inclusion and education in european countries - spain report

8/7/2019 Inclusion and Education in European Countries - Spain Report

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Inclusionandeducationin

Europeancountries

INTMEASReportforcontract20072094/001TRATRSPO

Final report: 11. Spain

Mariano Fernndez Enguita

LepelstraatAugust 2009


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This is an independent report commissioned by the European Commission's Directorate-General for Education and Culture. The views expressed are those of the author(s) and donot necessarily represent the official position of the European Commission.

Drafts of this report benefited from comments and advice from the consortiums referencegroup members and from other experts in this field.

Reproduction is authorised provided the source is acknowledged.

The electronic version of this report is available at:http://www.docabureaus.nl/INTMEAS.html

Available INTMEAS-reports:

1. Summary/sommaire/Zusamenfassung2. Comparative conclusions3. Discussion and recommendations4. France 5. Germany

6. Hungary7. Italy8. The Netherlands9. Poland10. Slovenia11. Spain12. Sweden13. UK

14. Experts and PLA

INTMEAS Reference Group

George Muskens, project leaderJaap Dronkers, expert adviser

Jos Ramn Flecha, expert adviser

Jill Bourne, expert adviser

Danielle Zay, leader French research team

Ingrid Gogolin, leader German research team

Pl Tams, leader Hungarian research team

Francesca Gobbo, leader Italian research team

Micha Federowicz, leader Polish research team

Albina Neak Lk, Sonja Novak Lukanovic, leaders Slovenian research team

Mariano Fernndes Enguita, leader Spanish research team

Elena Dingu Kyrklund, leader Swedish research teamRae Condie, leader UK research team


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POLICIES AGAINST

EDUCATIONAL EXCLUSIONSpanish draft Report

Mariano Fernndez Enguitaand

David Doncel Abad

Universidad de Salamanca

April, 2009

Contract -2007-2094/001 TRA-TRSPO, Strategies for supporting

schools and teachers in order to foster social inclusion

Project coordinated by DOCA Bureaus for

The European Commission

(Draft paper, please do not quote)


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INDEX

0. Introduction .................................................................................................................. 3

1. Framework.................................................................................................................... 3

2. Structures and inclusive function ................................................................................. 7

3. Early School Leavers / Dropouts from school.............................................................. 8

3.1. Schools and level ................................................................................................... 9

3.2. Special groups at risk ........................................................................................... 10

3.3. Measures .............................................................................................................. 11

3.3.1. Measures at school........................................................................................ 12

3.3.2. Measures targeting the home ........................................................................ 12

3.3.3. Occupational training and job seeking......................................................... 12

3.3.4. Measurements for favouring coordination.................................................... 12

3.4. Interim conclusions, research conclusions........................................................... 13

4. Priority education for disadvantaged pupils ............................................................... 14

4.1. Types of disadvantaged pupils ............................................................................. 14

4.2. The aims of priority education: success, segregation and discrimination ........... 14

4.3. Priority measures for better individual achievement ........................................... 16

4.4. Priority measures for less segregation, discrimination ........................................ 17

4.5. Interim conclusion, research conclusion.............................................................. 18

5. Inclusive Education .................................................................................................... 19

5.1. The policy objective: Keeping challenging pupils on board ............................... 19

5.2. Inclusive measures ............................................................................................... 19

5.3. Interim conclusion: research conclusions ............................................................ 21

6. Safe Education............................................................................................................ 21

6.1. The first ideal: the school as a safe haven............................................................ 21

6.2. The second ideal: schools without bullied and harassed pupils........................... 21


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6.3. Safety measures ................................................................................................... 22

6.4. Measures to protect pupils at risk from bullying and harassment ....................... 24

6.5. Interim conclusion, research conclusions ............................................................ 25

7. Teacher support .......................................................................................................... 26

7.1. The ideal: being a good teacher for children at risk............................................. 26

7.2. Teacher support measures.................................................................................... 26

7.3. Cross-referenced measures .................................................................................. 28

7.4. Interim conclusion, research conclusion.............................................................. 29


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0.Introduction

This report presents a current review of the policies rolled out by the various education

authorities and an analysis of their general characteristics, as regards those deemed to be

of greatest interest. Overall, a review has been made of a broad array of actionspublished over the period 2000-2008 that include, or whose general purpose is to

provide, assistance to schools and teachers for fostering inclusion in the education

system. Although the sample is not intended to be exhaustive, it is undoubtedly

representative of the actions undertaken by the education authorities within this sphere.

1.Framework

This section lays out the set of principles and objectives articulated in a manner that

favours inclusion in Spanish society in general and in the education system in particular.

The aim is to describe the framework from the general to the particular, that is, by

showing how the fabric of the education system is woven according to the values of

integration from the source of a legislative nature that sets forth the general principles

through to the specification tailored to suit each individual. This provides a

comprehensible perspective of the education system that can be used to verify the work

undertaken by the authorities as they seek to build a better education system.

An initial stage describes the basic pillars that uphold the principles of inclusion

contained in the 3rd

National Action Plan for Social Inclusion in the Kingdom of Spain

(III Plan Nacional de Accin para la inclusin social del Reino de Espaa) 2005-2006

and in Organic Law 2/2006, of 3 May, on Education (LOE).

a) 3rd National Action Plan for Social Inclusion in the Kingdom of Spain2005-2006

The 3rd National Action Plan for Social Inclusion in the Kingdom of Spain 2005-2006

has been drawn up within the framework of European strategy on social inclusion,

based on the successive agreements adopted at the summits held in Lisbon, Nice,

Barcelona and Copenhagen. The objective consists in updating and covering the period

2005-2006, in accordance with the plan to work towards a rationalised process of

coordination in the area of social protection and inclusion policies, as laid down in the

latest guidelines approved by the Social Protection Committee, thereby regularising the

pace of work with the countries that have recently joined the European Union.


