Within the context of the framework of the NCSNET/NCESS's work, 'special needs' in education refers to needs or priorities which the individual person or the system may have which must be addressed in order to enable the system to respond to differences (diversity) in the learner population, remove barriers to learning, and promote effective learning among all learners.

 Acknowledging that 'special needs' often arise as a result of barriers in the way the curriculum has been presented, it has been suggested that instead of referring to 'learners with special needs', we should refer to learners who experience barriers to learning. Having said this, however, this Public Discussion Document will at times refer to 'special needs' where it is important for us all to understand what we are referring to.

 With regard to 'who experiences and what constitutes barriers to learning', the following learners are included: learners with disabilities who may need to use specialised equipment or assistive devices to participate in the learning process; learners who experience some form of learning breakdown as a result of differences in learning style or pace (e.g. a learner who learns at a faster or slower pace than others in the classroom); and, learners who are at risk for personal and social reasons (e.g. a learner who is abused at home, misses school and drops out as a result, or a learner who has HIV/AIDS).

 Aspects of the system that constitute a focus include: the development of educators so that they can meet the needs of all learners (e.g. an educator who needs training and support so that s/he can respond to needs in the classroom); the development of how and what is taught (the curriculum) so that it is flexible to all learners (e.g. development of material so that all learners can understand and use it ); and, the development of places where learners are educated so that the environment supports the learning process (e.g. the need to build a ramp so that a learner who uses a wheelchair can use the facility, or an environment that is free from discriminatory attitudes, where all learners feel that they belong).

Education support services (ESS) includes all human and other resources that help to develop ans support the education system so that it is responsive to the different needs of learners and the system. This includes support to individual learners and the system, it should also focus on the prevention of physical, psychological, social and learning problems. There should be a focus on the development of supportive learning environments for all learners.

Support required by learners or the system includes: teaching and learning support (including particular teaching and learning interventions, assistive devices, Sign Language interpretation), general and career guidance and counselling, various forms of therapeutic support (medical, psychological, occupational, speech, physiotherapy), nutritional programmes, social interventions, teacher training and support, whole-'school' development and curriculum development.

Support is provided by and through: members of the learning community (e.g. learners, parents, teachers); other community resources (e.g. volunteers, community workers, community based organisations, disabled peoples' organisations, welfare organisations, traditional healers); education support personnel (see below); and, through assistive devices (e.g. braining facilities, specialised communication devices, appropriate information technology,)

'Education support personnel' include service providers from a number of disciplines and walks of life who have different kinds of knowledge and levels of skill. They may include, among others: 'special needs' teachers, Sign Language interpreters, social workers, doctors, nurses, psychologists, therapists, HIV/AIDS counsellors, career counsellors, nutritionists, child and youth workers, traditional healers, community workers, and organisation development consultants.

1.3.3 Amalgamation of NCSNET and NCESS

The areas of 'special needs' end ESS cannot be separated if a holistic approach to the development of learners and the system is to be achieved. This includes the academic and other interrelated aspects of development of the learner and the system. Support services are aimed at addressing needs, particularly in terms of overcoming and preventing barriers to learning to ensure effective learning and development.

Because of the close relationship between 'special needs' and 'support services', the NCSNET and NCESS amalgamated for the purpose of this investigation. All meetings have been jointly conducted, and the public participation and research processes have been jointly pursued. The development of one Public Discussion Document is a further reflection of this joint venture.

1.3.4 Details of the Terms of Reference of NCSNET/NCESS

The terms of reference indicate that the following areas should form the focus of the investigation.

• Obtaining a 'picture' of the current situation in terms of needs and provision of support services
• Developing a framework for 'special needs' and support services, within the context of an 'holistic and integrated' approach
• Developing a future vision, principles and strategies
• Investigating the implications of the above for:
• - the education system as a whole
• - assessment
• - organisation and governance of schools and other centres of learning
• - staffing: in terms of educators and education support personnel
• - training of educators and support providers
• - finances and funding
• Developing a strategic implementation plan

The terms of reference indicate that the investigation needs to be located within the framework of the new Constitution of South Africa (1996) as well as relevant policy documents from Education and other sectors.

The NCSNET/NCESS were given 12 months to complete their investigation and to make recommendations for national policy. This means that a Report must be presented to Minister Sibusisu Bengu and the Department of Education in November 1 997.

1.4. The Process

1.4.1 Who are the NCSNET/NCESS?

The NCSNET comprises 14 members and the NCESS 10. These members are drawn from various parts of the country, and reflect the diversity of the areas of 'special needs' and support, as well as the South African population.

Researchers were commissioned to conduct research for the various Task Groups conducting research in the main areas of the work of the NCSNET/NCESS. Additional consultants were also linked to these Task Groups to provide additional expertise where needed.

The NCSNET/NCESS is supported by a Secretariat comprising a chairperson, two co-ordinators, and two secretaries.

The National Co-ordinating Committee for Education for Learners with Special Education Needs (NaCoCo for ELSEN) and an Education Support Services (ESS) Reference Group have acted as broad reference groups for the NCSNET/NCESS.

1.4.2 Public Participation

The NCSNET/NCESS was charged to conduct research and consult widely, including all relevant stakeholders in the process. In an attempt to do this, a public participation programme was planned and pursued. Members of the NCSNET/NCESS were responsible for conducting site visits, participating in stakeholder meetings, and facilitating provincial workshops and Hearings in all nine provinces.

An initial public discussion document on the NCSNET/NCESS's proposals for a future vision, principles and strategies was workshopped in the provincial workshops and some stakeholder meetings throughout the country in March and April. Submissions made at these workshops and directly through the Secretariat were taken into account when compiling this Public Discussion Document. Research conducted by the Task Groups has also informed this process.

Written submissions received by the Secretariat over the last few months have covered a vast range of issues and areas relating to the work of NCSNET/NCESS. All submissions are taken seriously but the outcome, in terms of policy recommendations to the Minister and Department of Education, will not reflect the positions, needs, and expectations of everyone. We are aware that some aspects of the recommendations will reflect some form of compromise or will favour one position more than another. The fundamental yardstick for deciding on what position to take will be determined by the framework of the work of NCSNET/NCESS. Having said this, however, the NCSNET/NCESS will strive to achieve national consensus on recommendations made.

This Public Discussion Document is a further attempt at consultation to reach this consensus. Your response to the specific recommendations made in this Document is therefore crucial.

1.4.3 Limitations of the work of the NCSNET/NCESS

While every attempt has been made to involve key stakeholders in the process, the public participation has not been without its problems and limitations. In particular, financial, administrative, and time constraints have made it impossible to reach and involve all interested parties adequately. The scope of the work has made full coverage an impossibility.

Financial and time constraints have also made it impossible for the NCSNET/NCESS to conduct the full range of research required for an in-depth investigation into the areas concerned. In the face of this, Task Groups have done the best that they can. Further research will be identified by the NCSNET/NCESS where necessary

Policy development processes are always confining - particularly in terms of time and finances. We believe that we cannot delay the process despite these limitations as there is a need for national and provincial direction in terms of 'special needs' and support services. As a country we have to do the best that we can to ensure that the recommendations emerging from the NCSNET/NCESS are not compromised as a result of these limitations.

It should be noted that this Public Discussion Document (including this Summary) does not adequately cover all relevant issues. We are aware of gaps in all aspects of our work. One of the purposes of releasing this document and requesting feedback from the public is to provide direction in the areas that our research and consultation has not yet adequately addressed. In addition, further consultation around areas that have not yet been covered will be conducted over the next few months.

2. SUMMARY OF RECOMMENDATIONS

2.1 Future Vision and Principles

2. 1.1 Vision

An education and training system that promotes education for all and fosters the development of inclusive and supportive centres of learning that enable all learners to participate actively in the education process so that they can develop and extend their potential and participate as equal members of society.

