EDUCATIONAL GOVERNANCE BASIC CONCEPTS Herbert Altrichter Linz School
EDUCATIONAL GOVERNANCE BASIC CONCEPTS Herbert Altrichter Linz School of Education JOHANNES KEPLER UNIVERSITÄT LINZ Altenberger Straße 69 4040 Linz, Österreich www. jku. at
OVERVIEW What do we mean by ‚governing‘ a social system? What coordination mechanisms are at stake in recent changes in school systems?
WHAT DO WE MEAN BY ‚GOVERNING‘ A SOCIAL SYSTEM? govern – regieren regulate – regulieren steering, control – steuern Altrichter, H. (2010). Theory and Evidence on Governance: conceptual and empirical strategies of research on governance in education. European Educational Research Journal 9, 2, 147 -158.
WHAT DO WE MEAN BY ‚GOVERNING‘ A SOCIAL SYSTEM? act to stimulate ‚specific‘ further actions
TRADITIONAL IDEA OF ‚GOVERNING‘
‚GOVERNANCE PERSPECTIVE‘ – A NEW WAY OF CONCEPTUALISING AND UNDERSTANDING ‚GOVERNING‘ (1) Multiple actors vs. Influence only through top ‚governors‘
(1) Multiple actors (2) Coordination of action
(1) Multiple actors (2) Coordination of action (3) Multi-level systems
MULTI-LEVEL SYSTEMS Not all actors interact in the same way and do not use the same principles/mechanisms for coordnination their action There are ‚layers / levels‘ which are based on a typical and specific ‚logic of action‘ (which may differ from the logic of other levels), e. g. Micro/classroom teaching and learning Meso/individual school Macro/system level Intermedite/control & support systems
MULTI-LEVEL SYSTEMS consequences: If there are different ‚logics of action‘ on different levels, then Actors at the intersections / interfaces of levels are particularly important Instructions /reforms (issued from other levels) must be ‚translated‘ into the language, practices, and structures of the new level = re-contextualisation (Fend 2006)
COORDINATION OF ACTION Reliability / continuity of social action Social order: actors coordinate their interaction according to a set of know principles or mechanisms Reform / change / innovation: replace (emphasise /de-emphasise) coordination principles / mechanisms by others What is a coordination principle or mechanism? Respect your elders Look at the syllabus before planning a lesson Look at performance standard results before deciding on projects of school improvement
COORDINATION OF ACTION There are thousands of more or less relevant coordination principles in every social system What coordination principle is characteristic and particularly relevant in your system becomes visible In comparisons (between countries, in time) In times of change / reform (what is to be changed? Where is resistance? ) In situations of conflict (what is contested? )
COORDINATION OF ACTION Other ‚classical examples‘ – institutionalized complex modes of coordination: hierarchy / bureaucacy: superordinate actor can influence subordinate actor to do specific things on a given level of quality market: actors (sellers, co-sellers, buyers) observe each other for best buys network: (unequal) actors suspend unequality and negotiate on equal terms for a common (but limited) purpose
WHAT COORDINATION MECHANISMS ARE AT STAKE IN RECENT CHANGES IN SCHOOL SYSTEMS? Altrichter, H. (2020). The Emergence of Evidence-based Governance Models in the State-Based Education Systems of Austria and Germany. In J. Allan, V. Harwood & C. Rübner Jørgensen (eds. ), World Yearbook in Education 2020: Schooling, Governance and Inequalities (pp. 72 -95). London: Routledge
Five dimensions for analysing governance transformations U. Schimank / B. R. Clark) State input regulation External regulation of essential goals Self-regulation of the teaching profession Competition and quasi-markets In-school management
