Report to the Chairman and Ranking 

Minority Member, Subcommittee on 

Human Rights and Wellness, 

Committee on Government Reform, 

House of Representatives 

United States Government Accountability Office

GAO

January 2005 SPECIAL 

EDUCATION 

Children with Autism 

GAO-05-220 
Page 1 GAO-05-220 Special Education 

January 14, 2005 

The Honorable Dan Burton 

Chairman 

The Honorable Diane E. Watson 

Ranking Minority Member 

Subcommittee on Human Rights and Wellness 

Committee on Government Reform 

House of Representatives 

According to the Autism Society of America, about 1.5 million Americans 

are currently living with some form of autism. This figure includes over 

100,000 school-aged children diagnosed with autism served under the 

Individuals with Disabilities Education Act (IDEA), the primary federal 

legislation that addresses the educational needs of children with 

disabilities. As the number of children diagnosed with autism has 

increased, interest in understanding how children diagnosed with autism 

are being served under IDEA has grown. 

You expressed an interest in the education of children with autism, and in 

this report we are describing the trend in the number of children 

diagnosed with autism served under IDEA, the services provided to these 

children, the estimated per pupil expenditures for educating children with 

autism, and approaches to their education. 

To determine the number of children diagnosed with autism served under 

IDEA, we relied on data collected for the Department of Education 

(Education). To describe the services provided to children with autism, we 

reviewed relevant literature and spoke with Education officials. To 

describe the estimates of per pupil expenditures for educating children 

with autism, we reviewed data collected and analyzed by the Special 

Education Expenditure Project (SEEP), which was funded by Education 

and was the only national source of this type of data. We spoke with 

Education officials about the proper use and reliability of the data we used 

and found them to be sufficiently reliable for the purposes of this report. 

However, some weaknesses with the SEEP data exist, including a low 

survey response rate, potential response bias, and limited documentation. 

Finally, to describe approaches to the education of children with autism, 

we reviewed a 2001 report by the National Research Council on the 

education of children with autism. We conducted our work between 

United States Government Accountability Office

Washington, DC 20548 
Page 2 GAO-05-220 Special Education 

November and December 2004 in accordance with generally accepted 

government auditing standards. 

On December 13, 2004, we briefed your staff on the results of our study. 

This report formally conveys the information provided during that 

briefing. In summary, we found: 

The number of children diagnosed with autism served under IDEA has 

increased by more than 500 percent in the last decade. In 2002, data 

collected for the Department of Education indicated that nearly 120,000 

children diagnosed with autism were being served under IDEA. This 

substantial increase may be due to a number of factors, including better 

diagnoses and a broader definition of autism. 

The services provided to children with autism depend on the needs of the 

child. These services may include speech therapy, occupational therapy, 

and the services of special education teachers. As with other children with 

disabilities, children with autism are eligible for special education services 

under IDEA in accordance with their individualized education programs 

(programs established by a team familiar with the needs of the child). 

The average per pupil expenditure for educating a child with autism was 

estimated by SEEP to be over $18,000 in the 1999-2000 school year, the 

most recent year for which data were available. This estimate was nearly 

three times the expenditure for a typical regular education student who 

did not receive special education services and was among the highest per 

pupil expenditures for school-age children receiving special education 

services in public schools. 

Finally, the National Research Council report offered several key features 

of successful approaches to the education of children with autism, 

including early intervention soon after the diagnosis of autism, which can 

generally occur by the age of 3. The report also offered guidelines 

regarding educational objectives for children with autism, including the 

development of social skills and expressive and receptive language and 

communication skills. 

We provided a draft of this briefing to officials at Education for their 

technical review and incorporated their comments where appropriate.
Page 3 GAO-05-220 Special Education 

Unless you publicly announce its contents earlier, we plan no further 

distribution until 30 days after the date of this report. At that time, we will 

send copies of this report to the Secretary of Education, relevant 

congressional committees, and other interested parties and will make 

copies available to others upon request. In addition, the report will be 

available at no charge on GAO’s Web site at http://www.gao.gov. 

If you or your staff have any questions about this report, please contact 

Marnie Shaul or Deborah Edwards at (202) 512-7215. Nagla’a El-Hodiri and 

Art Merriam also made key contributions to this report. 

Marnie Shaul 

Director, Education, Workforce, 

 and Income Security Issues 
Page 4 GAO-05-220 Special Education 

1

Education of Children with 

Autism

Briefing for Staff of 

Rep. Dan Burton, Chairman

and 

Rep. Diane E. Watson, Ranking Minority Member 

Subcommittee on Human Rights & Wellness

Committee on Government Reform

House of Representatives

December 13, 2004
Page 5 GAO-05-220 Special Education 

2

Introduction

• The Individuals with Disabilities Education Act (IDEA) is the 

primary federal legislation that addresses educational needs 

of children with disabilities, including autism.