2. 1.2 Principles

 * Acceptance of principles and values contained in the Constitution and in the White Papers on Education and Training:
The most important of these are: the right to equality, protection from discrimination, respect for human diversity, the right to equal benefit and protection from the law, redress of past inequalities faced by previously disadvantaged groups in order to create equal opportunities for all people, and, an education system that is accessible and responsive to all learners.

Human rights and social justice for all learners:
All learners should enjoy equal rights and protection of human dignity. This means that each learner has the right to quality education, and to be treated with dignity and respect.

* Participation and social integration:
All learners must be given the opportunity to participate in their communities, being provided with the widest possible educational and social opportunities. Centres of learning must support and promote social integration in these communities so that learners learn mutual respect.

* Equal access to a single, inclusive education system:
Appropriate and effective education must be organised in such a way that all learners have access within a single education system that is responsive to diversity. No learners should be prevented from participating in this system, regardless of their physical, intellectual, social, emotional, language, or other differences.

* Access to the curriculum:
All learners are entitled to participate in the common education curriculum. All aspects of the curriculum (including what is taught and how it is taught and assessed, teaching and learning materials, the learning environment) should therefore be accessible to all learners. Where necessary, learners must be provided with the necessary support to enable them to access the curriculum effectively.

* Equity and Redress:
Educational change must focus on removing past inequalities in educational provision and ensure that all learners have equal opportunity to benefit from the education system and society as a whole. Barriers which previously isolated particular learners from education and the general community should be overcome, and processes developed to facilitate their integration into education and society as a whole. Particular

* Community responsive education system:
Education must be relevant and meaningful to the lives of all learners. This means that their education should prepare them for both work and life. This includes ensuring the successful integration of all learners into society. A community responsive education system is also one which facilitates optimal and effective involvement of the community in the education of learners at all levels. The development of strong links between the centre of learning and the community is therefore a fundamental prerequisite to ensure that all needs are addressed, and appropriate support provided. The strengths of community support already present in most parts of South Africa should be drawn on to achieve this.

2.1.3 Strategies

The following broad strategies arise out of the principles outlined above:

* Development of an integrated system of education:
The separate systems of education which presently exist ('special' and 'ordinary') need to be integrated, providing a system which is designed to recognise and respond to all learners. This will improve the ability of learners to move from one learning context or placement option to another (e.g. from ECD to GET, from a specialised learning context (e.g. special/iced school) to an ordinary school, or from a formal to non-formal programme) . Within this integrated system, a range of education provision and support services should be provided. Although a range of placement options should be provided, learners should, be given the opportunity to learn in integrated rather than specialised contexts. 

*Holistic development of reamers and support services:
The development of the learner should include an academic and social approach. This will require that different government departments and other sectors will need to work together to provide comprehensive support to learners. Partnerships between all stakeholders should therefore be promoted.

 Transforming the system:
All aspects of the education system will need to be changed if it is to respond to the needs of all learners. Strategies and programmes aimed at meeting 'special needs' must move away from an isolated focus on 'changing the person' to a systems change approach. This means that we should not see the system as fixed and unchanging where individual learners need to fit it. Rather we should see the system as being able to be transformed so that it can accommodate individual differences among learners.

* Holistic approach to institutional transformation:
This involves developing all aspects of the centre of learning as an environment where learning and therefore development can take place. Aspects to be changed include: organisational leadership and management, structures and procedures, the values and norms of the organisation, staff development, technical support, etc.

* Barrier free access to all centres of reaming:
Barrier free access is central to improving educational access to and integration of disabled learners of all ages. The National Building Regulations and Building Standards Act (Act 103 of 1977 - amended in 1986) includes regulations setting out national requirements for an accessibly built environment and other barriers.

*Developing a flexible curriculum to ensure access:
The education system must provide a flexible curriculum which is able to respond to differences among learners and ensure that all learners engage effectively in the learning process. A flexible curriculum includes flexible teaching approaches, the use of appropriate technology, assistive devices, and other mechanisms to facilitate access to all learners. Curriculum 2005 is already addressing some of these aspects at school level, but this needs to be expanded to all levels of education.

* Promotion of the rights and responsibilities of parents:
Partnerships between parents and other educators should be developed. This partnership should include involvement in the planning, development, implementation and monitoring of education and support. This partnership should be facilitated through processes such as training to empower parents to develop their capacity to participate in their children's education.

* Promotion of the rights and responsibilities of teachers and learners:
Teachers and learners should be directly involved in the development of a learning process that is sensitive to the needs of all learners, and should be provided with the structures and support to develop capacity in this regard.

* Provision of effective development programmes for educators and other human resources:
Effective development programmes need to be developed for educators and support providers to equip them with necessary skills and knowledge and promote appropriate attitudes to enable them to respond to the needs of all learners. There would need to be a focus on re-orientation and pre- and inservice professional development, within a team approach.

* A preventative and developmental approach to support: Centres of learning should be developed in such a way as to prevent social and learning problems from arising. This includes reducing environmental risks developing the resilience of learners and others, and promoting the development of a supportive and safe environment for learners and other members of the learning community.

* Embedding support services within the system
Support services should move away from only supporting individual learners to supporting teachers and the system so that it can recognise and respond appropriately to the needs of all learners, and thereby promote effective learning. In order for this to happen support services must be structured into the system and be integral to its development.

 * Community-based services:
All resources in the community should be utilised to develop and support education provision through a structured community participation approach. The strengths of existing community support systems in South Africa should be drawn on and developed in this regard.

 2.2 Implications for Curriculum and Institutional Development

 2.2.1 Introduction

"How should the curriculum and learning environment be organised to respond to the needs of all learners in the education system?"

 This section attempts to answer this question. It should be noted that the term 'curriculum' refers to all aspects that influence the learner, including the content of what is taught, how it is taught, the medium through which it is taught, and so on. It also includes the environment within which teaching and learning takes place. This latter aspect relates to the area of 'institutional development', a particular focus in this section of the NCSNET/NCESS's work.

2.2.2 Recommendations

 Recommendation 1: Holistic approach to Institutional Development:
A whole-school/institutional development approach should be adopted to ensure that an inclusive and supportive learning environment is developed in all centres of learning. This means that change must involve the organisational structure and overall culture and ethos of centres of learning.

Recommendation 2: Building Barrier Free beaming Environments:
*The Integrated National Disability Strategy recommends that "the Department of Education, in consultation with the National Environmental Accessibility Programme (NEAP) and other stakeholders, facilitate a process to develop national norms and minimum standards for the design and construction of accessible new education centres, as well as for the renovation of existing education centres. This would include co-opting a representative from NEAP onto the standing committee on space and cost norms for education buildings, a sub structure of the Education Heads of Departments Committee."
* It is recommended that a national accessible classroom building project be launched with donor funding through the provincial school building trusts.

Recommendation 3: Health Promoting School/Centre of Learning:
* All aspects of the 'health promoting school' strategy should be adopted at centre of learning level to ensure the development of healthy policy, a supportive learning environment, strong community links, personal skills development, and appropriate support services.
* Physical conditions of all centres of learning should be improved (e.g. clean and properly sized classrooms, water supplies, toilets,).

Recommendation 4: Children, Youth and Adults 'At Risk':
National guidelines for the provision of education and support for learners 'at risk' as this pertains to HIV/AIDS, sexuality issues, substance abuse, violence, and other 'at risk' areas should be developed. This should be developed in partnership with all relevant ministries and government departments.

Recommendation 5: Lifeskills Education:
* The new learning area of Life Orientation, which includes lifeskills, should replace the subject 'Guidance'.
* Lifeskills education should be provided at all levels of education.
* Lifeskills education should be a dedicated focus/subject in life orientation, and an infused aspect in other learning areas.
* Teachers who have been trained in the area of 'guidance' could be utilised in the lifeskills education area. Appropriate reorientation should be provided to these teachers.
* Outside expertise (e.g. NGO's, various specialist services, other community resources) should be used where appropriate to provide lifeskills education training for teachers and educators.
* An intersectoral approach to the development and provision of lifeskills education should be pursued.