Five dimensions for analysing governance transformations U. Schimank / B. R. Clark) State input regulation External regulation of essential goals Self-regulation of the teaching profession Competition and quasi-markets In-school management
WHAT COORDINATION MECHANISMS HAVE BEEN PROMOTED BY RECENT REFORMS? Output orientation External regulation of essential goals: ‚evidence-based governance‘, performance standards, testing and data feedback, new school inspections In-school management: more rights and resources for school leaders, manage school more flexibly like enterpreises (‚Verbetrieblichung‘) Competition and quasi-markets: schools with different profiles compete for numbers of (‚attractive‘) students (and try to get rid of less ‚attractive‘ students)
CONTROL CYCLE: „OUTPUTORIENTIERTED CONTROL“ goals support sys tem evaluation development work
REGELKREIS DER „OUTPUTORIENTIERTEN STEUERUNG“ performance standards quality standards (exemplary assignments) Zielklärung esting of student competencies inspections, evaluation Entwicklung Unter stüt zungs sys teme
GUIDING PRINCIPLES OF AN „EVIDENCEBASED GOVERNANCE MODEL“ Goals: expectations for the performance are formulated an communicated more clearly than before „performance standards“ „Quality standards for schools“ used by school inspections Check performance and compare with goals: produce ‚evidence‘ of actual performance Comparative performance testing „new school inspections“ Establishing institution for performance evaluation and quality assurance Improvement: „evidence‘ is communicated to actors on all system levels to stimulate and orientate system improvement Data feedback of performance results and inspection reports Regional and national education reports (NBB) Transparency/public involvement: Various stakeholders of schools are included in the processes to increase external attention (for pressure or support) Publishing performance results, reports to parents for all levels of the „multi-level system schooling“ E. g. data feedback to teachers, students/parents, school leaders, regional and central administration
GUIDING PRINCIPLES OF AN „EVIDENCE-BASED GOVERNANCE MODEL“ In our empirical research: By what processes and mechanisms do new ‚evidence-based governance instruments such as school inspections, performance standards and date feedback, Gruko want to be effective? Do they function as intended? Do the produce promised effects? papers 3 - 5
ENTWICKLUNG EINES WIRKUNGSMODELLS VON SCHULINSPEKTIONEN DURCH VERGLEICHENDE ANALYSE DER PROGRAMMTHEORIEN Wirkungsmodell aus dem Vergleich der nationalen „Programmtheorie“ Einzelmodelle repräsentiert offiziellen Erwartungen und Wirkungsannahmen -- ein normatives Modell
PROGRAMME THEORY OF EUROPEAN SCHOOL INSPECTIONS (EHREN, ALTRICHTER, MCNAMARA & O‘HARA 2013)
PROGRAMME THEORY OF EUROPEAN SCHOOL INSPECTIONS (EHREN, ALTRICHTER, MCNAMARA & O‘HARA 2013) School inspection (elements) Setting expectations • Cyclical vs differentiated • Output criteria • Conse-quences / sanctions Accepting & using feedback • Public inspection reports Stakeholder actions School improve ment (incl. selfevaluation) School quality
PROGRAMME THEORY OF EUROPEAN SCHOOL INSPECTIONS (EHREN, ALTRICHTER, MCNAMARA & O‘HARA 2013) School inspection (elements) Setting expectations • Cyclical vs differentiated • Output criteria • Conse-quences / sanctions Accepting & using feedback School improve ment (incl. selfevaluation) School quality • Public inspection reports Stakeholder actions == coordinating mechanisms of the governance instrument ‚school inspections‘
GUIDING PRINCIPLES OF AN „EVIDENCEBASED GOVERNANCE MODEL“ Setting expectations Goals: expectations for the performance are formulated an communicated more clearly than before Check performance and compare with goals: produce ‚evidence‘ of actual performance Accepting feedback Improvement: „evidence‘ is communicated to actors on all system levels to stimulate and orientate system improvement Transparency/public involvement for all levels of the „multi-level system schooling“ Stakeholder actions
