COUNCIL CONCLUSIONS of 20 December 1996 on school effectiveness: Principles and strategies to promote success at school (97/C 7/01)

I. INTRODUCTION 1. Young people are one of the European Union's major assets. They must be assisted in every way to reach their full potential as individuals and as full and active participants in society. They are the agents of change, and will assume responsibility for the political, economic, social and democratic development of Europe in the future.

2. The education and training of young people, therefore, is a factor of the utmost importance, since it helps to enable them to fully develop their personalities and potential and participate fully and play a full part in the development of European societies. As a result, failure at school has very real personal and social consequences for the individual and society, and its impact extends far beyond the boundaries of education and training.

3. Ministers for Education in the European Union have for some time recognized the existence of the common problem of failure at school. In 1987, under the Belgian Presidency, the Council and Ministers for Education meeting within the Council expressed their common concern 'at the failure of a significant number of young people at school`. Two years later in 1989, in a resolution under the French Presidency on combating school failure, Member States resolved to 'make every effort to combat failure at school intensively`. Account should also be taken of the extensive work done in this field by other international organizations in particular the OECD.

4. The EU Eurydice Unit Report entitled 'Measures to combat failure at school: A challenge for the construction of Europe`, drawn up at the request of Ministers for Education during the Portuguese Presidency, has made a valuable contribution to work in this area by defining the problem, quantifying it in social and economic terms and highlighting appropriate preventative and remedial strategies. Moreover, the problem of young people leaving the education system without adequate qualifications and the question of the effectiveness of school systems have been considered priority issues under Action 3.1 of the Socrates programme in 1995 and 1996. Future work in this area should take account of existing research and, where necessary, further research could be undertaken.

5. The concept of failure at school takes different forms in each Member State, and is therefore difficult to define. However, it is generally accepted that failure at school involves some or all of the following phenomena: not fulfilling potential, not making individual progress, leaving school early and leaving school with no or inadequate certificates of qualification. In some instances schools are not as effective as they might be and as a result they can contribute to lack of success at school. All of these factors result in 'under-achievement at school` which is the term used in the conclusions.

THE COUNCIL OF THE EUROPEAN UNION,

Having regard to these considerations as well as to:

- the provisions of Articles 126 and 127 of the Treaty,

- the principle of subsidiarity enunciated in Article 3b of the Treaty, and,

- the need to comply with the financial perspectives set for the European Community,

HEREBY ADOPTS THE FOLLOWING CONCLUSIONS:

II. PRINCIPLES IN PROMOTING SUCCESS AT SCHOOL

Education and training institutions are challenged to provide quality education for all so as to seek to ensure that everyone can have the opportunity to pursue further studies, have a full and rich working life, become an active citizen and develop fully as a person. To achieve this, strategies promoting success at school could be based on the results of appropriate research and on the following key principles:

- measures in favour of those most needing support,

- interventions or the creating of conditions in the context of a continuum which begins at pre-school level and continues through to adulthood,

- objectives and learning methodologies by which the diversity of interests, needs and abilities of pupils are met,

- making sure, through various measures, including assessing progress and setting objectives for improving attainment, that all young people should benefit to the maximum extent possible from education,

- appropriate arrangements for the early identifiction of difficulties in literacy and numeracy together with suitable teaching strategies to address these needs within school,

- appropriate arrangements to ensure that transition from one level of schooling to the next, as well as from school to further education, training and the world of work is facilitated,

- a community-based response where appropriate, where school, community and other relevant agencies are mutually responsive to all children and especially those from families needing support and where their work is complementary,

- a participatory model which enables pupils and parents to understand and enhance the learning process, and,

- ensuring that resources are used in a strategic, focused and cost-effective manner, so that all pupils receive the support they need.

III. A FRAMEWORK OF AREAS FOR FURTHER DEVELOPMENT

Having regard to the foregoing principles, and while fully respecting the diversity of education systems and the responsibility of the Member States for their content and organization, further development in some, or all, of the following areas, could make a significant contribution to promoting success at school:

A. Pre-schooling/Early schooling B. In-school responses which would include:

- a 'whole school` approach,

- 'whole school` self-appraisal and inspection/evaluation/guidance,

- further development of curricula and teaching/learning methodologies,

- home/school/community links, including links with the world of work,

- resourcing,

- staff development and teacher education.