Recommendation 6: Curriculum Transformation:

Outcomes-Based Education (OBE):
* Curriculum development aimed at addressing 'special needs' must be firmly located within general curriculum development currently underway in South Africa. This includes participation in the Outcomes Based Education (OBE) developments in the various structures at national, provincial, district, and institutional levels.
* There must be an acceptance of common outcomes for all learners, with learning programmes which are customised to accommodate differences in learning styles and rates of learners, providing appropriate teaching and support services in response to these needs.
* Outcomes should be seen in the widest sense: including functional outcomes particularly for learners with intellectual disabilities. Provision should be made for statements of outcome for learners who are cognitively disabled and cannot perform all the necessary outcomes to reach the first level of certification (grade 9).

Further and Higher Education:
* Further education programmes must be designed in such a way that they offer a range of routes to cater for diversity. This is consistent with Curriculum 2005 and NQF. This area requires further investigation.
* Open learning at institutions of higher education should be pursued as an approach with potential to overcome barriers to access to education and training.
* Disability Studies should be considered as a field of teaching and research at undergraduate and postgraduate levels at institutions of higher education.

Recommendation 7: Transition to Work:
* Strategies should be pursued to ensure successful transition of 'learners with special needs' to an active working life. This includes:
* The provision of transition services which support the passage of 'learners with special needs' from school to post-secondary education, vocational training, adult education, independent life and community participation.
* Inter-institutional co-ordination between education and training institutions and labour departments: in curriculum development, and in the implementation of training programmes.
* Business and other community resources should also be involved in curriculum and institutional development to ensure relevance to the world of work.
* Career education or vocational guidance should be provided to all learners through the lifeskills education area of focus, and through additional career counselling where needed.

Recommendation 8: Sign Language:

 * Sign-Language should be an area of focus ('subject') within the Learning Area of Language, Literacy and Communication (within the general curriculum), and should be used as a first medium of instruction for Deaf learners.
*Access to interpreters and the development of Sign Language competence for Deaf learners who need access to institutions of higher education must be addressed.

 Recommendation 9: Flexible Time-Tabling:
The 'school' day should be organised in such a way as to give maximum opportunity for learners with diverse learning needs to be accommodated. One strategy to achieve this could be to extend the school day across the working day, providing a flexible time-table.

Recommendation 10: Classroom Management and Teaching Practices:
* There should be a departure from traditional instructional arrangements towards small group peer-mediated learning and cross-class groupings.
* A variety of teaching and learning and classroom management strategies should be pursued to facilitate inclusion and a sense of belonging of all learners.
* Educators must be given the opportunity to develop the necessary knowledge, attitudes, and skills to enable them to develop a supportive classroom environment .
* Learning centres should restructure staffing arrangements to facilitate team work between different categories of 'educators' (ordinary and 'special needs' teachers, and various support providers).

Recommendation 11: Teaching and Learning Materials:
Learning materials (e.g. textbooks, study guides, and worksheets) developed and used must address diverse needs of the learner population. This should be pursued within the context of general materials development centres or institutes, but should ensure that the appropriate 'special need' and support expertise is provided within that context.

 Recommendation 12: Assistive Devices:
* It is recommended that the Department of Health be responsible for the provision and maintenance of assistive devices that contribute to independent living (e.g. mobility devices, hearing aids).
* it is recommended that the Department of Education be responsible for the provision and maintenance of assistive devices that enable learners to access the curriculum, that is, those devices that have direct relevance for learning (e.g. Braille writers, adapted access computers, magnifying glasses, voice synthesisers, appropriate seating, etc.)
* Information and other forms of technology should be utilised as a means of overcoming barriers to access experienced by learners at all levels of education. The role that information technology can play in facilitating curriculum access needs further investigation

Recommendation 13: System and Staff Development:
* Provinces, districts, and centres of learning should ensure that staff and institutional development programmes include issues pertaining to diversity and overcoming and preventing barriers to learning, to ensure ongoing improvement of education and support for all learners. This includes supporting educators to develop their capacity to develop inclusive practices and address diverse needs.
* Innovative programmes and practices that support the development of a more responsive system should be supported at all levels.

Recommendation 14: Education Support Services:
* A variety or range of services should be provided to support the system of education as a whole, centres of learning, and learners themselves.
* These services should be provided in a holistic and integrated way, within an intersectoral framework. Planning and provision of support should reflect this principle at all levels of education and training.
* One of the tasks of an integrated support service team is to provide input into the development of lifeskills education
* Education support personnel should focus their expertise on developing the capacity of centres of learning and members of the learning community -towards independence and community support
*This includes the development of centre-based support teams - with an emphasis on the role of teachers - as a hub for management and provision of support
*This also includes the development of a community-based support system that utilises the strengths of indigenous community support structures
* Support services should address problems as they arise and develop preventative and developmental programmes: providing opportunities for individual development and developing an environment where barriers are reduced so that learning and development can occur.
* There should be provision at higher education institutions to support learners who experience barriers to access, including learners with disabilities. Disability Units should be considered as one possible structure which could assist the process of institutional development in those contexts.

Recommendation 15: Partnerships:
* Parents and school staff should bring their respective strengths to the joint task of the learner's education. Parents' rights to participation as outlined in the S.A. Schools Act (1996) should be respected.
* Centres of learning should form partnerships with relevant NGO's and other community organisations for the purposes of providing support to learners and the system as a whole. This partnership should be regulated at the highest and lowest levels of the education system.
* Centres of learning should form partnerships with the business and other relevant private sectors to facilitate a meaningful link between education and work.
* Partnerships between higher education institutions and other sectors of society should include strong links with various community organisations, including Disabled People's Organisations, to contribute to the capacity building at these institutions.

2.3 Implications for Assessment

2.3.1 Introduction

Assessment, especially with regard to learners who experience barriers to learning is a critical issue as, up until now, it has formed the basis for decisions about where to place learners, and for the instruction they should receive. The purpose of this section is to identify the implications of the vision and principles outlined in this Public Discussion Document for the assessment of learners and the system in the future.

2.3.2 Recommendations

Recommendation 1: Early Identification:
*The early identification of children who are likely to experience barriers to learning, as well as the recognition of the principles of early intervention, should be a national priority.

Recommendation 2: Continuous Assessment:
* From the beginning of compulsory schooling, continuous assessment must be part of the teaching and learning processes managed by centre-based teams. Its primary aim should be to maximise learners' access to the broad curriculum.
* The outcome of the assessment should be a description of learner and system needs, which should be used as a basis for teaching and other responses.

Recommendation 3: Teacher Support:
The implementation of a system of teacher-driven assessment must be supported by a focused programme for training and re-orientating teachers and education support personnel to fulfil new roles and perform new functions.

Recommendation 4: Parent and Learner Involvement:
The assessment of learners must be transparent; must acknowledge the rights of learners and their parents to be an integral part of any assessment process; and must ensure their understanding of and right of access to all assessment results and reports.

Recommendation 5: Systems Assessment:
Assessment of the system should play an integral part in ensuring that all learners derive maximum benefit from the curriculum. Assessment of the system includes the evaluation of all aspects of the centre of learning and curriculum.

 Recommendation 6: Role of Education Support Personnel:
Direct involvement by education support personnel in routine assessment of individual learners should be de-emphasised. Rather they should play a role in supporting educators and parents in assessment and developing appropriate interventions, developing preventative and developmental programmes, and only addressing individual problems when other centre-based interventions have not proved effective.

Recommendation 7: Standardised Tests:
Learners should only be assessed by means of standardised tests which have proven usefulness in identifying barriers to learning. The routine administration of group tests of intelligence should be discontinued.

