Episodes
Tuesday Apr 14, 2020
Regression, Compensatory Education, & Quarantine
Tuesday Apr 14, 2020
Tuesday Apr 14, 2020
One of the many populations of individuals directly negatively impacted by the current quarantine is the special education population. Among those students are those whose impairments are significant enough that any significant disruption in their school routines will cause them to regress, which is to lose learning they had previously acquired.
Regression happens for students such as these during lengthy breaks, like summer, which is why we give them Extended School Year (ESY). By extending the school year through periods of normal breaks, we prevent them from losing ground. When kids regress from disrupted instruction, once the instruction resumes, that time has to be spent on recoupment, which means re-teaching what was forgotten. That means time spent re-teaching previously known information instead of adding onto it with new information. For kids already behind in the first place, this puts them even further behind.
Compensatory education can be used to make up for regression and can take different forms. Sometimes its intensive services over a summer break so the student is where they should have been by the time school starts back in the fall. Other times, it's supplemental services being provided outside of the regular school day in addition to the instruction being provided during school, though that can be pretty tough on a lot of kids. Sometimes, it takes putting the student into a more restrictive, but more intensive instructional placement for a period of time so they can catch up in their learning before being returned to the public school setting with services in place that will prevent them from regressing again.
Compensatory services can be provided in other contexts, as well, regardless of whether regression has occurred or not. When families find it necessary to take their Local Education Agencies (LEAs) to due process to achieve remedies for the deprivation of educational benefits, compensatory education is the likely remedy, though the form it takes varies from case to case.
From a procedural standpoint, if an IEP calls for a specified number of service minutes for a particular intervention and not all of those services minutes are provided as they should be, a minute-for-minute compensatory remedy is due simply as a matter of procedure. The regulatory procedures require that IEPs be implemented as written and, if they aren't, whatever services that weren't provided according to their mandatory statements of frequency and duration remain due to the student.
An Individualized Education Program (IEP) is a legally binding contract that obligates LEAs to deliver on it as written, so if they don't, they have to make up the services minutes to which they committed themselves as described by the affected student's IEP. When compensatory minutes are ordered following a state-level compliance complaint or due process case on the basis of procedural violations, the compensatory services are minute-for-minute as described by the IEP because the number of service minutes the student should have received are documented in the IEP, which the LEA is legally obligated to implement as written as a matter of procedure.
However, compensatory education can also be ordered by a judge in due process on the basis of substantively inadequate IEPs. In such instances, a student's IEP does not contain services that it should, so they can't be enforced as a matter of procedure. When necessary services are left out of an IEP such that the student suffers a deprivation of educational benefit, or when services in the IEP are not delivered as the result of a procedural violation and the student then regresses, now you're talking about substantive harm.
Failing to follow the rules and owing something previously promised is one thing, but causing further loss of learning by failing to implement the IEP as written such that regression occurs is a much bigger issue. Failing to teach necessary instruction because it was left out of the IEP is just as big of an issue, if not bigger.
When special education students are deprived of educational benefits by their LEAs, how much of what kind of services they get to make up for those deprivations has to be figured out on a case-by-case basis. Judges rely on expert testimony and evidence, usually assessment reports, to figure things out when these cases go to hearing. How well a student's attorney argues the case has a lot to do with how much compensatory education that student will get for any sustained allegations of substantive harm.
Those are the basics of how and when compensatory education can be ordered. Compensatory education can also be negotiated as conditions of settlement to prevent any kind of regulatory and/or judicial intervention. I've even had situations in which procedurally owed compensatory service minutes are written into IEPs at IEP meetings without lawyers and lawsuits even coming up in the conversation. This latter action has usually occurred when there was a temporary lack of a qualified provider and the service minutes had to be made up once the position was filled.
All of this is based on how things were before the quarantine and, at least for right now, no waivers of the Individuals with Disabilities Education Act (IDEA) have been authorized by Congress. Parents and educators are still waiting to find out if any waivers will be passed in the near future (sign our petition to ask Congress to not authorize waivers), but for now, the law still stands as it always has.
Any child whose IEP is not currently being implemented as written, right now, is going to be owed compensatory minutes purely on the basis of procedure. If a kid's IEP calls for 30 minutes per week of speech/language services and that kid has been in quarantine for six weeks without those services, that kid is now due 180 minutes of back-due speech/language minutes, and that number will continue to grow for so long as that kid continues to go without those speech/language services.
Dealing with procedurally required compensatory services along these lines is going to be burdensome enough on LEAs after people adjust to quarantine and new ways of doing things are put into place, as well as once the quarantine is over. Both state and federal education agency officials have already started talking about how they're going to tackle that.
Dealing with kids who are due compensatory remedy because they were deprived of educational benefits during quarantine because necessary services weren't in their IEPs in the first place and/or they regressed in the absence of services that were written into their IEPs but not provided, is going to be a whole other thing that is likely to burden our due process mechanisms and take money out of the classroom, virtual or otherwise, to pay lawyers. The substantive compensatory education claims are going to be significant and the reality is that an ounce of prevention is worth a pound of cure.
Compensatory remedies are never as effective as the instruction students receive as a matter of a Free and Appropriate Public Education (FAPE). For one thing, IEPs are based on present levels of performance when they are written. Those present levels establish where the student was performing at the time the IEP was written and the IEP goals target learning outcomes for a year down the road, relative to the baselines established by the present levels.
When kids regress from lack of instruction, their present levels of performance move backwards, not forwards. When kids fail to learn for lack of appropriate IEP goals and, thus, a lack of appropriate IEP services, further deficits are induced on top of the deficits that were already there as a result of their disability. When these same kids sit at home not getting appropriate special education, they fall further behind and no amount of compensatory services will ever restore them to where they should have been had their services been appropriately provided in the first place.
Many special education students were facing IEP implementation failures and/or poorly constructed IEPs before the quarantine. Now, many more are joining them in the "Deprivation of Educational Benefits Club," as they sit at home without adequate services to see their IEP goals met and/or without adequate IEP goals to drive the provision of necessary services. Further, because their learning environments have dramatically changed, many of these children now have new needs specific to learning at home that are not addressed by their IEPs.
Behaviors in response to parents' attempts at instruction top the list. Parents without any kind of training in delivering specialized instruction are attempting to nonetheless do so without the support of behaviorists that would otherwise be provided to credentialed special education teachers. Most parents give up in exasperation because they have to decide between the lesser of two evils: behavioral regression or academic regression.
Recoupment of academics is usually a lot easier to achieve than remediating a big behavior problem. Remediating a behavior problem requires the student to unlearn maladaptive strategies and replace them with adaptive ones that have to be taught.
Remedial academics just involves new learning; kids generally don't have to unlearn something inaccurate, first. At worst, they'll have to be retaught something they learned previously but forgot, before they can pick up with new stuff, again.
Parents who have the means, right now, are working their health insurance to get online speech/language services, consultations with specialists like Occupational Therapists (OTs), and online social skills groups. They are paying out of pocket for online tutors and classes to give their kids some kind of academic routine. Many of those out-of-pocket costs are going to be recoverable as a matter of compensatory education.
