Inclusion and education

particularly during transitions between levels or types of education.
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As education systems strive to become more inclusive of all learners, 
they need to shift the terminology from needs to rights
FIGURE 2.2:
Two-thirds of education systems in the region have a definition of inclusion that focuses on multiple groups
Number of education systems with definitions of (a) special education needs and (b) inclusion, by focus
Education systems
Yes, focuses on special education needs/disability
Yes, focuses on multiple groups
No
Has a definition of special education 
needs in law or guidelines
Has a definition of inclusion
in law or guidelines
Yes, linked to disability
Yes, not linked to disability
No
30
25
20
15
10
5
0
Source: 
Data collected for the regional report on inclusion and education in Central and Eastern Europe, the Caucasus and Central Asia.
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However, some countries, including Belarus and 
Croatia, use broad definitions of inclusion but continue 
to focus primarily on special education needs and 
disability. Countries say the lack of a clear definition 
of inclusive education leads to inconsistent legislation 
and disconnected policy implementation. Policy change 
requires a shared understanding of key ideas and 
concepts associated with inclusive education. Otherwise 
new terms may replace old ones with little or no change 
in the thinking behind the policy or practice (European 
Agency, 2013, 2015). In some cases, such as those of 
Albania and Turkey, countries use a definition originating 
in project work, usually led by non-government or 
international organizations, without fully understanding 
the concepts.
The move to define inclusive education not just in terms 
of disability but as high-quality education provision for all 
learners is supported by documents recognizing multiple 
groups’ education rights. Almost all education systems 
in the region link disability and special education needs 
to vulnerability in national laws and plans for education. 
But social protection, child rights, housing and other 
characteristics are also receiving attention (
Figure 2.3
).
At least 27 countries and territories guarantee the 
education rights of ethnic, linguistic and religious 
minorities through laws on education in minority 
languages; freedom of choice regarding religion and 
belief; the need to foster ethnic identity, history and 
culture in education; and prohibition of segregation 
by ethnic group. Segregation is explicitly considered 
a form of discrimination, as recommended by the 
European Commission against Racism and Intolerance, 
the independent human rights monitoring body of the 
Council of Europe (Council of Europe Commissioner on 
Human Rights, 2017). Latvia, Lithuania, North Macedonia, 
Poland, the Republic of Moldova and Slovakia have 
focused on providing access to mainstream education and 
reducing segregation. For instance, North Macedonia’s 
2019 law on primary education explicitly prohibits 
discrimination, encourages interethnic integration and 
envisages education mediators for Roma children from 
socially vulnerable families.