Educating Students With Disabilities During the COVID-19 Pandemic: Lessons Learned From Commerce Independent School District

Abstract

As a result of the COVID-19 pandemic, many school districts have moved from brick-and-mortar instruction to remote instruction with little planning time and limited resources. Rural localities, already facing barriers and hardships, attempted to provide special education and related services in accordance with rapidly changing state and federal guidelines. Despite funding difficulties and challenges with serving students eligible for special education during a pandemic, there are districts that leveraged the strengths of rural communities to meet student and family needs. Commerce Independent School District is one exemplar. The purpose of this article is to highlight successes and lessons learned to offer guidance to districts as we continue to navigate challenges associated with the COVID-19 pandemic.

Keywords

COVID-19 remote education rural special education online education

In 1918, influenza created a global pandemic, taking the lives of millions of people. Nearly every person knew a victim (Morens & Taubenberger, 2018; Viboud & Lessler, 2018). However, out of the 1918 pandemic, numerous improvements to public health and safety were made. We learned the importance of handwashing and sanitation, the merits of isolation to avoid spreading the virus, and the significance of educating the public about the virus to decelerate the spread of the pandemic (Martini et al., 2019). Until the COVID-19 pandemic this year, it would have been difficult to imagine such dire circumstances in today’s mobile economy (Morens & Taubenberger, 2018). Over 100 years later, much of the knowledge about pandemic spread that we gained in 1918 was useful during the COVID-19 pandemic of 2020.

For many schools, the transition from face-to-face instruction to remote learning during the COVID-19 pandemic was not their finest hour, particularly for underresourced, underserved rural schools. Gross and Opalka (2020) surveyed a nationwide sample of 477 school systems. Of those surveyed, a mere 27% of rural schools reported expectations of teachers to provide instruction to students, compared with more than 50% of urban schools. Prior to COVID-19, Showalter et al. (2019) completed an evaluation of the state of rural education in the United States. Findings indicate that although overall National Assessment of Educational Progress (NAEP) performance is on par with the national average, rural schools in impoverished areas score significantly lower than their more adequately resourced peers. Texas is currently working to improve special education identification procedures and services provided through a corrective action plan (CAP) initiated by the U.S. Department of Education (Texas Education Agency, 2019). Despite funding difficulties and challenges with serving students eligible for special education during a pandemic, there are districts that leveraged the strengths of rural communities to meet student and family needs. Commerce Independent School District is one exemplar. The purpose of this article is to highlight successes and lessons learned to offer guidance to districts as we continue to navigate challenges associated with the COVID-19 pandemic.

Commerce Independent School District

Commerce Independent School District (CISD) is a member of the Tri County Shared Services Arrangement (SSA) that includes eight other neighboring districts. Tri County SSA has provided leadership and special education supports to districts in Delta, Hopkins, and Hunt counties since 1975. According to their website (http://www.commerceisd.org/page/Tri_County), the mission of the cooperative is to “assist district educators and administrators in providing a quality education with appropriate special education services to students with special needs to help each student successfully reach their full potential” (p. 1). Under the leadership of the Director of Special Education, the SSA provides assessment and related services to area districts. These services include speech and language therapy, occupational therapy, and counseling. Other related services are provided by contract. CISD has a dedicated center-based program for students with emotional and behavioral disabilities.

CISD district is located on the eastern edge of north Texas in rural Hunt County. The district is the second largest district in the Tri County SSA. CISD includes four schools: two elementary schools, Commerce Elementary School and A.C. Williams; one middle school, Commerce Middle School; and one high school, Commerce High School.

District Personnel

District personnel include 113 teachers, nine school-based administrators, and seven central office administrators. A dedicated Caregiver and Family Coordinator and Technology Coordinator support student needs. Each school also has a dedicated counselor and a medical clinic that assists with ensuring students have access to vaccines and medical care. Afterschool programming is provided through the Boys and Girls Club and the grant-funded Afterschool Centers on Education (ACE) program. Each school has at least two special education teachers and a dedicated Dyslexia Specialist. The CISD Board of Trustees includes six members with experience in business, agriculture, education, and public service.

