Learning to Teach in Finland: Historical Contingency and Professional Autonomy
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Learning to teach in Finland: historical contingency and professional autonomy Janne Säntti (University of Helsinki) & Jaakko Kauko (University of Tampere) Abstrac This chapter demonstrates how the evolution of Finnish teacher education has been gradual and not linear with a major shift towards an emphasis on research skills as the central feature of teacher knowledge. The historical phases in the evolution of teacher education, which can be characterized as normative, pedagogic and research-based are connected to Finland’s general societal trajectories and education policy developments. There has been a strong tendency towards academisation or even scientification in the Finnish teacher education agenda, which has been powered by the involvement of professors of teacher education in shaping the key policy questions with moderate political intervention over recent decades. These questions include visions of what constitutes a good or ideal teacher and what it means to teach effectively. The chapter concludes that teacher education has been searching for academic credibility to justify its position in the university, which has not previously been self-evident. I Introduction The work of Finnish teachers in primary and secondary education is framed by a national core curriculum, which is decided at the national level and based on the education providers, usually municipalities, that draw up their own local curricula. However, in Finland teachers have a rather high degree of professional autonomy. On the one hand, this autonomy derives from the lack of strong managerial techniques to control the implementation of the curriculum, such as inspection or national standardised tests (Simola et al., 2009). On the other hand, this strong teacher autonomy is a result of historical processes that have formed the current practice in which classroom knowledge is ideally built case-by-case drawing on research yet organized according to the national core curriculum. In this sense, it is difficult to characterise the common knowledge of teachers without understanding the practice of building a teacher’s own research-based pedagogical practice theory. Professional autonomy is reflected in how Finnish researchers describe the country’s teacher education as strongly research-based. According to Toom et al., the research base is built with the help of the interconnected nature of research and teaching in universities: In Finland, research-based teacher education has four characteristics. First, the study programme is structured according to the systematic analysis of education. Secondly, all teaching is based on research. Third, activities are organised in such a way that student teachers can practise argumentation, decision-making and justification while investigating and solving pedagogical problems. Fourth, student teachers learn academic research skills. (2010, p. 333) Against this backdrop, to gain understanding of the main topic of this book, how teachers learn to teach and what their knowledge base is, we build knowledge on this context. We aim to provide a historical perspective and examine how the changing institutional arrangements have shaped Finnish teacher education. As such, this chapter makes no claims about what happens inside a Finnish classroom and instead focuses more on teacher training in universities and its ideals. The need for contextual understanding has been exacerbated in the wake of the fame that Finnish education has received internationally. Success in the PISA tests since 2000 has brought Finnish education to the limelight of the international community. The PISA discourse includes an idea of policy-making with visionary decisions that result in high performance in the tests, which we do not share. The OECD is active in supporting this narrative (OECD, 2015, 13). The idea of visionary planning does not gain support from neo- institutionalist research, which sees the institutional norms as stable and difficult to reform (see, March & Olsen, 1989). To put this in to the context of schooling, Tyack and Cuban (1995) noted that schools have a key role in changing reforms. The Finnish PISA success has spurred many hypotheses about its source. One of the most popular, and as some would argue, most transferable, explanations is teacher training (Kansanen, 2014; Sahlberg, 2015). In contrast to highlighting the importance of research- based skills of contemporary teacher graduates, other researchers (Simola, 2005; Säntti & Salminen 2015) argue that behind the PISA success are teachers who have received their education at the time when rather traditional teacher-centred teaching prevailed.1. 1 It is tempting to say that the Finnish PISA ranking has fallen since new types of teachers with research-based teacher education agendas have entered the profession; however, since there is no evidence to support this suggestion, that allegation is unfair This claim was made in a pamphlet published by a UK-based think tank (Sahlberg, 2015). Although the literature review in the booklet is rather well prepared, the conclusions are polemical. Although we can see that the Finnish PISA third ranking in mathematics, reading and science in 2009 slipped to twelfth in 2012 and was seventh in collaborative problem solving in 2015 (OECD, 2009; 2012; 2015), it is hard to prove claims of the teacher training role here due to the nature of the PISA survey, which concentrates on student performance. In addition to other reservations regarding PISA, there are uncertainties about how well the trend of adjacent scores can be interpreted (Rutkowski & Rutkowski, 2016) and PISA does not measure teacher performance. In a more general sense, the promotion of transferring policy reforms becomes difficult when we admit that education is embedded in the socio-historical conditions of a society (Salokangas & Kauko, 2016). We seek distance from explaining the purported Finnish education success in this chapter and instead track how teacher training has been shaped in the course of Finnish history and what the role of political and academic decision-making has been. By drawing on earlier research on the Finnish education system, we point out how teacher training in Finland has taken its current form not only through careful planning but also as a co-effect of intertwining historical trajectories and path dependencies. In fact, what has been seen as effective teaching or the correct way to teach in Finland has been shaped mainly by the interests of teacher educators, which in turn has supported teachers’ academic credibility, especially after the Second World War. We conclude that Finnish teacher education is characterised by the high degree of independence of the profession. This development has gained strength on one hand from the historical contingencies and on the other from the self-empowerment of teacher education through academisation. This academisation process has been possible since Finnish teacher educators have had the power to design teacher education according to academic principles in the situation where the political steering has been quite modest. Teachers themselves including elementary school teachers have increasingly gained full respect as academic actors. Below we tie our analysis to the relation between teacher training and its institutional context at the universities and the effects of political state steering. II. Methodology The analysis sought to trace the origins and evolution of current teacher education policy based on a review of earlier literature. There are two sets of texts. The first set provides information about the political and socio-historical context of schooling in different historical periods based on a history book series on Finnish education (Suomalaisen kirjallisuuden seura, (Finnish Literature Society), 2010-2013) and a representative selection of relevant journal articles. The second set of texts includes key policy papers. First, there are official committee reports (Committee report, 1967; Committee report, 1968; Committee report, 1969; Committee report, 1972; Committee report, 1975; Committee report, 1978; Committee report, 1979; Committee report, 1989 and Committee report, 1991). From the early 1950s parliamentary- formed committees controlled Finnish education policy. These committees outlined the development of teacher education, made recommendations and issued explicit regulations. From the 1960s the committees were staffed by educational experts who were professors of education (Matti Koskenniemi, Oiva Kyöstiö, Martti Takala and Erkki Lahdes), principals of teacher colleges or teacher training schools (Martti Ruutu and Jussi Isosaari), officials from the Ministry of Education or their colleagues from the National Board of Education (Veli Nurmi and Jaakko Itälä). Later, especially in the 1990s, committees were replaced by evaluation groups (Educational studies and teacher education in Finnish universities, 1994; Universitas renovate. The report and proposals of the evaluation committee of the University of Helsinki, 1993, Education towards the future, 1994; Teacher Education as a Future-moulding Factor, 2000; Teacher education, 2020, 2007). Unlike committees, these evaluation groups made recommendations that reflected the new-found autonomy of Finnish academic teacher education departments as a part of the University. The evaluation initiatives still came from the Ministry of Education. Like committee groups, evaluation groups included such educational scientists as professors Hannele Niemi and Juhani Jussila