TOO MANY CHILDREN LEFT BEHINDExclusion in the South African Inclusive Education SystemWith a focus on the Umkhanyakude District, KwaZulu-Natal

A SECTION27 Report byTim Fish Hodgson & Silomo KhumaloJuly 2016

TheForewordtotheSECTION27ReportonUmkhanyakudeDistrict,KZN

The SECTION27 Report and the rights-based approach to the education of children withdisabilitiesisaneyeopenertothechallengesfacingSpecialSchoolsandFullServiceSchoolsin theUmkhanyakudeDistrict in particular and thewhole of SouthAfrica in general. ThesituationismoresevereinSpecialandFullServiceSchoolsattendedbyblacklearnersandworseinthemoredeepruralcommunitieswithhighlevelsofpovertyandunemployment.

ThereportstrikesatthecoreoftheconditionsintheSpecialandFullServiceSchoolsintheDistrict.DespitethefactthatInclusiveEducationandWhitePaper6havebeenonthetableatimplementationstageforoveradecadenow,theachievementsarefarbelowwhatshouldhave achieved. It is interesting though, to note the passion and willingness shown byeducators, Learner Support Assistants, Learner Support Educators, school counsellors,departmentalofficialsandparentstomakeinclusiveeducationworkdespitethenumerouslimitations.

MoredeterminationattheGovernmentlevelinre-directingtheresourcesintermsofbudgetallocationtogivespecialattentiontoissuesoftransport,accommodationandteachingandlearningdeviceswillturnthingsaround.OfcoursethisMUSTbeaccompaniedbyinvestmentin the human personnel who must be equipped with sufficient skills, qualifications andcompetenciesandremuneratedappropriately.DespitetheimmensechallengesthatresultinTooManyChildrenLeftBehind it isgratifyingtoknowthatsomeschoolsprevailoverthelimitationsandmakeinclusiveeducationrealandpossible.TheSomfulaFullServiceSchoolisthe only Secondary School in the District which distinguished itself and made a livingtestimonybefore itwas evenmadea Full Service School as itmadeabreakthroughwithKhulekaniNdwandwewhomatriculatedin2006despitethemultipledisabilitieshehadandstillhas.ThisprovedthatwithnecessarysupportEveryBodyCanLearn.

This SECTION27 Report with its in-depth research and recommendations is highlycommendedwiththehopeandbeliefthatitwillreceiveimmediateandappropriateattentionfromallrelevantstructuresandlevels.MoreCANbedoneandMUSTbedonetomakethegoalofinclusiveeducationrealized.WithDETERMINATIONandCOURAGEatalllevels,itshallbedone.

MrVFHlabisa

SomfulaFullServiceSchool

TableofContents

TOOMANYCHILDRENLEFTBEHIND:.........................................................................................4Voicingtheconcernsofteachers,principalsandstaff:victimizationandintimidation.........................5InclusiveEducationintheUmkhanyakudeDistrict:thethirdpoorestdistrictinSouthAfrica..............6SouthAfrica’sinclusiveeducationsystem:thewidegapbetweenpolicyandreality...........................7Vastnumbersofchildrenlanguishingwithinappropriateschoolingornoschoolingatall..................7Noaccesstohighschoolsforthesignificantmajorityofchildrenwithdisabilities...............................8Inflexibleandundifferentiatedcurriculum:“learnerswithbarriersstrugglealottopass”..................9Insufficienteducatorsandprofessionalstaff:problemswithpost-provisioning.................................10Unacceptableandunlawfulabuse,neglectandcorporalpunishmentinspecialschoolhostels........11Inadequate,unaccommodatinginfrastructureandpoorservicedelivery...........................................12Troublegettingtoschool:dangerous,expensiveandinappropriatelearnertransport......................12Toolittlemoney:inconsistent,non-transparentandunreliablefundingforinclusiveeducation.......13Ineffectiveandinactivesupportstructures:negativeattitudes,insufficientexpertiseandcapacity.14Purposeofthisreport:workingwithgovernmenttobuildaninclusiveeducationsystem................15Inclusiveeducationincrisis:rebuttingthefalse“goodstory”narrativeandrevealingrightsviolation..............................................................................................................................................................15

II. SUMMARYOFRECOMMENDATIONS...............................................................................181. MeaningfulconsultationandParticipationofpeoplewithdisabilities.......................................182. TheurgentdevelopmentofaturnaroundplanandstrategybytheKwaZulu-NatalDepartmentofEducation.........................................................................................................................................183. Recommendationsforthenationalandprovincialdepartmentsofeducationarisingfromthereport...................................................................................................................................................194. Recommendationsforthenationalandprovinciallegislaturesarisingfromthereport............205. Urgentactiontocombatabuse,neglectandcorporalpunishmentinspecialschoolhostels....206. Increasingaccesstoappropriatehighschooleducationforchildrenwithdisabilities...............207. Rolloutofmobilisationandawarenesscampaignsondisabilityandinclusiveeducation.........208. Strengtheninggovernmentstructurestoensureeffectivesupportisprovidedtoschools........21

III. GLOSSARYOFIMPORTANTTERMSANDCONCEPTS...................................................22

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CONTENTSOFTHEFULLREPORTThefullreportisavailableonlineatwww.section27.org.za/publications

IV. BACKGROUND:THEUMKHANYAKUDEDISTRICTANDINCLUSIVEEDUCATIONINKWAZULU-NATAL......................................................................................................................25BackgroundtoSECTION27’sworkintheUmkhanyakudeDistrict.......................................................25Methodology........................................................................................................................................27Purposeofthereport...........................................................................................................................28InclusiveEducationinKwaZulu-Natal..................................................................................................29InclusiveeducationintheUmkhanyakudeDistrict..............................................................................29BudgetingforspecialneedseducationinKwaZulu-Natal....................................................................31Keyconstitutional,legislativeandpolicydocuments..........................................................................32

TheConstitution...............................................................................................................................33TheUnitedNationsConventionontheRightsofPersonswithDisabilities......................................33SouthAfricanSchoolsAct.................................................................................................................33ThePromotionofEqualityandPreventionofUnfairDiscriminationAct(EqualityAct)..................34InclusiveEducationWhitePaper6...................................................................................................34PolicyonScreening,Identification,AssessmentandSupport(SIAS)................................................35GuidelinestoEnsureQualityEducationandSupportinSpecialSchoolsandSpecialSchoolResourceCentres.............................................................................................................................................35GuidelinesforFullService/InclusiveSchools....................................................................................36

V. CHILDRENOUTOFSCHOOL..............................................................................................36Accessibilityofmainstreamschools.....................................................................................................37Childrenoutofschool..........................................................................................................................37

WaitingLists:parentsdescribethetraumaofattemptstogettheirchildrenintoschools.............38ChildrenoutofschoolintheKwaZulu-Natalprovince.....................................................................39UrgentmobilisationrequiredintermsofInclusiveEducationWhitePaper6.................................40

VI. CONDITIONSINSPECIALSCHOOLS..............................................................................40Background..........................................................................................................................................40Curriculumdelivery..............................................................................................................................42

Difficultieswithacademiccurriculumcontent.................................................................................42Theneedforpracticaltrainingtosupplementacademiccurriculum...............................................43Accesstobothprimaryandhighschoolgrades...............................................................................43Theimpactoncurriculumdelivery...................................................................................................44SpecialSchoolGuidelinesandSIAS:therequirementofflexibleacademicandskillscurricula.......44

Postprovisioning..................................................................................................................................45Shortageofeducatorposts..............................................................................................................45Shortageofprofessionalandnon-professionalnon-educatorstaff.................................................47

Transport..............................................................................................................................................49SpecialSchoolhostels,distancefromhomeandcostlytransport...................................................50NationalLearnerTransportPolicyandtherighttolearnertransport.............................................51

Conditionsinhostelsandabuseandneglectoflearners.....................................................................52Parent’sdesireforchildrentoattendschoolsneartotheirhomes.................................................52Understaffing,poorconditionsandabuseinspecialschoolhostels...............................................52Parentsseriousconcernsaboutthetreatmentoftheirchildreninspecialschoolhostels...............53Children’sconstitutionalrightstobefreefromabuse,corporalpunishment,maltreatmentanddegradation.....................................................................................................................................54

Basicservices........................................................................................................................................55Funding.................................................................................................................................................56

VII. CONDITIONSATFULLSERVICESCHOOLS....................................................................57

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Primaryandsecondaryeducation........................................................................................................58Infrastructureandbasicservices..........................................................................................................59UniversalDesign...................................................................................................................................61Funding.................................................................................................................................................62

Fundingforinclusiveeducationareinconsistentandinadequate...................................................62Fundingforinclusiveeducationvariesfromschooltoschool..........................................................63

Postprovisioning..................................................................................................................................64Shortageofeducatorpoststoaccommodatelearnerswithbarrierstolearning............................64Challengestoteachingandlearninginbigclasses..........................................................................65Teachers’lackofexpertiseanddifficultiesteachingchildrenwithbarrierstolearning..................66Theinadequacyandinconsistencyofteachingtraining..................................................................67Non-educatorposts..........................................................................................................................67

LearnerSupportAssistants..................................................................................................................68TheroleofLearnerSupportAssistants............................................................................................68ShortageofLearnerSupportAssistantsatschools..........................................................................69WhatqualificationsshouldLearnerSupportAssistantshave?........................................................70TheinadequacyoftrainingprovidedforandcompensationofLearnerSupportAssistants............71ThefailureofpolicytorecogniseandclarifytheuniqueandimportantroleofLearnerSupportAssistants.........................................................................................................................................71

LearningSupportEducators.................................................................................................................72TheRoleofLearningSupportEducators..........................................................................................72TheinfrequentsupportofLearningSupportEducatorsandtheirrarepresenceatschools............73Non-compliancewithFullServiceSchoolGuidelines:theneedformoreLearningSupportEducators.........................................................................................................................................................73

Curriculumdelivery..............................................................................................................................74Theneedforflexiblecurriculaandcurriculumdifferentiation.........................................................74Curriculumdifferentiationandindividualisedsupport.....................................................................75CurriculumdifferentiationandcompulsorytestingthroughAnnualNationalAssessments...........75Curriculumdifferentiationandinadequateteachertraining...........................................................76Theimpactofinflexiblecurriculaonteachingandlearning............................................................77Therequirementof“flexible”,differentiatedcurriculum:GuidelinesforFullServiceSchools.........78

Transport..............................................................................................................................................79Thevulnerabilityofchildrenwithdisabilitieswhoarenotprovidedwithtransporttoschool........79Expensiveanddangerouspublictransport......................................................................................80Long,tiringanddangerouswalkstofullserviceschools:violence,riversandexhaustion..............81Therighttotransporttofullserviceschools....................................................................................82

VIII. SCHOOLS’RELATIONSHIPSWITHSUPPORTSTRUCTURES.........................................83Inactiveorineffectivestructures.........................................................................................................83

DistrictBasedSupportTeams..........................................................................................................84School-BasedSupportTeams/InstitutionalLevelSupportTeams....................................................84

Lackofexpertise..................................................................................................................................85Inadequatesupport..............................................................................................................................86Negativeattitudeaboutabilitytolearn...............................................................................................86Pressureonwhistleblowers.................................................................................................................87IX. CONCLUSION:THEFALSE“GOODSTORY”NARRATIVEININCLUSIVEEDUCATION.....................88

X. RECOMMENDATIONS........................................................................................................89

XI. ENDNOTESANDANNEXURES.....................................................................................100

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TOOMANYCHILDRENLEFTBEHIND:ExclusionintheSouthAfricanInclusiveEducationSystem

WithafocusontheUmkhanyakudeDistrict,KwaZulu-Natal

ASECTION27Report*

July2016

TimFishHodgson†andSilomoKhumalo††

I. SUMMARYOFFINDINGS

InSouthAfrica,basiceducationisaconstitutionallyentrenchedrightthathasbeendescribedbytheConstitutionalCourtas“immediatelyrealisable”,andbytheSupremeCourtofAppealas “a primary driver of transformation”. For decades, apartheid’s brutally segregatededucationsystemactivelydeprivedblackchildreninSouthAfricaofanopportunitytoreceivequalityeducation.Forchildrenwithdisabilities,racialapartheidintheeducationsystemwascompoundedbyasecond ‘disabilityapartheid’,which isolatedchildrenwithdisabilities topoorlyfundedspecialschools–thatoftentreatedthemasincapableofbeingeducated.Thishad a particularly dire effect on poor black children (with disabilities),who often had noopportunitytoattendschoolatall.SouthAfrica’sinclusiveeducationpolicyseekstoredressthissituation,andaccommodateall

*FieldResearch,interviewsandcommunityengagementsthathaveinformedthisreportincludedthefollowingSECTION27

employeesinadditiontotheauthors:MuhammadZakeriaSuleman,NgqabuthoMpofu,DlaminiSipheloMbeki,PatrickZaidMdletshe,VioletKaseke,KatePaterson,AsipheFunda,SimphiweSiduandMarkHeywood.SECTION27wasalsoassistedbystudentmembersoftheUniversityofKwaZulu-Natal(UKZN)(HowardCollege)andUniversityofWitwatersrandbranchesofStudentsforLawandSocialJustice.ConsiderableinputsweremadetowrittendraftsofthisreportbySECTION27’sAdvocateFaranaazVeriava,whosupervisedtheanddirectedthecompilationofthereport.SpecialthankstoJusticeZakeriaYacoobforhisinvolvementincommunityengagementsandguidanceonSECTION27’sdisabilityrightsactivismandresearch,andtoRobynBeereofInclusiveEducationSouthAfricaforsignificantinsightsaboutinclusiveeducation.Editing and editorial comments were provided by Kate Paterson, Luvo Nelani, Mark Heywood and Tina Power.TheauthorswouldalsoliketoapplaudSiphilisaIsizwe,aDisabledPeople’sOrganisationbasedinManguzi,andhospitalstaffat Manguzi Hospital – in particular MsMargaret Masinga, Ms Jabu Ndlovu, andMsMaryke Bezuidenhout – for theircontinuousandtirelesseffortstoimproveeducationforchildrenwithdisabilitiesinManguzi.†TimFishHodgsonisaLegalResearcheratSECTION27,aformerLawClerkforJusticeZakeriaYacoob,andaMasters-degreecandidateattheUniversityofOxford.††SilomoKhumaloisaJuniorResearcheratSECTION27;heholdsanLLBandanHonoursdegreeinPublicPolicyfromUKZN,

andhasbeenappointedasaLawClerkforJusticeJohanFronemanfromJuly2017.Heistotallyblind.

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childrenwithdisabilitiesinappropriateschooling–whetheratseparatespecialschools, inspeciallyresourcedfull-serviceschools,oratlocal,neighbourhoodmainstreamschools.Thisreportistheproductofoverthreeyearsofresearchintobarrierstoaccessingeducationfor people living with disabilities inManguzi in northern KwaZulu-Natal. Interviews wereconductedwithnearly100caregiversofchildrenwithdisabilitiesbetween2013and2015,withthefinalinterviewsquotedinthisreportundertakenbetweenMayandAugust2015.Inlate2015,afternotifyingtheUmkhanyakudeDistrictDepartmentofEducation,SECTION27visited all three special schools and 11 full-service schools in the district, interviewingprincipals,teachersandotherstaff.Thefactualinformationprovidedbyteachers,parentsandlearnersisdescribedasitwasatthe point of collection of the information. Thismay be subject to change and,we hope,improvement.Wewill continuetoupdate this informationona regularbasisandprovidetheseupdatesbothtothenationalandprovincialdepartmentsofeducation,andpubliclyonSECTION27’swebsite(www.section27.org.za).ThisreportdocumentswidespreadviolationsoftherightsofchildrenwithdisabilitiesintheUmkhanyakudeDistrict. These violations are so severe – twenty years into SouthAfrica’sconstitutionaldemocracy,fifteenyearsaftertheimplementationofSouthAfrica’sinclusiveeducationpolicybegan,andfiveyearsbeforethepolicy’simplementationrangeissupposedtobe completed– that it is clear thedual racial anddisabilityapartheid inSouthAfrica’seducationsystempersists.Theserealities,describedindetailinthisreport,exactaveryheavypriceonpoor,blackchildrenwithdisabilitiesintheUmkhanyakudeDistrict,andamounttosystemicviolationsoftheirconstitutionalrightstobasiceducation,equalityanddignity.

Voicingtheconcernsofteachers,principalsandstaff:victimisationandintimidationAtthecentreofthisreportarethevoicesofparents,caregiversandstaffatschoolscateringfor children with disabilities. On the express wishes of the parents, caregivers and staffmembers,theyhavebeenanonymised.Itisasignificantconcernthatsomestaffmemberspredictedclearlythatiftheyspokeopenlyandpubliclyintheinterestsoftheirlearners,theywould be subjected to victimisation, intimidation and disciplinary action from stateemployeesandgovernmentdepartments.Indeed,somestaffmembersindicatedthattheseconsequenceshadresultedonpreviousoccasionswhentheyortheircolleagueshadspokenoutaboutthepoorconditionsintheirschools.SECTION27condemnssuchintimidationandvictimisation,andwhole-heartedlyendorsesthestatementlatein2015ofLindaHlongwa-Madlala,MemberofthePortfolioCommitteeforEducation,KZNProvincial Legislature, in response tosuchan incidentofvictimisationandintimidationofateacheratSisizakeleSpecialSchool(oneofthethreespecialschoolsintheUmkhanyakudeDistrictdiscussedinthisreport):

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“It’swrongandagainstthelawfortheDepartmenttoexposeanindividualwhoraisesconcernsaboutwrongdoing. Itexposeshim tovictimisation insteadof focusingoninvestigatingtheconcerns.Theyhaveputthateducatorinharm’swaynow.”1

SECTION27thanksandapplaudsstaffmembersatthethreespecialschoolsand11full-serviceschools forspeakingout, throughtheir involvement in this report, in thebest interestsofchildrenwithdisabilitiesintheUmkhanyakudeDistrict.

InclusiveEducationintheUmkhanyakudeDistrict:thethird-poorestdistrictinSouthAfricaTheUmkhanyakudeDistrict is themost northernof the 11districts of theKwaZulu-Natalprovince,withapopulationofatleast644196people.Itisaverypoor,ruraldistrictwithfivelocalmunicipalities:Umhlabuyalingana,Jozini,TheBigFiveFalseBay,HlabisaandMtubatuba.Thepoverty rate in thedistrict is 72.1%,with88.6%of people livingoff betweenR1andR1600permonth,includingsocialgrants.Theunemploymentrateinthedistrictis58.6%,and access to basic services is extremely low, with only 41.3% of people – the lowestpercentageinthecountry–havingaccesstoelectricityforlighting,38.2%havingnoaccesstotapwater,45.3%usingpittoilets,andafurther18.2%havingnoaccesstoatoiletatall.Onassessment inarecentreportbytheInstituteofRaceRelations,theDistricthasthereforebeen described as the third-“worst place to live” in South Africa; or perhaps moreappropriately,thethird-poorestdistrictinSouthAfrica.2

As recently as 2002, therewereno registered schools for childrenwith disabilities in theUmkanyakudeDistrict.AstudycompletedinManguziin2001estimatedthat53%ofchildrenwithdisabilities“didnotattendschool”;andofthosewhodid,afurther53%“reportedhavingdifficultiesatschool”.3Ofallpeopleinthedistrict,25.3%havenoschoolingatall;while25.6%ofpeoplehaveamatricqualification,andamere4.6%haveaccessedhighereducation.

Thereportbeginsbysettingtherelevantcontextandbackgroundofinclusiveeducationforchildrenwithdisabilities;firstlyinKwaZulu-Natal,andsecondlyintheUmkhanyakudeDistrict.In2011,theKwaZulu-NatalDepartmentofEducation(KZNDoE)estimatedthatthereare37768learnerswithdisabilitiesbetweentheagesof6and15yearsthatarenotinschoolatall.4Accordingtomorerecentestimates,madebytheDepartmentofBasicEducation(DBE)inareport released in November 2015, there could be as many as 182 153 children withdisabilitiesinKwaZulu-Natalbetweentheagesof5and18,ofwhichasmanyas137889(76%)maynotbereceivinganyschooling.5A2011reportonspecialschoolsinKwaZulu-Natallistsa variety of serious problems in themajority of special schools in the province, includinginsufficientassessment support, inadequate co-curricular, suitabilityof curriculum, lackof 1CNdaliso,‘DisabledKZNpupilsbeatenatschool’,IOL(4September2015),availableathttp://www.iol.co.za/news/crime-courts/disabled-kzn-pupils-beaten-at-school-1911024.2GMackay&AMuresan,‘AllpoliticsislocalfromCapetoCapricorn’,SouthAfricanInstituteofRaceRelations(May2016),p12-13.3PMaclaren,BZungu&SRule,‘DistrictDisabilitySituationAnalysis–Jozini-UmkhanyakudeDistrict#27’,KwaZulu-Natal(March2002),Appendix1A.OnfilewithSECTION27.4KwaZulu-NatalDepartmentofEducation,‘AnnualPerformancePlan2011/12’,p79.5DepartmentofBasicEducation‘ReportontheImplementationofEducationWhitePaper6onInclusiveEducation–AnOverviewforthePeriod:2013-2015’presentedtotheParliamentaryPortfolioCommitteeonBasicEducationon8March2016,availableathttps://pmg.org.za/committee-meeting/22150/,p20-21.

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trainingforteachersandprincipals,inadequatesupportstaff,lowlevelsofsupportfromthedistrictDepartment,inappropriateinfrastructure,andlittleornoaccesstotransport,assistivedevices,andotherresources.6

SouthAfrica’sinclusiveeducationsystem:thewidegapbetweenpolicyandreality‘EducationWhitePaper6:BuildinganInclusiveEducationandTrainingSystem’(2001)dividesschools inSouthAfrica into three types: special schools, full-service schools, andordinary(‘mainstream’)schools.7Accordingtothe‘Screening,Identification,AssessmentandSupportPolicy’ (SIAS), learners are categorised as having high,moderate or low support needs intermsof learning.8Generally, becauseof theway the systemhasbeen structuredby theDepartment of Basic Education, children with disabilities are defined as having high ormoderatesupportneeds,andarerequiredtoattendspecialschoolsorfull-serviceschools.Aspecial school is a school that catersexclusively for childrenwithdisabilities,while a full-serviceschoolisamainstreamschoolthatcatersforamajorityoflearnerswithlowsupportneeds, anda smallerpercentageof learnerswithdisabilities,whohavemoderateorhighsupportneeds.

Despitetherequirement, in termsofEducationWhitePaper6, formainstreamschools toreasonablyaccommodatetheinclusionofchildrenwithdisabilities(whethertheyhavehigh,moderate or low support needs), this is simply not a realistic option for children in theUmkhanyakudeDistrict,asschools lack theresources,expertiseandsupport tocopewithchildrenwithdisabilities. This is confirmedby the interviews conductedwithparents andcaregivers, whose children almost always start at their own communities’ mainstreamschools.Thisleavesonlythe11full-serviceschoolsandthreespecialschoolsinthedistrictasviableoptions forchildrenwithdisabilities in theUmkhanyakudeDistrict.All threespecialschoolsintheDistrictwerestartedbycommunitymembers,andwereonlytakenoverbytheKwaZulu-Natal Department of Education ( KZN DoE) after many years in operation.Historically,theveryfewchildrenwithdisabilitieswhohaveattendedschoolwereforcedtotravelseveralhourstoEstcourt,NkandlaorPietermaritzburg,dependingontheirdisabilities.The11full-serviceschoolsinthedistrict,whichweredesignatedassuchbetween2007and2013, and have markedly varying ability to accommodate children with disabilities, arescatteredthroughoutthedistrict.

Vastnumbersofchildrenlanguishingininappropriateschoolingorwithnoschoolingatall The first serious problem uncovered by the report is the large number of children withdisabilitiesintheDistrictwhodonotenjoyanyaccesstoschoolatall,andmayneverhavedoneso.ThisspeakstoadirectfailureonthepartoftheKZNDoEtomobilise“out-of-schoollearners”asashort-termgoal,asrequiredbyEducationWhitePaper6,publishedin2001.In

6KwaZulu-NatalDepartmentofEducation&MietAfrica‘SpecialSchoolsSurveyReport’(24January2011).7DepartmentofBasicEducation‘EducationWhitePaper6:SpecialNeedsEducation–BuildinganInclusiveEducationandTrainingSystem”(2001),availableathttp://www.education.gov.za/Portals/0/Documents/Legislation/Whitepaper/EducationWhitePaper6.pdf?ver=2008-03-05-104651-000.8DepartmentofBasicEducation‘PolicyonScreening,Identification,AssessmentandSupport’(2014),availableathttp://www.thutong.doe.gov.za/ResourceDownload.aspx?id=48734.

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2014,SECTION27learnedof17out-of-schoollearnersinKZN,andhelpedtofacilitatetheirplacementatSisizakeleSpecialSchool.Duringinterviewsconductedin2015,21outofthe43parentsandcaregiversofchildrenwithdisabilitiesinterviewedrevealedthattheirchildrenwerenotinschoolatall.Afurther12ofthesechildrenwereinmainstreamschoolsthatcouldnotaccommodatetheirneeds,andthreewereinfull-serviceschools,thoughtheirparentsandcaregiversbelievedtheyshouldbeattendingspecialschools.Thisleavesamere7outof43childrenwhowereattendingspecialschools.

Themajorityofparentsandcaregiversnoted that their childrenwereon ‘waiting lists’ atspecial schools; though sometimes denied by the KZN DoE in correspondence withSECTION27,thiswasacknowledgedasrecentlyas2015bytheDepartmentofBasicEducationasacountrywideproblem.9Allthreespecialschoolsconfirmedininterviewsthattheyhavesubstantialwaitinglists.ChildrenoftenlanguishonthesewaitinglistsforyearswithoutanycontactfromschoolsorthedistrictDepartmentofEducation.

Amajor concern raised in the interviews with parents and caregivers was the quality ofschoolingandcareavailabletotheirchildrenatspecialandfull-serviceschools.Mostparentsandcaregivers,whenasked,couldnotexplainwhatafull-serviceschoolwas,ordifferentiatebetweenfull-serviceandspecialschools.Thisreportthereforeproceedstodetailconcernsaboutthequalityofeducationatthethreespecialschoolsandthe11full-serviceschoolsinthedistrict.

Noaccesstohighschoolsforthesignificantmajorityofchildrenwithdisabilities All three special schools ‘specialise’ in education for children with severe intellectualdisabilities.Thoughchildrenwithmultipledisabilitiesmayattendtheseschools,allchildrenadmittedtotheseschools(withsomeexceptions)havesomeformofintellectualdisability.ItisimportanttostressthatintermsofSouthAfrica’sConstitutionanda2011judgmentoftheHigh Court, children with extremely severe intellectual disabilities must be properlyaccommodated in theeducation system,and cannotbedisregardedas ineducableor toocostlytoeducate.10TheresultofthissingularspecialisationinintellectualdisabilitiesintheUmkhanyakude District is that children without intellectual disabilities – but with visual,hearingorphysicaldisabilities,forexample–musttraveloutsideofthedistrictiftheyneedtoattendspecial schools.Furthermore,all threeschoolsofferanacademiccurriculumforgradesRto7only.Anychildwithanintellectualdisabilitywishingtoattainahigherlevelofqualificationthangrade7,orattainaNationalSeniorCertificate,simplycannotdosointheUmkhanyakudeDistrict.

Inaddition,10ofthe11full-serviceschoolsareonlyprimaryschools.Thismeansthatoutofthe14schoolsinthedistrictthatcaterforthelearningneedsofchildrenwithdisabilitiesatall,onlyone–SomfulaSecondarySchool–isahighschool.Accordingtotheprincipalsofthefull-service schools, because of the vast geographic area covered by the district, and thedistancesbetweenschools,Somfuladoesnotevenadmitmanychildrenwithdisabilitieswho

9SeeDBEProgressreport,footnote5above,p21-22,whichalsonotesthat“intermsoftheSouthAfricanSchoolsAct,Act84of1996,nolearnersmaybeplacedonwaitinglists.”10WesternCapeForumforIntellectualDisabilityvGovernmentoftheRepublicofSouthAfrica2011(5)SA87(WC),availableathttp://www.saflii.org/za/cases/ZAWCHC/2010/544.html.

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have completedgrade7 at theother10 schools. Thenet result is that for the significantmajorityofchildrenwithdisabilitieswhoattendschoolsintheUmkhanyakudeDistrict,thecompletionofanyhighschoolgradesandtheachievementofaNationalSeniorCertificate–oneofthekeyaimsofparticipationintheeducationsystem–isanunrealisticprospect.

Inflexibleandundifferentiatedcurriculum:“Learnerswithbarriersstrugglealottopass” Evenwithintheambitoftheacademicgradesofferedbythespecialschools,thefailuretoensureeffectivecurriculumdeliveryisafundamentalproblem.BothWhitePaper6andtheSIASpolicyof theDBE require curriculum tobe “flexible”andappropriately “adapted”or“differentiated”forchildrenwithdisabilities.Despitethis,teachersatbothspecialandfull-serviceschoolscomplainabouttherigidityoftheCAPScurriculum,andtheunwillingnessofthedistrictDepartmenttoaccepttheneedfordifferentapproachestoteachingandlearningatspecialandfull-serviceschools.

Atspecialschools,teachersstruggletoteachthecurriculum–bothbecausetheyarehiredwithouttherequisiteskillstoteachlearnerswithvaryingbarrierstolearning,andbecausetheirclassesaresimplytoobigtogivechildren individualattentionandsupport.All threespecialschoolsreporthavingclasseswithasmanyas20childrentooneteacher,despitearatiocloserto1:10beingdesirable.Learnersareforcedtocompletethecurriculuminthesameamountoftimeaschildrenwithoutlearningbarriers,andarecompelledtowriteAnnualNationalAssessmentsandcommonpapers,whichtheyareill-equippedtodo.Iftheywerepermittedto,giventhecurrenteducationavailabletolearners,schoolswouldrepeatmanylearnersingrade1or2formanyyears;buttheyareforcedtomakelearnersprogressthroughgradesbythestringently-appliedrulesoftheDepartmentofEducation.

Principalsatallthreespecialschoolsbemoanthefactthatthereistoolittletimededicatedto skills training for childrenwith severe disabilitieswho cannot copewith the academiccurriculum,andthattheDepartmentmakesitdifficultforschoolstohireteachersandotherstaffwho could teach learners skills thatwould assist themwithdaily living and financialindependencelaterinlife.

Ultimately,thesituationintheUmkhanyakudeDistrictisnodifferenttothatatnationallevel,describedbytheDepartmentofBasicEducationinthesestarkterms:

“There is a serious concern about the standard of curriculum delivery in specialschools.Thereisevidencethatmanyaresimplydaycarecentreswithlittleattentionbeing given to ensuring that learners have access to the National CurriculumStatementonanequalbasiswithallotherlearnersinthesystem.”11

Atfull-serviceschools,wherelearnerswithdisabilitiesareintegratedintoclasseswithotherlearners,manyofthesamechallengesexist.Becauseclassesareoftenasbigas50learnerswithasingleteacher,teachersstruggletogivechildrenthesupportthattheyneedwiththeacademiccurriculum.Teachersbemoanthefactthattheyarenotallprovidedwithassistancein the form of practical and theoretical training in “curriculum differentiation”, which isessentialintheirclasses.

11SeeDBEProgressreport,footnote5above,p34.

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ALearnerSupportEducatorisaspecialisteducator,highly-trainedinanumberoftechnicalaspectsofteachingandlearningincludinginclusiveeducation.TheLearnerSupportEducatorissupposedtoprovideessentialsupportservicesinallschoolsincludingonhowtoeffectivelydifferentiateandadaptcurriculaanddevelopindividualisedsupportplansforlearnersthatwillallowthemtolearnandimprove.Thereshouldideallybeoneateachoratleastmanysuchpoststhroughoutthedistrict.BecausethesingleLearnerSupportEducatorinthisdistrictmust cater for all its mainstream, full-service and special schools, the Learner SupportEducatorcanprovidenexttonosupporttoteachersorlearners.

Learner Support Assistants, who operate Learner Support Centres at full-service schools,providesomesupportwithremedial lessons,whichvary innature.However, theyarenotqualified teachers, and receive little or no training from the Department to assist withcurriculum differentiation and individualised support plans. Though six schools have twoLearner Support Assistants employed, five schools presently have no Learner SupportAssistants at all. The net result is that teachers struggle to complete the curriculum; andaccordingtooneteacher,“Learnerswithbarriersstrugglealottopass.”Schoolsreportthattheprospectof passing is reduced furtherby the fact that inadequate accommodation ismadeforchildrenwithlearningbarriersinstandardisedtestingandexaminations.

Insufficienteducatorsandprofessionalstaff:problemswithpost-provisioning Theissueofpost-provisioningofbotheducatorandnon-educatorstaffisamajorchallengeatspecialandfull-serviceschools.

At special schools, although there have been improvements on paper in the number ofteachersallocatedtoschoolsasrecentlyas2014,teacherstakea longtimetoactuallybeplacedattheschools.Evenwiththeincreasesinthenumberofteachersallocatedtospecialschools, all three schools do not believe that they have sufficient teachers. Furthermore,teachers employed often have no experience or expertise in education for childrenwithdisabilities,anddonothavetheabilitytoteachboththeacademiccurriculumandtheskillsthelearnerssorelyneed.

Atfull-serviceschools,principalsreportthattheallotmentofteachersintermsoftheirstaffestablishmentdoesnot take intoaccountthat therearechildrenwithdisabilitiesat theseschools.Theresultisthatallschoolssufferfromashortageofteachingstaff.Principalsalsocomplainaboutbeingallocated teacherswithnounderstandingofor interest in teachinglearners with disabilities. Some teachers even discriminate against learners, calling them‘lunatics’andbeingimpatientwiththem.Othersdonotlastverylong,andmoveontootherschools.AlthoughtheDepartmentdoesprovidetrainingforteachers,schoolsareoftenaskedtosendrepresentativesfromtheschool,sonotallteachersbenefitfromthismuch-neededtraining.Moreover,sometimesthetrainingisoverlytheoretical,andalsounhelpful.Teachersreportthatitneedstobemoreconsistentandheldattheirschools.

Special schools lack the dedicated professional and non-professional non-educator staffessentialtotheiroperation.Allthreeschoolslackpermanentpostsforpsychologists,socialworkersandoccupationaltherapists,andarethereforereliantoninconsistentvisitsfromandto clinics and hospitals for desperately needed services. None of the three schools havenurses,despitemanychildrenwithdisabilitiesneedingtotakemedicationregularly,andthisactivityneedingtobeprofessionallymonitored.Inallthreespecialschoolsthemajorityof

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theirlearnerslivefull-timeinschoolhostels,andareoftenvery(orentirely)dependentonfull-timecare.Asaresult,schoolsreportneedingadditionalcleanersforhostels,twenty-four-hour house mothers, twenty-four-hour security, kitchen staff, bus drivers and additionalmaintenancestaff.

