Home Elements for a Diagnosis of the Spanish Educational System
1 - Previous studies of diagnosis and evaluation (continued)


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Evaluations of schools and educational programmes carried out by the Educational Inspectorate

Nota: The INCE commissioned a study with this same theme and title to Samuel Gento Palacios, Associate Teacher of Didactics and School Organisation at the National Open University, and to Julio Puente Azcutia, Technical Inspector of Education and Head of the National Institute for Quality and Evaluation. These lines included here are based on this study, that may be requested from the INCE by those who are especially interested in the matter.
 

The fact that evaluation of schools is one of the fundamental duties of the Inspectorate is simply proof, in Spain as well as in practically all countries. As schools form the most visible part of the institutional and functional grid we usually call the schooling or educational system, it is not difficult to conclude that, as expressly affirmed in this legislation, it is an important function of the Inspectorate to "participate in evaluation of the educational system" (art. 61.2.b of the LOGSE). The Organic Act on Participation, Evaluation and Administration of Teaching Centres (LOPEG) perhaps defines it in a more precise fashion: "to participate in evaluation of the educational system, especially as to schools, to the management function, and the teaching function, through analysis of the organisation, functioning and results of these" (art. 30).

The following lines are a brief summary of some of the evaluation actions carried out by the Education Inspectorate in recent years, with special emphasis, as in the previous cases, on the main shortcomings detected in the different sectors of the school system.



STUDENT PERFORMANCE

As the period concerned here for specific analysis is that at the end of obligatory education, that is to say that legally constituted by Obligatory Secondary Education, we shall concentrate our considerations on this, not without previously pointing out that since academic year 1986-97 the Subdirectorate General of Educational Inspection has published an annual report on the results of the evaluation of students in EGB, BUP-COU and Vocational Training and, since 1989-90 a report, also annual, on the grades by areas or squares in the same levels and sectors. From 1993 onwards, it also began, pursuant to the new legal structures, the publication of annual reports on the results of evaluation of primary and secondary education (obligatory and baccalaureate).

The following is a summary of the main data provided by these evaluations:

  • Up till academic year 1994-95, less than 70% of the students in seventh year of EGB obtained a positive grade in all the subjects comprising the course.
  • Due to the "end of course effect", the results in eighth year of EGB are somewhat better, although only four out of five students in that year obtained the (Primary) School Graduation certificate at the end of the academic year.
  • Implementation of teaching based on the LOGSE has not brought about an improvement on the indexes considered (in 1994-95). Thus, the third cycle of Primary Education promotes 95% of the students, although 17% needs reinforcement measures or syllabus adaptation; in ESO, 87% of the students are promoted from first cycle to third year, although at least 60% with a positive evaluation in all areas. Only 70% is promoted from third to fourth year (a similar percentages to those proposed for the (Primary) School Graduation certificate in eighth year of EGB in 1994-95), although only one third of the students in third year is promoted in all the areas with a positive grade.
  • It is very noticeable that in fourth year of ESO less than 40% of the students obtains a positive grade in all the areas,although 70% is proposed for the relevant qualification.
  • As to specific areas of knowledge, for ESO overall, less than 70% of the students passes in the areas of Nature Sciences, Social Sciences, Spanish Language and Literature, English and Mathematics.
  • The number of students repeating is high at the levels most concerned: more than 30% in EGB, with the consideration that more than 20% of the students obtained the (Primary) School Graduation certificate after repeating one or more years.
  • In ESO, only 87% of the students evaluated in the first cycle are promoted, so 13% have to spend a further year in the cycle. Approximately one out of three students has to repeat the third year of ESO and thus one out of three students do not achieve the Secondary Education Graduation.
  • Due to this situation of generalised "academic failure" at all levels, the indexes of drop-outs are very high in non obligatory education.
  • The studies about the results of student evaluation based on the grades granted by the teachers have always shown a difference between state and private schools. It is significant how constant the difference in grades has been over the years between schools in the two sectors, always in favour of the private sector. The statistic representation of the difference, as well as the notice of the phenomenon, lead to the conclusion that, whatever factors cause this, these are not random but stable factors, which act in a systematic, generalised, differential way. Among the explanations the Inspectorate announces as possible, there are, first of all, the fact that students from the lowest social strata - who have, on average, lower percentages of academic success - mainly attend state schools; and secondly, private schools are mainly located in urban surroundings, where cultural stimulation is greater, while state schools cover the whole country, including the more depressed areas.