C. Returning to learning

D. Certification and accreditation of learning

A framework of possibilities for further development in each of these areas is set out in the Annex to these conclusions.

The Council recognizes that the task of promoting success at school in the Member States, within their own constitutional, organizational and policy framework, is of central importance and requires ongoing attention. Accordingly, it calls on succeeding Presidencies, at their discretion, to accord priority to giving the issues raised in paragraphs A to D of the Annex to these conclusions more detailed consideration and, where appropriate, to present further draft conclusions or other draft texts to the Council.

Finally, the Council considers that methods and mechanisms for promoting success at school are evolving over time and that these conclusions in no way preclude the examination of other issues in this area which may arise in the future.

ANNEX

The Council recognizes that further development in some, or all, of the areas identified in Part III of these conclusions forms a part of a strategy to promote success at school. A framework of possibilities for further development in each such area is set out hereunder:

A. Pre-Schooling/Early schooling

The positive influence of pre-school education on later educational development of all children is well established by research findings. Pre-school education for all children especially for children needing support is, therefore, of crucial importance to success at school. Such education must of course strike a careful balance between socialization and learning objectives. A further emerging aspect is the benefit of the direct participation of parents in the organization and functioning of pre-school institutions. This participation should progress in a way which develops parents' self-esteem, meets their personal development needs and empowers them to participate in school life and encourage, assist and motivate them to help in their children's education. These initiatives should be integrated with existing local community initiatives and continued support for children at risk moving from pre-school to school.

B. In-school responses

Social factors, as well as factors within schools, may predispose pupils to low educational achievement but there are many possibilities for schools and education systems to modify and alleviate the effects of educational disadvantage. Some of these are:

1. A 'whole school` approach

The following factors appear to have a crucial influence on school effectiveness:

- the quality of instructional leadership of the principal or head teacher, complemented by the efforts of all school staff, and,

- the setting of ambitious learner-centred targets for all pupils complemented by suitable programmes and learning approaches which cater for and challenge the full spectrum of the interests and abilities of pupils.

Central to the success of the 'whole school` approach is the school plan, objectives or mission statement which is devised collaboratively by the principal or head teacher, with his colleagues, parents, pupils and school management. Some key elements within the school plan, objectives or mission statement, are:

- strategies for motivating pupils and for building up their confidence and self-esteem,

- pupil assessment including monitoring of literacy and numeracy skills,

- curricular implementation and teaching/learning methodologies,

- early identification and action to remedy learning difficulties as well as the monitoring of school attendance with appropriate action where necessary,

- strategies in relation to the use of new technologies,

- strategies for improving parental and community involvement in schools,

- appropriate cooperative links to ensure successful transition of pupils from one level of education to the next and to further education and training and to the world of work as appropriate, and,

- extra curricular activities.

2. 'Whole school` self-appraisal and inspection/evaluation/guidance

The collaborative engagement of staff and, where appropriate, pupils, in a process of self-appraisal and continuous monitoring and review of school effectiveness means that teachers can appraise their own professional input to school improvement, in addition to any inspection/evaluation/guidance by educational authorities.

Increasingly, education systems are attempting a wider approach to monitoring and reviewing the work and organization of schools by adopting a more holistic approach to school evaluation, guidance or inspection as appropriate.

These developments help to improve the quality of education and should be promoted and encouraged. In this context, there is scope for collaboration and cooperation in the development of value added measurement mechanisms which are sensitive to varying school and pupil circumstances.

3. Further development of curricula and teaching/learning methodologies

A learner-centred approach to education and training implies that programmes in all institutions are relevant, both in terms of content and methodology, to students' social and cultural contexts. Further developments in the following areas should be promoted and encouraged so as to seek to maximize the success rate of pupils:

- provision of opportunities within the curricular framework to suit the full spectrum of interest, needs and abilities of pupils,

- using a range of methods of teaching and learning,

- strengthening technical, vocational and communications orientation,

- encourage multi-skilling and acquisition of key qualifications including improving the teaching and learning of languages,

- providing, where necessary, for diversified forms of assessment which take account of the needs of all students, and,

- strenghtening the basic skills of literacy, numeracy and communications.