In full-service schools, in addition to the absence of psychologists, physiotherapists andoccupationaltherapists,principalsemphasisetheimportanceofLearnerSupportEducatorsandcounsellorswhoarebasedattheschool,oratleastineachcircuit.Bothofthesepostsarebasedat thedistrictofficeandarethereforeof littlesupport totheschools.That fiveschoolscurrentlydonothaveLearnerSupportAssistantsalsohighlighttheneedforLearnerSupportAssistantstoassistteacherstoteachbigclassesofchildreninwhichchildrenwithdisabilitiesareintegrated.SomeschoolshaveindicatedthatLearnerSupportAssistantsneedtobetrainedteachers,orsupportedbytheDepartmenttoobtainaformalqualificationineducation during their employment. Other principals indicate that at present, LearnerSupportAssistantsendeavourtoqualifyoftheirownaccord,andeventuallyleavebecausethesalaryforLearnerSupportAssistantsisverylow.TheythereforerecommendthatLearnerSupport Assistants be paid and acknowledged as teachers, and supported in obtainingtrainingandprofessionalqualificationasteachers.

Unacceptable and unlawful abuse, neglect and corporal punishment in special-schoolhostels Thelackoftrained,paidhousemothersisparticularlyurgent,giventhewidespreadreportsfrom caregivers that children are neglected, mistreated and abused by volunteer housemothersinhostels.

Thereportdetailsshockingreportsofabuseinhostels;theft,unlawfulcorporalpunishment,andawidespreadperceptiononthepartofcaregiversthattheirchildrenwillbeabusedandneglectediftheyaresenttostayinspecialschools.

MediareportsconfirmthatthisproblemiswidespreadinKwaZulu-Natal,andtheDepartmentofBasicEducationitselfhasadmittedthatitisendemicthroughoutSouthAfrica,notingthatthereare:

“extremelypoorconditionsinmanyspecialschoolhostels.Thereisahighrateofchildabuse in special school hostels. Especially learners who are deaf or intellectuallydisabledaredoublyvulnerable.ItiscriticalthattheHostelPolicyforspecialschoolsisfinalisedtoaddressallissuespertainingtoaccessibilityoffacilities,supervision,safety,etc.”12

SECTION27’sresearchconfirmsthedepthofthisproblemintheUmkhanyakudeDistrict,andcalls for urgent investigations into all allegations of abuse, the urgent completion andpublicationofthethe‘HostelPolicy’mootedbythenationalDepartmentofBasicEducation,andtheextensionofprotectionsprovidedbytheChildren’sActtoChildYouthCareCentresforspecial-schoolhostels.13

12SeeDBEProgressreport,foonote5,p51.13Children’sAct38of2005,ss191-212.

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Inadequate,unaccommodatinginfrastructureandpoorservicedelivery Both special and full-services schools in the district report serious problems withinfrastructureandaccesstobasicservices.

Though all three special schools have only recently been built, and therefore appearimpressive at first sight, schools often lack the furniture and facilities required for theeducationoflearnerswithdisabilities.Inaddition,someofthefacilitiesprovided–includingworkshopsforpracticalskillstraining–remainunused,becauseofalackofteachersequippedtoprovideskillstraining.Full-serviceschoolsreportlackofclassrooms,whichresultsinmulti-gradeclassroomsthatmustbesharedbyasmanyas89learners.Somecomplainaboutthequalityandsafetyofmobileclassrooms;forexample,somehavebrokendoorsthatblowoverwhenitiswindy.OneschoolreportsthattheGradeRsareforcedtostudyunderthetrees.Severalofthefull-serviceschoolswerestartedbycommunities,undertrees,andwerelatertakenoverbytheDepartment.Oneschoolcomplainsaboutthecontinueduseofpitlatrines.Some full-service schools do not have Learner Support Centres, which are required forLearnerSupportAssistantstodoeffectiveremedialworkwithchildrenwithdisabilities.

When schoolsdooperate Learner SupportCentres,which includebathroomsandkitchenfacilities,theymustspendadditionalfundsforbasicservicessuchaswaterandelectricity.Many schools complain about a lack of funds for these basic services. Some full-serviceschools lack access to these basic services entirely. One school has never had access toelectricity or runningwater. It therefore only has access towaterwhen it rains. Anotherstrugglestousecomputers,projectors,stovesandairconditionersinthepersistentabsenceof electricity. The schools complain thatwithout electricity, computers, photocopiers andotherequipmentthatcouldbeusedtoprovideaccommodationsforchildrenwithdisabilitiesare ineffective.Atspecialschools,principalscomplainthatbasicservicesare“exorbitantlyexpensive”andthatwaterprovisionisofteninterruptedbecauseofmalfunctioningsystemsandgeneralwatershortages,resultingin“unhygienicconditions”,particularlyinhostels.Thoughspecialschoolsmakefewcomplaintsabout“universaldesign”14ortheinfrastructurewhich accommodates learnerswith disabilities, almost all full-service schools havemajorconcernsaboutthebasicaccessibilityoftheirpremises.Forexample,schoolsoftenlackbasicrampsandaccessibletoiletsforchildrenwithphysicaldisabilities.Evenwhentherearerampsgoingintoclassrooms,learnersinwheelchairsrequirethedirt‘courtyards’andopenareasbetweenclassroomsandotherbuildingssuchastheLearnerSupportCentreortoiletstobepaved,whichisoftennotthecase.

Troublegettingtoschool:dangerous,expensiveandinappropriatelearnertransportTransportforgettingtoschoolinthefirstplacepresentsasimilarobstacleforlearnerswithdisabilities.Forexample,childrenrequiringwheelchairsindeeplyruralareasinwhichthere 14 RegulationsRelatingtoMinimumUniformNormsandStandardsforPublicSchoolInfrastructure,GovernmentNoticeR920inGovernmentGazette37081of29November2013,norms4(1)(b)(ii)readwith4(3)(c)availableathttp://www.education.gov.za/Portals/0/Documents/Policies/Norms%20and%20Standards%20on%20School%20Infrastructure.pdf?ver=2015-02-04-090131-173.

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arenoproper roadsandno transportprovided simply cannotattend schoolatall.At thespecialschools,theDepartmenthasprovidedfundingfortwosmallbusesthattransportasmallproportionoflearnerstoandfromschooleachday.Thesearelargelyordinarybuses,notequippedspecificallytoaccommodatelearnerswhocannotsitupstraightorwhoareinwheelchairs.Outofthe11full-serviceschools,onlytwocurrentlyreceiveanyformofdirectsupportfromtheKZNDoEforlearnertransport.Atoneoftheseschools,only120childrenoutofmorethan1000learnersattheschoolbenefitfromthistransport.The special schools note that these buses often break down,whichmeans learnerswhousuallyusethetransportsimplycannotcometoschool.Inaddition,thebusescoveralimitedarea,andonlyspecific routes, soeven learnerswho liveasimilardistanceaway fromtheschoolbutinadifferentdirectionarerequiredtostayinhostels.Busesatbothspecialandfull-service schools leave learners at a central point in towns or villages; the learners –includingthosewithdisabilities–arethenexposedtotherisksofwalking,despite‘benefiting’fromDepartment-providedtransport.Forthemajorityoflearnersatfull-serviceschools,whodonotbenefitfromanytransport,their caregivers either pay for them to be brought to school privately through a systemdescribedas“UmalumeTransport”(‘UncleTransport’),ortheywalktoschool.These‘uncles’aremerelymenwithcars(oftenbakkies)whoattempttoloadasmanychildrenaspossibleintotheirvehiclesandareoftenveryuncaringandrudetowardschildrenwithdisabilities.Both of these options carry the risks of sexual violence, theft, and physical danger fromaccidents and wild animals. Real examples of these risks detailed in the report includeencounterswithsnakes,rapesandattemptedrapes,andchildrenbeingkilledincaraccidentsondangerousroads.Otherchildren,includingchildrenwithdisabilities,mustwalklongdistancesonroughterrain,and arrive at school exhausted. It is not uncommon for children to walk more than 10kilometrestoschool.Somechildrenmustwalkthroughdangerousforests,orswimacrossrivers to get to school.When the rivers are too roughor thewater level too high, thesechildrencannotattendschool.

Too little money: inconsistent, non-transparent and unreliable funding for inclusiveeducationAtfull-serviceschools,fundingisaseriousproblem.Full-serviceschoolsreportthatthoughthey are expected to accommodate childrenwith disabilities, they are not providedwithsufficientandconsistentfundingtodoso.WhilesomeschoolsreceiveasmuchasR273000forthispurpose,oneschoolreportsreceivingaslittleasR22000fromtheKZNDoEforthepurposesof inclusiveeducation,asrecentlyas2014/15.Thefundingisalsounreliableandinconsistentbecauseitisnotreceivedeachyear.Someschoolsreportthattheydonotreceivetheallocationasoftenastheyaremeantto.Oneschoolwasdesignatedafull-serviceschoolin2011,butwasfirstgrantedthisallocationin2014/15.Thereasonsthatschoolsareorarenotallocatedthesefundsarenotcommunicatedtotheschools;neitherarereasonsgivenforthe amounts allocated.Many schools interviewed inNovember 2015 predicted that they

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wouldnotreceiveanyfundingforinclusiveeducationin2016,becausebythatlatestageintheyeartheyhadstillnotreceivedanydocumentationindicatingthattheywould.Forallthefull-serviceschools,stretchingthelittlemoneyreceivedforinclusiveeducationisdifficult, because this funding must cover a variety of requirements – including supportinterventions for the school and outreach programmes for mainstream schools, capitalallocations forassistivedevices,districtworkshops,andrunningcosts forLearnerSupportCentres such as water, electricity, stationery, telephone accounts and cleaning. Someprincipals report that their allocations are not enough to cover even one of theserequirements,andtheyarethusforcedtochoose;forexample,betweenessentialassistivedevices,anddesperatelyneededtrainingforteachers.Chronicunderfundingisanotherproblemforspecialschoolsaroundthecountry,includingthoseintheUmkhanyakudeDistrict.15AsHumanRightsWatchuncoveredin2015,toofew–ifany–ofthemaredeclaredno-feeschools,andtheyarethereforeunrealisticallyexpectedtosupplementDepartment-providedfundingwithfeeintake.16ThisisparticularlytaxingonspecialschoolsinruralareassuchastheUmkhanyakudeDistrict.Thesituationisexacerbatedbyhostel feesandtransport feesthatcaregiversareexpectedtopaytospecialschools inordertocovertheschools’costsofaccommodatinglearners.Specialschoolscomplainabouttheinadequacyofthetotalfundingprovided,giventhecostsofoperatingaspecialschool.

Ineffectiveandinactivesupportstructures:negativeattitudes,insufficientexpertiseandcapacityFinally,SECTION27’sresearchrevealssignificantconcernsaboutthe ineffectiveor inactivesupportstructuresforinclusiveeducationatprovincialanddistrictlevels.BothDistrict-BasedSupportTeams(DBST)andSchool-BasedSupportTeams(SBST)oftenseemtobeincapableofperformingthecrucialsupportfunctionsdesignatedtothembygovernmentpoliciesandguidelines.IntheUmkhanyakudeDistrict,interactionandcommunicationbetweentheDBSTandtheSBSTsisinadequateandinfrequent.The DBST, like other examples of district and provincial officialdom, appears to lack thecapacity and expertise necessary to guide SBSTs in the implementation of an inclusiveeducationpolicy.Someevenhaveanegativeattitudetowardsthepotentialofchildrenwithdisabilities to learn, and the importance of education that accommodates all barriers tolearning.Moreworryingstillarethesignsofintimidationandpressurisationofteacherswhospeakoutpublicly–inthemedia,ortoNGOs–aboutthepoorstateofeducationprovidedtolearnerswithdisabilities,evenafterfollowingappropriatechannelswithoutsuccess.

15 RighttoEducationofChildrenwithDisabilitiesCampaign‘PositionstatementontheimplementationofWhitePaper6’(March2016),availableat http://pmg-assets.s3-website-eu-west-1.amazonaws.com/160308R2ECWD.pdf,p5-6. 16HumanRightsWatch‘ComplicitinExclusion’SouthAfrica’sFailuretoGuaranteeanInclusiveEducationforChildrenwithDisabilities(August2015),availableathttps://www.hrw.org/sites/default/files/report_pdf/southafrica0815_4up.pdf,p24.

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Theconditionsdescribedinthisreportthereforeamounttodaily,systemicviolationsoftherights to basic education, equality and dignity of children with disabilities in theUmkhanyakudeDistrict.

Purposeofthisreport:workingwithgovernmenttobuildaninclusiveeducationsystemThisreportaimsthroughouttocomparethesedevastatingrealitieswiththelegislative,policyand constitutional framework, with which the Umkhanyakude District Department ofEducation, the KwaZulu-Natal provincial Department of Education and the nationalDepartmentofBasicEducationarelegallyrequiredtocomply.Theintentionistoprovideananalysisoftheconditionsinfull-serviceandspecialschoolsintheDistrict,inordertoassistthe Department of Education (in consultation with people with disabilities, and DisabledPeople’sOrganisations) indevelopingaplan toprovidechildrenwithdisabilitiesaccess toqualityeducationthroughdirectandsystemicimprovements.The constitutional framework includes the ‘United Nations Convention on the Rights ofPersonswith Disabilities’ (2007),which is binding on South Africa, and the South AfricanConstitution;whichreadtogether,entrenchtherighttoinclusiveeducationforchildrenwithdisabilities.Thelegislativeframeworkincludesthe‘SouthAfricanSchoolsAct’(1998),whichrequirestheformationofaninclusiveeducationsystem,andthe‘PromotionofEqualityandPreventionofUnfairDiscriminationAct’(2002),whichrequiresthatchildrenwithdisabilitiesmust be reasonably accommodated. The policy framework includes the nationalDepartment’s‘InclusiveEducationWhitePaper6’(2001)andits‘ScreeningIdentificationandAssessmentPolicy’(2014),andissupplementedbyguidelinesproducedbytheDepartmentforfull-serviceschools(2010)andspecialschools(2014).Inaddition,itishopedthatthisreportwillprovideaclear,detailedcasestudythatwillassistinimprovinginclusiveeducationsystemsonanational,provincialanddistrictlevel.Thisisinresponsetotherecognitionearlyin2016,byabroadrangeofSouthAfricanandinternationalcivil societyorganisationsandorganisationsofpeoplewithdisabilities, thatSouthAfrica’sinclusiveeducationsystemremainsinastateof‘crisis’afull15yearsaftertheadoptionoftheInclusiveEducationWhitePaper,andamerefiveyearsbeforeitsimplementationisduetobecompletedin2021.17

Inclusiveeducationincrisis:rebuttingthefalse‘goodstory’narrative,andrevealingrightsviolationsUltimately, the depressing impression created by this detailed investigation into theeducation system for children with disabilities in the Umkhanyakude District is that the

17JointStatementofInclusiveEducationSouthAfrica,SECTION27,HumanRightsWatchandtheDullahOmarInstitute:‘SouthAfrica:CrisisforChildrenwithDisabilities–ParliamentShouldActUrgentlytoMandateInclusiveEducation’(14March2016),availableathttps://www.hrw.org/news/2016/03/14/south-africa-crisis-children-disabilities.

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system isdeeply inefficientanddysfunctional. It isnot remotely inclusiveofchildrenwithdisabilities,inmainstream,full-serviceorspecialschools.Thesystemdoesnotevenallowforthepossibility of successful education and completionof aNational Senior Certificate forchildren with disabilities. The appearance created is that the Umkhanyakude DistrictDepartment and the KZN DoE either believe that many children with disabilities are‘ineducable’, or do not value them enough to ensure that they are appropriatelyaccommodated.Asoneteacherputsit:

“[F]ull-serviceandspecialschoolsareusedasadumpinggroundforlearnerswhoarenotpassing[inmainstreamschools].”

Childrenwithdisabilitiesarechildrentoo.Thoughtheyrequireadditionalaccommodations,efficiently adapted systems and structures, and increased consideration to access equalqualityeducation, forthemasmuchastheirpeers, inthewordsoftheSupremeCourtofAppeal,“itcannotbeemphasisedenoughthatbasiceducationshouldbeseenasaprimarydriveroftransformationinSouthAfrica”.18Thisisparticularlytrueforpeoplewithdisabilities,forwhomunemployment is epidemicandaccess to incomeand social services is limited,particularlyinruralsettings.Regrettably,itisSECTION27’sexperiencethatnational,provincialandlocalDepartmentsofEducation are all too often satisfied with extremely slow, incremental statisticalimprovements inthe levelandqualityofeducationforchildrenwithdisabilities.KwaZulu-Natalisacaseinpoint,asitisoftenlaudedbytheDepartmentofBasicEducationasasuccessstory,andapioneerintheimplementationofaninclusiveeducationsystem.Thisreportaddstothegrowingevidencethatthis ‘goodstory’narrative isafalseone.AsGovenderconcludes,thoughsomegroundworkwasmadeearlyinimplementingWhitePaper6inKZN:

“Allfactorsconsidered,theKZNDoE’sinclusiveeducationstoryemergesasatragicwasteofresourcesanddisservicetochildren…[thereis]apatternofgeneralisedindifferenceregardinginclusiveeducationasasystem-wideprogramme…[andtheDepartmenthasa]questionable appreciation of the constitutional right of every child to quality publiceducation.”19

The inclusive education system in South Africa is in a state of crisis. To turn around thefortunesofchildrenwithdisabilitiesintheUmkhanyakudeDistrict,atrulyinclusiveeducationsystemconsistentwiththegovernment’sconstitutional,legislativeandpolicyobligations–and with children with disabilities’ corresponding rights to basic education, equality anddignity–mustbebuilt.Thisiscrucial,becauseasDeputyChiefJusticeMosenekeemphasisedinhisfinaljudgmentfortheConstitutionalCourt:

18MinisterofBasicEducationvBasicEducationforAll(20793/2014)[2015]ZASCA198;[2016]1AllSA369(SCA)(2December2015),para40,availableathttp://www.saflii.org/za/cases/ZASCA/2015/198.html.19 LGovender,‘Buildinganinclusivesystemofeducationandtraining’,News24(6June2014),availableathttp://m.news24.com/news24/Archives/Witness/BUILDING-an-inclusive-system-of-education-and-training-20150430.

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“Publicschoolsarenotrarefiedspacesonlyforthebright,well-manneredandfinanciallywell-heeledlearners.Theyarepublicassetswhichmustadvancenotonlytheparochialinterestof their immediate learnersbutmay,by law,alsoberequiredtohelpachieveuniversalandnon-discriminatoryaccesstoeducation.”20

DeputyChief JusticeMoseneke’scommentappliesequally tomainstream, full-serviceandspecialschools.Accesstoeducationisneitheruniversalnornon-discriminatoryuntilitfullyconsiders,accommodatesandprovidesfortheeducationofeachandeverychild,regardlessoftheirdisabilitiesandspeciallearningneeds.

20FederationofGoverningBodiesforSouthAfricanSchools(FEDSAS)vMemberoftheExecutiveCouncilforEducation,GautengandAnother(CCT209/15)[2016]ZACC14(20May2016),paras32,44,availableathttp://www.saflii.org/za/cases/ZACC/2016/14.html.

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II. SUMMARYOFRECOMMENDATIONS Below,welisteightkeyrecommendationswhichareapplicableacrosstheentirereport,andthereafterspecifythese‘corerecommendations’infurtherdetailattheendofthereport.As is noted throughout the report, the recommendations seek to assist governmentstructuresintheprocessofremedyingdaily,systemicviolationsoftherightstoeducation,equalityanddignityofchildrenwithdisabilitiesintheUmkhanyakudeDistrict.Theyalsoseektoidentifydeviationsfromexistingpolicyandlegislativerequirements,anddrawattentiontoregulatorygapsthatwillneedtobefilledformeaningfulchangetooccur.

1. Meaningfulconsultationwithandparticipationofpeoplewithdisabilities Allrecommendationsinthisreportandallactionstakenbyvariouslevelsandstructuresofgovernmentinimplementingitsrecommendationsmustinvolvethecentralparticipationandchoices of people with disabilities, in the Umkhanyakude District and throughout thecountry.This is a requirement of the United Nations Convention on the Rights of Persons withDisabilities,butisalsoacriticalnecessityforthesuccessfulimplementationofeachandeveryoneof theserecommendations.Financialandpractical supportshouldbeprovidedto thevariousDisabledPeople’sOrganisationsthatareactivethroughoutthedistrict, inordertoallowthemtodosoeffectively.Itiscrucial,especiallyinthecontextoftherightsofchildrenwithdisabilities,thatsection195oftheConstitution’sinstructiontothepublicservicethat“people'sneedsmustberespondedto,andthepublicmustbeencouragedtoparticipateinpolicy-making”isfullycompliedwith.Anon-exhaustivelistofsuchorganisationsandtheircontactdetailsisannexedtothisreport,marked‘AnnexureC’.

2. TheurgentdevelopmentofaturnaroundplanandstrategybytheKwaZulu-NatalDepartmentofEducation

TheKwaZulu-NatalDepartmentofEducationshouldurgentlydeviseaturnaroundplanandstrategytoimprovethestateofspecialandfull-serviceschoolsintheUmkhanyakudeDistrict.Thisplanshouldbetheproductofmeaningfulconsultationwithrelevantpublicstakeholders,includingpeoplewithdisabilities.Onitscompletionandpublication,itmustbemadepubliclyavailableandexplainedtotheparentsofchildrenwithdisabilitiesandtoDisabledPeople’sOrganisationsinthedistrict,clearlyandinunderstandableterms.Furtherrecommendationsaremadeaboutissuesthattheplanwillneedtoaddresstoeffectivelyremedycurrentrightsviolations and deviations from legislative and policy requirements. These includemattersrelatingto:

+ Curriculumdelivery+ Fundingandfees+ Post-provisioningfornon-educatorandeducatorstaff+ Transport

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+ Infrastructure+ Basicservices+ Abuse,neglect,maltreatmentandcorporalpunishment+ Hostelconditions+ Effectivenessofgovernmentstructures

Giventhewiderangeof issuestobedealtwith,afullauditoftheconditionsatthethreespecialschoolsand11full-serviceschoolsinthedistrictmayassistintheprocessofdevisingaturnaroundplanandstrategy.

3. RecommendationsforthenationalandprovincialDepartmentsofEducationarisingfromthereport

ThenationalDepartmentofBasicEducationmusthavesomeinvolvementinthisplanningprocess;holdtheKwaZulu-NatalDepartmentofEducationtoaccountforfailuretocomplywith national policies, guidelines andnorms; and ensure compliance in this regard in thefuture.Inaddition,thenationalDepartmentofBasicEducationmustexpeditetheprocessof:

+ Clarificationandpublicationofthe implementationplandescribed inEducationWhitePaper6between2016and2021,andwhatwillfillthepolicyvoidwhenthistimeexpires;

ThenationalDepartmentofBasicEducationmustensure:+ The publication of norms and standards for resourcing an inclusive education,

whichtheSIASpolicydescribedasan“immediaterequirement”andascommittedtobytheDepartmentofBasicEducationinameetingofthePortfolioCommitteeforBasicEducationinMarch2016;

+ Thepublicationofnormsand standards forpost-provisioning foreducatorandnon-educatorstaffforinclusiveeducation,asrequiredbytheSIASpolicy;and

+ Thepublicationofahostelpolicyforspecialschools,whichwasdescribedbytheDepartmentofBasicEducationinameetingofthePortfolioCommitteeforBasicEducationinMarch2016as“critical”.

TheKwazulu-NatalDepartmentofEducationmustensure:+ Thecompletionofthepublicationofaturnaroundplanandstrategyforall11full-

serviceschoolsandallthreespecialschoolsinthedistrict,asrecommendedinthisreport;

+ The publication of a provincial transport policy, which takes into account theparticularneedsofchildrenwithbarrierstolearningandallowsthemtoattendfull-serviceandspecialschools.Thisprocessshouldensureconsistencywiththe‘NationalLearnerTransportPolicy’;and

+ A documented clarification for full-service schools (including their principals,School-BasedSupportTeamsandSchoolGoverningBodies)ofhowtheirbudgetand subsidies for inclusive education are determined. This should includeinformationonhowfundingallocationsaretobedetermined;howtheycanbequeriedoraltered;andhowtheabsolutelevelsoffundingarejustified,giventheconstitutionalobligationsoftheKwaZulu-NatalDepartmentofEducation.

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4. Recommendationsforthenationalandprovinciallegislaturesarisingfromthereport ParliamentandtheKwaZulu-NatalProvincialLegislatureshouldcloselymonitortheplanningprocess recommended by this report, and hold the national and provincial executive toaccountbiannuallyforprogressinadoptingpracticalchanges,producingrealandstatisticalimprovements, and producing relevant, constitutionally informed policies throughparticipatoryprocesses.Inaddition,ParliamentandtheKwaZulu-NatalProvincialLegislaturemust investigatetheneedforlegislativeamendmentsregardingspecialschoolhostels,toensurethatlegislativeprotectionisprovidedtomeetatleastthelevelcoveredbytheminimumnormsthatapplytoChildYouthCareCentresintermsoftheChildren’sAct,whichcurrentlyexcludesschoolhostels.Finally,ParliamentandtheKwaZulu-NatalProvincialLegislaturemustensurethecompletionand implementation of recommendations in terms of theKwaZulu-Natal Department ofEducation’srecommendedreportonboththelivingconditionsinspecial-schoolhostels,andthewidespreadabuse,neglectandcorporalpunishmentofchildren.

5. Urgentactiontocombatabuse,neglectandcorporalpunishmentinspecial-schoolhostels

Boththe livingconditions inspecial-schoolhostelsandthewidespreadabuse,neglectandcorporalpunishmentofchildrenatspecialschoolsmustasamatterofextremeurgencybethe subject of a separate investigation. A report from this investigation and detailedexplanationsofwhatmeasureswillbetakenmustbemadepublicassoonastheinvestigationiscompleted.ThoughtheKwaZulu-NatalDepartmentofEducationmusttakechargeofthisprocess,becauseofthenationalDepartmentofBasicEducation’sacknowledgmentinMarch2016thatthereare“extremelypoorconditions”and“analarmingnumberofcasesofabuse”throughoutthecountry,itmustalsoplayakeyrole,andmayconsiderexpandingthescopeofthisinvestigation.

6. Increasedaccesstoappropriatehigh-schooleducationforchildrenwithdisabilities TheKwaZulu-NatalDepartmentofEducationmusturgentlyplanforand–asexpeditiouslyaspossible–ensurethatmeaningful,appropriateaccesstohighschooleducationisprovidedtochildrenwithdisabilitiesintheUmkhanyakudeDistrict.To begin with, an investigation should be undertaken with regard to adding high-schoolgradestoIntuthukoSpecialSchool,SisizakeleSpecialSchool,andKhulaniSpecialSchool.In addition, the full designationand conversionof additionalhigh schools throughout thedistricttofull-serviceschoolsshouldbeseriouslyandexpeditiouslyconsidered.

7. RolloutofmobilisationandawarenesscampaignsondisabilityandinclusiveeducationThe KwaZulu-Natal Department of Education, in coordination with the UmkhanyakudeDistrictDepartmentofEducation,musturgentlyimplementthemobilisationandawarenesscampaignsrequiredbyWhitePaper6.Thesecampaignsmustbefocusedondisabilityand

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inclusiveeducationthroughoutthedistrict,andshouldbevisible,clearlyaccessible,andbesupplementedbyextensivemediacampaignsincludingbillboardadverts,communityradio,and televisionmessaging. These campaignsmust be accompanied by emergency interimplansinordertoensureaccessforchildrenwithdisabilitieswhoarecurrentlylanguishingoutofschool.

8. StrengtheninggovernmentstructurestoensureeffectivesupportisprovidedtoschoolsEffectiveness of, capacity and expertise within government structures – including theUmkhanyakude District Department of Education, the Umkhanyakude District-BasedSupportTeam,andSchool-BasedSupportTeamsatspecialandfull-serviceschools–mustbe evaluated by the KwaZulu-Natal Department of Education. The KwaZulu-NatalDepartmentofEducationmustensurethecapacitationof thesestructureswithsufficientexpertise and resources to undertake their functions effectively. The KwaZulu-NatalDepartmentofEducationshouldalsoinvestigatetheactivityandperformanceofSGBsatfull-serviceandspecialschoolsinthedistrict,andensurethatthepowersandobligationsoftheseSGBstoco-optexpertsintermsoftheSchoolsActareutilisedeffectively.

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III. GLOSSARYOFIMPORTANTTERMSANDCONCEPTSBarrierstolearningRefers todifficulties thatarisewithin theeducation systemasawhole,a community context, thelearningsite,and/orwithinalearnerhis/herself,whichpreventeducationalandsocialdevelopmentforchildren.Childrenwithdisabilitiesoftenexperiencesignificantbarrierstolearning;butmanyotherchildrenexperiencesuchbarrierstoo.ChildrenwithdisabilitiesDisability is an umbrella term for impairments, activity limitations and participation restrictions.Disability is potentially an issue both at the level of a person’s body and as a result of anunaccommodatingsocialandphysicalenvironment.Thisreportincludeswithinthisdefinitionpeoplewith disabilitieswho are below18 years old, orwho are older than 18 years old but still requireprimaryandhighschooleducation.‘Childrenoutofschool’or‘out-of-schoolchildren’Childrenwhodonotattendschoolatallbecausetheydonothaveaccesstoanappropriateschoolthat can accommodate their needs, either in their community or elsewhere. Childrenwho are inschools thatcannotaccommodate theireducationalneedsbecauseof theirbarriers to learningordisabilitiescanalsobedescribedasbeingeffectively‘outofschool’.CAPSCurriculumTheCurriculumandAssessmentPolicyStatement (CAPS) is thenational curriculumforGradeR toGrade12learnersinSouthAfrica.CurriculumDifferentiationThestructuringandimplementationofaflexiblecurriculumprogrammeforlearnersbasedontheirownindividualandcollectiveneeds,takingintoaccounttheirdisabilitiesandbarrierstolearning.District-BasedSupportTeamAdistrict-based,government-operatedentitythatprovidesongoingsupporttoschools,teachersandlearners,toaddressandaccommodateforthebarriersoflearningofchildreninschoolsinadistrict.Itcomprisesmedicalandeducationalprofessionals,expertsandgovernmentofficials.DisabledPeople’sOrganisationAn advocacy organisation controlled by a majority of people with disabilities, at board andmembershiplevel.DisabledPeople’sOrganisations(DPOs)areformedandadvocatefortherightsofpeoplewithdisabilitiesinabroadrangeofways.MainstreamschoolDescribedintheSchoolsActasan“ordinary”schools.Publicneighbourhoodschoolsaredescribedinthisreportas‘mainstreamschools’tomirrortheterminologyusedbystaffmembersatschoolsintheUmkhanyakude District.Mainstream schools are required to “reasonably accommodate” childrenwithdisabilities.Full-ServiceSchoolAspecially-designated,convertedandresourcedpublicmainstreamprimaryorhighschoolthatcatersforamajorityoflearnerswithlowsupportneeds,andasmallerpercentageoflearnerswithdisabilitieswhohavemoderateorhighsupportneeds.SpecialSchool

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A public primary or high school that caters exclusively for childrenwith high barriers to learning,includingdisabilities,andrequiringcontinuous,highlyintensiveeducationalsupport.InclusiveEducationAn education system that enables educational structures, systems and learningmethodologies tomeetthedifferentneedsofall learnersatall levelsofthesystem,andinmainstreamschools,full-serviceschoolsandspecialschools.InclusiveEducationWhitePaper6ADepartmentofBasicEducationpolicyframeworkthatseekstogiveeffecttotheSchoolsActandtheConstitution’srequirements.Itattemptstoremedythesegregatededucationsysteminheritedfromthe apartheid government, and build an inclusive education system within 20 years of itsimplementation,by2021. LearnerSupportCentreOften, a separate structure to the school building. Provides a learning space and safe haven forchildrenwith disabilities at full-service schools, and houses facilities and resources for a range ofsupportservices.LearnerSupportAssistantA Learner Support Assistant supports teachers and children with barriers to learning in order toaccommodatechildren’seducationalandsocialdevelopmentinfull-serviceschools.Thismaybedonethrough remedial lessons after class, in class during teaching time, or through a ‘pull-out’ systemduringclasstime.LearningSupportEducatorA Learning Support Educator is a specialist position for a qualified educational professional whospecialises in the education of children with high barriers to learning, including children withdisabilities. Such assistance includes support in performing curriculum-differentiation tasks, anddevelopingindividualsupportplansforlearners.LearningandTeachingSupportMaterialCanincludestationeryandsupplies, learningmaterialssuchastextbooksandworkbooks,teachingandlearningaids,technologicalassistivedevices,andworkshopequipment.Post-provisioningTheprocesswherebytheprovincialDepartmentofEducationdetermines,annually,thenumberofstate-fundededucatorandnon-educatorpoststhataretobeallocatedtoaparticularpublicschool.ReasonableAccommodationTheconsiderationandadaptionofconditionsandenvironmentsthroughtheprovisionofresources,infrastructure,materials, equipment and time, toenable childrenwithdifferent learningneeds toperformequallyinschools.School-BasedSupportTeamAteamcomprisingmembersofstaffataschoolandmembersofaschoolcommunity,whoseprimaryfunctionistoputinplacecoordinatedschool,learnerandteachersupportservicestoaccommodatethedifferentlearningneedsofchildrenwithbarrierstolearning.Screening,Identification,AssessmentandSupportPolicyApolicyofthenationalDepartmentofEducationthatdirectstheprocessofenrolmentandadmissionoflearnerswithbarrierstolearning,andexplainswhethertheyshouldattendmainstream,full-service

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orspecialschools.

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IV. BACKGROUND:THEUMKHANYAKUDEDISTRICT,ANDINCLUSIVEEDUCATIONINKWAZULU-NATAL

BackgroundtoSECTION27’sworkintheUmkhanyakudeDistrict

1. SECTION27beganvisitingManguziinearly2013.Wewereintroducedtomembersofthe local Disabled People’s Organisation (DPO), Sipilisa Isizwe (SI), by healthcareprofessionalsfromManguziHospital.WebegantolearnofthelivedrealitiesofpeoplewithdisabilitiesinManguzi.

2. InSeptember2013,asmalldelegationofSECTION27staff,accompaniedbyrecently-retiredJusticeZakYacoobandfivestudentsfromtheUKZNbranchofStudentsforLawandSocial Justice,1participated inaworkshopwithSipilisa Isizwememberstounpackfurthertheacuteservice-deliveryproblemsfacingpeoplewithdisabilitiesinManguzi.Atthisworkshop,membersofSipilisaIsizwechosetoprioritisethedismalstate of education for childrenwith disabilities in theUmkhanyakudeDistrict, andrequestedfurtherassistanceandinvolvementfromSECTION27torealisetherighttobasiceducationofchildrenwithdisabilitiesinManguzi.Closingtheworkshop,JusticeYacoob emphasised the importance of struggles for social justice for people withdisabilitiesbeingledbypeoplewithdisabilities.

“I am hoping that the people themselves get stronger and they’re able to organisethemselves,abletounderstandmoreclearlywhattheyneed,andthey’reabletodemandit. Because I believe that absent a strong civil society, government will never deliverproperly,whoeverthatgovernmentwillbe.”2JusticeZakeriaYacoob,retiredJusticeoftheConstitutionalCourtofSouthAfrica

3. Following on from this workshop, Sipilisa Isizwe organised a community meeting,

whichwasattendedbyover250people.Participantswerepredominantlypeoplewithdisabilities.3Thiscommunitymeetingwasthestartofaprocessofstatement-takinginisiZulufrompeoplewithdisabilities,describingtheirchallengesinensuringchildrenwith disabilities accessed quality basic education. Statements taken in isiZulu bySECTION27throughout2014and2015formthecoreofthisreport,andarequotedanonymouslythroughout.4Thecommunitybegantomeetmoreofteninthisperiod,sometimes with SECTION27. The most recent meeting was a Disability Indaba inManguziinNovember2015,attendedbyapproximately200peoplewithdisabilitiesfromManguzianditssurroundingareas.