 2.4 Implications for Organisation and Governance

 2.4.1 Introduction

 Governance in this context refers to the act of governing education at all levels. A typical example of governance is the proposed governing body of a school. The constitution, composition, and functions of governing bodies at school/centre of learning level are of particular concern in this context.

Structures refer to different frameworks or units that facilitate the delivery of education. This includes the development of structures at national, provincial, district, and centre of learning levels to ensure the provision of education and support. It includes structures to ensure that the needs of all learners and centres of learning are addressed.

Organisation in this context refers to the way education is designed, organised, and co-ordinated at different levels. This includes issues such as different types of schools/centres of learning as well as attendance and admission policy.

2.4.2 Recommendations

Recommendation 1: Inclusive Centres of Leaming:
Ordinary learning centres have to transform to welcome all learners from the surrounding community in an anti-discriminatory learning environment where the culture of learning, teaching and service is entrenched through well-equipped teachers, centre-based and community-based support teams, democratically elected representative governance bodies, and learners eager to learn.

 Recommendation 2: Specialised Centres of Leaming
All centres of reaming should cater for diversity and provide community-based support:
* All centres of learning should be developed to cater for diversity and provide support to overcome barriers to learning and ensure the full development of the learner.
* Where specialised centres of learning continue to exist, they should move away from being large institutionalised facilities and rather become smaller community-based centres of learning that foster the active involvement and participation of local communities from which the learners come.
* Existing specialised centres of learning have to transform to become a resource to other centres of learning within the district in which it is based.

Placement options:
* A range of centres of learning or options for placement and support delivery should be available for all learners.

* In the short- to medium-term:

• Priority should be given to learners presently not accommodated within the system, especially learners already identified (e.g. children in community based day care centres).
• The first option must be to accommodate all learners in ordinary schools/ centres of learning, supported by relevant services.
• As a last option, provision for 'special needs' will continue to be offered in a variety of existing specialised settings (e.g. specialised schools, resource centres) supported by relevant services. Where they exist, care should be taken to ensure that these specialised contexts do not become isolated parts of the system.
• To facilitate the provision of education to learners throughout the country, urgent attention must be given to redressing the significant disparities which currently exist via the differentiated funding of centres of learning, and differentiated support service provision. Existing resources should be utilised to redress these disparities, but they will have to be supplemented by government funding for new and additional services where needed. All schools and other centres of learning should be resourced to be able to accommodate learners with diverse needs.

* In the medium- to long-term:

• All schools and other centres of learning should be resourced to be able to accommodate learners with diverse needs.
• There may be a continued need for a small percentage of specialised learning contexts which provide specifically for high need support which cannot be provided in ordinary schools/centres of learning.
• In the interests of more equitable service delivery, ESS staffing provision at all existing specialised schools would have to be reviewed.

Recommendation 3: Entry and Exit Ages of 'Learners with Special Needs':
* Given that early intervention is crucial in the process of preventing and addressing 'special needs', earlier educational interventions for certain learners who require this should be provided. This should be provided within the local context where possible so that the child remains as close to home as possible. Existing specialised centres of learning need to share their expertise with local communities to ensure early intervention at community level.
* 'Learners with special needs' should be adequately prepared for work and life. Over-age learners should be dealt with in the broader context of life-long learning. Learners who are over-age (21+) within the general and further education band should be able to access further education or adult education outside of the school context if necessary. Consideration should be given to creating opportunities for apprenticeships in real work situations where appropriate.

Recommendation 4: Skills training centres:
These centres should function within the NQF. They should be classified in terms of the courses they present and not according to category of learners, and should be a community resource. These centres should provide wider career training and opportunities and not be restricted by either gender or disability. Links between these centres and technical high schools should be investigated.

Recommendation 5: Reform/Industrial Schools and Places of Safety:
Fundamental principles emerging from the IMC for Youth at Risk are accepted, but practical matters relating to the education of these learners should be clarified and practical solutions found - within the context of an intersectoral framework including all relevant Ministries (IMC for Youth at Risk) and departments.

Recommendation 6: Governance:
* Organised representative structures of 'learners with special needs' should be developed to facilitate participation of these learners in provincial, district, and centre of learning governance structures.
* 'Learners with special needs' should be treated in the same way as other learners with regard to learner councils or representation on governing bodies unless the particular situation demands otherwise, in which case special permission must be granted. It is therefore recommended that all schools develop learner councils and provide learner representation on school governing bodies, unless the school makes a special application to regulate otherwise. The option of learners with severe disabilities being represented through advocates needs further investigation.
* Membership of governing bodies at ordinary' and 'special' schools: The governing body of public schools (including both 'ordinary' and 'special') should comprise the membership as outlined in the section on governing bodies at 'ordinary' schools in the S.A.Schools Act (1996), but should include the additional categories that currently are linked only to 'special schools'. This means that all schools should co-opt a person or persons with expertise regarding 'special needs' and support to ensure that the school can respond to diverse needs of the learner population. Where particular disabilities are involved, persons with disabilities should also be included. Where sponsoring bodies are involved in the development of the school (whether it be 'ordinary' or 'special'), they should also have representation on the governing body.

Recommendation 7: Structures at National and Provincial Level:
* Education support services should be integrated into the general education system. This means that all aspects of the education system should include relevant expertise and perspective to ensure that diverse needs are addressed, and appropriate support provided to learners and the system. This will entail some form of 'dedicated' posts/staffing to champion the areas concerned.
* During the transition a co-ordinating structure should be established at provincial and district levels to ensure cohesion and alignment of services to meet the needs of diverse learners and provide adequate support to all. The role of this structure is to ensure that these needs are addressed, ensuring that those who experience barriers to learning are not underplayed or overlooked. This structure should liaise with personnel from the current structures and begin to create an awareness of their redefined roles and style of operating.

Recommendation 8: Structures at District Level:
District support centres should be developed in all districts (or regions where appropriate) to ensure that all communities receive the education and support needed. These centres should be located in appropriate structures, dependent on the particular situation concerned. Each centre should provide a range of support provision, available to all centres of learning in the respective area.

Recommendation 9: Structures at Centre of Learning Level:
A structure (e.g. committee) should be developed at all centres of learning to ensure that needs are addressed and the necessary support to learners and the centre of learning is provided. This could be in the form of a school/centre-based support team, a sub-committee of the governing body, or alternative. This centre-based structure should involve teachers, the principal or alternative, learner representatives, parents, community resources, and itinerant education support personnel from the district centre.

Recommendation 10: Intersectoral Collaboration:
* Intersectoral collaboration at centre of learning and district levels should be facilitated within the context of specific structures outlined above.
* Intersectoral collaboration should be facilitated at provincial and national levels through the development of inter-ministerial and inter-departmental committees and other appropriate structures.
* Measures need to be taken to ensure that this collaboration is positively developed and properly resourced.

2.5 Implications for Staffing:

2.5.1 Introduction

The purpose of this section is to propose guidelines for staffing within the education and training system based on the vision, principles and strategies proposed for the future. Recommendations will particularly address the staffing issues in the traditional areas of 'special needs' and 'support services', but will also include 'non-traditional' human resources such as class assistants, parents, and other community resources.

2.5.2 Recommendations

Recommendation 1: Provincial Models for Service Delivery:
The provision of staffing should be a prerogative of the provincial head of department, who determines allocations based on provincial needs. Provincial criteria based on national guidelines need to be in place to determine minimum staffing norms for specific services.

Recommendation 2: Weighting of learners, grading of schools, and educatorlearner ratios:
(This area is being still being investigated)

Recommendation 3 Inter-Departmental/Sectoral Partnerships:
* Provincial working agreements need to be entered into to promote optimal use of personnel.
*Intersectoral teams should be established at centre of learning level, warn multi-disciplinary/sectoral teams at district level to provide support.
* Community-based support should be the major thrust in providing support, and this should involve all possible resources relevant to centres of learning.
* There should be a clustering or twinning of centres of learning for the purposes of sharing human resources.