4. Home/school/community links

A supportive home and community environment, especially for children needing support and for those from foreign backgrounds is an important factor in promoting success at school, achieving high retention rates and improving participation in higher education. Efforts to develop schemes for links between home, school and the wider community, therefore, form a key element in any strategy to promote success at school. They should, accordingly, be promoted and encouraged. Some of the principal elements of such schemes are:

- encouraging teachers and other staff to promote closer links with parents and local communities, including the world of work,

- action with parents in response to their identified needs and including their appropriate involvement in the work of the school,

- particular attention to the difficulties of transition between the different levels of school,

- encouraging third-level colleges to develop links with schools in order to promote greater participation at third level by students from groups that have traditionally been under-represented,

- fostering links between educational and training institutions and the world of work.

5. Resourcing

In order to provide pupils with the support they require, it is important that resources are targeted at schools in a strategic and cost-effective manner. This is particularly the case for schools in which a significant number of pupils need support whether for family or other reasons.

6. Staff development and teacher education It is important to continue to develop well-planned and resourced in-career development programmes for principal or head teachers, specialists, middle management and for full school staffs as part of a process of whole school development. Such programmes could deal, inter alia, with team development, self-evaluation and quality and effectiveness review, communication, partnership and group work skills and the ability to adapt to curricular change, and different methods of teaching.

Where initial education and training for teachers does not include structured induction experience it should be complemented by such experience as well as by appropriate access to suitable in-career development opportunities throughout their professional careers.

C. Returning to learning

Despite an intensive concentration on preventive strategies to combat leaving school with no or inadequate certificates of qualification, it is clear that there will continue to be a number of young people who have left school with inadequate knowledge and skills. This group needs access and special encouragement to take up further education and training opportunities. What is important is not the institutional arrangements and structures which provide such services, but rather that they are provided and that they operate, where possible, within national certification and qualifications frameworks. There is need for increased attention to this area in order to help to alleviate unemployment.

D. Certification and accreditation of learning

The importance of this matter is emphasized in the Council conclusions on a strategy for lifelong learning. There is an increasing realization of the need to provide a ladder of opportunity which can offer equitable alternative routes and re-entry points for those who either did not successfully complete mainstream education or who are now in the workplace and need to enhance their knowledge and skills. Increased part-time and distance learning options together with course modularization and the need for certification and accreditation of prior learning and experiential work-based learning are some of the issues which challenge certification and accreditation systems to provide a new flexibility and variety in line with emerging needs.

COUNCIL CONCLUSIONS of 20 December 1996 on school effectiveness: Principles and strategies to promote success at school (97/C 7/01)

I. INTRODUCTION 1. Young people are one of the European Union's major assets. They must be assisted in every way to reach their full potential as individuals and as full and active participants in society. They are the agents of change, and will assume responsibility for the political, economic, social and democratic development of Europe in the future.

2. The education and training of young people, therefore, is a factor of the utmost importance, since it helps to enable them to fully develop their personalities and potential and participate fully and play a full part in the development of European societies. As a result, failure at school has very real personal and social consequences for the individual and society, and its impact extends far beyond the boundaries of education and training.

3. Ministers for Education in the European Union have for some time recognized the existence of the common problem of failure at school. In 1987, under the Belgian Presidency, the Council and Ministers for Education meeting within the Council expressed their common concern 'at the failure of a significant number of young people at school`. Two years later in 1989, in a resolution under the French Presidency on combating school failure, Member States resolved to 'make every effort to combat failure at school intensively`. Account should also be taken of the extensive work done in this field by other international organizations in particular the OECD.

4. The EU Eurydice Unit Report entitled 'Measures to combat failure at school: A challenge for the construction of Europe`, drawn up at the request of Ministers for Education during the Portuguese Presidency, has made a valuable contribution to work in this area by defining the problem, quantifying it in social and economic terms and highlighting appropriate preventative and remedial strategies. Moreover, the problem of young people leaving the education system without adequate qualifications and the question of the effectiveness of school systems have been considered priority issues under Action 3.1 of the Socrates programme in 1995 and 1996. Future work in this area should take account of existing research and, where necessary, further research could be undertaken.

5. The concept of failure at school takes different forms in each Member State, and is therefore difficult to define. However, it is generally accepted that failure at school involves some or all of the following phenomena: not fulfilling potential, not making individual progress, leaving school early and leaving school with no or inadequate certificates of qualification. In some instances schools are not as effective as they might be and as a result they can contribute to lack of success at school. All of these factors result in 'under-achievement at school` which is the term used in the conclusions.

