Inclusive Education Policy, the General Allocation Model and Dilemmas of Practice in Primary ...

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Title Inclusive education policy, the general allocation model and dilemmas
of practice in primary schools
Author(s) Egan, Margaret
Publication date 2013
Original citation Egan, M. 2013. Inclusive education policy, the general allocation model
and dilemmas of practice in primary schools. PhD Thesis, University
College Cork.
Type of publication Doctoral thesis
Rights © 2013, Margaret Egan
http://creativecommons.org/licenses/by-nc-nd/3.0/
Embargo information No embargo required
Item downloaded http://hdl.handle.net/10468/1247
from
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Inclusive Education Policy,
the General Allocation Model and
Dilemmas of Practice in Primary Schools

by

Margaret Egan

A thesis submitted in fulfilment of the requirement for the Degree of Doctor of
Philosophy, School of Education, National University of Ireland, Cork.

Supervisor: Dr Paul F. Conway
Head of School: Professor Kathy Hall

June 2013
Dedication
I wish to dedicate this PhD thesis to those at the centre of my life, Padraig, Sylvaine, Aisling
and Mary in acknowledgement of their constant and consistent support and encouragement,
which has sustained me throughout the five years of this process.

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Table of Contents
LIST OF FIGURES ...............................................................................................................................................................IV
LIST OF TABLES .................................................................................................................................................................. V
LIST OF ACRONYMS ..........................................................................................................................................................VI
DECLARATION ............................................................................................................................................................... VIII
ABSTRACT ........................................................................................................................................................... IX
Background .................................................................................................................................................. ix
Research Aims .............................................................................................................................................. ix
Methods and Sample .................................................................................................................................... ix
Results .......................................................................................................................................................... ix
Conclusion .................................................................................................................................................... x
ACKNOWLEDGEMENTS ................................................................................................................................................... XI
CHAPTER 1 INTRODUCTION ..................................................................................................................................... 1
1.1 INTRODUCTION ................................................................................................................................................................................. 1
1.2 PUZZLEMENTS: DEVELOPING THE RESEARCH QUESTION ......................................................................................................... 6
1.2.1 Predominance of Withdrawal as a Model of Support: Inclusion? .................................................................. 7
1.3 RATIONALE FOR THE STUDY .......................................................................................................................................................... 9
1.3.1 Resource/Need Match Dilemma ................................................................................................................................... 9
1.3.2 Dearth of Research Evidence........................................................................................................................................ 12
1.4 RESEARCH QUESTIONS ................................................................................................................................................................. 15
1.4.1 Sub questions: .................................................................................................................................................................... 15
1.5 CONTEXT OF THE STUDY .............................................................................................................................................................. 16
1.6 AUTOBIOGRAPHY .......................................................................................................................................................................... 17
1.6.1 The ‘I’ as an Undergraduate ......................................................................................................................................... 19
1.6.2 The ‘I’ as Teacher .............................................................................................................................................................. 19
1.6.3 The ‘I’ as Researcher ........................................................................................................................................................ 20
1.7 THEORETICAL FRAMING .............................................................................................................................................................. 21
1.7.1 Post-structuralism and Special Education ............................................................................................................. 21
1.7.2 Policy Analysis .................................................................................................................................................................... 24
1.8 THE SIGNIFICANCE OF THIS RESEARCH ..................................................................................................................................... 27
1.9 TIMELINE ........................................................................................................................................................................................ 28
1.10 OVERVIEW OF THE THESIS ....................................................................................................................................................... 29
1.11 CONCLUSION................................................................................................................................................................................ 31
CHAPTER 2 LITERATURE REVIEW ....................................................................................................................... 33
2.1 INTRODUCTION ............................................................................................................................................................................... 33
2.2 ESTABLISHING THE THEORETICAL FRAMEWORK ....................................................................................................................... 38
2.2.1 Pragmatism......................................................................................................................................................................... 38
2.2.3 Policy Analysis .................................................................................................................................................................... 42
2.2.4 Structure/Agency Dichotomy ...................................................................................................................................... 48
2.3 CONTEXTS OF INFLUENCE AND TEXT PRODUCTION .................................................................................................................. 58
2.3.1 Segregation and Inclusion in Ireland........................................................................................................................ 58
2.3.2 The General Allocation Model Text ............................................................................................................................ 62
2.4 DECONSTRUCTING INCLUSIVE EDUCATION ................................................................................................................................. 69
2.4.1 The Inclusion Debate ....................................................................................................................................................... 74
2.4.2 Dilemmas of Difference within the Context of Practice ..................................................................................... 76
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2.5 DECONSTRUCTING THE NEEDS/RESOURCE MATCH DILEMMA ................................................................................................ 78
2.6 DECONSTRUCTING PERSPECTIVES ON DISABILITY ..................................................................................................................... 82
2.6.1 Psycho-medical Paradigm ............................................................................................................................................. 83
2.6.2 Sociological Paradigm .................................................................................................................................................... 85
2.6.3 Organizational Paradigm ............................................................................................................................................. 86
2.6.4 An Overall Critique of Paradigms in Special Education .................................................................................... 88
