PBA: Overrepresentation of English Language Learners in Special Education 1
PBA: Overrepresentation of English Language Learners in Special Education
Eric Kursman March 30, 2014 George Mason University EDUC 615 Dr. Nancy Holincheck
PBA: Overrepresentation of English Language Learners in Special Education 2 Abstract Across the country, schools and districts have been reporting disproportionate enrollment numbers of English Language Learners (ELLs) who are also in Special Education (SpEd) programs. A variety of factors, everything from eligibility tests to teacher efficacy to abuse of SpEd referrals, may contribute to the inequitable population numbers. This overrepresentation underscores the research detailing one of the most significant injustices incurred by non-native English-speaking students, raising questions about underlying assumptions of ELLs and the capability of the United States public school system to provide equitable access to appropriate educational services. A recent equity audit at Blue Ridge Middle School in Loudoun County, Virginia showed a similar overrepresentation of ELLs in its SpEd program; this issue now rests in our own backyard. There are, however, a variety of strategies and programs, such as Natural Language Sample testing and RTI-like referral systems, that could remedy these injustices and cultivate more responsive and equitable educational opportunities. The following policy brief and action plan seek to explore the most current literature, school-based findings, and recommended actions to restore equitable educational practices to Blue Ridge Middle School and countless other public schools throughout the United States.
PBA: Overrepresentation of English Language Learners in Special Education 3 Policy Brief CONTEXT AND IMPORTANCE Millions upon millions of young people rely on the public education system each year for everything from college preparation workshops to after-school care to a hot breakfast. Undeniably, two of the most important services provided to young people in this country include English Language Learner (ELL) programs and Special Education (SpEd) services; according to the National Center for Education Statistics, 4.7 million students receive ELL services and 6.4 million students receive SpEd services. These statistics do not cause alarm by themselves, but they do elicit a cause for concern if there is an overrepresentation (or an underrepresentation, for that matter) of ELLs receiving SpEd services. In the past 15 years, researchers have begun to study concerning correlations and trends that have been anecdotally noted by classroom teachers for years: when it comes to dual-labeled students, more ELL students qualify for SpEd services than any other reporting category (FRL, gender, ethnicity). In a notable study, Sullivan (2011) found a striking overrepresentation of ELLs receiving SpEd services, more so in district reporting that in state reporting. (The category of a Specific Learning Disability (SLD) was the most frequent overrepresented reporting category.) Sullivan (2011) also found that districts with higher proportions of students identified as ELLs were less likely to have disproportionality in SpEdwhereas districts with high proportions of teachers with ESL certificates were more likely to place students identified as ELLs in (SpEd). In short, districts with smaller ELL populations reported dual eligibility (ELL and SpEd) than districts with larger ELL populations. Given these potentially worrisome conclusions, many possible explanations surface to shed light on the disproportionalities uncovered by Sullivans study. One potential rationale PBA: Overrepresentation of English Language Learners in Special Education 4 comes from testing for eligibility. When referring students to SpEd eligibility testing, language is a key component to the testing process: if the students first language (L1) is not English, they must be tested in their first language. Many such tests exist in multiple languages and in many commercially-available forms, however many of these tests measure students L1 in an academic dialect instead of conversational dialect. According to Macswan and Rolstad (2006), many of these commercially-available tests find more false positives in academic language comprehension than accurate measures of a non-linguistic disability; in their study, more than 75% of ELLs who have never even been considered for SpEd services tested low enough on two commercially-available tests to require SpEd services. On the other hand, when using Natural Language samples instead of the commercial tests, only 4% of all ELLs were found eligible for SpEd services. The accuracy and capability of L1 tests has not been the most reliable indicator of whether an ELL should qualify for SpEd services. Another potential rationale for an overrepresentation of ELLs in SpEd is the timing of when eligibility testing occurs. Hibel and Jasper (2012) found that many children (with an L1 other than English) were referred to ELL programs in grades one through three instead of SpEd services. SpEd identification and intervention is most effective in grades one through three; when potentially-eligible students are referred to ELL programs instead of SpEd services, they miss the window that can greatly reduce the hazard of future academic risk. This study suggests that the timing and placement of eligibility testing has an enormous impact of whether students should receive dual labels (ELLs in SpEd). A final potential rationale explored in literature of the sad notion that SpEd services can be viewed as a fix-all by educators and education systems. Maxwell and Shah (2012) explore how SpEd became a dumping ground of sorts in western states; many students were referred to PBA: Overrepresentation of English Language Learners in Special Education 5 SpEd services with concerns unrelated to cognitive ability and incorrectly identified as SLI when a more meaningful and accurate assessment of their learning struggles revolved around first and second language navigation, not SLD. The problem of overrepresentation of ELLs in SpEd has far-reaching ramifications. First, the Individuals with Disabilities Education Act (IDEA) requires that eligibility testing be administered in a students L1; if the test is administered in an academic dialect of a students L1 instead of a conversational dialect, not only will the test yield inaccurate results, but it will also create a deeper discrepancy in equity when it comes to accessibility of fair testing. These inequities are echoed by de Valenzuela et al (2006) who found a rising rate of ELLs in SpEd; the study promptly raised questions about underlying assumptions regarding placement of ELLs. Second, ELLs are protected under the Civil Rights Act, which requires schools to improve language deficiencies of students (NCES, 2010). If schools are not accurately measuring and attending to students language and/or cognitive disabilities, this yields yet another equity concern for public education of whether the services students receive are precise and fair.