It is important to point out the precautions taken by the Educational Inspectorate as to these results, stating that, on the contrary to what is usually done, academic success or failure may not consist only of the academic performance measured in grades or marks and courses passed. "Beyond academic performance - write Gento and Puente citing a publication from 1996 - the Inspectorate has noted that the students develop in general lines of positive civic and social attitudes: collaboration among them and their teachers, tolerance for opinions other than their own, non discrimination, interest for social problems, respect for rules of life together". In any case, one must bear in mind that there are many causes that have an effect on that considered as academic failure, that are not always imputable to academic factors, but quite often to others of an economic or social, administrative, psychopedagogical nature, etc. and it is by combatting all such causes that they may be solved.

Great interest must be paid to considerations that Gento and Puente state in their study in relation to the diverse areas of study, once the data supplied by the Inspectorate are analyzed. Attention noting that the lowest success indexes are in Mathematics, Spanish Language, English and Nature Sciences (especially Physics and Chemistry), they refer to the possible factors that may have a special effect on these results. As to Mathematics, they remind one of the rejection and consequent psychological blockage many students have as to this, but they also refer to possible factors of inadequate programmes and syllabuses, to the school timetable, to the use of inadequate methodology. In Spanish Language "it has been noted that there is no increase in linguistic competence: knowledge is repeated in different years, but there is no progress in practical mastery of the language"; thus, it is in oral expression and comprehension where the greatest levels of deficiency are noted. As to foreign language (English in most cases), factors to take very much into account would be the high number of students per class and the different levels of knowledge and interest shown by them. Lastly, the lack of mastery of the basic operations of calculation and elementary mathematical basics, along with the lack of practical activities at many schools with the consequent scarce development of habits of observation and experimentation, are probably the base causes of scarce performance in Physics and Chemistry.



METHODOLOGY AND SYLLABUSES

Three fundamental differences are detected in the diverse reports issued by the Inspectorate concerning the syllabuses:

  • lack of adjustment between the contents proposed in the syllabuses and the real capacities and interests of students of a certain age;
  • lack of adjustment between the obligatory stages, applicable to the previous EGB and the present Primary Education, always in reference to later secondary studies;
  • lack of adjustment among the optional subjects organised by the schools and the educational needs and real interests of the students, a lack of adjustment that has increased in recent years.

As to the different areas of knowledge contained in the study plans, one must remember that the overloaded content frequently denounced by teachers is more due to specific scheduling of teaching by themselves, out of longstanding habit, rather than to the actual official plans, that in reality just provide an index of content accompanied by brief methodological guidelines. In any case, the deficiencies fundamentally contrasted may be summed up as follows:

  • In Mathematics, more importance is usually given to abstract themes than to basic geometry and numerical calculus. Above all in the previous EGB, more encouragement was given to structures and formal constructions of sets than to calculation procedures or basic descriptive geometry.
  • In Spanish Language, more importance is usually given to theoretical aspects than to practical ones. For decades linguistic knowledge has been more highly valued than expression and oral and written comprehension.
  • In Nature Sciences, there has been decades of neglect for matters related to the nature of science, the relations been science, technique and society, and for scientific methodology. The existing relations between diverse subjects have also been neglected: mastery of elementary mathematical procedures in Physics and Chemistry, basic chemical knowledge in study of Biology and Geology, etc.
  • In Social Sciences, some important aspects have been neglected,such as History of Art, basic events in the history of Spain, elementary geographic knowledge, etc.

