c e p s Journal | Vol.

5 | No1 | Year 2015 31

Inclusive Education for Children with Specific Learning

Difficulties: Analysis of Opportunities and Barriers in
Inclusive Education in Slovenia

Marija Kavkler*1, Milena Košak Babuder2 and Lidija Magajna3

• Inclusive education allows for universal inclusion, participation and

achievement of all children, including children with specific learning
difficulties (SpLD). Children with SpLD form a heterogeneous group
with diverse cognitive deficits, special educational needs (SEN) and
strengths, and have a legislated right to the continuum of both assistance
and support programmes. Although their intellectual capacity is average
or above average, their learning achievements in some learning domains
are modest, and they are poorly integrated into their social environ-
ment, which often results in their discrimination. Barriers and oppor-
tunities in the area of SpLD were analysed with the aid of Ball’s model
(1994), with factors and conditions being analysed within the contexts
of policy influence, text production and practice. The contexts of policy
influence and text production provide the basic conditions for the in-
clusive education of children with SpLD. The context of influence on in-
clusive policy for children with SpLD represents a systematic approach
to policy initiation and to the prerequisites for its implementation in
practice. The context of policy text production focuses on professionals
and their impact on the enactment of the rights of children with severe
SpLD. The context of practice concerns barriers and opportunities for
implementing inclusion in practice. Early identification and diagnosis of
pupils’ strengths, deficits and SEN, together with intensified treatment
corresponding to the SEN of children with SpLD, could significantly in-
fluence the efficiency of the educational process. Barriers, primarily of
an immaterial nature, are mainly encountered in those schools that do
not implement the five-tier Response to Intervention (RTI) approach.
This approach enables children with SpLD a continuum of team-based
diagnostic evaluation, effective adaptations and assistance. The main
reasons for the unfavourable situation concern education professionals
1 * Corresponding Author. University of Ljubljana, Faculty of Education, Slovenia;
[email protected]
2 University of Ljubljana, Faculty of Education, Slovenia
3 University of Ljubljana, Faculty of Education, Slovenia
32 inclusive education for children with specific learning difficulties

and their attitude towards children with SpLD, poor knowledge of

SpLD, a lack of teamwork in problem solving, and a lack of partnership
commitment between education professionals, parents and children. It
is expected that changes could be brought about through innovations in
the education of future teachers, and through positive cases of children
with SpLD being treated effectively in practice. The conditions for the
development of the inclusive treatment of children with SpLD could be
created through legislative and systematic work.

Keywords: children with specific learning difficulties, inclusion, the

context of policy influence, the context of policy text production, the
context of practice, barriers
 c e p s Journal | Vol.5 | No1 | Year 2015 33

Inkluzivno izobraževanje otrok s specifičnimi učnimi

težavami: analiza priložnosti in ovir inkluzije v Sloveniji

Marija Kavkler*, Milena Košak Babuder in Lidija Magajna

• Inkluzivna vzgoja in izobraževanje omogočata vključenost, participaci-

jo in uspešnost vseh otrok, tudi tistih s specifičnimi učnimi težavami.
Otroci s tovrstnimi težavami so raznolika skupina otrok z raznolikimi
primanjkljaji, s posebnimi potrebami ter z močnimi področji in uzakon-
jeno pravico do kontinuuma programov pomoči in podpore. So pogosto
diskriminirani, saj kljub povprečnim in nadpovprečnim intelektualnim
sposobnostim dosegajo nizke izobraževalne dosežke in so tudi socialno
slabše vključeni. Analiza možnosti in ovir na področju specifičnih učnih
težav je bila izvedena s pomočjo Ballovega modela (1994). V prispevku
so analizirani dejavniki in pogoji v kontekstu vpliva na inkluzivno poli-
tiko, kontekstu oblikovanja zakonodaje in v kontekstu prakse. Kontekst
vpliva politike in kontekst oblikovanja zakonodaje omogočata osnovne
pogoje za inkluzivno vzgojo in izobraževanje otrok s specifičnimi
učnimi težavami. V kontekstu vpliva na inkluzivno politiko za otroke s
specifičnimi učnimi težavami je predstavljen sistematičen pristop k ob-
likovanju politike in razvoju pogojev za njeno uresničevanje v praksi.
V kontekstu oblikovanja zakonodaje pa je predstavljen vpliv stroko-
vne javnosti na uzakonitev pravic otrok s težjimi specifičnimi učnimi
težavami. Ovire in možnosti za uresničevanje inkluzije v praksi so prika-
zane v kontekstu prakse. Zgodnje odkrivanje in diagnosticiranje močnih
področij, primanjkljajev in posebnih potreb ter povečevanje inten-
zivnosti obravnave skladno s posebnimi potrebami otrok s specifičnimi
učnimi težavami bi pomembno vplivali na učinkovitost vzgojno-
izobraževalnega procesa. Ovire, ki primarno niso materialne narave, so
prisotne v tistih šolah, ki ne uresničujejo petstopenjskega modela odziva
na obravnavo, ki omogoča otrokom s specifičnimi učnimi težavami kon-
tinuum diagnostičnega ocenjevanja, učinkovitih prilagoditev in oblik
pomoči s pomočjo timskega soustvarjanja rešitev. Pomembni vzroki za
neugodno stanje so: stališča strokovnih delavcev do posebnih potreb
otrok, skromno znanje s področja specifičnih učnih težav ter premalo
timskega reševanja izzivov in partnerskega odnosa med strokovnimi
delavci, starši in otroki. Spremembe lahko pričakujemo od novosti pri
34 inclusive education for children with specific learning difficulties

