Educational reform is rarely considered from the point of view of conceptual change. Typically, reform starts at the policy document level by introducing criteria intended to lead to the adoption of new practices. This study offers a case study of how legal national educational reforms can be localized. The case in focus is the recent legislative change in Finland dealing with special education. The special education strategy (SPES) white paper was launched in 2007 and the related changes in the Basic Education Act were passed in 2010. In 2008-2009 the State invited local municipalities to participate in advance preparations for the reforms. More than half participated by preparing several SPES-related documents over time that allowed us to analyze the main trends concerning the different concepts used, and how they were implemented. The results are interpreted in terms of contrasts between semantics, politics and actual changes.