Let us now set aside the study plans and programmes and their content and refer to the teaching methodology that is normally used in class. In the Inspectorate opinion this is one of the most deficient aspects of teaching in our country, which will require a greater need for recycling of the teaching staff. It is true that the patterns of teaching-learning generally respond to the principles of significant learning and that the relations between the teachers and students are approached correctly on the basis of work and mutual respect, but the approach to teaching is frequently excessively abstract and scarcely matches the age and characteristics of the students and, moreover, substantial parts of the subjects are frequently left unexplained. On the other hand, one seldom seems to resort to stimulae and activities that may motivate the students, and the teaching resources used are scarcely varied. The different rates of work by the students is frequently unknown in practice, as well as such procedures as group work, flexible grouping, etc. There is too much dependence on the "text book", sometimes presented as a "reference book", or "activity book". In spite of all these shortcomings and others that may be pointed out, one must not forget either that important steps have been taken in teaching methodology, and many teachers have apparently attempted to improve their task. However, one would have to intensify action in this sense.

Student evaluation also has abundant lacunae. A general lack of preparation in evaluation techniques is detected among the teaching staff, which frequently means prior evaluation or promotion criteria are not established, nor are the minimum contents required set, nor are adequate, varied instruments used, nor are self-assessment exercises by the student encouraged, etc. As to ongoing evaluation, the divorce between theory and reality is complete at too many schools. A curious fact is also noted which is that there is a tendency to fail more students the larger schools are, which perhaps may be due to the fact that coordination between teachers is more complex at large schools.

Many of these deficiencies could perhaps be decreased if more attention were paid to correct preparation of such significant documents as the Educational Project and the syllabus projects in the different stages. The Inspectorate has repeatedly pointed out the risk that this type of documents may become a merely bureaucratic resort.



THE EDUCATIONAL AUTHORITIES AND SCHOOL MANAGEMENT

The study used here as a source and reference is especially rich in this aspect, referring to fundamental components included in the heading (the role of the Public Authorities, Educational Inspectorate, etc.). Although the consideration of these components will undoubtably be of great use in later actions by the INCE, we now wish to take only the points from the study that affect the work carried out by the Committee III for Diagnosis which, as was clarified above, had to be limited to only examining matters related to school management, participation and the climate of life together. Now, as the school management is in charge of organising and running schools, and as the Educational Inspectorate carried out an important assessment of this point through the School Evaluation Plan (EVA Plan), we consider it most appropriate to mention its main conclusions on the matter here.

As to the school management, the Gento and Puente study began by mentioning some features that are inherent to the procedure before the LODE, in force in 1982, among which they point out participation by the teaching staff, resorting to candidates with prior management or organisational experience, the trend in "lifelong principals" etc. This obviously all underwent a substantial change after approval of the LODE in 1985. After that date, the Inspectorate carried out a monographic study of the operation of School Councils in the so-called "Ministry of Education and Culture Territory", including data on appointment of the principals. Then the number of principals appointed provisionally by the Provincial Directors must have amounted, in global terms, to almost 30%, with a greater effect in Primary Schools (33.6%) than at High Schools (21.6%). This means that, in numerous cases, the School Council did not manage to proceed to appoint the Principal, generally due to absence of candidates.

Certain characteristics related to school management have been pointed out in later studies, specifically in the one published by the Inspectorate in 1996, due to implementation of the EVA Plan. Three of these characteristics are recorded:

  • "In operation of the personal bodies, team work was noted; generally well coordinated, so the members of the management teams - with a few exceptions - were recognised and considered by their colleagues".
  • Dedication by the single person governing bodies generally has a set timetable that, however, must be extended during certain periods of the academic year.
  • Principals usually have good, fluent relations with the educational community, although they neglect their relations with the institutions of the social agents at the school.

