sou · GSB335 · 2005-01-01 00:00:00 — The analysis in this report is based on extensive research and evaluation of school development. The delegation has carried out an unusually in-depth analysis of the current Swedish compulsory school system and studied how schools with no set timetable have organized their teaching. The national evaluation of compulsory schools NU03, performed by the , will further elucidate the picture as far as the content, working methods and results of compulsory schools are concerned, when it is published later in the spring. The delegation has observed activities but, in accordance with the principles of governance by objectives and results, has refrained from issuing directives on working methods and choice of subject matter. In order to be able to form an opinion of whether the time- table can or should be abolished, it has been necessary for the dele- gation to make certain assessments of working methods and other aspects of teaching in the schools. It is difficult to draw unequivocal conclusions about how far the observed development depend on the schools being exempt from following the timetable and to what extent it depends on school development in general. The development in the pilot schools is also happening in other schools, albeit not with the same force, and much of what the schools are doing in the pilot scheme can also be implemented within the framework of the current national time- table. It is nevertheless apparent that the timetable has been or is still seen as a hindrance to school development in many schools. The timetable can and should be abolished – but the decision should be put on hold The delegations fundamental perception is that the timetable is poorly suited to a school governed by objectives and results. It lacks the significance it once had for how schools are governed and is no longer seen by school practitioners as a policy document of any great importance. The timetable clearly risks gradually losing its legitimacy if it is retained. The timetable can and should be abolished. The delegation also feels that the pilot scheme should be brought to a close at the end of 2005 prior to a recommendation for the abolition of the timetable being submitted to the government. The delegation is of the opinion that the research and evaluation reports as well as other follow-up data such as the results of the national tests to be pre- sented in 2004 and the first half of 2005 will provide a much clearer picture of the pilot scheme. Schools must take control of time The responsibility for day-to-day activities in a decentralized school governed by objectives and results rests first and foremost with the professionals, i.e. the teachers and the school principal. In a school where every pupil has the opportunity to develop in the best possi- ble way, it is reasonable for teachers and the staff to be given the best possible scope for designing activities. Each school should also be empowered to decide itself how the time is to be used to achieve the objectives. Reaching a similar conclusion as the government did in 1997, the delegation feels that deciding how time is to be allocated should be part and parcel of the plan- ning and organization of each individual schools activities. A school employing a more flexible, holistic approach is better able to prepare its pupils both for adult life and modern-day work- ing life. Such a school is also better suited to the pupils of today and their demands. The timetable is also a poor guarantee that the pupils actually learn anything, making it an ineffective instrument. Positive development in the pilot schools – but there are question marks Teachers and school principals, pupils and parents alike are basically positive to the working methods developed in the pilot scheme. These methods are objective and result-oriented and largely based on the needs, prerequisites and interests of the individual pupil. They also take a holistic approach, by e.g. a higher degree of sub- ject integration and themes. Although the main impression is positive, the delegation feels there are still question marks, for example concerning the relation- ship between private study and group learning and the tendency towards excessive fragmentation of objectives. Teachers describe the pilot scheme as time-consuming, but above all fun, stimulating and developmental. Grade statistics indicate a positive trend in the pilot schools con- cerning both the overall merit rating and the proportion of pupils with complete grades as well as the proportion of pupils eligible for national upper-secondary programmes. From having a poorer ave- rage merit rating than other schools at the start of the project, the schools had reversed the situation by the spring of 2003. The