THE COUNCIL OF THE EUROPEAN UNION,

Having regard to these considerations as well as to:

- the provisions of Articles 126 and 127 of the Treaty,

- the principle of subsidiarity enunciated in Article 3b of the Treaty, and,

- the need to comply with the financial perspectives set for the European Community,

HEREBY ADOPTS THE FOLLOWING CONCLUSIONS:

II. PRINCIPLES IN PROMOTING SUCCESS AT SCHOOL

Education and training institutions are challenged to provide quality education for all so as to seek to ensure that everyone can have the opportunity to pursue further studies, have a full and rich working life, become an active citizen and develop fully as a person. To achieve this, strategies promoting success at school could be based on the results of appropriate research and on the following key principles:

- measures in favour of those most needing support,

- interventions or the creating of conditions in the context of a continuum which begins at pre-school level and continues through to adulthood,

- objectives and learning methodologies by which the diversity of interests, needs and abilities of pupils are met,

- making sure, through various measures, including assessing progress and setting objectives for improving attainment, that all young people should benefit to the maximum extent possible from education,

- appropriate arrangements for the early identifiction of difficulties in literacy and numeracy together with suitable teaching strategies to address these needs within school,

- appropriate arrangements to ensure that transition from one level of schooling to the next, as well as from school to further education, training and the world of work is facilitated,

- a community-based response where appropriate, where school, community and other relevant agencies are mutually responsive to all children and especially those from families needing support and where their work is complementary,

- a participatory model which enables pupils and parents to understand and enhance the learning process, and,

- ensuring that resources are used in a strategic, focused and cost-effective manner, so that all pupils receive the support they need.

III. A FRAMEWORK OF AREAS FOR FURTHER DEVELOPMENT

Having regard to the foregoing principles, and while fully respecting the diversity of education systems and the responsibility of the Member States for their content and organization, further development in some, or all, of the following areas, could make a significant contribution to promoting success at school:

A. Pre-schooling/Early schooling B. In-school responses which would include:

- a 'whole school` approach,

- 'whole school` self-appraisal and inspection/evaluation/guidance,

- further development of curricula and teaching/learning methodologies,

- home/school/community links, including links with the world of work,

- resourcing,

- staff development and teacher education.

C. Returning to learning

D. Certification and accreditation of learning

A framework of possibilities for further development in each of these areas is set out in the Annex to these conclusions.

The Council recognizes that the task of promoting success at school in the Member States, within their own constitutional, organizational and policy framework, is of central importance and requires ongoing attention. Accordingly, it calls on succeeding Presidencies, at their discretion, to accord priority to giving the issues raised in paragraphs A to D of the Annex to these conclusions more detailed consideration and, where appropriate, to present further draft conclusions or other draft texts to the Council.

Finally, the Council considers that methods and mechanisms for promoting success at school are evolving over time and that these conclusions in no way preclude the examination of other issues in this area which may arise in the future.

ANNEX

The Council recognizes that further development in some, or all, of the areas identified in Part III of these conclusions forms a part of a strategy to promote success at school. A framework of possibilities for further development in each such area is set out hereunder:

A. Pre-Schooling/Early schooling

The positive influence of pre-school education on later educational development of all children is well established by research findings. Pre-school education for all children especially for children needing support is, therefore, of crucial importance to success at school. Such education must of course strike a careful balance between socialization and learning objectives. A further emerging aspect is the benefit of the direct participation of parents in the organization and functioning of pre-school institutions. This participation should progress in a way which develops parents' self-esteem, meets their personal development needs and empowers them to participate in school life and encourage, assist and motivate them to help in their children's education. These initiatives should be integrated with existing local community initiatives and continued support for children at risk moving from pre-school to school.

B. In-school responses

Social factors, as well as factors within schools, may predispose pupils to low educational achievement but there are many possibilities for schools and education systems to modify and alleviate the effects of educational disadvantage. Some of these are:

1. A 'whole school` approach

The following factors appear to have a crucial influence on school effectiveness:

- the quality of instructional leadership of the principal or head teacher, complemented by the efforts of all school staff, and,

- the setting of ambitious learner-centred targets for all pupils complemented by suitable programmes and learning approaches which cater for and challenge the full spectrum of the interests and abilities of pupils.