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Regarding education, the main objective set forth has been to provide quality education

for everyone, with effective equal opportunities and adapted to their needs, in

partnership with all the players and institutions that make up the education community

and, in general, society as a whole.

b) Organic Law 2/2006, of 3 May, on Education (LOE)Fostering inclusion in schools prevails as one of the pillars upholding Organic Law

2/2006, of 3 May, on Education, approved by the Spanish Ministry of Education, Social

Policy and Sport. In its Preamble, the LOE understands education to be the way of

fostering democratic coexistence and respect for individual differences, promoting

solidarity and avoiding discrimination. The core objective is to achieve good social

cohesion and guarantee the exercise of democratic, responsible, free and active

citizenship, as aspects that are deemed essential to the formation of advanced, dynamic

and fair societies.

In turn, the Preliminary Title consists of four chapters, although this report will focus

solely on the first and fourth.

Chapter I, dedicated to the Principles and Aims of Education, presents the core aspects

around which the education system as a whole should be orchestrated. It presents two

basic principles. The main one is to provide quality education for all children regardless

of their conditions or circumstances. The other one is equity, thereby guaranteeing

equal opportunities, classroom inclusion and non-discrimination, moreover acting as a

factor for compensating personal, cultural, economic and social inequalities, paying

special attention to those forthcoming through disability. Concerning the Aims of

Education, a learning framework is established centred on the equal treatment and non-

discrimination of people for reasons of sex, disability, etc. Likewise, it champions the

exercise of tolerance and freedom within the democratic principles of coexistence, the

prevention of conflicts and their peaceful resolution. In addition, it stresses the

importance of instructing children in citizenship and their involvement in economic,

social and cultural life with an informed and responsible attitude.

Chapter IV, dedicated to the cooperation between education authorities, contains the

basic elements that govern the coordination between the various agencies. Thus, these

may agree upon the establishment of common objectives and criteria for improving the

quality of the education system and guarantee equity. It is specified that the education


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authorities and local corporations are to coordinate their actions, each one within the

sphere of its powers, in pursuit of the greater effectiveness of the resources earmarked

for education and contribute to the aims laid down in this Law.

Title I of the LOE establishes the organisation of the teaching system, its stages and the

objectives pursued for each one of them. Nevertheless, the section dedicated to

Structures and inclusive functions analyses the organisation of the education system in

greater detail.

With a view to guaranteeing equity, Title II addresses the suitable response education

should provide for all pupils based on the principle of inclusion, on the understanding

that only in this way is development ensured for everyone, favouring equality and

contributing to greater social cohesion. Respect for diversity is understood to be a need

that encompasses all stages of schooling and each and every pupil. In other words, it

considers the diversity of pupils as a principle and not as a measure that corresponds to

the needs of just a few.

The work to be performed by teaching staff in pursuit of quality education is developed

in Title III of the Law. It pays priority attention to their initial and lifelong training.

Accordingly, one of the duties befalling teachers involves their contribution to ensure

that activities at school are undertaken in a climate of respect, tolerance, participation

and freedom in order to instil in the pupils the values of democratic citizenship.

Title IV governs the basic principles that inform the legal status, ownership, curricula

and accessibility of each school. Especially, as regards the curricula of the school

network, a highlight is the general principle that stipulates that the education authorities

are to programme the courses that are specified as free of charge by the LOE taking into

account the existing offer of schools and, as a guarantee of the quality of education, a

suitable and balanced schooling of children with a special need for teaching support.

Furthermore, note is made of the need to ensure suitable accessibility to schools as a

basic guarantee of equal treatment for all pupils.

The LOE understands participation to be a key value for forming citizens who are

independent, free, responsible and engaged, and therefore urges the authorities to

guarantee the involvement of the education community in the organisation, governance,

operation and assessment of schools, as laid down in Title V.


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Title VI, dedicated to the assessment of the education system, considers this to be a

key factor for improving the quality and equity of education and for increasing the

transparency of the education system. The importance given to assessment is stressed

in the treatment of the different spheres in which it is to be applied, which encompass

the pupils learning processes, the work of teaching staff, education processes, the

management role, the operation of schools, inspection and the education authorities

themselves.

c) The Framework of the Autonomous CommunitiesDue to the peculiarity of Spain's education system, in which powers are shared out

amongst the various authorities (state, regional and local), there is a need to distinguish

between who is involved, and how, in the drafting and development of education

policies and, in this case, those designed to uphold equality within schools. Education is

not the exclusive domain of any one authority, but rather this responsibility is shared,

with each one being vested with certain specific powers according to the criteria laid

down by law. Regarding the body of powers in education set out in the Spanish

Constitution, some are exclusive to each authority, whilst others are shared. For

example, the Ministry of Education is solely responsible for regulating the basic

conditions that guarantee the equality of all Spanish citizens in exercising the right toeducation1, whereas the Autonomous Communities have sole control over the

management of grants and study aid. In the specific case of fostering equality, the

Autonomous Communities do not have the powers to amend the general rule developed

by the State on this matter. This circumstance means that the scenario of education

policies developed by the Autonomous Communities provides an array of actions with

uniform profiles (CIDE 2008, Bonal 2005), and that the Ministry of Education is one of

the necessary referents for understanding how inequality is being combated through

Spanish schools. Nonetheless, and bearing in mind this conditioning factor, the

education authorities within the sphere of the Autonomous Communities, each one

within its own jurisdiction, have drawn up a series of actions, some in cooperation with

the ministry and others on an individual basis, which feature the main measures adopted

for fostering inclusion in education.