pro- portion of pupils eligible for upper-secondary school has increased in the pilot schools, whilst it has remained unchanged in other schools. This positive development is also evident when we analyse the grade results for different subjects/groups of related subjects. Development is particularly favourable in the pilot schools for the two pupil groups that generally have poorer grades otherwise, i.e. boys and pupils of foreign extraction. Improvement has been greatest among pupils of foreign extraction. Results in the compulsory schools that are not involved in the pilot scheme have not improved to the same extent as in the pilot schools. They have even deteriorated in some respects. The trend for boys and pupils of foreign extraction in these schools is either positive but noticeably weaker than in the pilot schools or negative, i.e. results have deteriorated. The objectives in focus – taken holistically or fragmented? The schools put considerable energy into understanding, inter- preting and breaking down the objectives, which are then evaluated, documented, verified and communicated to pupils and parents later on. Various support systems are used to plan and document the work. Such systems for younger pupils might consist of castles, spinning tops, beehives, apple trees, etc., that are gradually filled in as and when the pupils reach the set targets. Tables of some kind or another are often used for older pupils. Documenting their progress helps the pupils, their parents and teachers to feel they are more in control of development towards the objectives. Intensified efforts with the objectives have given rise to more pedagogical discussions, better quality teaching and better results in the pilot schools. This is, however, an area where there is a con- siderable need for skills development and knowledge exchange. It is important, for example, not to allow work with objectives to de- flect from the holistic approach nor to focus too much attention on objectives to be achieved and grading criteria. Objectives to be achieved were the centre of attention at the beginning of the pilot scheme. The perspective has, however, gradually been broadened to include objectives to strive towards as well. Individualization – private study or group learning? The aim of greater individualization has noticeably changed the way many of the pilot schools work and organize their teaching. Pupils have to a greater or lesser extent been given their own time on the timetable. The pupils can use this time to work on things that for one reason or another have been allocated priority. This own time has been given different names such as pupil time, private study, etc. Individualization has obviously also mani- fested itself in other ways. The general idea is that the teachers adjust and organize their teaching in accordance with the pupils needs, prerequisites and interests. Misgivings have been expressed that individualization may lead to the pupils doing too much private study and that this may de- tract from the intentions of group learning as expressed in the curriculum. The delegation does not see this as such an apparent risk. On the contrary, the evidence points to pupils in the pilot schools being given more opportunity to participate in joint pro- jects of different kinds to a greater extent than in other schools. This is well in line with the various educational goals in the curri- culum. The balance between individual work and group learning should, however, be studied in more details during the remainder of the pilot scheme. There is also a good deal of evidence suggesting that this more individualized working method leads to pupils in need of special support actually receive such support to a greater degree. Clearer and more carefully considered pedagogical strategies are however needed for pupils with severe disabilities, as is also the case in other schools. Greater pupil participation – only for some? The follow-up and evaluation indicate that pupils have more influ- ence over their studies. The pupils appreciate the greater degree of freedom and are comfortable with having control over some of the time they spend at school. Influence exercised by the pupils over teaching content is still the exemption rather than the norm, how- ever. The pupils have asked for greater influence in several of the studies. Boys feel they have greater influence than girls and are more positively inclined than girls are towards the greater degree of influence in the pilot schools compared to other schools. Pupils that are finding it difficult to reach their objectives are not always able to make as good use of the freedom they are given as other pupils are. They tend to be more controlled by the teachers and their own ambitions