izobraževanju prihodnjih učiteljev in pozitivnih primerov učinkovite

obravnave otrok s specifičnimi učnimi težavami v praksi. S sistemskim
in sistematičnim delovanjem bi lahko dosegli pogoje za razvoj inkluz-
ivne obravnave otrok s specifičnimi učnimi težavami.

Ključne besede: otroci s specifičnimi učnimi težavami, inkluzija,

kontekst vpliva na inkluzivno politiko, kontekst oblikovanja
zakonodaje, kontekst prakse, ovire
 c e p s Journal | Vol.5 | No1 | Year 2015 35

Introduction

The UN Convention on the Rights of the Child (1989, in KOP, 1990) is

one of the central documents delineating the rights of all children, including
children with SEN. In all social, economic and cultural contexts and policies,
children with SEN, as well as children with SpLD, tend to be discriminated
against and marginalised too a much greater extent than their peers without
SEN. There is too much emphasis on the deficits, disabilities and barriers of
children with SEN, while their strengths remain undervalued and their SEN
neglected. Although some positive changes have occurred in recent years, there
is still a big gap between the needs of children with SEN and the way these
needs are addressed in school and society (UNICEF, 2007).
The inclusive treatment of children with SEN (and with SpLD) depends
greatly on the model selected: the medical model or the social model. The med-
ical model emphasises the deficits, impairment, disabilities and barriers of an
individual, which is why medical-rehabilitative treatment in specialised insti-
tutions is, in this model, presented as the most effective way of improving the
individual’s achievements (Oliver, 2004; Hargrass, 2005). In the social model,
attention is shifted from the “personal tragedy” to the need for changing the
social environment in which children with SEN live and act (UNESCO, 2001).
Inclusion is based on the social model, which is why the social and educational
environment should be adapted for children with SEN as much as possible. The
social model of including children with SEN has been the focus in the EU since
as early as 1991 (Ainscow, 2005). One of the most important factors contribut-
ing to inclusive schooling of children with SEN in EU countries is the shift
from a medical orientation to a more socially interactive orientation (Meijer,
Soriano, & Watkins, 2003; Kavkler, 2011).
Inclusion and the quality of education are interrelated, as the ethics of in-
clusion contributes considerably to the quality education of all children. Both
influence the development of a society that is just and democratic, and that values
diversity (European Agency for Development in Special Needs Education, 2009).
There can be no quick changes in the schooling of children with SEN (Falvey &
Givner, 2005). Inclusion is not just another programme or an adapted strategy, it
is a way of living together so that everyone gains something, is valued and feels
connected with the community. Inclusion should not be equated with integra-
tion, nor should it be understood as a mere supplement to the existing school
structure; instead, it should be seen as a process of changing society, the environ-
ment and institutions, which need to consider and value diversity more (Hegarty,
2003; European Agency for Development in Special Education, 2010).
36 inclusive education for children with specific learning difficulties

Child-centred school is a basis for a human-centred society that respects

diversity, allows for the optimal development of every individual and their po-
tential, and treats all people with respect (Lorenz, 1999). In the long term, inclu-
sive education eliminates prejudices towards children with SEN amongst their
peers (Drabble, 2013). School teams that have opted for inclusion deal construc-
tively with the barriers that all children encounter in the educational process,
barriers that children with SEN face to an even greater extent.