In short, the authorities have created a general education framework that is committed to

flexibility as a quality that ensures pupils overall are provided with better options in1

Article 149.1.1 Spanish Constitution, 1978.


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schooling and pursuing their school lives, as well as empowering teaching staff to act to

address the challenges posed by todays education scenario.

2.StructuresandinclusivefunctionSchooling in the Spanish education system is governed by the principles of

normalisation and inclusion. The aim of both criteria is to guarantee non-discrimination

and the effective equality of access to and permanence in schools of those children with

special education needs, those who belong to ethnic minorities or whose personal

circumstances place them in those groups of pupils who require greater attention.

The general objectives set out for the collective of pupils who need to receive special

support at school are those laid down in the LOE on a general basis for all children.

However, specific lines are set out for each level and stage of schooling that are adapted

to the pupils different age requirements, which translate into a distribution of principles

focused on fostering inclusion that are suited to each level or stage.

In Infant Education, teaching is based on the principle of pupil diversity. Consequently,

teaching is adapted to the individual traits, needs, interests and cognitive style of the

children, given the importance at these ages of the pace and process of personal

development.

The emphasis in Primary Education is on addressing pupil diversity and preventing

learning difficulties, acting as soon as these are detected. Teaching at this level should

be based on the principle of pupil diversity, understanding that this is the way to

guarantee development across the board at the same time as providing individual

attention according to each ones needs.

Compulsory Secondary Education combines the principle of a standard education withrespect for pupil diversity, thereby enabling schools to adopt the organisational and

curricular measures that are more in tune with the childrens characteristics, in a flexible

manner and using their teaching independence. This stage considers, amongst other

things, the following goals: exercising tolerance, cooperation and solidarity between

people and groups; preparing to become a respectful citizen; appreciating and respecting

the differences between sexes, and equal rights and opportunities; rejecting stereotypes

that lead to discrimination between men and women, violence, prejudices of all kinds

and resolving conflicts peacefully.


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The purpose of the latter stages of Secondary Education is to help pupils develop the

skills that will enable them to become respectful citizens, from a global perspective, and

acquire a responsible civic awareness, inspired by the precepts of the Spanish

Constitution and human rights. The aim pursued at this level is to foster shared

responsibility in the building of a fair and equitable society, at the same time as each

individual's maturity is consolidated on a personal and social basis. It is understood that

the combination and consolidation of these values in individuals should allow them to

act in a responsible and self-reliant manner, develop a questioning mind, pre-empt and

peacefully resolve personal, family and social conflicts, as well as analyse and critically

assess existing inequalities and seek true equality and the non-discrimination of disabled

people.

Concerning Occupational Training, in order to successfully achieve its goal of

preparing students for the qualified undertaking of the various professions, access to

employment and active involvement in social, cultural and economic life, the target

pursued is to instruct in the prevention of conflicts and in the peaceful resolution of the

same in order to gain access to training that will lead to all nature of professional

options and the exercise of the same.

In short, it is clear that each stage is informed by the principles and general objectives

that are understood to lie at the heart of an inclusive education system. Their obvious

expression is the establishment of common goals by levels and stages for all kinds of

pupils. Nevertheless, this generalisation does mean that certain collectives may require

specific measures for guaranteeing them the highest possible levels of equality.

3.EarlySchoolLeavers/Dropoutsfromschool

One of the issues that most urgently need to be remedied in Spain is the number of early

school leavers and truancy. This country currently has one of the highest rates of school

dropouts in Europe. For example, 31% of young people finish their compulsory

education without the most elementary qualification of Educacin Secundaria

Obligatoria2. In view of the seriousness of the matter, there is a series of education

policies aimed at resolving this shortcoming.

2 Aunin, J, (2008), Educacin multiplica las vas para repescar a los jvenes sin la ESO, El Pas,

Madrid.


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The Ministry of Education, Social Policy and Sport, in cooperation with the

Autonomous Communities, has rolled out the Programa para la disminucin del

abandono temprano de la escolarizacin (2008-2009)3. This programme is designed to

support those specific actions whose purpose is to reduce the impact of those factors

that lead to early departure from the education system. There are others, such as the

Programas de Cualificacin Profesional Inicial (2008-2009)4, designed to provide

students with basic level 1 training for the job market, as contained in the National

Register of Qualifications (Catalogo Nacional de Cualificaciones). The central

governments expectations for the 2008-2009 academic year are that these schemes will

be attended by 48,500 students.

Applied exclusively within the sphere of the Autonomous Communities, an analysis ismade of the Plan Integral para la Prevencin, Seguimiento y Control del Absentismo

Escolar (2003)5, drafted by the Department of Education of the Autonomous

Community of Andalusia. The aim pursued is to eradicate all forms of absenteeism

from schools. Then there is the Programa para la prevencin y control del Absentismo

escolar (2005-2007)6

of the Community of Castilla y Len, whose purpose is to bring

truant pupils back into normal schooling.

3.1. Schools and levelUnderstanding the importance of these policies and the trends involved requires making

the necessary distinction between compulsory and voluntary stages of schooling. The

former caters for children aged 6 to 12, including Primary Education, Compulsory

Secondary Education and the First Level of Training Cycles. Voluntary schooling

applies to those aged 16 to 18, and comprises the final years of Secondary Education

and the Training Cycles in Higher Secondary Education.