Parents and Families

According to the U.S. Census Bureau, Commerce is home to 2,931 families. About 17% of residents are younger than the age of 18 years. Almost 40% of families live in poverty with a median household income of US$24,640. Texas A&M-Commerce, an R2 university, is the main employer in the area. About 65% of Commerce residents rent with a median rental cost of US$799 per month. Despite economic conditions, almost 78% of families have a computer and 68% of households have access to broadband internet (U.S. Census Bureau, 2020).

Students

CISD serves 1,603 students from diverse backgrounds. About 48% of students identify as White, 22% as Black, and 21% as Hispanic. Approximately 64% of students qualify for the free and reduced lunch program, one method of determining socioeconomic status and economic disadvantage. State of Texas Assessments of Academic Readiness (STAAR) testing results, an end-of-course state-administered test for Grades 3 to 12, suggest that CISD students are performing below state averages. The percentage of students receiving special education services and from economically disadvantaged backgrounds exceeds the state average (Special Education: CISD = 12.50%, Texas = 9.60%; Economically Disadvantaged: CISD = 65.8%, Texas = 60.60%). The percentage of students from economically disadvantaged backgrounds continues to grow with over 72% of Commerce Elementary and A.C. Williams Elementary students classified as being from economically disadvantaged backgrounds. The mobility rate, a measure that includes students transferring in and out of district, is also above the state average (CISD = 16.10%, Texas = 15.40%; Texas Education Agency, 2019). See Table 1 for demographic information by school.

Table 1.

CISD Demographics by School.

School	Enrollment	No. special education teachers	% students receiving special education	% students economically disadvantaged	% students English learners	Class size average	Mobility rate (%)	Per pupil expenditure
Commerce Elementary	378	3	11.10	75.70	13.80	18.40–20.90	19.90	US$6,086
A.C. Williams Elementary	335	3	11.90	72.70	11.60	20.00–26.10	18.40	US$5,808
Commerce Middle	345	2	15.10	62.00	7.50	14.60–18.60	13.70	US$6,610
Commerce High	458	4	12.00	55.90	5.20	13.30–20.80	14.10	US$6,600

Note. Data were obtained from the Texas Education Agency School Report Cards (Texas Education Agency, 2019) and CISD Student Handbooks (see https://www.commerceisd.org/). Additional information about calculations is available from the websites. CISD = Commerce Independent School District.

CISD’s Response to COVID-19

The authors have worked together on several projects through school–university partnerships, and CISD gave generously their time to share lessons learned from their work during COVID-19. The authors met in May 2020 by Zoom to discuss the successes, lessons learned, and plans for future directions as CISD navigated ramifications from COVID-19. Several themes from the meeting with Dr. Patricia Tremmel, Assistant Superintendent, and Ms. Rachel Myers, Tri County SSA Director of Special Education emerged. These themes included (a) effective communication, (b) collaboration, (c) professional development and resource distribution, (d) compliance, and (e) effective translation of state and federal guidelines. The themes align with identified strengths and resilience of rural special education programs (Berry et al., 2011; Curtin et al., 2016; Fleming et al., 2018).

Communication

Open lines of communication, especially in times of crisis, can mitigate feelings of uncertainty and anxiety (Heide & Simonsson, 2014). At the onset of the COVID-19 closures, administrative teams met, including central office, special education, school, and community leaders. Dr. Tremmel, Assistant Superintendent, worked with principals and communicated directly with teachers through a series of memos. See Figure 1 for an exemplar. The Board of Trustees continued to meet and worked hand-in-hand with school administration to ensure clear communication with families and the community.

Figure 1.

Sample memo.

Texas Education Agency (TEA) mailed learning packets directly to student homes. However, returning these packets to schools for grading and feedback became problematic. According to state guidelines, the packets had to remain untouched for 48 hr. In addition, there were logistical issues, such as packet drop-off locations and district representatives to collect the packets, that needed to be addressed. Waiting over 2 days for feedback can be difficult for students with learning, emotional, and behavioral disabilities who benefit from evidence-based practices, including explicit instruction, frequent feedback, and behavior-specific praise. CISD worked through these issues by deploying a system of frequent communication. Special education teachers began to contact the families of each of the students they served districtwide. These initial contacts were to assess the needs of families as the COVID-19 closures began and were completed by phone, conferencing software, and email.