There are two ways that compensatory education gets funded:
- If it is agreed-to or ordered first, it is provided thereafter at the expense of the LEA. Either the LEA pays for it directly or the parents pay for it and the LEA reimburses them, as agreed to by the parties or as ordered by the judge in due process.
- If it is not agreed-to or ordered first, parents pay out of pocket for the services, then request reimbursement after the fact. If that's the case, either their LEA will agree to reimburse them, usually via a confidential settlement agreement, or the parents will have to file for due process and prove to a judge that they had to pay out-of-pocket for the services because the LEA failed to provide them, they were educationally necessary, and their child would have likely regressed or otherwise been denied a FAPE without them.
That's something that some families should seriously think about, right now. Not everyone is out of work. Not everyone is without resources. If savings or lines of credit can be used to provide services in the home, now, while waiting for the local LEA to get its act together, parents can sit on their reimbursement claims until the dust settles. Due process claims come with a two-year statute of limitations. A denial of a FAPE that began on March 1, 2020 will remain viable until February 28, 2022, for example.
Families that have the means to privately fund what their children with special education needs are not currently getting should do so just because it needs to be done, regardless of whether they can recover those monies from their local LEAs or not. But, because the taxpaying public has already paid the LEAs to render a FAPE but they aren't, parents should still keep their receipts in case they are able to recover their out-of-pocket later. The focus should be on keeping your kids moving forward in their learning and preventing regression. You can worry about the money later, given that you've got two years to act on your reimbursement claims.
However, for families that do not have the means to pay out-of-pocket for now, there is a tremendous need for immediate intervention. As LEAs scramble to come up with solutions, one that seems obvious to me but which might not occur to others is to open up the provision of related services by private providers that are not currently licensed as Non-Public Agencies (NPAs).
There are more qualified providers that are not licensed as NPAs than there are providers that are licensed as such. The barriers to entry into the NPA arena are ridiculous and multitudinous, plus they get paid at Medicaid rates, which is usually less than what it costs to deliver the services, so providers can't keep their doors open by operating as NPAs.
Most NPAs are also set up to do business with other agencies and private insurance, which offsets the shortfall created by their NPA business. In many states, becoming an NPA is more of a marketing expense to get the agency's name out there in front of people, build up a trusted reputation as a provider, and then dump the NPA status to carry on with private insurance and other agency contracts in exchange for payments that actually keep their doors open.
While NPA licensing requirements may have been created to keep the sketchy people out, they actually achieve keeping most of the really good people out, too. Now is the time to reform that process so that we have more providers that can reach into the homes via whatever safe means possible of the special education students who are currently being denied a FAPE and regressing at this very moment.
In-person services can be provided with adequate Personal Protective Equipment (PPE) and safety protocols. Not every special education student is able access instruction online. Those who can, should, but that still takes a lot of skill and expertise to facilitate. When you've got a kid at home with a parent refusing to participate and no in-home behavioral services to facilitate their participation, the parent sits there helpless as the parent/child relationship suffers and no learning occurs.
By relaxing the NPA licensing rules and letting non-NPA providers that are otherwise qualified with the proper professional certifications, such as Speech-Language Pathologists (SLPs) and OTs who are medically certified, a great many students can still receive services at home who otherwise wouldn't due to LEA staffing limitations.
The goals that were determined to be educationally necessary by each child's respective IEP team are still educationally necessary. The services determined necessary to see those goals met in a year's time are still necessary.
The only thing that has changed is placement, and now IEP teams need to figure out how to deliver services in the current placement such that the goals are still met. This is the same line of inquiry every IEP team has to pursue when normally making placement decisions. Placement is driven by what learning environment is the Least Restrictive Environment (LRE) in which the services can be delivered such that the goals are met. That's best practices according to educational science, plus it's the law.
Now that placement changes have been forced on everyone because of quarantine, it's time to back up the conversation to that point, again, where services necessary to see the goals met in the current placement have to be identified. That said, new goals may actually be needed to address how the student functions in the home learning environment. New evaluations may be needed to inform what those goals should look like.
One thing is certainly clear from all of this: the next time the IDEA gets reauthorized, it will need to include language that describes how it will be implemented during a national crisis. The absence of any such language automatically puts LEAs out of compliance when disaster hits, which benefits no one; leaves students stranded without a contingency plan, deprived of a FAPE and actively regressing with each passing day; and creates compensatory education claims that will become a greater burden on the public education system than serving these students appropriately during a crisis in the first place.
Monday Mar 16, 2020
Monday Mar 16, 2020
Prior Written Notice (PWN) pursuant to 34 CFR Sec. 300.503 gets a fair amount of general discussion among special education stake-holders, but, in today's post/podcast, I want to look at it more in-depth. Today's discussion looks more closely at the regulatory requirements and the types of special education contexts in which PWN becomes necessary.
I pulled a couple of examples from old case files that I can use to illustrate a number of points. These are old, closed cases from school districts where I currently have no active casework that happened years ago, but one of them involves bad players that I know are still out there.
The first one involved a student of an independent study charter school that had contracted with a third-party provider to deliver its special education and related services. Charter schools are often the worst at special education compliance, and online and independent study charters are usually the worst of the worst; for more information about that, see our prior post, "California Charter Schools & Special Education." This case was no exception.
To put this example PWN into context, first I have to explain what was going on at the time. Our autistic student with high cognition also had debilitating anxiety that, combined with his autistic perseverative thoughts, could spiral his behaviors out of control, requiring intensive Board Certified Behavior Analyst (BCBA) services.
This student also needed interventions to address his anxiety, for which the parents, through me as their advocate from our agency, had requested a referral for a mental health evaluation as part of the IEP process. At the time, what we were requesting was provided by the local County Behavioral Health (CBH) agency under contract with the local Special Education Local Plan Area (SELPA), of which the chartering school district was a member.
So, while we were requesting a referral to the local CBH, it was under the auspices of an IEP-related assessment for the determination of IEP goals and services. In response, the third party special education contractor, using the local SELPA's PWN form, replied with the following:
- Description of action proposed or refused by district: In a letter dated [DATE] and received by the charter on [DATE] the parents requested the school refer [STUDENT] to [CBH]
- Explanation of reason for proposal or refusal: Parents can make individual referrals themselves without the involvement of the school.
The PWN goes on to explain how parents can make their own community-based referral outside of the IEP process to the local CBH. In an effort to try and make it look like it was complying with the law by replying with official forms and filling in the blanks with words, what the charter's third-party contractor actually did was commit a substantive violation of a Free and Appropriate Public Education (FAPE).
First of all, the request was for an IEP-related mental health evaluation and possible IEP goals and services. Going through the community-based referral process does not tie any mental health services provided to IEP goals and the delivery of a FAPE. Regardless of what our student may have or have not received by way of community-based mental health supports, none of that alleviated the IEP team from the mandated responsibilities of assessing for and providing any needed special education-related mental health services.
