SCHOOL CURRICULUM REFORM AND MENTALITIES IN TRANSITION: LOOKING INTO THE BULGARIAN CASE 1 Irene Psifidou 2 Introduction Education and training has been recognized as a powerful policy lever to achieve the strategic goal of the Lisbon strategy: to make Europe the most competitive knowledge-based economy and a socially cohesive society by 2010 (European Council, 2000). To support this endeavour and respond to the emerging needs of the global labour market for new skills and competences, European countries are making a big effort by increasing access to education for all children and strengthen the quality of the education process. Curriculum reform is included in the political agenda of many countries as a priority area for achieving this goal. The aim of the present study is to analyse: 1. whether the curriculum reform in Bulgaria undertaken since 1999 is leading to a greater degree of alignment and convergence with the educational systems in other occidental countries; 2. if the curriculum reform in Bulgaria not only facilitates the acquisition of knowledge, skills and competences, but also the ethical and citizenship-building education of students; 3. the attitude of key actors involved in the education process towards the reform which may constrain or preclude its success. To draw and fundament conclusions, 96 in-person interviews were contacted and 201 questionnaires were administered across Bulgaria between 2004-07 to: administrative informants including: ministry officials 3, school directors, inspectors and teachers unions. educators comprising: teachers in general secondary education from 46 towns representative of small, medium-sized, and large communities covering virtually the whole territory of Bulgaria and university professors from the University of Sofia, the faculties of humanities and social sciences; to the civic society including: members from NGOs dealing with research on education, parents and students from both comprehensive and profile schools; 1 School curriculum reform and mentalities in transition: looking into the Bulgarian case. Paper published in Conference proceedings of the 6th International Conference on Comparative Education and Teacher Training organised by the Bulgarian Comparative Education Society, in 1-4 July 2008, in Sofia, Bulgaria. Volume 6, p. 112-117. Bureau for Educational Services, Sofia, Bulgaria. 2 Dr. Irene Psifidou has a PhD degree on Comparative Education Policy from the Universidad Autónoma de Barcelona in Spain and since 2004, she is working as education policy analyst at Cedefop, the European Centre for the Development of Vocational Education and Training, in Thesaloniki, Greece. 3 responsible for curriculum policy, qualifications and assessment policy, textbook policy, inspection policy, in-service teachers training policy, design and development of specific subject-curricular areas. 1
1.1 Global trends of curriculum policy Bulgaria, since the change of the regime, made a considerable effort to democratize and modernize its educational system, for promoting and consolidating the radical changes occurred in terms of political democratization and economic development, as the country evolved from being a transition state into a full member of the European Union. A systematic curriculum reform took place progressively since 1999 (MES, 1999) in all levels of education bringing Bulgarian s educational system closer to those of the occidental countries (Psifidou, I. 2007). This transition was not easy, as great resistance to innovation came both from teachers, students and their parents. There were issues and concrete interventions - such as the introduction of alternative textbooks- which led to conflicts with teachers and other stakeholders, and other cases whose implementation was significantly delayed due to resistance from parents and students; for example, the introduction of an external school-leaving examination (Matura). Regardless of these difficulties and differences in the period of time when curricula reforms were implemented in Bulgaria and the rest of Europe 4, it is observed that the curriculum policies in transitional Balkan countries, and especially in Bulgaria, are aligned with those of the occidental countries. In both groups of countries, curriculum reforms are being implemented targeted to the: development of new syllabi in order to incorporate new knowledge areas, skills and competences to the curriculum, such as ICT, economics, civic education, vocational education, life skills, and guidance and counselling; actualization of the curriculum subjects and educational content with new concepts and values, demanded by emerging critical issues in modern society. For example, sustainable development is being studied through Geography, health education through Physical education, new social values, life skills and civic education through History and Geography; introduction of new objectives and educational content which go beyond national borders offering a European and international perspective and dimension. Revised Geography and History curricula aim to fight against international stereotypes and conflicts, reinforcing the need for mutual understanding and living together peacefully; reorganization of curriculum content to rebalance the time assigned to different subjects and knowledge areas, increasing flexibility and diversification and allowing interdisciplinarity. Despite the incorporation of new knowledge and values in secondary curricula in both developed and transitional countries, it is still not known to what extent curricula, especially these of social studies and humanities, are designed in a way that can help to promote intercultural education and social inclusion in the daily life in secondary schools. 4 Most of the occidental countries began addressing issues of curricula review and reform at least since early 80s, while this process has been delayed in transitional countries of the Balkan region (such as Bulgaria, Romania, Albania, Croatia, Former Yugoslavian Republic Of Macedonia, etc.) affected by radical political and social changes. 2