To further facilitate communication, CISD implemented the use of ClassDojo, a free communication platform, to get in touch with families. ClassDojo facilitates easy communication with parents by allowing teachers to replace lengthier correspondence (e.g., email and newsletters) with succinct updates and reminders, including the use of pictures in Class Story, to keep families updated with important information. While mass communication platforms may not reach every family due to access issues and internet availability, ClassDojo, available on laptop and mobile devices, allowed everyone—caregivers, students, and teachers—to be informed simultaneously. Communication with caregivers and students was thoughtful and forward looking. CISD created logs to document teacher contacts with caregivers as well as for related service providers, especially speech pathologists who focused on caregiver training and support to assist students with maintaining skills and to document contacts with caregivers during the COVID-19 closures. These logs created records of communication frequency and method to ensure information to families was timely and purposeful. Understanding that caregivers may be overwhelmed with sudden changes to daily routines, teachers initially contacted caregivers to gauge caregiver need and address initial concerns and questions. See Figure 2 for an exemplar.

Figure 2.

Sample counselor contact log.

In the following weeks, regular communication, adjusted for individual caregiver preference, was in place to give updates, provide resources, and answer questions. In some cases, students were provided with individualized materials such as visual schedules, based on student daily schedules at school, to help maintain the skill of time management and support home routines.

Beginning the second week of COVID-19 closures, CISD switched from learning packets provided by TEA to an online instruction format. Although these learning packets were based on state academic standards, they were not individualized for student need. With the start of online instruction, individualization of content, tied to individualized education program (IEP) goals, became possible. Because CISD opted for letter grading (A, B, C, etc.) rather than a grade of pass or fail, teachers created assignments for a distance learning model while meeting as many state academic standards as possible. Letter grading provided a more thorough evaluation of student progress than a pass/fail option. For example, students enrolled in welding classes could not engage in welding at home, due to safety and lack of welding equipment. However, other academic standards could still be incorporated into online learning such as measurement, safety procedures, and practicing for state exams. Special education teachers met with students’ general education teachers, related service providers, and counselors to ensure assignments aligned with student IEP goals and that accommodations and modifications were in place. As students were at home with caregivers, teachers led IEP meetings to ensure that students could continue to make progress to the fullest extent possible and to review accommodations and modifications. Speech pathologists and counselors were available for telesessions if caregivers were interested. Special education teachers continued to address IEP goals in an online format by holding one-on-one and small group sessions using Zoom (https://zoom.us/) or Flipgrid (https://info.flipgrid.com). The technology coordinator shared resources and ongoing trainings through Google Drive (https://google.com/drive) so that teachers could support students using Zoom and Flipgrid platforms that were user friendly and available on mobile devices. Even if students did not have personal cell phones, they could use a caregiver’s phone, if necessary, to watch the instructional videos. CISD also provided laptops and hotspots so that students could access instruction and to assist with communication.

Educational needs were not the only student needs addressed. Counselors were available via teletherapy for behavioral counseling and to promote mental health. This was especially important for students with behavior intervention plans (BIPs) who may need additional support while at home as well as for students feeling overwhelmed with COVID-19 closures who needed extra support and strategies while adjusting to instruction in a new environment. As further assistance, district counselors uploaded links to resources for social and emotional learning on school websites. To reach as many families as possible, information to access food distribution services and community resources was posted on social media.

Community Partnerships

As a rural school district, CISD formed numerous partnerships with community members and community organizations. These collaborative efforts ensured public safety by adhering to state safety guidelines and provided essentials, including food and connections to mental health services to the community. The district’s health services collaborated with district food service to facilitate food distribution to students. School employees, including paraprofessionals, and school community members, including school board members, volunteered to help distribute food. Social media posts on Facebook and online garage sale websites facilitated news and information, greatly increasing food distribution efforts while creating the ability to reach more students and families.

Community organizations, such as Boys and Girls Club and ACE afterschool program staff, created weekly videos that were posted on social media to inform families about local resources and to facilitate homework assistance for students. For example, CISD ACE program staff read books aloud daily that were assigned by teachers so that more students had access. Other community leadership organizations, including funeral home directors, the Chamber of Commerce, Rotary Club, and Kiwanis Club, worked with community churches and their congregations in the effort to distribute food. These partnerships supported caregivers and students, and food distribution was a successful effort. Caregivers shared during food pickups, emails, and phone calls that they appreciated the collaboration of the school and the community and benefited from the district’s efforts to provide food. Important to note is that the school and food distribution became a touchstone for the community. Food distribution facilitated partnerships with outside agencies in the community and allowed the schools to collaborate and build a working knowledge of community resources. As another point of outreach to the community, schools in CISD were able to connect families with other resources, besides those the schools could provide, to assist families in the community fill outstanding additional needs. CISD was able to successfully contact every student and their family within the first 2 weeks of the transition from brick-and-mortar instruction to remote learning.