Definition and Classification of Children with Low Educational

Achievement

Children with low educational achievement may experience a diverse

range of problems, which are often complex and difficult to resolve.
According to Lerner’s (2003) definition, children and youth with low
achievement (referred to in the continuation merely as children) are a very di-
verse group of children with various cognitive, social, emotional and other fea-
tures, who have significantly greater difficulties in learning than the majority of
their peers. Some experience only general learning difficulties (LD), some face
only SpLD, while many experience both.
In Slovenia, children with low achievement or learning problems (with-
out intellectual disabilities) account for 20% of all school children, and are
classified into general learning difficulties (general LD) and specific learning
difficulties (SpLD). The term specific learning difficulties (SpLD) implies a neu-
robiological nature of the learning impediment in specific learning areas, and
includes developmental dyslexia, dyscalculia and nonverbal learning disabili-
ties. Alternative terms in use for SpLD are learning disabilities, specific learning
disorder (DSM V in APA, 2013) or specific developmental disorders of scholas-
tic skills (ICD 10, 1996).
Children with SpLD (the entire continuum ranging from mild to severe
SpLD) are a very diverse group. Due to known or unknown disabilities or dif-
ferences in the functioning of their central nervous system, they experience
severe difficulties in reading, writing, spelling and arithmetic, despite their av-
erage or above-average intellectual abilities. Delays and deficits in attention,
memory, thinking, coordination, communication, social skills and emotional
maturity are also present. These deficits influence the cognitive processing of
verbal and non-verbal information, hinder the acquisition and automation of
learning skills, and influence learning and behaviour throughout the individu-
al’s lifetime. They are internal and not primarily related to either inappropriate
teaching and other environmental factors, nor are they related to impairment of
 c e p s Journal | Vol.5 | No1 | Year 2015 37

a visual, hearing or motoric kind, mental disabilities or behavioural and emo-

tional problems (disorders), although they may occur simultaneously with such
problems (Kavkler & Magajna, 2008).
SpLD are characterised by the child’s strengths and specific disabilities
or deficits, causing significantly lower learning achievement in some learning
areas (reading, writing, arithmetic and spelling) than would be expected given
the child’s age, class, social and cultural background, and level of intellectual
ability. Such disabilities can occur with gifted children as well, and can be very
persistent in spite of hard work and regular training. They hinder learning in
specific areas, both in the case of children with socially and culturally disadvan-
tageous backgrounds and of children with adequate support and understand-
ing in their families.
When identified in time and offered suitable forms of teaching and as-
sistance, many children with SpLD can compensate for their problems by using
effective learning techniques and activating their strong learning areas, even to
the extent that they are successful and need no further guidance and additional
professional assistance.

Historical Perspective

A review of past professional endeavours can help us understand the

development of the field of general LD and SpLD (Magajna, Kavkler, & Križaj
Ortar, 2003). In 1976/77, the share of primary school pupils enrolled in special
institutions was as high as 3.4%. Many of these children did not actually have
intellectual disabilities, but rather experienced severe general LD and SpLD;
they were nonetheless enrolled in schools that implemented programmes with
lower educational standards. There was a high dropout rate in primary schools
between 1960 and 1980, with only 90% of children completing primary school
successfully, prompting responsible education professionals to attempt to ad-
dress the situation. In order to reduce the dropout rate in primary schools, vari-
ous preventive measures were introduced in preschool and medical institutions
after 1980, e.g., psychological screening of all 3-year-olds and speech-language
examinations for 5-year-olds. In addition, 6-year-olds were included in pre-
school programmes (500 hours) in which they developed the knowledge and
skills necessary for the more successful formal education of risk groups. School
counselling services were expanded. The reading skills of all 8-year-olds were
checked preventively, and assistance was offered wherever needed (Magajna et
al., 2003). In Slovenia, a comprehensive and systematic approach helped to sig-
nificantly reduce the dropout rate.
38 inclusive education for children with specific learning difficulties

Analysis of Opportunities and Barriers in Inclusive Edu-

cation for Children with Specific Learning Difficulties

At the Standing Conference of European Ministers of Education of

the Council of Europe in 2010, Zgaga (Žolnir, 2010) emphasised a major new
challenge facing education professionals: to acknowledge the diversity in the
population of children who do not learn with the same eagerness, nor with
the same ability and success in all subjects. The diversity of the school pop-
ulation is evident from their learning achievements. In Slovenia, 1.3% of pu-
pils failed to complete primary school in 2010/11 (SURS, 2012). On average,
the results of international research were good. PISA results (2012, in Štraus,
Šterman Ivančič, & Štigl, 2013), on the other hand, show that approximately
20% of 15-year-olds, many of whom have general LD and SpLD, failed to reach
Step 2 in various fields of literacy that would enable their learning achievement
(Srebotnik, 2013). Children with SEN, almost 40% of whom are identified as
having severe SpLD, have lower learning achievement in comparison to their
peers in national testing as well, despite adjustments being made during testing.
The National Centre for External Evaluation (RIC, 2013) found that, on average,
children with SEN achieved 38.3% points compared to their peers without SEN
who achieve 53% points. Some 76.7% of children with SEN achieve 50% points
and less compared to 40.2% of their peers with such a result (RIC, 2013). M.
Peček Čuk and I. Lesar (2010) examined the differences that primary school
teachers (207 class teachers and 207 subject teachers) perceive in the behav-
ioural responses and learning achievement of children with SEN and those of
their peers. Overall, the average learning achievement of children with SEN
was significantly lower (average grade of 2.70) than that of their peers (aver-
age grade of 3.98). Children with severe SpLD have the lowest average learning
achievement, at 2.05. Teachers also noted that children with severe SpLD stood
out due to their negative self-image.
Children with mild, modest or severe SpLD, amounting to 10% of all
children, constitute one of the most numerous groups of children with SEN,
which is why the authors of the present article decided to analyse some factors
influencing their educational achievement.
Barriers and opportunities for realising inclusive education of children
with SpLD were analysed with the help of Ball’s model (Ball, 1994; Tikondwe
Kamchedzera, 2011; Kavkler, 2011). This model served as an analytical and con-
ceptual framework for exploring the relation between the contexts of policy,
legislation and practice in the area of inclusion. The educational and social
needs of children with SpLD differ significantly from those of their peers due to
 c e p s Journal | Vol.5 | No1 | Year 2015 39

