Bridging the Gap Between Policy and Practice in Inclusive Education: A Systematic Synthesis of Implementation Mechanisms Across Governance Levels

Abstract

International and national policy have been in place for inclusive education for 30 years, but implementation in classrooms is still lagging behind when compared to policy commitments in both high income and low resource education settings. This policy-practice gap that persists over time indicates that it is not just a lack of policy design that can account for failed implementation, but also structural and professional factors. This Review aims to bring together and review the empirical and conceptual research into the mechanisms which hinder the translation of inclusive education policy into classroom practice, and to suggest a more integrated approach to understanding how, and why, implementation fails. Methods: We used a systematic literature search that was carried out in five databases, using an identification, screening, and eligibility process that was based on the PRISMA guidelines. Fifty-eight sources were selected for analysis based on specified inclusion criteria and then analyzed thematically using the street-level bureaucracy theory and the stages of implementing framework. Findings: Four patterns of gaps were identified in the synthesis: discretionary enactment by frontline teachers, misalignment of resources and finances, inadequate infrastructure for monitoring and accountability, and lack of policy language translation to operational guidance. These domains were engaged at macro, meso and micro governance levels and the teacher discretion acted as the last and most important translation. Discussion and Implications: Coordinated action at governance levels is needed to bridge the gap, not at the classroom level; and there is a need for operational guidance, protected time for implementation, and outcome-based monitoring. Conclusions: The impact of the inclusive education policy depends not on the intentions of the policy, but on the structural and professional context that facilitates or hinders the implementation of the policy in the service delivery environment.