By observing table 1 and considering the actions overall, two aspects stand out. The

first and most significant is that these encompass all stages of pre-university education,

from Infant Education through to Higher Secondary. The second is that the stage that

focuses most of the measures is Compulsory Secondary Education.

3

Programme for reducing the number of early school leavers4

Occupational Training Starter Programmes5Comprehensive Plan for the Prevention, Monitoring and Control of School Truancy

6Programme for the Prevention and Control of School Truancy


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When the actions are classified according to the goal pursued, there is significant

variation in the profile of the education level targeted. As is only to be expected, those

policies designed to monitor schooling and class attendance are focused on Basic or

Compulsory Education, which consists of Primary and Compulsory Secondary

Education, as shown by the programmes in Andalusia and Castilla y Len. In turn, the

policies7 designed to eradicate early school leaving concentrate on all stages of

Secondary Education, including Compulsory and Higher Secondary.

CHARTER2EDUCATIVE POLICIES AGAINST ABSENTEEISM, DROP OUT FRON SCHOL, EARLY SCHOOLLEAVINGT and EDUCATIVE LEVEL

Source: own elaboration

3.2. Special groups at risk

With a view to guaranteeing equity, Title II of the LOE addresses those groups of pupils

who need to receive special teaching as they have some form of specific educational

requirement, and it details the resources required for undertaking this task in order to

achieve their full inclusion and integration. It specifically refers to those pupils who

require special support and specific attention due to their social circumstances, physical,

mental or sensorial disability or who have serious behavioural disorders. Yet the reality

of education indicates that alongside these there is another kind of pupil, generally from

social groups in a disadvantaged socio-economic position or with specific personal and

family issues, who attend school on an irregular basis, which frequently leads to

situations of truancy or early departure from the education system before having

acquired the necessary schooling for accessing the job market. A link has also been

found between age (pre-adolescence) and the child's lack of motivation as factors to be

considered when analysing this phenomenon.

7Programa para la disminucin del abandono temprano de la escolarizacin (2008-2009) Programme

for reducing early school leaving


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All the factors related to truancy and are contemplated throughout the selected actions.

In overall terms, two tendencies are apparent according to whether one or other

objective is pursued by the action. On the one hand, when the aim is to reduce truancy,

the following groups are involved: the gypsy population, as they are the largest ethnic

minority in Spanish schools; the migrant population, who numbered 609,6118 in the

2006-2007 school year, and those in disadvantaged social and economic circumstances

who encounter difficulties in guaranteeing their childrens schooling. On the other hand,

when the established goal is to reduce early school leaving, the range of groups is

greater and the measures target almost all the pupils. By focusing on strictly educational

criteria, these specific actions extend the target population to almost any pupil with

educational disadvantages regarding learning difficulties in basic instrumental areas,

lack of study habits, etc. independently of their sociological profile.

CHARTER3EDUCATIVE POLICIES AGAINST ABSENTEEISM, DROP OUT FRON SCHOL, EARLY SCHOOL LEAVINGand GROUPS AT RISK

POLTICAS Objective Roma ImmigrantsSocio

economicAcademic

FailureFamily

circumstancesIndividual

circumstances

Programforreducingearly

schoolleaving.

EarlySchool

leavingX

Programforthe

prevention,followupand

ControlofSchoolAbsenteeism.

AbsenteeismX X X X

Programfortheprevention

andControlofSchool

Absenteeism.

Absenteeism X X X X X

ProgramsofInitial

ProfessionalQualification.

EarlySchool

leavingX


3.3. Measures

The measures contained in the actions are grouped into four areas: school, home, job

market and coordination. Obviously, different measures are specified for each area

depending upon the particular sphere to which they are being applied. There follows an

overall analysis of those selected, thereby providing a global view of the tools designed

with a greater level of detail for eradicating these problems from the education system.

8

Estadsticas de la Educacin en Espaa (Statistics on Education in Spain). 2006-2007. Advance data,MEPSYD (Ministry of Education).


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3.3.1.Measuresatschool

Schools articulate their sphere of action by adapting the teaching process to the needs

and interests of those children who are at risk of, or already involved in, truancy. To do

so, they introduce specific measures such as the preparation or adaptation of curricular

materials, software applications, books or teaching resources that involve the pupils in

the education process or improve the system for controlling class attendance. A

highlight amongst all these measures, given its innovative nature, is the opening up of

the system to those students aged between 16 and 24 who have not successfully

completed Compulsory Education and who wish to return to their studies.

3.3.2.Measurestargetingthehome

These measures have the same common denominator, which involves convincing those

families whose living conditions, lifestyles and culture are the cause of the children's

truancy to become involved and agree to ensure that their children attend their necessary

schooling on a regular basis. An important aspect along these lines is that household

benefits are not limited to schooling, as welfare instruments are also introduced in

cooperation with child welfare authorities, the education services and even the local

police whenever circumstances so require.

3.3.3.Occupationaltrainingandjobseeking

The actions included in this sphere focus on preparing young people for accessing the

job market. These range from training schemes tailored to suit the students needs and

interests with a view to facilitating their integration in society and employment, such as

Professional Induction Programmes, Training Workshops, Linked Work and Training

Centres and Occupational Training Courses. There are even measures that provide a

new learning opportunity for those who already have a job and wish to improve their

training and can reconcile it with their working life.