deficits that are neuro-physiological in origin and impair learning. The article
focuses mainly on the analysis of barriers and opportunities for the develop-
ment of inclusion in the area of SpLD. Ball’s model includes three interactive
contexts: the context of policy influence, the context of policy text production and
the context of practice.

The Context of Policy Influence

The context of policy influence is the context of policy-making in the field

of the inclusion of children with SEN, including children with SpLD. Within
this context, the formation of an inclusive policy is influenced by participants in
power structures, ranging from the government, the relevant minister and rep-
resentatives of departments of the Ministry of Education, Science and Sports,
and the National Education Institute of the Republic of Slovenia, to key pro-
fessional associations and individuals. It is they who have an impact on the
choice of the theoretical frameworks used to define special needs, on delineat-
ing the population of children with SEN, on selecting either the medical or
the social model, and on the social purpose and aims of children with SEN
education. Education reforms, especially in the field of SEN, often create an
ideological battlefield driven by various economic and other factors, as well as
by the perceptions of the participants in power (Levine et al., 2003, in Tikondwe
Kamchedzera, 2011; Ainscow, 2003).
Even some influential Slovenian experts in the field of education have a
poor knowledge of the complexity and neurobiological background of learning
deficits, and of the SEN of the child population with SpLD (the entire continu-
um ranging from mild to severe SpLD is referred to as SpLD, except in legisla-
tive and other definitions, which recognise severe SpLD), tending to deal with
learning deficits as transitional, related only to early education. There is a fear
that additional methods of professional assistance for the largest group of chil-
dren with SpLD within the SEN category would require overabundant funding,
as severe SpLD accounts for nearly 40% of all children identified with SEN.
Those who doubt the complexity of SpLD and the right of children with SpLD
to adaptations in their education process, as well as to additional professional
assistance, fail to recognise that the financial resources used to finance profes-
sional assistance are the most economical investment a state or individual can
make, as the adequate treatment of children with SpLD alleviates their educa-
tional, employment and social inclusion problems. The financial investment
in education later delivers high returns that far exceed the cost of material and
scientific resources (Bassanini & Scarpetta, 2001; Jereb, 2011).
40 inclusive education for children with specific learning difficulties

The development of the field of SpLD has been based on analyses of

practice, examination of foreign models and strategies, and systematic drafting
of the required documents to implement changes in practice. In the continua-
tion, some steps will be described that have influenced policy-making and the
development of the field of SpLD. Some of the activities that have had a vital
impact on the development of the field of SpLD have been implemented as part
of the broader realm of low achievement.
The first time the criteria for identifying severe SpLD, the differences
between varying degrees of SpLD from mild to moderate or severe SpLD, and
the continuum of programmes for children with SpLD (Magajna & Kavkler,
2002) were presented to a professional audience was in 2002. The population
of children with severe SpLD was defined in detail in the Rules on Criteria for
Determining the Type and Degree of Disadvantages, Impairments and Disabili-
ties of Children with Special Needs (Magajna & Kavkler, 2002). Nevertheless, the
numerous challenges that still remain in defining and improving the criteria for
assessing the severity of SpLD in the continuum of the child population with
SpLD led to amendments, adopted in 2014, in the Criteria for Determining the
Type and Degree of Disadvantages, Impairments and Disabilities of Children with
Special Needs – Children with Deficits in Individual Learning Areas (Magajna et
al., 2014).
The planned changes in the broader field of low achievement, which
include both general LD and SpLD, were based on an analysis of the actual
conditions. As part of the project Pupils with Learning Difficulties in Primary
School – Developing a Comprehensive System of Effective Assistance (Magajna et
al., 2005), a study was conducted to analyse the situation in the field of general
LD and SpLD. It revealed that treatment of these pupils in Slovenia was not
comprehensive, integrated and long term. There was a wide gap between the
rapid progress of theory and scientific findings in various disciplines that deal
with the different causes of LD, examine effective new approaches to study sup-
port and teaching strategies, and work on early identification and prevention,
and the implementation of these findings in practice. The study exposed or-
ganisational and motivation problems as the most common and critical issues,
along with problems related to the competence of teachers to assist children
with general LD and SpLD. It was determined that education professionals dif-
fer significantly in their perception of LD, as well as with regard to certain other
key issues (ways of handling various types of LD). The study showed a clear dis-
tinction in assessing the effectiveness of various forms and sources of assistance
between children and parents, on the one hand, and education professionals,
on the other, while also highlighting challenges in communication and the lack
 c e p s Journal | Vol.5 | No1 | Year 2015 41

of teachers’ competence to recognise and acknowledge pupils’ strengths.