4. On23 January2014,approximately60membersofSipilisa IsizwepicketedoutsideSisizakele Special School in Bambanani to express their disappointment with theUmkhanyakudeDistrictDepartmentofEducation’sfailuretoprovideaccesstoqualityeducationforchildrenwithdisabilitieslivinginManguzi.Thispicketwasattendedbythe District Director of Education, Mr TJ Motha, who took down in writing thesignificantandvariousconcernsoffrustratedpicketers.Atthisstage,SECTION27alsobegan discussing the dire conditions at Sisizakele Special Schoolwith the school’sprincipal,MsJood.

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5. On 20 February 2014, SECTION27 wrote to the KwaZulu-Natal Department of

Education,onbehalfofSipilisaIsizweand20caregiversofchildrenwithdisabilitieswhoatthatpointhadnoaccesstobasiceducation.Inthisletter,SECTION27urgentlyrequestedaplanonhowthesechildrenandotherchildrenwithdisabilitieswouldbeaccommodatedatappropriateschoolscapableofrealisingtheirrights.Noresponsewasreceivedtothisletter,ortosubsequentlettersof7March,24April,or30June2014.

6. On29September2014,SECTION27againfollowedupontheseletters,requestingthe

immediateplacementof17childrenbetweentheagesof7and16yearsold,andtheimmediateplacementofsimilarlysituatedlearnersinKwaZulu-Natal.On21October,MsThulaniCele,theSchoolLiaisonandWorkflowManagerintheOfficeoftheMECforEducationinKwaZulu-Natal,respondedbylettertoSECTION27onbehalfoftheOfficeoftheKZNMemberoftheExecutiveCouncilforEducation.Theletterdetailed,in general, themeasures takenby theprovincialDepartment to provide access toeducationforchildrenwithdisabilitiesbetween2011and2014.Theletterfailedtodirectly address the situation of the 17 children represented by SECTION27 andsimilarlysituatedchildrenthroughouttheprovince.

7. Asa result, SECTION27’s replyon29October threatened the institutionwith legal

proceedingstofulfiltherightsoflearnerswithdisabilitiesifitsrepeatedrequestswerenot met with appropriate action. On 11 November 2014 Ms Cele responded toSECTION27, inviting SECTION27 to workshop with the District and provincialDepartmentofEducationinthefirstweekofDecember.Theminutesofthisworkshopreflectthatthereare10full-serviceschoolsandthreespecialschoolsinthedistrict,and acknowledged theneed for an additional special school; and that in 2015, anadditional150learnerswouldbeadmittedtoSisizakeleSpecialSchool.Itwasfurtherresolvedthat:

+ Immediate stepswouldbe takenby theDepartment to ensure that the17

childrenrepresentedbySECTION27wouldbeplaced,eitheramongthe150newplacementsorthroughalternativemeans;

+ Feedbackwouldbeprovidedby31January2015;and+ TheDepartmentwouldarrangeaworkshopwithSipilisaIsizwetodiscussthe

needsofover-age learners in theUmkhanyakudeDistrict,and facilitate theparticipationofSImembersintheDistrictDisabilityForum.

8. Ofthe17learnersSECTION27represented,14wereplacedatSisizakeleSpecialSchoolatthebeginningoftheschoolyearin2015.NeitherSECTION27northeDepartmentof Education were able to contact the remaining three learners. To SECTION27’sknowledge, to date there has been no plan made for the placement of similarlysituatedlearnersinManguzi,itssurroundingareas,andtherestoftheUmkhanyakudeDistrict.

9. Sisizakele Special School remains severelyunder-resourced.Media reportsquotingchildrenandteachersinlate2015indicatethatthey“arebeingbeatenbytheirhouse

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mothers and are living under appalling conditions”, and are being taught a“meaningless”curriculum.5MsJoodindicatedinaninterviewthattheeffectiveresultof SECTION27’s intervention was to the benefit of only the particular learnersrepresented by SECTION27, and a substantial waiting list remains, includingapplicationsmadeseveralyearsago.

10. ItbecameincreasinglycleartoSECTION27andSipilisaIsizwethattoimproveaccessto schools and the conditions at schools for all children with disabilities, aninvestigationwasnecessarytofindeverypossibleoptionforaccesstoeducationforchildrenwithdisabilitiesintheUmkhanyakudeDistrict.Indesperation,membersofSipilisaIsizwe(supportedbystaffatManguziHospital)openedacrècheforchildrenwithdisabilitiesinManguzi,inJuly2015.ByAugust2015itaccommodated50childrenwithavarietyofdisabilities,providingthemwithdailycareandattemptingsomeformof education. The crèche is run bymembers of the community, caregivers of thechildrenwhoattendit,andmembersofSipilisaIsizwe.Moreinformationaboutthecrècheisprovidedinanannexuretothisreport.6Thiscrèchecatersforchildrenofvaryingrangesofdisabilities,severitiesofdisabilities,andages.

“[Myson]isatthecrècheeverydaybutgoeshomedaily.Heseemstohavelightenedupinthewayheinteractswithotherkids.Heseemshappytogoto[thecrèche]withotherkidsandinteractwiththem.Itseemslike[he]isstartingtofeellikeheisbelongingthere.”MotherofchildattendingManguzicrèche

11. ThisreportistheproductoftheinvestigationthatwasconductedbySECTION27inconsultationwithSI. Itcontainsthefindingsof lengthyvisitstotheUmkhanyakudeDistrict inMay,AugustandNovember2015, aswell as secondary researchon theinclusive education systemand the right to education of childrenwith disabilities,bothnationallyandinternationally.All inall,nearly100interviewswereconductedwithcaregiversofchildrenwithdisabilitiesinManguzi,andmeetingswereheldwithprincipals and other staff of 11 full-service schools7 and three special schools,8spanningthewholeoftheUmkhanyakudeDistrict.

Methodology

12. All interviews with caregivers were conducted by SECTION27 employees andfacilitated through Sipilisa Isizwe. Caregivers were asked questions in isiZulu bySECTION27 staff,who translated into English for other SECTION27 staffmembers.Whenthiswasnotdone in theprocessof takingstatements, thestatementsweretranslatedafterwards.Thoughabroadrangeofissueswerediscussed,9interviewerswere instructed to allow interviews to follow the course set by the caregiversthemselves, because of the personal and traumatic nature of many of theseconversations. Themultiplicityof issues raised in the report are thereforeadirectreflectionofthemultiplicityofconcernsexpressedbycaregivers.

13. Interviewsatschoolswereorganisedthroughtheprincipalsoftheschools.Principalsdetermined which members of staff would participate in these discussions –

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frequentlyDeputyPrincipals,HeadsofDepartment,andmembersofSchool-BasedSupportTeams(SBST).Thesignificantmajorityofstaffinterviewedspokefranklyandemotionally, in the best interests of the learners. They showed impressivecommitment and compassion to the learners, even when they felt that thecircumstancesmadeitdifficultforthemtoprovidelearnerswithqualityeducation.Manyofthestaffinterviewedgavemeticulousdetailofthechallengesfacingspecificstudents,whoselivesandlearningbarrierstheyhadclearlytakentimetounderstand.

14. The questions posed tomembers of staff were guided by the concerns raised by

caregiversinSECTION27’sinterviewswiththem.Otherquestionswereinformedbydesktopresearchonthechallengesfacedbyinclusiveandspecialschoolsaroundthecountryandthroughouttheworld.Staffwerealsoregularlygiventheopportunitytospeak to concerns of their own that did not arise from questioning, and werespecificallyaskedtodosoatthebeginningandendofallinterviews.

15. In addition, SECTION27 commissioned two reports on budgeting for inclusive

education.Thefirst,a2014report,wascompiledbyMsPennyParenzeeandpertainsspecificallytocertainaspectsofbudgetingforinclusiveeducationinKwaZulu-Natal,with further focus on special schools. The second, a 2015 report produced byMsDebbieBudlender,isacomprehensiveoverviewofbudgetingforinclusiveeducation,bothnationallyandprovincially.Thesecommissionedexpertreportsareannexedtothisreport,andarediscussedbrieflybelow.

Purposeofthereport“Youmustnotlockyourchildrenup[athome]justbecausetheyhavedisabilities.”Principal,full-serviceschool,UmkhanyakudeDistrict

16. ThisreportisintendedtoprovideaclearpictureofthestateoftheinclusiveeducationsystemintheUmkhanyakudeDistrict.Itishopedthatitwillprovideatoolthatwillassist children with disabilities, caregivers of children with disabilities, schoolgoverning bodies, teachers, principals, non-educator staff and local governmentofficialstoadvocatefortherightsofchildrenwithdisabilities.

17. The report also aims to elevate the often-marginalised voices of people withdisabilities, express their personal and collective frustrations, and prioritise theirneeds,goalsandsuggestions.Themantraofmanydisability-rightsgroups(‘NothingAboutUs,WithoutUs!’)andthebroaderconstitutionalphilosophyofparticipatorydemocracyisthereforeaguidingprincipleandanimatingpurposeofthereport.

18. ThereportwillbesenttotheUmkhanyakudeDistrictDepartmentofEducation,theKwaZulu-Natal Department of Education and the national Department of BasicEducationinordertoassistintheprocessofformulating,planningandimplementingEducationWhite Paper 6 throughout the district, the province and the country. Itmakesdetailedrecommendationswiththispurposeinmind.

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InclusiveEducationinKwaZulu-Natal

19. The2011/12AnnualReportoftheKZNDoEnotesthat“itisestimatedthatthereare37768learnerswithdisabilitiesbetweentheagesof6and15yearsthatareoutofschool.”Thesamereportacknowledgesthat“theselearnersarelargelythosethattheeducation system has not been catering for, as they require very high levels ofsupport.”10

20. Inaddition,a2011special-schoolsSurveyReporthighlightsavarietyofchallengesinthe quality of education within special schools, including insufficient assessmentsupport, inadequate co-curricular, suitability of curriculum, lack of training forteachersandprincipals,inadequatesupportstaff,lowlevelsofsupportfromdistrictDepartments, inappropriate infrastructure, and little or no access to transport,assistive devices and other resources.11 The endemic nature of these problems isconfirmed by a 2011 Special School Audit Report titled ‘Special Schools SurveyReport’.12

21. Apart fromthis,very little information isavailableorreportedbythe KZNDoEoninclusiveeducation.Thereisnexttonoinformationaboutfull-serviceschoolsinKZNavailabletothepublic.AsurveyoftheKZNDoE’slengthyannualreportsdatingbackto2010indicatesthatreportsoninclusiveeducationneverexceedmorethanafewpages, and provide little qualitative information. Usually, only quantitativedescriptions of (for example) the number of designated full-services schools andspecialschoolsisprovidedinthesereports,withoutsufficientexplanationofcontext.Oftentheinformationinoneannualreportdirectlycontradictsinformationprovidedinotherannualreports.

InclusiveeducationintheUmkhanyakudeDistrict

22. TheUmkhanyakudeDistrictisthemostnorthernofthe11districtsofKwaZulu-Natalprovince,withapopulationofatleast644196people.Itisaverypoor,ruraldistrictwithfivelocalmunicipalities:Umhlabuyalingana,Jozini,TheBigFiveFalseBay,HlabisaandMtubatuba.

23. Manguzi(otherwiseknownasKwangwanase)isasmallbutgrowingruraltownintheUmkhanyakudeDistrict.ItformspartofUmhlabuyalinganamunicipality,whichhasapopulationofat least156736.Sipilisa IsizweandManguziHospital–SECTION27’sinitialpointsofcontactinthedistrict–arebasedthere.SipilisaIsizwehasexisted,inmanyforms,sincethe1970s,andisitselfmadeupofrepresentativesfrom48isiGodis(villageunits)inManguzianditssurroundingareas.

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24. Thedistrict has anunemployment rateof 42.8%. 40.3%of people living there areundertheageof15,and25%ofpeopleovertheageof20havenoschooling.13Manypeople are forced to move elsewhere for employment opportunities, and otherssurviveonsubsistencefarmingandsmall-scaleinformalwork,includingsellingtheirproduce.14

25. Astudycompletedin2001estimatedachildhooddisabilityrateof6%.Thestudyisrudimentary,andlikelytobeanunderestimate.UNICEFestimatedin2011that11.2%ofchildreninSouthAfricahavedisabilities,withthisrateincreasinginyoungeragesand in rural provinces.15 In KZN, for example, UNICEF’s 2011 prevalence estimatestoodat13.3%.16

26. People with disabilities are disproportionately affected by broader social issues.Broadly,theyhavelowerlevelsofeducationandincome.17Theunemploymentrateforpeoplewithdisabilitiesissignificantlyhigher.Studiesindicatethatdisabilityratesarehigher in rural areas than inurbanareas.18Becausepoor access tohealthcareservices and malnutrition are potential causes of disability, disability not onlyincreases the chances of poverty, but poverty increases the chance of disability:“Disabilityisbothacauseandaconsequenceofpoverty”.19

27. ReportsbytheDepartmentofBasicEducation(2007)andtheSouthAfricanHumanRightsCommission(2004)confirmedboththedearthofspecialschoolsinruralareasacrossthecountry,andthedeplorableconditionsoftheschoolsthatdoexist.20TheDepartmentofBasicEducation’s2014‘GuidelinesToEnsureQualityEducationandSupportinSpecialSchoolsandSpecialSchoolResourceCentres’beginsbyacceptingthat“thequalityofeducationofferedinmanyofthesespecialschoolsisverylimited,andmanylearnersenrolledinsomeoftheschoolsneverprogressbeyondGrade1.”TheDBE’s2015progressreportontheimplementationofWhitePaper6confirmsthaturbanchildrenattendingspecialschoolsremaincomparativelyadvantaged,andthat“over12years[oftheimplementationofWhitePaper6],thesituationhaschangedverylittleintermsofachievingequityandredress”.21

28. Our research in the Umkhanyakude District confirms both the problems ofunavailabilityofspecialschools,andthelowqualityofeducationprovidedintheseschools.

29. Asrecentlyas2002therewerenoregisteredschoolsforchildrenwithdisabilitiesintheUmkhanyakudeDistrict.All threespecialschools inthedistrictwerestartedbycommunity members, and only after many years were they taken over by theDepartmentsofEducation.Forexample,aSisizakeleSpecialSchoolCommitteebegancampaigningfortheofficialopeningoftheschoolatleastasearlyas1993.22Priorto

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2002, thevery fewchildrenwithdisabilitieswhodidattendschoolwere forced totravelseveralhourstoEstcourt,NkandlaandPietermaritzburg,dependingontheirdisabilities.Caregiversoftenhadtotakelongreturntrips,onvariousformsofpublictransport,simplytogettheirchildrentoandfromschooleachterm.Thiscouldtakeuptofivedaysoftravelling.23

30. Asaresult,hospitalrecordsindicatethatin2001,amere138childrenwithdisabilitiesfromtheareawereattendingspecialschoolsoutsideofthedistrict,andafurther28wereattendingmainstreamschools.At this stage,at least870otherchildrenwithdisabilities,whohadbeenidentifiedthroughhospitalrecords,“wereunabletoaccesseducationduetodisability”.24AstudycompletedinManguziestimatedthat53%ofchildrenwithdisabilities“didnotattendschool”;andofthosewhodid,afurther53%“reportedhavingdifficultiesatschool”.25

31. TheUmkhanyakudeDistrict’sannualreportsrarelyreportoneducationgenerally,andeducationforchildrenwithdisabilitiesinparticular.Anassessmentofannualreportssince2010revealsasinglereferencetospecial-needseducation,in2013,inwhichitwas noted that community members engaged mayors of local municipalitiesconcerning“kidswithspecialneedswhocannotbeacceptedinschools,andspecialschools are very far.”26 The only other meaningful references to disability are inrelationtoadhocworkshops,andanotethatasingleannualDisabilityForummeetinghadbeenheldinaparticularmunicipalityasplanned.

BudgetingforspecialneedseducationinKwaZulu-Natal

32. According to an expert analysis conducted in 2014, “funding for special-needseducationcontinuestobeinsufficienttoensuretherightofspecial-needslearnerstoaccessbasiceducationisupheld.”27 InKwaZulu-Natal inparticular,thisreportfindsthatallocationsforspecial-needseducationare“constantlyunderspent”and“shiftedawayfromspecialneedstoaddressoverexpenditure”elsewhere.28InthecontextofKwaZulu-Natal, theconsiderableunderspendhasgenerallybeendirectedtopayingteachers’salariesinmainstreamschools.29

33. KwaZulu-Natalisamongtheprovinceswiththehighestannualallocationsforspecial-needseducationinabsoluteterms.However,despitethefactthatKwaZulu-Natalhasmorechildrenthananyotherprovince(23%ofthetotal),allocationtowardsspecial-needseducationislessthanhalfthatofGauteng.30Moreover,asapercentageofthetotaleducationallocation inKwaZulu-Natal, special-schooleducationamounts toamere 2.0%, the fourth-lowest of all provinces, less than half of the percentageallocatedinGauteng(5.2%),andbelowtheaveragepercentagespendof2.9%.31

34. Additionally,itisofconcernthatbetween2014/15and2015/16therewasaplanned

decreaseof22.7%inthisallocation,tobefollowedbyanothermarginaldecreasein

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2016/17.32 This is particularly surprising given that KZN is predominantly a ruralprovince, and that both disability prevalence and lack of access to education forchildren with disabilities are generally more severe in rural areas. As this reportconsistently asserts,more resources are therefore needed to realise the rights ofchildrenwithdisabilitiesinKwaZulu-NatalthanincomparativelylessruralprovincessuchasGauteng.

35. More worrying still is where this decreasing allocation is directed, as 82% of the

special-school education programme budget is to go towards “compensation ofemployees” (including Department officials and educator and non-educator staff)between 2014 and 2017.33 In contrast with this high percentage to be spent onDepartment employees, between 2013 and 2016 KwaZulu-Natal has consistentlybudgetedthethird-lowestrateforper-learnerexpenditure,consistentlywellbelowtheprovincialaverage.34

36. The reports of both experts (Paranzee and Budlender) conclude that there is

regrettably little information on the specifics of budgeting for special-needseducation. What information does exist is too often unclear or incomplete. AsBudlenderconcludes,“Thelevelofdisaggregationandcategoriesusedinthebudgetvotes also make it difficult, if not impossible, to identify the amounts spent onimportant areas such as [learning and teaching support materials], transport andtraining.”35 This problem is exacerbated at a provincial level, because nationalDepartment reports often appear to merely omit some information on someprovinces,withoutgivingreasonsfordoingso.36Despitethesechallenges,anattemptis made throughout this report to link difficulties faced at schools to budgetaryinformation provided by government departments, and in the expert analyses ofParenzeeandBudlender.

Keyconstitutional,legislativeandpolicydocuments

37. Overall,thelegalframeworktowhichtherealityatfull-serviceandspecialschoolsintheUmkhanyakudeDistrictcanbecomparedcanbesummarizedasfollows.

+ Constitutional framework: includes the ‘UnitedNations Convention on theRightsofPersonswithDisabilities’(2007),whichisbindingonSouthAfrica,andthe SouthAfricanConstitution;which, read together, entrench the right toinclusiveeducationforchildrenwithdisabilities.

+ Legislativeframework:includesthe‘SouthAfricanSchoolsAct’(1998),whichrequirestheformationofaninclusiveeducationsystem,andthe‘PromotionofEqualityandPreventionofUnfairDiscriminationAct’(2002)thatrequiresthatchildrenwithdisabilitiesmustbereasonablyaccommodated.

+ Policy framework: includes the national Department’s ‘Inclusive EducationWhitePaper6’(2001)andits‘ScreeningIdentificationandAssessmentPolicy’(2014),and issupplementedbyguidelinesproducedbytheDepartmentforfull-serviceschools(2010)andspecialschools(2014).

38. For convenience, the contents of these constitutional, legislative and policy

documentsaredetailedbriefly.

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TheConstitution

39. TheConstitutionisthesupremelawofSouthAfrica.Conduct,legislationandpoliciesinconsistentwithitsprovisionsareofnoforceoreffect.Thenational,provincialanddistrict Departments of Education must act consistently with the Constitution’srequirements. For the present purpose, what is most important is that theConstitution entrenches an “immediately realisable” right to basic education for“everyone”,whichincludeschildrenwithdisabilities.37Inaddition,itpreventsunfairdiscrimination, and presumes discrimination based on a listed set of categories,includingrace,genderanddisability,tobeunfair.38Intermsofthesamesection,thestate is required to take positive steps in terms of what is known as “affirmativeaction” to protect and advance groups “disadvantaged by unfair discrimination”.These and all other constitutional obligations “must be performed diligently andwithoutdelay”.39

TheUnitedNationsConventionontheRightsofPersonswithDisabilities

40. TheUnitedNationsConventionontheRightsofPersonswithDisabilities(UNCRPD),which came into operation in 2007, sets out specific protections for people withdisabilities.Article24of theUNCRPDdeals specificallywitheducation for childrenwithdisabilities,andentrenchesininternationallawforthefirsttimetherighttoan“inclusive education system”. Because theUNCRPD is a binding treaty signed andbrought into law by South Africa, the Constitutional Court has emphasised itsimportance in the promotion of the rights of persons with disabilities and ininterpretingSouthAfricanlaw,includingtheConstitution.40

41. Thisrighttoinclusiveeducation,theUNCRPDmakesclear,meansthat“personswithdisabilitiesarenotexcludedfromthegeneraleducationsystem”andmustaccordinglyreceiveappropriatesupportwithinthegeneraleducationsystem.TheUNCRPDalsospecifies that the level of support provided by states, often in the form of a“reasonableaccommodation”,mustputchildrenwithdisabilitiesonanequalfootingto other learners, both academically and socially, andmay require “individualisedsupport”.

42. Finally, the Convention places special emphasis on childrenwith disabilities being

equippedwiththeabilitytoread,writeandcommunicate,anddevelopother“lifeandsocialdevelopmentskills”;andemphasisestheneedforteachers,professionalsandstaffworkingatalllevelsofeducationwhoaretrainedcomprehensively–notonlyinspecificskillssuchasbrailleandsignlanguage,butalso,forexample,on“disabilityawareness” and “educational techniques and materials to support persons withdisabilities”.

SouthAfricanSchoolsAct

43. TheSchoolsActisthelawpassedbyParliamentthatgiveseffecttotherighttobasiceducation.Itestablishesaneducationsystemthatmakeseducationcompulsoryfor

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allchildrenbetweenages7and15;whichpractically,today,meansfromGradeRuntilGrade9,whicheveroccursfirst.

44. TheSchoolsActappliesequallytochildrenwithdisabilities,andhasvarioussectionsdealingwith disability directly.Where it is necessary tomake distinction betweenchildrenwithdisabilitiesandotherchildren,theActreferstolearnerswith“specialeducationalneeds”.Forexample, theAct indicates thatapublic schoolmaybean“ordinary”mainstreamschooloraschoolforlearnerswithspecialeducationalneeds.

45. EvenbeforeWhitePaper6cameintoforcein2001,theSchoolsActestablishedthe

need for an inclusive education system; requiring that “where reasonablypracticable”,learnerswithspecialneedsmustbeprovidededucationatmainstreamschoolswith“relevanteducationalsupportservicesforsuchlearners”.41Importantly,the Act also requires that all “physical facilities” at mainstream schools are“accessible”topeoplewithdisabilities.

ThePromotionofEqualityandPreventionofUnfairDiscriminationAct(EqualityAct)

46. TheEqualityActisanimportantlawpassedbyparliamenttocombatdiscriminationandeliminatepoverty. It specifies thatdenyingtoor takingaway fromanypersonwithadisabilityanysupportingorenablingfacilitytofunctioninsocietyamountstounfairdiscrimination. It also considersa failure toeliminateobstacles that limitorrestrict people with disabilities from enjoying equal opportunities as unfairdiscrimination.

47. Forexample,acourtdecidingwhethertherehasbeenunfairdiscriminationagainsta

childbecauseoftheconditionsatandactionsofaschoolwillhavetodecidewhetherthe school failed to take “steps to reasonably accommodate the needs” of thechild/children with disabilities. This requirement has been confirmed by both theEqualityCourtandtheConstitutionalCourt.42

48. ItisworthemphasisingthatinthecaseofOortman,theEqualityCourtconfirmedthat

the duty to make reasonable accommodations is placed firmly on all schools.Furthermore, the Court’s approach in this case confirms that this duty to makereasonable accommodationswill be enforced strongly by courts, even if extensiveaccommodations–suchasthebuildingofnewstructures,theadaptationofschoolrulesandprocedures,andthetrainingofteachers–arerequiredtoappropriatelyandreasonableaccommodateasinglechild.43

InclusiveEducationWhitePaper6

49. WhitePaper6ispolicycreatedbythenationalDepartmentofBasicEducationthataimstobuildaninclusiveeducationsystemwithin20yearsofitsimplementation,by2021.Itsetsoutforthefirsttimethewaythatthismustbedone,includingthroughtheroll-outinitiallyoffull-serviceschools,thestrengtheningofspecialschools,andtheeventualaccommodationofalllearnersevenatmainstreamschools.

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50. EducationWhitePaper6givesclearguidancetothenational,provincialanddistrictDepartmentsofhowthis istobedone,andrequiressignificantstepsto“mobilise”out-of-school children and youth with disabilities; the “establishment” of District-BasedSupportTeamsandSchool-BasedSupportTeams;andthetrainingofteachers,principals,governmentofficialsandcommunitiesabouttheimportanceandnuancesofinclusiveeducation.

51. Crucially, White Paper 6 also explains how funding and planning for inclusive

educationsystemswillneedbeincreasedandimprovedinordertoachieveitsbroadbutdetailedsetofaims.

PolicyonScreening,Identification,AssessmentandSupport(SIAS)

52. TheSIASpolicyhasbeenenvisagedsince the inceptionofWhitePaper6,andwasrecentlyapprovedandadoptedbythenationalDepartmentofBasicEducationinitsfinalformon19December2014.

53. Most importantly, it contains clear guidelineson theenrolmentandadmissionsoflearnerswithbarrierstolearning,andexplainswhentheyshouldattendmainstream,full-serviceorspecialschools.Itsetsoutindetailtheaccommodationsthatmustbemadeandpoliciesthatmustbeenactedtoensurethatalllearnersreceiveanequalandhighqualityofappropriateeducation,atwhicheverschooltheyattend.

54. AnotherpurposeoftheSIASpolicyistoprovideforthestandardisationofprocedures

and processes to identify and assess all learners requiring additional support.Streamlining this inclusive education system requires screening to be done byteachersandprofessionalsatachild’sneighbourhoodmainstreamschool,asafirstportofcall.Achildmayonlybe“transferred”toafull-serviceschoolorspecialschoolifathoroughassessmenthasbeendoneintermsoftheSIASpolicy,andanattempthasbeenmadewithintheschooltoaccommodatethechild’sspeciallearningneeds.

GuidelinestoEnsureQualityEducationandSupportinSpecialSchoolsandSpecial-SchoolResourceCentres

55. The2014Special-SchoolGuidelinesof thenationalDepartmentofBasic Educationindicatethatthey“provideguidelinesforthesystemontheminimumstandardsthatare required for any special school to function adequately and provide qualityeducation,careandsupporttolearnersenrolledintheseschools”.

56. Generally,theSpecial-SchoolGuidelinesemphasisethatthenational,provincialanddistrictDepartmentsofEducationhave“anobligationtomonitorallspecialschoolsonaregularbasisandprovidethenecessarysupport”.Theymakeitclearthat it is“imperative”thatspecialschoolsbothhavean“understanding”ofthestructureoftheinclusive education system, and are “familiarwith” relevant policy, legislation andguidelines.

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57. Specifically,as isdetailed in therelevantsectionsof this report, theGuidelinessetminimumstandardswithregardtoissuesinspecialschools,including:

+ admissionoflearners;+ curriculummanagementanddelivery;+ teachingandnon-teachingpersonnelsupplyandratios;+ infrastructureandhostelaccommodation;+ availabilityofmaterialresourcesandassistivedevices;and+ transport.

GuidelinesforFull-Service/InclusiveSchools

58. ThePreambletotheFullServiceGuidelinesnotesthattheguidelinessetcriteria“forschools, districts and provinces against which to measure their progress towardsinclusion”,and that the implementationof theguidelines is “oneof the first stepstowardseventuallymakingallordinaryschoolsfull-service/inclusiveschools”.

59. The Guidelines define Full Service Schools as schools that are “first and foremostmainstreameducation institutions thatprovidequalityeducation toall learnersbysupplyingthefullrangeoflearningneedsinanequitablemanner”.Importantly,theGuidelinesnotethattheyprovide“criteriaorminimumstandards”thataschool“mustcomplywith”inordertobeconsideredafull-serviceschool.

60. Specifically,as isdetailed in therelevantsectionsof this report, theGuidelinesset

minimumstandardswithregardtoissuesinspecialschoolsincluding:+ managementandschooldevelopment;+ professionaldevelopmentofstaff;+ provisionofongoingsupporttoschools;+ assessmentoflearnerneeds;+ curriculumdeliveryanddifferentiation;+ teachingandclassroompractices;+ physicalandmaterialresourcesandaccessibility;+ the role of the district, provincial andnationalDepartment of Education in

supportingfull-service/inclusiveschools;and+ transport.

V. CHILDRENOUTOFSCHOOL

61. Itisimportanttounderstandthatalargenumberofchildrenwithdisabilitiessimplydonotattendschoolatall.Therearemultiplereasonsforthis;butmanyofthemstemfrom parents’ genuine perception of the poor quality of education received bychildrenwithdisabilitiesat full-serviceandspecialschools.This isdeeplyupsettinganddistressingforparentsandtheirchildren.

“IamupsetthatmysonisnotgoingtoschoolandIamworried.Whenhewakesupandotherchildrenaregoingtoschool,hesayshewantstogotoschoolalso.”Motherofchildwithdisability,Manguzi

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62. Beforediscussingthemanychildrenwhoareliterally‘outofschool’,weexplainbriefly

why children with disabilities placed in inaccessible mainstream schools shouldeffectivelybeconsideredoutofschool.

Accessibilityofmainstreamschools

63. ThepublicinclusiveeducationsystemintheUmkhanyakudeDistrictismadeupof11fullserviceschoolsandthreespecialschools.Eventhough–inaccordancewithWhitePaper6andtheSchoolsAct44–childrenwithdisabilitiesshouldbeabletochoosetoattend their local mainstream schools, in reality this is not an option in theUmkhanyakudeDistrict. Reasonable or any other accommodation of childrenwithdisabilitiesissimplynotavailableatmainstreamschoolsinthedistrict.

64. Asaresult,caregiversofchildrenwithdisabilitiesrepeatedlyindicatedtoSECTION27that theirchildrenhadeitherbeendeniedaccess to,beenaskedto leave,orwereformally transferred out of local mainstream schools. This was despite theirprotestations that they would prefer their children to be appropriatelyaccommodated at their neighbourhood schools.Many caregivers appeared not toevenbeawareoftheexistenceofspecialorfull-serviceschools,orthatonlycertainspecial schools may be able to accommodate their own children’s particulardisabilities.

65. For those childrenwho continue to attendmainstream schools that areunable to

accommodate their disabilities, these mainstream schools are at most ‘daycarecentres’oflimitedornoeducationalvalue.Thesechildrenshouldforallpurposesbeconsideredalongsidelearnerswhoareliterally‘outofschool’.

66. Full-serviceandspecialschoolsarethereforecurrentlytheonlyschoolscateringfor

learnerswithdisabilitiesintheUmkhanyakudeDistrict.

Childrenoutofschool

67. In our work with Siphilisa Isizwe, our interaction with parents of children withdisabilitiesandhealthprofessionalsatManguziHospital,andourinterviewswithstaffmembers at full-service and special schools in theUmkhanyakudeDistrict,we areoftentoldthatthroughoutthedistricttherearemanychildrenwithdisabilitieswhoarenotaccessingschoolatall.

68. In2014,throughengagingwiththeKwaZulu-NatalDepartmentofEducationandtheUmkhanyakude District Department of Education, Siphilisa Isizwe and SECTION27succeededinhaving14childrenwithdisabilitiesplacedatSisizakeleSpecialSchool.Thesechildrenwerepartofagroupof17childrenagedsevento16fromtheManguziareawhosecaregivershadbeeninterviewedbySECTION27.Beforethisintervention,of the group of 17 children, eightwere not in school at all, eightwere attendingmainstreamschools,andonewasattendingaspecialschoolthatwasfaraway.45

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WaitingLists:parentsdescribethetraumaofattemptstogettheirchildrenintoschools

69. Ofthe55interviewsconductedbySECTION27in2015withcaregiversofchildrenwithdisabilitieslivinginManguzianditssurroundingareas,43ofthechildrenconcernedwereofschoolgoingageatthetimeofinterview.Ofthese43children,21werenotinschoolatall.Afurther12ofthesechildrenwereinordinaryschools,sevenwereinspecialschools,andthreewereinfull-serviceschools.Twenty-tworeportedhavingbeen placed on waiting lists at a special school, the significant majority of thesechildrenbeingonthewaitinglistatSisizakeleSpecialSchool.

“Mysonis11yearsoldandispresentlyinGrade1atKhulaniSpecialSchool.Hehasbothphysical and intellectual disabilities. He gets very confused and forgetful. He also hasdifficultywithhisspeech,andspeakslikeachildwhoislearningtospeak.Heisnotabletobathordresshimself.Heneedsassistancetousethetoilet.Hecannotread,writeorcount.Hecanonlycolourinpictures.Hecanwalkbutgetstiredveryquicklyandfalls.“HewasonthewaitinglistforSisizakeleSpecialSchoolbeforetheschoolwasbuilt,butIstillhavenotheardfromthem.”Parentofchildwithphysicalandintellectualdisabilities,Manguzi

70. Somechildrenwhodonotreceiveadequatesupportatmainstreamschoolsandhave

beenaskedtoleavethoseschoolsremainonwaitinglistsatSisizakeleforyears.

“Thedoctors[atManguziHospital]referredmysontoSisizakele,andIwastoldthathewouldbeplacedonawaitinglistandIwouldreceiveacall.Ihavestillnotreceivedacall.Hewasdelayedinlearningtowalkandtalk,thoughhewilllaughsometimes.Nowhecanevenbathhimself.Buthecan’treadorwriteandisveryslowatschool,andstillstrugglestospeakproperly.Thelocalschoolindicatedthattheycouldn’tcopewithhimafterhehadbeenthereforayear.“Heiseightyearsold.Hehasbeenoutofschoolformorethantwoyears.BothmysonandIarehurtthatheisnotinschool.Itmeansthattheteachersthinkmysonisnothingcomparedtootherpeople.”Parentofchildwithphysicalandintellectualdisabilities,Manguzi

71. Afifteen-year-oldchild’smotherhasgivenuponhavingheradmittedtoSisizakele

SpecialSchoolafterthreeyearsonthewaiting list.ShehasnowacceptedthatherchildwillpermanentlyattendacrèchenearManguzi,Hospital inthehopethatshewillacquireaskillthatwillallowhertomakealiving.

“Mydaughteris15yearsold.Shewasaboutfiveyearsoldwhenshestartedwalking.Shehadnevercrawled.Shecouldn’tevensitproperly.Shestartedtalkingalittlelater.ShegoestoManguziHospitaleverymonth,andithashelpedhertoprogressalot.ShespentfiveyearsinGrade1atanordinaryschool,andthendroppedout,becauseIcouldseeshewasstruggling.Shethenstayedathomefortwoyears,andIappliedtoSisizakeleSpecialSchoolforherin2013.ShewasputonawaitinglistatSisizakele.