Recommendation 4: Service Conditions:
* Service conditions and job descriptions should be standardised and equalised for education support personnel.
*There should be appropriate career path development for all education support personnel.
*Working hours for educators and education support personnel should be standardised. The school day extended over a working day will allow for more flexibility in provision of service.
* Discriminatory employment practices for personnel who are disabled should be addressed.

Recommendation 5: New Roles for Education Support Personnel:
* The roles and functions of education support personnel should be transformed in line with the principles in this document. This would include providing support to centres of learning (facilitating institutional and curriculum development), supporting educators and parents in assessment and developing appropriate interventions, developing preventative and developmental programmes, and addressing individual needs that have been referred from the centres of learning - where the centre-based teams have not been able to find solutions.
* Education support personnel should be provided with the necessary reorientation, pro- and in-service training to facilitate the shift in roles and functions outlined above.
* While a core of education support personnel should be available to provide support in special/iced schools, those located at special/iced schools should also form part of district education support personnel pools.
*Class assistants should be employed and trained to provide assistance to address diverse needs of learners.
*Accreditation and formulation of minimum qualifications for 'non-traditional' support staff should be developed.

Recommendation 6: Redress:
Education support personnel in urban areas should be deployed to rural and disadvantaged areas for periods of training and capacity building of educators and support providers in those contexts.

2.6 Implications for Human Resource Development of Educators/Service Providers

2.6.1 Introduction

If the education system is to be effectively changed to meet the needs of all learners, then restructuring and transformation needs to take place at all levels of the system. Key to this is a recognition of what such changes mean for existing personnel within the system, and new personnel who will be entering the system. The successful transformation and implementation of new education approaches and policies is likely to be in direct proportion to the quality and quantity of the human resources available to the system, and the priority and attention given to a human resource development approach and programme.

This section attempts to provide recommendations for all role players in education. Specific attention has been paid to developing guidelines for the training and development of the following categories of personnel:

• teachers - at all levels of education
• education support personnel
• parents
• community resources
• education management personnel

2.6.2 Recommendations:

Recommendations for immediate effect (1997):

Recommendation 1: Curriculum 2005:
* It is recommended that a special task team be established to assist and reorientate Curriculum 2005 teacher education teams at national and provincial level to infuse 'special needs' and support into existing orientation and training programmes, and to link Curriculum 2005 as a mechanism for responding to diversity in the learner population.
* It is further recommended that current education support personnel be included in the Curriculum 2005 reorientation and training - as learners and as trainers.
* 'Special needs' and support components in curriculum transformation should be included in the present media campaign on Curriculum 2005

Recommendation 2: ECD Pilot Project:
* The ECD pilot project should be enriched by allocation of additional funds for

• inclusion of at least one regular ECD centre (per province) already responding to diversity through an inclusive environment (with a specific focus on children with disabilities, and other 'special needs' such as HIV/AIDS, and trauma from violence).
• inclusion of at least two informal day care centres (per province) accommodating 'children with special needs' to facilitate integration of other children from the community and to develop national norms and standards for these centres.
• the inclusion of four ECD training centres that have already developed inclusive practices to provide capacity to the initiative (e.g. ELRU(W.Cape), CCDC (E.Cape), TREE (KwaZulu-Natal), and Sunshine Centre (Gauteng).

* It is further recommended that the National Interim ECD Accreditation Committee co-opt a member(s) including a representative from the national parents' movement, to facilitate the inclusion of young 'children with special needs' more effectively in the development of interim guidelines, standards, assessment, certification, and recognition of prior learning.

Recommendation 3: Media/Awareness:
The present culture of learning, teaching and service (COLTS) pilot programmes that are being developed in the partnership between the SABC and the Department of Education should be revised with immediate effect to include issues relating to 'special needs and support' within all contexts.

Recommendation 4: Governing Bodies:
A special task team should be established to reorientate national and provincial training teams for governing bodies to ensure that the provisions in the S.A. Schools Act as it pertains to 'learners with special needs' are incorporated into orientation and school development programmes.

Other Recommendations:

Recommendations: Personnel Development:
* Aspiring and practising teachers, managers, and education support personnel at all levels of education should be equipped to reflect critically on their practice methods and roles in the light of the shifts in approach reflected in this document.
* An integrated and comprehensive reorientation and retraining plan for all personnel at all levels should be developed to facilitate more effective and less discriminatory teaching practices and support towards learners in all centres of learning. Similarly, attention should be given to the study of innovative practice methods which promote integrated and inclusive education provision and service delivery.
* Higher education institutions should establish appropriate structures for ongoing staff development with a specific focus on equipping personnel with skills and knowledge in how to create an inclusive learning environment for all learners; establish inter- and intra-institutional linkages to facilitate access to all learners irrespective of diversity; and explore open learning as a delivery system that addresses diverse needs of the learner population.
* Further investigation into the specific roles and skills required by educator and support providers should be pursued.

Recommendation 6: Teacher Education:

* All pre- and in-service curricula for teacher education students should be organised around a curriculum that confronts issues of inclusive teaching, accommodation of diversity in education, and lifeskills education. This should be pursued within the context of COTEP, Teacher Development Units at national and provincial levels, and the National Council for Teacher Policy of the Higher Education Council.
*COTEP should revise the admission criteria for Deaf teacher education applicants.
*It is recommended that the Department of Education, in consultation with the adult education NGO sector and the disability sector commission research for: firstly, effective infusion of 'special needs' components in all educator development courses, and secondly, the development of appropriate learning materials.

Recommendation 7: Teachers with Specialised Competencies and 'Special Needs' Resource Teachers:
* Teachers wishing to specialise in the area at 'special needs' should have at least three years of ordinary teaching experience. Specialised competencies should include the acquisition of skills which will enhance their effectiveness as teachers, facilitate the accommodation of diversity in inclusive learning contexts, and develop capacity to adapt the curriculum to facilitate maximum learning in learners with diverse needs.
* Existing teachers who have specialised competencies (including those currently working in specialised schools) should be given the opportunity to receive further training to equip them to become mentors and trainers of teachers working in all centres of learning. Such training should be undertaken according to norms and standards developed to provide for the provision of 'special needs resource teachers' as part of the education support personnel team.
* Teachers wishing to specialise in the area of Lifeskills Education should be provided with a comprehensive programme drawing on all relevant perspectives. They should be equipped to provide focused learning programmes covering all relevant aspects of lifeskills, and to support other teachers to integrate of lifeskills in their learning programmes.

Recommendation 8: Education Support Personnel,
* All education support personnel-related pre-service personnel training courses should be revised to accommodate the role and function changes resulting from the recommendations emerging from NCSNET/NCESS.
* Personnel must be trained to provide services within a systems perspective which involves 'whole-school' and community-based approaches. Training programmes must reflect a shift away from a deficit, problem-orientated notion of intervention towards developing support services which aim to foster enabling learning environments through focussing on strengths, competencies and development.
* Training courses should integrate components on: intersectoral work, empowerment, capacity building, diversity, human rights, community development, and school/centre-based team building and support.
* In-service courses should be developed by Education Faculties in collaboration with faculties training other personnel who form part of the education support personnel team (e.g. therapists, social workers, nurses, psychologists). Such courses should be focused towards the development of appropriate education support services rather than profession-specific development. Similarly, there should be a focus on the transference of essential skills and knowledge between team members, including community resources such as parents.
* Ongoing in-service training of house-parents and classroom assistants should be institutionalised and brought in line with the NQF.
* Sign Language interpreter training should be provided. In this regard existing Sign Language interpreter initiatives should be officially recognised within the NQF and earmarked funding allocated for the extension and support of existing training programmes.