The analysis of the problems in the field of general LD and SpLD, togeth-
er with certain more recent models and concepts, an in-depth insight into good
practice experiences and strengths, critical issues and barriers found in practice
in Slovenia, and Slovenian and foreign documents, established the groundwork
for a range of experts in various disciplines from faculties of the University of
Ljubljana, the Counselling Centre, and the Education Development Office of
the Republic of Slovenia, as well as experts from practice, to design a compre-
hensive and systematic support model entitled “The Concept of Working with
Pupils with Learning Difficulties” (Magajna et al., 2008a). The document intro-
duces a vision and practical suggestions for overcoming underachievement in
education and working with children with general LD and SpLD – but not those
with severe SpLD – ranging from identification, assessment, teaching and more
specialised forms of assistance, to the team-based creation of solutions that al-
low for sufficient flexibility and adaptation to the various forms and contexts of
difficulties. The emphasis is on a shift from certain traditional perceptions and
approaches that insisted on focusing on difficulties and deficits, to the strengths
perspective: identification and utilisation of the individual’s strengths, and en-
couraging personal characteristics that can lead to a successful life and career
even when some LD remain.
A conceptual framework for the systemic comprehensive treatment of
children with general LD and SpLD, including severe SpLD to a certain de-
gree, was developed to address the key problems of identification and treatment
(The Concept ‘Learning Difficulties in Primary School’, Magajna et al., 2008a).
As part of the concept, a five-step model of assistance was devised, based on
scientific and material resources already available in the Slovenian school sys-
tem. The five-tier RTI approach enables children at risk of school failure to be
identified early and provided with effective study assistance and support in col-
laboration with all participants, from the children themselves to their parents
and education professionals. As general and specific LD vary in their degree of
intensity, there need to be various forms of assistance for children with SpLD,
with increasing intensity and specificity on the spectrum from step 1 to step 5
in order to meet children’s individual needs. Teaching organised this way and
various forms of assistance require increasingly specific knowledge on the part
of the education professionals who provide the assistance. The entire spectrum
of the five steps of assistance is only effective if education professionals, parents
and pupils work together well and deliver on their responsibilities, which, in
turn, requires evaluation. By including specific targets and agreed responsibili-
ties, an “individual working project of help”, implemented in schools in steps
42 inclusive education for children with specific learning difficulties

1–4, helps to provide an overview of the work with a child with SpLD. After
each step, a final evaluation assessment must to be made, which includes an
assessment of both the child’s progress and the effectiveness of the assistance, as
well as opinions on and proposals for its continuation. In step 5, a team of the
school’s education professionals makes an individualised programme for the
child with severe SpLD, which serves as a binding document for teachers and
other education professionals.
The Guide to Customized Primary School Curriculum Implementation
with Additional Professional Assistance – Children with Deficits in Individual
Learning Areas (Kavkler et al., 2008) features a varied range of adaptations to
overcome various deficits of children with severe SpLD.
In the period from 2009 to 2011, as part of the EU project Professional
Basis for Further Development and Implementation of the Concept ‘Learning Dif-
ficulties in Primary School’, a project group of staff from the Faculty of Educa-
tion and the Faculty of Social Work of the University of Ljubljana drafted a
theoretical background for strategies for identifying and assessing general LD
and SpLD, providing assistance and support, and team-based solution finding.
Inclusion teams (the project Using Inclusion Teams to Implement the Concept
‘Learning Difficulties in Primary School’ 2009–2011) helped to test the findings in
practice. Four books were published and distributed to all primary and second-
ary schools free of charge with the following topics: Pupils with Learning Dif-
ficulties – Selected Topics; Identification and Diagnostic Assessment; Assistance
and Support; Individual Working Project of Help. All of the materials on learning
difficulties and SpLD produced as part of the project are still available to inter-
ested parents and education professionals on the website www.ucne-tezave.si.
This outline of the Context of Influence indicates that good planning
and systematic activities can create the conditions for the development of an
inclusive treatment policy for children on the continuum of general LD and the
continuum of specific LD.