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“ShenowgoestoacrèchenearManguziHospital.She isexcitedtobethere,andwasquitelonelyathomebyherselfwithoutotherchildren.Iwanthertohaveaskillthatshewillbeabletodowell,sothatifIpassaway,mychildwillbeabletohavesomewayofmakingalivingforherself.”Parentofchildwithphysicalandintellectualdisabilities,Manguzi

72. ThesestoriesarereflectiveofmanyotherinterviewsconductedbySECTION27,and

are commonly told in communitymeetings organised by Siphilisa Isizwe. They arealmost certainly similar to the untold stories of the astonishingly high number ofchildrenwithdisabilitiesrecordedbytheDBEwhoareoutofschoolineachprovinceandthroughoutthecountry.

73. A common thread throughout SECTION27’s interviewswith caregivers is that they

experiencelongperiodsoftimewhiletheirchildrenareoutofschoolduringwhichtheyaresimplynotcontactedbytheDepartmentofEducationorthespecialschoolswhohaveplacedthemonwaitinglists;notunderstandingwhy,orwhenitmightend,isdemoralising.Manycaregiverseventuallygiveup.Asonemotherofaneight-year-oldboywithphysicalandintellectualdisabilitiespainfullyexpresses:

“Idon’tknowif[my]sonwillbeabletobehelpedatthese[special]schoolswithoutme[around].Idon’tknowwhytheydidn’taccepthiminthefirstplace.IfeelthatImaybelackingsomehow[because]Idon’tknowhowtoteachhim,andsomaybeaschoolwillbeabletohelphimlearn.”Parentofchildwithphysicalandintellectualdisabilities,Manguzi

ChildrenoutofschoolintheKwaZulu-Natalprovince

74. The2011/12AnnualReportoftheKwaZulu-NatalDepartmentofEducationnotedthat

“itisestimatedthatthereare37768learnerswithdisabilitiesbetweentheagesofsixand15 years that areoutof school”.According toDepartmentofBasic EducationestimationsdetailedinareportproducedinNovember2015,therecouldbeasmanyas182153childrenwithdisabilitiesbetweentheagesoffiveand18inKwaZulu-Natal,ofwhich asmanyas 137889maybeoutof school.46Despite concerns about theaccuracyof theseestimates,SECTION27’swork inManguziconfirmsthattherearemanychildrenwithnoaccesstoschoolwhatsoever.

75. ItisalsoclearfrommultiplesourcesincludingtheDBEprogressreport(2015),KZNDoEsurveyofspecialschools(2011),andKZNDoEspecialschoolsaudit(2011)thatmanyspecialschoolscontinuetohavelengthywaitinglists.Thespecialschoolsurvey,for example,which involvedDepartment officials visiting 71 special schools in theprovince,concludedthat“mostschoolshaveawaitinglistforlearners,andthisneedsto be addressed”.47 The special school audit found that of the schools consideredeligibleaspilotsforspecial-schoolresourcecentres,“sixofthenineschoolsreportedhavingawaitinglist”.48

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UrgentmobilisationrequiredintermsofInclusiveEducationWhitePaper6

76. This situation requires an urgent implementation ofWhite Paper 6’s call for long-overdue campaigns to mobilise out-of-school learners. While the KZN DoE doesundertake campaigns to mobilise out-of-school learners, these have consistentlyignored learners with disabilities. For example, in 2014 an extensive drive wasundertaken to ensure that learners of schoolgoing age do attend schools. StaffinterviewedatschoolsforthevisuallyimpairedinKwaZulu-Natalindicatedthatthiscampaignneglectedanyfocusormentionofchildrenwithdisabilities.Thisappearstobe confirmed by media released by the Department when the campaign waslaunched.49

77. In2007,researchwasconductedonaccesstoschoolsforlearnerswithdisabilitiesinwhichexpertswereinterviewedoninclusiveeducationinprovincialDepartmentsofEducation. It found that perversely, the failure to runmobilisation campaigns forchildren with disabilitiesmay stem from provincial Departments officials’ “fear ofbeing unable to provide for such learners’ needs”, and that some provincialDepartmentslackthefundingforeventhisfundamentalaspectofWhitePaper6.50

“Full-service and special schools are used as a dumping ground for learnerswho are notpassing[inmainstreamschools]”Teacher,memberofSchool-BasedSupportTeam,full-serviceschool

78. Lackofresourcesandcapacitytoimplementpolicyisathemethatrunsthroughthisreport. In addition, as we shall see below, this research shows that provincialDepartmentsmaywellunderstandjusthowpoorthequalityofeducationatspecialandfull-serviceschoolsinKZNactuallyis.ThispoorqualitycreatestheimpressionthattheKZNDoEandUmkhanyakudeDepartmentofEducationdonotseethevalueofeducatingchildrenwithdisabilities,andmayseetheschoolsas‘daycarecentres’or‘dumpinggrounds’morethanplacesofeducationandlearning.

VI. CONDITIONSINSPECIALSCHOOLS

Background

79. There are three special schools in the Umkhanyakude District. All three schools –IntuthukoSpecialSchool,KhulaniSpecialSchoolandSisizakeleSpecialSchool–werefoundedbycommunitymembers,withlimitedorlittlegovernmentsupport.KhulaniSpecial School was founded in 2002, and only registered with the Department ofEducationin2009.51SisizakeleSpecialSchoolCommitteestartedcampaigningfortheofficialopeningoftheschoolatleastasearlyas1993.52Theschoolbeganoperatingin2002,andwasregisteredin2003.Aprincipalandtwoeducatorsfinallyassumeddutyattheschoolin2005.53IntuthukoSpecialSchoolwasalsostartedbycommunitymembers,andwasseverelyunder-resourceduntilasrecentlyas2011.54

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80. In2012,attheofficialopeningofKhulaniSpecialSchool,then-MECforEducationinKZN Mr Senzo Mchunu acknowledged that all of these schools for learners withdisabilitiesintheUmkhanyakudeDistrictwere“fullyfunctional,butwithverylimitedsupportstaffandresources.HousemothersanddriversarepaidbySGBsatKhulaniand Intuthuko.”55 In its2014/15AnnualReport, the KZNDoEannounced that thereconstructionall threeof these schoolshadbeencompletedduring that financialyear,andthat“thisallowedthedoorsofeducationandculturetobeopenedtoall,includinglearnerswithphysicaldisabilities”.56

81. AsconfirmedbytheKZNDoE2011SpecialSchoolSurvey,57allthreeoftheseschoolsareintendedprimarilyto‘specialise’incateringforchildrenwithsevereintellectualdisabilities.This isconsistentwiththeDBE’sspecial-schoolsguidelines,whichstatethat “special schools should be organised according to their programme ofspecialisationwhichentailsspecificcurriculumdeliveryrequirements”,andaddsthat“a special school may admit only learners who require support in the area ofspecialisationofferedattheschool”.58Theideaisforaschooltobecomea‘centreofexcellence’intheprovisionofthatspecificformofsupport.59

82. All three schools areexclusivelyprimary schools. Indeed, as recently as2015both

SisizakeleSpecialSchoolandKhulaniSpecialSchoolcateredonlyforlearnersbetweenGradesRand6.

83. Although these three schools also cater for learners with multiple and physicaldisabilities,thesignificantmajorityoflearnersinallthreeschoolshavesomekindofintellectualdisability.Thismeansthattheschools–bydesign–cateronlyforprimaryschool children, predominantly with intellectual disabilities. This drastically limitsaccesstoeducationforallotherchildrenwithvaryingdisabilitiesinthedistrict.Thesechildrenmusttravelextremelyfartoaccesseducationthatcancaterfortheirhighlearningneeds.

84. According to theDBE’s guidelines for special schools, “special schools should onlyadmit learnerswho requirehigh levelsof support”.60According to theSIASpolicy,although preference is still expressed for the accommodation of learners inmainstreamandfull-serviceschools,“ahighlevelofsupportprovisionwillbeavailableatspecialschools”.61Despitethis, regrettably,caregiversandteachersstillobservechildrenwithdisabilitieswhodonothavehighlevelsofsupportneedsbeing‘dumped’atspecialschoolsintheUmkhanyakudeDistrict.

85. The evaluation of the quality of services provided at special schools in the

UmkhanyakudeDistrictshouldthereforecommencewithanunderstandingthatthereare both: 1) childrenwho should be in special schools who are out of school (orreceiving inappropriate schooling), and 2) children in special schools who ideallyshouldnotbeplacedintheseschools.

“[I]tisnotalwaysthecasethatmainstreamschoolsshouldbereferringlearnerstospecialschools, and they should sometimes instead be trying to accommodate them. But the

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mainstreamschoolsdon’teventry.Whensomelearnersaresentto[ourschool],theydon’tevenhavealearnerprofileoranexercisebook.”Teacher,full-serviceschool

86. What follows is a description of broad issues raised by staffmembers of all threespecial schools, during interviews with SECTION27 about the quality of educationreceivedbylearnersatspecialschools.

Curriculumdelivery

87. TheDBE’sProgressReportontheImplementationofWhitePaper6datedNovember2015notes:

“Thereisaseriousconcernaboutthestandardofcurriculumdeliveryinspecialschools.Thereisevidencethatmanyaresimplydaycarecentres,withlittleattentionbeinggiventoensuringthat learnershaveaccess totheNationalCurriculumStatementonanequalbasiswithallotherlearnersinthesystem.”62DBEProgressReport,November2015

88. ThethreespecialschoolsintheUmkhanyakudeDisrictarenoexceptiontothisfrankadmissionbytheDepartmentofBasicEducation.

89. Appropriate curriculum for a special school depends on the range of disabilitiescatered for by a school, and on a learner-by-learner basis, the particular learningneedsof specific children.WhitePaper6clearly identifies the riskofexclusionary,inflexible curricula, noting that “curricula create the most significant barrier tolearning and exclusion formany learners”. It stipulates that a curriculummust be“accessible”to“alllearners”.63

90. Curriculumdeliveryisacomplicatedmatteratspecialschoolsthroughoutthecountry.Itshouldbeemphasisedthattheobservationsbelowareparticulartospecialschoolsforlearnerswithintellectualdisabilities.

Difficultieswithacademiccurriculumcontent

91. Inschoolsspecialisingineducationforlearnerswithintellectualdisabilities,schoolsnote that a flexible andmultipronged curriculum that includes academic and skilltrainingisdesirable.Withregardtotheacademiccurriculum,oneteachernotedthat“ideallytheCAPScurriculumshouldbeproperlyadaptedforuseat[schoolslikeours],butatpresentteachersdotheirbesttoadaptitastheycanwhileteaching”.Learners,however,oftenstrugglewithacademiccurricula,andoftendonotfolloworforgetlessonstaught.Theteachernotedthat“weteach[something]todayandtheyforgetit all tomorrow. You have to repeat often”. A media report quoting a teacher atSisizakele Special School noted that the curriculum is often “meaningless” tochildren.64

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92. OneschoolindicatedthattheDepartmentandotherstateinstitutionssometimesdonotunderstandtheneedforflexibilityinacademiccurricula,andwarntheschoolthat‘policyispolicy’.Aprincipalfromanotherschoolexpressedfrustrationwiththelimitedabilitytodeviatefromtheacademiccurriculum,sayingthatthevisionoftheschoolis“thatattheexitageof21,thechildmustexittheschoolwithaskillsheexcelsinandcanmakeuseoftomakealiving.Teachingtheacademiccurriculumisoflimitedvalue.[Evenifyouteachit]somelearnersreachtheexitagewithoutbeingabletowritetheirnames”.

93. ThesameprincipalexpressedfrustrationatlearnersbeingrequiredtowriteAnnual

NationalAssessments(ANAs),concludingthat“thereisnosinglelearnerattheschoolwho can write ANAs … the learners are here because they cannot copewith theacademiccurriculum”.TheANAsarecompulsorynational,standardisedtestswrittenbylearnerson“languagesandmathematicsintheintermediatephase(Grades4to6),and in literacyandnumeracy for the foundationphase (Grades1 to3).”65 Schoolsreportthattheirperformanceismeasuredagainsttheirlearners’performancesintheANAs.

Theneedforpracticaltrainingtosupplementtheacademiccurriculum

94. Althoughlearnersstrugglewithinflexibleacademiccurricula,and“itisverydifficulttoteachCAPS”tosomelearners,oneprincipalnotedtheneedforalllearnerstodosomeacademiccurriculum,even if theystruggle,becauseof thenecessityofbasicnumeracyandliteracysocially,andeveninexecutingpracticalskills.Forexample,henotedthat“mathsskillssuchasmeasurementsareessential,evenforpracticalskillssuch as dressmaking”. However, this curriculum should be supplemented byequippinglearnerswithawiderangeofpracticalskills.

95. Thoughnewly-builtfacilitiesforspecialschoolsincludemultipurposeclassroomsand

workshopsfortheteachingofskills,theseareoftenunderutilised.Currently,schoolsofferdifferentrangesofskillstraining.Thesevaryfromschooltoschool,dependingon the availability of sufficiently equipped teachers – even within districts. Forexample, one school offers sewing, art, information technology, beadwork anddresswork. In order tomore fully and appropriately teach learners using availableresources,schoolsvariouslyindicateneedsforteachersequippedwiththeabilitytoteach skills such as bricklaying, art, speech, drama, home economics, woodwork,claywork, plumbing, hairdressing, carpentry, painting, garment-making, sewing,beadworkandbuilding.

Accesstobothprimary-schoolandhigh-schoolgrades

96. Asisalsothecasewithregardtofull-serviceschools,itiscrucialtopointoutthatnoneoftheseschoolsofferafullhigh-schoolcurriculum,andthereforelearnersareforcedtoleavetheschoolorcontinuouslyrepeatGrade7asthehighestacademicleveltheycanachieve.Thisisdespitethefactthatschoolsgiveexamplesoflearnerswhohavetheintellectualcapacitytoprogressfurtheracademically.

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“Somelearnersleavetheschool,andthenfindsomewheretodograde7,andthenreceivefurther education. Others cannot, because they are fully dependent and would requireanotherspecialschooltodoso,eveniftheycouldcopewiththecontentofhighergrades.[Thereare]threechildrencurrentlyattheschoolwhohavethepotentialtogotoGrade7afterbeingeducatedat[ourspecialschool];butbecausetheyareinwheelchairs,theycannotbetakentoanotherschool.”HeadofDepartment,specialschool,UmkhanyakudeDistrict Theimpactoncurriculumdelivery

97. What emerged clearly from SECTION27’s interviews with caregivers and staff atspecial schools is that some caregivers and teachers are losing confidence in theirchildren’s educability. Worse still, media reports reveal that Department officialssometimesappeartohavetheattitudethatchildrenwithdisabilitiescannotlearn.66Thisviewcontrastsdramaticallywith theonerepeatedthroughoutWhitePaper6,which emphasises that at the core of the concept of “inclusive education” is theknowledgethat“allchildrenandyouthcanlearn,andthatallchildrenandyouthneedsupport”.67

“Theofficials’disregardofspecialchildrenandtheirneedsleftmedejected.Statementslike‘Wedonotexpectteachersandengineerstocomeoutofthisschool’,byoneoftheofficials,hurtmethemost.”68Teacher,specialschool

98. Finally,itisaninescapableconclusionthatthefailuretounderstandandimplementWhitePaper6hascreatedthisgapbetweenpolicyandreality inSouthAfrica,anddiscouragescaregivers,learnersandstaffatschoolsthataresupposedtospecificallycaterforandunderstandtheneedsofchildrenwithdisabilities.Ultimately,alearneratSisizakeleSpecialSchoolsumsitupinthefollowingmanner.

“Everything is bad at this school. The curriculum in this school is holding me back. Mycaregiversarelookingforaschoolformeinthemainstream.”Learner,SisizakeleSpecialSchoolSpecialSchoolGuidelinesandSIAS:therequirementforflexibleacademicandskillscurricula

99. TheSIASpolicyemphasises the importanceof thecurriculum. It indicates that the

“mainfocusofthepolicy”isto“manageandsupportteachingandlearningprocessesforlearnerswhoexperiencebarrierstolearningwithintheframeworkoftheNationalCurriculumStatementGradesRto12.”69Thespecialschoolguidelinesindicatethat“CertificationatleastatGrade9level,andasfaraspossibleatGrade12level,shouldform part of the curriculum package of all special schools”.70 The guidelines alsohighlight the need for curriculum advisors and circuit managers to “have theknowledgeandskillstosupportspecialschools”.71

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100. The special school guidelines clearly state that principals of special schoolsmustensurethat“TheNationalCurriculumStatementisthenormintheirschools”,andnotesthatdeviationfromitrequires“approvaloftheprovincialDepartmentofEducation.”72Itcontinuestoexplainthatthiswillrequireafocuson“differentiationandadaptationsothatlearnerscanaccesstheNationalCurriculumStatement”,whichwillinclude“individualsupportplans”andalsoemphasise“knowledgeandskills”.73Inthe specific context of children with “severe intellectual disabilit[ies]”, the policymakesitclearthat“thedevelopmentofliteracyandnumeracyshouldformpartofeveryday teaching for learners”,74 and that skillsdevelopmentmustbe “linked” toacademiccurriculum,andapprovedandsupervised.

101. ThecurrentfailuretoprovidechildrenwithdisabilitieswithmeaningfulaccesstotheCAPScurriculumthereforecontradictsthecoreoftheDBE’spolicyframework,andamountstoaviolationofthelearners’righttobasiceducation,whichtheUNCRPDexplainsrequires“effectiveindividualisedsupportmeasures…inenvironmentsthatmaximiseacademicandsocialdevelopment”.75Thistypeofholisticeducationrequiresanappropriatecombinationofbothskillsandacademiceducationforchildrenwithintellectualdisabilities,whichconsiderstheirindividualbarrierstolearning.

102. The following sectionsdescribeparticular challengesat special schools that

leadtothisdespondency,andpreventchildrenfromaccessingqualityeducationatspecialschoolsintheUmkhanyakudeDistrict.

Post-provisioning

103. Inadequate post-provisioning for both educator and non-educator staff atspecial schools isaproblemforspecial schools throughout thecountry.76TheSIASpolicy states that “the development of norms and standards for resourcing aninclusive education and training system is an immediate requirement for thesuccessfulimplementationofthepolicy.”77Thesenormsarerequiredtocaterfortheparticularpost-provisioningneedsofspecial schools.78In thecontinuedabsenceofsuchnorms,theproblemsdetailedbelowpersist.

Shortageofeducatorposts “Aspecialschoolshouldideallyhavealearner-teacherratioofabout1:10,butitiscurrentlycloserto1:20,onaverage.”Principal,specialschool,UmkhanyakudeDistrict

104. One principal described educator post-provisioning as a “major issue”. Allthreeschoolsnotedthattheirstaffestablishmentswereadjustedtoreflectadditionalpostslatein2014.However,theadjustedpostsseldommaterialiseexpeditiouslyintoactual teacherspresentat theschool.Therearealwayssignificanttimedelays.Forexample,oneschoolreportsbeingshortseveralteachersforseveralyearsbeforetheadjustmentsin2014,andremainsshortofteachersdespitetheseadjustments.Aheadofdepartmentatanotherschoolindicatedthatevenwiththeseadjustments,“there

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arenotenoughteachersforthechildrenattheschool”,andthatsomeclasseshavemorethan20learnersperteacher.

105. Anotherschoolreportedbeingshortofasmanyasnineteachersthatreflect

onthestaffestablishmentprovidedbytheKZNDoE. “Thedelayinappointingteachersisfrustrating,butitishopedthatitisbecausetheWardManagerunderstandstheschool’sneeds.”Principal,specialschool,UmkhanyakudeDistrict

106. Oneschoolnotedthatthisproblemismoreacute inthe lowergrades, intowhichmany learners–regardlessofage– tendtobeadmitted,and inwhichtheyspendseveralyears.Asaresult,thisschoolfindsitdifficulttoadmitchildreninlowergrades.Aheadofdepartmentattheschooldescribedateacher-learnerratioof1:21inlowergrades,anda1:9ratioinGrade6.

Impactofshortageofeducatorsonthequalityofeducation

107. Theeffectofthelackofteachers istocompromisethequalityofeducationavailable to learners. Learners with severe and varying intellectual disabilities, inparticular,requiretheindividualattentionofteachersinordertolearneffectively.

108. This iswhat is contemplated by the SIAS policy,which requires “individualsupportplans”,tobedesignedbyteachersinconsultationwithcaregiversandSchool-Based Support Teams “for learners who need additional support or expandedopportunities”.79Thiskindofsupportisnotpossiblewhenteachersdonothavetherelevantskillsandhavelargenumbersoflearnersineachoftheirclasses.

Requestsforteacherswithspecificspecialitiesandskills

109. Schoolsalsoreportthatthedelayswiththeappointmentprocessareextendedeven further when the school “request[s] teachers with specific skills for specificpositions”.Teachersoftenarriveat theschoolwithnoknowledgeofspecial-needseducation,andnoneoftheskillsthatareneededbytheschoolfortheeducationofchildrenwith intellectual disabilities. Theymust therefore learn “on the job”,withlittlesupportortrainingfromtheDepartmentofEducation.Schoolsalsonotethatbothanactiveinterestandtherequisiteknowledgeareabsolutelynecessary.

110. Schoolshavealsorequestedteacherswiththeabilitytodoskillsorvocational

trainingaswellastheacademiccurriculum.Oneprincipalcommentedthat“[i]tdoesnot[even]takeanacademicteachingqualificationtoteachpracticalskills;andtheschool actually only needs teachers who teach skills, at this point”. While this isconcerning, because academic qualification is needed if children are to succeedacademically,hisfrustrationhighlightstheimportanceofteacherswhocanalsoteachskillsatspecialschools.

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111. AcommoncomplaintisthatDepartmentofficialssometimesrefuserequestsfor“flexibility”inappointmentsfromspecialschools;oreveniftheydounderstandtheschools’requests,theycannotcomplywiththem.Teachersemphasisethattheabilitytoteachskillswouldpermitlearnerswithdisabilitieswhostruggletoprogresswiththefullacademiccurriculumtolearnsomethingthatcouldallowthemtobeself-sufficientwhenleavingschool.ThisechoestheconcernsofthecaregiversinterviewedinManguzi.

“Thesekindsofskillswillenablelearnerstomakealivingforthemselvesafterschool.”Teacher,specialschool,UmkhanyakudeDistrict

112. Ultimately,thelowqualityofeducationandsupportprovidedattheschools

becomesevident toparents –whobelieve in thepotential of their children tobesuccessfullyeducated.

“Iknowmychildisveryintelligent,andhecanlearnalotfromschool.Thereisnoschoolclosetowhereweliveandthatcanaccommodatehisneeds.Heisalwaysstayingathome,andIknowthatthisisstartingtoaffecthim.”Motherofchildwithdisability,UmkhanyakudeDistrict Requirementsofthespecial-schoolguidelines

113. The special-school guidelines are emphatic that “all personnel in specialschoolsmustbethoroughlyscreenedtoensuresuitabilitytoworkwithchildrenwhorequire high levels of support.”80 This requires “personnel with the appropriatequalifications”and“apositiveattitudetowardspeoplewithdisabilities”.Thisincludesprincipals, teachers and school management. Even administrative personnel arerequiredtohavea“basicunderstanding”ofdisability,inclusiveeducationpolicy,andspecialschools’rolesinimplementingit.81

114. Theguidelinessaythat“allteachingpersonnelshouldpossessatleastafirstdegreeordiploma,whichincludestrainingonspecialneedsandinclusiveeducation”.Teacherswhoareappointedwithoutthisqualification“mustundertakesuchtrainingwithimmediateeffect”byarrangementoftheschool,ina“timeperiodofnotmoreoneyear”.82Allteachersatspecialschoolsarerequiredtohavearangeofknowledgeincluding the ability to differentiate and adapt curriculum, develop and manageindividual support plans, and the knowledge and ability to implement SIAS.83 SIASitselfrequiresthatthePostProvisioningNorms(PPN)ataschoolcateringforlearnerswithhighsupportneedsis“reviewed”totakeintoaccount“thespecialisednatureofsupportandadmission”.84

Shortageofprofessionalandnon-professionalnon-educatorstaff

115. There isa rangeofnon-professionalnon-educatorstaff thatspecial schoolsregard as necessary for their efficient functioning, and for the delivery of qualityeducationtochildrenwithdisabilities.Theseincludeadditionalcleanersforhostels,twenty-four-hour house mothers, twenty-four-hour security, kitchen staff, bus

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drivers,andadditionalmaintenancestaff.Theserequirements,manyofwhicharisebecause themajorityof learners at special schools stay inhostelson location, areextremelycostlybutabsolutelyessential.Giventhedifficultiesincoveringthecostsof thesepositions fromthe fundingprovidedby theKwaZulu-NatalDepartmentofEducation, one special school’s school governing body funds more than 25 suchpositions.

116. Furthermore, the schools all describe a severe shortage of professionalsupport staff positions such as nurses, physiotherapists, occupational therapists,speech therapists, social workers and psychologists. None of the schools havepermanentappointmentsinthesepositions.Schoolssometimesobtainsupportfromclinicsandhospitals,whoallowtheirstafftomakevisitstoschools.However,thistypeofvisitisinfrequentandinconsistent,andtheskillsofprofessionalsareneededonaregularbasis.Forexample,aboywhobecomesfrustratedandviolentrequiresasocialworker or psychologist’s care consistently. Staff at one school indicated that “theschoolhasalotof‘cases’thatrequiresocialworkers”.Accordingtoschoolstaff,theKZNDoEiswellawareofthisneed,andasocialworkerissentfromtheSpecialNeedsEducationSectionofthedistrictDepartment;butinfrequently.

“Theschoolneedsmorehousemothers,becauseonweekends,someteachershavetostayatschooltolookafterboardinglearnersbecausehousemothershavetogohome.Theschoolisalsoinseriousneedofanoccupationaltherapist.Theschoolalsoneedsanursevisitingtheschoolregularly,becausesomeofthelearnersareonchronicmedication.Atthemoment,someone at the clinic has just trained the house mothers to give the children theirmedication.”Principal,specialschool,UmkhanyakudeDistrict

117. One school, for example, indicated that at the time of SECTION27’s visit,neitheranoccupational therapistnora socialworkerhadvisited fromthenearesthospitalforatleastsixmonths.

118. TheseshortagesappeartobeaseriousproblemthroughoutKwaZulu-Natal,

withGovender,forexample,notingin2014thatthereare“grossshortagesofteacheraides,therapistsandsupportstaffatspecialschools”.85

Requirementsofthespecialschoolguidelines

119. Acknowledging thespecial significanceofnon-teachingpersonnelat special

schools, the guidelines note that the Department of Basic Educationwill producenormsandstandardstodeterminethe“allocation”ofnon-teachingpersonnel;butacknowledgesthatthey“shouldincludebutnotbelimitedto”therapists,counsellors,socialworkers,nursesandpsychologists,housemothers, assistanthousemothers,drivers,cleanersandsecurityguards.86ThesearealsorequirementsintermsofSIAS.87

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120. Importantly,thepositionofahousemotherisconsideredaskilledposition,and the guidelines require that “housemothers employed in schools catering forlearners with physical disabilities and cerebral palsy should possess a minimumqualification”inhealthorsocial/home-basedcare.88

121. Finally, the guidelines acknowledge that it is “imperative” that “all special-

schools’ personnel” engage in relevant, ongoing, continuous professionaldevelopment “at school and externally”.89 SIAS itself requires “intensive inductionprogrammes”,“ongoingspecialistmonitoring,supervisionandtrainingofstaff”,and“trainingprogrammessourcedwithindepartmentalstructuresorexternally”.90TheDBE progress report on the implementation of White Paper 6 confirms that“continued professional teacher development is a critical need for the successfulimplementationofinclusiveeducation”.91

122. TheUNCRPDrequiresstates,aspartof theirduty in termsofchildrenwith

disabilities’educationrights,“totrainprofessionalsandstaffwhoworkatalllevelsofeducation”.92 Both SIAS and the guidelines, in the absence of a constitutionalchallenge to their validity, commit the Departments of Education and the schoolsthemselvestotheirmoredetailedconstitutionalstandards.93

Transport

123. Schools report that theprovincialDepartmentofEducationhas funded theprocurement of two buses for each school. This is absolutely necessary, becauselearnerscometoschoolfromextremelyfaraway,andlearnerswithdisabilitiesareexceptionallyvulnerablewhenattemptingtotakepublictransport.Notall learnersbenefitfromthisgovernmenttransport.Safetyisamajorconcernforcaregivers,asonemotherbemoaned.

“Theproblemwiththeschoolisthatitisveryfar.Ihavetohitchhikewithmy[two]childrentotakethem[toschool]andotherwiseitisveryexpensive.Itisdifficultgettingtherebecausetransportisexpensiveandtheschoolisfar.Ican’tbeinvolvedinmychild’slifebecauseit’sfar.Ican’thelpmychildifsomethingisstolenfromhim,orheisbeinghitorsomething.”Motherofchildwithdisability,Manguzi

124. Problemsarecausedwhenbusesbreakdownordonottravelallthewayto

children’shomesdirectly,oreventotheirhometownsorvillages.

125. Anotherprincipal indicatedthat thisproblemarisesbecausethebusesonlycovertworoutes,spanningamaximumof50kilometresfromtheschool.Thisallowsapproximately30learnersonlytotravelhomefromschooleachday.Otherlearnerswholiveanequaldistanceaway–evenalongtarredroadstowardsamajortown,butinanotherdirection–donotbenefitatallfromthebuses,andmuststayinhostels.When the buses break down, “learners simply cannot come to school”. The sameschool notes that in 2014, “the schoolwaswithout a bus for approximately threemonths”.Furthermore, theschoolhasconcerns for thesafetyof learnerswhocan

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onlybedroppedoffatacentralpointintown;parentsandchildrenarelefttoabsorbthecostandriskofgettingchildrenbacktotheirhomes.

126. One school notes that of its two buses, only one bus “has space for awheelchair to be stored, and safety belts which strap learners with disabilities insafely”.Theschool’sotherbusis“justanormalbus”,andthereforeisnotappropriatefor the transportofmany learnerswithseveredisabilities.Additionally,allegationshavebeenmadeinspecialschoolsinotherdistrictsthatbusesareusedbymembersofschoolstaffforprivateuse.94

Special-schoolhostels,distancefromhome,andcostlytransport

127. Alllearnerswholiveoutsidetheareathatthetransportscoversmuststayinschool hostels. These hostels are far from the homes of caregivers,who then aresaddenedbythefactthattheycanseldomseetheirchildren.

“Theonlyproblemisthedistance,asitcostsR160forareturntripanditisa2.5-hourtriptotheschool.ThismeansthatIonlyseehimintheschoolholidays.Iwouldlikeacloserschool,wherehecancomehomeeveryday.”Motherofchildwithdisability,UmkhanyakudeDistrict “KhulaniisveryfarawayfromwhereIlive.ItcostsmeR400totravelfrommyhometoschool.In addition I pay school fees of R600, and R300 for groceries for [my child], which I amstrugglingtoafford.”Motherofchildwithdisability,UmkhanyakudeDistrict“EitheraschoolinManguziortransportforcaregiverstogovisitatKhulani[duringtheterm]wouldhelp[mychild]tovisitme.Itwouldalsohelpiftherecouldbefundingforthechildrentocomeandgobackeveryweek,oreverymonth,tovisithome.”Motherofchildwithdisability,UmkhanyakudeDistrict

128. ParentsarenothopefulthattheDepartmentwillprovidefinancialsupportforthetransportcostsofgettingtheirchildrentoandfromspecialschools,becauseofpreviousinteractionswithDepartmentofficials.

“I also don’t think the governmentwill ever agree to pay for transport between here inManguziandSisizakeleSpecialSchool.ThisisbasedonameetingwithDepartmentofficials,inwhichweweretoldthatthegovernmentdoesn’thavemoneyfortransport.”Motherofchildwithdisability,Manguzi

129. Inspecialschools,theconcernaboutinadequatetransportisconnectedveryclosely to parents’ concerns about how seldom they can see their children. Theseconcernsaresignificantlyincreasedbytheterribleconditionschildrenoftenendureinunderequippedhostels.TheDBE’sprogressreportontheimplementationofWhitePaper6notesthat“manylearnersinspecialschoolsspendanunreasonableamount

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oftimeontheroad.Furthermore,thecostsforspecialschoolstoprovidetransportconstituteoneofthemostseriouschallengesthattheyface.”95

TheNationalLearnerTransportPolicy,andtherighttolearnertransport

130. The ‘National Learner Transport Policy’, published late in 2015 by the

Departments of Basic Education and Transport, acknowledges that “the currentlearnertransportsystemdoesnotmakesufficientprovisionforthetransportationoflearnerswithphysicaldisabilities.”96ThepolicyappliestoalllearnersbetweengradesRand12,explicitlyincludinglearnerswithdisabilities.97Italsohighlightstheparticularchallenges and dangers faced by learners in rural areas in accessing transport toschools,andacknowledgesthelongdistancestheyhavetowalktoandfromschool–includingbeforeandafteraccessingvehiclesfortransport.

131. Accordingtothispolicy,“needy”learnersidentifiedbyschoolsmusthavetheir

transporttoandfromschool“subsidised”;andinthisdetermination,“prioritymustbe given to learners with disabilities, taking into consideration the nature of thedisability”.98 Adherence to principles of “universal design” is a requirement forvehiclesusedinthelearnertransportsystem,andgenerallythepolicyrequiresthat“allprocesses involved, fromplanningto implementation,must takecognisanceoftheneedsoflearnerswithdisabilities,andmeettherequiredsupportneeds”.99

132. The special-school guidelines acknowledge that provincial Departments of

Educationshould(aspartoftheircomprehensivelearnertransportsystem)caterasfaraspossibleforlearnerswithdisabilities.Thesesystems,itindicates,shouldcomplywith the standards of “universal design”.100 However, given the lengthy processesinvolvedintheformulationof learnertransport inSouthAfricabothnationallyandprovincially, the guidelines note that “in the short term”, in the absence of suchpolicies,“specialschoolsmustprovidetransportforalllearnerswhorequiretransporttoandfromschool”,andthatsuchtransportmustbe“accessibleforalllearnerstobetransported”. The guidelines qualify this further: to all learners living within 40kilometresof,ormorethanonehour’stravelfrom,theschool.101

133. Thecautiousapproachtakenbytheguidelineshasprovedsensible,giventhat

theNational LearnerTransportPolicy, thoughpublished in2015,will onlyhave itsimplementation costed and budgeted for by December 2016; and therefore, itsimplementation is likely to still be only a distant reality in places such asUmkhanyakudeDistrict.102Intheinterim,theguidelinesspecificallynotetheneedforthere-evaluationoftransportsubsidiesforspecialschools,toallowforthemeetingoftheserequirementsintheshortterm.103

134. AjudgmentoftheEasternCapeHighCourtin2015confirmedthattherightto

basiceducationincludesarightto“transporttoandfromschoolatStateexpenseinappropriatecases”.104TheCourtheldthatprovincialpoliciesontransportshouldbeflexible,takeintoaccountthelearner’scircumstances,andcalculatethedistancealearnermusttravelfromschooltohome,andnot justtoacentral locationintheirtownorvillage.Itconcludedthatfailuretoprovidetransportplaces“agreatburden,

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both physical and psychological” on a child.105 It is therefore clear that theDepartment’s failure to provide transport violates the rights of children withdisabilitiesintheUmkhanyakudeDistricttobasiceducationandsafetyandsecurity.