Recommendation 9: Education Management Development:
* The proposed National Institute for Education Management Development should commission research to develop guidelines for the integration of components that address diversity and support as it relates to 'special needs' and governance into all management development programmes.
* Education management at all tiers of governance should attend orientation workshops on the need to accommodate diversity and provide support for all learners, and the management skills needed to facilitate this.
* There should be a focus on building the capacity of management at institutions of higher education to raise awareness of issues relating to learner diversity and 'special needs' so that overcoming barriers to access is on the agenda at all times.

Recommendation 10: Parent Empowerment and Development:
* Empowerment and development of parents of learners who experience barriers to learning should receive priority attention through support for the development and strengthening of parent organisations as stipulated in the National Programme for Action for Children.
* The Department of Education - in consultation with parent organisations -should facilitate a programme for the development of parent empowerment programmes. Emphasis should be on rural contexts and single mothers of children who experience barriers to learning.'
* COTEP should include a national guideline for teacher education at all levels that will ensure that all teacher education programmes involve parents of 'children with special needs', and activists with 'special needs', on all courses to ensure a changing of attitudes, appropriateness and sustainability.

Recommendation 11: Community Resources:
It is recommended that further research is needed into training courses which can be developed to facilitate the development of peer counsellors and the empowerment of community leaders. Such research should also focus on how such resources can best be used to facilitate maximum empowerment of such resources.

Recommendation 12: NGO Involvement:
NGO's should be contracted to assist in the development of teachers, education support personnel, management, and parents: in all aspects of curriculum development for pro- and in-service training, course development and presentation, and the development of public awareness campaigns.

2.7 Implications for Finances and Funding

2.7.1 Introduction

It has been recognised that the building of a single, inclusive education system which will redress past inequalities and provide for the needs of all learners will require committed and sustained resources. The way in which funding is organised and resources distributed remains a key mechanism for bringing about necessary changes and achieving equity.

With this in mind, the purpose of this section is to develop recommendations which will lead to the effective and sustainable implementation of the vision and principles. To do this, it is necessary to recognise present inequalities and problems in meeting 'special needs' and providing support within education, provide guidelines which are in line with existing government imperatives, and begin to provide tentative recommendations on future funding priorities and ways to achieve these priorities.

The following recommendations are put forward as a basis for the development of a funding model for 'special needs' and support in education and training.

2.7.2 Recommendations

Recommendation 1: Equity, Non-Discrimination, Redress and Educational Transformation:
It is recommended that a funding model be developed which includes norms and standards that provide for adherence to the principles of equity, non-discrimination and redress. Similarly, the model of funding should lead to the transformation of the education system into one which accommodates the needs of all learners through quality education and holistic development. Such accommodation includes the assurance of barrier free access for all learners in all centres of learning.

Recommendation 2: Infused System of Funding:
Funding for 'special needs' and support in education and training must form part of the funding model developed for the education system as a whole in South Africa. Thus, there must be an infused system of funding which ensures the meeting of needs and the provision of appropriate support to all learners and to all levels and components of the education system.

Recommendation 3: 'Top-up' to General Education and Training Budgets:
* Funding for "special needs and support" must form part of the general education budget allocated each year by national government to the provinces. Thus monies for a 'special needs and support'-budget must be included into the education budget allocated to the provinces.
* Each province should allocate a block grant to each district to provide for support services and the meeting of 'special needs' in the learner population of that district. Such a grant should be seen as a 'top-up' to the general education and training budget allocated to districts and should ensure a minimum level of service delivery and meeting of 'special needs' within all districts.
* The block grant should be calculated according to the number of learners in that district on the basis of an agreed amount per student. For example, if it is agreed that R1000 per annum, per learner, should form the basis of the allocation, then a district with 3,000 learners would receive an amount of R3,000,000 for that year for the provision of ESS and the meeting of 'special needs'. The amount per learner would be decided each year based on continuing analysis of needs and priorities.
*Districts would then devolve funding to centres of learning based on the number of learners at that centre (at all levels) and on the basis of agreed criteria such as redress, the diverse needs of learners, promoting equity and facilitating the development of district resources. More specific guidelines are presently being investigated and will be reflected in the final report.
*Although centres of learning would have some flexibility in the way in which this 'top-up' is used, clear guidelines should be provided by the districts to ensure that the money is appropriately used. With regard to centres of learning, it is recommended that this budget allocation is primarily used for the following purposes:

• - the development of a support team based at the centre of learning which provides services on the basis of identified needs of learners and within the centre of learning through consultation with teachers and parents. For example, salaries for teacher aids and Sign Language interpreters.
• - the provision of other support services such as assistive devices and specialised equipment
• - in-service training of educators and support providers - other needs identified

* It is further recommended that a portion of the district's budget is used for the development of district resources which can be accessed by all centres of learning where necessary.

All levels of education must be funded according to the framework outlined above. It is noted, however, that different norms and standards to guide the allocation of funding may need to be adopted within the different levels.

Recommendation 4: Earmarked Funding for 'Special Needs' and Support:
* It is recommended that over and above the 'top-up' for 'special needs' and support services described above, both national and provincial governments should set aside a portion of the education budget for the provision of specific programmes designed to facilitate the promotion of effective support within the education system to overcome barriers and meet the needs of diverse learners. Such funding should be used for well designed and structured programmes which have clear objectives and time frames. For example, a programme to provide in-service training to assist teachers to deal with diversity among learners or a parent empowerment programme.
* It is recommended that this level of funding could facilitate the appropriate and effective use of donor funding as well as partnerships between the government and the private sector.
* Such funding should be used to redress past inequalities and achieve equity within all levels of education.

Recommendations: Funding Accountability:
An accountable system of monitoring must be put in place to ensure that funding allocated for 'special needs' and support is appropriately used. A system of regular reporting and auditing of funds should be built into the monitoring system. This monitoring should ensure that no learners are neglected owing to barriers such as negative attitudes, misuse or non-allocation of funds.

Recommendation 6: Funding Partnerships:
* An effective and accountable system of partnership funding between the state and external funding sources must be developed in consultation with all stakeholders. The nature of the partnership should be guided by the S.A.Schools Act and other relevant legislation.
*Where provision of support (e.g. assistive devices) is related directly to the teaching and learning process, this should be funded by the Departments of Education from the block funding for 'special needs' and support services. Where the support falls outside of this, this should be the responsibility of the Departments of Health and/or Welfare.

Recommendation 7: School Register of Needs:
* Existing special/iced schools should be included in the School Register of Needs, with additional categories or fields particular to such schools.
* A range of extra services commonly identified with learners who have to overcome barriers to learning should be included in the School Register of Needs, and criteria for allocation of these services should be developed within the principle of 80% of the budget for these services being allocated to the 40% of schools which are most needy.

Recommendation 8: International Aid in Education:
It is recommended that international aid in education should be focused on facilitating the inclusion of the needs of all learners in all aspects of educational provisioning by:

• Increasing access to educational opportunities within local communities for the out-of-school children and youth
• Increasing educational opportunities within the present system for all learners
• Overcoming barriers which lead to learning breakdown
• Increasing employment and social opportunities through more appropriate vocational and life skills training

3. PROPOSED STRATEGIC IMPLEMENTATION PLAN

3.1 Introduction

A detailed outline of the proposed strategic implementation plan is available in the full Public Discussion Document. The purpose of this section is to outline central aspects of this plan so that the reader can locate previous recommendations within a time frame. It should be noted, however, that not all aspects of the recommendations are included here. The plan is strategic in that it focuses on some key goals and actions that need to be pursued to ensure that implementation is successful.

The NCSNET/NCESS pursued a 'strategic planning' process in order to develop this plan. This included: exploring and debating issues relating to the policy and change process, drawing out principles that should inform planning; clarifying future vision, in practical terms; setting short-term (1997/8), medium-term (2002), and long-term (2010) goals and strategies to achieve those goals; identifying resources that would be needed to execute the plan; and identifying ways of ensuring adequate monitoring and evaluation of the implementation process. Before finalising the plan, potential barriers and supports to implementation of the plan were identified and discussed, and the goals revisited in the light of that.