Further, the charter's response on official SELPA forms was issued by its third-party contractor, which had no direct legal obligation to our student to offer and deliver a FAPE. The third-party contractor issued PWN on behalf of the charter, which was supposed to be acting on behalf of its chartering district, the latter of which being the entity that was actually legally responsible for FAPE but had no idea any of this was going on.
What this was really about was the charter's third-party contractor not wanting any other entities involved over which it couldn't exercise any kind of control. Because CBH would have been directly funded by SELPA and the State, the charter's third-party special education contractor couldn't lord payment over its head to control how it conducted itself like it did with its contracted teaching personnel and service providers.
If anything, it put the third-party contractor's questionable conduct in the path of scrutiny to have an outside agency like the local CBH get involved. The third-party contractor denied the referral and pushed it back onto the parents in order to prevent CBH from becoming part of this student's IEP and implementation teams. It was out of fear of accountability that the third-party contractor denied the referral and pushed it back onto the parents to pursue through community-based resources outside of the IEP process.
Measurable annual mental health IEP goals with the local CBH as the responsible provider would have likely meant CBH personnel in the home, where additional special education services of all kinds were needed but not being provided. Having CBH come on board to provide mental health services under this student's IEP would have created outside, impartial witnesses to all of the other special education violations going on with this student's case at the hands of the charter's third-party contractor.
Adding CBH to this student's IEP would have made the chartering district answerable for making sure the mental health goals were implemented as written, which would have required CBH to actually do its job, putting the third-party contractor's scam operation at risk of exposure. Needless to say, this case ultimately went to a lawyer who filed for due process, the matter settled, and I can't talk about what happened after that.
Prior to and at the time of settlement, this kid was in no way ready to enter the brick-and-mortar school setting, which is far less restrictive than being educated at home. This was one of those situations where the independent studies charter school kept insisting that the student's living room was the general education setting because that's how it was for all of their students, without regard for the fact that the only reason his living room was the Least Restrictive Environment (LRE) for him was because he couldn't handle a traditional classroom.
If this student had been enrolled in a traditional school district at the time, but still was receiving instruction at home, it would have been regarded as one of the most restrictive placement options possible. His in-home placement was light years from a general education classroom in a brick-and-mortar setting, which everybody knew he couldn't handle. It was a technicality that in-home instruction was the norm for independent studies charters, such as his. His situation wasn't about family educational choice; it was about individual educational need.
Educating him at home was an accommodation. His parents would have preferred to send him to school, in all honesty, but they made the choice to home-school because of his demanding special needs. He needed intensive autism and mental health services to get to the point where he was able to access the world outside his home with success.
The charter was effectively trying to turn him into a well-educated hermit, which often seems to be the case with students with these types of needs in independent study programs. Bringing the instruction to students who are challenged to function successfully outside of the home may seem to be prudent, but if it doesn't include related services meant to increase the student's independence and access to less restrictive learning environments, it's not a FAPE.
Preventing the provision of such services in order to avoid accountability is a despicable breach of ethics, as well as a monstrous denial of FAPE. First, in this case, the denial to refer for IEP-related mental health services as requested by the parents interfered with meaningful parent participation in the IEP process, in addition to violating procedure with respect to referrals for evaluations and reevaluations.
Secondly, it denied a FAPE because it meant the student's IEP was informed by insufficient assessment data. As a matter of FAPE, the student had a federally protected right to assessment in all areas of suspected disability and learning need. That right was denied when the charter's contractor chose to deny the mental health assessment referral and push the burden back onto the parents to pursue through community-based resources unrelated to the IEP process.
Further, the contractor's efforts to circumvent the IEP process not only undermined meaningful parent participation in the IEP process as promised by federal law, it also meant that the student's IEP was not reasonably calculated to render meaningful educational benefits in all areas of unique student need, which also denied a FAPE. As such, the student was being deprived of meaningful educational benefits in the areas of mental and emotional health, which was negatively impacting his behavior and, thus, access to education, which also denied a FAPE.
So, just on the basis of this misuse of an official PWN form, the charter's third-party contractor made the record of its efforts to circumvent the IEP process, indirectly on behalf of its charter school client's chartering district, thereby denying a FAPE in at least four different ways:
- Denial of meaningful parent participation in the IEP process
- Failure to assess in all areas of suspected disability
- Failure to design IEPs that are reasonably calculated to render meaningful educational benefits in all areas of unique student need
- Failure to deliver meaningful educational benefits in all areas of unique student need
The point I want to get across is that, just because you get a PWN on official paperwork, it doesn't mean the education agency has actually followed the law. It's not just the matter of complying with procedure by sending something out titled "Prior Written Notice." What is written in the notice matters, and is regulated by federal law.
In my second example, also from years ago, and also ultimately settled after the family brought in an attorney, the situation was different. Our student had lived with his parents in the attendance area of a school district near the Southern border of California. Shortly before I became involved, this child's mother had passed away, leaving his father alone to provide all of the in-home support his autistic son with demanding needs required while holding down a job as a traveling engineer.
As difficult as it was, the most sensible thing to do under the circumstances was for the student to live most of the week with his grandmother in another community far to the north in the San Joaquin Valley. The student's grandmother, his late mother's mother, was available to be a full-time primary caregiver and his uncle, his late mother's brother, was available to help with any kind of important decision-making, such as with IEPs and regional center services. The student's father shared his educational decision-making authority with his mother-in-law and brother-in-law so that they could take on these serious responsibilities.
In anticipation of the student moving to his grandmother's and becoming a student of the local school district, his uncle went to enroll him and shared with the District the student's IEP. The IEP from his incoming school district included a significant amount of Non-Public Agency (NPA) services that were provided during and outside of the school day because of the intensity of the student's needs.
These services were not typical for most IEPs, but IEPs are supposed to be individualized. Based on the evidence it had at the time, the IEP team at his previous school district had determined that these services were necessary based on his unique circumstances to provide him with a FAPE.
The receiving school district nearly had a fit when it saw this student's incoming IEP. It utilized every procedural tactic at its disposal to argue that it didn't have to implement the incoming IEP as written. That's one of the issues that was addressed by the settlement, so I can't talk about it, here, which is a bummer because the legal arguments around this issue were total fireworks.
The bigger point that almost got lost over the arguments over procedure, which was likely the District's intent by arguing over procedure, was what the student substantively required as a matter of FAPE. The receiving school district simply had no intention of paying for NPA services and insisted on stripping out all of the individualized supports described by the student's IEP, which had him placed in a general education setting with age-typical language and behavior models, and placing him in a Special Day Class (SDC) for students with autism.
This student was mainstreamed with a 1:1 NPA behavior aide to keep him involved in the instruction and facilitate his language, social, and classroom behavior skills development. The receiving school district proposed to put him in a full-time classroom filled with other students with needs like his own and no models of age-typical language and behavior. He was being successful in his previous placement with the configuration of services described by his IEP.
The receiving school district had never met the student, much less assessed him, and therefore had no educational or legal basis to place him in a more restrictive setting. Regardless of whether procedure required the receiving school district to implement the incoming IEP as written or not, it was still obligated to offer and provide a substantively appropriate FAPE. It had no data to inform its offer of services and placement, and certainly nothing that suggested his needs had changed such that a more restrictive placement was educationally necessary.