BREAKOUT SESSION Groups of 4 students discuss the following questions and prepare statement What did you find important/interesting in reading the … paper? Was there anything unclear/surprising/shocking in the paper? Is there anything that might be relevant for your own research? for educational reform? Please take notes to be able to discuss issues related to the papers. Then What is the message that [authors} is trying to get across with this paper? In other words, what is thesis of this paper? Please report back main issues to the full group
Herzlichen Dank Titel/Ersteller, Datum
REFERENCES Altrichter, H. (2010). Theory and Evidence on Governance: conceptual and empirical strategies of research on governance in education. European Educational Research Journal 9, 2, 147 -158. Altrichter, H. (2020). The Emergence of Evidence-based Governance Models in the State-Based Education Systems of Austria and Germany. In J. Allan, V. Harwood & C. Rübner Jørgensen (eds. ), World Yearbook in Education 2020: Schooling, Governance and Inequalities (pp. 72 -95). London: Routledge. Altrichter, H. , Brüsemeister, T. & Wissinger, J. (Hrsg. ) (2007), Educational Governance. Wiesbaden: VS. Altrichter, H. , & Gamsjäger, M. (2017). A conceptual model for research in performance standard policies. Nordic Journal of Studies in Education Policy 3(1), 6 -20. Altrichter, H. , Gamsjäger, M. Plaimauer, C. , Prammer-Semmler, E. , Steiner, R. , Zuber, J. & Handschuh, L. (2020). Making sense of evidence-based governance reforms: the case of the Austrian performance standard policy (under review). Altrichter, H. , Heinrich, M. & Soukup-Altrichter, K. (2011). Schulentwicklung durch Schulprofilierung? Wiesbaden: Verlag für Sozialwissenschaften Altrichter H. & Maag Merki, K. (Hrsg. ) (2016), Handbuch Neue Steuerung im Schulsystem, 2. Auflage. Wiesbaden: Springer VS. Ehren, M. C. M. , Altrichter, H. , Mc. Namara, G. & O’Hara, J. (2013). Impact of school inspections on teaching and learning – describing assumptions on causal mechanisms in six European countries. Educational Assessment, Evaluation and Accountability 25, 1, 3 -43. Schimank, U. (2007 a). Die Governance-Perspektive: Analytisches Potenzial und anstehende konzeptionelle Fragen. In Altrichter, H. , Brüsemeister T. , Wissinger J. (Hrsg. ), Educational Governance, Wiesbaden: VS, S. 231 -260. Schimank, U. (2007 b). Elementare Mechanismen. In Benz, A. , Lütz, S. , Schimank, U. , Simonis, G. (Hrsg. ), Governance – Ein Handbuch, Wiesbaden: VS, S. 29 -45. Strittmatter, A. (2001). Bedingungen für die nachhaltige Aufnahme von Neuerungen an Schulen. Journal für schulentwicklung 8(4), 58 -66. Thaler, R. & Sunstein, C. (2009). Nudge. Improving Decisions About Health, Wealth, and Happiness. 34 London: Penguin. (Deutsch: Nudge - Wie man kluge Entscheidungen anstößt. Berlin: Ullstein 2010).
PFADMODELL BASIEREND AUF DEM WIRKUNGSMODELL VON SCHULINSPEKTIONEN (Chi Quadrat = 778, 04; df = 583; CFI = 0, 986; TLI = 0, 979; RMSEA = 0, 012; 90 % CI = 0, 010 ‑ 0, 014)
Wirkt Inspektion in unterschiedlichen nationalen/Governance. Kontexten unterschiedlich? Altrichter, H. & Kemethofer, D. (2015). Does Accountability Pressure through School Inspections Promote School Improvement? School Effectiveness and School Improvement 26(1), 32 -56. Ehren, M. C. M. , Gustafsson, J. -E. , Altrichter, H. , Skedsmo, G. , Kemethofer, D. , & Huber, S. G. (2015). Comparing effects and side effects of different school inspection systems across Europe. Comparative Education 51(3), 375 -400.