Conditionsinhostels,andabuseandneglectoflearnersParents’desireforchildrentoattendschoolsthatareneartheirhomes

135. IninterviewswithSECTION27,manycaregivers–becauseofboththedistancebetweentheirhomesandspecialschools,andtheconditionsfoundatspecial-schoolhostels–madeclearandemotionalpleasforaspecialschoolclosertotheirhomesinManguzi.

“TheprobleminManguzi,whenwegivebirthtoadisabledchildwefeellikeweareleftalone,ascaregivers.Becausewehavetotakethechildrenfar,andourchildrenwantustobeclosetothemeverytime.”Motherofchildwithdisability,Manguzi “Ineed[mychild]tobeinaschoolnearby,becauseIwanttohelphim.Sometimeshehasfitsatnight,andIneedtohelphimbyholdinghim.Ineedtobeclose.Iamworriedifheisfaraway,hewillhurthimself.ItisveryimportantforhimtobeatschoolhereinManguzi–notSisizakeleorKhulani.Idon’tknowwhatishappeningtoourchildreninfar-awayschools.”Motherofchildwithdisability,Manguzi

136. Themajority of learners in all three schools are compelled by the distancebetweentheirhomesandtheirschoolstostayinhostels.Theselearnersonlyreturnhomeduringtheirholidays.

137. Oneschoolindicatesthatboardinglearnersarerequiredtopayfeestocover

the costs of basic necessities such as food. Proper nutrition and tailoreddiets arecrucialforchildrenwithdisabilities,andrequirecarefulconsideration.Forexample,some learners with physical disabilities react badly to certain foods, and autisticchildren have special dietary requirements. Some schools get assistance fromdieticiansathospitalstoaddressthisdifficulty,butspecialdietaryrequirementsplaceafinancialburdenonschools’already-strainedresources.

Understaffing,poorconditionsandabuseinspecial-schoolhostels

138. All schools report the need for additional house mothers and improvedtrainingofhousemothers,whoareoftennomorethanunpaidvolunteersfromwithinthe community.Oneprincipal noted that theabsenceofhousemothers results inteachershavingtofillthegapofafterschoolcareforchildren.Thisreinforcesthepointthat there are learners attending schools who are totally dependent and requirecontinuousorconstantcare,dayandnight.

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139. Somecaregiversarealsoconcernedthatunpaidorpoorly-paidhousemothers(orotherchildren)maystealfromtheirchildren.

140. In addition, in the absence of nursing staff, untrained house mothers are

requiredtoensurethatlearnerstaketheirmedication.Oneschoolnotesthatalocalclinicprovidedsomeinformaltrainingforhousemothers,toassistinthisprocess.

141. Finally, the treatmentofchildrenwithdisabilities inhostels throughout the

country,andintheUmkhanyakudeDistrictinparticular,hascomeunderconsiderablescrutinyinrecenttimes.TheDBEitselfhasacknowledgedvariousseriousproblemsinspecial-school hostels, including “extremely poor conditions” and “an alarmingnumberofcasesofabuse”.106

142. ThesituationintheUmkhanyakudeDistrict(andKwaZulu-Natalmorebroadly)

isnoexception.MediareportsinSeptember2015onInkanyisoSpecialSchoolintheZululandDistrict (which neighbours theUmkhanyakudeDistrict) indicate that “theprovincialeducationdepartmentisinvestigatingclaimsby12teachersthatchildreninthehostelarebeingphysicallyandsexuallyabused”.107SomecaregiversinManguziinterviewedbySECTION27eitherhavechildrenattendingInkanyisoSpecialSchool,orareattemptingtohavetheirchildrenenrolledthere,inthehopeofaccessingbetterschoolingthantheycanintheUmkhanyakudeDistrict,andtoavoidlengthywaitinglists.Thereportsalsonotedlearnersfallingpregnantasaresultofabuse,inadequatecleaning,learnersnothavingaccesstosufficientfood,andlearnerseatingwhilesittingon the floorbecauseofa lackof furniture.Repeatedcomplaints, initiallymadebyteachersin2014,finallyledteacherstothemediainfrustration.

“Weareworriedthatnothingisbeingdoneaboutthesituation.Weweretoldtheywouldreportbacktouson1April[2015],butwe’vestillheardnothing.Theconditionsatthehostelarebad.Thefurnitureisbroken,there’snopropercleaning.Thechildreneatonthefloor,andthefoodisbad.Theygetsick.”108

Teacher,InkanyisoSpecialSchool,ZululandDistrict

143. OnavisittoSisizakeleSpecialSchoolinAugust2015,ateachertoldSECTION27that “children are currently sleeping onmattresses on the ground that havebeenboughtforthembytheircaregivers”.MediareportsinOctober2015aboutSisizakeleSpecialSchool,quotingteachersandlearnersattheschool,containseriousallegationsthatchildrenlivinginhostels“arebeingbeatenbytheirhousemothers,andarelivingunderappallingconditions”.Specificproblemsalleged includetheabsenceofbedsin hostels for the last two years, poor maintenance, and unhygienic livingconditions.109

Parents’seriousconcernsaboutthetreatmentoftheirchildreninspecial-schoolhostels

144. Parents spoken to by SECTION27 confirm that their children are frequently

sick,bothatschoolandwhentheyreturnhomeforholidays.Thiswasalsoconfirmedbyreportsgiventoaprincipalatafull-serviceschoolinthedistrict.

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“AfterbeingreferredtoaSpecialSchool,theparentwillbring[herchild]backafterawhile,eventhoughsheknowsthat itdoesn’thelpherdaughtertobehere.Somecaregiverssaytheirchildrenwere‘sick’atthespecialschool.Somecaregiverssaychildrenarenottreatedwellatthespecialschool”.Principal,full-serviceschool

145. These media reports about abuse and neglect also validate, and arecorroboratedby,theperceptionthatmanycaregiversinterviewedbySECTION27holdabout children being abused or mistreated in hostels or at special schools in theUmkhanyakudeDistrict.Belowareafewofthemanyexamplesfromourinterviews.

“I have heard that that school does not treat childrenwell. There was ameeting in theMunicipalitythismonthwherepeopleweresayingthatchildrenwerebeingtreatedbadlyatSisizakele.Idon’tthinkIwouldevensend[mychild],thereevenifthechildwasacceptedattheschool.”Motherofchildwithdisability,UmkhanyakudeDistrict “The care at [Khulani Special School] is poor. There is one volunteerhousemother to 20children.Iarrivedthereanumberoftimesandfoundmychildwalkingaroundwithnoshoes,andlotsofhisclothingwasmissing.Iamterriblystressed,becauseheisfarawayandIcannotcheckuponhimregularly.”Motherofchildwithdisability,UmkhanyakudeDistrict “Iamupsetthatmysonisnotgoingtoschool,andIamworried.Whenhewakesupandotherchildrenaregoingtoschool,hesayshewantstogotoschoolalso.IamworriedthatifIsendhimtoSisizakele,thatthereisaproblemattheschool.TherewasachildnextdoorwhowasgoingtoSisizakele,butjustcameback;becausehewasreceivingimpropercare,andbeingabusedthere.”Motherofchildwithdisability,UmkhanyakudeDistrict Children’sconstitutionalrighttobefreefromabuse,corporalpunishment,maltreatmentanddegradation

146. Childabuseintheformofphysicalorpsychologicalabuseisaseriouscriminaloffence.TheConstitutionalCourthascategoricallyruledthattheSchool’sAct’sbanoncorporalpunishmentatallschoolsisreasonableandjustifiable,becauseitprotectstherightsoflearners.110TheConstitutionspecificallygivesallchildrentherightto“beprotected frommaltreatment,neglect,abuseordegradation”ofanykind,and thepositive right to “appropriate alternative care when removed from the familyenvironment”.111Thisisundoubtedlythepositionofchildrenlivinginspecialschoolhostels,often too faraway fromhomefor theircaregivers toevenvisit them.TheUNCRPD places a specific obligation on states to “take all appropriate legislative,administrative, social, educational and other measures to protect persons withdisabilities”fromabuseandneglect“bothwithinandoutsidethehome”.112

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147. The Children’s Actwas passed by Parliament in order to give effect to theconstitutionalrightsofchildren,includingspecificallyprotectingthemfromabuseandneglect.113However,theprotectionprovidedbyminimumnormsthatapplytoChildYouthCareCentres (CYCCs) specifically excludes school hostels andother facilitiesattachedtoaschoolincircumstanceswherelearnersrequireadditionalprotection.114Strangely, although the SIAS policy acknowledges “physical, emotional and sexualabuse”asabarriertolearningofitself,itdoesnotdealatallwiththepreventionofsuchabuseatschoolsthemselves.115

148. Thespecial-schoolguidelines require that“particularcaremustbe takento

ensurethathostelaccommodation isappropriate,cleanandshouldnotoffendthedignity of the learner”.116 Apparently cognisant of the increased risk of abuse tochildren with disabilities, the guidelines note that all special schools “must putmeasures in place to ensure that no form of abuse takes place at any time byanyone”.117“Constantsupervision”by“appropriateadults”forlearnersinhostelsisthereforerequired.118

149. Urgent steps must be taken by the Umkhanyakude and KwaZulu-Natal

DepartmentsofEducationtopreventtheongoingabuseandneglectofchildrenwithdisabilities at special schools and within special-school hostels in the district. Inaddition,thisisclearlyanationwideproblem,withtheDepartmentofBasicEducationacknowledging as recently as March 2016, in its presentation to the PortfolioCommittee on Basic Education in Parliament, that special-school hostels are in“extremely poor conditions”, and that there are “an alarming number of casesof abuse”. This same report concludes that “it is critical that theHostel Policy forspecialschoolsisfinalisedtoaddressallissuespertainingtoaccessibilityoffacilities,supervision,safety,etc”.119

150. The situationdescribedabove clearly amounts tomultiple violationsof the

constitutionalrightofchildrenwithdisabilitiestobefreefromabuseandneglect,andtheir right to safety and security of person, which includes both bodily andpsychologicalintegrity.120

Basicservices

151. Giventheschools’limitedbudgets,waterandelectricityhavebeendescribedas “exorbitantly expensive”. A special school is hit particularly hard by a watershortage,because,forexample,someofthelearnersusenappies,andrequirewaterforregularchangingandcleaning.

152. Media reports note that Sisizakele Special School has often struggled withmalfunctioning water systems, which creates challenges for operating laundrymachinesandcleaning.121This results in theconditionsbeingvery“unhygienic”. InMayandJune2015,staffmembersatSisizakelenotedthat“waterwasnotworkingatall,andthiscausedabigproblemfortheschool”.

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153. ThecommunitysurroundingKhulanihasaseriouschallengeasaresultoflackofaccess towater.Theresult is that“theschoolsometimesgoes fordayswithoutwater”.ThelackofwaterforcesKhulaniSpecialSchooltousewaterfromtheriverforcooking–theycannotdrinkthiswater,becauseitistoodirty.Aboreholewasdugattheschool,but this isnotaviableoptionbecausethere issalt in theundergroundwateron theschoolproperty.Theschooldoeshavewater tanks,but they“often”remainempty.

154. The‘MinimumUniformNormsandStandardsforInfrastructure’publishedin

2013bytheMinisterofBasicEducationindicatethatelectricityandwaterprovisionforschoolsmustbeprioritisedforcompletioninallschoolsby2020atthelatest.122Watermustbeofsufficientqualityandquantityfor“drinking,personalhygiene,andwhere appropriate, for food preparation.”123 Though the Norms do not take intoaccountthespecificneedsofspecialschoolsandchildrenwithdisabilitieswithregardtowaterandelectricity,itisclearthatfortheselearners’rightstobemeaningful,theymustincludeadditionalprovisionoffundsforwaterandelectricityforhostels,andtheparticularadditionalrequirementsofchildrenwithdisabilities,includingsufficientwatertotakemedicationatschoolandtopreparesuitable,appropriatemealsatthehostels,and24-houraccesstoelectricityinhostels.124

Funding

155. ‘ComplicitinExclusion’,a2015reportauthoredbyHumanRightsWatch,found–astonishingly–that“nospecialschoolsarecurrentlylistedinany‘no-fee’schoolslistproducedbythegovernment”.125TheDBEprogressreportontheimplementationofWhitePaper6contemplatedtheformationofapolicythatwillfocusspecificallyonthefundingofspecialandfull-serviceschools,andwill“alsoprovideforthevoluntaryclassificationofspecialschoolsasno-feeschools,aswellasprovideforcompensationtospecialschoolsasreimbursementfortheexemptionofschoolfees”.126

156. Boththepolicyandthelistingofspecialschoolsasno-feeschoolsiscrucial.Atpresent, special schools complain bitterly of insufficient funding. The unrealisticexpectation that special schools in poor rural areas such as the three in theUmkhanyakudeDistrictwillbeabletofundpartoftheircoststhroughfeesmerelyreduces funding allocated to these schools, and hampers the delivery of qualityeducation.Ultimately,theDBEprogressreportiscorrecttoacknowledgethat“giventhe enormity of the support needs” the “spending is by far not enough”, and“inconsistentlyallocatedandspent”,andthatthisresults in“averypoorsituation,especiallyinthepoorerprovinces”,inbothspecialandfull-serviceschools.127

157. Inadditiontoschoolfees,caregiversofchildrenwhoattendspecialschoolsin

theUmkhanyakudeDistrict,whoareoftentotallyreliantongovernmentgrants,arerequired to pay significant transport and hostel fees in order get their children toschool and cover the schools’ costs of accommodating them. Special schools alsocomplainabouttheinadequacyoftheabsolutelevelofthefundingprovided,giventhecostsofoperatingaspecialschool.

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VII. CONDITIONSATFULL-SERVICESCHOOLS “Theproblem is that the school isoften treatedequally [by the KZNDoE] likeanyotherschool;andactually,itrequiresspecialsupport.”Principal,full-serviceschool

158. EducationWhitePaper6,whichcreatedfull-serviceschools,explainsthat“full-serviceschools…areschools…thatwillbeequippedandsupportedtoprovideforthefullrangeof learningneedsamongallour learners.”128These,theWhitePaperindicates, will be designated and established by the incremental conversion ofmainstream schools. The plan was then to take the lessons learned from thedesignated full-service schools into consideration for the “system-wideimplementation”. This is intended to ensure the success of the goal of “fullinclusion”.129 The goal of making “all” mainstream schools full-service schools isrepeated in the DBE’s 2010 ‘Guidelines for Full Service/Inclusive Schools’ (FSGuidelines).130

159. Full-serviceschoolsthereforehaveacrucialroletoplayinthetransformationof the education system into an inclusive system, and are a “beacon of thetransformationprocessineducation”anda“placewherelearnersandeducatorsfeelsafeandsupported”.131

160. TheSIASpolicy indicates that “the rolesand functionsof schools thathavebeendesignatedasfull-serviceschoolswillalsobeoutlinedintheschool-fundingandpost-provisioningnorms”.132Thesenormshaveyettobeproducedorpublished.Theclearest definition of what a full-service school should be is provided by the FSGuidelines, which defines them as “first and foremost mainstream educationsystems”,that“irrespectiveofdisabilityordifferences”areequippedtoprovide“thefullrangeoflearningneedsinanequitablemanner”.133

161. Theonlyother informationprovidedbyWhitePaper6 is that the“support

[full-serviceschools]”willreceivewillincludephysicalandmaterialresources,aswellasprofessionaldevelopmentforstaff.134Theneedfordepartmentalsupportforfull-serviceschoolsisreiteratedintheFSGuidelines,whichprovide“criteriaorminimumstandards”thata“schoolmustcomplywith”tobeconsideredafull-serviceschool.135While not all full-service schoolswill be permanently equipped to provide for theneedsofalllearners,theFSGuidelinesnotethatallfull-serviceschools“shouldhavethepotentialandcapacitytodevelopandprovide[allformsoflearnersupport]”.136

162. Although in practice, in theUmkhanyakudeDistrict, full-service schools are

conceivedofasaccommodatinglearnerswithlowandmoderatesupportneeds,theFSGuidelinesclearlycontemplatetheseschoolsbeingabletosupportlearnerswithhighsupportneeds, including those inwheelchairsorwhoarecompletelyblindordeaf.137Theystatespecificallythat“learnerswithmoderate,highorveryhighsupportneedscanbesupportedatfull-serviceschools”.138

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163. However, it should be noted that the DBE progress report on theimplementationofWhitePaper6cautionsthatthoughfull-serviceschoolsshouldbeall-inclusive,“full-serviceschoolsshouldneverbeseenasanewtypeofspecialschoolthatdrawslearnersfromafar”.139

Primaryandsecondaryeducation

164. Of the 11 full-service schools in the Umkhanyakude District visited bySECTION27,onlyasingleschool–SomfulaFull-ServiceSchool–isaHighSchool.Thissituation is compoundedby the fact thatnoneof the special schoolsoffer ahigh-schoolcurriculum,orgradespastGrade7.

“Itwouldbesomuchbetteriftherewasafull-servicehighschool[inthearea].Childrengotomainstreamanddonotcope,andmostlydropout.Theteachersathighschoolscomplainabout these learners. There should be one full-service high school for every full-serviceprimaryschoolinthedistrict.Thisisagreatproblem.”Teacher,memberofSchool-BasedSupportTeam,full-serviceschool

165. Asaresultofitsdistancefromthevastmajorityoffull-serviceprimaryschools,thereis“nomajorinflux”oflearnerstotheschoolfromthetenfull-serviceprimaryschools inthedistrict.Theschool indicatesthatmostofthechildrenattendingtheschool who have special learning needs were already attending the school orneighbouringschools;and that“once theschool starteddoingproperscreening, itrealisedthattherewereactuallymanylearnerswithdisabilitiesandlearningbarriersattheschoolthatwerenotbeingaccommodated,andwereinvisibletotheschool.”

166. Although there are over 1 000 children in Somfula, each year onlyapproximately 50 are children with disabilities. The importance of this cannot beoveremphasised.Theresultisthatintheentiredistrict,thevastmajorityofchildrenwithdisabilitiesandspeciallearningneedshavenoaccesstosecondaryeducationatall.ByandlargetheycannotwriteNationalSeniorCertificateexaminations,andarethereforestrippedofopportunitiesforfurthereducationattertiaryinstitutions,forwhichaNationalSeniorCertificateismostoftenarequirement.

167. This is thecauseofgreat frustrationandsadness formanyteachersat full-

serviceprimaryschools,whodotheirutmosttoensuretheacademicsuccessoftheirlearners.

168. Finally,despitetheattemptsoffull-serviceprimaryschoolstocontinuetosupport

theirlearnersoncetheymovetomainstreamhighschools,learnersarestigmatisedanddemoralisedatschoolsthatdonotcaterfororunderstandtheirneeds.Asoneprincipalputit:

“[For]achildwithadisability,whensheorheleavesthe[full-serviceprimaryschool]thereisahighchancethatsheorhewillbefrustratedfortherestofhisorherlife.Theygofrombeingacceptedtobeingsomethingdifferent,andsotheycannotacceptthemselves.”Principal,full-serviceschool

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169. Whenachildisinamainstreamhighschool,theprincipalatonefull-serviceprimary

schoolsayshepersonallygoestothatmainstreamschoolandspeakstotheschoolprincipal,toaskherorhimtoprovidesomesupporttothelearner;buthefearshecanonlydosomuchtohelp.This frustratestheprincipalsandteachers,whoareconcernedforthewell-beingoftheirlearnersevenaftertheyleavetheirschools.

170. TheUNCRPDmakesitclearthatpersonswithdisabilitieshavearighttoaccess

quality,inclusiveeducation,onboththeprimaryandthesecondaryeducationlevel,“onanequalbasiswithothersinthecommunitiesinwhichtheylive”.140Thedenialofaccesstohighschoolsthatarefull-serviceschoolsintheUmkhanyakudeDistrictisadeparture from the DBE’s policy on inclusive education, and a violation of theconstitutionalrightofchildrenwithdisabilitiestobasiceducation.

Infrastructureandbasicservices

171. Inadditiontotheordinaryinfrastructureneedsofmainstreamschools,full-serviceschoolsareequippedwithLearnerSupportCentres.Thesecentres,whichareoftenseparate structures to the school building, provide homes and safe havens forchildrenwithdisabilitiesatfull-serviceschools,andhousearangeofsupportservicestobeprovidedattheseschools,includingremedialclassesledbyLearnerSupportAssistants.OneLearnerSupportAssistantdescribeshowchildrenatherschoolfeelabouttheLearnerSupportCentre:

“ThechildrenlovetheLearnerSupportAssistantsandcomingtotheLearnerSupportCentre.Theyevenleavetheirteacherstocomefindus.Theyloveus!”LearnerSupportAssistant,full-serviceschool

172. Though the structures of the Learner Support Centres and the furniture andequipmentinthemvary,theyaregenerallymadeupofanumberofrooms,includingmeeting rooms and classrooms, kitchens, healthcare centres, space for LearnerSupportAssistants’desks,privateroomsformedicalandotherconsultations,andtoilets. One principal describes the Learner Support Centre at the school in thefollowing terms “it has an activity room… it alsohas a roomwith a sofa in it forlearners to relax or take naps, and three toilets, one of which is specifically forlearnerswithdisabilities.”Atmanyschools,theLearnerSupportCentrealsoplaystheadditionalfunctionofameetingroomfortheCircuitanddistrictofficials,andaplace forcounsellorsandLearnerSupportEducators toconsultwith learnersandteacherswhentheycometotheschool.

173. Twoschools,designatedasfull-serviceschoolsin2013,donothaveLearnerSupport

Centresatall.Aswillbedetailedbelow,manyotherschoolslackthenecessarystafftouseLearnerSupportCentreseffectively.Lackoffundingforschools,alsodiscussedbelow,makesLearnerSupportCentresdifficultandcostlytomaintain.

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“TheschoolhastostretchitsnormsandstandardsfundingtoruntheLearnerSupportCentre,especiallywhenitisnotallocatedanymoneyinaparticularyear.Butitisnotpossibletodothiswhiledoingasmuchtraining,forexample,asthereshouldbe.”Principal,full-serviceschool

174. SomeschoolsthatdohaveaLearnerSupportCentrelackaccesstothebasicservices,suchaswaterandelectricity,requiredtomakethemfullyoperational.Oneschoolhasneverhadaccesstoelectricityorrunningwater.Itthereforeonlyhasaccesstowaterwhenitrains.Anotherstrugglestousecomputers,projectors,stovesandairconditionersintheabsenceofelectricity.

“Theschoolhasnowaterorelectricity,andithasneverhadanyofthetwo.Theschoolusessolarpanelsforalittlebitofelectricity,andJoJotanksforwater;soifthereisnorain,theschoolhasnowater…Ifthecomputers[fortheLearnerSupportCentre]eventuallyarrive,itwillbedifficulttousethemsincethereisnoelectricity–eventhenewfridgehasbeenintheLearnerSupportCentre[forsometime],butimpossibletouse...”Principal,full-serviceschool

175. At the same time, the lackof electricity causesdirect challenges to teachingandlearning,andisthereforeabarriertoaccesstoeducation.

“Ifwehad computers, the learnerswouldbeable to searchon the internet and find thecareerstheylike”.Teacher,full-serviceschool

176. Schools that have fully functional Learner Support Centres, running water and

reliableelectricityindicatethatthisinturnincreasesthecostsforthem,sincethesame small allocation that is used for all accommodations for learners’ speciallearning needs must be used to pay for additional electricity and water costs.Anotherschoolalsohasnoelectricityorrunningwater–onlyaboreholecreatedattheschool’sownexpense,whichtheschoolmustbuypetrolforinordertoutilise.

177. InadditionaltotheinfrastructurerequirementsdetailedintheMinimumUniformNorms and Standards for Infrastructure discussed above, the FS Guidelines setspecificstandards for“physicalandmaterial resources”.The infrastructurenormsgenerallyrequirethatclassroomsandaccesstoelectricity,waterandsanitationmustbeavailableby2020atthelatest.141TheFSGuidelinesrequirethat“theschoolhasenough classrooms for the recommended teacher: learner ratio”, and that allclassroomsareaccessibleforalllearners.142

178. Itisnotablethatthenormsdonotdetailanyparticularrequirementswithregardto

Learner Support Centres. The guidelines note that the “initial steps in thedevelopment of the targeted [full-service] schools include the upgrading of thephysicalinfrastructure”,butnomentionismadeofLearnerSupportCentres.143Thisdespitetheirclearlyimportantpracticalroleinfull-serviceschoolsinKwaZulu-Natal

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atthetimethenormswerepublished.Govendernotes–specificallyinthecontextoffull-serviceschoolsinKZN–that:144

“Utilisedandmanagedeffectively,thefull-serviceschool’ssupportcentrewouldbeahuboforganisedactivityeveryday,supportingthechildren,selectedbytheLSTs,bothfromthatFSSand neighbouring schools. Activities, including areas such as literacy, numeracy, career-selection skills, and speech and language therapy and hearing screening, would result inservicesaimedatremediationandsupportbeingbroughttochildrenintheirownlocality.”Logan Govender, educational psychologist, member of Concerned EducationalProfessionals

UniversalDesign

179. In addition to problems relating to Learner Support Centres, full-service schoolsreport issues relating to the appropriateness of their design for learners withdisabilities.Althoughall schoolsare required tocomplywith the requirementsof“universaldesign”,thisisevenmorepressingatschoolsrequiredtocaterspecificallyfor theneedsofchildrenwithdisabilities.Thoughmostschools report that someefforthasbeenmadetoequiptheirschoolswiththenecessaryaccommodations,suchasrampsandtoiletsforlearnerswithdisabilities,somestillreportinadequateaccommodations. For example, even if there are ramps going into classrooms,learnersinwheelchairsrequirethecourtyardsandopenareasbetweenclassrooms,andbetweentheclassroomsandotherbuildingssuchastheLearnerSupportCentreortoilets,tobepaved.

180. Thisisnotthecaseatsomeschools.Oneschooldescribesawholesetofissueswithinfrastructure,includingtheneedformoreramps.Anotherindicatesthatlearnersfinditdifficulttomovearound,becausetheschoolisbuiltonaslope.

181. Afewschoolsalsomakegeneralcomplaintsaboutinfrastructurethatwouldapply

tomainstreamschoolsandareindependentofthefactthattheschoolcatersforanylearnerswithdisabilities.Oneschooldescribesthedirestateofitsinfrastructureinthefollowingterms:

“Ahallthatwasdemolishedattheschoolhasnotbeenreplaced,despitetheDepartmentpromisingtodoso.Theschoolalsohas12pitlatrinesthatarefullandneedtobereplaced,andneedsfourmoreclassroomstobebuiltandthereplacementofmakeshift‘parkhomes’,whichareinbadconditionandcurrentlyusedasclasses.Onehasabigwoodendoorthatisbrokencompletelyandfallsdowntothegroundifitiswindy.Thedoorisoffofitshingesandmustbecarefullyremovedandreplacedeachtimeitisopenedandclosed.”Teacher,memberofSchool-BasedSupportTeam

182. Other full-service schools suffer from serious overcrowding, due to a lack ofclassroomsattheschool.Althoughthissituationwouldbeaproblematanyschool,it is evenmore severe in the contextof schools inwhich thereare childrenwith

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disabilities in all classes who need individualised attention and support fromteachers.

“Aseriousproblemtheschoolsuffersfromistheshortageofclassrooms.Theschoolneedsatleasteightnewclassroomsurgently,becausesomeclassesareovercrowded;forinstance,inGrade4thereare87learnerssharingoneclassroom,andinGrade9thereare89learnerssharingoneclassroom.”Principal,full-serviceschool “Theschooldoesnothavealibrary,orenoughclasses;soGradeRsstudyunderatree,andGrades7and2areaccommodatedinoneclass.Thereare128learnersinthisclassroomintotal.”Principal,full-serviceschool

183. TheMinimumUniformNormsandStandardsforInfrastructurerequirethatphysicalinfrastructureatallschoolscomplieswiththeprinciplesof“universaldesign”.TheFSGuidelinesmentioninthecontextoffull-serviceschoolsthatthisrequiresatleastaccessibleclassrooms,adequatetoiletfacilities,rampsandstairlifts.145Evenbeforethepublicationofthenorms,theSchoolsActrequiredthatprovincialDepartmentsofEducation“takeallreasonablemeasurestoensurethatthephysicalfacilitiesatpublicschoolsareaccessibletodisabledpersons.”146

184. Itisarguablethatchildrenwithdisabilitieshavearighttobeprioritisedintheprocess

ofimplementationofthenormsandstandards,becausethesechildren’saccesstoqualityeducationwilloftendependontheaccessibilityofclassroomsandtherestofa full-service school’s grounds. This is why the FS Guidelines require schools toconduct “a full access audit of the building and school grounds, involving thelearners” and also require that full-service schools are allocated the “necessaryresourcestocreatesafeandaccessibleinfrastructureforeffectivelearningtotakeplaceintheclassroomandthebroaderschoolenvironment.”147

Funding

185. Funding isamajorproblemexpressedbyprincipalsat full-serviceschools.Byandlarge,theKZNDoEtreatstheschoolsinthesamewayasmainstreamschools,despitethe need for increased funding in terms of the SIAS policy to accommodate thehigherlearningneedsofchildrenwithdisabilities.Althoughsomeadditionalfundingisprovidedto theseschools for inclusiveeducation, it is inconsistent,varies fromschooltoschool,andiswhollyinsufficienttoaccommodatetheneedsoflearners.

“Fundingisnotreliable,Imustsay.”Principalofafull-serviceschoolintheUmkhanyakudeDistrictFundingforinclusiveeducationisinconsistentandinadequate

186. Principalsstatethatintheory,theschoolisgivenacontributionfromtheKZNDoE,whichissupposedtocoveravarietyofcostsincludingsupportinterventionsforthe

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school and outreach programmes formainstream schools, capital allocations forassistivedevices,districtworkshops(whicharepartiallyfundedbytheschools),andrunning costs for Learner Support Centres, such as water, electricity, stationery,telephone accounts and cleaning. Principals report that each of these individualinterventionscouldpotentiallytakeupthefullallocationinagivenyear,soschoolsareoftenforcedtochoosebetweenwhichexpensetofund,orstretchingitsordinaryallocationintermsoftheNormsandStandardsFunding,whichdoesnotconsiderthehighlevelofsupportneedsofchildrenatfull-serviceschools.

187. OneschoolindicatedthatitwasallocatedonlyR10000forassistivedevices.Thiswas

onlyenoughtopurchase“minorthings”suchaswheelchairs,crutches,glassesandhearing aids. The principal of this school indicated that more money would beneeded to buy other devices, including “Go Talks” to allow learnerswith speechproblemstocommunicateeffectivelywithteachersandotherlearners.Butbecauseof“limitedfunds”,thelearnersmustgowithoutthesedevices.AnotherschoolusedupR40000ofitsR140000allocationtopurchasevitalassistivedevicesandforewentadditional“necessary”trainingforteachersasaresult.Ateacherataschoolthatwasrecentlydesignatedasafull-serviceschoolnotesthattheschooldoesn’tknowhowmuchtopayfor,wheretobuy,orwhotobuyassistivedevicesfrom,because“thesupportsystemisnew”.Yetanotherschoolindicatesthat“mostofthemoneyisspentonworkshopsforothermainstreamschools”whorequirethesupport.TheabsolutelackofmoneyfrustratesLearnerSupportAssistants:

“The school’s budget for inclusive education simply does not allow for these expensivedevices[weneed]tobepurchased,and leavesthe[LearnerSupportAssistants]frustratedandlesscapableofproperlyassistinglearnerswithdisabilities.”LearnerSupportAssistant,full-serviceschool

188. Some teachers recommended that it “is also important that the money that isprovided for inclusiveeducation is less specifically ring-fenced”. Thiswouldallowschools to tailor the littlemoney provided to their specific needs, and prioritiseurgentneedsthatariseforspecificlearnersbetter.

Fundingforinclusiveeducationvariesfromschooltoschool

189. Thedisparitiesbetweenthefundingofdifferentfull-serviceschools isasourceofmajorfrustrationforprincipals.WhilesomeschoolsgetasmuchasR273000,oneschool reports receiving as little as R22 000 from the KZN DoE, as recently as2014/15.Attheschoolthatreportsthehighestallocation,theprincipalnotes:“Ihavefoughtforthemoney.”

190. Schoolsdonotunderstandwhataccountsforvarianceinallocations.However,one

principal indicated that it cannotbe thenumberof learnerswith special learningneeds.Thisschoolhasover200learnerswithspeciallearningneeds,andreceivedonlyR123000in2013/14.OneprincipalalsoindicatedthatitcannotbethecasethattheallocationdependsonwhethertheschoolhasaLearnerSupportCentre,orhowlong theschoolhasbeena full-serviceschool.This schoolmost recently received

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R77000,hasbeena full-serviceschoolsince2008,andhasa functioningLearnerSupportCentre.

191. Althoughmanyoftheschoolsweredesignatedfull-serviceschoolsasearlyas2007,

the earliest any school reports having received an allocation is 2009. With theexceptionofonefull-serviceschool,alloftheschoolsreportnotreceivingthiscrucialallocation for inclusive education each year. For example, a school that wasdesignatedafull-serviceschoolin2011andhadaLearnerSupportCentrecompletedin 2013 received an allocation for the first time in 2014/15. Other schools whoreceived their first allocations in 2009 and 2010 report that they receive theirallocationssoseldom,theyaremoreoftenwithoutthem.

Schoolsneverknowiftheywillreceivefundingforinclusiveeducation

192. Schools are providedwith no information aboutwhy these funds are or are not

allocatedinaparticularyear.Oneprincipalnotedthattheschoolknowsitwillnotreceiveanythingfor2015/16,becauseatthetimeoftheinterview(November2015)theyhadreceivednopaperworkfromtheKZNDoEand“thefactthatyouhavenotgotanallocationonpaper,itmeanswearereceivingnothing”.ThemajorityoftheschoolsinterviewedinNovember2015reportedthattheyhadreceivednoindicationaboutfundingthatwouldbeprovidedfor2015/16.

193. Budgetingfortherightsofchildrenwithdisabilitiesisaconstitutionalobligationin

termsoftheimmediatelyrealisablerighttoabasiceducation.148FailuretoincreasefundsforinclusiveeducationultimatelycoststheDBEmoney,asithasacceptedthata reliance on special schools alone for education of children with disabilities isextremely costly.149 In addition, as early as in White Paper 6, the Departmentacknowledged that “additional funding will be required for ‘special-needs’education”intheshortterminordertobuildaninclusiveeducationsystem,initiallythroughtheroll-outoffull-serviceschools.150

Post-provisioning

194. The SIAS policy rightly notes that “the development of norms and standards forresourcinganinclusiveeducationandtrainingsystemisanimmediaterequirementforthesuccessfulimplementationofthepolicy.”151Thenormsfurtherspecifythatas a component of this “immediate requirement”, “post-provisioning norms andstandards will make provision for all categories of staff required in an inclusiveeducationsystem”.152Itisimportanttonotethattheseprovisioningnormswillneedto includenotonlynorms fornon-educatorposts thatare specific to special andinclusive schools, but also the distinct approach to educator-provisioning that isnecessary to accommodate the learning needs of childrenwith disabilities,mostparticularlyatfull-serviceandspecialschools.