3.3.4.Measurementsforfavouringcoordination

These measures seek to foster the greater engagement of management teams, guidance

teams and departments and the inspection service through the organisation of seminars

and meetings, the drafting of provincial programmes and training courses adapted to

combat truancy and early school leaving.They also seek to introduce mechanisms of

institutional coordination between the different administrative levels. For example, a

common measure involves the local and provincial committees that accept the


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responsibility and commitment to control and prevent truancy by deploying human

resources, material means and premises for ensuring the success of the measures.

CHARTER4EDUCATIVE POLICIES AGAINST ABSENTEEISM, DROP OUT FRON SCHOL, EARLY SCHOOLLEAVINGT and MEASURES


3.4. Interim conclusions, research conclusionsThe actions designed to correct the Spanish education systems poor results in truancy

and early school leaving focus on two aspects. On the one hand, on specific

programmes for preventing the departure of those pupils at greatest risk of failure

(migrants, the gypsy population or people living in especially disadvantaged areas) and

on the specific training of teachers for the early diagnosis and care of individuals at risk.

On the other hand, they seek to cater for those young people aged between 16 and 24

who did not successfully complete their Compulsory Education and seek another chanceto obtain a professional qualification that will enable them to access more qualified

employment, as well as pass Compulsory Education by studying a voluntary module.

It is interesting to see how the measures are being extended to include the voluntary

stages in the education system, with the clear intention of keeping pupils at school,

prolonging their schooling in response to the new criteria defining successful schooling

in EU countries.


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4.Priorityeducationfordisadvantagedpupils

The LOE states that it is the responsibility of the public authorities to pave the way for

the incorporation within the education system of pupils from other countries, pupils who

belong to ethnic or cultural minorities, or those who for whatever reason join theSpanish education system at a later stage. This incorporation is to be guaranteed,

nonetheless, for those of school age. In the case of those pupils who are late joining the

education system, they are to be ensured of proper schooling according to each ones

personal circumstances. Specifically, the authorities are to introduce the appropriate

channels so that these collectives can enter the school year best suited to their

circumstances and prior knowledge, providing the necessary support and so ensuring

they continue to make the most of their education.

An overview is now presented of the measures established and developed for attending

to the educational needs of those pupils with some form of disadvantage.

4.1. Types of disadvantaged pupils

Title II of the LOE, dedicated to compensating for inequalities in education, in its

Article 80, Section 1 and 2, states that those pupils in situations of disadvantage are

those in the following circumstances: inequalities forthcoming from social, economic,

cultural, geographic or ethnic factors or of any other kind. Such is the manner in which

it is embodied in the education policies analysed. Nevertheless, it can be seen how a

new group of disadvantaged pupils is emerging. It does not correspond to classicalrisk

groups, but rather applies to those children with a deficient academic performance. This

new profile, not considered by the LOE, can be added to the list of risk groups.

Testifying to this tendency are the education policies whose aim is to favour academic

success, especially the PROA9 Plan, which seeks to improve the performance not just of

specific groups but of the overall population as well.

4.2. The aims of priority education: success, segregation and discrimination

In view of the actions undertaken, some at the initiative of the Ministry of Education,

Social Policy and Sport in cooperation with the Autonomous Communities and others at

the decision of each regional authority within its territorial scope, two major lines of

priority work can be singled out that underpin education policy in this decade: academic

success and the fight against discrimination.

9 Programas de Refuerzo, Orientacin y Apoyo Programmes for Reinforcement, Guidance

and Support


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There is no doubt that one of the best indicators of the healthy state of an education

system is the success attained by its pupils. Not only is this because it fulfils one of its

core mandates, namely, to have conveyed knowledge in a suitable manner and thereby

provide greater guarantees of achieving a more prosperous future both individually and

collectively, but also because the childrens overall success helps to reduce social

inequalities. However, it is true that not all the measures share the same criterion of

academic success, which depends on the target collective. In certain cases, success

means schooling groups with backgrounds that bar their normal access to education; in

others, it is achieving a minimum qualification, which the European Commission now

defines as successfully completing Higher Secondary Education, as the necessary

gateway to social inclusion10.

Another priority line in education involves fighting against the discrimination and

segregation of pupils in the education system. Within this sphere, policies transcend the

search for equal opportunities in education to foster the sense of individual or personal

equality, that is, the respect between students regardless of their cultural background,

etc. This line of work has become increasingly important in recent years due to the

increase in the migrant population enrolled in schools and, therefore, the melting-pot of

cultures in classrooms. Consequently, the policies articulated under this objective seek

to favour equal treatment amongst pupils and a mutual awareness based on respect for

all those cultural or personal idiosyncrasies present in Spanish schools.

10Bonal, X, et. Al (2005), La descentralizacin educativa en Espaa, Ed. Desrudis autonomics i locals,

Barcelona, page 19.


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CHARTER5OBJETIVESANDMEASURESINPRIORITYEDUCATION

Source: own elaboration4.3. Priority measures for better individual achievement

The measures adopted for achieving academic success combine aspects that are

basically of an educational nature with others of a political or social bias.

The measures adopted of an educational nature combine teaching aspects with others

of an organisational nature. For example, those related to the curriculum resort to theuse of rewards together with modifications in content to help students learn.

