Heart of Illinois Low Incidence Association (HILIA)

School districts work in collaboration with HILIA staff to assess students with low incidence disabilities to determine support needed for each individual student. Many students will work with a HILIA educator in their home school district. This is accomplished with the HILIA educator traveling to the school to support the student along a continuum of services. These services are provided in collaboration with the student's home school district educators.

HILIA is a separate, legally recognized public body organized under the Illinois School Code and governed by its own Board, which is charged with serving its member school districts and overseeing HILIA’s programs, budget, staffing, and services. Illinois State University currently serves as a contracted educational services provider to HILIA under an Educational Services Agreement (ESA). That agreement, which HILIA has provided notice of its intent not to renew, expires June 30, 2027. HILIA is working on plans to establish a new staffing arrangement for teachers and support staff that allows HILIA’s services for students to continue without disruption. These decisions and responsibilities rest with HILIA’s Board, which is charged with serving its 200+ students from 30+ member districts. 

Thomas Metcalf School and University High School serve as the home of center-based services for HILIA. Students qualify for center-based services based on their evaluation and Individualized Education Program (IEP) in their home district.

Illinois State University engages in an Educational Services Agreement (ESA) focused on the delivery of center-based special education services. The ESA covers a small subset of HILIA member-district students and provides site-based services to HILIA students in their home districts. For the 2026-27 school year, 16 students are transported to and receive center-based services at Metcalf or U-High as determined by the students’ Individualized Education Program (IEP) overseen by their home districts. Nearly 200 students receive services within their home districts from HILIA staff who travel to these districts. HILIA students placed at Metcalf or U-High do not apply for admission into the ISU Laboratory Schools.

HILIA initiated the non-renewal process after proposing revised terms to the existing agreement. Illinois State reviewed the proposal in good faith but could not accept any changes until receiving a pending appellate court decision that Illinois State and HILIA filed together. Instead of waiting for the appellate court decision, HILIA provided the University with a notice to terminate the ESA.

On September 15, 2026, the 4th District Appellate Court ruled that HILIA and Illinois State are joint employers over the relevant HILIA staff housed at both the Laboratory Schools and in HILIA member-districts. The appellate ruling fundamentally reshapes the labor landscape for this program. The University communicated to HILIA that same day that it cannot accept terms that would compromise its statutory duties or expose the University to unsustainable administrative and litigation costs. The University is awaiting the appellate court’s decision to become final, and the case to be remanded back to Illinois Educational Labor Relations Board for further action. Any future extension would require a framework that fully addresses all administrative costs and services HILIA currently receives at no charge from the University.

HILIA is working to continue all student services without disruption. The member school districts oversee each student’s Individualized Education Plan (IEP) and determine where the services will be provided through the IEP process. HILIA is currently discussing options with Illinois State University to maintain center-based services at Metcalf and U-High through a facilities use agreement. 

The University is committed to serving its contractual obligation through the scheduled expiration date of June 30, 2027. Meanwhile, we continue to explore options with HILIA for maintaining center-based services at Metcalf and U-High. Families will receive direct communication from HILIA regarding next steps for service delivery and placement once a decision is made.

Both HILIA and Illinois State University intend for the partnership to continue. While the partnership may look different administratively, an agreement to maintain center-based services at Metcalf and U-High is currently in discussion. 

HILIA is working on a plan to ensure appropriate staffing so that each child maintains services by a highly qualified and licensed case manager. HILIA determines who it will hire to carry out the services and will make every effort to provide consistency of instruction for all students, in partnership with member school districts. 

HILIA is in discussions with Illinois State University about a future agreement. The University has provided HILIA with a proposal to maintain center-based services at Metcalf and U-High. 

The proposal for new terms from HILIA came to Illinois State University on April 17, 2026, while the University was currently engaged in labor negotiations with a newly created bargaining unit of Lab School employees. The University was also awaiting the outcome of a court appeal to determine whether it is a joint employer with HILIA for purposes of these negotiations. The University filed the appeal to support HILIA so that it could be legally included in these negotiations since the bargaining unit also includes HILIA staff. The University has been engaged in a legal dispute over this joint employer question with the Illinois Educational Labor Relations Board and the union representing this group of employees for more than two years. 

The University responded to HILIA’s April 17, 2026, proposal with its concerns over a few of the proposed changes to the ESA but indicated it could not provide a final answer until after the appellate court ruled on its appeal. HILIA provided formal notice on June 24, 2026, of its intent to terminate the parties’ ESA effective June 30, 2027. While there was no legal requirement for HILIA to provide this notice, as the agreement could only be renewed upon the mutual consent of both parties, the HILIA board chose to pursue a different path forward to support the 200+ students and 30+ school districts that HILIA serves. 

An agreement between HILIA and Illinois State University involves the HILIA Board, university administration and legal counsel, and the College of Education. 

HILIA’s Board is responsible for ensuring services are provided to the students and districts it serves, including determining the staffing and contractual arrangements necessary to fulfill that responsibility. The University remains willing to work with HILIA on options that support HILIA students, including the possibility of HILIA renting space at Metcalf and U-High to maintain center-based classrooms in those locations. HILIA will share information as discussions progress and additional details about location become finalized. Questions regarding HILIA operations may be directed to Lisa Kendall (lmkenda@ilstu.edu).

Parents should continue to communicate and work with your school district’s special education administrator(s) and HILIA leadership. 

Dear Lab School and HILIA Community: 
 
The University is writing to provide a clear, factual account regarding the relationship between the Illinois State University Lab Schools and HILIA, HILIA’s recent notice of non-renewal, and ongoing public misconceptions that require correction.   
 
The key points below are for readers seeking a quick overview. The remainder of this message offers further background on the structure of HILIA, outlines the recent timeline of discussions and legal proceedings, and clarifies how we are working to maintain seamless support for students.  