After articulating the request for the receiving school district to implement the incoming IEP as written, this was the District's response, crafted with the assistance of its attorney, as I understand it:
Description of the Action Proposed or Refused by the District
The [District] and [County Office of Education (COE)] are refusing to provide BCBA supervision of the BIP dated [Date]. The District and [COE] are denying the request for 1:1 instructional aide support to be provided by a NPA. The District and [COE] are also denying in home support, parent training, and direct speech and language services provided in the home. The District and [COE] continue to offer a [COE] operated special day classroom located at [Campus] as an interim placement for 30 days ...
Explanation Why the District Proposes or Refuses to Take Action
... you requested that [Student] be provided with a BCBA to oversee the BIP. The District and [COE] offered 60 minutes per month of consult behavior intervention services to address the implementation and training of the BIP ... to be provided by a [COE] program specialist with ... required training for Functional Behavioral Assessments (FBA) and BIP ... the District and [COE] feel that the program specialist would be able to implement the strategies and recommendations of the BIP.
... you requested that a NPA provide the direct 1:1 instructional aide services. At the meetings, you indicated that the NPA instructional aide is essential to the successful implementation of the current IEP. The District and [COE] recommend intensive individualized services daily ... Intensive individualized services are provided by [COE] instructional aides ... The District and [COE] feel that [COE's] trainings, in addition to the support and oversight provided by the program specialist, provide enough knowledge for [COE] to successfully support [Student] and fully implement the current IEP.
The District and [COE] are refusing to provide these additional services and continue to recommend 360 minutes per month of direct speech and language services and 30 minutes per month of consult speech and language services. Given that the in home services that are being requested are now embedded in the categorical program in a way that his prior placement in a non-categorical program did not provide, in home services are not needed.
So, that's a lot, but here again is an example of a school district complying with procedure by sending a PWN, but, in doing so, making the record regarding its substantive denials of a FAPE. As stated previously, the receiving school district had conducted absolutely no assessments that indicated that this student needed to be placed in an SDC instead of supported in general education with push-in supports. This was an LRE case.
Basically, what the receiving school district was doing was making a placement decision on the basis of what it was willing to spend rather than what was necessary to educate the student in the LRE. The only guidance it had as to what the student required was the incoming IEP. It had no idea whether what it was offering as a 30-day interim placement would completely derail this kid or not (which it would have).
The language that jumped out at me that really chapped my hide were the statements about what "the District and [COE] feel" is best in the absence of any evidence. Basically, this was the District and COE admitting to basing their decisions on opinions rather than the facts that the regulations require.
It's a violation of both the IDEA and Section 504 of the Rehabilitation Act to to change the type of placement a student with disabilities receives without first assessing to determine that student's current placement needs. Placement decisions are based on what is the LRE in which the services can be rendered such that the goals are met. There was no data demonstrating that an SDC placement was suddenly the LRE for our student, after he had been successfully placed in general education with push-in supports under the IEP he already had.
Like I said, this case was ultimately settled and it happened several years ago. But, these kinds of things continue to go on all the time. I'm only citing old cases, here, because I don't want to talk about anything currently being litigated or potentially litigated. The regulations for PWN have been the same for a long, long time, so there's not some recent change in the law that would make older cases irrelevant.
As a parent, if you get a PWN in the mail denying a request you've made, don't assume that the explanation you're being given is a good one. Just because it's on official letterhead or official form doesn't automatically make it proper.
Really, it all boils down to 34 CFR Sec. 300.503(b)(2), which requires any PWN to include, "An explanation of why the agency proposes or refuses to take the action." The explanation as to why a parent request is being denied better be a good one, or all the District accomplishes is using a procedural requirement to document its substantive denials of a FAPE on the record. If that's the case, it's evidence that parents can use in due process to achieve appropriate educational outcomes for their children with special needs.
Friday Feb 14, 2020
California Charter Schools & Special Education
Friday Feb 14, 2020
Friday Feb 14, 2020
Every state has its own rules and regulations regarding charter school organization, configuration, and authorization. In California, charter schools are public schools that take Average Daily Attendance (ADA) dollars away from the school districts their students would otherwise attend. It is unlawful for charter schools in California to charge tuition to their students for this reason.
Like all other public schools in California, charters are obligated to abide by the same standards of compliance as any traditional local education agency (LEA) with respect to civil rights and special education law. While charters often like to think of themselves as "schools without rules," that really isn't true.
The truth is that some regulations are made easier for charter schools in California, while others are exactly the same as those that school districts are required to follow. The problem is that a lot of charter operators and their contracted vendors either don't know that, or they know it but don't care.
Understanding the charter rules for a single state, much less all states and territories, is confusing enough. Recognizing the abuse of those rules can be even harder for parents of students with special needs who require accommodations as a matter of civil rights, which can include an Individualized Education Program (IEP). In my experience, trying to enforce procedure in California's charter school universe usually ends in inter-agency political backstabbing and lawsuits.
To understand charter school compliance versus the climate of charter school politics in California, one needs examples. The one that most recently prompted my return to this issue was recently covered by The Camarillo Acorn in its February 7, 2020 article, "Online charter school faces laundry list of violations."
Online charter schools are even more challenged to comply with education law than brick-and-mortar charter schools. That said, for the chartering LEA in this particular case, Pleasant Valley School District (PVSD), to squawk about a lack of legal compliance on the part of the school to which it issued a charter, that being Peak Prep Pleasant Valley, is a grievous instance of the pot calling the kettle "black."
I can imagine Peak Prep's violations must be pretty egregious for PVSD to make a fuss about them in the media, and there is truly a fuss to be made as you can see from the article. But, the reality is that the Doctrine of Unclean Hands, at least as I understand it as a lay person, may preclude PVSD from saying a whole lot, which is possibly why it's addressing this situation in the media rather than a courtroom. So basically, black pots throwing stones at black kettles in glass houses, to mix metaphors.
I've had four cases from my advocacy caseload in the last couple of school years that have required due process filings, and three of them have been in PVSD. I have an active caseload that averages 20 students throughout the State, mostly in Southern California, at any given time. These are raw statistics; take them for what you will. But, to think these amoral jamokes are concerned about anything with this charter situation other than going down with the ship is foolish.
Read the article and you'll see there isn't a single, solitary concern expressed by PVSD for the welfare of students, parents, and community members. The only sentiment expressed is on behalf of allegedly overworked and underpaid district administrators who don't have time to clean up messes made by their charters. Not that imposing on district personnel to do what a granted charter requires of the charter school's staff is okay, but I get the same arguments from PVSD in response to asking it to give a kid with disabilities a Free and Appropriate Public Education (FAPE).
This district gets itself into enough trouble on its own. A visibly non-compliant charter that won't get its act together, for which the district is ultimately responsible as the chartering LEA, can only shine a stronger spotlight of scrutiny upon the chartering district. In California, the chartering LEA is ultimately responsible for the conduct of its chartered entities.