1.2 Learning and living together in school It is well known that for developing ethical attitude and citizenship skills to students, it is indispensable not only that the school curriculum promotes ethics and citizenship rights and obligations but also that the school functions as an exemplary democratic social community. From the data collected in Bulgaria, it was made evident that the majority of informants do not perceive school as a small social community where participants should collaborate. From all informants, only teachers unions members and NGOs clearly emphasized the value of teacher competences related to the school work. Only the former put a priority to the need for cooperation of parents, teachers and other social agents to accomplish the educational goals of the school. Given the low importance attributed by the informants to general competences related to the socialization and collaboration of teachers within the school borders, the present study identifies a tendency of the actors involved to the education process to see teaching and learning as an individual activity limited to the walls of the classroom. The selected informants showed limited sensitivity about the principles of personalization and solidarity in teaching and learning as did not seem to be aware of the need for both teachers and students to acquire competences related to team work, collaboration, open exchange of ideas, peaceful conflict resolution, nowadays absolutely necessary for every citizen. Interviewed students did not think that one of the main functions of teachers should be the supervision of their behaviour in the classroom and in the school at large. It does not come as a surprise that secondary school students resist to acknowledge teachers as controllers of discipline at schools. On the other hand, despite the unanimous agreement among the respondents on the need to motivate students to work and live together in the classroom, only teachers and inspectors recognized the need to communicate to students the norms of good behaviour in school and to ensure that they adopt an appropriate social attitude. This probably points to the lack of awareness on the part of the rest of the stakeholders with respect to the increasing difficulties to maintain discipline and prevent antisocial behaviour in today s schools. Finally, from the group of informants, only students appeared to be particularly sensitive with regard to the social integration of students with special education needs and different ethnic backgrounds. It is remarkable that they were the only group who prioritised the need for teachers to adapt teaching practice to student diversity, to know and be able to work with diverse and heterogeneous classrooms creating an appropriate and beneficial environment for all. Taken into consideration the significant number of minorities, as the Roma, and other disadvantaged groups who live today in Bulgaria, as well as the measures for the integration and mainstreaming of such students in public comprehensive schools, such competences for teachers become vital. While the new curriculum aims to create a more democratic environment, more flexibility and student centre teaching, the present study showed that traditional mentalities heritage from the old regime persist. For a country in transition, this is to be expected, as mentalities do not change overnight. If democratic values and 3
principles are to be promoted in Bulgarian schools though, it is important that schools function as learning and democratic communities. 1.3 Views and perceptions of key actors in the Bulgarian education sector Evidence drawn from this study alerts for a low understanding towards certain preconditions to the successful implementation of the new curriculum. There is no convergence in the different actors opinions on basic issues, such as the roles and responsibilities of secondary education teachers. Each group of respondents perceives the responsibilities and functions of teachers in a different way based on their own interests and needs. This could result in difficulties in terms of building consensus on key areas when it comes to both decision-making and implementation, such as at the time for the conception and introduction of new approaches to teacher training. While there was convergence of opinions on the need for teachers to promote a democratic attitude in classroom and to communicate efficiently and appropriately with students, parents and other teachers, there were also found some weak points that may impede the further modernization of the Bulgarian system. The majority of the informants: failed to acknowledge the potential benefits of new technologies in the educational process; were not seem to be aware of the action-research approach in the teaching profession, as a means for the development of teachers knowledge, skills and competences; did not attribute great importance to the professional status of teachers. The motivation to use new technologies in the teaching-learning process was found to be very low in Bulgaria, based on the findings of the present study. Ministry officials, teachers, inspectors, members of NGOs and students interviewed did not considered overly important for teachers to