Especially, changes are made in instrumental subjects that help to improve the basic

skills of those with some difficulty or who are lagging behind, or simply to achieve a

suitable level in them. In the case of those pupils whose language is not the one used

for teaching, other measures are provided to enable them to make swift progress in

learning the language and thereby ensure the basic qualities for successfully addressing

their schooling. Although these measures are based on the notion of fostering equal

opportunities as a necessary condition, they do not forget to encourage measures that

in turn recognise interculturality and respect for diversity in the classroom. A further

aspect of interest is the boost given in Secondary Education to training focused on the

job market through the setting up of Occupational Courses, Training Workshops and

specific workshops, as provided for in the Programas de Cualificacin Profesional

Inicial11.

In turn, on a social and political level there are two specific measures, namely,11

Occupational Induction Training Programmes


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coordination and cooperation with outside services. One issue that is being particularly

stressed is the achievement of effective coordination between the different institutions.

This involves applying innovative schemes, which tend to include institutional

mechanisms for stimulating involvement or else those between the authorities at

different state and regional levels.

CHARTER6MEASURES FOR SCHOOL SUCCESS

Source: own elaboration4.4. Priority measures for less segregation, discrimination

The measures taken by the education authorities to reduce segregation and

discrimination at school should be understood from the perspective of integrating all

the parts within the same whole. Firstly, there are such highlights as those that seek the

recognition, through respect, of all existing cultures and the introduction of channels

that favour the learning of the language used in the education system as a basic tool for

enabling pupils to communicate on the same level. In this holistic approach, families

are the main focus of the measures, with their involvement in the education process

being encouraged as a crucial way of ensuring their children receive proper schooling

and of achieving the full integration of these groups within the school community.

Elsewhere, one of the focal points attracting the greatest number of measures is the

establishment of support channels between experts and services from outside the

schools and the schools themselves whereby they can jointly address this challenge on


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a collective basis. The creation of new models of mediation, classroom monitoring and

support with the backing of social services, or the creation of socio-educational areas

outside the school is just some of the measures proposed accordingly.

Institutional cooperation is also sought as a key element in the fight against

discrimination. It is required at all administrative levels state, regional and local

and between both education authorities and those of another nature, basically those

related to social matters and employment. The aim is to join forces and achieve the full

cooperation of the institutions within a schools immediate environment.

Finally, in addition to this block of measures, there are also a number of other

schemes: adapting legislation for the schooling of ethnic and cultural minorities and

those at socio-educational disadvantage, the preparation and diffusion of teaching

materials and support for teacher training.

CHARTER7MEASURES AGAINSTSEGREGATION& DISCRIMINATION

Source: own elaboration4.5. Interim conclusion, research conclusion

All-in-all, the analysis of this section throws up two main ideas or changes. On the one

hand, a new group of disadvantaged pupils is formed by those with an inadequate

academic performance, a profile that is not provided for in the LOE, adding to the

number of risk groups. Proof of this are the education policies whose purpose is to

encourage academic success, which focus on improving the performance of children

across the board.


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On the other hand, in terms of reducing discrimination and segregation, one of the

characteristics is intensifying the coordination and cooperation between all the

education authorities and social services. It is understood as being a priority objective

not only for education, but also for society as a whole. Furthermore, the engagement of

parents and mutual cultural respect are consolidated as priority measures.

5.InclusiveEducation

5.1. The policy objective: Keeping challenging pupils on board

The LOE stipulates that pupils with specific needs in schooling are those children who

need to be taught in a different way to the main body, as they have special learning

difficulties, either because they are gifted or because they have been late joining the

education system. The goals for these collectives are the same as those set out on a

general basis for all the other pupils. Consequently, the purposes of the different stages

in education are the benchmark for individual syllabuses or the curricular adaptations

for such collectives.

Nonetheless, this does not stop the education authorities from also developing specific

programmes during the schooling of children and within mainstream groups, in

accordance with the level and evolution of their learning process. Their aim is to tailor

the education process to the personal circumstances of these children and insofar as

possible provide them with a normal school experience.

5.2. Inclusive measures

The decision to take some form of action regarding children with special needs is

reached on the basis of a prior diagnosis and is the responsibility of the services

deployed by each Autonomous Community. This means that the measures designed to

foster inclusion at school vary from one region to another.

Firstly, they include curricular adaptations or modifications. There are two types of

adaptations. On the hand, for accessing the curriculum through the creation and edition

of contextualised teaching materials suited to the reality of these disadvantaged groups.

On the other, curricular adaptations that seek to adjust the knowledge content in the

curriculum to the needs of each collective.

Secondly, a highlight for gifted children is the possibility of adjusting the levels and

stages in the education system, although it should be noted that such a measure has to be


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authorised by the school inspectors in each Autonomous Community, following the

procedure that each one has laid down and in all cases after the corresponding

psychological assessment of the child.

Thirdly, a large number of Autonomous Communities provide help services through

interdisciplinary teams in Educational and Psychopedagogical Guidance and from

Guidance Departments12, to facilitate the diagnosis of special needs children. As

supplementary measures, the education authorities provide schools with specialist staff

(teachers skilled in Therapeutic Pedagogy and in other necessary fields in accordance

with each schools requirements), so that they can join the teams responsible for

diagnosing those pupils that so require. They also provide the necessary resources

(materials and adapted furniture and fittings, etc.) so as to guarantee the schooling ofthese same pupils.

Fourthly, when pupils have serious disorders in different areas of development or family

circumstances impede them from attending school on a regular basis, or when they are

in hospital or for medical reasons have to miss school for long periods of time. The

authorities have introduced a range of measures amongst which special mention should

be made of the creation of travelling school support units and school units for providing

support in hospitals.