WHAT IS BEING DONE Concerns regarding overrepresentation of ELLs in SpEd yields a thorny, complicated issue. Not only are educators faced with the reality that testing resources are not significantly reliable or capable yet of determining language deficiencies or cognitive disabilities, but this issue intersects with fluid cultural differences and the underlying equity of the service our public education systems provides to our young people. On the bright side, however, there are a number of actions taking place across the country that address the concerns on two fronts: testing and teacher efficacy. PBA: Overrepresentation of English Language Learners in Special Education 6 The first of the two-pronged approach is to reform the eligibility testing system. As Macswan and Rolstad (2006) suggested, a number of districts are moving away from commercially-available eligibility testing in a students L1 and shifting towards Natural Language Samples (conversations in lay terms) administered by speakers of a students native language. Although these tests are understandably more expensive and logistically difficult to administer, they have yielded much more accurate results of a students language ability versus potential cognitive disability. In addition, districts are also combating the missing window in service referrals with RTI-like screening procedures. The critical time frame for service referrals, cited by Hibel and Jasper (2012), has in part prompted districts in California to develop and administer response-appropriate studies of student performance to better determine a more accurate placement for services for the child. A large team of stakeholders come together for each student of concern to create a series of techniques that allow stakeholders to gain a better picture of a students deficiencies and, in turn, provide a more accurate placement for services (if they are needed). The second of the two-pronged approach to overrepresentation of ELLs in SpEd addresses classroom concerns for students who are already dual-labeled: teacher efficacy. A study from Barbetta and Paneque (2006) found that teachers who were even minimally proficient in a students L1 reported higher efficacy ratings on their ability to reach dual-labeled (ELL/SpEd) students. (Naturally, higher efficacy ratings resulted in higher student academic achievement.) In the time since, districts with high ELL populations have begun to provide ELL and ESL professional development for faculty, especially SpEd educators, with the hopes of PBA: Overrepresentation of English Language Learners in Special Education 7 providing better services to dual-labeled students (some of whom were incorrectly dual-labeled) including improving communications between the school, families, and the community.