2.7 DECONSTRUCTING THE INTERCONNECTION BETWEEN DEFICIT THINKING SOCIAL CLASS AND SPECIAL EDUCATION
PLACEMENT ........................................................................................................................................................................................... 91
2.7.1 Home/School Discontinuity .......................................................................................................................................... 96
2.8 FROM DECONSTRUCTION TO RECONSTRUCTION ........................................................................................................................ 98
2.8.1 Adhocracy ............................................................................................................................................................................ 99
2.9 CONCLUSION ................................................................................................................................................................................. 100
CHAPTER 3 METHODOLOGY ................................................................................................................................ 102
3.1 INTRODUCTION ............................................................................................................................................................................ 102
3.2 FIELDWORK .................................................................................................................................................................................. 104
3.2.1 School A: Boys’ School .................................................................................................................................................. 106
3.2.2 School B: Girls’ School .................................................................................................................................................. 106
3.2.3 School C: Mixed School ................................................................................................................................................. 107
3.3 THEORETICAL FRAMEWORK: POLICY ANALYSIS ................................................................................................................... 109
3.4 RESEARCH PARADIGM ................................................................................................................................................................ 111
3.4.2 Affordances and Constraints of the Paradigm Choice ..................................................................................... 114
3.4.4 Qualitative Studies in Inclusive/ Special Education ........................................................................................ 116
3.4.5 Mixed Method Research Design ............................................................................................................................... 119
3.5 METHODOLOGY ........................................................................................................................................................................... 120
3.5.1 Case Study ......................................................................................................................................................................... 122
3.5.2 Interviewing in Educational Research .................................................................................................................. 123
3.6 DATA ANALYSIS........................................................................................................................................................................... 128
3.6.1 Grounded Theory Approach to Data Analysis .................................................................................................... 130
3.6.2 Using Qualitative Data Analysis Software ........................................................................................................... 131
3.6.3 Discourse Analysis ......................................................................................................................................................... 136
3.6.4 Utilising the Pobal Haase Index of Affluence and Deprivation .................................................................... 139
3.6.5 Reflective Memos ........................................................................................................................................................... 141
3.7 AUTHORIAL STANCE OF THE CASE RESEARCHER .................................................................................................................. 143
3.8 ETHICAL ISSUES ........................................................................................................................................................................... 146
3.8.1 Informed Consent ........................................................................................................................................................... 147
3.9 RELIABILITY AND VALIDITY ...................................................................................................................................................... 149
3.10 CONCLUSION.............................................................................................................................................................................. 151
CHAPTER 4 CLAIMS ................................................................................................................................................. 153
4.1 INTRODUCTION ............................................................................................................................................................................ 153
4.2 CLAIM ONE: DISCURSIVE FEATURES OF POLICY TEXT AS SPACES FOR MANOEUVRE ......................................................... 161
4.2.1 Conditionality .................................................................................................................................................................. 162
4.2.2 Multiplicity ....................................................................................................................................................................... 163
4.2.3 Opaqueness ...................................................................................................................................................................... 166
4.2.4 Singular Diversity: Absent Recognition of Intersectionality ......................................................................... 167
4.3 CLAIM 2: CONTEXT OF PRACTICE: WHERE POLICY TEXT IS CAPTURED .............................................................................. 170
4.3.1 Withdrawal: “they go out and they never come back” .................................................................................. 171
4.3.2 Intersectionality with Social Class .......................................................................................................................... 180
4.3.3 Local Constructions of Dis/Ability and Interconnection with Social Class ............................................. 194
4.3.4 Professional Agency ...................................................................................................................................................... 206
4.3.5 Parental Agency ........................................................................................................................................................ 216
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4.3.6 Home/School Discontinuity ....................................................................................................................................... 220
4.4 CLAIM THREE: THE GAM AS A DILEMMA WITHIN THE DILEMMA ....................................................................................... 224
4.4.1 ‘We did well out of the GAM’: Ordinary Schools are Different...................................................................... 227
4.5 CONCLUSION ................................................................................................................................................................................. 229
CHAPTER 5 CONCLUSION: DILEMMAS AND DIRECTIONS ......................................................................... 233
5.1 INTRODUCTION ............................................................................................................................................................................. 233
5.2 THEME A: THE ‘INCLUSIVENESS’ OF OUR INCLUSIVE SCHOOLS .............................................................................................. 238
5.3 THEME B: THE INTERLOCKING NATURE OF SOCIAL CLASS AND SEGREGATED SPECIAL EDUCATION PRACTICE ............. 242
5.4 THEME C: METHODOLOGICAL PLURALISM TO REFINE A GENERAL ALLOCATION ........................................................... 245
5.5 THEME D: TODAY’S POLICY SOLUTIONS AS TOMORROW’S DILEMMAS ................................................................................. 247
5.5.1 Needs/Resource Mach Dilemma – Lessons Learned ........................................................................................ 247
5.6 CONTRIBUTION TO THEORY, POLICY AND PRACTICE ............................................................................................................... 249
5.6.1 Home/School Discontinuity: ‘The way we do things here’ ........................................................................... 249
5.6.2 Policy Investments targeted towards Prevalence of Need ............................................................................ 250
5.6.3 Classrooms as Dilemmatic Spaces ........................................................................................................................... 251
5.6.4 From Bureaucracy to Adhocracy to negotiate Dilemmatic Spaces ........................................................... 254
5.7 CONCLUSION ................................................................................................................................................................................. 257

