Development of inclusion - Germany

Since 1960, the situation of special education has been harmonised by several decisions adopted by the Standing Conference of the Ministers of Education and Cultural Affairs of the Federal Republic of Germany, the KMK. Within the process of discussion about SEN, this Conference has drawn up a consequent direction of educational development (1988). The system of special educational provision should be more flexible. It is no longer necessary to stipulate the place for special provision – the arguments are no longer ‘institution orientated’. The way and the place of special support now depend upon categories with regard to personal conditions. In this case, the terminology of ‘Needs for Special School’ (Sonderschulbedürftigkeit) has changed to ‘Special Educational Needs’ (SEN) (sonderpädagogischer Förderbedarf).

Since the 1980s, disabled pupils have been increasingly included in general schools under school pilot projects, some of which have assumed the status of a standard type of schooling since 1990. Also, various forms of co-operation between general schools and special schools have emerged and approaches to inclusive teaching have been developed in educational science.

The recent development of special education towards SEN is a process which involves the whole network of education. It is a process with increasing and ever-changing factors, which demands a lot of all the involved parties and is more than anything a huge challenge. Of course this process is accompanied by obstacles, lack of certainty and fear. New situations and conditions, in relation to co-operation, heterogeneity, classroom management, changing demands according to assessment and diagnosis, and so on, require great care and therefore facilitation, motivation, advice and training for all involved. In the Federal Republic of Germany the process of inclusion has developed with different intensity and with different basic goals; however, this process in an on-going one.

Recent years have seen a growing number of different assistance measures which have pursued the common aim of integration, not just as an end but as a means.  Consequently, various methods are used to provide opportunities for disabled children to receive instruction together with non-disabled children (see also Special needs education within the education system). 

A focus on institutions has given way to a focus on the needs of the individual. Formerly, the prevailing concept when making choices for a child's school career (i.e. the decision in favour of a mainstream school or a special school) was the need for education at a special school. This has since been superseded by the concept of Sonderpädagogischer Förderbedarf (special educational needs), meaning education, instruction, therapy and care requirements depending on an individual's physical disabilities and social disadvantages as far as the institutional setting allows. This development has been influenced by a new understanding of disabilities and educational needs, improved diagnostic techniques, more effective early detection and prevention as well as better overall conditions at mainstream schools (e.g. improved pupil-teacher ratios), more open approaches to instruction and education and, finally, a greater appreciation of the benefits to children attending a school close to their home. Offers of integration into mainstream schools for pupils with special educational needs are currently being extended in the Länder.

Teaching in inclusive settings with heterogeneous learning groups

Within the increasing process of inclusion the conditions for learning have changed. Schools and teachers increasingly agree upon concepts of more open forms of teaching and learning. The curricula for schools explicitly grant a lot of freedom to teachers and encourage them to orientate towards the different individual development and special needs of students rather than formal teaching objectives.

Consequences and changes evident in methods are, for example:

• operation-orientated learning;
• learning in groups of different levels;
• teaching with differentiated objectives;
• avoiding of marks in connection with recognition of individual process in learning;
• curricula as a direction and educational freedom;
• general compulsory requirements in accordance with individual requirements;
• weekly schedules;
• training time for consistent practice;
• organising individual/group activities;
• learning by doing, learning with all the senses

In relation to curricula:

• adaptation of teaching/learning to the students' interests;
• school as an area of living;
• environment as a place of learning;
• requirements of spelling books, calligraphy and text layout as motivation and aid to reading;
• importance of curricula in relation to questions and ideas of the students

Concerning institutions:

• strengthening the principle of a classroom teacher – ascription of teachers based on the number of pupils;
• global demands cannot be fulfilled by teachers;
• creation of an organisational framework which encourages the teacher to make small steps towards change: ‘reform from below’;
• regional further education for teachers as a means of exchanging experiences and promoting joint planning;
• introductory level, transition from playing to learning;
• testing of remedial classes.

This list of subjects will serve as a guideline for the on-going topical discussions as it focuses on the main subjects concerned with the process of movement towards inclusion.

The Ministers agreed that children and adolescents with SEN could be admitted to mainstream schools, provided the latter were able to offer the necessary educational support, equipment and facilities. If this was not the case and satisfactory conditions could not be offered, disabled pupils would have to be taught in special (general or vocational) schools. In any case, there is a need for very close co-operation between school and parents, among teachers, between schools and other agencies concerned, e.g. public health agencies, medical services, youth welfare services.