Fifthly, coordinating all administrative and institutional spheres is once again a measure

that is widely used. For example, the Education Committee of the Programa de

Desarrollo del Pueblo Gitano13

provides coordination for the Ministry of Education

(MEPSYD) and the Autonomous Communities of Aragon, Asturias, the Canary Islands,

Cantabria, Castilla-La Mancha, Castilla y Len, Extremadura, Galicia, Madrid, Murcia,

Navarre, the Basque Country and La Rioja, as well as other authorities and experts.

Likewise, the Programa Teleeducacin, developed by the CNICE14

, involves a goodmany Autonomous Communities: Aragon, Asturias, Cantabria, Castilla y Len, Castilla

la Mancha, Extremadura, Balearic Isles, La Rioja, Madrid and Murcia.

CHARTER8INCLUSIVE MEASURES

12

Eurybase-Espaa (2007-08), page 281.13

Development Programme for the Gipsy Community14Centro Nacional de Informacin y Comunicacin Educativa National Centre for Education

Information and Communication.


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Source: own elaboration5.3. Interim conclusion: research conclusions

To conclude, the education authorities are designing actions that guarantee the

appropriate care for children with special education needs, gifted pupils or those late

joining the system. Together with traditional measures for school inclusion, such as

grants and curricular adaptations, there is also the use of new technologies, teacher

training and institutional cooperation as significant factors when effectively providing

all the pupils with equal opportunities.

6.SafeEducation

This section analyses the more pertinent actions related to protection, bullying and

coexistence at school. The aim here is none other than to shed light on the responses

made to provide a suitable context for learning and integration in schools.

6.1. The first ideal: the school as a safe havenMindful of the relationship between the education children receive and their future

conduct as adult citizens, school and family are understood to be the basic framework

for social integration, the acquisition of social values and skills, as well as for

embracing non-violent behaviour. For these reasons, the public authorities understand

that schools should be places for learning how to coexist and examples of the civic

values and of the protection they seek to inculcate, and hence the reason they share the

aim of creating schools that provide an atmosphere of peace and security.

6.2. The second ideal: schools without bullied and harassed pupils


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A distinction has to be made at this point between the concepts of bullying and

coexistence within a school context in order to better understand the evolution of the

education policies of the Autonomous Communities.

a) On the one hand, the term bullying is the best known and most widely used in

Europe. The standard definition of this concept was made in 1993 by Dan Olweus,

professor and researcher at the University of Bergen (Norway), who referred to bullying

as those violent and aggressive acts that occur at school.

b) Coexistence or improving the school climate: the climate is based on the collective

perception of the interpersonal relations that take place at school and is a factor that has

a bearing on the behaviour of all those attending. It is specifically defined as the overall

atmosphere of a school determined by all those physical factors, structural, personal,

functional and cultural aspects of the school that imbue it with its own particular nature,

which in turn conditions the various education processes.

6.3. Safety measures

Consistent with the need to ensure schools are safe havens for pupils, in 2006 the

Consejo Nacional de Seguridad Ciudadana15 agreed to set up a working party on

Youth and Safety, for the purpose of proposing measures, in the realm of police

cooperation with the education authorities and social services, to address those issues of

public safety involving young people. One of the conclusions reached by this working

party led to the drafting and subsequent approval of the Acuerdo Marco entre el

Ministerio de Educacin y Ciencia y el Ministerio del Interior (2006)16

on coexistence

and improving school protection.

With a view to implementing this Agreement, the Secretary of State for Security

approved Instruction 3/2007, which contains the lines of action to be pursued in this

matter and the cooperation to be provided by other institutions, such as the central

governments regional delegations and sub-delegations. In compliance with the

provisions of this Instruction, the police authorities, the Direccin General de la Polica

y la Guardia Civil drafted the Plan Director para la convivencia y mejora de la

seguridad escolar (2007)17, which covers the principal measures rolled out for

15

National Council for Public Safety16

Framework Agreement between the Ministry of Education and Science and the InteriorMinistry17

Master Plan for coexistence and improving protection in schools


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CHARTER9SECURITY AT SCHOOLS MEASURES

Source: own elaboration6.4. Measures to protect pupils at risk from bullying and harassment

Table 10 presents a comprehensive look at the measures established for eradicating

bullying and harassment in schools. By grouping these measures according to three

criteria - teachers, outside services and schools - the following information is

forthcoming:

The most widespread actions involving teachers share two common aspects: the

inclusion of bullying and coexistence in Lifelong Teacher Training as a specific

line or through the modes of ordinary training and the fostering of regular and

dynamic teachers meetings - Juntas de Profesorado.

Amongst those measures grouped together under the heading of outside support

and cooperation, there are the following highlights: the creation of websites or

the posting of content on teaching portals; the setting up of a monitoring centre

for coexistence at school; the arrangement of publicity and awareness

campaigns; the involvement of school inspectors in monitoring coexistence in

schools; the reporting and electronic processing of information related to

coexistence in schools, and finally, the fostering of the engagement of families.

Within this group of measures, it should also be noted that there are other types


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of actions that consist of prizes, financial aid, projects or grants for the

development of different schemes designed to improve coexistence or prevent

violence in schools; support for initiatives and best practices in schools or the

formation of autonomous school networks that pursue projects involving a

culture of peace or the improvement of coexistence.

The measures designed and contemplated for application in schools also

encompass a wide range of factors, namely, the drawing up of a coexistence plan

for the school; the instruction of all members of the school community; the

incorporation of content and programmes for the improvement of coexistence

and the prevention of violence in educational guidance and tutorial sessions.