REFERENCES .................................................................................................................................................. 262

GLOSSARY ...................................................................................................................................................... 293

APPENDICES .................................................................................................................................................. 298
APPENDIX A .................................................................................................................................................... 299
Department of Education and Science (DES) (2005). Circular SP ED 02/05: Organisation of Teaching
Resources for Students with Special Educational Needs in Mainstream Primary Schools Dublin:
Government Stationary Office. .................................................................................................................. 299
APPENDIX B .................................................................................................................................................... 300
Letter to Chairperson of the Board of Management of Management requesting participation of school staff
in the study. ................................................................................................................................................ 300
APPENDIX C .................................................................................................................................................... 301
Letter to the Principal requesting participation in the study. .................................................................... 301
APPENDIX D .................................................................................................................................................... 302
Letter to teaching staff requesting participation in the study. ................................................................... 302
APPENDIX E ....................................................................................................................................................... 303
Semi-Structured Interview Schedule. ......................................................................................................... 303
APPENDIX F .................................................................................................................................................... 304
Categorising of codes using NVivo 9: Phase One ..................................................................................... 304
APPENDIX G .................................................................................................................................................... 305
Categorising of Codes utilizing NVivo 9: Phase Two. ................................................................................ 305
APPENDIX H .................................................................................................................................................... 306
Categorising of Codes utilizing NVivo 9: Phase Three ............................................................................. 306
APPENDIX I ..................................................................................................................................................... 307
Individual Student Profile with respect to Household Status according to the Pobal HP Index. .............. 307
APPENDIX J ..................................................................................................................................................... 308
Calculations for Affluence and Deprivation among the School Population and Students with SEN. ........ 308