RECOMMENDATIONS Given the research on the overrepresentation of ELLs in SpEd and the actions being taken across the country to combat the problem, the following are further recommendations to better serve students in our region: I. District Level Recommendations a. Provide funds to hire new testing specialists who are proficient in many languages. This will enable increased access to Natural Language samples and more reliable testing procedures. b. Provide training for ELL teachers to administer Language Sample tests. While testing specialists are trained to examine all aspects of a students learning deficiencies, ELL teachers primary role is to assess language processing and growth. If ELL teachers helped administer eligibility testing, they would be better positioned to differentiate between language deficiencies and cognitive disabilities than traditional testing specialists. c. Develop a district-wide task force to scrutinize eligibility referrals from grades one through three. An additional task force would be able to provide greater study of students whose L1 is not English to better determine whether academic deficiencies are related to language concerns or potential SpEd disabilities. PBA: Overrepresentation of English Language Learners in Special Education 8 d. Create a new position in testing services whose focus is language development. This individual would be an integral player in the aforementioned task force to more accurately determine a students placement based on their observed needs. e. Develop RTI-like screening programs for early grades. By involving all stakeholders to develop techniques to address students deficiencies, the accuracy of service placement will increase. II. School a. Provide incentives for all teachers to seek ESOL training/certification. By encouraging all teachers to become more knowledgeable in addressing student concerns, efficacy (and subsequent academic achievement) will increase. b. Create a position on the eligibility testing team for an ELL teacher. As mentioned in the district recommendations, ELL teachers are well-versed in assessing language deficiencies; their effort would be invaluable when determining the placement of a student. c. Provide TESOL training for all SpEd teachers. If SpEd professionals are trained in TESOL, they have a better opportunity to support dual-labeled students. d. Create school-based PD on minimum language proficiency for most represented L2s. If all faculty (including general education teachers) received even minimal proficiency training in L2s, their efficacy ratings may improve in the classroom setting. III. Classroom a. Allow students to complete some academic coursework/assessments in L1. Language should not be a barrier to demonstrating comprehension; if a dual-labeled student can PBA: Overrepresentation of English Language Learners in Special Education 9 only provide answers in their L1, we as teachers should not block access for student demonstration of mastery. b. Create personalized L1-to-Academic-English cards for question comprehension. By providing each dual-labeled student a laminated card that translates tasks from Academic English to their L1, they have a better opportunity to comprehend the task and better demonstrate their understanding. c. Use voice recording software for students to record essay answers that will later be typed in ELL setting. Similar to the first suggestion, if dual-labeled students can demonstrate mastery in their L1 but not the Academic English expected in classroom settings, they should be provided the opportunity to showcase their understanding of the content, (initially) regardless of language.
Action Plan MY CURRENT SITUATION AND IMPORTANCE In 2012, Principal Brion Bell earned Blue Ridge Middle School (BRMS) the distinct honor of hosting the Western Loudoun hub for English Language Learners through Loudoun County Public Schools. The move was carefully designed to rely on a number of key components: community, developing the Parents as Educational Partners (PEP) team (for which I was a part of) to serve as an intermediary body to empower non-native English-speaking parents; scheduling, hiring a new English Language Learner (ELL) teacher (to be shared between Blue Ridge and our feeder high school, Loudoun Valley); and public relations, taking to various news outlets to show the Purcellville community that the oldest middle school in the county was PBA: Overrepresentation of English Language Learners in Special Education 10 still capable of learning new tricks. As the 2012-13 school year wore on, however, staff struggled to meet the needs of the new student population; in the programs infancy, staff training had yet to begin. Slowly, staff members (myself included) noticed that what seemed like a large population of our ELL program was also receiving Special Education (SpEd) services in addition to their ELL classes. Curious as to whether this anecdotal observation bore fruit, I focused part of my Equity Audit (Appendix) on the proportion of ELL students dual- labeled as SpEd students. Not only did my findings support my suspicion, it showed that 83% of our ELL students were also receiving SpEd services. The analysis was clear: Blue Ridge Middle School over-represents English Language Learners in Special Education more than any other subgroup. The findings of this equity audit were significant as it shined a light on the issue of minority overrepresentation in SpEd services, especially at Blue Ridge. In his work, de Valenzuela (2006) explored the gross social injustices raised by disproportionate enrollment of minority students in SpEd programs across the country Blue Ridge seemed to be no different. At BRMS, 28% of the current SpEd population consists of students or color; in contrast, only 19% of the student body is non-white. This indicates that although BRMS does not possess an atypical overrepresentation of minority students in SpEd, 16 36 10 35 21 83 WHITE BLACK ASIAN HISPANIC OTHER ELL P e r c e n t a g e