As to organisation and running state schools, the Report published in 1995 by the Subdirectorate General for Educational Inspection at the Ministry of Education and Culture, after implementing the aforementioned EVA Plan, recorded the main strengths and weaknesses detected in the 50 schools that were included in the sample and subject to evaluation. The strengths emphasise those related to existing teaching resources, effective implementation of the Syllabus Projects, preparation of the general annual programme for the school, satisfactory administrative and economic management, progress in the team work among the teaching staff, to the existence of the School Council within it, to the correct relations between teachers and students, to correct patterns of teaching (see above) and the positive civic-social attitudes noted among the students. The weaknesses emphasised are as follows:

  • There is the risk of such important documents as the Educational Project and the Syllabus project becoming bureaucratic instruments that do not inspire the pedagogical tasks at the schools.
  • The tutorial act is not being carried out in the way it should, as on occasions it has lapsed into a series of formalist, routine acts that detract from its very nature.
  • The Boards of Teachers and the School Councils do not deal with the pedagogical matters in sufficient depth.
  • Neither ongoing nor training evaluation is being carried out as foreseen in the by-laws to develop the LOGSE.
  • The teaching staff has not yet undertaken the practice of self-assessment and evaluation of the teaching-learning processes.
  • Pedagogical criteria are not predominant in preparing the timetables.
  • The parents participate very little in the choice of their representatives on the School Councils.

The influence of the aforementioned EVA Plan on state schools was also considered in the Report of 1995, which stated a dynamic of reflection sparked off by the Plan, as well as the gradual diffusion of an evaluation culture and consequent stimulus and support for self-evaluation activities at schools. Difficulties encountered in implementation of the Plan were also pointed out (the need for too many visits, work instruments too numerous and formal, lack of logistic support and impossibility to deal with the teaching processes sufficiently).

Organisation and running of private state-subsidized schools was given special consideration by the Inspectorate in the years prior to the 1995 Report, specifically in 1986-97 and 1987-88. Then fairly faithful fulfilment of the current rules by these schools was noted as to constitution and operation of School Councils, appointment of the principal, etc. Among the deficiencies recorded, the reports mention the lack of participation by parents in the appointment processes.

The previous paragraphs have already mentioned remarks on the matter of participation and the participation and management bodies in school life. With specific reference to the School Council at state schools, the monographic study carried out in 1986-97 showed that:

  • participation in the election process was high among the teaching staff, the service staff and students, while it was low among the parents;
  • the matters dealt with by the School Councils were mainly of an administrative and economic nature;
  • the schools had little relation with the community.

As to the atmosphere of school life, Gento and Puente have not collected information on the matter in their study, surely as they considered there was nothing particularly important to mention. They make a passing reference to some school drug abuse detection schemes, but without providing details and suggesting the scarcity of actions with regard to this.



THE TEACHING PROFESSION AND ITS CONTEXT

It seems clear, from the study by Gento and Puente, that the actions by the Inspectorate as to training practising teachers has notably dropped in the last decade, especially as of creation of the Teacher Training Schools and Programme Units, as to which little is said in the Inspectorate memoranda, except for some details related to the number of existing schools. Something similar also happens as to the matter of professional incentive schemes for the teaching staff. On the contrary, as cited in the Report "the Educational Inspectorate has had an outstanding role in evaluation of teaching staff at private High Schools, as well as interns at state schools, to check their academic and professional qualifications", as shown in the memoranda by the service.



FAMILY AND SCHOOL

This is also an aspect that is scarcely analyzed. It indeed seems, from the memoranda of the Inspectorate that the ordinary supervision carried out by the inspectors of participation by parents in school life, generally considered as one of the areas in which most improvement is required. One of the reports referring to the EVA Plan (that of 1993) states that:

"there are parents, mostly members of the Students’ Parents’ Associations, who collaborate correctly, very actively in the schools. However, a considerable number of parents does not have enough information, either because there are not adequate channels of transmission, or due to a lack of interest among the parents themselves".


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