In special education in California, if you have to file a compliance complaint or due process request for a charter school student, you have to name the complaint against the chartering LEA, not the actual charter school. This is because the LEA is ultimately responsible for the charter school's procedural compliance with special education law and providing FAPE to its special education students, regardless of how the charter school configures its special education services.
In California, when it comes to special education, charters can either be "schools of the district" for the purposes of special education, in which case the chartering LEA delivers all special education, or charters can be "LEAs" for the purpose of special education and take care of it themselves. Even if they organize themselves as LEAs for the purposes of special education, there is supposed to be oversight by the chartering LEA to make sure its obligations are met, but I've never seen that happen proactively. It's always a knee-jerk fit of hysterics on the part of the chartering LEA that had no idea what the charter school people were doing until a complaint came over the transom.
Based on the sordid history of charters in California thus far, I'd think that any school board reviewing a charter application that claims to organize the school as an LEA for the purposes of special education would exercise ten times the scrutiny as it would if the charter application sought to remain a school of the district for special education purposes. In my experience, the charters organized as LEAs for special education are only organized that way to keep the eyes of their chartering LEA out of their business.
Organizing the charter as an LEA for the purposes of special education is, in my experience, an effort to reduce oversight, not increase compliance. I've heard more than one charter operator claim over the years that they didn't want to be taken down by a non-compliant school district's special education department, so they chose to do it themselves, but then they have fewer resources than their chartering LEAs and can't actually deliver.
These are the charters that tell parents to take their kids with special needs back to their districts of residence instead of ponying up the resources to actually deliver on functioning as an LEA for the purposes of special education. Nothing prevents a charter from going to its chartering LEA and saying, "We have a unique situation and need your help," to address unusually demanding special education services, such as full-time nursing support for a medically fragile student, for example, but I've never seen a charter organized as an LEA for special education purposes do anything of the sort.
When you as a parent are jumping ship to a charter school because your kid with special needs is already getting shafted by your district of residence, this really doesn't help you out. Parents changing schools to avoid having to litigate their children's special education cases often find themselves tumbling over the edge of the frying pan and falling into a blazing fire. It's usually a lateral move at best, and a downgrade at worst. See our previous post, "Parents Who 'School-Hop' Risk Making Things Worse," for more on that.
However, PVSD seems to be the one shining the light on Peak Prep, here, which in my experience, usually means there is a fair amount of misdirection going on. By acting as the accuser, PVSD is diverting eyes away from its initial decision to charter Peak Prep in the first place. The last thing any school district wants, including this one, is an official inquiry into how they conduct their business, so when a charter draws this kind of attention, it's usually not good for the LEA that issued the charter.
But, it's not like Peak Prep's organizers' questionable history was unknown or that the quality of the charter application wasn't apparent at the time it was made. To quote PVSD's superintendent, "... the cast of characters is not new by any stretch .... The same group has done this before. They should and do know better." I say the same thing to myself every time I help an attorney draft language for a due processing pleading against PVSD on behalf of a child with disabilities.
The District's hypocrisy, here, is absolutely wretch-worthy, for sure, but this whole public display over proper education agency conduct is critically informative, and voters should be paying close attention to it. While the PVSD/Peak Prep situation is just one more log on the blazing fire of charter school politics in California, it's also a loud message for voters in Camarillo who are looking at the school board and wondering what it thought it could gain for the local community by chartering an online charter school in the current charter climate. Based on the behaviors of other districts, chartering online schools is about generating charter fees from students in other communities, not improving the options for local families.
There are two directions in which this story takes my mind, both of which are relevant and equal in importance. First, there is the litigation of the charter school wars that played out in the Santa Clarita Valley a couple of years ago. But, also, there is a privately owned outfit based out of the San Diego area that claims to help charter schools comply with special education law. In my experience, that's not actually what they do. When we start getting into the history of this issue, you will see San Diego come back up again later in this discussion.
First, I have to point out what happened in the Santa Clarita Valley, citing the publicly available evidence, but also sharing some first-hand information. That matter involved Acton-Agua Dulce Unified School District (AADUSD) as the chartering LEA and Albert Einstein Academy for Letters, Arts, and Sciences (AEALAS) as the charter school, which has no website because it went out of business due to fiscal insolvency at the end of the 2017-18 school year.
During the period of the Santa Clarita Valley charter school debacle, one of the students on my caseload was an AEALAS student, and nothing in the articles I can find online will ever come close to describing the hell that student and his family went through. All of the articles online are about fiscal mismanagement, which aren't untrue, but none of them speak to the horrific special education violations that were going on. We had to involve an attorney who, over several years, had to file for due process against AADUSD for AEALAS's improper conduct on multiple occasions.
The Santa Clarita Valley story is revealing and opens up many lines of inquiry for voters of all stripes. These issues affect the lives of our children, families, communities, and public education officials throughout the State. One of the most informative articles I've seen on that whole mess is, "How a tiny California school district sparked calls for a charter crackdown," by CalMatters.org.
Rather than belabor all of it here, I encourage you to read the article. The infographic it includes is incredibly helpful. While it doesn't go into details about the special education issues per se, they aren't left ignored. The charter's inadequacies with respect to special education planning briefly identified in the article played out into absolute travesties in real life, before AEALAS ultimately closed down.
For example, none of the articles mention the AEALAS official who drank too much at his place of worship one night early during the school's first year, and basically told everyone there, most of whom were AEALAS charter school families, that our student's special education program was going to bankrupt the charter school and close its doors in the first year. This prompted the other charter parents from the same place of worship to send anonymous hate mail (signed with simply "Albert Einstein parents") to our student's family telling them they should pull out so his special education program wouldn't cost all their kids their charter school. So, way to go, religious people, for scapegoating a handicapped child to cover corrupt charter administrative fiscal mismanagement.
Clearly, no one had explained to the drunken administrator's constituents that categorical special education dollars can only be spent on special education costs, and none of that money could be spent on general education students in the first place. Our kid came with extra money above and beyond the ADA dollars that all students bring to a charter or LEA on a per-pupil basis, specifically to defray his special education costs.
What was really happening was that AEALAS was financially mismanaged from the start. That's why it couldn't get chartered by the six districts and two county offices of education to which it had applied before AADUSD granted it a charter. So they targeted a kid with costlier than normal special education needs, blamed the lack of funding on him, and sicced a pack of misinformed, emotionally underdeveloped adults on him and his family. It was an act of misdirection to make the charter's supporters think AEALAS was otherwise financially solvent all but for our student's special education program, when the evidence is pretty clear that it never was financially solvent at all.
Our anti-bullying efforts had to start with the adults at AEALAS, not the students. A non-public agency (NPA) bowed out early on and refused to do further business with AEALAS because the assistant principal at that time refused to abide by the scientifically designed behavior plan created for our student by the NPA, preferring instead to tackle him to the ground and scream in his face (our student was 7 at the time). He then attempted to treat the NPA's professional staffs in much the same way when they tried to get the charter to use positive behavioral intervention strategies, instead.
After the NPA's Board Certified Behavior Analysts (BCBAs) tried to explain the science of what they were trying to do, the assistant principal became verbally abusive of them and physically threatening. He scared the crap out of them, actually. They took the matter to their NPA's ethics committee, which wrote a letter withdrawing from service on the basis of AEALAS's ethics violations, of which the NPA refused to be a part. I've never seen anything like it before or since in my entire career.