Resources and Professional Development

Resources

CISD’s creative and judicious management of resources allowed them to support students—including those who receive special education—school families, and teachers during the COVID-19 closures. Students continued to receive special education services through online instruction, learning packets, virtual meetings, teleservices, and counseling. In addition, CISD made sure that each student had the necessary equipment, materials, and resources to continue to make progress on IEP goals and objectives and made a concerted effort to support students receiving special education services who had BIPs to address behaviors and concerns while students were not in school. School administrators, in collaboration with district special services, created contact logs to record document concerns and connections to school and community resources to promptly address concerns. Counselors provided support to caregivers and students who were unsure about new COVID-19 changes and the new reality presented by the pandemic.

While TEA provided learning packets directly to students during the first week of COVID-19 closure, CISD was committed to starting a distance learning model at the beginning of the second week of closure to provide the best learning model available on short notice. However, some students had limited or no access to the internet or technology at home. To combat this digital divide, CISD ordered mobile hotspots for student use at home. These hotspots were distributed to families who did not have internet at home. Because instruction was online instead of being in a traditional face-to-face format, it was necessary for students to have reliable internet connectivity for instruction. Flexibility was key because first responders received hotspot priority. CISD continued with paper learning packets while hotspots were becoming available. In addition to hotspots, CISD distributed Chromebooks to students at a ratio of one Chromebook per family of two students. Families with one or two school-aged children received one Chromebook and families with three or more children received two Chromebooks for their family to share. Recognizing families may still have needs beyond internet service and Chromebooks, CISD continued to reach out to families, facilitated by the district family services coordinator, in case families had additional needs that the district could help meet.

In a continuing effort to meet the needs of students and families, CISD was able to offer additional learning options in June 2020, including a jumpstart program, in face-to-face format. The jumpstart program provided the opportunity to reacclimate students and families to school 2 weeks before the beginning of the academic year. However, due to the COVID-19 pandemic, high school students are currently receiving remote instruction. Elementary and middle school students have options to attend school in a hybrid format.

Professional development

With students and families supported, CISD began to focus on supporting teachers. As the likelihood of extended COVID-19 closures progressed beyond a few weeks, CISD provided all teachers with a 2-day virtual professional development training focused on remote instruction. CISD realized the varied range of exposure and knowledge gap in technology of educators within the district. Given these disparities, every teacher received training to become comfortable with an online learning format, including learning how to navigate Google Classroom. Furthermore, Tri County SSA offered trainings and a Google Drive folder with a plethora of training opportunities and resources to support teachers.

In preparation for the upcoming school year, CISD is aware that some students have existing trauma not related to COVID-19 closures and other students also may have trauma from the closure itself. Teachers will receive professional development that addresses trauma and the challenges for students returning to the structured school environment and how best to support these students as they transition back to the school and begin to reengage with peers in a structured environment.

Services and Compliance

Providing quality special education services and remaining compliant with numerous special education timelines can be daunting in the best of times. As COVID-19 closures suddenly and abruptly changed service delivery for districts across the nation, it is important to note that CISD met annual admission, review, and dismissal (ARD) meeting timelines. While no evaluations were held in a traditional face-to-face format, meetings were held virtually when possible. A few of the initial evaluations were unable to be completed because data were insufficient to make an eligibility decision. In these cases, CISD worked with families and provided written notice to caregivers of intent to complete the evaluation process when school resumed. Partial completion of initial evaluations was necessary as some of the required information for initial placement in special education services requires collaboration between multiple parties and must be completed when face-to-face meetings are possible. If sufficient information was available to make eligibility decisions, CISD continued to complete those timelines and began serving students. Amendments to IEPs occurred through virtual meetings as needed. In addition, progress monitoring of students continued throughout the COVID-19 closures.