• It is estimated that more than 1.5 million Americans live with 

some form of autism, including more than 100,000 children 

served under IDEA.

• Given the above numbers, there has been growing interest in 

the education of children with autism.
Page 6 GAO-05-220 Special Education 

3

Research Questions

1. What is the trend in numbers of children with autism 

receiving services under IDEA?

2. What services are provided in educating these children?

3. What are the estimated per pupil expenditures for 

educating children with autism in public schools?

4. What approaches are used in educating children with 

autism?
Page 7 GAO-05-220 Special Education 

4

Scope and Methodology

• To determine the trend in the number of children with autism 

receiving services under IDEA, we reviewed and analyzed 

Department of Education data. We interviewed officials from the

Office of Special Education Programs (OSEP) about the proper use

and reliability of the data.

• To determine the range of services provided to educate children 

with autism, we reviewed relevant literature and interviewed OSEP 

officials. 
Page 8 GAO-05-220 Special Education 

5

Scope and Methodology

• To determine the estimated expenditures associated with the education of children 

with autism, we reviewed existing Special Education Expenditure Project (SEEP) 

reports that analyzed expenditures by disability. In addition, we interviewed officials 

from OSEP regarding the proper use and reliability of the data. 

• We found the study to be sufficient for informational purposes; however, the 

reliability of these data is undetermined for policy analysis. We are reporting on this 

study because the number of children with disabilities covered by the survey is 

sizeable and the results provide information about the magnitude of expenditures – a 

“ballpark estimate.” However, weaknesses in this study exist, including a low survey 

response rate, potential response bias, as well as limited documentation.

• To describe what is known about approaches to educating children with autism, we 

reviewed the recent report Educating Children with Autism (National Research 

Council) and spoke with Education officials.

• We conducted our work from November to December 2004 in accordance with 

generally accepted government auditing standards.
Page 9 GAO-05-220 Special Education 

6

Summary of Results

• Data collected for the Department of Education indicate that 

the number of children ages 6 through 21 diagnosed with 

autism served under the IDEA has increased by more than 

500 percent in the last decade.

• A variety of services, such as speech therapy and 

counseling, are made available to support the education of 

children with autism, in accordance with the child’s needs.
Page 10 GAO-05-220 Special Education 

7

Summary of Results

• The SEEP report estimated that the average per pupil 

expenditure for educating a child with autism was more than 

$18,000 in the 1999-2000 school year. This amount is almost 

three times the average per pupil expenditure of educating a 

child who does not receive any special education services.

• According to a 2001 National Research Council report, 

intervention at an early age is a key feature of successful 

approaches to educating children with autism.
Page 11 GAO-05-220 Special Education 

8

Background

• Autism spectrum disorders (ASD) are complex and include a 

number of disorders.

Figure 1: Disorders Included in the Range of ASD
Page 12 GAO-05-220 Special Education 

9

Background

• Estimates of the prevalence of ASD range from 2 to 6 per 1,000 

children. 

• Characteristics of ASD are generally present by the age of 3 and

include

• deficits in social interaction,

• deficits in verbal and nonverbal communication, and

• repetitive behaviors or interests.

• Often children with ASD have unusual responses to sensory 

stimulation. 
Page 13 GAO-05-220 Special Education 

10

Background

• Currently, there is no consensus about the cause of ASD.

• Theories regarding the causes of ASD include genetic 

components, environmental components, and some 

combination of genetics and the environment. 

• While no known cure for ASD exists, the general 

agreement is that early diagnosis followed by appropriate 

treatment can improve outcomes for later years for most 

children with ASD. 
Page 14 GAO-05-220 Special Education 

11

Background

• IDEA is the primary federal law that addresses the unique 

needs of children with disabilities, including autism.

• The act

• mandates the availability of a free appropriate public 

education for all eligible children with disabilities,

• requires an individualized education program (IEP) for 

eligible children with disabilities,

• requires the inclusion of students with disabilities in 

statewide and districtwide academic assessment 

programs, and

• requires the placement of students in the least restrictive 

environment.
Page 15 GAO-05-220 Special Education 

12

Background

• SEEP was funded by Education to examine the nation’s 

spending on special education and related services.