The Context of Policy Text Production

The Context of Policy Text Production is concerned with the drafting of

laws and other documents, in this case those that enable the enactment of SEN
policy. According to Ball (1994), legal documents are necessarily a product of
compromise at various levels of policy-making, from the early conceptual influ-
ence of interested parties, to the reading and adoption processes in parliament.
E. Tikondwe Kamchedzera (2011) notes that the production of policy text in the
field of SEN depends on the motivation of the elites for inclusion implementation,
 c e p s Journal | Vol.5 | No1 | Year 2015 43

on the perception of inclusion and special needs concepts, and on the choice of
paradigms that influence the policy and the rights of people with SEN.
Internationally, inclusive education is seen as a reform that supports di-
versity amongst all children, and as a principle that defines education as a basic
human right and the foundation for a more just and equal society (Ainscow &
Sandill, 2010). The following international documents are some of the key pol-
icy texts comprising the legal framework that supports inclusion: The Universal
Declaration of Human Rights (1948); The UN Convention on the Rights of the
Child (1989); The World Declaration on Education for All (1990); The Standard
Rules on the Equalization of Opportunities for Persons with Disabilities (1993);
The Salamanca Declaration (1994); The Right to Education for Persons with Dis-
abilities: Towards Inclusion (2001); The Convention on the Rights of Persons with
Disabilities (2006), etc. (in UNESCO, 2005; UNESCO, 2009).
Vital for the development of the field of SpLD is the Written Declara-
tion 64/2007 on “dys”crimination and social exclusion affecting children with
“dys”abilities, adopted in the EU Parliament on 12 November 2007 (Rejouis-
Panayotopoulos, 2007). The declaration was signed by the majority of Slovenia’s
MEPs.
As the SEN of children with SpLD range on a continuum from less to
more explicit, legislation in Slovenia governs the rights of children with SpLD
with two acts: the Elementary School Act (1996), and the Placement of Children
with Special Needs Act (ZUOPP, 2000). Children with mild and moderate SpLD
are entitled to the same forms of support as children with general LD, and their
rights are defined in the Elementary School Act (1996, Article 11, Paragraph 2).
These include the right to remedial education, adaptation of working methods
and approaches, and individual and group support. With the amended Elemen-
tary School Act of 2011, however, children with mild and moderate SpLD were
denied the status of SEN, but retained the right to educational assistance, adap-
tation of working methods and approaches, and individual and group support
(Article 12a of Elementary School Act, 2011).
In enacting the right of children with severe SpLD to major adaptations
in their education process and more specific forms of additional professional
assistance, the proposer of ZUOPP was compelled to yield to pressure from
professionals and parents and make compromises. The inclusion of children
with severe SpLD in ZUOPP (2000) allows for additional rights to more effec-
tive treatment of these children (Vršnik Perše, 2009). A team of experts (S. Tan-
cig, L. Magajna, & M. Kavkler, in Vršnik Perše, 2009) drafted an amendment
that specifies the need to include children with severe SpLD in ZUOPP (Article
2 of ZUOPP, 2000). MP Ana Kragelj-Zbačnik submitted the amendment for a
44 inclusive education for children with specific learning difficulties

decision procedure on the inclusion of children with severe SpLD in ZUOPP

(2000). During the second reading of ZUOPP (2000) to discuss the amend-
ment on the inclusion of children with severe SpLD in Article 2 of ZUOPP
(2000), the proposer justified their disagreement with the proposed amend-
ment by noting that children with severe SpLD had already been categorised
as children with a long-term illness, fearing the placement of the entire 20% of
children with low achievement rather than just 2–4% of children with severe
SpLD (Poročevalec 2000, No. 71, p. 11, Paragraph 2). The reasoned opinion on
the importance of the specific treatment of children with severe SpLD submit-
ted by professionals from the Counselling Centre for Children, Adolescents
and Parents Ljubljana was instrumental in the ZUOPP (2000) proposer’s deci-
sion to include children with severe SpLD in ZUOPP (2000) as SEN. However,
in the subsequent version of the draft ZUOPP (2000, Article 2), the proposer
referred to children with SpLD as children with developmental and neurologi-
cal disorders. Ravnik (2000) and the Child Neurology Department of the Slo-
venian Medical Association (2000) opposed this term and the inclusion of
a neurologist in the assessment of severe SpLD, emphasising that the assess-
ment and treatment of severe SpLD is primarily an educational issue, even if
the causes of the disability are neuro-physiological. In the second reading, the
proposer decided to include children with severe SpLD in ZUOPP (2000) as a
separate category; however, prior to the adoption of the act in the National As-
sembly of the Republic of Slovenia, a team of experts (M. Kavkler, L. Magajna,
L. Marjanovič Umek, Čuk, & Opara, in Vršnik Perše, 2009) had to formulate a
term that would clearly delineate severe SpLD from LD. Thus, the term deficits
in individual learning areas was formulated to denote severe SpLD. By includ-
ing them as SEN in ZUOPP (2000), children with severe SpLD gained the right
to adaptations in their education process and testing, and to additional profes-
sional assistance (1–5 hours).
Two laws have been adopted within the context of policy text produc-
tion that allow for the implementation of the continuum of rights of children
with SpLD. Children with severe SpLD were included in ZUOPP (2000) fol-
lowing pressure from professionals and parents of children with SpLD. One of
the decisive factors behind the adoption of the amendment to ZUOPP (2000)
was the support of 80 influential professionals from the fields of medicine, ed-
ucation and social services. Later, the amendment also gained support from
members of the Slovenian Special Education Association and representatives
of parliamentary groups. A number of compromises were required in all stages
of adopting ZUOPP (2000), from conceptual influence by interested parties, to
the reading and adoption processes in the National Assembly.
 c e p s Journal | Vol.5 | No1 | Year 2015 45

