Premier’s Special Education Scholarship
Collaborative teaching for inclusion
in Italian secondary schools
Samantha Skinner
Duval High School
Sponsored by
This study investigates the nature of collaborative relationships between general and
special education teachers in Italian secondary schools. The United Nations Educational,
Scientific and Cultural Organization and the Organisation for Economic Co-operation
and Development have both cited Italy as the most advanced of its member countries in
the movement towards full educational inclusion for students with disabilities (Berrigan
1994). Indeed, it is the case that the Italian education system has undergone radical
reform since the late 1960s. As a result of these changes, in 1996, 98.5 per cent of all
children with disabilities in Italy attended regular classes (Vianello 1996; cited in Fu,
Stremmel & Hill 2002:7). It has been suggested that collaborative teaching is largely
responsible for the success of inclusion in Italy (Berrigan & Taylor 1997).
Legislation for inclusion
According to Vitello (1994:61), the Italian Communist Party initiated ‘revolutionary’
changes in the country’s social institutions, seeking full integration of the disadvantaged
and minority groups into mainstream society. In the late 1960s the country began to shut
down state institutions for people suffering from mental illness, and this spawned a
parallel movement within education (Fu, Stremmel & Hill 2002:7). At the same time,
explains Professor Andrea Canevaro of the University of Bologna, a surge in migration
from rural to urban areas, particularly from the South to the North occurred. This
resulted in cultural and dialectical changes within school environments, impacting on the
nature of teachers’ work and the inherent structure of schools. Inclusion of children with
diverse needs, backgrounds and abilities became customary. To this end, National Law
118, which secured the right of students with a disability to compulsory and regular
education in the elementary and middle school strata of the Italian education system, was
enacted in 1971 (Vitello 1994: 61).
This sudden insertion of students with disabilities into the regular school system
occurred with negligible planning and preparation, and very limited resources (Cecchini
& McCleary, 1985; cited in Vitello 1994: 62). To counter these difficulties, the Italian
parliament in 1977 enacted the multifaceted National Law 577, which officially shut
down special schools (Lebeer, Garbo, Engels & De Vroey 1999: 259). This law also
limits to 20 the number of students in a class which includes a student with a disability,
and mandates than no more than two such students may be enrolled in a single class. The
law states that support teachers (insegnanti di sostegno) be appointed to work within each
class (Fu, Stremmel & Hill 2002: 7). Law 577 legislates that the responsibility for
integration be shared between schools and the local health services (Azienda Sanitarià
Locale, or ASL). The ASL provides disability certification, therapy services and
equipment, as well as participating in regular planning meetings for individual student
programs.
In 1992, further legislation was introduced to address the need for greater expertise in
managing this radical shift in focus (Lebeer, Garbo, Engels & De Vroey 1999: 260). Law
104 specifies the need for the development of a ‘dynamic functional profile’ and a
personalised education plan for each student, in consultation with parents, health
professionals and teachers. Law 104 also defines the role of the insegnante di sostegno as
providing specialised teaching to the individual student and participating in the planning
and didactic activities of the whole class (FADIS 2005).
The development of a workable framework for the true inclusion of students with
disabilities must be an ongoing, highly reflective and reactive process. However, the
current reforms proposed by the Education Ministry of Letizia Moratti are widely
regarded as being disastrous for the future of inclusion and the role of support teachers
in Italian schools. Cost-cutting measures have resulted in a situation in which funding for
student education comes solely from provincial and local government sources, from the
health system and from the community itself. Given the huge disparities in wealth which
are evident across Italy, the Moratti reforms are proving particularly damaging for
students in the poorer south. In one middle school, the reforms have resulted in a
student losing four hours of support per week for this school year.
Structure of the Italian school system
Compulsory education in Italy begins at six years of age and ceases at age 14. Prior to
commencing school, children aged from three to five years may attend the scuola materna,
generally located on the same site as the subsequent scuola elementare, which students
attend until age 11. At this point they move to the scuola media, or middle school. After
grade 8, school is no longer compulsory; however, most students do continue on to the
scuola superiore as there are negligible opportunities for 14-year-old school leavers. The
scuole superiore, or senior high schools, are stratified and range from the intensely academic
licei, where students study the classics or sciences in preparation for university, to the
vocational or ‘terminal’ istituti professionale, artigiani e tecnici, where students study to prepare
for a trade or clerical career with no option for further study. It has only been since 1988
that students with disabilities were allowed to register for the scuola superiore, and currently
such students are concentrated in the vocational high schools, which have, in some cases
established pseudo ‘support units’ to cater for the special needs of their clientele.