Measures are also designed to improve the perception pupils have of their schooland of the teaching it provides; the preparation, collection and dissemination of

materials and/or guides in different media, and extracurricular and extramural

activities linked to improving coexistence.

CHARTER10MEASURES AGAINST BULLYING


6.5. Interim conclusion, research conclusions

The authorities have pledged to ensure schools are free from any violent behaviour,

especially peer violence, harassment and bullying. Although this task is being


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undertaken mainly within schools by boosting the mechanism of tutoring and

mediation, ways of coordination are also being sought between the school community

and police experts to facilitate knowledge sharing and address the solution of those

cases of greatest concern. Accordingly, pupils are taught about the various roles of the

police forces to enable them to learn about the implications of associated values in

safety and security, public cooperation and the development of pro-active conduct in the

rejection and reporting of those violent acts they witness or suffer from.

Regarding bullying and harassment at school, highlights amongst the main actions

rolled out are the regional plans and monitoring centres for preventing violence. Such

measures suggest that the education authorities share the notion that a suitable school

environment is essential if schools are to perform well, and so they prefer to takemeasures focusing on the school population as a whole rather than dealing solely with

problematic individuals.

7.Teachersupport

7.1. The ideal: being a good teacher for children at risk

The LOE specifies that the lifelong training of teachers is essential for cementing the

principles of fairness and quality that should prevail in Spanish schools. The education

authorities are therefore called upon to arrange specific training programmes, through a

varied programme of instruction that develops the individual's professional

competencies whereby they can suitably respond to the fresh challenges posed by the

Spanish education system. Consequently, and in order to deal with these challenges, the

initial training of teachers has been reformed to take into account the requirements of

the European Higher Education Area.

Nevertheless, the authorities are not the only institutions concerned with fostering

integration in schools. There are relevant teacher support projects that should be

mentioned in this section, namely: Comunidades de Aprendizaje18 and Atlntida-

Escuelas Democrticas19

.

7.2. Teacher support measures

In the drafting of training measures by the authorities, a series of priority lines are

defined that inform the programme of schemes designed for teachers. These measures

18Learning Communities

19Atlantis Democratic Schools


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are grouped into four general areas: cooperation, training, new resources and

organisation.

The area of cooperation involves: courses, seminars, symposia, working parties,

etc.

The following are organised in training: foreign language learning for specialist

and non-specialist teachers; training of guidance teams and of teaching staff

linked to caring for diversity and to special education needs, the promotion of

training in schools and innovation by schools, or providing the necessary

assistance for the development of the different programmes of Apoyo a la

Accin Educativa20

, amongst others.

Concerning the use of new resources: backing is given for new innovation

projects; the use of Information and Communications Technologies and their

classroom integration, etc.

From the perspective of organisation: support is given to the autonomy of

schools and the application of quality and efficiency models in their

management and organisation.

Focusing on the initiatives highlighted earlier: within the Comunidades de Aprendizajeproject for example, supportive relations are sought between teachers, families and the

pupils themselves, regardless of the internal social make-up in the classes in which all

the groups of children, whether at risk or not, co-exist side by side. In turn, the Atlntida

project also promotes the building of networks that allow for the sharing of original

experiences and cooperation between teachers. Nonetheless, these are not the only

aspects common to both projects that ensure these schemes are very well received by

teachers, schools and local institutions, constituting the basis of their success. These are

measures that in certain circumstances should be seen as more than just tangible

instruments, as may be increasing the number of computers or the hours dedicated to a

subject, referring to an approach to the learning process, specifically to:

a) A positive attitude towards the teaching of abilities by schools and the pupils

ability to learn.

20

Support for the Teaching Process


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b) The introduction of horizontal cooperation networks between teachers and

schools, between teachers and pupils, between teachers and/or schools and

families, between schools and their surrounding communities.

c) The fostering of channels of communication between schools and the educationauthorities in order to establish efficient sources of funding.

d) The promotion of professional development and for upholding the daily practice

of recapitulation and support for self-esteem.

CHARTER11SUPPORT TEACHER MEASURES


7.3. Cross-referenced measures

It has been evident throughout this report that training is a mainstream measure that is

present in all the actions related to the priority lines of work undertaken by the


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authorities, to inclusive education and to safety and security in schools. For example,

one of the main policies adopted to drive academic success, the PROA plan, includes a

specific measure for adapting teacher training to today's reality in education.

Concerning education and safety, the Director Plan for coexistence and improving

school protection seeks to analyse the training needs of teachers in this field and take

part in a scheme that caters for such needs. This approach stresses the importance given

to teachers as a key factor for achieving inclusive schooling and a quality system that

ensures all children are treated as equals.

CHARTER12SUPPORT TEACHER MEASURES AND CROSS REFERENCED FRAMES

Teachersupport

Cross referenced measures.

Yes No

From early school leaving X

From Inclusive education X

Priority Education X

From safe education X


7.4. Interim conclusion, research conclusion

The main ideas to be highlighted in this section deal with the flexibility of training

schemes as a way of responding to a complex situation with a raft of challenges to be

faced. Teacher training is normally undertaken through regional plans of a general

nature. Such plans set out a series of objectives, lines of work and measures of a varying

nature with specific mention made of those related directly to the issues covered by this

report, namely, respect for diversity, coexistence, etc. Furthermore, training schemesadopt a flexible programming approach, which is developed annually through priority

training lines and short-term objectives, whereby new proposals can be made each year

to cater for the needs of either the teachers themselves or of the actual education system.

inclusion and education in european countries - spain report

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