Information collected during the transition from brick-and-mortar school to remote learning will be compared with academic standing at the beginning of the 2020–2021 school year. At that point, ways to mitigate any deficiencies caused by COVID-19 closure (e.g., extended school year) will be addressed by the IEP team. Student IEP goals have been addressed (i.e., reinforced and updated as necessary) through goal-specific packets and phone or video conferences with caregivers and other IEP team members. In addition, CISD made sure assignments provided to students during the distance learning model were modified in accordance with student IEPs. Caregiver information about skills students were learning and mastering while at home was collected and used to help update IEP goals as needed. CISD also monitored students with BIPs and is cognizant of potential challenges in returning to school at the start of the next academic year.

Dissemination and Translation of Guidance Documents

TEA and the Office of Special Education Programs (OSEP) provided information to caregivers and schools regarding addressing COVID-19 closures as related to special education. TEA’s Instructional Continuity Plan, in four phases, included guidance for at-home learning and providing monitoring and support for students during the school. At-Home Learning Phase 2 discussed resources for at-home learning during the summer months (https://tea.texas.gov/texas-schools/health-safety-discipline/covid/covid-19-support-instructional-continuity-framework). Numerous resources, including Public Broadcast Service information, are included in this guidance. CISD monitored these guidance documents and adjusted educational plans accordingly with the goal of providing the best education for students, especially students with disabilities, during the unprecedented times.

Lessons Learned

Many lessons can be learned from CISD’s example. First and foremost, CISD leveraged the strengths of rural special education. A few of these strengths included (a) a long-standing history of strong relationships with students and families (Conroy, 2017, Nelson & Rogers, 1987; Thurston & Navarrete, 2017), (b) effective community partnerships (Curtin et al., 2016; Maheady et al., 2017), (c) family partnerships (Suppo & Floyd, 2017), (d) quality professional development (Erickson et al., 2012), (e) strong communication (Gosselin & Sundeen, 2019), (f) resource allocation and training (Berry et al., 2011), (g) effective dissemination practices (Cook et al., 2013), and (h) a commitment to procedural and substantive compliance (Hott et al., 2019).

Throughout the entire COVID-19 closure, CISD collaborated with all stakeholders, internal and external, to meet the needs of the community. The COVID-19 pandemic presented numerous problems for school districts across the country. This is understandable; a global pandemic, such as COVID-19, has not occurred in over a century. Through CISD’s efforts, community partners and school employees became part of the solution. Caregivers were enthusiastic and engaged partners with the district during this time of uncertainty and seemingly ever-changing public health and safety guidelines. The district’s creative ways of communication, including using Facebook and online garage sale sites, to inform the community were not characteristic of school districts nationwide. Efforts to support students with disabilities were documented and student IEP progress continued to be monitored. Teachers were supported through numerous forms of communication and professional development about technology, providing the tools necessary for teachers to educate students during a public health crisis. See Figure 3.

Figure 3.

CISD COVID-19 education themes.

Although many rural localities face barriers, including poverty, geographic isolation, lack of access to specialists, and broadband connectivity challenges, they also have many unique strengths (see Rude & Miller, 2017). The entire CISD and Commerce community rallied to meet student needs during unprecedented times. CISD’s flexibility, including several plans to address student needs such as continuing remote instruction, closing due to COVID-19 exposure for an isolation period, and plans for reopening for the 2020–2021 school year were essential components that allowed Commerce and CISD to meet the various needs of their stakeholders. The effects of the leadership team, including teacher leaders, cannot be understated. Remote instruction has not replaced brick-and-mortar education and further inquiry is needed to determine the impact of online instruction when implemented during a crisis such as the COVID-19 pandemic. However, strategies such as those implemented by CISD have the potential to ameliorate disparities between rural students with disabilities and students without disabilities. CISD continues to work diligently to provide quality special education services as COVID-19 continues to impact the community. The latest updates are available on the CISD website (see www. https://www.commerceisd.org/).

Footnotes

Declaration of Conflicting Interests

The author(s) declared no potential conflicts of interest with respect to the research, authorship, and/or publication of this article.

Funding

The author(s) disclosed receipt of the following financial support for the research, authorship, and/or publication of this article: This project was supported by a grant from the Vice President for Research and Partnerships of the University of Oklahoma.

ORCID iD

Brittany L. Hott

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