to succeed in Swedish, English and mathe- in particular. The delegation feels it is important to respect the choice of the pupils even if they prioritize in this way. It is equally important, however, for teachers to help ensure the teach- ing doesnt just focus on the pupils difficulties but also on their opportunities. A balance between subjects There has been apprehension as to the effects on compulsory school subjects in the event of the timetable being abolished. This has mainly concerned the risk of a three-subject school develop- ing, with the focus on Swedish, English and mathematics (subjects that provide eligibility for the national upper-secondary programes), and the fact that so-called practical/aesthetic subjects may lose out when it comes to time and scope for more in-depth studies. The follow-up and evaluation do not provide any evidence for such misgivings. As before, most of the schools have woodwork, sport and health, music, domestic science /consumer studies and art on the flexible timetable. Furthermore, they are often part of integrated subject periods and thematic projects, resulting in more time being devoted to them. In light of this, there is justifica- tion for the misgivings about there being insufficient scope for more in-depth study, even if there is evidence to suggest their role in integrated subject periods can be further developed. Sooner or later, however, the balance between different subjects and groups of related subjects will shift as a natural consequence of changes in society and the world at large. A reappraisal of the curri- culum and syllabi should then be carried out. When reviewing syllabi, the scope for working with objectives within the overall stipulated framework should be reassessed. How to strike a reason- able balance between the various prioritized subjects/groups of re- lated subjects in the syllabi should also be looked into when the time comes. Teachers working situation and developing their role The various reports point to an increase in the teachers responsi- bility for planning, objective-setting and follow-up. This is a joint responsibility for the whole staff, which means that the teachers work much less on their own and in part have different tasks to perform. The ability to work together and formulate joint strate- gies is becoming ever more important as is the capacity to speak up for ones subject. The teachers are comfortable with having no set timetable and feel job satisfaction. They do point to an initial increase in work- load and lack of time, however. The need for skills development is , e.g. concerning organizational development, planning and documentation. The role of the school principal is changing There is considerable consensus regarding the important role played by school principals in the development of schools. This is not least true of the pilot scheme. The fact that the staff has ex- panded its area of responsibility does not necessarily mean that the role of school principal has become less important, but it has changed and is now more a question of supporting and stimulating development in a decentralized organization. School principals also need to develop their skills as the structure and relative responsi- bilities of schools start to change. Future tasks for the delegation This interim report will hopefully spread knowledge about the pilot scheme and provide a basis for a more in-depth discussion on what a flexible less system with no set timetable involves. Before submitting its final report, the delegation may look into and consider the following: the current system for following up the educational devel- opment of pupils need to be further strengthened if the time- table is abolished, e.g. will there be a need for diagnostic in- struments in more subjects and in earlier years? Is there a need to review the syllabi in the light of the develop- ment that has occurred in the pilot schools? Is there a need for further clarification in the curriculum of certain balance issues if the timetable is abolished, e.g. the balance between private study and group learning and between practical/aesthetic subjects and others? How can activities in a school with no set timetable be organ- ized seen from a special education perspective? How do the school, pre-school class and leisure-time centre relate to each other in a school employing the flexible time- table system? What long-term support and development stimuli will a school with no set timetable need? In what way will teacher education, school principal education and teacher skills development be affected and how can these support development based on the conditions that will prevail should the timetable be abolished? How should an implementation plan be formulated if the timetable