The real issue was cost. An NPA-designed and -implemented behavior program isn't cheap, though it's a heck of a lot cheaper than a lawsuit, and the taxpayers had already funded it. AEALAS was just woefully fiscally mismanaged; it was all about playing games with taxpayer monies provided for the purpose of educating children - a point that keeps getting lost in all the inter-agency infighting that's going on.
Also helpful, and linked-to in the CalMatters.org article, is a report published by the California State Auditor in October 2017, in which the players in the Santa Clarita mess featured prominently, titled, "Charter Schools: Some School Districts Improperly Authorized and Inadequately Monitored Out‑of‑District Charter Schools." I mean, they don't even wait until the opening summary of their report; they call it all out in the title.
You would think that other school districts in the State would have taken better notice of these developments and the outcomes they've produced. Maybe, however, that's one compelling reason why PVSD is reacting so strongly, now. If so, I have to give PVSD some credit for dealing with the situation within less than a year of issuing the charter, even if it does add to the smarmy politics of the issue.
These things, among many others, need to be sorted in public education. Ideally, PVSD wouldn't have issued a charter to an outfit capable of performing this poorly in the first place, but second best is admitting your mistake before it's too far gone, which PVSD appears to be doing, now.
Secondly are my concerns about the bad things creeping out the San Diego area with respect to charter school non-compliance with special education law. These charter violations place chartering LEAs in violation, whether the LEAs realize it or not.
In the PVSD/Peak Prep matter, one of the players in the current matter from the charter school was previously employed by another charter school that was shut down last year following charges filed against the owners of its parent organization, A3 Education, for pocketing $50M in taxpayer funds by the San Diego district attorney's office. For more information on that, see "How an alleged charter school conspiracy netted $50 million."
And, here's where it gets super creepy/interesting, depending upon your point of view. If you look on the Peak Prep website, it opens up by telling you that enrollment is closed. I would imagine so, because another page on the site lists all of the schools shut down by the court-appointed Receiver following the A3 lawsuit.
Now, supposedly, Peak Prep has nothing to do with A3, which is the company busted in the $50M charter scam. But, the Peak Prep Pleasant Valley principal, Shalen Bishop, is listed as the principal of University Prep, which is one of the schools listed as closed on the Peak Prep site. It and the other schools listed are A3 schools.
So, if that case isn't related to Peak Prep, why is that information on their site? That creates a link between shenanigans in the San Diego area to what's happening in PVSD. This supports PVSD's superintendent's previously quoted statement about this particular "cast of characters" having done this before and knowing better.
But, it gets richer. Also in the San Diego area is a privately owned company called Special Education Assistance and Technical Support (SEATS). SEATS doesn't have a website. The closest thing I could find was the LinkedIn profile for the wife of the husband/wife team that own and operate SEATS. There are also some job listing sites that come up when you do a search for SEATS, indicating that the agency is looking to hire resource specialists and speech-language pathologists.
But applicants be warned, SEATS reportedly does not cover travel time or mileage to dispatch their special education staffs all over Kingdom Come to serve students in independent studies and online charters. Even if a school is virtual, if a special education student of such a school still needs 1:1 specialist support to participate in instruction, or otherwise needs specialist services in person, the law requires the school to meet the needs of the child, not expect the child to warp themselves to fit the charter school's pedagogy. The whole point of special education is to individualize the program to meet the unique needs of the student.
SEATS has a reputation for making special education service decisions on the basis of how much they are willing to spend rather than individual student need. They also have a reputation of short-paying their vendors and speaking to them disrespectfully in IEP meetings and/or screaming at them outside of the meetings if they dare to recommend anything SEATS hadn't already approved for expenditure in advance of the meeting.
Needless to say, none of SEATS's employees are in a union of any kind. It's also not a coincidence that the teachers' unions in California are backing current efforts in Sacramento to take on this whole charter mess. Most of the charters in California, virtual or otherwise, do not have unionized certificated personnel, which has contributed to high turnover rates and disclosures among professionals about what they have been experiencing.
In the course of developing this post, I spoke with a colleague still employed by a virtual charter and she's just waiting for the State to come after her employer. All of the virtual charters are apparently starting to freak out because of all the accountability that is now coming their way. While she needs a job, she is also morally outraged by what she sees on a daily basis.
The stress of working for this charter is affecting her health and she has no union to turn to, but she also recently had to take her local school district to due process on behalf of her own child with special needs and it's not like they're going to hire her to work for them, after that. I've received similar feedback regarding work-related stress from former contractors of SEATS over the years that mirror what my colleague at the virtual charter was expressing to me the other day.
SEATS alleges to help charter schools comply with the special education regulatory requirements, but I've seen them mostly help charter schools try to dodge the special education regulatory requirements. SEATS personnel have been alleged to tell families that the charter school they chose cannot support their children's special education needs because they don't offer "those" kinds of services, so the families need to go back to their regular school districts.
The owners of SEATS once emailed me while they were on a cruise to tell me that the charter school in the case we were discussing didn't have the money to pay for the services we were requesting. Forget that the charter was paying SEATS to make sure they were provided.
As best as I understand it, SEATS basically tells its charter school clients, "Give us your entire special education budget for the year, and we'll make sure you don't get in trouble." However, the owners pay themselves out of that money, they have multiple charter clients, and they go on a whole lot of trips and cruises while kids with disabilities go without special education services that SEATS is supposed to provide, but "can't" because their charter clients don't have the money to pay for them.
From what I've seen, it's not that SEATS is trying to keep charter schools from making mistakes; it's that SEATS is participating in and profiting from the same charter money scams that are going on all over the State to hide mistakes, if not outright corruption, from authorities. They simply occupy the special education niche within this whole shameful legislative disaster.
One of the other charter systems being scrutinized, now, is the Inspire chain of charter schools. I had a student on my caseload a year or two ago who was an Inspire student. His online/independent study program was chartered by none other than AADUSD. Inspire also has programs chartered in the San Diego area, where the A3 $50M matter was tried. Now Inspire is under scrutiny for, among other things, lack of transparency, and I'm not the least bit surprised.
Like most of my other special education students accessing in-home instruction through independent study and/or online instruction, my Inspire student's situation wasn't about school of choice. The brick-and-mortar setting wasn't accessible to this student because of his disabilities, making his living room the Least Restrictive Environment (LRE) in which he could receive and benefit from instruction. He had previously been in an independent study charter that used SEATS for special education and, when that didn't work out, they went to Inspire.
When things get so extreme that instruction in the home is the only way for a student to access education in a regular school district, you get a doctor's note stating that it's medically inadvisable for the student to attend a regular school and the IEP placement can be changed to home/hospital. The only placement more restrictive is a 24/7 residential facility with a school on its grounds. But, because every kid's living room is the general education classroom in an online or independent study program, it's not considered restrictive at all.