Key Points:  

• HILIA is a separate program that partners with ISU Lab Schools and local school districts to support students with hearing or vision needs.
• HILIA is not part of the Lab Schools. It has its own leadership board, budget, and hiring process.
• HILIA serves more than 200 students. Only 16 students receive center-based classes at Metcalf or U-High, while the rest receive services in their home school districts.
• HILIA students do not apply for admission to the ISU Lab Schools.
• HILIA shared its plans to change the agreement with ISU in April 2026. ISU responded indicating it could not provide a decision on all the proposed changes to the agreement until it received a long-awaited court decision about shared staff responsibilities.
• In June 2026, HILIA gave notice that it will not renew the current agreement, which ends on June 30, 2027.
• ISU and HILIA have been working together in good faith. ISU is waiting for the court process to finish before making a final decision on a new agreement.
• ISU’s top priority is keeping services running smoothly for all students. ISU is open to exploring the possibility of leasing space to HILIA to continue center-based classes at the Lab Schools. 

 
HILIA exists in collaboration with the University and several local school districts and special education cooperatives to promote, establish, and maintain a continuum of comprehensive services. HILIA serves children, in over 30 school districts across four counties, with low incidence disabilities in deaf and hard of hearing and low vision and blindness. HILIA is governed by a separate, legally recognized, public body that oversees HILIA’s programming, budget, and approves its hiring. Illinois State University’s relationship with HILIA is defined by an Educational Services Agreement (ESA) focused on the delivery of both center-based special education services to a small subset of HILIA member-district students and site-based services to HILIA students in their home districts. At no point has HILIA held institutional status, governance authority, or operational control within the Lab Schools.  
 
Of the 200+ students served by HILIA, 16 students are transported to and receive center-based services at Metcalf or U-High as determined by the students’ Individualized Education Program (IEP) overseen by their home districts. The remaining students receive services within their home districts from HILIA staff who travel to these districts. HILIA students do not apply for admission into the ISU Laboratory Schools. 
 
On April 17, 2026, HILIA proposed a new three-year ESA to replace the current agreement expiring June 30, 2027. This proposal came while the University was currently engaged in labor negotiations with a newly created bargaining unit of Lab School employees. The University was also awaiting the outcome of a court appeal to determine whether it is a joint employer with HILIA for purposes of these negotiations. The University filed the appeal to support HILIA so that it could be legally included in these negotiations since the bargaining unit also includes HILIA staff. The University has been engaged in a legal dispute over this joint employer question with the Illinois Educational Labor Relations Board and the union representing this group of employees for more than two years.   
 
The University responded to HILIA’s April 17, 2026, proposal with its concerns over a few of the proposed changes to the ESA but indicated it could not provide a final answer until after the appellate court ruled on its appeal.  Instead of waiting for the appellate court’s decision, HILIA provided formal notice on June 24, 2026, of its intent to terminate the parties’ ESA effective June 30, 2027. There was no legal requirement for HILIA to provide this notice, as the agreement could only be renewed upon the mutual consent of both parties. One-year prior written notice was only required if a party intended to terminate the agreement before June 30, 2027. 
 
The University has always engaged in good-faith discussions with HILIA regarding potential updates or extensions to the ESA. Since HILIA initiated changes to the ESA on April 17, 2026, HILIA and the University have continued to have discussions over the continuation of the ESA. On September 11, 2026, HILIA proposed a one-year extension of the parties’ ESA. Four days later on September 15, 2026, the appellate court ruled that both HILIA and ISU are indeed joint employers for purposes of collective bargaining. That same day the University informed HILIA it was not rejecting its proposal but could not make a decision on a one-year extension of the ESA until after the appellate court’s decision becomes final, and the case is remanded back to the Illinois Educational Labor Relations Board for further action. The University is currently waiting for both of these events to occur. 
 
Our priority remains the well-being and continuity of care for all students and families who have engaged with our respective programs. We continue to explore options with HILIA for maintaining center-based services at Metcalf and U-High. On September 17, 2026, HILIA requested the University consider the possibility of HILIA leasing space and maintaining center-based services at Metcalf and U-High. The University has indicated to HILIA its willingness to explore this possibility. Discussions are expected to continue regarding this option.   
 
We appreciate your understanding and continued commitment to our students. Communicating accurately on this subject is important as all parties seek resolution. Questions or concerns should be directed to your building administrator. HILIA-related matters may be directed to Lisa Kendall at lmkenda@ilstu.edu and Josh Olsen at jolsen@lcssu.org. 
 
Sincerely, 

Bryan S. Zugelder, Ed.D.
Dean and Professor
College of Education

Dear HILIA and Lab School Community:

Following HILIA’s notice to end the current Educational Services Agreement, HILIA and Illinois State University have been engaged in discussions regarding a path forward that provides greater stability for students, families, and staff. We continue to work together to establish an agreement that will allow HILIA center-based programming to continue at the Laboratory Schools.

HILIA and the University have reached a preliminary understanding in principle that center-based programming will continue at the Laboratory Schools through the 2027-2028 school year, at minimum. The organizations are continuing to work through the details necessary to formalize understanding and to explore options that may provide longer-term stability.

We recognize the uncertainty and stress this process has created for families and staff, and we appreciate your patience as this work continues. Both HILIA and the University are committed to working collaboratively and diligently toward an agreement that supports continuity of services for students and provides greater clarity and stability for families and staff. We will continue to share information as details are finalized.

In the interim, questions regarding HILIA operations may be directed to Lisa Kendall (lmkenda@ilstu.edu).

Sincerely,

Josh Olsen, HILIA Governing Board Chair
Bryan Zugelder, Illinois State University Dean, College of Education