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List of Figures
Figure 1.1 Vignette: Withdrawal as model of support ....................................................................................... 6
Figure 1.2 From withdrawal to disaffection to drop-out .................................................................................. 8
Figure 1.3 A childhood memomory.......................................................................................................................... 17
Figure 1.4 Timeline of research study .................................................................................................................... 29
Figure 2.1 Themes emerging from the Literature Review ............................................................................. 36
Figure 2.2 The policy cycle (Bowe, Ball and Gold, 1992) ................................................................................ 46
Figure 2.3 The continuous policy cycle (Ball, 1994) ......................................................................................... 47
Figure 2.4 Interconnection between local notions of ability, social class and school ordering ...... 90
Figure 2.5 A Model of schooling /the intergenerational transmission of socioeconomic status .. 92
Figure 3.1 Policy cycle ................................................................................................................................................ 109
Figure 3.2 Four genres of educational research .............................................................................................. 113
Figure 3.3 Principles of educational research (Borko et al., 2007) ......................................................... 115
Figure 3.4 Types and descriptions of qualitative research ......................................................................... 117
Figure 3.5 Summary of methodological framework for the study ........................................................... 121
Figure 3.6 Instrumental case study in three settings .................................................................................... 123
Figure 3.7 Grounded theory approach to data analysis ............................................................................... 130
Figure 3.8 Data sources .............................................................................................................................................. 132
Figure 3.9 Transcription into NVivo ..................................................................................................................... 133
Figure 3.10 The 'I' in the research ......................................................................................................................... 144
Figure 4.1 An adaption of the policy cycle: conceptual framework ....................................................... 155
Figure 4.2 Policy cycle 'reframed' .......................................................................................................................... 157
Figure 4.3 Interconnection between constructions of ability/social class/special education .... 198
Figure 4.4 Intersectionality between LSES and special education placement ………………………...182
Figure 4.5 Number of children in special education classified by HP Index ……………………………188
Figure 4.6 Interconnection between local notions of ability, SES and special education …………198
Figure 4.7 Sociological theories to explain social construction of HI disability ……………………….210
Figure 4.8 Transactions of the GAM in the context of practice ……………………………………………….214
Figure 4.9 Structure/Agency interplay and the management of diversity……………………………….223
Figure 5.1 Vignette: The 'I' and the reader in conversation ………………………………………………..…237

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List of Tables
Table 2.1 Overview of key literature reviewed for the research ............................................................... 35
Table 2.2 Approximate number of students with LI disabilities for the year 2012-13 .................. 68
Table 3.1 School A: Boys’ school .......................................................................................................................... 106
Table 3.2 School B: Girls’ school ............................................................................................................................ 107
Table 3.3 School C: Mixed school .......................................................................................................................... 108
Table 3.4 Policy cycle contexts (Bowe, Ball and Gold, 1992) .................................................................... 110
Table 3.5 Policy cycle, extended contexts (Ball, 1994) ................................................................................ 111
Table 4.1 Claims ........................................................................................................................................................... 158
Table 4.2 Emerging categories ............................................................................................................................... 160
Table 4.3 Demographic data highlighting disproportionality in special education ......................... 181
Table 4.4 Chi-squared analysis to illustrate significance of disproportionality ................................ 183
Table 4.5 Socioeconomic profile of students in special education .......................................................... 185
Table 4.6 Life circumstances of the students in special education when compared with overall
student population ...................................................................................................................................................... 187
Table 4.7 Teaching hours allocated under the GAM and the RTH model in the three schools ...226

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List of Acronyms
ADHD Attention deficit Hyperactivity Disorder
ASD Autistic Spectrum Disorder
BESD Behavioural, Emotional and Social Difficulty
CSO Central Statistics Office
DCSF Department of Children, Schools and Family (UK)
DEIS Delivering Equality of Opportunity in Schools
DES Department of Education and Skills
DfE Department for Education (UK)
EADSNE European Agency for Development in Special Needs Education
EBD Emotional Behavioural Difficulties
EHA Education for All Handicapped Children Act (USA)
EPSEN Education for Persons with Special Educational Needs
ESRI Economic and Social Research Institute
GAM General Allocation model
HSE Health Service Executive
HI High Incidence (disability)
IDEA Individuals with Disabilities Act (USA)
IEP Individual Education Plan
INTO Irish National Teachers Organisation
LRE Least Restrictive Environment
LI Low Incidence (disability)
LS/RT Learning Support/Resource Teacher
MGLD Mild General Learning Disabilities
NCCA National Council for Curriculum and Assessment
NCLB No Child Left Behind (US)
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NCSE National Council for Special Education
NDA National Disability Authority
NDS National Disability Survey
NEPS National Educational Psychological Service
NIDD National Intellectual Disability Database
NPSD National Physical and Sensory Database
OECD Organisation for Economic Co-operation and Development
OSER Office of Special Education and Rehabilitation Services
REI Regular Education Initiative
RTH Resource Teaching Hour (Model)
SEN Special Educational Needs
SENO Special Educational Needs Organiser
SERC Special Education Review Committee
SESS Special Education Support Service
SNA Special Needs Assistant
UNESCO United Nations Educational, Scientific and Cultural Organisation
WHO World Health Organisation.

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