Shortageofeducatorpoststoaccommodatelearnerswithbarrierstolearning

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195. All 11 schools registered clear complaints about the calculation of the number ofeducatorpoststowhichtheyareentitled.Aprincipalcapturestheissuessuccinctly:

“Theschoolhasachallengeofinsufficienteducatorandnon-educatorstaffpostsonitsPPN.ThePPNdoesnotcalculatethenumberofpostsallocatedtotheschooltakingintoaccountthattherearelearnerswithdisabilitiesattheschoolatall.Itistreatedasamainstreamschoolforthispurpose.”Principal,full-serviceschool 196. DespitethefactthatthereareexistingweightedratiosappliedbytheKZNDoEfor

childrenwithdisabilitiesinthecontextofspecialschools,nosuchweightingtakesplacewithregardtochildrenwithdisabilitiesinfull-serviceschools.Regardlessofdisabilityand unique-learning needs at full-service schools, principals report that “all of thelearnersmerelycountasasinglelearnerforthepurposesofthestaffestablishment”.

197. Asaresult,mostschoolsreportclassesinexcessoftherecommendedlearner/teacher

ratios atmainstream schools, despite catering for highproportionsof childrenwithdisabilities.Itisnotuncommonforschoolstohaveclassesthathaveover50learnersforoneteacher,whoteacheswithoutaclassassistant.OneschoolhasaGrade1classwith84learners,andaGrade5classwith90learners,duetoshortagesofteachers.Atother schools, as noted previously, class sizes are even bigger because of limitedclassroomspace.

Challengestoteachingandlearninginbigclasses 198. Schoolscomplainthatbigclassesareanevenmoreserious issueatschoolswhere

learnershavelearnerbarriers“becausetheycannotbegiventheattentiontheyneedby teachers”.This isbecause“learnersaremixed” inclasses inaccordancewith thepurposeofinclusiveeducation.Childrenwithlearningbarriersideallyrequireconstant“specificandindividualattention”.Thisspecificindividualattentionmayberelatedtoadaptedpedagogy,orevensimplepracticalaccommodations.Oneteachergave thefollowingexamplesofaccommodations:

“Speakingloudlyinaclasswherethereisalearnerwithahearingimpairment,makingalearnerwithvisualimpairmentsitinfrontoftheclass,andwalkingaroundtheclasstodrawtheattentionoflearnerswhohavelearningchallenges.Inaddition,teachersarerequiredto give extra time to learnerswith learning barriers, to go through the lesson again toensurethatlearnersarecopingwiththecurriculum.”Teacher,full-serviceschool,UmkhanyakudeDistrict

199. Thoughthepercentageofchildrenwithdisabilitiesand learningdifficulties ineach

classandschoolvaries,SECTION27wasgivenexamplesofclasseswithover50learners,ofwhichasmanyasbetween10and20havespecial-learningneeds.OneteachersaidthatherGrade6classconsistsof31children,ofwhich15havelearningbarriersand/ordisabilities.

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200. Oneprincipalindicatedthatausefulreformwouldbeifthelearner/teacherratioatfull-service schools could be adjusted to be closer to one teacher to 25 learners,becauseinhisschool,oneineveryfivelearnersonaveragehasadisabilityorlearningbarrier. He describes the skewed ratio as “our major problem”. Another principaldescribesthecurrentsituationas“verychallenging”.Severalschools indicatehavingcommunicatedthisproblemtotheKZNDoEandthedistrictDepartmentofEducation.Ultimately, the challenges in teaching translate to challenges for children withdisabilitiesinprogressingacademically,because“learnerswithlearningbarriersneedmoreandmoreconstantsupport”.

Teachers’lackofexpertise,anddifficultiesteachingchildrenwithbarrierstolearning 201. Principalsoffull-serviceschools,liketheircontemporariesatspecialschools,complain

aboutthequalityoftheteachersallocatedtothem.Theybelievethatbyandlargetheyaremerely“allocatedsurplusteachers”inthesamefashionasmainstreamschools,andthe result is that new teachers have “no particular interest, skill and passion forteaching learners with disabilities.” Sometimes, ill-equipped teachers express opencontemptforchildrenwithdisabilitiesanddiscriminateagainstthem,oneteacherevengoingsofarastocalllearnerswithintellectualdisabilities“lunatics”.

“Iwouldliketoseemyschool,andothersthataresimilarlypositioned,havemorefreedomandautonomyinselectingand interviewingtheteachersthat joinourschools,sothatwecouldhireteacherswithrelevantexperienceandexpertise.”Principal,full-serviceschool“Newteachersjointheschool,theyhavetobetaughteverythingaboutinclusiveeducationfromscratch.It’saproblemhavingtoteachlearnersandalsoteachnewteachersabouttheschooland inclusiveeducation [at the same time],because the learners [withdisabilities]needmore‘careandlove’”.Principal,full-serviceschool 202. Oneprincipal,whohasapostgraduatequalification in inclusiveeducationhimself,

raisedconcernsaboutthequalityofteachingofinclusiveeducationinuniversities.Henotes,forexample,thattheinclusiveeducationcurriculumattheUniversityofZululand(the nearest university), as with other universities, is “purely theoretical, and notpractical.”Thismeansthatapparently,eventeachersjoiningafull-serviceschool“donothaveanypracticalknowledgeorskillsofinclusiveeducation”.

203. Theplacingofteacherswithoutexpertisecausesproblemsnotonlyforthoseteachers,butforthemoraleofthestaffattheschools,whoworkhardtoaccumulateexpertiseininclusiveeducationinordertoprovidetheirlearnerswithqualityeducation.Someschoolssaythatnewteachersresign“veryquickly”,becausethey“cannotcope”.

“Theyjustcomplainaboutthelearners,sayingthatthey’retoonaughtyandthingslikethat.Somewilltakesickleaveandjustneverreturn.”Teacher,memberofSchool-BasedSupportTeam,full-serviceschool

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204. This problem has an even worse effect when it comes to the appointment orpromotionofteacherstopositionsofleadership,suchasheadofdepartmentordeputyprincipal. One teacher asked, “How can educators do their level best without thesupportofanHOD,becausetheHODhasnoknowledgeofwhatisgoingon?”Despitethis,someschoolsareleftperplexedbytheappointmentsandpromotionsmadebytheDepartment,whichseemtoignoretheexpertiseofteachers:

“I wish our Department, when it comes to placing of educators, should consider theknowledge required at a full-service school. The Department does not want to promoteteacherswithintheschool,andthatiswhytheDeputyPrincipalandHODpostsarenotfilled.Thisgivesussomuchstress,becauseweareworkinghard.”Teacher,memberofSchool-BasedSupportTeam,full-serviceschool Theinadequacyandinconsistencyofteachingtraining 205. Though the district and provincial Departments of Education do provide ad hoc

assistancetotheschoolsintheformoftrainingsessions,schoolsuniformlyagreethatthis training is not enough, is often only general, and does not always benefit allteachers, because schools are asked to nominateonly specific teachers to travel toattend workshops. Ideally, schools say, all teachers should receive consistent andcomprehensivetrainingthattakesplaceatorneartotheschool.

“We get training, but it is not enough –weneed to learnmore. The onlyworkshop theteachershadattheschoolwasin2012.Onlysometeachersgotodistrictworkshops,andsothisdoesnotbenefitalltheotherteachers.Wewouldpreferifthereweremoreworkshopsdoneattheschool,foralltheteachers.Therearenoteacherswithanyspecialqualificationonteachinglearnerswithdisabilitiesoroninclusiveeducationatourschool.”Principal,full-serviceschool

206. TheFSGuidelinesstresstheimportanceofqualityinstructioninfull-serviceschools,notingthat“withouteffective instruction, learning is likely limited.For learnerswithdisabilities, this is particularly true”.153 Educators must be “prepared to teach alllearners who walk through their doors”, and be committed to providing individualaccommodationsforlearners’needs.

Non-educatorposts 207. Schoolscateringforlearnerswithdisabilitiesrequireavarietyofspecialistandnon-

specialistnon-educatorstaff.Someofthespecialistnon-educatorstaffarethesameasthose required at any school, such aspsychologists, socialworkers, counsellors andoccupationaltherapists.Theonlydifferenceinfull-serviceschoolsisthattheneedforthese positions is much more urgent in schools in which there are learners withdisabilitiesandspecialneeds.Theunavailabilityofnon-educatorsupportstaffincreasesthe difficulty of implementing the new SIAS policy, which requires screening andsupporttobeprovidedatschools.

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208. TheSIASpolicyrequiressupportteamsatcircuitlevelforschoolscateringforlearnerswith“moderate”supportneeds,suchasthemajorityofthoseatfull-serviceschools;andinitially,requiresmonthlyvisits(whichwilllaterchangetointerventionseachterm)by“transversalteams”,whichinclude:

+ Occupationaltherapists;+ Speechtherapists;+ Audiologists;+ Physiotherapists;+ Psychologists;+ LearningSupportTeachers;and+ Counsellors.

209. Ofthe11full-serviceschoolsinthedistrict,nonehasapermanentpositionforanyof

thesecategoriesattheirschool.Oneprincipalnotesthathethinksthatthereis“noteven one occupational therapist in the district”. The school therefore pays foroccupationaltherapistswhentheyneedthem,“becauseatthe[public]hospitalitcantakeuptoayeartobeseen”.Anotherprincipalindicatesthatthereisaneedforanurseatfull-serviceschoolstoprovidemedicalcareforchildrenwithdisabilities.

210. In 2014, Govender (an educational psychologist) noted that this problem existedthroughoutKZN,indicatingthat“theentireprovincehasjustaroundfivetherapists,11socialworkers,andunder20educationalpsychologists,ultimatelycateringforsometwomillionchildren.”154

211. Many principals are particularly adamant about the need for social workers andcounsellorsforschools,becausetheyareonlyavailableatdistrictlevel,onlyvisittheschoolonaverageonceaterm,andcannotrespondquicklytorequestsandproblemsthatariseregularly.Oneprincipalindicatedthatthecounsellorwhoislocatedatthedistrictlevelservicesnotonlyfull-serviceschools,butis“sharedbyallschoolsinthedistrict”,includingspecialandmainstreamschools.Whenasked,oneprincipalmerelystated:“Allfull-serviceschoolshaveschoolcounsellors”,becausethiswouldincreasethenumberoflearnerswithdisabilitiestheschoolscouldaccommodate.

212. Oneprincipalexpressedsomeconcernabouttheexpertiseofthecounsellorstodeal

with issues impacting on children with disabilities, noting that “school counsellorsthemselvesareunderskilled,andsometimesteachersknowmorethanthem.”

LearnerSupportAssistants “IfwearehelpinglearnersasLearnerSupportAssistants,wearealsoteachingthem”.LearnerSupportAssistant,full-serviceschool TheroleofLearnerSupportAssistants

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213. ALearnerSupportAssistant,155apositionnotspecificallymentionedintheSIAS,isapersonwhohasbeenemployedbytheKZNDoEtofulfilanumberofkeyfunctionsinfull-serviceschools.BeforeproceedingtodescribewhatLearnerSupportAssistantsdoinschools,itiscrucialtodistinguishthemfromtraditional“teacherandclassassistants”asdescribedbytheSIASpolicy.Whereasteachersandclassassistantscangenerallybeunderstood to supply in-class assistance to teachers – and do so, at some specialschoolsinSouthAfrica–noneoftheLearnerSupportAssistantsatfull-serviceschoolsintheUmkhanyakudeDistrictfulfilsthisfunction.

214. Though full-serviceschoolsutiliseLearnerSupportAssistantsdifferently,and thereappears tobenoprescribedmanner inwhich theyare required tooperate, all full-service schools understand themselves to be entitled to two Learner SupportAssistants,who inaddition to theireducational functions, staffandmanageLearnerSupportCentres.

215. Learner Support Assistants are crucial in providing both group and individualised

support for learners, both during and after school hours. Some of the schools useLearnerSupportAssistantstoprovide“remediallessons”afterschoolforchildrenwithhigh learning needs. These lessons are sometimes revision or repetition of lessonstaughtinclass,oreducationalgamestoemphasisekeycurriculumcontent.

“The [30-minute] remedial lessons are an attempt to go over the curriculumwith thelearnersagain,sometimesusingmaterialsthatareveryuseful,whichareprovidedbythehospital.Sadly,theschooldoesnotreceiveallthematerials itneedsfortheseremediallessons,andhasnotreceivedthemthroughtheKZNDepartment;andonlyonanadhocbasisthroughManguziHospital.”Principal,full-serviceschool

216. Otherschoolsusea ‘pull-out’system, inwhich individualchildrenaretakenoutof

theirclassesonaregularbasisforadditionalsupportfromLearnerSupportAssistants.Schoolsreportthatteachers“interactwiththeLearnerSupportAssistantstotakethelearning forward. Some of the learners do progress” as a result of this interaction.Generally,oneLearnerSupportAssistantwillbedelegatedtoassistwithlearnersinthefoundationphase,and theotherwill assistwith learners in the intermediatephase.Someschoolshavediscontinuedthe‘pull-out’system,andLearnerSupportAssistantstrytorotateattendanceindifferentclassestoassistlearners.

217. AnotherschoolthatusesLearnerSupportAssistantsbydeployingtheminclassestoassistteachersobservesthattheyaresousefulinthiswaythat“preferably,theschoolwouldliketohaveLearnerSupportAssistantsforeachandeverygradethereisattheschool”,attheveryleast.

ShortageofLearnerSupportAssistantsatschools218. Despite this ubiquitous understanding, only six out of the 11 full-service schools

currentlyhaveLearnerSupportAssistantsemployedattheirschools.Oftheremaining

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fivefull-serviceschools,fourhavenothadanyLearnerSupportAssistantssincetheyweredesignatedfull-serviceschools.Twoschoolshavebeenwaitingsince2011fortheplacementofLearnerSupportAssistants.

219. Theprincipalatonetheseschoolssaysthisisa“bigproblem”;shefollowsupregularlywith the Department, and is just told to “wait”. The final school had two LearnerSupportAssistants,whobothlefttheschoolin2015afterqualifyingaseducatorsandbeingplacedelsewhere.AlthoughtheLearnerSupportAssistantsarehighlyvaluedbytheschoolfortheircontribution,theyhavelimitationsastowhatkindofsupporttheycanprovide,becauseoftheirlackofprofessionalqualifications.

220. Althoughonlyone school reported Learner SupportAssistantshaving actually left,

othersindicatethattheyfearthatwhenLearnerSupportAssistantsqualify,theywillultimatelyleavefor“betterjobs”.

221. AprincipalfromoneschoolthatdoesnothaveLearnerSupportAssistantssaysthat

theirabsence“makesteachingdifficult”.AnotherprincipalagreesabouttheneedformorethantwoLearnerSupportAssistantsperschool,andemphasisesthattheyaremoreusefulthanteacherorclassassistants.

“Theremediallessonsareanattempttogivelearnerswithdisabilitiesmoretimeandlove.Thelearnersareprovidedwithemotional,moralandeducationalsupport–whichismuchneeded,giventheirdisabilities.Forexample,one learnerattheschoolwhohasaphysicaldisabilitycannotwalkproperly,buthelovestodance.Wegivehimsometimetodance,andthismakeshimveryhappy.Intheabsenceofsocialworkers,weendupalsotryingtofulfiltheimportantroleofsocialworkers.”LearnerSupportAssistant,full-serviceschool

WhatqualificationsshouldLearnerSupportAssistantshave? 222. The minimum requirement for a Learner Support Assistant appears to be a

matriculationcertificate,andnoexperienceisrequiredineitherteachinggenerallyorteaching childrenwith disabilities. Althoughmany Learner Support Assistants studytowardstheirteachingdegreeswhileemployedasLearnerSupportAssistants,noneofthemaresupportedbytheDepartmentofBasicEducation,theKZNDoE,orthedistrictDepartment indoing so.All do so “of their ownaccord andon their own timeandmoney”.

223. TheprincipalandLearnerSupportAssistantsatoneschoolagreedthat“itwouldbegood if all Learner Support Assistants who were available as learner support hadteaching qualifications”. When the qualification is combined with the practicalexperienceofteaching,LearnerSupportAssistantswhohavebeenstudyingtowardstheirteachingdegreesareemphaticabouthowusefulthequalificationistothem.

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“Mystudieshaveclearedupalotofthingsandhavegivenmeaperspectiveonhowtodealwithlearnersgenerally,andwithlearnerswithdisabilities.Ithelpsbecause[afterstudying]wedohaveaclearunderstandingofhowtodealwiththelearnerswithbarriersnow.Soifwebecometeachershere,itwillbeaneasyjob.”LearnerSupportAssistant,full-serviceschool TheinadequacyoftrainingprovidedforandcompensationofLearnerSupportAssistants 224. According to Learner Support Assistants interviewed, although they receive some

trainingfromtheDepartment,thetrainingisoftentoogeneralised.Whattheyrequireisdisability-specifictrainingofwidevariety,becausetheyinteractwithchildrenwithvariousandmultipledisabilities:

“Wewanttheworkshopcontenttobedevelopedandvary,sothattheycanbeabletotakespecificskillsacquiredintotheschoolandbeabletoassistlearnerswithvaryingdisabilities.Forexample,[wewant]traininginSouthAfricanSignLanguageforhearing-impairedlearners;and skills training, such as drawing, would be very useful to assist the Learner SupportAssistantstohelplearnerswithdisabilities.”LearnerSupportAssistant,full-serviceschool225. In addition, in the absence of counsellors and social workers at schools, Learner

Support Assistants end up fulfilling the role of providing psycho-social support tolearners,whichtheyareill-equippedtodo.

“It is not easy forus todealwith learners andprovide support, because there is a lot ofpovertyinthearea.Thereisalotofpovertyandcommunicablediseases.Soitisnoteasyforustodealwiththoselearners.Becausewhenwedealwiththelearneratschool,whenhecomes in themorninghe is hungry.Whenhe gets backhome in the afternoonhe is stillhungry.Hedoesn’thaveanythingtoeat.Andsothatisalsoabarrier.Somelearnerseatonlyonceaday,atschool,throughtheNationalSchoolNutritionPlan.Inthemorningyoufindthelearnersleepinginclass.Noconcentration.Becauseheishungry.”LearnerSupportAssistant,full-serviceschool226. Furthermore, Learner Support Assistants are paid basic salaries that do not

compensate themanywherenear the levelofwhat teachersarepaid, regardlessoftheirqualifications.

ThefailureofpolicytorecogniseandclarifytheuniqueandimportantroleofLearnerSupportAssistants 227. NeitherSIASnortheFSGuidelinesreferspecificallytothepositionofLearnerSupport

Assistant.However,SIASdoesnotethatpost-provisioningnormsandstandardswillbecreated that include posts for “teacher and class assistants”.156 The FS Guidelinesrequire that “teacher assistants” are appointed to full-service schools, and given“clearly-identifiedroles”.Theseteacherassistantsaredescribedas“school-basedstaffwhodonotnecessarilyworkwithindividuallearners”.Thedutiescontemplatedbythe

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guidelines,whichappeartocloselyapproximatehowLearnerSupportAssistantsareusedbyfull-serviceschools,include:

+ Assistinginidentifyingindividualandcollectivebarrierstolearning;+ Consulting with educators, the Learning Support Educator and other

professionalstoimplementprogrammestoaddressbarrierstolearning;+ Consulting with educators, the Learning Support Educator and other

professionalstoassesslearnerperformance;+ Participating in evaluating the effectiveness of education programmes and

relatedinterventions;and+ Developingrelationshipswithlearnersandbeingadvocatesfortheirinclusion.

228. Giventheimportantrolesallocatedtoteacherassistants,LearnerSupportAssistants

–as theonlycurrentteacherassistantsat full-serviceschools in theUmkhanyakudeDistrict–areindispensable.Theabsenceofmoredetaileddescriptionsoftheirrolesinpost-provisioningnormsisthereforeregrettable.

229. The KZN DoE and Umkhanyakude District Departments of Education’s collectivefailure toensure thateach schoolhasat least twoLearnerSupportAssistantsatalltimes seriously compromises the quality of education received by learners withdisabilities,andtherebyviolatestheirrighttobasiceducation.

LearningSupportEducators “ThereisaneedforbothLearnerSupportAssistantsandLearningSupportEducators,becausebothhavedifferentsetsofskillsrequiredbyafull-serviceschool.”Principal,full-serviceschoolTheRoleofLearningSupportEducators230. Like‘LearnerSupportAssistant’, ‘LearningSupportEducator’157 isapostthat isnot

specifically defined in the SIAS policy. Schools know little detail about the role ofLearnerSupportEducators,becausethereisasingleLearningSupportEducatorintheentire Umkhanyakude District. This Learning Support Educator must service all thespecial,full-serviceandmainstreamschoolsinthedistrict.

“ThereisaLearningSupportEducatorandschoolcounsellorbasedatthedistrictoffices,butfortheuseofallschoolsintheUmkhanyakudeDistrict–notevenjustfull-serviceschools.The basing of the Learning Support Educator and school counsellor at district offices isconfusing. It isnotcleartomewhattheyaredoing,andwhenorwhattheirspecificrolesare.”Principal,full-serviceschool231. WhatiscleartoschoolsisthattheLearningSupportEducatorisaspecialistposition

for a qualified professional who specialises in the education of children with highlearningneeds, includingchildrenwithdisabilities.Principalsenvisiona large role in

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their schools for Learning Support Educators, including assisting in producingindividualised learner-support plans and assisting with curriculum differentiation –both tasks that teachersand Learner SupportAssistantsareunderequipped to fulfilwithoutassistance.

TheinfrequentsupportofLearningSupportEducators,andtheirrarepresenceatschools

232. Some schools report that the district-based Learning Support Educator is in direct

contact with Learner Support Assistants at their school. All schools report that theLearningSupportEducatoronlyvisitstheirschoolfrom“timetotime”.Whenaskedtoapproximate how regularly the Learning Support Educator visits their school, theresponsesvaryfrom“aboutonceamonth”to“maybeonceaterm”,“atleasttwiceaterm”and“theschoolmustphonethemtocome”.

233. PrincipalsallbemoantheinfrequencyoftheLearningSupportEducator’svisitstotheir

schools,andtheminimalsupportthatcanbeprovidedbecauseofthis.Itisthereforeacommonrequest fromschools thateachschoolmusthavebothpermanentLearnerSupport Assistants and a Learning Support Educator, located at their school. Oneprincipalsaidthatwhatschoolsneedmostis“LearnerSupportEducatorsandLearnerSupportAssistantsattheschoolpermanently”.Indeed,LearningSupportEducatorsareso crucial that another principal indicated that “without this kind of support at theschool,somechildrenhavetobesenttospecialschools.”

234. Despite this need described by schools, and conveyed regularly to the district

Department of Education, only one school reported any attempt made by theDepartmenttoensurethataLearningSupportEducatorwasplacedattheirschool.

“ApostforaLearnerSupportEducatorwasadvertised,butwasneverfilled.TheDepartmentsaysithasnomoneyeverytimeIwritealettertotheDepartmentinquiringaboutwhenthevacancywillbefilled…ThelackofaLearnerSupportEducatorandacounsellorisaseriousproblemfortheschool.”Principal,full-serviceschool235. Worryingly,oneprincipal–whohasanHonoursdegreein inclusiveeducation,and

nearly10yearsofexperienceatafull-serviceschool–expressedsomedoubtaboutthequalityof support that the LearningSupportEducator is capableofproviding tohisschool,notingthat“sometimestheLearningSupportEducatorsandschoolcounsellorsthemselvesareunderskilled.Sometimesteachersknowmorethanthem.”

Non-compliancewithFull-ServiceSchoolGuidelines:theneedformoreLearningSupportEducators236. ThepositionofLearningSupportEducatorisnotcoveredatallintheSIASpolicy.The

FSGuidelines,however,describeLearningSupportEducatorsasplaying“acrucialrolein facilitating support at schools”, and indicate that full-service schools themselves

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“mayalsodesignateaLearningSupportEducator”.158Theduties that theguidelinescontemplateforaLearningSupportEducatorinclude:

+ Consultingandworkingwithothereducatorsandstaff,caregiversandoutside

agencies;+ Co-ordinatingtheworkofinstitution-levelsupportteams;and+ Supportingeducators’personalgrowthandprofessionaldevelopment.

237. Though the guidelines do contemplate the option of “itinerant” Learning SupportEducatorswhoservetheneedsofa“cluster”ofschools,thereisnoindicationthatasingle Learning Support Educator should be spread as thin as supporting an entiredistrict.159However,itisveryclearthatlargefull-serviceschoolswhoadmit“morethan500 learners” should have their own dedicated Learning Support Educator “who istrainedtosupporttheimplementationofinclusiveeducation”.160

238. Asdetailedandexplainedbytheschools,theprovisionofonlyoneLearningSupportEducatorfortheentireUmkhanyakudeDistrictisclearlyinsufficient,andcompromisesfull-service schools’ ability to identify, assess and accommodate learners withdisabilities,therebyviolatingtheirrighttobasiceducation.

Curriculumdelivery“Thereare learnerswithbarrierswhocannotunderstandwhenyouteach.Youneedyourownstandardsandlessonsforthem.Thismeansweneedourcurriculumtobedifferentiatedforthem.”Teacher,full-serviceschool 239. Alllearnersatfull-serviceschoolscoverthefullCAPScurriculum,likelearnersatany

mainstreamschool.Thisisdesirableforchildrenwithhighlearningneeds,becauseoneof the aims of schooling for them, as it is for all other children, is the ultimateachievementofaNationalSeniorCertificate.

Theneedforflexiblecurriculaandcurriculumdifferentiation

240. However, because learners have diverse learning styles and needs, curriculum

differentiationisrequiredtoensurethatallchildrenhaveequalaccesstotheacademiccurriculum.ThisisdirectlyaddressedintheSIASpolicy.Curriculumdifferentiationisaspecialist skill that involves “modifying, changing, adapting, extending and varyingteachingmethodologies,teachingstrategies,assessmentstrategiesandthecontentofthe curriculum” to accommodate learners.161 The SIAS policy highlights “Inflexiblecurriculum implementation at schools” as a barrier to learning that requiresaccommodation,andidentifies“curriculumdifferentiationtomeettheindividualneedsoflearners”asaprioritysupport-provisionarea.162

241. It is concerning that these policy requirements are not the reality at full-service

schools.Teachersattheseschoolsdescribedthecurriculumas“inflexible”,“rigid”and

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“notsimplified”.Thiscauseschallengesforteachingandlearning,especiallyforchildrenwithdisabilities.Teachersnotedthatthisisalsoveryimportantforchildrenwithmoreminorlearningbarriers,ormerelyvaryinglevelsofcognitiveability.

“Oneofthebiggestdifficultiestheschoolfacesistherigidcurriculum.Itisnotflexibleenoughtoaccommodatelearnerswithdisabilities.Thiscausesprejudicetolearnerswithdisabilities,that they are expected by the Department tomeet the same requirements as the otherlearnersdespiteclearbarrierstolearning,whichmakethisdifficult.”Principal,full-serviceschool

Curriculumdifferentiationandindividualisedsupport242. It is important to note that from the perspective of full-service schools in the

UmkhanyakudeDistrict,effectivecurriculumdifferentiationisnotaonce-offtaskbutacontinuousanddaily activity for all teachers. The curriculummustbe individualiseddependingonaparticularlearner’slearningneeds.Schoolsalsoreportadjustingandadapting testing techniques, for example to accommodate learnerswho struggle tocompleteexamsintheavailabletime,orlearnerswhocannotdraworwriteproperly.

243. Many principals from full-service schools report difficulty in completing the CAPS

curriculumon time,becauseofa combinationofbig classes, theattention teachersneed to give to learners with learning barriers, and the inability of teachers toeffectivelydifferentiatethecurriculum.

244. Teachersemphasisedthedifficultyofcurriculumdifferentiationinthecontextoffull-

serviceschoolsbecauseoftherangeofdisabilitiesandlearningbarriersthatmayexistineachclass.Thismakesskilfully-crafted individualsupportplansanecessity,ratherthanaluxury;whichtakesalotofextratimeforteachersthattheymaynothave,eveniftheyareproperlyskilledandequipped.

“The school actually needs individual plans for learners with barriers. Some learners canspeak,butnotwrite.Butthesystemsaysthatalllearnersmustwrite–butthisisnotpossible.It is not a flexible curriculum. Simplifying the curriculum is possible, but not at the pacerequiredforcurriculumdelivery.”Teacher,full-serviceschool

CurriculumdifferentiationandcompulsorytestingthroughAnnualNationalAssessments 245. Thedifficulty inensuringanappropriatelyadaptedanddifferentiatedcurriculumis

mostpronouncedwhenitcomestostandardisedtestingthroughcommonpapersandAnnual National Assessments,which are a constant source of stress for full-serviceschools.Byandlarge,principalsreportthatlearnerswithbarriersstruggletopass.Extratimeisneededformanylearners;andexaminationsneedtobesimplified,forexample

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forchildrenwhocannotwritebutcanspeak.Asaresult,itisverydifficultforlearnerstoperformwellintheANAs;whichcanbedemoralising,forbothlearnersandteachers.

246. It is important to emphasise that it is not an absolute inability to be educated of

childrenwithbarrierstolearningthatmakesitdifficultforthemtosucceed.Itisoftenthe unaccommodating environment and barriers to their learning created by aninflexible curriculum and assessment methods that results in children’s failure tosucceedacademically.Schoolscanprovideendlessexamplesofthis.Somerequireaslittleasjusthavingmoretime;othersrequiremore.

“ANAdoesn’tcaterforlearnerswithanyintellectualchallenges.They[theDepartment]justsay we can get extra time; but that doesn’t solve the problemwith the curriculum. Thecurriculum does notwork for these learners, and they simply cannot cope. Teachers areconstantlyforcedtoadaptthecurriculumthemselves,inclass.Therearealsochallengeswithlearnerswithotherdisabilities.Forexample,therearesomelearnerswithvisionproblemswhocannotreadonwhitepaper,becauseitistoobrightforthemandhurtstheireyes.TheANAscomeonwhitepaper.Anotherexampleisalearnerwhocannotread,butcanrespondcorrectlywhenspokento.”Principal,full-serviceschool247. SchoolsreportthattheexpectationsofthedistrictDepartment–withregardtotheir

performance on ANAs, and the general pace of delivery of the curriculum – areunrealistic.Oneteacherremarkedthat“Thedistrict justexpectsthesamestandardsforeverything,includingANAresults,forfull-serviceschoolsandevenspecialschools.”Another principal notes that more generally, “the school must still meet all thedeadlines, and the district will expect you to be at the same level as mainstreamschools.”Theseunrealisticexpectationsarecompoundedbythefactthatthedifferentsubject advisers convey conflicting messages to schools in different meetings andworkshops.

Curriculumdifferentiationandinadequateteachertraining

248. Whilethereappearstobeamultiplicityofmessagesfromsubjectadvisers,principals

and teachers also complain about the sporadic provisionof training for teachers toperform the function of curriculum differentiation, and the lack of monitoring ofschoolsinthearea.

“Moreworkshopsareneeded[oncurriculumdifferentiation]tobetterequipteachers,andbettermonitoringoftheimplementationofthecontentoftheworkshopsisalsonecessary.Therearechallengesthatcomefromthelackofmonitoringinalltheschoolsinthearea.”Principal,full-serviceschool

249. Oneprincipalbelievesthattheinsufficiencyofthetrainingappearstodatebacktotheroll-outoftheCAPScurriculum,whichtheprincipalsaystookplaceoverthecourseofonlyoneweek.ThisisdespitethefactthattheCAPScurriculumisgenerallyseenas

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requiring the curriculum to be taught to learners much faster than the previouscurriculum.

“ThegeneralproblemisthatwhenevertheDBEintroducesanewcurriculum,theyprovidetrainingforoneweek,andthenexpectteacherstobetrainedatahighlevelandreadytoteach. This is not enough timeor training, and so there are inherent challenges facedbyteachers in delivering the curriculum, while they are expected to still meet deadlines.”Principal,full-serviceschool

250. A thirdprincipal isdespondentaboutwhether there isanyvalue toworkshopsoncurriculumdifferentiation,giventhechallengestheschoolfacesinmerelycompletingthecurriculumasitis.

Theimpactofinflexiblecurriculaonteachingandlearning

251. Thecurriculumalsoplacesaburdenontheschoolsthemselves,whohavetofindways

toexpandteachingtime.Someteachersmustrepeatlessonstoensurethatalllearnersarecopingwiththecurriculum.Insomecases,theschoolsthemselvesrearrangetheirentire timetables to accommodate the learning needs of children with barriers tolearning.

252. Theneteffectforchildrenwithlearningbarriersatfull-serviceschoolsisthatfothem,curriculumdeliveryisseverelycompromised;alongwiththeirownabilitytoprogressacademically.

“Theinflexiblecurriculumattheschoolhasmeantthatsomelearners,particularlythosewithlearningbarriers,spendmorethanoneyearinthesamelowergrade.Forinstance,thereisan18-year-oldlearnerinGrade6whohasangermanagementissuesbecauseheissoold,andbulliesothersinclassandissometimesteasedbyothersforhisage.”Principal,full-serviceschool253. Theproblemofover-agelearnersiscommonandisnotonlyasocialproblembutan

educationalone.Ateacherexplainsthepredicamentsheisfacedwith,onapracticallevel,onaday-to-daybasisinclass.

“You’llfindthatinaclassroom,forexampleGrade3,only5%ofthelearnersareatthelevelofbeingaGrade3learner.SomeareGrade2orGrade1level,andothersevenGradeRlevel.ButbecauseoftheDepartment’srulethatlearnerscannotfailaphasetwice,theyarejustpushedon to thenext grade. This is a challenge for teachers, because thisGrade 3 classcannotbetaughtGrade3-levelwork,andtheteachermusttryandworkoutalowerlevelthatfitsmostlearnersbest.Ifthelearnersarenotcoping,theymustbetaughtotherwork.Beforetherulecamein,somelearnersweretakenbacktoGrade1fortheextrasupporttheyneeded.Butthisalsoplacedstressontheeducators inthe lowergrades,becauseofevenmorelearnersintheirclasses.”Teacher,full-serviceschool

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“Theteachersstruggletofinishteachingthesyllabusintheallocatedtime,becauselearnerswithbarriersneedextratimeforthemtokeepup.However,theschooldoestrytomitigatethisproblembyhavingmorningclasseseveryday,inthesecondandthirdtermofeachyear.Thismeansthatschoolsstartataboutanhourearlierthanusualeveryday.”Principal,full-serviceschool

254. Not all schools retain their faith in the feasibility of the fundamental principles of

inclusion, in the face of these trying circumstances.One principal indicated that hethinksthatitwouldbebetterifchildrenwithlearningbarrierswereplacedinaspecialclass.

“I would rather the learners were separated, and have teachers with special skills teachlearnerswithdisabilitiesandspecialneedsseparately.Givingtheselearnersone-on-onefocusisdifficultunderthecurrentconditionsthatteachersarefacingat[myschool].Theschoolstrugglesalottofinishthecurriculum,becausemoretimehastobegiventolearnerswithdisabilitiesandlearningbarriers.“Principal,full-serviceschool

255. Despite all of these challenges, generally teachers and principals interviewed bySECTION27displayaremarkableresilience,adetailedknowledgeofspecificchildrenwithdisabilitiesand learningbarriersat their schools, anda senseofpride in theselearners’achievements.Oneteacherinsistedthatthesolutionwasindividualattentionforindividuallearners,andthat“wecan’tleave[learnerswithbarriers]behind”.Theycelebrate successes, such as learners who were previously sent to special schoolscopingwiththecontentoftheacademiccurriculum.