3.2 What will be happening in the year 2010?

Some of the key characteristics of the education system in the year 2010 include:

• All learners will have access to education. This includes admission to centres of learning, and access to the curriculum.
• The education process will prepare learners for work and life.
• All centres of learning will have the capacity to respond to diversity, and will reflect an ethos of inclusiveness, a supportive environment, a culture of teaching and learning, and good community relations and ownership. They will be provided with the support they need to develop in the ways described above.
• Every centre of learning will have its centre-based support structures which will draw in the expertise of both specialist and community resources. Support will therefore be primarily community-based in nature.
• Every district will have some form of district support centre where support services will be provided to all local centres, within an intersectoral framework. These services will provide indirect 'consultative' support to learners via consultation with teachers and centre-based support teams. In exceptional cases - when centre-based teams have exhausted intervention possibilities - support for individual learners will be provided.
• Support services will be embedded in the system of education. This means that relevant support service personnel will be integrated in all spheres of the education system at departmental level.
• A variety of centres of learning will be available. Learners will be accommodated in a way that best suits their needs, keeping in mind the need to facilitate full participation and inclusion in the education process and in society at large.
• Where necessary specialised learning contexts will be provided. These specialised settings will be limited to learners who cannot benefit from inclusion in the ordinary setting. These specialised contexts will be directly linked to the ordinary context, providing maximum opportunities for all learners to engage with one another in an inclusive environment.
• The system will be sustainable: in terms of financial resourcing, and in terms of leadership and management capacity.

3.3 Short-, medium-, and long-term goals and tasks

3.3.1 General Goals and Tasks:

General goals and tasks that should span the full time-frame (1997-2010 and beyond) include:

• To optimally involve all key stakeholders in the process of policy formulation and implementation
• To engage in general curriculum and materials development processes to ensure that the diverse needs of the learner population are addressed
• To promote and participate in all possible forums to facilitate attitude change in terms of disability and diversity - in society and in education in particular.
• To develop all centres of learning as inclusive environments, addressing the diverse needs of all learners
• To promote and support development of educators and service providers -within the context of the framework of these proposals
• To set up or restructure structures to reflect the vision and principles. This includes both organisational development and the provision of appropriate facilities.
• To optimise the use of existing resources
• To monitor and evaluate the implementation process

3.3.2 Specific Short-Term (1997/8) Goals and Tasks:

* To develop policy and legislation:

• developing national policy
• -developing provincial policy
• amending existing legislation to ensure that all learners have access to quality education, receiving the support they need

* To develop a funding policy that would ensure that all reamers' needs are addressed:

• -Setting up a task team to develop an appropriate funding policy and formula.

*To challenge public attitudes regarding 'special needs', and to prepare for a more inclusive approach

• Department of Education and other relevant stakeholders to participate in a national awareness campaign. This should include the present media campaign on Curriculum 2005, and the culture of learning, teaching and service pilot programmes.

* To optimise the use of existing resources:

• Conducting a comprehensive audit: identifying existing support centres, specialised schools and classes, community structures, and other facilities outside of education that could be utilized for the purposes of providing support for learners and centres of learning, and identifying what new facilities need to be built or provided to ensure that all learners have access to education and the support they need.
• - Identifying how inter-provincial co-operation can be developed to facilitate adequate education and support provision to all learners
• - Supporting existing initiatives where attempts are being made to address diverse needs and provide support for all learners and the centre of learning.

To set up a system to monitor and evaluate the implementation process:

• Setting up a National Institute or Centre (possibly under the National Institute for Lifelong Learning Development) focussing on 'special needs and support'

The function of this Institute or Centre would include:

• Monitoring the implementation process
• Supporting, monitoring and evaluating the development of pilot and demonstration projects, and facilitating the development of successful projects to scale
• Participating in ongoing policy research: drawing out learnings from practice and feeding this into policy development
• Supporting and conducting research in the areas of 'special needs' and support services
• Providing a networking process for people and organisations involved in 'special needs' and support in education
• Providing relevant literature resources
• Providing support to pre- and in-service programmes

* To be involved in current Education Departmental initiatives to ensure that issues pertaining to 'special needs and support' are addressed:

• Setting up a special task team to assist and reorientate Curriculum 2005 teacher education teams at national and provincial levels
• Including education support personnel in the Curriculum 2005 reorientation and training
• Involvement in the ECD pilot project, including ECD centres who are attempting to develop an inclusive and supportive learning environment.
• Involvement in the National Interim ECD Accreditation Committee
• Setting up a special task team to reorientate national and provincial training teams of governing bodies
• Involvement in various teacher education initiatives to ensure that pro- and in-service curricula address 'special needs and support'. This would include COTEP, Teacher Development Units, and the National Council for Teacher Policy of the Higher Education Council.
• Involvement in the National Institute for Education Management Development, to ensure that issues pertaining to 'special needs and support' are included in management development programmes.
• Involvement in other initiatives relating to further education, higher education, and adult education.

* To engage in curriculum development processes:
In addition to involvement in the process mentioned above:

• Setting up a task team to develop an assessment procedure that would best assess both learner and system needs
• Setting up a task team to identify specific assistive devices needed by some learners.

* To address the need for early identification and intervention:

• Setting up an intersectoral task team to identify practical measures that should be taken to develop early identification and intervention programmes for all children.

3.3.3 Specific Short- to Medium Term (1998-2002) Goals and Tasks

* To engage in curriculum development processes:

• Engaging in the development of Curriculum 2005
• Developing materials that are sensitive to the diverse needs of all learners. This would include the development of specialised materials for particular needs.
• Supporting the development of Sign Language as a learning focus, and medium of instruction for Deaf learners. This will include the development of Sign Language interpreters and trainers.
• Addressing the backlog in both functional (Department of Health) and learning-related (Department of Education) assistive devices needed by some learners

* To promote and support the re-orientation of existing educators and education support personnel, and to develop appropriate pre-service training:

• Developing and conducting in-service training programmes for existing educators and education support personnel - orientating and equipping them to address diversity, and meet the demands of changing roles
• Providing specific training for specialists in 'special needs' and support: to provide leadership and expertise required
• Ensuring that all universities and colleges that provide pre-service training for the personnel concerned develop their curricula to provide essential aspects relating to 'special needs' and support services: for all educators, and support providers. This training should facilitate a reorientation in terms of the principles of these proposals, preparing staff to play the roles required.
• Supporting the development of educators and education support personnel with disabilities
• Developing new and supporting existing training for parents
• Participating in existing education management development initiatives to ensure that managers and governing bodies are adequately prepared to address needs and provide appropriate support.
• Deploying intersectoral teams of service providers to under-resourced areas to provide inservice training in those contexts.
• Contracting relevant NGO's to assist in the development of educators and service providers.

* To set up or restructure organisational structures and facilities:

• Allocating 'special needs' and support service expertise to all relevant committees and bodies (e.g. SAGA, Institute for Education Management Development)
• Developing posts and deploying 'dedicated"special needs and support personnel to all relevant components of the national and provincial education departments.
• Establishing dedicated posts in the National Centre for Curriculum Development (under the National Institute for Lifelong Learning)
• Setting up or utilising an existing 'special needs and support services' structure in national and provincial departments: to champion the development of learning environments that are responsive to diversity and provide support for all.
• Setting up intersectoral committees at all levels (ministerial, departmental, district and centre of learning levels, utilising existing structures where they exist, or developing new ones to facilitate partnership work.
• Utilizing existing resources and building new resources to ensure that all learner and system needs are addressed
• Developing district support centres in all regions of the country, with a particular focus on historically disadvantaged areas

* To accommodate 'learners with special needs' currently out of the education system or in specialised contexts in ordinary centres of learning where possible.