• SEEP reports are based on the analyses of data for the 

1999-2000 school year. Data were collected by surveys at 

the state, district, and school levels. The databases include 

a sample of approximately 10,000 students with disabilities.
Page 16 GAO-05-220 Special Education 

13

Research Question 1

What is the trend in numbers of children 

with autism receiving services under 

IDEA?
Page 17 GAO-05-220 Special Education 

14

Increased Numbers of Children Diagnosed 

with Autism Receiving Services under IDEA

• The number of children ages 6 through 21 diagnosed with autism

receiving services under IDEA has increased more than 500 

percent over the past 10 years, from under 20,000 in 1993 to 

almost 120,000 in 2002, according to data collected for the 

Department of Education.

• Possible reasons for this increase include:

• The advent of better diagnoses.

• A wider range of conditions being categorized as ASD.

• A higher incidence of autism in the general population.
Page 18 GAO-05-220 Special Education 

15

Increased Numbers of Children Diagnosed 

with Autism Receiving Services under IDEA

Figure 2: Trend in Number of Children Ages 6 – 21 Diagnosed with Autism Served 

under IDEA by Age.
Page 19 GAO-05-220 Special Education 

16

Increased Numbers of Children Diagnosed 

with Autism Receiving Services under IDEA

• The number of children ages 6 through 21 diagnosed with 

autism receiving services under IDEA has grown at a higher 

rate than the number of children diagnosed with certain other 

“low-incidence” disabilities (see fig. 3).
Page 20 GAO-05-220 Special Education 

17

Increased Numbers of Children Diagnosed 

with Autism Receiving Services under IDEA

Figure 3: Trend in the Number of Children Ages 6-21 with Certain Low-Incidence 

Disabilities
Page 21 GAO-05-220 Special Education 

18

Research Question 2

What services are provided in 

educating children with autism?
Page 22 GAO-05-220 Special Education 

19

Services Can Vary According to a Child’s 

Needs

• A wide range of services can be available for children with autism, 

including 

• special education teachers/aides,

• speech therapists,

• behavioral therapists,

• occupational therapists,

• physical therapists, and

• counselors/psychologists.
Page 23 GAO-05-220 Special Education 

20

Services Can Vary According to a Child’s 

Needs

• Children with ASD may demonstrate a variety of manifestations 

of the disorder and need services accordingly. For example: 

• A child with autistic disorder may have great difficulty 

communicating and may need services focused on speech 

development.

• A child with Asperger’s disorder may be more verbal than 

other children with autism and may have average or above 

average intelligence, yet still be in need of services. 

• In addition, services required for an individual child with autism 

can change over time. 
Page 24 GAO-05-220 Special Education 

21

Services Can Vary According to a Child’s 

Needs 

• Children with autism are generally eligible for services under IDEA, 

including early intervention, preschool and school-age programs, 

and transitional services. 

• IDEA Part C promotes early intervention for children with autism by 

funding early intervention services (birth to age 3).

• Early intervention services

• are administered by a state-designated lead-agency,

• include of a range of allowable services to address developmental delays,

• can be provided in home and in community settings, and 

• provide a transition to preschool.
Page 25 GAO-05-220 Special Education 

22

Services Can Vary According to a Child’s 

Needs

• IDEA Part B supports the educational needs of children with autism, ages 3 

through 21. 

• Preschool and school-age instructional and related services (3 through 21 

years):

• are administered by state and local education agencies and

• include a range of allowable instructional and related services to address a student’s individual educational needs.

• School age postsecondary transition services (generally 14 through 21 years):

• are administered by state and local education agencies,

• provide movement from school to post-school activities, and

• identify the role of agencies in providing and funding transition services.
Page 26 GAO-05-220 Special Education 

23

Research Question 3

What are the estimated per pupil 

expenditures for educating children 

with autism in public schools?
Page 27 GAO-05-220 Special Education 

24

SEEP Estimated Per Child Expenditures of Educating 

Children with Autism

• According to SEEP, the estimated expenditure per child with autism

was $18,790 in the 1999-2000 school year, the most recent year for 

which data are available. For the same school year, per pupil 

expenditures for the typical regular education student were $6,556.

• Included in this amount are expenditures associated with:

• Instruction 

• Regular education

• Special education 

• Administration and support

• School and district levels

• Special education program

• Regular and special transportation services

• School facilities
Page 28 GAO-05-220 Special Education 

Note: Apparent differences may not be statistically significant. 25

SEEP Estimated Per Child Expenditures of Educating 

Children with Autism

• According to SEEP, the estimated average annual 

expenditures of educating a child with autism were generally 

greater than those of educating a child with other disabilities 

in public school settings.