Therequirementofa“flexible”,differentiatedcurriculum:guidelinesforfull-serviceschools

256. TheDBE’sFSGuidelinesreiterateWhitePaper6’sconcernthatcurriculumis“oneof

the most significant barriers to learning” for children with disabilities. Potentialproblems with curriculum delivery highlighted by the guidelines include content,methodsofteaching,paceofteachingandtimeavailable,andlearningmaterialsandequipmentavailable.163Theguidelinesstresstheimportanceofa“flexible”curriculum,andnotetheimportanceoftheroleoftheDistrict-BasedSupportTeaminensuringthatthecurriculumremainsflexible.

257. The guidelines therefore require that “inclusive schools should know how todifferentiatethecurriculumanduseavarietyofapproaches”.164Theyalsorequirethateducatorsmust“receivetrainingandongoingsupport”toensurethattheyarecapableofmakingthecurriculumaccessible.Theguidelinesalsodescribeasa“hallmark”offull-serviceschoolsthattheyprovide“individualisedinstructionandsupporttolearners.165

258. In reality, SECTION27’s research reveals, teachers and schools in Umkhanyakude

Districthavelittleabilitytodifferentiatecurriculumforthevarietyoflearningbarrierspresentintheirschools,andcannotprovidechildrenwiththeindividualisedattention

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andsupporttheyareentitledto.Thisinhibitstheiraccesstothecurriculum,whichisaviolationoftherighttobasiceducationofchildrenwithdisabilities.

Transport “Iftherewassufficienttransportforlearners,therewouldbemorelearnerswithdisabilitiesenrolledattheschool.”Principal,full-serviceschool 259. Outofthe11full-serviceschoolsinthedistrict,onlytwohaveanyaccesstotransport

providedby the KZNDoE.Of these two, one school –which hasmore than 1 000learners–hasabusthattransports120 learnerstoandfromschooleachday,onaspecificroute.Thesecondschoolsharesasinglebuswith7otherschoolsinitsarea,andtheprincipalmustprovidealistwithonlytheveryneediestlearnersonittosharetheuseofthisbus.Manyofthelearnersthatareplacedonthislistrefusetousethebus,becausetheysaythattheyarebulliedbyolderchildrenfromhighschoolsthatalsousethebus.

“It ismoreimportanttohavetransport,becausethereare learnerswithdisabilitiesattheschool.ThereisaGrade4learnerwhoisepileptic,andhedoesnotwanttowalksofarandso will fight with his parents. There is another learner in the school who has a physicaldisabilitywhowalksfartoschool,andsometimeswhenshearrivesshewillcomplainthatshefeelssickandsoshecan’tlearn.Thischildhasalimp,andmustwalk10kilometrestoschool.Onesideofherbodydoesnotworkproperly.”Principal,full-serviceschool

260. Thenineremainingschoolshavenotransportprovidedfortheirlearners,andarenot

givenanymoneytoassistlearnersingettingtoandfromschools.Fromtheoutset,itisimportanttonotethatschoolsareclearthattheKZNDoEhasbeenmadewellawareoftheirdesperateneedfortransport.

261. OneprincipalnotedthatthemosttheDepartmenthasdoneistrytoprovidesome

bicycles. In2013, at this school– toget towhich some learnersmustwalkover12kilometreseachday,andcrossariverintheprocess–theprincipalphysicallyshowedvisitingDepartmentofficialschildrencrossingtheriver,andprovidedtheofficialswithafulllistoflearnersinneedoftransport.

262. Anotherprincipalindicatedthatsince2010,hehaswrittentotheDepartment“many

times”aboutthe“urgent”needfortransport.Thevulnerabilityofchildrenwithdisabilitieswhoarenotprovidedwithtransporttoschool 263. Thoughprincipalsareclearthattransportisa“bigissue”generally,theyemphasise

thatthebiggerchallengeisposedtolearnerswithdisabilities.Somechildrencannotphysicallygettoschoolwithouttransport.

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“As a result [of the lack of transport provided by the KZN DoE], I myself have beentransportinglearnerswithdisabilitiesinmyownprivatecar,becausetheycannotdrivetheirwheelchairsonthegravel.”Principal,full-serviceschool

“Xisachildwhocomesfromadeeplyruralareafurtherawaythanthe[nearest]town,andfrom[ourschool].Hehasanintellectualdisability,andisfamousinhisarea.Thismeanshemanagestogetalifteverydayfromhometo[town].Theproblemisthatheoftenstrugglestogetaliftfrom[town],andisthereforeforcedtowalksixkilometresbyhimselftogettoschool.Helovesschool,andwantstocomeeveryday,butthisisabighurdleforhim.Manyparentsareusingtheirgrantmoneyfortransporttoandfromschool.Thismeansthattheschool would like to be assisted with transport by the Department, or possiblyaccommodation–ahostelforchildrenlivingindeepruralcommunities.”LearnerSupportAssistant,full-serviceschool

264. Many learnerswithdisabilities travel longerdistances than learners inmainstreamschoolsbecausetheytrytofindaschoolthatcanproperlyaccommodatetheirlearningneeds.Manydifferentschoolsobservelearnerstravellingmorethan30kilometreseachway every day to attend a full-service school. These children are often specificallyreferredtofarawayschools,intermsoftheSIASpolicy,bytheDepartmentitself.

265. Thisplacesanadditionalburdenoncaregivers,andisafurtherbarriertoaccessto

educationforchildrenwithdisabilities.Unsurprisingly,itisacommonobservationofprincipals that learners with disabilities drop out because of transport costs anddifficulty in getting to school. Various principals also expressed a belief that morechildrenwithdisabilitieswouldattendtheirschoolsiftheKZNDoEprovidedsafeandefficienttransport.

266. Intheabsenceofhostelsorstate-providedaccommodationatfar-offschools,andto

avoidtheexpensesoftravellinglongdistanceseachday,manyschoolsreportchildrenwithdisabilitiesseekingoutrentedaccommodation,awayfromtheirfamilies,closetofull-serviceschools.Otherlearnerssimplydropout,becausetheschoolistoofaraway.Thisleadsseveralprincipalstoquestionwhethersmallhostelsatfull-serviceschoolsforchildrenwithdisabilitieswouldbesensible.

267. Oneprincipalnotedthatthesechildrenlackthecareandsupportoflovingcaregivers,

whichisevenmorenecessaryforchildrenwithdisabilities.Ultimately,thisisanothertransport-relatedreasonfordroppingout.

Expensiveanddangerouspublictransport268. These issues that are specific to children with disabilities exacerbate the already

existingchallengesfacedbythemajorityoflearnersinKZN,whoarealsonotprovidedwithanysupporttogettoschool.

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269. The first challenge is financial: sincemany caregivers are unemployed, and totallyreliantonsocialgrants,theystruggletopayfordailytransportfortheirchildren.Oneprincipalnotedthatthemostshecandoforcaregiverswithregardtotransportistoassistthemwithapplyingforgrants.Evenwiththisaccomplished,shenoted,itisnoteasyforcaregiverstopay.

270. Asecondproblem is thequalityof transport that caregivers canafford topay for.

Caregivers who do pay for private transport generally do so through an informal,relatively unreliable, unregulated and often unsafe system known in the area as‘Umalumetransport’(‘uncletransport’).Someschoolsestimatethatasmanyas80or90%oflearnersgettoschoolinthisway.Thissysteminvolveswhichever‘uncle’inacertainareahasabakkieorcarroundingupasmanychildrenaspossible–eitherbypriorarrangement,oralongtheroad–andtakingthemtoschool.Theunreliabilityofthis system is a particular problem for learners with disabilities, being even morevulnerablethanotherchildren.

“This isaburdenonthemandtheirfamilies,becausetheyhavetopayfortransportfromsocialgrants.Canyouimaginethat?Andifthemoneyisnotthereontheday,thenthetaxidrivers[‘baduncles’]will justleavethematthebusstop.Achildwillpitchupatschoolat9am,havingwalked.”Principal,full-serviceschool

Long,tiringanddangerouswalkstofull-serviceschools:violence,riversandexhaustion

271. Anotherdifficulty,intheabsenceoftransportbeingprovided,isthesheerdistance

thatmanychildrenwhowalkmusttraveltoschool.Itiscommonforchildrentohavetowalkmorethanfivekilometrestoschoolinthemorning,onlytohavetorepeatthison the trip home after school. Some schools report that learnerswalk as far as 10kilometreseitherway.

272. Regardlessofdistance,childrenwhowalktoschoolmustbraverough,ruralterrainanddangerousroads.Alargenumberofchildren,fromatleastthree,schoolsreportthattheymustcrossriversontheirwaytoschooleveryday.Somechildrenwadeorswimacrosstherivers,otherscrossusinghandmadeboats,whichschoolsdonotregardassafe.

273. Althoughthenecessitytocrossriversexacerbatesthethreatofheavyrain,rainand

badweathermoregenerallythreatenschoolattendanceforall learnerswhowalktoschool.

“Whenitrains,morethanhalfoftheschoolwillbeempty.Thisisbecausethereisnomoneyfor transport,and learnershave towalk toschool. Luckily, itdoesn’t rain for longorveryoften.”Principal,full-serviceschool

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274. Evenwhentheweatherisgood,learnerswhomustwalkthroughforestsareexposedtothreatsfromwildanimals,includingsnakes,andarealsoexposedtothreatsofsexualandotherphysicalviolencefromadultsandotherchildrenontheirwaytoschool.Thisthreat is particularly acute for young girls, and given thedisproportionate threat ofsexual violence to young girls with disabilities, should be treated with even moreurgencywith regard to full-service schools. Schools cite various examples of sexualassaultsonthewaytoschoolintheirandothernearbycommunities.

“Thelackoftransportisamajorproblemfortheschool,becausesomelearnerswalkthroughdensebushontheirwaytoandfromschool.Asteacherswecandoandsaynothingmore,besidestellingthe learnerstowalk ingroups.A learnerfromanother[nearbyschool]wasrapedwhilewalkingalonethroughthedensebush.Itisnotsomethingthathappensoften,buttheteachersarescaredfortheirlearners[atourschool].Thechildrenarenotscaredofsnakeswhenwalkingthroughthebush;theywouldganguponasnakeandkillit,evenhereatschool.”Teacher,full-serviceschool

275. When there are roads available, and childrenwalk or get lifts on them, the roadspresentdangersoftheirown.Inadditiontothepossibilityofaccidentscausedbycarsoverloaded with schoolchildren, and unroadworthy cars carrying schoolchildren,sometimestheroadsareinsuchpoorconditionthattheyarethemselvesdangerous.Manyschoolshavesignificantstretchesofdirtroadswithenormouspotholeslitteredacrossthemthatmustbenavigatedinordertoarriveattheschools.

Therighttotransporttofull-serviceschools

276. Childrenatfull-serviceschoolshavethesameneedsandrightstotransportasthose

inmainstreamschools,asdetailedabove. Inaddition, inorder toattendfull-serviceschools, learnerswith disabilities have a particular need for government-subsidisedtransport,giventhelikelihoodthatfull-serviceschoolswillbefurtherfromtheirhomes,and that disabilities increase their vulnerability while travelling to school. The DBEprogressreportontheimplementationofWhitePaper6acceptsthat“onlyifthisissue[oftransport]couldberesolved,canafullyinclusiveeducationsystemmaterialise”,andacceptsthatlearnersarepreventedfromenrollinginfull-serviceschoolsthathavebeenupgraded, because they do not have transport.166 This is clearly confirmed bySECTION27’sresearchintheUmkhanyakudeDistrict.

277. The FS Guidelines acknowledge this particular need from the outset, noting“accessibilityviapublictransport”asonefactorrequiredtobecompliedwith,eventobe designated a full-service school.167 The guidelines acknowledge transport as a“seriousbarrier”forchildrenwithdisabilities.168Theguidelinesalsorequiretransporttobeprovidedforalllearnerswithdisabilities,forallschool-dayactivitiesandtrips.169The guidelines describe it as “critical” that arrangements aremade to “ensure thatlearnerswithdisabilitiescantraveltoandfromschool”,andthatfull-serviceschoolsmust“negotiatewithDistrictOfficestoarrangeaccessibletransport”forchildrenwithdisabilitiesintheircatchmentarea.

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278. The guidelines also emphasise that “transport subsidies must be one of the

componentsofthebudgetofafull-service/inclusiveschool”,andthatthesesubsidiescould include fees for public transport, salaries for drivers or for the purchase,maintenanceandrunningcostsofvehicles.170Thewidespreadabsenceandinadequacyoftheprovisionoftransportforlearnerswithdisabilitiesatfull-serviceschoolsintheUmkhanyakude District is therefore both a disappointing departure from the DBE’sguidelines,andaviolationofthesechildren’srights.

VIII. SCHOOLS’RELATIONSHIPSWITHSUPPORTSTRUCTURES

“Thereareanumberofthingsweneedtofixinthisschool,butwerelyontheDepartment.”Principal,full-serviceschool“The key to reducing barriers to learning within all education and training lies in astrengthenededucationsupportservice.”InclusiveEducationWhitePaper6

279. Read together,White Paper 6, SIAS and the guidelines for special and full-serviceschoolsrequirethecreationandstrengtheningofsupportstructuresthatarecrucialinassistingtheimplementationofinclusiveeducationinfull-serviceandspecialschoolsthroughoutthecountry.DuringSECTION27’sresearch, itbecameclearthatsome of these essential support structures were either completely inactive,underequipped, or provided insufficient support to the 11 full-service and threespecialschoolsintheUmkhanyakudeDistrict.

280. Beforesomeobservationsaremade, it shouldbeemphasised that thevastmajorityofschoolstaffdescribedtheirrelationshipswiththedistrictandprovincialDepartmentsofEducationasprofessionalandrespectful,despitetheirclearconcernsabouttheeffectivenessofthesupportreceived.

Inactiveorineffectivestructures

281. In our research, at various points SECTION27 interacted with many staffmembers who explained that they formed part of what they described as eitherInstitutional-Level Support Teams (ILST), or School-Based Support Teams (SBST).Thesetermsareusedinterchangeably insomeDepartmentpoliciesandguidelines,and are indistinguishable. These support teams, itwas explained, had a particularmandatetosupportteachingandlearningatspecialandfull-serviceschools.

282. Although these staff members were particularly knowledgeable, it is ofconcernthatnoneofthemappearedtohaveanyknowledgeofmanyoftherelevantguidelinesanddetailedpoliciesoninclusiveeducation.Thetwosignificantexceptionsin this regardwereabroadunderstandingofEducationWhitePaper6,andof the

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newly-formulatedSIASpolicy,whichstaffmembersweregenerallyveryenthusiasticabout.VerylittlementionwasmadeofDistrict-BasedSupportTeams(DBST).

283. Ashasalreadybeennoted,thesingleLearningSupportEducatorinthedistrict

doesnothavesufficienttimetopayattentiontoeachschool’sneeds;andaccordingtosomeprincipals,isalsolackingintherequisiteexpertise.Whenaskedaboutsupportgiven from the district Department, staff members could only give details of thisLearningSupportEducatorandadistrict-basedcounsellor.

District-BasedSupportTeams

284. DBSTsarecontemplatedbyWhitePaper6anddescribedbytheSIASpolicyas

“akeycomponentinthesuccessfulimplementationofaninclusiveeducationsupportsystem”.171DBSTsare thebackboneof the SIASpolicy. Thepolicy givesDBSTs theresponsibility for “the final ratification, monitoring and quality assurance of thesupportprogrammes”.172DBSTsarealso taskedwith settingupsupportingSchool-BasedSupportTeams(SBSTs).173

285. According to the DBE’s 2005 Guidelines for District-Based Support Teams,DBSTs are supposed to provide both classroom and organisational support toeducators and learners.174 These guidelines also make it clear that provincialDepartments of Education have the obligation to identify, establish and supportDBSTs.175 The DBE Special School Guidelines describe themajor roles of DBSTs as“Classroom-Based Support”, “Institutional Support”, “Administrative Support” and“Psycho-Social,EnvironmentalandHealthSupport”.176

286. The SIAS policy suggests that the DBST will be compromised in terms ofcurriculum and school managers, human resource planning and development co-ordinators,socialworkers,therapists,psychologistsandotherhealthprofessionals.Itisobviousfromavarietyoftheschools’complaintsdetailed inthisreportthattheDBST in theUmkhanyakudeDistrict either does not havemany of these positionsfilled, or does not have the capacity to interact with schools as regularly as isnecessary.

School-BasedSupportTeams/Institutional-LevelSupportTeams

287. SIASdefinesanSBSTasa“school-levelsupportmechanism”whoseprimaryfunction is to “put in place co-ordinated school, learner and teacher supportservices”.177TheGuidelinesforDBSTsindicatethatthe“corepurposeof[SBSTs]istosupport the teaching and learning process” directly through variousmeans. Theseinclude designing and assessing support programmes, inside and outside ofclassrooms,forteachers,caregiversandlearners.Itsresponsibilitiesinclude“drawinginresources”,“curriculumsupport”,and“developingstrategies”toaddressbarrierstolearning.178

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288. SBSTs take on even more significant roles at full-service schools, where –according to the FS Guidelines – they are, for example, required to assist withcurriculumdifferentiation, creation and administrationof individual support plans,and the implementation of SIAS.179 The importance of SBSTs is confirmed bySECTION27’s research.SchoolsoftendescribeSBSTsas thecentral (ifnot theonly)supportstructurefortheteachingofchildrenwithbarrierstolearning,andfortheirlearningexperience.

289. Although the precise membership of SBSTs is not rigidly prescribed, SIASindicatesthatSBSTscouldincludeteachersfromtheschool,teacherswithexperienceinteachinglearnerswithbarrierstolearning,membersofschoolmanagement,otherstaff at the school, and learner representatives.180 For the purpose of particularengagements,thesecoremembersaretobesupplementedbycommunitymembers,membersoftheDBST,andteachersfromotherspecialandfull-serviceschools.181Atfull-serviceschoolsintheUmkhanyakudeDistrict,membersofSBSTs–althoughoftenstilldecryingtheirlackofcapacityandexpertisetoundertaketheirroles–oftenhavethemostformalorexperience-basedknowledgeofovercomingbarrierstolearningintheir schools. Many seemed to have detailed knowledge about specific learners’particular barriers, and about what is being done to accommodate them in theirschool.

290. AlthoughthepreciserelationshipbetweenSBSTsandDBSTsisnotclear,SBSTs

arerequiredtoreportstepstakenandprogressmadetotheDBST.DBSTsareclearlyrequired to provide whatever support they can to SBSTs, and to provide schools,teachersandlearnerswithanysupportthatcannotbeprovidedbySBSTs.182Inreality,SECTION27’s research reveals that SBSTs often feel isolated from the DBST, andassumealmostcompleteresponsibilityforprovidingthesupportfunctionsrequiredbyschools.

291. BecauseofthesignificantroleexpectedtobeplayedbySBSTs,especially in

fullserviceschools,theFSGuidelinesacknowledgethat“staffprovisionmustensurethatthereareadditionalstafforreducedteachingloads”ofmembersofSBSTsinfull-service schools.183 As described in detail above, in theUmkhanyakudeDistrict thefailure to provide full-service schools with any additional educator staff toaccommodate the fact that they cater formany learnerswith barriers to learningplacesfurtherstrainonteacherswhoaremembersofSBSTs.

Lackofexpertise

292. TheDBE progress report on the implementation ofWhite Paper 6 notes a“substantial number of 231 vacancies” in provincial and district Departments ofEducation for the six provinces in which information was available. The reportconcludesthatthis“needstobeaddressedthroughrigorousbudgetingandfillingofposts as a critical priority”.184 This serious understaffing goes some way towardsexplainingthelackofexpertisepossessedbytheprovincialanddistrictDepartmentsofEducationinKwaZulu-Natal,includingtheDBST.

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“TheDepartmentunderstandsthetheoryofinclusiveeducationandwhatitmightrequire;butpractically,sometimesthedistrictcomesupshortinprovidingpracticalassistancetotheschool.”Principal,full-serviceschool

293. Itappearsthatmostofficialsarenothiredwithanyexpertise,andonlyacquirethis ‘theoretical’understandingof inclusivity through their trainingonce theyhavealready been hired. Some staff at schools questioned why the real experts withexperienceinschools–teachers,principals,andotherstaff–werenothiredfortheseposts.Inaddition,theefforttogatherexpertiseonthejobisnotuniform.

“Thedistrictistrying;it’sonlyamatteroftrying,though–thereisnoexpertise.TheSNES(SpecialNeeds Education Section) do try. They attend theworkshops, and learnwith theschool.ItwouldhelpiftheDepartmenthiredpeoplefromschoolswithexistingexpertise.Theissuewithinclusiveeducationisthatit’snotmovingthewayitissupposedtobe.I’lljustciteoneexample.Whenweattendinclusiveeducationworkshops…[asfull-serviceschools]…inmost cases, thosemeetingsare tobeattendedbyourcircuitmanagers;but [theydonotcome].Sothismakesthemblank.Andiftheyareblank,howwilltheysupport?”Principal,full-serviceschool

Inadequatesupport294. Becauseoftheirlackofcapacityandexpertise,itisunsurprisingthatschools

complain about the quality of support that they receive from theDepartments ofEducation.However,someschoolssaythattheproblemgoesevenfurther,becauseDepartmentofficialsdonotseektoassistconstructively,butratheraimtocriticiseschoolsthataretryinghardtosucceedagainsttheodds.

“TheDepartmentofficialsdon’tcometorendersupport.Theycometofindmistakes.Nottodevelopourselves.Wealwaysraiseissuesaseducators,butarenotattendedto.”Principal,full-serviceschool

295. Otherschoolsaremerelydespondent,becausetheyhavesimplyacceptedtherealitythatthesupporttheyreceivewillbeinsufficient.

Negativeattitudeaboutabilitytolearn

296. Media reports,whichhavebeenconfirmedbySECTION27’s interviewswithschools,suggestthatDepartmentofficialsarenotalwayspositiveabouttheabilityofchildren with disabilities to succeed in their education. As Human RightsWatch’sreport observed, this demotivates teachers, and obstructs progress in theimprovementoftheinclusiveeducationsystem;andultimately,hasanegativeimpactonthequalityofeducationaccessedbychildrenwithdisabilities.185

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“Theofficials’disregardofspecialchildrenandtheirneedsleftmedejected.Statementslike‘Wedonotexpectteachersandengineerstocomeoutofthisschool’,byoneoftheofficials,hurtmethemost.”186Teacher,specialschool

297. The need for an attitudinal shift is acknowledged by SIAS, which identifiesnegativeattitudesasapotentialbarriertolearning,onbothadepartmentalandaneducatorlevel.187

Pressureonwhistleblowers

298. Giventhedirecircumstancesdescribedatmanyofthe11full-serviceandthreespecialschools intheUmkhanyakudeDistrict,andtheinadequateresponsesoftheDepartmentsof Education, it is unsurprising that some teachers feel compelled tospeakoutpublicly.Theydosointhebestinterestsoftheirlearnersandotherchildrenwithdisabilitiesalloverthecountry,andshouldbeprotectedfromvictimisationifandwhentheydoso.

299. Unfortunately,bothSECTION27’sexperiencesandthemediareportsconfirmthat the provincial and district Departments of Education place significant andconsistentpressureonstaffatschoolsintheUmkhanyakudeDistrictnottospeaktoeitherthemediaorNGOsabouttheircomplaints.Thisisdespitethesestaffmembers’persistent attempts to complain through departmental channels.MrMthenjwa, ateacheratSisizakeleSpecialSchoolwhospokeoutabouttheconditionsattheschoolinlate2015,isreportedtohavesaid“hefelthislifeandjobwereatstake”.188TheDepartment appears to have deliberately revealed his identity publicly, to placepressureonhim.SADTUandamemberoftheKZNprovinciallegislaturehavestronglycondemned these forms of intimidation against ‘whistleblowers’ such as MrMthenjwa.

“It’s wrong and against the law for the Department to expose an individual who raisesconcerns about wrongdoing. It exposes him to victimisation, instead of focusing oninvestigatingtheconcerns.Theyhaveputthateducatorinharm’swaynow.”LindaHlongwa-Madlala,memberofthePortfolioCommitteeforEducation,KZNProvincialLegislature189“Whenapersonand/oremployeeraisesconcernsabouttheappallingworkingconditionsintheirworkplaces,includingschools,suchpeopleneedtobeprotectedfrompossibleattackbymanagementortheircolleagues...“The issue now is, how do we protect the teacher from victimisation and attack by theemployerwhofailstodealwiththeconditionsattheirschool?This isbad...suchthattheteachercanendupapplyingforatransfer,orforconstructivedismissal,whichtheemployerwillhavetopaydearlyfor.It’sthelearnerswhosuffer,astheylosededicatedteachers.”NomarashiyaCaluza,KZNProvincialSecretary,SADTU190

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IX. CONCLUSION:THEFALSE‘GOODSTORY’NARRATIVEININCLUSIVEEDUCATION

300. KwaZulu-Natal is often lauded as pioneering success story in theimplementationof an inclusiveeducationprogramme in SouthAfrica, byboth theprovincialandthenationalDepartmentsofEducation.

301. Govender concludes that though some groundwork was made early in

implementingWhitePaper6inKZN,“allfactorsconsidered,theKZNDoE’sinclusiveeducationstoryemergesasa tragicwasteof resourcesanddisservice tochildren”Worryingly, he observes “a pattern of generalised indifference regarding inclusiveeducationasasystem-wideprogramme”,andconcludesthattheDepartmenthasa“questionableappreciationoftheconstitutionalrightofeverychildtoqualitypubliceducation”.191

302. Regrettably,thefindingsofthisreportconfirmGovender’sobservationthat

theeducationsystemisfailingchildrenwithdisabilitiesinKwaZulu-Natal,andthatalackofproactiveandsystemiceffortsonthepartofthenational,provincialandlocalDepartmentsofEducationarecontributingtothiscrisis.

303. Inactive and ineffective government structures – that often appear to be

occupied by government officials with either negative attitudes about inclusiveeducation, or simply a lack of expertise on inclusive education – result in schoolsreceivinginadequatesupport.Theresultisthatasystemthatisintendedtoincludechildren with disabilities and accommodate their barriers to learning ultimatelycompoundstheirsocialexclusion,replicatingitintheenvironmentofspecialandfull-serviceschoolsintheUmkhanyakudeDistrict.

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X. RECOMMENDATIONS Theserecommendationsshouldbereadwiththelistofeight‘core’recommendationslistedinthesectiononthe‘SummaryofRecommendations’above. A. GATHERINGACCURATEINFORMATION,ANDTRANSPARENTREPORTING

+ TheKwaZulu-NatalDepartmentofEducationshoulddevelopaturnaroundstrategyandplantoensuretheconstitutionally-requiredimprovementoftheconditionsandstateofspecialandfull-serviceandspecialschoolsintheUmkhanyakudeDistrictassoon as possible. This plan should provide the Department, schools, civil societyactors,DisabledPeoplesOrganisationsandthepublicwiththeaccurateinformationrequiredtofullyandeffectivelyensuretherealisationoftherightsoflearnerswithchildrenwithdisabilities;

+ ItisimperativethattheKwaZulu-NatalDepartmentofEducationhasaccesstoandmakesavailableup-to-dateinformationaboutthestateofeducationforlearnerswithdisabilities in the Umkhanyakude District, as elsewhere. This information mustincludedetailon,amongotherthings,budgetingandplanningfortheimprovementoftheinclusiveeducationsystemintheUmkhanyakudeDistrict;

+ Whenreportingonthenumberoflearnerswithdisabilitieswhoareoutofschoolinparticular, theDepartmentofBasic Education should exercise caution in ensuringthat it applies a clearly-stated definition of disability. The frequent publication ofinconsistentandhighnumbersofout-of-school learnersmakespolicyengagementdifficultforgovernmentdepartments,expertsandcivilsocietyorganisations;and

+ Reporting on the number of out-of-school learners with disabilities should wherepossible be segregated by specific disability and severity of disability, as well asincludinginformationonexistingwaitinglistsatpublicspecialschools.

B. MOBILISATIONOFCHILDRENOUTOFSCHOOL + UrgentCompliancewithWhitePaper6

There is an urgent need for the mobilisation of out-of-school children in theUmkhanyakude District, in terms of Inclusive Education White Paper 6, and theirplacementatappropriateschoolsthroughtheprocessesdetailedintheSIASpolicy.

+ EmergencyInterimPlanfortheUmkhanyakudeDistrict

SincemanychildrenwithdisabilitiesintheUmkhanyakudeDistricthavebeenlanguishingout of school for years, the KwaZulu-Natal Department of Education must make anemergencyinterimplantoprovideallchildrenwithsomeformofappropriateeducationwhile it is busy crafting short-, medium- and long-term goals to fully satisfy itsconstitutional,legislativeandpolicyobligations.

+ CapacitationoftheUmkhanyakudeDistrict-BasedSupportTeam

TheKwaZulu-NatalDepartmentofEducationmustequiptheUmkhanyakudeDistrict-BasedSupportTeam,includingprovidingitwiththesupportofspecialists,toperformallsupport functions required by policy and law to special and full-service schools. This

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should include capacity to audit schools in the district, in order to determine whichlearnerswhoarecurrentlyinschoolsareinappropriatelyplaced.

+ Continuous,consistentandconsultativeawarenesscampaignsThe KwaZulu-Natal Department of Education must work with the UmkhanyakudeDistrictDepartmentofEducationandDisabledPeople’sOrganisations throughout thedistricttoorganiseongoingandrepeatedawarenesscampaignsaboutschoolingforandtherightsofchildrenwithdisabilitieswithinSouthAfrica’s inclusiveeducationsystem.These awareness programmesmust be supplemented by extensivemedia campaigns,including billboard adverts, community radio and television messaging that is clearlyaccessiblethroughouttheUmkhanyakudeDistrict.Simplemessaging–thatchildrenwithdisabilitiescanbeeducated–mustbeused.

C. THEPROVISIONOFHIGH-SCHOOLEDUCATIONFORCHILDRENWITHDISABILITIES

+ Conversionofhighschoolstofull-serviceschools:

TheKwaZulu-NatalDepartmentofEducationmusturgentlyplanforandimplementa programme designed to convert additional high schools throughout theUmkhanyakudeDistrictintofull-serviceschools.Thisprocessshouldbeimplementedgradually,beginningimmediately,cognisantofthefactthateachyearthatpassesisan unconstitutional violation of the equal rights of children with disabilities toprogressthroughprimaryandsecondaryschoolsthatcaneffectivelyaccommodatetheirlearningneeds.

+ Assessingtheneedforhigh-schoolgradesinspecialschools:TheKwaZulu-NatalDepartmentofEducationmusturgentlyevaluatetheneedandpracticability of the inclusion of high-school grades at Intuthuko Special School,Sisizakele Special School and Khulani Special School. It cannot be assumed andaccepted that children with intellectual disabilities cannot progress throughsecondaryeducation.Theturnaroundstrategyandplanrecommendedbythisreportshouldmakerecommendationsinthisregard.

D. IMPROVINGTHECONDITIONSATSPECIALSCHOOLS The KwaZulu-Natal Department of Education should, as part of its turnaround plan andstrategy, plan for the improvement of conditions at Intuthuko Special School, SisizakeleSpecial School and Khulani Special School. Ensuring that the conditions at special schoolscomply with the requirements of the SIAS policy and the Special School Guidelines isabsolutelyessential,andapartofthegovernment’sconstitutionalobligationintermsoftherighttobasiceducation.The KwaZulu-Natal Department of Education’s report should consider the startlingconditionsdetailedinthisreport,includinginvestigations,findingsandrecommendationstoimproveuponthefollowingcircumstances:

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1. CurriculumDelivery:Generally,curriculaatspecialschoolsmustcomplywiththerequirement of flexibility in the SIAS policy. This requires flexibility of content,time, teachingmethods and assessments.Most pressingly, the following stepsmustbetaken:+ All teachers should be trained practically in the skill of curriculum

differentiation;+ Bothacademicandskillstrainingshouldbeincorporatedcomprehensivelyin

thecurriculum;and+ TheUmkhanyakudeDistrict-BasedSupportTeamandsubjectadvisersshould

beequippedtoprovideuniqueandspecificsupporttospecial-schoolstaff.Inthis regard, theUmkhanyakudeDistrict-Based SupportTeammust includememberswhoarepeoplewithdisabilities,includingcommunitymembers.

2. Post-Provisioning:+ Post-provisioningnormsforbotheducatorandnon-educatorstaff inspecial

andfull-serviceschoolsmustbecompletedthroughaconsultativeprocessandpublishedassoonaspossible,inlinewiththerequirementsoftheSIASpolicy;

+ TheKwaZulu-NatalDepartmentofEducationcannotcontinuetosimplynotevacancies in specialist positions in its annual reports, and must develop aturnaroundplantobudgetandfillallsuchvacancies;

+ Thepost-provisioningnormsshouldprovidespecialschoolswithautonomytoselect teachers with the skills that they require. In the absence of post-provisioning norms, the KwaZulu-Natal Department of Education shouldallowspecialschools, inconsultationwithDistrict-BasedSupportTeams, tomaketheirownappointments,throughtheirownselectionprocesses,inorderto ensure that teachers with the relevant expertise, skills and interest arehired;

+ Teachersrequireconstantandcomprehensivepracticaltraining,fundedbytheKwaZulu-Natal Department of Education, that will assist them in teachinglearnerswithdisabilities;

+ Additionalhousemothersshouldbetrainedindisabilityawareness,inclusiveeducationandbasicnursingskills,andimmediatelyemployedinhostelswherethereareshortages;and

+ Linesofconstantcommunicationbetweenparentsandhouseparentsmustbedeveloped tomaintain trust and foster accountability on thepart of houseparents. This may require house parents being provided with phones andairtimebytheKwaZulu-NatalDepartmentofEducation(orbeingpermittedtouseschoolphones)tocontactparentsregularlyinordertoupdatethemonthings happening to and with their children, including sickness, injury andacademicprogress.

3. Transport:inaccordancewiththeSpecialSchoolGuidelines,“specialschoolsmust

providetransportforalllearnerswhorequiretransporttoandfromschool”withina40-kilometreradiusoftheschool,andcannotcontinuetoprovidesuchtransportonlyonselectedroutes.Additionally:

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+ Noparentwhosechildattendsaspecialschoolshouldbecompelledtopaytransportfeesforthemselvesortheirchildren,justtogettheirchildrentofar-offspecialschoolsthattheirchildrenarecompelledtoattend;

+ InthespecificcaseofManguzi,whichisjustoutofthe40-kilometreradiusforSisizakele Special School, the Umkhanyakude District Department ofEducation should petition theKwaZulu-Natal Department of Education toallowfortransportbetweenManguziandSisizakeleSpecialSchooleveryday,becauseofthesignificantnumberofchildrenwithdisabilitieswhoseaccesstoquality education would be significantly increased by this availability. ThisshouldbedoneafterconsultingSiphilisaIsizwe;

+ The KwaZulu-Natal Department of Education, in the adaptation of itsprovincialtransportpolicyincompliancewiththeNationalLearnerTransportPolicy,andafterconsultationwithDisabledPeoplesOrganisationsandvariousdisability-sectorrepresentatives,shouldconsider:

• Duringschoolholidays,theprovisionofoccasionaltransporthomeforchildrenlivinginspecial-schoolhostels;and

• Duringtermtime,theprovisionofoccasionaltransporttoschoolsforparentstovisittheirchildrenwhoarelivinginspecial-schoolhostels.