The Context of Practice

The context of practice concerns the reinterpretation and implementa-

tion of inclusive policy in education practice. In schools, those entrusted with
the implementation of the legislated inclusive policy in practice include teach-
ers, principals and other education professionals, but rarely pupils and parents.
Education professionals interpret the policy in accordance with their own
views, perceptions, experience, history, aspirations, values, knowledge, inten-
tions, meanings and the preferred approaches. These factors, and many more,
have an influence on how successfully inclusion is implemented in practice.
Despite being recognised as effective in the EU and many other coun-
tries, and despite being corroborated by a number of studies and international
declarations, inclusive practice is still a major challenge for many teachers and
other education professionals in Slovenia when it comes to its implementation
in practice (Kavkler, 2011). Indeed, as Zgaga (Žolnir, 2010) emphasised at the
Standing Conference of European Ministers of Education of the Council of Eu-
rope, teachers should gain the competence to teach their subject, as well as the
ability to do so with a varied population of children in the classroom.
The Written Declaration 64/2007 on “dys”crimination and social exclusion
affecting children with “dys”abilities emphasised the importance of promoting
good practice, access to information, systematic and early diagnostics, lifelong
assistance and support, and treatment of persons with SpLD by designing ef-
fective pedagogical approaches that improve standard and special pedagogical
assistance and support for children and adults with SpLD (Rejouis-Panayoto-
poulos, 2007).
In Slovenia, the development of inclusive practice for all children, espe-
cially those with SpLD, has been too slow, with education policy and efforts in
practice more focused on knowledge standards and the results of national and
international testing rather than on children’s needs. The attention of the media
is attracted by individuals who stand out for their talents despite their SpLD.
More often than their peers without SpLD, children with SpLD are frustrated
with their underachievement and are poorly integrated into their social envi-
ronment. Those who lack adequately adapted demands from the early stages
of their education process, and who are given no effective professional assis-
tance, struggle with the successful continuation of their education process and
with integration into society. Above all, the quality of inclusive practice in the
classroom, manifested as various inclusive or non-inclusive teaching methods
that have a vital impact on the performance of children with SpLD, depends
on teachers’ perceptions, knowledge and teaching strategies (Vidovich, 2001;
46 inclusive education for children with specific learning difficulties

Kavkler, 2011). In the teaching and testing processes, the school’s education pro-
fessionals often merely reduce the complexity and abstractness of assignments
instead of enabling children specific adaptations in reading, writing, arithmetic
and spelling (e.g., adjustments in study materials, the use of study and technical
aids, longer times, etc.), as required by their SEN. Problems with adequate ad-
justment of demands are related to the perceptions, readiness and competence
of education professionals to use the five-step RTI approach. Any child who
fails to meet education targets should have his/her education process adapted
by the teacher, and should be given assistance by a school counsellor, as well
as individual or group study support. When it comes to selecting profession-
als for intensive and specific forms of assistance, the focus is all too often on
the opportunity to increase staff rather than on providing effective assistance
for a child with SpLD. Many of those who practice additional assistance have
not been adequately trained, or lack the required knowledge and strategies to
effectively diagnose and provide assistance and support to children with severe
SpLD, who need the most intensive and most specific forms of assistance. Un-
fortunately, unlike the performance of children with severe SpLD, the effective-
ness of either implementing adaptations in the teaching process or providing
additional assistance is never subject to evaluation.
Children with SpLD can achieve their fullest potential if they have ac-
cess to high-quality instruction based on research findings, taking account of
the SEN of the individual and including ongoing monitoring and evaluation of
the child’s progress, which enables education professionals to adequately adapt
the teaching process and treatment of children with SpLD (NRCLD, 2007;
RRCNA, 2010). There are a number of successful professionals in Slovenia who
believe that inclusive education of children with SpLD is possible and rational,
and who have the required knowledge for its implementation. This is the prac-
tice in schools with a clear policy towards inclusion and with a principal who
supports his/her staff by giving them access to material and scientific resources
and helping them acquire the knowledge and skills required to provide inclu-
sive education to all children with SEN, including those with SpLD (European
Commission/EACEA/Eurodyce, 2012).
As changing perceptions, learning new approaches and implementing
team work are long-term processes, no change of school practice is quick or
easy. Advice alone is not enough for teachers and other education professionals
to change their teaching process and treatment of children with SpLD; the im-
plementation of these tasks takes effort and time. Education professionals need
positive perceptions, knowledge, experience and support, which is why “Inclu-
sive Education” is part of students’ curricula in education faculties in Slovenia,
 c e p s Journal | Vol.5 | No1 | Year 2015 47