is abolished? Other questions may arise or some may fall by the wayside as the delegation continues its work, depending on the results of future follow-ups and evaluations. fattade beslut med anledning av regeringens proposition Vissa regeländringar på skolområdet (prop. 1998/99:110). I propositionen meddelade regeringen sin avsikt att ge högst ett åttiotal kommuner möjlighet att delta i en försöks- verksamhet med utbildning utan timplan i . ansåg i likhet med regeringen att det system med olika former av kvalitetsinstrument som hade skapats på både nationell nivå samt i kommuner och skolor borde kunna ge förutsättningar att utveckla och garantera likvärdighet i . ansåg vidare att en undervisning utan nationell timplan kan skapa ytterligare upp- märksamhet kring kvalitetsfrågorna och stimulera skolorna i arbe- tet med uppföljning, utvärdering och skolutveckling. delade också regeringens uppfattning att arbete utan timplan stäm- mer bättre överens med intentionerna bakom en mål- och resultat- styrd skola än vad som är fallet med en timplan. ställde sig bakom regeringens intentioner att genom- föra en femårig försöksverksamhet, med möjlighet till ett slutligt ställningstagande . ansåg det viktigt att ett eventuellt slutligt beslut om att ta bort den nationella timplanen föregås av en försöksverksamhet i vilken konsekven- serna av avskaffandet prövas. Därvid är det också viktigt att noga analysera de problem som kan vara förknippade med ett avskaf- fande, men också att belysa de positiva effekterna. beslutade regeringen om förordningen (1999:903) om försöksverksamhet med utbildning utan timplan i . Enligt denna får en kommun inom ramen för det totalt garanterade antalet timmar bedriva försöksverksamhet med utbild- ning i utan att tillämpa föreskrifterna om antalet timmar för ämnen och ämnesgrupper i bilaga 3 till skollagen (1985:1110). Förordningen föreskriver vidare vissa villkor som skall vara uppfyllda för att en kommun skall få delta i försöksverksam- heten samt i övrigt vad som gäller för ansökan och beslut om del- tagande. Förordningen tillämpas på utbildning som anordnas från och med /01 och gäller till utgången av . För- ordningen redovisas i sin helhet i bilaga 1. Regeringen fattade , , beslut om att tillkalla delegationen för försöksverksamheten med utbild- ning utan timplan i . Enligt direktiven (dir. 1999:90) skall delegationen ha det övergripande ansvaret för att förbereda, leda, stödja och utvärdera försöksverksamheten, initiera eventuella konferenser och nätverk som stöd för kom- muner och skolor och lämna underlag till regeringens ställningstagande om och i så fall hur timplanen i skall avskaffas. Delegationens uppföljnings- och utvärderingsuppdrag innebär att systematiskt undersöka och värdera om och hur kommunerna uppfyller de olika krav som ställs i försöksverksamheten, om kommunernas och skolornas uppföljning, utvärdering och egentillsyn är tillräcklig för att garantera kvalitet och likvärdig- het, om och hur en avskaffad timplan medför en bättre måluppfyl- lelse för olika elevgrupper och om det krävs justeringar i skollag, läroplan, kursplaner etc. eller i kraven på kvalitetskontroll om timplanen tas bort. Direktiven understryker särskilt att elevernas perspektiv skall bely- sas i utvärderingen. Det framgår också att delegationen skall lämna förslag till regeringen om vilka forsknings- och utvecklingsprojekt som skall knytas till försöket. Av förordningen om försöksverksamheten framgår att delegatio- nen beslutar om vilka kommuner som får delta i försöksverksam- heten. Delegationen skulle enligt de ursprungliga direktiven lämna ett delbetänkande . Enligt tilläggsdirektiv (dir. 2003:173) har utredningstiden för delegationens deluppdrag förlängts så att delegationen skall redovisa sitt delbetänkande . I delbetänkandet skall redogöras för de slutsatser som kan dras av försöksverksamheten. Delegationen skall också ta ställning till om det finns tillräckligt underlag för regeringens fortsatta ställningstagande till frågan om och i så fall hur timplanen kan avskaffas. Om delegationen finner att ett sådant underlag inte föreligger skall i stället ett förslag till regeringen lämnas i delegationens slutbetänkande som skall redo- visas . Slutbetänkandet skall innehålla en sammanfattande utvärdering av hela försöksverksamheten samt slut- lig rapportering av den forskning och utveckling som knyts till för- söket. Direktiven redovisas i sin helhet i bilaga 2 och 3. Delegationen för försöksverksamheten med utbildning utan tim- plan i antog namnet Timplanedelegationen (U 1999:08). Delegationen består av representanter för Utbildningsdepartemen- tet, , Myndigheten för skolutveckling och Specialpeda- gogiska institutet samt , , och . Enligt direktiven skall delegationen söka samverkan med före- trädare för