Role of the insegnante di sostegno
The role of the insegnante di sostegno is not dissimilar to that of the support teacher learning
assistant (STLA) in New South Wales public schools. They work individually with
students who have certificates of disability, and in classrooms to support all students and
the teacher where appropriate. In each school visited, there was an aula di sostegno, or
resource room, where teachers could take students for one-to-one or small group
instruction. The support teachers generally spent such ‘withdrawal’ time working with the
student/s using concrete materials to teach maths concepts, using the computers, and
engaging in physical therapy or teaching difficult concepts through physical activity, for
example, jumping into ‘odd’ or ‘even’ numbered hoops.
The insegnante di sostegno is expected to engage in ongoing collaboration and consultation
with class teachers in order to follow and adapt the curricular program of the regular
class. In most cases, the success of such collaboration was seen to depend on several
factors: whether or not the sostegno and regular teacher have a compatible teaching
philosophy, the size of the regular class, and the willingness of the school principal to
create organisational structures, such as regular meeting times or simultaneous free
periods, which facilitate collaboration.
The sostegno also works in collaboration with the educatore. The role of the educatore can
perhaps be most easily compared with that of a teacher’s aide (special); however, theirs is
somewhat more complex. Educatori are responsible for developing and implementing an
effective integration and social skills program for a particular student. There were mixed
opinions in various schools as to the effectiveness of educatori; however, it seemed to be
the case that where school districts were able to devote extra time and money to
establishing a social skills curriculum, the role and function of the educatore were highly
valued by both staff and students.
Each insegnante di sostegno is employed for a maximum of 22 teaching hours per week in
the elementary schools, and 18 hours in the secondary schools. In some rare cases a
student with very severe disabilities is granted the entire caseload of one teacher.
Generally, however, a student with a severe disability will be granted nine hours of
support per week, while moderately impaired students could expect four to five hours
per week. Students who have been certified with mild impairments or learning difficulties
such as dyslexia could anticipate two to three hours of support per week. Support
teachers are employed, then, on the basis of the school’s enrolment of students with
disabilities, and this naturally varies from year to year.
Inclusion and collaboration in the scuola elementare
In order to better understand the nature of inclusion and collaboration at the higher
levels of schooling in Italy, it is necessary to examine the situation at the elementary
school level. In Italy, as in Australia, students are assigned to a particular class and
instructed by a single teacher for all subjects.
The Scuola Elementare di Lavino in Zola Predosa, a town approximately 10 km west of
Bologna, is a large public school on a site comprising preschool, elementary school and
middle school facilities. The school has two large school buses, a community access toy
library, child care centre, night school and substantial, well cared for play areas. There are
eight support teachers at Lavino.
In the elementary school, one support teacher, Maria, works with three students. She
does this both in class and by forming small groups which incorporate ‘her’ students.
Maria teaches for 22 hours per week, and this time is divided between three students
according to their individual needs. The philosophy of the Scuola Elementare di Lavino
demands that all teachers involved with a child who has special needs accept
responsibility for his/her education. The support teacher is known to the students only
as an ‘open-class teacher’, that is, they are a teacher who works with no particular student
or class group. Consequently students who work with Maria do not face the stigma of
going to the ‘special teacher’.
In the comune, or council, of Zola Predosa an arrangement has been reached whereby the
educatori receive specialist training and additional pay so that their status is almost
equivalent to that of the sostegni. In this school the educatori are key components of the
collaborative team for each student. Also, there is considerable collaboration between the
elementary school, the scuola materna and the scuola media during times of student
transition. The teachers at Lavino all asserted that collaboration was never a problem
because the teachers were given plenty of opportunity (two hours per week) to meet and
share experiences and understandings of the children. A vision statement outlining their
approach to integration has been formulated. It incorporates the requirements of laws
577 and 104 as well as acknowledging the shared responsibility of the whole school
community for the successful integration of students with special needs.