Because the general education "classroom" and special education "classroom" are the same thing in an online or independent study program, trying to write an IEP for a kid in such a program is generally a nightmare of technicalities and questions of procedure. Then there are the fights over where special education and related services will be provided.
Even though school districts will hire staffs to provide in-home services as needed to facilitate access to instruction, almost every online and independent study program I've ever encountered refuses to send anyone to the home for any special education purpose other than assessment, and even then, sometimes not. So, even if you've got a kid whose disabilities make it impossible to get them to participate in instruction and they need in-home BCBA support to overcome that behavioral challenge, most independent and online charters won't even think of sending over a BCBA or will only do it upon threat of complaints or litigation.
These online and independent study programs will try to get IEP services pushed out into the community rather than into the student's home, which mostly has to do with the insurance costs and the related liability of sending teachers and specialists into people's homes. They'll try to make the parents drive their kids to meet teachers and specialists in the community when these kids are only in home instruction because getting them out of the house is often so hard. One of my past clients would drive to the next town over with their kid to accommodate the fact that SEATS wouldn't pay their special education teacher mileage or time to drive to their community.
Instead of individualizing the instruction, online and independent study schools tend to use their pedagogy as their excuse for not tailoring the IEP to the individual student, as required by law. So, the bottom line to all of this is that parents of children with special needs in California need to think long and hard about whether a charter school is appropriate for those children, particularly an online or independent study charter.
It's not that charter schools, even the online and independent study ones, in theory, are a bad idea. It's that they are improperly regulated in California, so they are becoming something other than what they were intended to be. In no small part, this is because certain elements out there don't want their kids going to school with "those other kids," and are trying to twist the charter system into a system of segregation.
Whoever happens to be "other" relative to the parents practicing such bigotry and teaching it to their kids, with the help of the dysfunctional charter system for profit, depends on the parents. Sometimes it's racism. Sometimes it's religious extremism. Other times it's socio-economic classism. Sometimes it's people who don't want to be criminally prosecuted for not sending their kids to school and couldn't possibly care any less than they already do about education.
There are enough people out there who don't want to abide by public education's true intent and will try to twist the system to fit their ill-intentions to do obvious harm. Such has been the case with charter schools in California, which is finally prompting a louder call for more appropriate regulations. The concern for many is all kinds of vendors profiting from the existing dysfunctional system without delivering actual educational outcomes, which circles us around back to SEATS.
The situation with Peak Prep Pleasant Valley speaks to the running concerns I've had for years about how SEATS is funded. PVSD is asserting that Peak Prep violated the California Education Code and the State's labor laws by giving away its control of "hiring and termination decisions" to a third party contractor, called Educational Staffing Services (ESS). It is further asserting that Peak Prep "engaged in fiscal mismanagement" by giving over its administrative operations to yet another 3rd party contractor, Accel Schools, which is owned by the same guy who signed the contract between Peak Prep and ESS as ESS's CEO.
According to PVSD, Peak Prep gave Accel control of its funds and failed to complete requested financial documents. PVSD can't see how Peak Prep is using its funds because its operating budget is "obscured by a lump sum payment in exchange for the program services, all delivered by Accel." This is, to the best of my understanding, the same model as how SEATS gets funded.
Like Peak Prep giving its money to Accel in a lump sum, which then shows up in its budget as a single line item with no detail on how that money was spent, SEATS's clients are giving it lump sums that represent their entire special education budgets for the school year. I have to wonder just how many details they are sharing with their charters and how many of those details the charters are sharing with their chartering LEAs about where that money is going. I have reason to suspect that it's paying for cruises rather than special education services.
To be fair to vendors and contractors who serve charter schools in California, it's honest to say that the laws are a mess and even the most well-intended vendor is at risk of getting into trouble over finances just because of how poorly regulated charter schools are in California. Rabbi Mark Blazer, who spearheaded the failed AEALAS endeavor in the Santa Clarita Valley, was quick to point out "bad charter policy" in California, and he's not wrong that California's charter policies are bad.
It's just that most of the charters out there, in my experience, see the bad policies and weak regulations as exploitable opportunities for profit. The children and families horribly affected by their actions are just collateral damage, not the intended targets. Students are just a means to a financial end to these people. The harm done is all the same regardless of intent, and it's far-reaching.
A whole bunch of very crooked people have now stolen way too many taxpayer dollars in California that were invested by the public into education. California has created a charter school system that is more about moving money around, mostly into the pockets of the wrong people, than educating students. While Betsy De Vos may find that acceptable, most Californians - heck, most Americans - do not.
A system like this entices the least savory people on the planet to parasitically attach themselves to it wherever there is an exposed spot, such as the loophole-laden charter laws in California, and suck the system dry before it realizes how much it has hemorrhaged. The cases making it to media make that clear. The chief perpetrator in the $50M A3 scandal is an Australian national.
The unspeakable number of dollars spent on litigation, whether its families suing to get special education services or school districts suing each other over ADA dollars, takes funding out of the classroom and creates overworked and underpaid certificated personnel. This is a voter issue that isn't getting enough attention, but with the election coming up later this year, Californians will have the chance to hold the State and their local school boards accountable and elect or re-elect officials who will clean up these messes in a timely, responsible way.
Saturday Oct 26, 2019
Parents Who "School-Hop" Risk Making Things Worse
Saturday Oct 26, 2019
Saturday Oct 26, 2019
Image credit: Alan Levine
One of the situations I commonly encounter in working with students with special needs and their families in the public education system is a phenomenon that I've come to refer to as "school-hopping." Sometimes, parents who do not understand why their children are struggling assume that the problem is with the school, and, very often, there is a problem at school. But, quite often, the real issue is that the school is responding poorly to a disability-related need experienced by the student, so it's not just that there is something wrong at the school, there's something wrong with how it is responding to a special need that requires unique accommodations.
Put another way, there are two problems to resolve: 1) how to address the student's unique needs in an educationally appropriate and legally compliant way, and 2) how to address the internal problems at the school that are preventing this from happening. Parents will sometimes jump from a charter school to a district-run independent study program to a home-school group to a ... you name it ... trying to find the right fit for their child.
The problem with doing that is, unless a parent knows what specifically to ask any school to do for their child, they're just rolling the dice with every school change and hoping this one will finally be the one that fits. The whole purpose of special education is to impose structure on how education is tailored to each individual student. That way, it shouldn't matter so much where they are so long as the supports and services described by the student's individualized program are being delivered in that setting.
The guidance to the school site personnel as to how to do this comes in the form of a legally enforceable document called an Individualized Education Program (IEP). An IEP is created by a team of individuals described by federal law (34 CFR Sec. 300.321) according to specific criteria, also described by federal law (34 CFR Sec. 300.324). What the IEP says it what the responsible public education agency must do for the student for whom it is written.
It doesn't matter how many times a student with special needs changes schools if the IEP that follows them is garbage. Even when a student changes to an entirely different public education agency, the incoming IEP is what informs the new school team as to how to support the newly incoming student with special needs. If the IEP does not describe appropriate supports and services, then the new school is legally obligated to implement the garbage that the IEP describes, instead.