4. BasicServices

+ TheKwaZulu-NatalDepartmentofEducation’sinvestigationofspecialschoolsshould

includeaninvestigationintotheavailabilityofbasicserviceslistedintheMinimumUniformNorms and Standards for Infrastructure, including in particularwater andelectricity.

+ Particular focusshouldbeplacedontheaccountsdetailed inthisreportofseriouswater shortages andmalfunctioning at both Sisizakele Special School and KhulaniSpecialSchool;

+ The KwaZulu-Natal Department of Education must ensure, in consultation withDisabledPeople’sOrganisations,principalsofspecialschools,andschoolgoverningbodies of special schools, that its implementation plan for theMinimumUniformNormsandStandardsforInfrastructureaccommodatetheparticularandadditionalneeds of special schools. These needs necessarily include, for example, additionalbudget for water and electricity, because the majority of learners live on schoolpremisesinhostelsthroughouttheyear.

5. FundingandFees

+ ThenationalDepartmentofBasic Education should investigate theHumanRights

Watch’sfindingthat“nospecialschoolsarecurrentlylistedinany‘no-fee’schoolslistproducedbythegovernment”;

+ Nochildattendingaspecialschoolshouldhavetopayschool,transport,hosteloranyotherfeesasarequirementfortheiradmissionandattendance;

+ TheKwaZulu-NatalDepartmentof Education should review the sufficiency of thefundingitprovidestospecialschools,includingthoseintheUmkhanyakudeDistrict,inlightofitsassessmentofthecurrentconditionsinspecialschoolsintermsofthisreport’srecommendations,andmoregenerally.Thisreviewshouldbe informedby

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budget experts, experts in inclusive education, and human rights lawyers withexpertise in the state’s constitutional obligations in terms of the rights to basiceducationandequality.

E. CHILDABUSE,NEGLECT,MALTREATMENTANDCORPORALPUNISHMENT,ANDHOSTEL

CONDITIONS1. Abuse,Neglect,MaltreatmentandCorporalPunishment

Theproblemsofabuse,neglect,maltreatmentandcorporalpunishmentoccurnationwide,andmediareportsindicatethattheyareamajorconcernintheUmkhanyakudeDistrictandotherdistrictsinKwaZulu-Natal.Crucialandtargetinterventionsbyalllevelsofgovernmentarethereforerequired:

+ Parliament:ParliamentmustconsidertheamendmentoftheChildren’sActtoallowfortheminimumnormsthatapplytoChildYouthCareCentrestoapplytospecial-schoolhostels;

+ NationalDepartmentofBasicEducation:TheDepartmentofBasicEducationmustensure compliance with its own recommendation, presented to the PortfolioCommitteeforBasicEducationinMarch2016,that“itiscriticalthattheHostelPolicyfor special schools is finalised to address all issues pertaining to accessibility offacilities,supervision,safety,etc”.Thisprocessisextremelyurgent.

+ Provincial Department: In the absence of a national policy, the KwaZulu-NatalDepartmentofEducationmusttakeimmediatestepstoformaplantocombatabuse,neglect,maltreatmentandcorporalpunishmentofchildrenwithdisabilitiesatspecialschools. The current situation is unconscionable and unlawful, and cannot bepermittedtopersistevenfortheremainderofthe2016schoolyear;

+ District-LevelMeasures:TheUmkhanyakudeDistrictDepartmentofEducationandtheUmkhanyakudeDistrict-BasedSupportTeaminparticularmustensuretrainingofalleducatorandnon-educatorstaffatspecialschools,includinghostelstaff,abouttheprohibitiononcorporalpunishmentandtherightsofchildren;and

+ ParliamentaryAccountability:TheNationalandKwaZulu-NatalLegislatures’PortfolioCommitteeonEducationshould requirebi-annual reports fromtheKwaZulu-NatalDepartment of Education on child abuse, neglect, maltreatment and corporalpunishment of children with disabilities in special-school hostels in theUmkhanyakudeDistrictandthroughouttheprovince.

2. ConditionsinHostels

Hostelconditionsatspecialschoolsareacauseforseriousconcern.Urgentstepsmustbetakentocompileafullreviewoftheconditionsinspecial-schoolhostels,andaplanmustbeputinplacetoassessandredressreportsofcorporalpunishment,abuseandneglect.

+ Afterthisinvestigation,theKwaZulu-NatalDepartmentofEducationandtheUmkhanyakude Department of Education must, where appropriate, takedisciplinarystepsand/orlaycriminalchargesagainststaffguiltyofchildabuseorcorporalpunishment;and

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+ Afterthisinvestigation,theKwaZulu-NatalDepartmentofEducationandtheUmkhanyakude Department of Education must, where appropriate, makerecommendationsaboutthelivingconditionsinhostels–inparticular,specificcomplaintshighlightedinthisreportaboutchildrensleepingonthefloorandonmattresses bought by their parents; children eating on the floor or notbeingprovidedwithfood;childrenregularlybeingallowedtobecomesickorinjuredwithoutappropriatemedicalattentionorinformingtheirparents;andgeneralunhygienicconditionsmustbeinvestigatedandreportedon.

F. IMPROVINGTHECONDITIONSATFULL-SERVICESCHOOLS TheKwaZulu-NatalDepartmentofEducationshouldurgentlydeviseaturnaroundstrategyandplantoensuretheimprovementoftheunlawfulconditionsinthe11full-serviceschoolsin the Umkhanyakude District. The Department’s report should consider the startlingconditionsdetailedinthisreport,includinginvestigations,findingsandrecommendationstoimproveuponthefollowingconditions:

1. Infrastructure,universaldesignandbasicservices+ The KwaZulu-Natal Department of Education should ensure that all full-service

schoolshaveLearnerSupportCentresbuiltwithintwoyearsoftheirdesignationasfull-serviceschools.TheschoolsinthisreportwhodonotyethaveLearnerSupportCentresshouldhavethembuiltassoonasispracticable;

+ Fundingshouldbeprovidedtofull-serviceschoolseachyearbytheKwaZulu-NatalDepartmentofEducationfortheoperationandupkeepofLearnerSupportCentresincludingfurniture,computers,kitchenequipment,waterandelectricity;

+ TocomplywiththerequirementsoftheSchoolsActandtheMinimumUniformNormsandStandardsforInfrastructure,allfull-serviceschools’infrastructuremustcomplywiththeprinciplesof‘universaldesign’;

+ TheKwaZulu-NatalDepartmentofEducation’sturnaroundstrategyandplanforfull-serviceschoolssuggestedinthisreportshould,inconsultationwithDisabledPeoplesOrganisations and School Governing Bodies, evaluate classrooms, halls, entrances,stairs,ramps,courtyards,toilets,furniture,recreationfacilitiesandallotherphysicalspaces at full-service schools, to ensure that they comply with the standards ofuniversal design and that they “reasonably accommodate” the requirements oflearnersattheschool.

2. Funding

+ The KwaZulu-Natal Department of Education must provide a documentedexplanationdetailingthemethodbywhichadditionalfundingforinclusiveeducationisprovidedtospecificfull-serviceschools;

+ The KwaZulu-Natal Department of Education must provide sufficient financialsupporttofull-serviceschoolstocaterforatleastthefollowing:• TheoperationofLearnerSupportCentres;• Thehiringofadditionalprofessionalstaff;• The adequate compensation of Learner Support Assistants at a level which

acknowledgestheirskillandimportance;

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• Thepaymentoftravelandaccommodationfees,wherenecessary,forallteacherstoattendtrainingoninclusiveeducation,includingcurriculumdifferentiation;

• Theprovisionofassistivedevicesforlearners;and• Thepurchaseofotherequipmentand/ormaterialsnecessaryforthereasonable

accommodationofchildrenwithdisabilitiesattheschool.+ TheKwaZulu-NatalDepartmentofEducationmustprovidethisadditionalfundingto

full-serviceschoolstimeously,reliablyandannually.

3. Post-provisioning,LearnerSupportAssistants,andLearnerSupportEducators

+ Post-provisioningnormsforbotheducatorandnon-educatorstaffinspecialandfull-serviceschoolsmustbecompletedthroughaconsultativeprocessandpublishedassoonaspossible,inlinewiththerequirementsoftheSIASpolicy;

+ The post-provisioning norms should provide full-service schools with a significantdegreeofautonomytoselectteacherswiththeskillsthattheyrequire.Intheabsenceof post-provisioning norms, the KwaZulu-Natal Department of Education shouldallowfullserviceschools,inconsultationwithDistrict-BasedSupportTeams,tomaketheirownappointments,throughtheirownselectionprocesses, inordertoensurethatteacherswiththerelevantexpertise,skillsandinterestarehired;

+ All teachers require constant and comprehensive practical training funded by theKwaZulu-NatalDepartmentofEducation thatwill assist them in teaching learnerswithdisabilities;and

+ Anintensiveandcomprehensivetrainingworkshoponpracticalaspectsofinclusiveeducationpolicyimplementation,disabilityawarenessandcurriculumdifferentiationshouldbemadecompulsoryforteachersandlearnersupportassistantsatfull-serviceschools in theUmkhanyakude District. If necessary, to provide for the degree of‘catch-up’trainingneeded,thiscouldtakeplaceoveraschoolholidayperiod;and

+ Theturnaroundstrategyandplanforfull-serviceschoolsrecommendedbythisreportshouldincludeinvestigationandrecommendationonthenumberofLearnerSupportEducatorsandLearnerSupportAssistantsthatshouldbepermanentlypresentat,oravailable to,eachschoolandcircuitof schools in theUmkhanyakudeDistrict. It isrecommended thateach shouldhaveat least twoLearner SupportAssistants, andeachcircuitshouldhaveatleastonepermanent,dedicatedLearnerSupportEducator.

+ TheevaluationofLearnerSupportEducatorsandLearnerSupportAssistantsshouldincludeanevaluationoftheirlevelofremuneration,andadeterminationwhetherthisisanobstacletoemploymentandretentionofthesecrucialpositions;and

+ Learner Support Assistants should be remunerated in accordance with theirqualificationsandexperience.All LearnerSupportAssistants shouldbe required tostudytowardsqualifyingaseducatorsspecialisingininclusiveeducation,andshouldbeassistedfinancially,practicallyandinanyotherwaynecessarybytheschool–andbythedistrict,provincialandnationalDepartmentsofEducation–inachievingthisqualification.When they have qualified as teachers, all efforts should bemade toretainthematthesameschool,oranotherfull-serviceschool,aseitherteachersorLearnerSupportAssistants,remuneratedinaccordancewiththeirqualifications.

4. CurriculumDelivery

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LevelsofcurriculumdeliverymustmeetthestandardssetoutintheSIASpolicyandtheFull-ServiceSchoolGuidelines.Thefollowingprinciplesarecrucial:

+ Flexibility:theapproachtothecurriculum,includingteachingpedagogyandcontent,remedial instruction and assessment, must be flexible. Flexibility includesrequirementsforcurriculumdifferentiationandindividualisedsupport.

+ CurriculumDifferentiation:“Inclusiveschoolsshouldknowhowtodifferentiatethecurriculumanduseavarietyofapproaches.”

+ Individualised Support: It is a ‘hallmark’ of full-service schools that they provide“individualisedinstructionandsupport”.

Toensurethat teacherscanbeequippedtoeffectively teachclassesthat include learnerswithawiderangeofbarrierstolearning,thefollowingmeasuresmustbetaken:

+ TheUmkhanyakudeDistrict-BasedSupportTeam,ledbyaLearnerSupportEducator,shouldensurethattheyvisiteachfull-serviceschoolatleastonceamonth,withtheprimary objective of providing teacherswith support in developing and improvingcurriculumdifferentiationskillsandindividualsupportplans;

+ Allteachersatfull-serviceschoolsandallLearnerSupportEducatorsmustbetrainedincurriculumdifferentiationandtheproductionofindividualisedsupportplans,andbeabletocontacttheDistrict-BasedSupportTeamandaLearnerSupportEducatorforadviceonacontinuousandadhocbasis;

+ InadditiontothetermlyvisitscontemplatedfortheUmkhanyakudeDistrict-BasedSupportTeam, thesupportteammustrandomlyvisit full-serviceschoolsandsit inclassesinordertoassessattemptsatcurriculumdifferentiation,andidentifywhereimprovementscanbemadethroughtheinterventionoftheSupportTeam;

+ The production of individualised support plans, and the ability to differentiatecurriculum,shouldformpartoftheperformanceindicatorsofeachteacheratafull-serviceschool,andtheirperformanceshouldbeevaluatedbasedontheproductionof these plans under the direct supervision of School-Based Support Teams. Thepurpose of this is to identify where assistance can be provided to improveperformance, rather than to takeanypunitiveactionatall against low-performingteachers,onthisaspect;

+ EachchildwhohasbeenidentifiedthroughtheSIASpolicyashavinglow,moderateorhigh supportneedsmusthavean individualised supportplan that is scrutinisedalongsidethatchild’stermlyreportcards,andmadeavailabletothechild’steachersandparentsattheirrequest;

+ Where no (or minimal) improvement in the education of a child with barriers tolearning is recorded over a full year, then the intervention of theUmkhanyakudeDistrict-BasedSupportTeamshouldbecompulsory.Childrenwithbarrierstolearningcannot be allowed to repeat grades, or simply be pushed forward without clearimprovement,withouttheinterventionoftheUmkhanyakudeDistrict-BasedSupportTeam;and

+ The Umkhanyakude District-Based Support Team should be able to call on thesupportofprofessionalsandskillsthattheylackfromtheKwaZulu-NatalDepartmentofEducation,whentheir interventionsfailtoachieveimprovements inthelevelofeducationofchildrenwithbarrierstolearningatfull-serviceschools.

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5. Transport

Allchildrenwithbarrierstolearningwhoarereferredtofull-serviceschoolsthroughtheSIASpolicyhavearighttohaveaccesstoappropriatetransporttoandfromschooldaily,fundedby KwaZulu-Natal Department of Education. To ensure that this is made a reality, thefollowingstepsarerecommended:

+ The KwaZulu-Natal Department of Education, in the amendment of its transportpolicytobringit inlinewiththeNationalLearnerTransportPolicy,shouldtaketheopportunitytoexpandupontheFull-ServiceSchoolGuidelinesprovisionsonaccesstotransport for learners. These amendmentsmust reflect a clear plan about howallchildrenwith learning barrierswho have been referred to full-service schoolswillreceiveDepartment-fundedtransporttoandfromschooleachday;

+ TheKwaZulu-NatalDepartmentofEducationshouldadoptaninterpretationoftheNationalLearnerTransportPolicywhichunderstandsthatdeterminationsof“needylearner” and “nearest appropriate school” must acknowledge that the nearestappropriateschoolmaybefarawayforlearnerswithbarrierstolearning,andthatallsuchlearnersshouldbeassumedtobe“needy”;

+ Eitherwithinitslearnertransportbudgetorwithinitsinclusiveeducationbudget,theKwaZulu-NatalDepartmentofEducationmustbudgetfortheadditionalcoststhatwillaccrueasaresultoftheprovisionoftransporttolearnerswithbarrierstolearningwhowillhavetotraveltofull-serviceschoolsfrommultipleandfar-offdestinationsbecauseofthelongdistancesbetweenfull-serviceschools;

+ Asaninterimmeasure,whilethispolicyprocessistakingplace,theKwaZulu-NatalDepartmentofEducationmustprovideschoolswithbusestotransportlearnerswithlearningbarrierswhentheylivemorethanfivekilometresawayfromthefull-serviceschooltheyattend,and/orprovideadditionalfundingtofull-serviceschoolstocoverthetransportcostsoftheselearnerstoandfromschooleachday;

+ All KwaZulu-Natal Department of Education-provided or -funded transport mustmeet the standardsof ‘universaldesign’; andmoreparticularly, accommodate theneeds of learners using that transport. Examples of such accommodations includespecialseatstoallowlearnerstositupstraight,spacetostorewheelchairs,anddriverswhocancommunicatewithhearing-impairedchildrenandhelpchildrenwithphysicaldisabilitiesgetonandoffvehicles,andsitcomfortably;and

+ TheKwaZulu-NatalDepartmentofEducationshouldconsiderthatdroppingchildrenwith disabilities off at central locations will often defeat the purpose ofaccommodating their disabilities on those vehicles, and render them vulnerableduringtheremainderoftheirtrip.

G. CONSOLIDATINGGOVERNANCESTRUCTURESTOIMPROVETHEINCLUSIVEEDUCATIONSYSTEM

Inadditiontothespecificrecommendationsmadeforclearlegislativeandpolicyformulationandimplementationactionsonthepartofgovernmentalstructures,thefollowinggeneralrecommendationsaremade:

+ KwaZulu-NatalDepartmentofEducation:thereneedstobeareversalofthegrowing“patternofgeneralisedindifferenceregardinginclusiveeducationasasystem-wide

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programme”inKwazulu-Natal.Allvacantpostsintheinclusiveeducationdirectoratemustbefilledassoonaspossible,andtheinclusiveeducationdirectorateshouldnotbe sidelined or marginalised in major departmental campaigns and operations.Inclusive education is just education; and all educational issues have bearing onchildrenwithbarrierstolearning.

+ Umkhanyakude District Department of Education: the district Department ofEducationmusttakeresponsibilityforequippingtheUmkhanyakudeDistrict-BasedSupport Team with the capacity, in terms of human and financial resources, tosupportitsefficientfunctioning.Inaddition,thedistrictmusttakeresponsibilityformonitoringcurriculumdeliverytochildrenwithbarrierstolearninganddisabilitiesinthedistrict.

+ District-BasedSupportTeam:District-BasedSupportTeamshaveacentralroleintheoperation of inclusive education systems. In addition to their role in terms of thescreening, identificationandassessmentof learners, ‘support’ isoneofthisteam’sprimaryrolesthathasbeensorelylacking.TheprimaryfocusintheUmkhanyakudeDistrict-BasedSupportTeammustbetosupportSchool-BasedSupportTeamsandteachers in producing individualised support plans for learners, anddifferentiatingcurriculaintheirclasses.

+ School-BasedSupportTeams:MembersofSchool-BasedSupportTeamsmustberelievedofteachingtime,wherepossible,toallowthemtoeffectivelyperformtheirrolesasmembersofSchool-BasedSupportTeams.Inadditiontoongoingpracticaltraining,oneofthemajorthingsthatcanbedonetosupportSchool-BasedSupportTeamsisthereforetheemploymentofadditionalteachingstaff,andtheincreasedallocationofeducatorandnon-educatorstaff,atspecialandfull-serviceschools.

+ SchoolGoverningBodies:OftenabsentfromthediscussionsSECTION27engagedinwithprincipalsandteachersweremeaningfulcontributionsfromSchoolGoverningBodies.Thefollowingisrecommended:• TheKwaZulu-NatalDepartmentofEducationandtheUmkhanyakudeDistrict

DepartmentofEducationshouldinvestigatetheactivityandperformanceofSGBsatfull-serviceandspecialschoolsinthedistrict;

• ThisinvestigationshouldincludeadeterminationofSGBsareenforcingthespecialprovisionsoftheSchoolsActallowingSGBs(andrequiringthem,inthecontextofspecialschools)toco-opt“apersonorpersonswithexpertiseregardingthespecialeducationneedsofsuchlearners”,aswellorganisationsofparentsoflearnerswithspecialeducationneeds;organisationsofpeoplewithdisabilitiesandpeoplewithdisabilities;

• ThisinvestigationshouldmakerecommendationsabouthowtheSGBs,inadditionto their ‘ordinary’ functions, could interact with the Umkhanyakude District-Based Support Team and School-Based Support Teams to improve learnerperformanceandprotecttherightsoflearners;

• Finally,thisinvestigationshoulddeterminewhetherSGBsrequirefinancialsupporttoallowthemtomeet,giventheextremelylargedistancesbetweenparent’shomesandspecialandfull-serviceschools;and

• SGBsrequireconstantandcomprehensivepracticaltrainingfundedbytheKwaZulu-NatalDepartmentofEducationthatwillassisttheminfulfillingtheirdutieseffectively.SGBmemberscouldpossiblybeincludedinteachertraining

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andmeetingswiththeUmkhanyakudeDistrict-BasedSupportTeam,whereappropriate.

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XI. ENDNOTESANDANNEXURES “AnnexureA”ManguziCreche

“AnnexureB”ListofSchools

“AnnexureC”Non-ExhaustivelistofDPOsandCSOstoconsult.

“AnnexureD”ParenzeeReport?BudlenderReport?

1Thisgroupincludedtwototallyblindpeople,JusticeZakYacoobandSLSJmemberSilomoKhumalo.2MuhammadZakariaSuleman&JeanElphick,DailyMaverick(4December2013),‘KnowYourConstitution:Peoplewithdisabilities–hidden,butnotunheard’availableathttp://www.dailymaverick.co.za/article/2013-12-04-know-your-constitution-people-with-disabilities-hidden-but-not-unheard/#.VqYIqVN96b8.3Id.4Thebulkoftheinterviewswereheldthroughout2014,inMay2015,August2015andNovember2015.5SECTION27Statement(11September2015),‘SECTION27urgesKZNDoEtotakeactionondisabledschoolreports’,availableathttp://section27.org.za/2015/09/section27-urges-KZNDoE-to-take-action-on-disabled-school-reports/.6See‘AnnexureA’formoredetailsontheManguziCreche.7See‘AnnexureB’foralistofthefull-serviceandspecialschoolsvisited.8Id.9Notallissuesdiscussedwithschoolstaffandparentsappearinthisreport,thoughanattempthasbeenmadetoensurethattheissuesraisedrepeatedly–orstressedasveryimportant,evenonce–arecovered.10KwaZulu-NatalDepartmentofEducation,‘AnnualPerformancePlan2011/12’,p79.11KwaZulu-NatalDepartmentofEducation&MietAfrica,‘SpecialSchoolsSurveyReport’(24January2011).12KwaZulu-NatalDepartmentofEducation&MietAfrica,‘SpecialSchoolsasResourceCentresPilotProject:SpecialSchoolAuditReport’(March2011).13Formoreinformation,seetheofficialwebsiteoftheUmkhanyakudeDistrictMunicipality:http://ukdm.gov.za/index.php/en/andhttp://www.localgovernment.co.za/districts/view/21/uMkhanyakude-District-Municipality.14PMaclaren,BZungu&SRule,‘SituationalAnalysisonDisabilityinJozini-UmkhanyakudeDistrict#27,KwaZulu-Natal’(March2002),p16[SituationalAnalysis].OnfilewithSECTION27.15DepartmentofSocialDevelopment;DepartmentofWomen,ChildrenandPeoplewithDisabilities;UNICEF‘ChildrenwithDisabilitiesinSouthAfrica:ASituationAnalysis2001-2011’(2012),availableathttp://www.unicef.org/southafrica/SAF_resources_sitandisability.pdf,p10.16SpecialSchoolsasResourceCentresPilotProject:SpecialSchoolAuditReportaboven12,p29.17SituationalAnalysisaboven14,p19.18Id.19Id,p19-20.20DepartmentofBasicEducation,‘GuidelinestoEnsureQualityEducationandSupportinSpecialSchoolsandSpecialSchoolResourceCentres’(2014),p1[SpecialSchoolsGuidelines].21DepartmentofBasicEducation,‘ReportontheImplementationofEducationWhitePaper6onInclusiveEducation–AnOverviewforthePeriod:2013-2015’,presentedtotheParliamentaryPortfolioCommitteeonBasicEducationon8March2016,availableathttps://pmg.org.za/committee-meeting/22150/,p48.22SituationalAnalysisaboven14,p32.23Id,p33.24Id,p34.25Id,Appendix1A,‘Informationontypesofdisabilitiesandprevalence’,p4.26UmkhanyakudeDistrictMunicipality,‘UmkhanyakudeDistrictMunicipalityAnnualReport2013/2014FY’,p37.

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27PParenzee,‘BriefOverviewofresourceallocation/expenditureonspecialneedseducation:focusonKZNDepartmentofEducation&SisizakeleSpecialNeedsSchool’(2014),p3.OnfilewithSECTION27.28Id.29Id,p14.30Id.31DBudlender,‘BudgetingforRealisingtheRighttoBasicEducationforChildrenwithDisabilitiesinSouthAfrica’(2015),p23,availableathttp://pmg-assets.s3-website-eu-west-1.amazonaws.com/160308leftinthedarkannexureC.pdf.32Id,p9.33Id,p26.34Id,p35.35Id,p38.36DBEProgressReportaboven21.37Constitution,section29.38Constitution,section9.39Constitution,section238.40DeVosNOandOthersvMinisterofJusticeAndConstitutionalDevelopmentandOthers(CCT150/14)[2015]ZACC21;2015(2)SACR217(CC);2015(9)BCLR1026(CC)(26June2015),availableathttp://www.saflii.org/za/cases/ZACC/2015/21.html.41SouthAfricanSchoolsActNo.84of1996,section12(4).42MECforEducation:Kwazulu-NatalandOthersvPillay(CCT51/06)[2007]ZACC21;2008(1)SA474(CC);2008(2)BCLR99(CC)(5October2007),availableathttp://www.saflii.org/za/cases/ZACC/2007/21.htmlPillay;LettieHazelOortmanvThomasAquinasPrivateSchool(EqualityCourt,Witbank)CaseNo1:2010.43LettieHazelOortmanvThomasAquinasPrivateSchool(EqualityCourt,Witbank)CaseNo1:2010.44SouthAfricanSchoolsActNo.84of1996,section12(4).45SECTION27lettertoKZNDoEdated29September2014.Onfile.46DBEProgressReportaboven21,p17.47SpecialSchoolSurveyReportaboven11,p17.48SpecialSchoolsasResourceCentresPilotProjectaboven12,p37.49TFHodgson&SKhumalo,‘LeftInTheDark:FailuretoProvideAccesstoQualityEducationtoBlindandPartiallySightedLearnersinSouthAfrica’(2015),availableathttp://www.sancb.org.za/sites/default/files/S27-left-in-the-dark-2015-accessible.pdf[LeftintheDarkReport].50Id.51KwaZulu-NatalDepartmentofEducation,‘SpeakingNotesforMECforEducationinKZN,MrSenzoMchunu,ontheOccasionoftheOfficialHandoverofProjectandSod-TurningEventatKhulaniSpecialSchoolinUmkhanyakude’(8June2012,KhulaniSpecialSchool),availableathttp://www.kzneducation.gov.za/Portals/0/speeches/2012/Khulani%20Special%20School.pdf. 52SituationalAnalysisaboven14.53EmailcorrespondencewithLeratoJood,principalofSisizakeleSpecialSchool,2014.54CMdletshe,‘NokuphilajetsouttotheSpecialOlympics’(17June2011),availableathttp://www.sowetanlive.co.za/news/2011/06/17/nokuphila-jets-out-to-the-special-olympics-in-greece.55Seenote51above.56KwaZulu-NatalDepartmentofEducation‘AnnualReport2014/15’.57SpecialSchoolSurveyReportaboven11,p4.Althoughthissurveyusestheterm“severelymentallyhandicapped”.58SpecialSchoolsGuidelinesaboven20,p6.59Id,p7.60Id,p6.61DepartmentofBasicEducation,‘PolicyonScreening,Identification,AssessmentandSupport’(2014),pix.62DBEProgressReportaboven21,p34[SIASPolicy].63DepartmentofBasicEducation,‘EducationWhitePaper6–SpecialNeedsEducation–BuildinganInclusiveEducationandTrainingSystem’(2001),p31[WhitePaper6].64CNdaliso,‘DisabledKZNpupilsbeatenatschool’(4September2015),availableathttp://www.iol.co.za/news/crime-courts/disabled-kzn-pupils-beaten-at-school-1911024.65DepartmentofBasicEducationwebsite,availableathttp://www.education.gov.za/Curriculum/AnnualNationalAssessment.aspx.66Ndalisoaboven64.

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67WhitePaper6.68Id.69SIASPolicyaboven61.70SpecialSchoolsGuidelinesaboven20,p10.71Id.72Id,p8.73Id,p9.74Id.75UnitedNationsConventionontheRightsofPersonswithDisabilities(2007)[UNCRPD],Article24(3)(e),availableathttp://www.un.org/disabilities/documents/convention/convoptprot-e.pdf.76LeftintheDarkReportaboven49.77SIASPolicyaboven61,p20.78Idinfull:“Post-provisioningnormsandstandardswillmakeprovisionforallcategoriesofstaffrequiredinaninclusiveeducationsystem,includingitinerantlearningsupport,therapeuticandpsycho-socialsupportprofessionals,aswellasteacherandclassassistants,therapyassistants,technicians,interpretersandfacilitators.”79Id,pix.80SpecialSchoolsGuidelinesaboven20,p10.81Id,p14.82Id,p13.83Id.84SIASPolicyaboven61,p16.85LGovender,‘Buildinganinclusivesystemofeducationandtraining’(6June2014),availableathttp://m.news24.com/news24/Archives/Witness/BUILDING-an-inclusive-system-of-education-and-training-20150430.86SIASPolicyaboven61,p11.87Id,p16.88Id,p14.89Id,p15.90Id,p16.91DBEProgressReportaboven21,p43.92UNCRPD,Article24(4).93MazibukoandOthersvCityofJohannesburgandOthers(CCT39/09)[2009]ZACC28;2010(3)BCLR239(CC);2010(4)SA1(CC)(8October2009),paras50-70,availableat http://www.saflii.org/za/cases/ZACC/2009/28.html.94PHarper,‘Hostelhellfordisabledchildren’(20September2015),availableathttp://city-press.news24.com/News/Hostel-hell-for-disabled-children-20150919.95DBEProgressReportabove21,p51.96DepartmentofBasicEducation,NationalLearnerTransportPolicy(2015),p25,s3.9.97Idp14,s1.3.98Idp22,s3.3.1.99Idp25,s3.9.100SpecialSchoolGuidelines,p18.101Id.102DepartmentofBasicEducationPresentationtoParliamentaryPortfolioCommitteeonBasicEducation(8September2015),availableathttps://pmg.org.za/committee-meeting/21467/.103SpecialSchoolGuidelines,p18.104TripartiteSteeringCommitteeandAnothervMinisterofBasicEducationandOthers(1830/2015)[2015]ZAECGHC67;2015(5)SA107(ECG);[2015]3AllSA718(ECG)(25June2015),availableathttp://www.saflii.org/za/cases/ZAECGHC/2015/67.html.105Id.106DBEProgressReportaboven21.107Harperaboven94.108Id.109Id.110ChristianEducationSouthAfricavMinisterofEducation(CCT4/00)[2000]ZACC11;2000(4)SA757;2000(10)BCLR1051(18August2000),availableathttp://www.saflii.org/za/cases/ZACC/2000/11.html.

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111Constitution,section28(1)(d).112UNCRPDArticles16,23(3),Preamble(q).113Children’sAct38of2005,section2(b).114Idss191-212.115SIASPolicyaboven61,s5(2)(b),p5.116SpecialSchoolGuidelines,p16.117Id.118Id.119DBEProgressReportaboven21.120Constitutionss12,p28.121CNdalisoaboven64.122RegulationsRelatingtoMinimumUniformNormsandStandardsforPublicSchoolInfrastructure,GovernmentNoticeR920inGovernmentGazette37081of29November2013,norms4(1)(b)(ii)readwith4(3)(c).123Id,Norm11(1).124BoththePreambletotheMinimumUniformNormsandStandardsforPublicSchoolInfrastructureandRegulation18giveastrongindicationthattheparticularneedsofpeoplewithdisabilitiesshouldbeconsideredintheinterpretationoftheNorms.125HumanRightsWatch,‘ComplicitinExclusion–SouthAfrica’sFailuretoGuaranteeanInclusiveEducationforChildrenwithDisabilities’(August2015),availableathttps://www.hrw.org/sites/default/files/report_pdf/southafrica0815_4up.pdf,p24[ComplicitinExclusion].126DBEProgressReportaboven21,p45.127Id.128WhitePaper6,p22.129Id.130DepartmentofBasicEducation,‘GuidelinesforFull-Service/InclusiveSchools’(2010),Preamble[FSGuidelines].131Id,p9-10.132SIASPolicyaboven61,p20,s18.133FSGuidelinesatp7.134WhitePaper6atp22.135FSGuidelines,p1.136Id,p8.137SeeforexampleFSGuidelinesatp10s3.3.13.138Id,p25s8.1.139DBEProgressReportaboven21,p17.140UNCRPDArticle2(b).141MinimumUniformNormsandStandardsforPublicSchoolInfrastructureaboven122.142FSGuidelines,p37s12.1.2.143Id,p3.144Govenderaboven85.145FSGuidelines,p37.146SchoolsAct,s12(5).147Id.148BasicEducationForAllandOthersvMinisterofBasicEducationandOthers(23949/14)[2014]ZAGPPHC251;2014(4)SA274(GP);[2014]3AllSA56(GP);2014(9)BCLR1039(GP)(5May2014),para43,availableathttp://www.saflii.org/za/cases/ZAGPPHC/2014/251.html.149DBEProgressReportaboven21.150WhitePaper6,p37.151SIASPolicyaboven61,p20.152Idinfull:“Post-provisioningnormsandstandardswillmakeprovisionforallcategoriesofstaffrequiredinaninclusive education system, including itinerant learning support, therapeutic and psycho-social supportprofessionals, as well as teacher and class assistants, therapy assistants, technicians, interpreters andfacilitators.”153FSGuidelines,p33s10.1.154Govenderaboven85.155Id.referredtobyGovenderinthisarticleinthecontextofKZNas‘pupilsupportassistants’.

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156SIASPolicy,p20,s19.157Id,referredtointhisarticlebyGovenderasa‘pupilsupporteducator’.158FSGuidelines,p21s7.1.3.159Id,p23s7.2.3.ii.160Id,pi.Althoughthissectionrefersto“LearningSupportTeacher”,ifitisreadwithsectioniiitisclearthatnodistinctionismadebetween‘LearningSupportTeacher’and‘LearningSupportEducator’.Thephrase‘LearningSupportTeacher’isnotusedordefinedanywhereelseintheguidelinesortheSIASpolicy.161DefinedintheSIASpolicyatpviii:

“Curriculumdifferentiation–Curriculumdifferentiationisakeystrategyforrespondingtotheneedsoflearnerswithdiverselearningstylesandneeds.Itinvolvesprocessesofmodifying,changing,adapting,extendingandvaryingteachingmethodologies,teachingstrategies,assessmentstrategiesandthecontentofthecurriculum.Ittakesintoaccountlearners’levelsoffunctioning,interestsandbackgrounds.Curriculumdifferentiationcanbedoneatthelevelofcontent,teachingmethodologies,assessmentandlearningenvironment.”

162SIASPolicy,p8.163FSGuidelines,p29,s9.1.164Id,p29,s9.2.165Id,p30ss9.4.5.and9.5.166DBEProgressReportaboven21,p51.167FSGuidelines,p10.168Id,p39.169Id,p15,s4.2.3.170Id,p39.171SIASpolicy,p38,s11(1).172Id,p34,s34(13).173Id,p32.174DepartmentofBasicEducation,‘ConceptualandOperationalGuidelinesfortheImplementationofInclusiveEducation:District-BasedSupportTeams’(June2005),p6[DBSTGuidelines].175Id,p20.176SpecialSchoolGuidelines,Annexure1,p24-5.177SIASPolicy,definitionssection.178Id.179SeegenerallyFSGuidelines,p21-3.180SIASpolicy,p29-30.181Id.182Id.183FSGuidelines,p23.184DBEProgressReportaboven21,p44-5.185ComplicitinExclusionaboven124,p60.186Id.187SIASPolicy,pp12-13,38.188Ndalisoaboven64.189Id.190Id.191Govenderaboven85.