so that all future teachers can learn about the basics of the identification and
treatment of children with general LD and SpLD. In addition, the Faculty of Ed-
ucation of the University of Ljubljana organises a one-year training programme
on working with children and adolescents with SpLD and emotional and be-
havioural disorders for education professionals in schools. Many seminars are
also organised by other institutions.
Another organisation committed to developing the full potential of chil-
dren with SpLD is the Bravo Association for Helping Children and Adolescents
with SpLD (www.drustvo-bravo.si), which focuses on raising public awareness
about the typical features and SEN of persons with SpLD, producing publica-
tions and organising international conferences, seminars and other forms of
training for persons with SpLD, their parents and education professionals.
As is clear from the context of practice, the implementation of changes
towards inclusive educational practice for children with SpLD is slow. The en-
acted rights of children with SpLD are repeatedly disregarded. All too often, the
effectiveness of assistance depends on the perceptions and knowledge of the ed-
ucation professionals who teach the children in the classroom or provide them
with study support and additional assistance. On the other hand, there are edu-
cation professionals with positive perceptions and knowledge who are ready to
work with all of the participants in the education process in order to create the
conditions for children with SpLD to achieve the best possible results.

Conclusions

In Slovenia, the development of inclusive practice has been too slow.

Legal grounds for its implementation are provided, but the gap between legisla-
tion and practice remains all too wide. While focusing on SpLD, the present
article has attempted to analyse different factors that hinder the development
of inclusive practice. With Ball’s model (1994), we were able to analyse the
situation from the contexts of policy influence, text production and practice.
Within the context of inclusive policy influence, we presented the key elements
of forming the conceptual framework for the treatment of children with SpLD,
together with part of the materials enabling the conditions for the implementa-
tion of inclusive policy in practice. Within the context of policy text produc-
tion, we explained how professionals influenced the drafting of the law that
enabled children with severe SpLD to acquire the status of children with SEN,
and thus gain more rights to adapted education and to additional professional
assistance. Policy and legislation offer the conditions for the implementation
of inclusive education of children with SpLD. In practice, however, children
48 inclusive education for children with specific learning difficulties

with SpLD are often discriminated against, and their learning achievements
are generally much lower than the achievements of their peers without SpLD.
By implementing the five-tier RTI approach, which includes appropriate ad-
aptations and effective forms of both learning and additional professional as-
sistance, many children with SpLD could attain significantly better learning
achievements and social inclusion.
No change in the area of educating children with SpLD can be achieved
quickly. Positive changes can be expected with future teachers, who now ac-
quire at least basic knowledge about SpLD during their studies. Moreover, posi-
tive changes can be expected due to the many school education professionals
who already share a positive attitude towards children with SpLD, who know
how to find solutions in collaboration with other participants, and who pos-
sess the knowledge and strategies for effective teaching and for offering various
forms of both learning and additional professional assistance. Education pro-
fessionals should stop focusing only on deficits and shift to the prospects of the
ability, identification and utilisation of the individual’s strengths, encouraging
the factors that can lead to a successful life and career even when some SpLD
remain.

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Biographical note

Marija Kavkler, PhD, is an Associate Professor of special and reha-

bilitation education at the Faculty of Education, University of Ljubljana. Her
knowledge and experience is transferred to undergraduate and postgraduate
students and academic professionals in various forms of training. Her field of
research is related to inclusive education for children and adolescents with spe-
cial needs, especially those with general and specific learning difficulties. She
was involved in a number of national and international projects dealing with
school underachievement of children and adolescents. She has participated in
the preparation of key documents in the field of special education in Slovenia.
By combining theoretical knowledge and practical experience she strives for
inclusive education which will largely take into account the needs of a diverse
population of children and adolescents.
52 inclusive education for children with specific learning difficulties

Milena Košak Babuder, PhD, is an Assistant in the Department of

Special education at the Faculty of Education, University of Ljubljana. Her fields
of research are the exploration of the effects of poverty and general and spe-
cific learning difficulties on educational performance of primary and secondary
school students and development of strategies and models of support and treat-
ments in these areas. She also runs many workshops and seminars on specific
learning difficulties for in-service teachers and school counsellors.

Lidija Magajna, PhD, received her doctorate in psychology from the

Faculty of Arts, University of Ljubljana. She is currently working as an assistant
professor of psychology in education at the Department of Special and Reha-
bilitation Education at the Faculty of Education, University of Ljubljana and as
head of the research unit at the Counselling Centre for Children, Adolescents
and Parents in Ljubljana and has extensive clinical experience in assessment,
counselling and prevention of learning and psychosocial problems. Her research
interests include cognitive, developmental and neuropsychological aspects of
learning disabilities, school underachievement and related psychosocial prob-
lems and comparative studies of early reading and arithmetic development.