My point, here, is that changing schools under these kinds of conditions tends to just make things worse. Every school change means at least some part of a kid's file, if not the whole thing, gets lost in transit between one public education agency and the next. Assessment reports and old IEPs disappear from the record with frequent moves and school changes, so those items aren't there to inform a records review like they normally would as part of a new assessment conducted by a new education agency.
That makes it very hard for the new school to know where to begin with a new student with special needs. The parents are hoping the new school will somehow magically fix everything but each successive new school gets put further and further at a disadvantage as to where to even begin every time a new change in schools happens and records have to be shuffled around again.
I have yet to figure out why so many people start at the end rather than the beginning when it comes to individualized student planning. Placement - that is, the type of classroom setting(s) in which a special education student receives instruction - is determined by the IEP team as the last matter of properly conducted IEP planning for very important, logical reasons. There are a whole lot of other decisions that have to be made, first, before a placement determination can be made.
IEPs start out with identifying a student's present levels of performance, which seek to answer the questions, "What can the student already do?" and "What does the student still need to be taught relative to the grade-level standards and/or developmental norms?" On the basis of the answers to those two questions, goals are written that target measurable, annual outcomes.
The goals describe what the IEP is supposed to make happen. Until you know that, you don't know what all you need to actually educate the student.
For this reason, the IEP team next determines what services are necessary to see the goals met. On the basis of the frequency, duration, and location of the services necessary to meet the goals, in combination with the student's right to experience the least amount of segregation away from the general education population as possible, educational placement is then determined.
Parents who school-hop interfere with how the federally mandated process is supposed to work, usually without realizing the harm they are doing. Until the IEP describes goals in each area of unique student learning need in meaningfully measurable ways, it doesn't matter where the student goes to school; following a bad IEP in a new, good setting will still go wrong.
That said, I've seen plenty of situations where changing schools, even moving to entirely new school districts, has saved a kid's life. The challenge, though, was to get the IEP as good as we could get it before the student changed schools so the new, receiving school had something worth implementing once the student started attending there.
And, in California, where I do most of my work, whether a special education student moves during the school year or summer break has bearing on what is enforceable in terms of a transfer IEP. This added layer of complexity, which isn't the same in all the other States, makes the timing of everything that much more imperative when it comes to changing to a different school district or charter school. Parents who school-hop in California can do even more harm than they realize because of the odd State laws about transfer IEPs.
What's often more heartbreaking are families that are school-hopping because their child has never been offered an IEP and when they've asked about it, they've been shot down by school personnel who insist that their child would never qualify. In reality, it can be the case that the school personnel are just waiting for the family to pick up and move the student, again, at which point whether or not the student needs an IEP won't be that particular school's problem, anymore. There are unfortunately those in public education who will facilitate eliminating a problem rather than solving it, even if it comes at the expense of a child.
Parents who school-hop can call unnecessary attention to themselves as easily exploited by school staffs who would rather see them move along to the next school than stick around and insist that the current school do its job. At some point, school-hopping parents have to figure out that the school-hopping isn't working and, instead, they need to stand in one spot, dig in their heels, and get a decent IEP from whatever agency is responsible right at that moment. That might mean filing a lawsuit just to get an initial assessment, but if that's what it takes, that's what it takes.
Without a legally enforceable IEP document that describes something worth enforcing, no placement can be made to work. Federal law mandates that the education rendered to a special education student be in conformity with that student's IEP (34 CFR Sec. 300.17). If the IEP is garbage, then the school is legally obligated to implement the garbage until such time as the IEP can be made more appropriate.
As a parent, your number one objective when it comes to advocating for your child with special needs is to make sure that the services and supports provided are actually appropriate to your child's needs. Just having a document that says "IEP" at the top of it doesn't magically bestow educational benefits onto anybody. The contents of the document matter and, as a parent, you need to know how to look out for language in an IEP that could undermine your child and any exclusions of language that are important to meeting your child's needs from the IEP. More harm can be done by what is left out of an IEP than what is put into it.
Once you understand why placement is the last decision that should be made by an IEP team, you can understand why changing placement when things aren't going right doesn't always make sense. Unless you've got an amazing IEP and the people at the school site just aren't implementing it as written, there's a really good chance your problem is with the plan more than the placement.
Plans of any kind fail for only one of two reasons: 1) design flaws, or 2) implementation failures. Design flaws can sometimes only be identified when you try to implement the plan and something goes wrong. If you never implement the plan according to its design, you'll never know if the design was flawed or not because you weren't following it in the first place. If the design is great, but no one is following it, what's the point?
This analysis of plan success and failure came to me by way of my training in Applied Behavioral Analysis (ABA), which, by the way, is a science, not a treatment methodology. There are a lot of ABA-based treatment programs out there, but those programs are not what actual ABA is. They are based on ABA, some with more scientific rigor than others. The actual science of ABA can be applied to anything that behaves, including animals, plants, and computers.
From the absolute, parsimonious perspective of ABA as a science, everything is based on objectively identified behaviors, only, which are framed in quantifiable terms and rendered into emotionally neutral pieces of data. Further, not only is data taken on how the individual responds to efforts at changing its behaviors, data is taken on the fidelity with which those implementing the plan are actually adhering to it.
Taking data on the fidelity of the implementation of the program design is one of the most critical pieces of the science that often gets left out of school-based ABA-type programs. It's my assumption that this is for political and/or preemptive legal defense purposes because no school district that I know of wants data taken on the degree to which their staffs are actually adhering to any part of the IEP.
That's way too much accountability on the record and way too much risk of it capturing somebody doing it wrong that could then be used to prove a denial of a Free and Appropriate Public Education (FAPE) in hearing by the parents and achieve an order for compensatory education to make up for the lost instruction. Even though the science is abundantly clear that ABA data collection methods, when followed according to the science, are the most accurate, reliable, and valid data collected in the public education system for special education students (Drasgow, Yell, & Robinson, 2001; Kimball, 2002; Yell & Drasgow, 2000), I have yet to see that degree of scientific rigor applied to any part of a student's IEP in the public schools, whether it's through their measurable annual goals or any behavior plans that their IEP might contain.
As parents, your primary goal has to be the quality of the IEP's design because, if it doesn't describe what your child actually needs, it doesn't matter where you try to implement it and no placement will just magically fall in love with your child and imbue them with knowledge through emotional osmosis. Hope is not a strategy. Pursuing a scientifically informed, legally compliant IEP is a strategy that gives you way more likelihood of having a meaningful say in the quality of your child's education, regardless of where they attend school.
References:
- Drasgow, E., Yell, M.L., & Robinson, T.R. (2001). Developing legally correct and educationally appropriate IEPs. Remedial and Special Education 22(6), 359-373. doi: 10.1177/074193250102200606
- Kimball, J. (2002). Behavior-analytic instruction for children with autism: Philosophy matters. Focus on Autism and Other Developmental Disabilities, 17(2), 66-75. https://doi.org/10.1177%2F10883576020170020101
- Yell, M. & Drasgow, E. (2000). Litigating a free appropriate public education: The Lovaas hearings and cases. The Journal of Special Education, 33(4), 205-214. doi: 10.1177/002246690003300403