Decentralization of Education in Poland Jan Herczyński SKL International „Support to decentralization in Ukraine” Kyiv, March 2, 2016
Origin of decentralization in Poland • In 1989, first non-Communist government of PM Tadeusz Mazowiecki begun reforms of all sectors of Polish state • The main goal was to create market economy and a democratic state – Market economy: reforms of Leszek Balcerowicz – Democratic state: decentralization of the country
Decentralization as state-building • Need to destroy inherited national bureaucracy managing all levels of powers • The instrument: radical decentralization of the basic element of the structure – gminas • Immediate local elections change 99.9% of local councils and heads of administrations
Reforms in education sector • Minister Samsonowicz started significant reforms in all areas of education – Professional autonomy of teachers: Teaching according to what one believes – Content: overhaul of all curricula and textbooks – School directors: new rules to select
• Decentralization was not the priority
Structure of education system Polish education system in 1990: • Preschools (3 grades, starting at 4 years) • Primary schools (8 grades, starting at 7 years) • Secondary schools (starting at 15 years): – General academic lyceum (4 grades) – Technical schools (5 grades) – Basic vocational schools (3 grades)
Decentralization of education • Decentralization was key policy priority of the government and education had to adapt • The first subsector of education to be decentralized was preschool education – Transferred to gminas as own function in 1990 – Financed from own revenues of gminas – Many preschools were closed by gminas
Primary schools Decentralization of primary schools was delayed and introduced in phases: • Voluntary between 1993-1996 – On the basis of bilateral agreements – Fiancing individually negotiated with gminas
• Obligatory from 1996 – Introduction of education subvention with a national formula („algorithm”)
Secondary schools Decentralization of secondary schools had to wait till introduction of second tier of local governments, called powiats, in 1999 • Failed experiment in „Large cities” in 1996 • Obligatory in 1999 • Regions received limited education functions – A few schools of national importance – Pedagogical libraries and similar institutions
The founder of school Education law of 1990 introduced a key concept for education decentralization school founder • Law clearly defines who is the founder of different types of education institutions • Law clearly defines the functions and responsibilities of school founder
School founders in 1990 The law had to assign the role of school founder to each education institution • Founders of preschools were gminas • Founders of private schools were their owners • Founders of all other schools in 1990 were kuratoria, the regional representatives of the Ministry of Education
Process of decentralization Accordingly, two paralel processes of decentralization of education: • Successive transfer of schools and other institutions from kuratoria to local governments • Successive strengthening of the role of school founder
Successive transfer of responsibilities • 1990 – Preschools to gminas • 1993 – Primary schools to gminas (voluntary) • 1996 – Primary schools to gminas (all) • 1999 – Secondary schools to powiats • 1999 – Different education institutions to regions
Strengthening the role of school founder • Role of school founder was slowly strengthened in many important areas • We will discuss three key examples: – Closing and opening of schools – Selection of school directors – Setting of school budgets
Closing and opening of schools • Initially, school could be closed only with the written approval of kurator – Kurator defended many schools from closure
• In 1999, only an opinion of kurator was required to close a school – Negative opinion was important for stakeholders
• Since 2002, not even an opinion was needed • Since 2016, again an approval is needed
Selection of school directors • Since 1989, school directors were selected by ad hoc commissions with representatives of trade unions, parents and kurator • Since 1990, school founder was included • Composition of the commission is clearly specified in the laws – Is one of the most often changed article of the law on education
Setting school budgets • Iinitially, required written approval by school founder and kurator – Kurator assessed the teaching plan of the school – Founder assessed its financial implications
• Over time, opinion of kurator became less important – Since 2002, no need for opinion of kurator
Lessons for Ukraine • Decentralization of education is a slow proces during which all actors have to learn • Clear definitions in the laws are important for orderly proces • Laws need to be regularly changed to move the proces along
Thank you!