The instructional and political validity of current educational policy regarding categorical programs for low-achieving elementary school students are examined. The categorical organization of services for these students, characterized by a vast array of eligibility requirements, rules and regulations, and accounting systems, has resulted in a sense of fragmentation at many levels. Fragmentation of services takes two forms: (1) between basic education and special programs; and (2) among special programs. Only the latter is considered in the unified approach advocated in this paper, not the merging of regular and special programs. Attempts to reduce fragmentation by unifying categorical programs must address certain issues in the realms of instructional and political validity. Of concern in instructional validity are questions about similarities and differences between learning disabled and remedial students in instructional levels, learning rates, and "learning styles." Data from two studies suggest that the similarities in instructional level and learning rates are greater than the differences. The political issues requiring resolution before implementing a unified system include protection and equitable distribution of resources, participation in decision making, and protection of jobs. Benefits of a unified system and issues that policymakers must address are discussed. (VW)