display competences related to the introduction of new technologies (ICTs) into the preparation and development of teaching-learning activities. Only university professors and members from teachers unions showed certain sensibility towards ICTs, without though recognising the need for teachers to know the pedagogic potential of ICTs. This failure to acknowledge the potential benefits of new technologies in the educational process, both on the part of those who make decisions, as well as of those who teach and of those who learn may impede the implementation of measures oriented towards the use of new technologies in schools and the modernization of the education system. The need to inform and educate the Bulgarian society on the use of new technologies as a promising didactic instrument has been recognized by the Bulgarian government who made a considerable effort since 2005, through the National Strategy for the Introduction of Information Technologies in Bulgarian Schools (2005-2007), to equip teachers with basic skills on the use of ICT and the introduction of computers in the 4
teaching process. In May 2007, the Council of Ministries adopted an updated plan of action for the implementation of this strategy, and in 2007, the MES prepared a second strategy for Education and ICT (2008-2013) (MES, 2006 and World Bank, 2007). Additionally, none of the informants considered indispensable the action-research approach in the teaching profession as a means for the development of teachers knowledge, skills and competences. This lack of awareness may also result in a bottleneck for the modernization of the Bulgarian education system and its alignment with European standards. The European Commission in its Communication for Improving the Quality of Teacher Education, based on the Common European Principles for Teacher Competences and Qualifications (European Commission, 2007), highlights that teachers should be encouraged to review evidence of effective practice and engage with current innovation and research to keep pace with the evolving knowledge society. In a context of autonomous lifelong learning, their professional development implies that teachers undertake classroom-based research and incorporate into their teaching the results of classroom and academic research. Furthermore, the evidence gathered in this study suggests that, as in other European countries, the professional status of teachers is not broadly acknowledged in Bulgaria. Interviewed policy-makers, students and university professors did not consider a priority for teachers to display professional competences which would allow them to act in a critical and ethically responsible way while carrying out their duties. It is the subject matter knowledge which still retains a privileged consideration in the frame of mind of all actors in the education community, as the type of knowledge teachers should master and be qualified in. While the professionalization of the teaching profession constitutes an objective of the Lisbon strategy (European Commission, 2007) and progressively becomes a priority area in many European countries, in Bulgaria, none of the responding groups deemed as absolutely necessary the participation of teachers in professional development activities. It is well known that education reform cannot succeed when its cadre of teachers are ill-prepared for change, overly underpaid, inefficiently used, inadequately trained, and inadequately supported in terms of in-service training, access to teaching materials, and basic conditions for teaching, learning, and research. Thus, motivating teachers to participate in lifelong personal and professional training, and raising their awareness on the benefits of research and the new technologies in pedagogy, should become a priority in the political agenda of the Ministry of Education and Science, if education reform is to have a positive impact on quality. Concluding remarks Based on data collected from selected informants representing key actors involved in the education process, we may conclude that while the new school curriculum introduced in Bulgaria since 1999 brought innovations in the education system inline with these implemented in other occidental countries, traditional ways of thinking and habitual modes of procedure persist. 5
It is well known that new challenges and aspirations arisen from the knowledge-based society call forth new energies, but it is also to be expected that tensions will exist as the old order yields place to the new. To ensure a positive outcome of the curriculum reform, special emphasis should be given to the problematic areas identified in this study. BIBLIOGRAPHY European Commission. 2007. Communication from the Commission to the Council and the European Parliament Improving the Quality of Teacher Education. COM(2007) 392 final. Brussels, Belgium. European Council. 2000. Presidency Conclusions. Lisbon European Council. 23-24 March. Lisbon, Portugal. Ministry of Education and Science (MES). 1999. The Level of Education, General Education Minimum and Curriculum Act. Law 14/05/2004. In Official Gazette 2004:40. Official Document. Bulgaria. Ministry of Education and Science (MES). 2006. National Program for the Development of School Education 2006-2015. MES official publication. Sofia, Bulgaria. Psifidou, Irene. 2007. International Trends and Implementation Challenges of Secondary Education Curriculum Policy: The Case of Bulgaria. Doctoral Dissertation, Universidad Autónoma de Barcelona, Spain. World Bank. 2007. Program Document for a Social Sectors Institutional Reform Development Policy Loan to Government of Bulgaria. World Bank. Washington DC, USA. 6