TAB. 9: “VERMITTELNDE MECHANISMEN” NACH RECHENSCHAFTSSYSTEMEN
SCHULENTWICKLUNG DURCH BILDUNGSSTANDARDS? (ALTRICHTER ET AL. 2020) Frage: Rezeption von Bildungsstandards und Datenfeedback Fallstudien in 6 Volks- und Haupt-/NMS, cross case analysis 3 Datenerhebungen in drei Jahren: vor M-Bildungsstandard-Testung, nach M-Feedback/vor E- Testung, nach E-Feedback Interviews mit SL, LL, Elternvertreter/in
KONZEPTUELLES WIRKUNGSMODELL (VGL. ALTRICHTER & GAMSJÄGER, 2017) Aufbau von Erwartungen Kontext Organisation Prozesse Bildungsstandards (erkennen, interpretieren, verändern) Unterrichtsmaterial, IKM, … Standardüberprüfungen Weitere Intervention en der Reform Unterrichts- (& Schul)entwicklung Anregung durch Datenrückmeldung Datenfeed back Einbindung von Stakeholder Bessere Prozesse Anpassung durch innerschulische Koordination (z. B. individualisierter, kompetenzorientierter Unterricht) Anpassung durch Unterstützung Unterrichts- (& Schul)entwicklung (erkennen, interpretieren, verändern) Berichte an Stakeholder Rückmel demoderation Bessere Ergebnisse (Schülerkompeten zen, Chancengleichheit) Bessere Prozesse (z. B. individualisierter, kompetenzorientierter Unterricht, Qualitätsentwicklung, Selbstevaluation) EBIS Beratung Anpassung durch Unterstützung
SCHULENTWICKLUNG DURCH BILDUNGSSTANDARDS? ERGEBNISSE (GAMSJÄGER, ALTRICHTER & STEINER 2018; PLAIMAUER, PRAMMER-SEMMLER & ALTRICHTER 2018) Wenig Auswirkungen der Rückmeldung des Standard-Ergebnisse: wenn im Erwartungswert Aufgabe von Einzelpersonen, keine schulbezogene Verarbeitung Keine schülerbezogenen Informationen Wann komme ich wieder dran? Als Vorbereitung auf die Testung werden in den 4. Klasse häufiger die BIFIE-Unterstützungsmaterialien studiert wo notwendig, inhaltliche Umgewichtungen vorgenommen und mit neuen Aufgabentypen gearbeitet
SCHULENTWICKLUNG DURCH BILDUNGSSTANDARDS? ERGEBNISSE (GAMSJÄGER, ALTRICHTER & STEINER 2018; PLAIMAUER, PRAMMER-SEMMLER & ALTRICHTER 2018) Berichte an stake holders werden nicht intensiv genutzt Element der Ziel-/Erwartungskommunikation scheint wirksamer als das Feedback von Resultaten Teaching to the test oder Anreicherung des Unterrichts mit neuen Lernmöglichkeiten?
WIRKUNGSMODELL – ERGEBNISSE/ HYPOTHESEN (VGL. ALTRICHTER & GAMSJÄGER 2017) Bildungsstandards Aufbau von Erwartungen Weitere Interventionen der Reform Unterrichts- (& Schul)entwicklung (erkennen, interpretieren, verändern) Unterrichtsmaterial, IKM, … Standardüberprüfungen Kontext Organisation Prozesse Anregung durch Datenrückmeldung Datenfeed back Einbindung von Stakeholder Bessere Prozesse Anpassung durch innerschulische Koordination (z. B. individualisierter, kompetenzorientierter Unterricht) Anpassung durch Unterstützung Unterrichts- (& Schul)entwicklung (erkennen, interpretieren, verändern) Berichte an Stakeholder Rückmeldemoderation Bessere Ergebnisse (Schülerkompeten zen, Chancengleichheit) Bessere Prozesse (z. B. individualisierter, kompetenzorientierter Unterricht) EBIS Beratung Anpassung durch Unterstützung
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