A visit to the scuola elementare in Falciano, north of Naples, provided an interesting point
of comparison. Here there are several students with disabilities, two of whom receive 22
hours per week of support, which is the maximum for elementary schools. The two
sostegni accompany their students at all times. One of the boys, suffering a hyperactivity
disorder and rare genetic syndrome, is removed from the class when the regular teacher
needs ‘space’ to work with other students. The school does not have computer facilities
or a gym and the teachers lament the limitations that this places upon their capacity to
program effectively and cater for individual needs. The lack of facilities is attributable to
the poverty of the municipality; however, the general mood of the school is upbeat and
the students are industrious. The insegnanti di sostegno work effectively as part of the team
with their class teacher colleagues to provide the best educational opportunities they can
for the students.
Inclusion and collaboration in the scuola media
The Italian scuola media functions similarly to the scuola elementare in that students are
assigned to a particular class. However, in this higher level, different teachers come to the
classroom for each subject. The students, though, do not move around the school.
The Scuola Media Statale Faustino Malaguti is in Crespellano, a suburb 19 km west of
Bologna. It is a school of 120 students and classes are generally small, consisting of only
15 to 20 students. There are two support teachers at the school, each of whom works
with two or three students. The focus of their work is to provide modified and
meaningful educational activities for the students. Once a month a ‘round table’ meeting
is held with teachers, sostegni, educatori, health personnel and family, to plan a student’s
educational, health and social skills development—their dynamic functional profile.
One sostegno, Grazia, reported that subject teachers are often reluctant to share
responsibility for the students with disabilities. They are seen as the ‘sostegno’s problem’
rather than a shared concern. Grazia indicated that this was an ongoing frustration for
her, especially since the Italian law guarantees all students full access to an integrated
educational setting. In general, Grazia’s work is quite isolated, and while she tries to echo
the work of the regular class in the individual programs for each student, the class
teachers do not appear to have much direct involvement with her. She expresses the
belief that sometimes integration is just ‘too hard’ and ‘too stress’ (sic) for students with
severe difficulties. At the same time, however, she feels that segregated support classes
can sometimes become ‘ghettos’ for the disabled.
While Grazia often feels obliged to withdraw her students for one-to-one tuition, at the
Scuola Media Statale Giovanni Bosco in Falciano, north of Naples, the students with the
highest level of need are never withdrawn from class. The teachers express quite
forcefully the belief that a constant presence in the classroom is necessary to maintain
proper integration. One student, Giuseppe, has a range of social difficulties, is excessively
shy and has a mild intellectual impairment. He works with his sostegno, Rosella, on an
individualised program within the realm of the regular classwork. Prior to high school
Giuseppe had no clear speaking skills. However, he has been granted access to a speech
therapist and is now beginning to socialise. Giuseppe receives 18 hours of support each
week. This is a high level for a student with relatively mild difficulties, but it has been
determined by the school community on the grounds that Giuseppe has a good chance
of overcoming his difficulties and may go to the Liceo Scientifico next year.
Inclusion and collaboration in the scuola superiore
As noted earlier, at this level of schooling, students with disabilities are concentrated in
the vocational strata of the school spectrum. A prime example is the Istituto
Professionale per i Servizi Sociali Elsa Morante in Florence. A school of about 350, it has
an enrolment of 40 students with special needs. The school prepares students for
employment in social and community work. Naturally, the support of students with
disabilities is a primary concern for this school and it has a range of excellent facilities
and a substantial, committed support staff. However, this concentration of students with
disabilities in such schools is perceived as an emerging problem. Dr. Renzo Liccioli, the
Director of Disability Services for the Ministry of Education in Tuscany, described the
development of an orientation program to promote the more theoretical levels of senior
high school to the families of students with disabilities. He feels that families often do
not consider the possibility that a more academic strand of education may be an option
for their child. Additionally, he flagged the establishment of collaborative networks of
schools across the spectrum of scuole superiore. Such a network would enable students to
access opportunities at different venues as appropriate to their needs.
Such opportunities are evident in the case of Vanessa, an 18 year old vision impaired
student completing her final year at the Istituto Statale di Istruzione Superiore Tecnica e
Scientifica Russell-Newton. Within this one institution students may study at an intensely
academic level in the liceo scientifico or select the more vocationally oriented avenues of the
istituto tecnico. Vanessa herself hopes to move on to university next year and her ambition
is to teach computing skills to other blind people. Vanessa’s Italian literature teacher has
become something of an informal mentor and he spoke proudly of her achievements in
moving independently around the large and confusing building. This independence has
been aided by a number of collaborative initiatives between the school and the Unioni
dei Ciechi (Blind Union). Additionally, the Union provides Braille translation services
whereby work is emailed to the translator one week in advance and returned in Braille
prior to the lesson. Vanessa uses a Braille notetaker with impressive skill. She is also
supported by a sostegno for 10 hours per week; however, several problems are highlighted.