Central to the success of the 'whole school` approach is the school plan, objectives or mission statement which is devised collaboratively by the principal or head teacher, with his colleagues, parents, pupils and school management. Some key elements within the school plan, objectives or mission statement, are:

- strategies for motivating pupils and for building up their confidence and self-esteem,

- pupil assessment including monitoring of literacy and numeracy skills,

- curricular implementation and teaching/learning methodologies,

- early identification and action to remedy learning difficulties as well as the monitoring of school attendance with appropriate action where necessary,

- strategies in relation to the use of new technologies,

- strategies for improving parental and community involvement in schools,

- appropriate cooperative links to ensure successful transition of pupils from one level of education to the next and to further education and training and to the world of work as appropriate, and,

- extra curricular activities.

2. 'Whole school` self-appraisal and inspection/evaluation/guidance

The collaborative engagement of staff and, where appropriate, pupils, in a process of self-appraisal and continuous monitoring and review of school effectiveness means that teachers can appraise their own professional input to school improvement, in addition to any inspection/evaluation/guidance by educational authorities.

Increasingly, education systems are attempting a wider approach to monitoring and reviewing the work and organization of schools by adopting a more holistic approach to school evaluation, guidance or inspection as appropriate.

These developments help to improve the quality of education and should be promoted and encouraged. In this context, there is scope for collaboration and cooperation in the development of value added measurement mechanisms which are sensitive to varying school and pupil circumstances.

3. Further development of curricula and teaching/learning methodologies

A learner-centred approach to education and training implies that programmes in all institutions are relevant, both in terms of content and methodology, to students' social and cultural contexts. Further developments in the following areas should be promoted and encouraged so as to seek to maximize the success rate of pupils:

- provision of opportunities within the curricular framework to suit the full spectrum of interest, needs and abilities of pupils,

- using a range of methods of teaching and learning,

- strengthening technical, vocational and communications orientation,

- encourage multi-skilling and acquisition of key qualifications including improving the teaching and learning of languages,

- providing, where necessary, for diversified forms of assessment which take account of the needs of all students, and,

- strenghtening the basic skills of literacy, numeracy and communications.

4. Home/school/community links

A supportive home and community environment, especially for children needing support and for those from foreign backgrounds is an important factor in promoting success at school, achieving high retention rates and improving participation in higher education. Efforts to develop schemes for links between home, school and the wider community, therefore, form a key element in any strategy to promote success at school. They should, accordingly, be promoted and encouraged. Some of the principal elements of such schemes are:

- encouraging teachers and other staff to promote closer links with parents and local communities, including the world of work,

- action with parents in response to their identified needs and including their appropriate involvement in the work of the school,

- particular attention to the difficulties of transition between the different levels of school,

- encouraging third-level colleges to develop links with schools in order to promote greater participation at third level by students from groups that have traditionally been under-represented,

- fostering links between educational and training institutions and the world of work.

5. Resourcing

In order to provide pupils with the support they require, it is important that resources are targeted at schools in a strategic and cost-effective manner. This is particularly the case for schools in which a significant number of pupils need support whether for family or other reasons.

6. Staff development and teacher education It is important to continue to develop well-planned and resourced in-career development programmes for principal or head teachers, specialists, middle management and for full school staffs as part of a process of whole school development. Such programmes could deal, inter alia, with team development, self-evaluation and quality and effectiveness review, communication, partnership and group work skills and the ability to adapt to curricular change, and different methods of teaching.

Where initial education and training for teachers does not include structured induction experience it should be complemented by such experience as well as by appropriate access to suitable in-career development opportunities throughout their professional careers.

C. Returning to learning

Despite an intensive concentration on preventive strategies to combat leaving school with no or inadequate certificates of qualification, it is clear that there will continue to be a number of young people who have left school with inadequate knowledge and skills. This group needs access and special encouragement to take up further education and training opportunities. What is important is not the institutional arrangements and structures which provide such services, but rather that they are provided and that they operate, where possible, within national certification and qualifications frameworks. There is need for increased attention to this area in order to help to alleviate unemployment.

D. Certification and accreditation of learning

The importance of this matter is emphasized in the Council conclusions on a strategy for lifelong learning. There is an increasing realization of the need to provide a ladder of opportunity which can offer equitable alternative routes and re-entry points for those who either did not successfully complete mainstream education or who are now in the workplace and need to enhance their knowledge and skills. Increased part-time and distance learning options together with course modularization and the need for certification and accreditation of prior learning and experiential work-based learning are some of the issues which challenge certification and accreditation systems to provide a new flexibility and variety in line with emerging needs.