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E d u c a t i o n Reporting Groups Special Education Breakdown by Reporting Group Students from grades 6-8 PBA: Overrepresentation of English Language Learners in Special Education 11 enrollment is higher than that of non-white students in the entire student body. Looking closer, one needs to consider the work of Sullivan (2011) that investigates an overrepresentation of ELLs in both district and state reporting of SpEd populations. This is where the issue became abundantly clear: 83% of Blue Ridge Middle Schools ELLs are also dual labeled for Special Education. On the surface, this finding may simply raise questions about the new ELL program, but below the surface, this finding could suggest the prevalence of significant inequity in Loudoun Countys newest ELL hub. If the latter holds to be true, Blue Ridge Middle School may be the all-too-common ill- equipped system providing students with an education that does not meet their needs as learners. SpEd eligibility testing at BRMS for non-native English speakers is delivered in paper and pencil assessments in the students native language (L1). Macswan and Rolstad (2006) explored how this very type of commercially-available, paper-pencil test is nowhere near as accurate in distinguishing language difficulties from learning disabilities as Natural Language samples; Blue Ridges current testing methodology is simply inadequate. In addition, Blue Ridge Middle School may be abusing Special Education referrals as Maxwell and Shah (2012) discuss: by enrolling ELLs in SpEd to supplement language services from an underfunded and under- resourced ELL program, Blue Ridge may be using the SpEd program as a fix all. Considering these early developments in the schools new ELL program, BRMS may be on track to do more harm than good for these students. DESIRED OUTCOMES Just as in backwards planning during classroom curriculum development, one needs to consider what a fix to this overrepresentation of dual-labeled students would look like. Numerically speaking, the answer is simple: one would hope for a more normed representation PBA: Overrepresentation of English Language Learners in Special Education 12 of ELLs in SpEd, numbers that would be similarly comparable to those of any other subgroup of the SpEd population. Given current enrollment numbers, that would mean a drastic 60% decrease in dual-labeled students. How would the school achieve these numbers? Through a reformation of SpEd eligibility testing for non-native English speakers and increased teacher training for dual-labeled students. With regards to eligibility testing, the school would first abandon their current commercially-available paper-pencil eligibility tests in favor of Natural Language Sample assessments. Next, the school would include the ELL instructor as a member of the SpEd eligibility testing team for all referrals of non-native English-speaking students. Finally, the school would rely on our ELL instructor or language experts hired by the county to accurately administer and analyze Natural Language Sample assessments. The school would also see an uptick in teacher efficacy due to enhanced professional development. First, SpEd teachers would earn dual-certification in TESOL, and our ELL teacher would earn a SpEd endorsement. By equipping SpEd and ELL teachers with the necessary training to better understand and support our current dual-labeled students, teacher efficacy would rise, just as indicated by Barbetta and Paneque (2006) in their study of teacher efficacy of dual-labeled students. Second, the faculty would be trained on how to deliver support and monitor interventions for ELL students who may be referred to SpEd for testing. This training would help the staff distinguish between language difficulties and learning disabilities, not to mention how to support students who are suspected of exhibiting struggles with both.
PBA: Overrepresentation of English Language Learners in Special Education 13 ACTION PLAN What should be done and why The first thing Blue Ridge Middle School needs to do is overhaul the SpEd eligibility testing process. To begin, Natural Language Sample assessments need to replace the commercially-available L1 eligibility tests that current assess students in the academic dialect of their native language; this current measure has the tendency to result in false positives, incorrectly identifying non-native English speakers for SpEd services when the test only measures unfamiliarity in an academic dialect, not comprehension and processing of the more common conversational dialect. Second, more staff needs to be included on the eligibility testing team. Our ELL teacher should hold a spot on the team as she is the classroom professional who works with ELLs every day and has vast experience identifying and supporting non-native English speakers. Also, the eligibility testing team also needs to include a language professional from the county who can speak a students native language; this individual will be able to administer and