This report focuses on issues relating to the development of individualized education programs for and placement of students who are classified as having mental retardation, learning disabilities, behavioral disabilities, or serious emotional disturbances. The U.S. Commission on Civil Rights examined present-day barriers and inequities that deny students with these types of disabilities an equal opportunity to participate in educational programs. The report analyzes and evaluates the Office for Civil Right's (OCR) implementation, compliance, and enforcement efforts for Section 504 of the Rehabilitation Act. It discusses other Federal disability laws, such as the Individuals with Disabilities Education Act (IDEA), and Title II of the Americans with Disabilities Act, to the extent that they relate to Section 504 and public elementary and secondary education for students classified as having mental retardation, learning disabilities, behavioral disabilities, or serious emotional disturbances. The Commission finds that, in general, Section 504, IDEA, and Title II of ADA have provided extensive protections to students with disabilities. In addition, OCR has developed a comprehensive and progressive program to implement and enforce Section 504. The report contains specific recommendations for further improving and strengthening OCR's Section 504 operations and promoting nondiscrimination and equal educational opportunity for students with disabilities. (CR)