Table 1: Estimated per pupil expenditure by disability in 1999-2000 (in dollars), rounded 

to the nearest hundred.

a This figure represents the average expenditures for students with disabilities including those listed 

in this table as well as other disabilities.
Page 29 GAO-05-220 Special Education 

26

SEEP Estimated Per Child Expenditures of Educating 

Children with Autism

• According to SEEP estimates:

• Approximately 68 percent of total per pupil expenditures 

for children with autism in 1999-2000 (an estimated 

$12,773) was used on instruction and related services.

• Ninety percent of that amount (an estimated $11,543) 

was used for special education services, while the 

remaining 10 percent (an estimated $1,230) was used for 

regular education services. 
Page 30 GAO-05-220 Special Education 

27

SEEP Estimated Per Child Expenditures of Educating 

Children with Autism

• According to SEEP, expenditures for special education 

services can be categorized as follows:

• special education classes – classes designed specifically for students with disabilities, taught by special education 

teachers;

• resource specialists – includes special education teachers who either pull students with disabilities out of 

regular education classes or go into regular education 

classrooms to work with students with disabilities; 

• related services – school psychologists, social workers, school nurses, speech/language specialists, and 

physical/occupational and other therapists; and 

• other special education services – community-based training, extended time services, and summer school.
Page 31 GAO-05-220 Special Education 

28

SEEP Estimated Per Child Expenditures of Educating 

Children with Autism

• Of the estimated $11,543 spent per pupil on special 

education instructional services for children with autism, 

SEEP estimated that

• 43% was spent on special education classes,

• 24% was spent on related services,

• 19% was spent on resource specialists, and

• 14% was spent on other special education services.
Page 32 GAO-05-220 Special Education 

29

Research Question 4

What approaches are used in 

educating children with autism?
Page 33 GAO-05-220 Special Education 

30

NRC Identified Intervention at an Early Age as a 

Key Component in Successful Approaches 

• The National Research Council (NRC) report provides an overview 

of practices and challenges in educating children with autism. 

Among other topics, the study focuses on

• intervention at an early age,

• diagnosis and classification,

• the rights of children with autism under IDEA, and

• assistive technology. 

• The report was based on existing research studies, model 

interventions, and workshops with researchers, educators, and 

others.
Page 34 GAO-05-220 Special Education 

31

NRC Identified Intervention at an Early Age as a 

Key Component in Successful Approaches

• NRC reported a general consensus that the following features were 

key to the education of children with autism across preschool 

programs:

• Intervention programs as soon as an autism spectrum disorder 

is seriously considered.

• Active engagement in intensive instructional programming– a 

minimum of a full school day, at least 5 days (25 hours)/week, 

full year.

• Repeated teaching organized around short intervals with oneto-one and very small group instructions.

• Inclusion of a family component.

• Mechanisms for ongoing evaluation of program and children’s 

progress, with adjustments made accordingly.
Page 35 GAO-05-220 Special Education 

32

• Goals for educating children with autism are the same as goals for 

educating other children, that is

• personal independence and

• social responsibility.

• In addition, NRC found that the IEP for children with autism should include 

educational objectives that are

• observable and measurable;

• accomplishable within 1 year; and

• affect a child’s participation in education, community, and family life.

• Finally, progress should be monitored frequently and objectives adjusted 

accordingly.

NRC Identified Intervention at an Early Age as 

a Key Component in Successful Approaches
Page 36 GAO-05-220 Special Education 

33

• Educational objectives for children with autism should include the 

development of

• social skills;

• expressive verbal language, receptive language, nonverbal communications skills;

• a functional symbolic communication system;

• engagement and flexibility in developmentally appropriate tasks and play;

• fine and gross motor skills;

• cognitive skills (symbolic play and academic skills);

• conventional/appropriate behaviors; and

• independent organizational skills and skills for success in a regular classroom.

NRC Identified Intervention at an Early Age as 

a Key Component in Successful Approaches
Page 37 GAO-05-220 Special Education (130345) 

34

NRC Identified Intervention at an Early Age as 

a Key Component in Successful Approaches

• In addition to sponsoring the NRC report, the Department of 

Education supports improving educational experiences of children

with autism through a number of programs. For instance:

• Education reports that they provide information and advocacy for families of children with ASD through Parent Training and 

Information Projects and Community-Parent Resource Centers.

• Education has supported research regarding early identification of children with autism in order to increase the possibility that such children will receive services at a younger age.

• To help prepare personnel, Education has funded some professional development programs focused on the education 

of children with autism.

• Education participates in the Interagency Autism Coordinating Committee, established by the Children’s Health Act of 2000.
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