olika intresseorganisationer, som representerar t.ex. ele- ver, föräldrar och funktionshindrade, via permanenta referensgrup- per eller hearings. Delegationen har till arbetet knutit en referens- grupp med representanter för , elevråd (), och Skola, Handikappförbundens samarbetsorgan (HSO), () och Fri- skolornas . Dövas Riksförbud (SDR) ingick i referensgruppen fram till dess att de anslöts till HSO. Delegationen har därutöver, , genomfört en hearing med föräldrar till elever i ett antal grundskolor som arbe- tar utan att följa timplanen. Vidare har delegationen besökt tre skolor i försöket för att där samtala med elever i olika åldrar. Dessutom har delegationen mött elever vid flertalet av de kommun- och skolbesök som genomförts sedan försöket startat. Delegationen har i enlighet med direktiven valt ut ett femtontal fristående skolor att ingå i en särskild referensgrupp till försöks- verksamheten och som har träffats bl.a. för utbyte av erfarenheter. Delegationen har dessutom samverkat i ett erfarenhetsutbyte med och några av de statliga specialskolorna. Timplanedelegationens kontakter med deltagande kommuner och skolor har bl.a. skett via den kontaktperson som varje kommun har utsett (se vidare avsnitt 3.2). Delegationen har arrangerat konferen- ser med kontaktpersonerna . Information om försöksverksamheten har spridits genom infor- mationsblad och via delegationens webbplats som varit mycket väl- besökt. Timplanedelegationen har knutit sex forsknings- och utveck- lingsprojekt samt fyra utvärderingsprojekt till försöket (se vidare avsnitt 3.3). Samtliga projekt har redovisat en eller flera del- rapporter. Vidare presenterade projekten resultat vid den konferens som delegationen anordnade för deltagande kommuner samt berör- da myndigheter, organisationer m.fl. . Frågan om timplanens roll i en mål- och resultatstyrd skola är inte ny. Frågan fick särskild aktualitet i och med förändringen av ansvars- fördelningen mellan stat och kommun för skolan i början av 1990- talet och har tagits upp i olika sammanhang. 2.1Timplanen i dagens regelverk Bestämmelserna om timplan för anges i bilaga 3 till skollagen (1985:1100). Timplanen redovisas i bilaga 4. I skollagen regleras också skolorganisationen genom bestämmelser om högsta antalet dagar per läsår och högsta antalet timmar per dag. Vidare regleras att skall ha nio årskurser, att läsåret skall ha en höst- och en vårtermin samt en gemensam studiegång för elever- na. Timplanen anger vilka ämnen som skall läsas i samt det minsta antalet timmar undervisningstid som varje elev är garan- terad , dels totalt, dels för respektive ämne eller ämnesgrupp. Tiden för vissa ämnen är inordnad i ämnes- grupper. Undervisningstid definieras i grundskoleförordningen som arbete som planerats av lärare och elever tillsammans och som ele- verna genomför under lärares ledning. Vidare bestäms i timplanen antalet timmar för språkval, elevens val och skolans val. Eftersom timplanen är en bilaga till skollagen krävs riksdags- beslut för att ändra både timfördelning och ämnesstruktur. Dagens timplan är mindre detaljreglerande än tidigare timplaner. Timplanen reglerar inte längre i vilka årskurser undervisningen i olika ämnen skall börja eller sluta, inte heller hur tiden skall för- delas mellan de olika årskurserna. Någon fördelning på stadier finns . Det finns inte heller något i timplanen i sig som för- hindrar t.ex. samverkan mellan ämnen, åldersblandad undervisning, individuella studieplaner för eleverna eller en ökning av den totala undervisningstiden utöver . I grundskoleförordningen (1994:1124) finns ytterligare regler om timfördelningen i , bl.a. om kommunernas rätt att be- sluta om ytterligare undervisningstid samt att styrelsen beslutar om fördelningen av timmar för ämnen, ämnesgrupper, språkval och elevens val efter förslag av rektorn. Dessutom regleras friluftsverk- samheten. I grundskoleförordningen anges vidare att det för läsåret eller skall finnas ett schema för undervisningen som rektorn fastställer. Det skall därvid beaktas att eleverna får en väl avvägd total skoltid i och väl avvägda läsår och skoldagar. Några uttryckta krav på att skolan skall kunna redovisa den garanterade undervisningstiden för alla elever finns inte i regelver- ket . kan dock kräva en sådan redovisning om en skola anmäls därför att en eller flera elever uppges inte ha fått den undervisning de är berättigade till. Historiskt har timplanen ansetts kunna värna om likvärdighet och kvalitet. När folkskolan infördes var undervisningen regle- rad att omfatta vissa specifika ämnen även om det förekom relativt stora lokala avvikelser. som följde införde staten allt- mer kontroll. kom en undervisningsplan som tydligt preci- serade undervisningstiden i varje ämne och årskurs och som i stora drag stod sig ända in .