Professore Benucci, Vanessa’s informal mentor, laments the fact that the sostegni are
generally young, inexperienced teachers who are keen to accrue transfer points and move
on. Consequently there is little continuity of service for Vanessa. Additionally, the sostegni
do not know Braille and have no experience of vision impairment. Vanessa says that she
often teaches her support teachers how to work effectively with her, and sometimes
finds it easier just to work alone.
At the Istituto Professionale Statale Industrial e Artigianato Gugliemo Marconi in San
Giovanni Valdarno, near Arezzo in Tuscany, two support teachers work closely with a
student, Ida, for 12 hours per week. Ida is enrolled in the fashion and textile program at
this vocationally oriented senior high school. She has a rare genetic syndrome and severe,
multiple disabilities. With no speech and poor motor skills, Ida is sometimes withdrawn
from class to work on a functional literacy/numeracy program incorporating movement
and physical activity. The support teachers, Cristiana and Claudia believe that the
collaboration which occurs between the support staff and the regular class teachers is a
vital and productive component of Ida’s program. Because she is only supported for 12
hours per week, teachers ensure that they are equipped with appropriate material for Ida
to work on in cooperative groups. These materials are developed in consultation with the
sostegni during regular meeting times. Cristiana feels that the principal, Professore
Alessandro Artini, is particularly supportive and understanding of the requirements of a
successful special education program. She suggests that this is a primary factor in the
collaborative work which occurs between staff members. Cristiana perceives that her
presence in the classroom is valued and that she is regarded as a support for the teacher
and the whole class.
The supportive philosophy of the Istituto Professionale Statale Industrial e Artigianato
Gugliemo Marconi is particularly evident in Ida’s case. She has been permitted to remain
at the school for two extra years at the maximum level of funding. During this time, and
accompanied by an educatore, she will undertake a Project of Life, involving work
experience in a florist’s and travel training. The investment of funds into the support of a
student beyond the compulsory years of schooling is indicative of the strong principles
of social justice which apparently underpin this school.
Conclusions
That Italian teachers are committed to the principles of inclusive education is beyond
doubt. A three-day conference in Rimini, entitled La Qualità dell’integrazione scolastica, was
attended by no less than 4,000 delegates from all parts of Italy. However, the physical
removal of special schools and segregated settings for students with disabilities is not
solely the key to successful inclusion, and the current Moratti reforms threaten to undo
what has already been achieved
Observations over the course of this study suggest that there are several necessary
precursors to successful inclusion. Firstly, organisational structures must allow for
productive meeting times, where decisions are made in consultation with all stakeholders.
Secondly, students must have the necessary augmentative equipment and smaller classes;
and thirdly, there must be an overriding acceptance of the right of students with ‘diverse
abilities’ to have full access to a mainstream education.
As suggested at the outset of this report, collaboration between general and special
educators is indeed fundamental to the success of inclusive education in Italy. However,
the nature of schools and the people within them means that the level of success is
variable. Generally, it would seem that at the elementary school level, collaborative
practice occurs naturally and school structures lend themselves to teamwork and shared
decision-making. As the subject based divisions of the middle and high schools come
into play, however, collaboration becomes increasingly difficult for teachers, and must be
worked upon consciously.
References
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Syracuse. http://web.syr.edu/~thechp/italy.htm
Berrigan, C. & Taylor, D. 1997, Everyone Belongs: School Inclusion and Social Relationships in
Italy, Center on Human Policy, Syracuse. http://web.syr.edu/~thechp/italy2.htm
FADIS, 2005. Brochure of the Federazione Associazioni di Docenti per l’Integrazione
Scolastica. Further information available at http://www.integrazionescolastica.it
Fu, V., Stremmel, J. and Hill, L. 2002, Teaching and learning: Collaborative exploration of the
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inclusive action; a concluding perspective’. In: Inclusive Education: supporting inclusion in
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Journal of Disability, Development and Education, Vol. 41, No.1, pp61–70. University of
Queensland Press, Brisbane.