more accurately assess Natural Language Sample assessments. Third, specialized training should be provided for all SpEd and ELL teachers. Special Education teachers should receive TESOL training, and our ELL teacher should receive SpEd professional development. In doing so, the school would better support its specialists to meet the needs of its dual-labeled students and increase their efficacy in being able to do so. Finally, Blue Ridge Middle School should develop an RTI-like referral program for all ELL students being considered for SpEd services. As Maxwell and Shah (2006) note, similar referral programs currently help teachers in California to better support potentially dual-labeled PBA: Overrepresentation of English Language Learners in Special Education 14 students in their classroom. By training the BRMS faculty in a similar RTI-like program that specializes in support strategies and classroom interventions, staff efficacy would increase with regards to identifying, supporting, and referring ELL students for possible SpEd services. Specific steps and a corresponding timeline To enact such a bold and comprehensive overhaul, the following steps would need to take place: Date Action 4/7/14 Meet with principal Brion Bell, present these findings, and convince the BRMS administrative team to take action 4/14/14 Write a grant to cover the additional expenses of Natural Language Sample tests 5/1/14 LCPS hires 20+ language experts as consultants, fluent in more than 60 different languages, to administer Natural Language Sample tests 6/2/14 LCPS provides funding for ELL and SpEd teachers to receive additional certification, endorsements, and/or training through George Mason University 8/4/14 Train ELL teacher to become member of eligibility testing team 8/5/14 BRMS SpEd eligibility testing team redesigns procedures to utilize Natural Language Sample tests, ELL teacher expertise, and language expert consultants to better distinguish between specific learning disabilities and language difficulties 8/7/14 BRMS admin team and eligibility testing team convene to use outcomes of 8/5/14 meeting to create an RTI-like referral system for SpEd services for ELL students 8/18/14 More than half of the SpEd department signs up for TESOL certification through George Mason University; ELL teacher signs up for SpEd endorsement through George Mason University 8/20/14 Deliver professional development to BRMS faculty on how to utilize RTI-like referral system 9/1/14 BRMS hires Sullivan as consultant to visit school and provide feedback on new system
PBA: Overrepresentation of English Language Learners in Special Education 15 Resources and Permissions Needed This audacious and wide-reaching plan would require the following resources and permissions: Resources Permissions Funding for Natural Language Sample testing Principal to proceed with this plan Funding for 15+ new county-employed language experts as consultants School Board to approve increased spending Full day of training for ELL teacher to become part of BRMS eligibility testing team Loudoun County Board of Supervisors to approve increased spending Full day (time, funding for time worked, computer access, teleconferencing access) retreat for eligibility testing team to redesign testing process for non-native English speakers Personnel Services for hiring
Full day (time, funding for time worked, computer access) training to use outcomes of aforementioned retreat to design RTI-like referral system Professional Development committee at BRMS
Funding for ESOL/SpEd certs/training for ELL/SpEd staff Half-day training for faculty to learn new RTI-like referral system Funding to hire Sullivan as consultant
Anticipated obstacles There are a number of hurdles that the above plan would need to clear to lift off the ground. First and foremost, funding. Currently, the budget of Loudoun County Public Schools is already stretched too thin to provide some of the services that are already established throughout the school system. With the Board of Supervisors currently threatening to slash the PBA: Overrepresentation of English Language Learners in Special Education 16 LCPS budget below its current operating level, the district might not be able to finance new personnel hires, even as consultants. Another obstacle would be community buy-in. The Purcellville community has exhibited tendencies in the past to reject new programs or initiatives that the general public does not find value in. Educating the BRMS community about the benefits, including the potential long-term cost savings in more accurately providing SpEd services, would be a challenge. Finally, and perhaps most importantly, one must consider the issue of teacher buy-in. In the current climate of education, there seems to be a never-ending flow of new initiatives, extra trainings, and additional exercises trickling down from the federal, state, and local levels; the overabundance of teacher responsibilities has led to increased push back against these new programs. In order to prove to the BRMS faculty that this new RTI-like referral program is not just one more thing on their plate, the staff would need to understand the grave inequity that currently exists in our most underrepresented population and how this inequity impacts everyone at the school in multiple ways. Although selling the staff on this plan may not be as difficult as convincing the community, the persuasion of the staff must be resolute in order to more meaningfully meet the needs of our dual-labeled ELL/SpEd population.