• All learners who are out of the education system at present in ordinary centres of learning. where possible, providing the best possible support.
• Learners who are currently in specialised contexts who can be accommodated in ordinary schools should be accommodated there, with the best possible support being provided.
• As a last option, provision for 'special needs' should be offered in a variety of existing specialised settings.
• Urgent attention must be given to redressing disparities between centres of learning, and in terms of support service provision.

* To facilitate the development of inclusive learning environments within and between all centres of teaming:

• Participating in projects and programmes aimed at developing a culture of learning and teaching and services (COLTS) to ensure that the philosophy of inclusivity is built in.
• All centres of learning (including higher education institutions) should develop institutional plans that will indicate how barriers to access will be addressed and quality education for learners provided through whole institutional development
• Developing barrier free access, design, and location of centres of learning according to national norms and guidelines.
• Promoting cultural activities within and between centres of learning (e.g. through sports)
• Supporting and setting up pilot and demonstration projects that strive to develop an inclusive environment

3.3.4 Specific Medium- to Long-Term (2002-2010) Goals and Tasks

* To ensure that all pre- and in-service training courses and processes for all categories of educators and service providers include appropriate aspects required to develop responsive learning environments, and provide the support to reamers and the system that is needed.

* To set up or restructure organisational structures and facilities:

• -Completing the development of sufficient, accessible centres of learning for all learners, and district support facilities and human resources to support all centres of learning.
• Developing the capacity of all aspects of education at national and provincial departmental levels with regard to 'special needs' and support
• Refining intersectoral structures to ensure that collaboration can and does occur in the process of providing support to learners and the system.

* To develop all centres of teaming so that they address diverse needs and reflect an inclusive ethos:

• Resourcing all schools and other centres of learning so that they are able to accommodate learners with diverse needs
• Providing support to specialised learning contexts which exist for learners who cannot receive the support required in ordinary centres of learning
• Reviewing ESS staffing provision at all specialised schools in the light of equitable service delivery.

3.4 Resources

Various forms of funding support are required to address the above mentioned goals and tasks. These include:

* Government Funding Support:

• Earmarked funding for specific priorities
• Ongoing government funding support

* International donor support

* Private sector support (sponsoring bodies and corporate sector)

4. GLOSSARY OF KEY TERMS

DRAFT GLOSSARY

Adult education: This includes Adult Basic Education and Training (ABET) which refers to education and training for adults who have historically missed out on education and training opportunities in the past. According to the NQF it forms part of level 1 which precedes general education and training. Adult education also includes other educational processes which involves teaching and learning among adults in educational contexts, both formal and informal, which are specially designed to facilitate effective learning among adults for appropriate outcomes.

Centres of Learning: This includes formal or non-formal environments or places where learning takes place. These could include schools, ECD centres, adult education centres, universities, technikons etc

Curriculum: According to the new framework of Curriculum 2005, the curriculum can be defined as everything that influences the learner from the teachers and the work programmes, right down to the environment in which teaching and learning takes place.

Early Childhood Development (ECD): This is an umbrella term which applies to the processes by which children from birth to nine years grow and thrive, physically, mentally, emotionally, morally and socially. ECD programmes include a variety of strategies and a wide range of services directed at helping families and communities to meet the needs of children in this age group.

Education Support Services (ESS): this includes all human and other resources that help to develop and support the education system so that it is responsive to the different needs of learners and the system. This includes support to individual learners and to all aspects of the system. While ESS should address problems of learners and the system, it should also focus on the prevention of physical, psychological, social and learning problems. There should be a focus on the development of supportive learning environments for all learners.

Support required by learners or the system includes: teaching and learning support (including particular teaching and learning interventions, assistive devices, Sign Language interpretation), general and career guidance and counselling, various forms of therapeutic support (medical, psychological, occupational, speech, physiotherapy), nutritional programmes, social interventions, teacher training and support, whole-'school' development and curriculum development initiatives.

Support is provided by and through: education support personnel (see below) members of the learning community (e.g. learners, parents, teachers); other community resources (e.g. volunteers, community workers, community based organisations, disabled peoples' organisations, welfare organisations, traditional healers); education support personnel (see below); and, through assistive devices (e.g. braining facilities, specialised communication devices, appropriate information technology,);

'Education Support Personnel: these include service providers from a number of disciplines and walks of life who have different kinds of knowledge and levels of skill. They may include, among others: 'special needs' teachers, Sign Language interpreters, social workers, doctors, nurses, psychologists, therapists, HIV/AIDS counsellors, career counsellors, nutritionists, child and youth workers, traditional healers, community workers, and organisation development consultants.

Educator: A person whose work involves educating others at all levels of education, in any type of education or training context, including formal and informal, eg. teacher, lecturer, parent, youth counsellor etc.

Effective Learning: refers to an ideal process of learning which centres of learning work to create and sustain for all learners

Further Education and Training (FET): FET refers to that level in the education training system which takes place after the nine years of compulsory general education and training (GET) (present Standard 7) but precedes higher education. FET can take place in formal school settings or in non-formal learning contexts.

General Education and Training (GET): According to the NQF, this level of education refers to the what is known as the compulsory schooling phase. This includes a pre-school (reception) year followed by nine years of primary and secondary education (up until the present standard 7). This level of the education system is provided for in the South African Schools Act (1996.)

Higher Education: This refers to that level in the education and training system. after general and further education that is acquired through courses offered by private and public professional colleges, professional institutes, technikons and universities.

Inclusive Learning Environment: Is one that promotes the full personal, academic and professional development of all learners irrespective of race, class, gender, disability, religion, learning styles and language. It is one which is free from discrimination, segregation, and harassment and which intentionally tries to facilitate an atmosphere of mutual acceptance and respect. It is an environment which respects learners and values them as partners in teaching and learning. It respects the rights of all learners and enables them to participate fully in a democratic society.

Learners: This term refers to all learners, ranging from early childhood education through to adult education. The terms "pupils" or "students" at school and higher education levels are therefore replaced by the term "learners".

Learners with Disabilities: refers to the group of learners with physical, sensory, intellectual or multiple impairments. Some learners with disabilities may require specialised equipment or teaching in order to access the curriculum and participate effectively in the learning process. Where such support is not provided learning breakdown often takes place.

Learning Breakdown: this happens when effective learning does not occur, and when the ideal process is not sustained

Life Skills: Life skills are abilities for adaptive and positive behaviour that enables us to deal effectively with the demands and challenges of everyday life. In the case of inclusive classrooms, life skills can be seen as those skills needed by every child in the classroom to cope with the demands of education in the best possible way to develop optimally according to his/her own potential.

National Qualifications Framework (NQF): This is a national framework set up by the Ministry of Education to provide for the registration of national standards and qualifications in the education system. It is based on outcomes reached at different levels within the system.

Outcomes Based Education (OBE): Outcomes based education is a design for education which is learner centred and orientated towards results or outcomes. It is based on the belief that all individuals can learn. In outcomes based education the curriculum is designed to promote attitudes, values and skills which are needed by the learner and the society. In this way the learner is equipped with what he/she should know to be able to participate actively in the society. It also includes a realisation that learners are different and that assistance may be needed to enable a learner to reach his/her full potential.

Parent: Throughout the document this term has been used in its broadest sense. That is, it includes legal guardians as well as primary care givers such as grandparents.

"Special Needs" in Education and Training: refers to needs or priorities which the individual person or the system may have which must be addressed in order to enable the system to respond to differences (diversity) in the learner population, remove barriers to learning, and promote effective learning among all learners.

Acknowledging that 'special needs' often arise as a result of barriers in the way the curriculum has been presented, it has been suggested that instead of referring to 'learners with special needs', we should refer to learners who experience barriers to learning. This includes learners with disability who commonly experience some form of difficulty in engaging in the learning process as well as the many other learners who experience some form of difficulty in engaging in the learning process for personal or socialreasons.

Having said this, however, this Public Discussion Document will at times refer to 'special needs' where it is important for us all to understand what we are referring to.