Reflective Narrative WHAT I LEARNED THROUGH THIS PROCESS Out of everything that I learned throughout my data gathering, my research, and my analysis, one common phrase stood out to me: sunshine is the best disinfectant. As a member of my school for the past five years, I have always been cognizant that Blue Ridge Middle School PBA: Overrepresentation of English Language Learners in Special Education 17 could be more equitable (especially with regards to minorities and non-white students), but this concept was always more ethereal than tangible. That is, until I conducted this equity audit. I found that just the simple process of collecting and disaggregating a quantitative (or qualitative, for that matter) audit can not only highlight key points of interests, but it can also transform perceived discrepancies to be much more tangible and concrete. Furthermore, I realized that audits such as this are not confined to school-wide levels with deeply impactful findings: I can also use audits with my students to help inform classroom-based decisions. MY ROLE AS A TEACHER Most importantly, this process reinforced my awareness of my role as an advocate for all of my students, most especially for those who cannot or do not advocate for themselves. Teachers are often the last line of offense for students who struggle to speak up for a myriad of reasons, from language barriers to innocent ignorance to a lack of confidence. I can continue to be that last line of offense, but in order to be an advocate, I need to be aware of the issues facing my students on a daily basis. This process showed me that through teacher-led action research (such as this equity audit) and frequent review of current literature (such as this policy brief), I can stay better informed of the hurdles my students face but may not be able to clear all by themselves. A simple example that arose from this process is my new awareness of the concept of academic English as a third language for some of my ELLs (Zwiers, 2004). This new idea also dovetailed in my research: non-native English-speaking students may also face an academic dialect of their L1 on eligibility tests a fourth language! By recognizing the hurdles of academic dialects in eligibility testing and classroom culture, I can more appropriately meet the needs of my dual-labeled students by working to create meaningful interventions (such as Natural Language Sample testing for eligibility assessments). PBA: Overrepresentation of English Language Learners in Special Education 18 MY NEXT STEPS AS A TEACHER LEADER With regards to this study, my first step is to bring this research to my schools Equity Team. Again, sunshine is the best disinfectant; the Blue Ridge Equity Team needs to recognize and be aware of the gross overrepresentation of ELLs in SpEd and its ramifications with regards to our schools equitable services for our dual-labeled students. On a larger scale, however, my next step is to become even more mindful of my students struggles, especially those that are not easily visible or audible. This approach will require more reflection on my part as an educator, a professional, and as an advocate for young people. I will need to question more, to investigate more, to reflect more, and to engage with my colleagues and peers about these issues. Throughout all of my studies in teacher leadership and administrative leadership, I have found that often times, it can be more difficult to inspire others in a top down fashion than on a grassroots level. I believe that my role as a teacher not an administrator provides me with the opportunity to motivate my peers on the same level, eye to eye; my work as a teacher leader can inspire the grassroots action that comes from being a change agent. Considering my role, my power, and my responsibility as a teacher leader, I am reminded of Michie (2010) when he discusses avoiding the undertow of teaching and, as a teacher, keeping your eyes on the shore as a guidepost. In the current era of countless new initiatives and policy-driven directives, one can easily lose sight even if just for a moment of their role as an educator, a mentor, a coach in their students eyes. I believe our students are the shore. They are the goal we fight for, the guidepost to swim towards. Even if all our students can do is trace a simple SOS in the sand, we need to keep our eyes fixated on them so we can eventually ride out the rip current and crawl ashore. PBA: Overrepresentation of English Language Learners in Special Education 19 References Barbetta, P. & Paneque, O. (2006). A Study of Teacher Efficacy of Special Education Teachers of English Language Learners with Disabilities. Bilingual Research Journal, 30(1), 171- 193. de Valenzuela, J. S., Copeland, S. R., Huaging Qi, C., & Pack, M. (2006). Examining Eeducational Quity: Revisiting the Disproportionate Representation of Minority Students in Special Education. Exceptional Children, 72(4), 425-441. Hibel, J. & Jasper, AD. (2012). Delayed Special Education Placement for Learning Disabilities among Children of Immigrants." Social Forces, 91(2), 503-529. Macswan, J. & Rolstad, K. (2006). How Language Proficiency Tests Mislead Us About Ability: Implications for English Language Learner Placement in Special Education. Teachers College Record, 108(11), p. 2304 - 2328. Maxwell, L.A. & Shah, N. (2012). Evaluating ELLs for Special Needs a Challenge. Education Week, 32(2), 1-12. Michie, G. (1993). Teaching in the undertow: Resisting the pull of schooling-as-usual. In W. Ayers (Ed.), To Teach: The Journey of a Teacher. New York, NY: Teachers College Press. Sullivan, A.L. (2011). Disproportionality in Special Education Identification and Placement of English Language Learners. Exceptional Children, 77(3), 317-334. Zwiers, J. (2004). The third language of academic English. Educational Leadership, 62(4), 60- 63. PBA: Overrepresentation of English Language Learners in Special Education 20 (2010). Status and Trends in the Education of Racial and Ethnic Minorities. Retrieved from http://nces.ed.gov/pubs2010/2010015/indicator2_8.asp.
PBA: Overrepresentation of English Language Learners in Special Education 21 Appendix (double click to view)