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World Bank Document Country Studies Public Disclosure Authorized Education Reform and Management Publication Series Vol. I No. 3 * June 2000 Democratization and Educational Decentralization in Spain: A Twenty Year Struggle for Reform Public Disclosure Authorized E.Mark Hanson 22548 Public Disclosure Authorized Public Disclosure Authorized EDUCATAEON T H E W 0 R L D B A N K Democratization and Educational Decentralization in Spain: A Twenty Year Struggle for Reform E.Mark Hanson Country Studies Education Reform and Management Publication Series Vol. I No. 3 * June 2000 Table of Contents Foreword III Abstract V Aboutthe Author VIl Acknowledgments IX ExecutiveSummary 1 Introduction 7 Part 1. The Franco Years: Forces for Centralization 11 The RegionalProblem 11 CentralizedGovernment Structure 13 Education:The LongPolar Night 13 Part 2. TheTransition: 1975-1982 17 The Politicsof Consensus17 The Constitutionand SharedGovernance 18 The Constitutionand EducationalControl 20 Public ExpenditureIncreases 21 StateAdministrative Personnel 22 Part 3. Politics of the Left: 1982-1996 25 PoliticalParties and Power 25 EducationalReform from the PoliticalLeft 26 Decentralizationon Ice 28 DecentralizationUnfrozen 30 Part 4. Politics of the Right: 1996-1999 31 The EducationWars 31 Part 5. DecentralizedRegions 35 EducationalFinance 35 l Democratizationand Educational Decentralizationin Spain The Crisis of the Humanities 36 Part 6. Decentralized Schools 41 School-based Management (1985-1995): De Jure 41 School-based Management (1985-1995): De Facto 43 Mid-course Corrections (1995 and Continuing) 46 Part 7. Binding the Nation Together: De Jure vs. De Facto Reform 49 Diplomas 49 Ministry of Education Inspectors 49 National Minimum Requirements (Minimos) 50 NationalAssessment of Educational Quality 51 The Conference of Educational Counselors 52 The State EducationalAdvisory Council 53 The Ministry of Education as a Force for Decentralization 55 Part 8. Conceptual Analysis 57 Political Culture and Historical Memory 58 Institutions, Breakpoints, Turning Points and Course Corrections 58 Bridging, Embedding and Institutionalizing 59 The Socialist Government's Turning Point 60 The Course Correction of the Political Right 60 II Foreword With the fall of the BerlinWall, "democratization" I first metProfessor Mark Hanson in 1987when he becamea compellingtheme of socialscience visitedthe Historyof EducationDepartment at the scholarship.Scholars for the most partfailed to NationalUniversity of DistanceEducation in Ma- predictthat event, but since then many have drid.Since then Professor Hanson has closelyfol- tumedtheir attentionto explainingprocesses of lowedthe processof politicaland administrative democraticexpansion, not only in the former decentralizationin Spain. What is difficultfor many Soviet-blockcountries, but in all nationsmoving Spaniards,including academics, to comprehendin from authoritarianrule. Yet even when ad- its totalityhas beencaptured by ProfessorHanson dressingissues of democraticchange, social withprecision and depth. scientistshave largelyignored one of the most important elements in democratization-the Overthe lastquarter century, Spain has pursued a school as the primary structuredesigned for processquite unusualin the historyof nations. I conveyingvalues that are criticalin makingde- refer to the experienceof rebuildinga State by mocracystable and durable.E. MarkHanson is shiftingaway from autocraticauthorty and highly amonga very few who have made thoughfful centralizedstructures of govemment. In making forays into the nexus betweeneducation and that transitionin the decadeof the 1970s,Spain, democracyin differentsocietal contexts. togetherwith Portugal,initiated a newwave of de- mocratizationthat later swept throughnumerous With this book, E. Mark Hansonsolidifies his countriesof LatinAmerica as well as the Commu- reputationas a leadingauthority in thisgenre of nistnations of EastemEurope. The uniquenessof scholarship.Well beforethe collapseof the Ber- the Spanishcase, even moreso than thatof Por- lin Wall,and well beforethe roleof educationin tugal,rests with the fact that therewas createdat democratizationbecame commonlyacknowl- the same time a democraticand decentralized edged,Professor Hanson broke new groundin State. This lastprocess resulted in a a horizontal this arenawith his studiesof schoolreform in and verticaldistribution of power,the classicdivi- Colombiaand Venezuela.With this newstudy sion of powers,and the formationof 17 regional of educationaldemocratization in Spain, Prof. territories,called Autonomous Communities, with Hansonbrings us to a new levelof clarityabout theirown legislative bodies. the complexitiesand vicissitudesof systemic change.The readerwill find that Prof.Hanson's MarkHanson's focus on this complextransforma- accountof educationin the democratizationof tion processwas advancedby solid researchwith Spainhas lessonsthat go well beyondan un- primarydata over many years of study.His contri- derstandingof politicalprocesses in thatcountry. butionconsists of studyingthe outcomesand er- Indeed,no scholarof democratization,whether rors of the reformprocess by linkingthe adminis- in Europe,Latin America, or elsewhere,can af- trativedecentralization of educationwith political ford to ignoreProf. Hanson'sscholarship, and decentralizationand in examiningthe phenome- particularlythis newest contribution. nonnot onlyde jure butalso de facto. Finally,the work not onlyadopts a macropolitical focus, but ErwinH. Epstein alsoincludes an analysisof a lesserstudied phe- Professorand Chair nomenon-decentralizationat the local school Departmentof Leadership,Foundations, and Coun- level. selingPsychology LoyolaUniversity of Chicago Dr.Manuel de Puelles Benitez DepartmentofEducational History NationalUniversity ofDistance Education, Spain Authorof Educaci6ne Ideologia en la EsoailaContem- poranea,4th ed. (Madrid: Editorial Tecnos, S. A., 1999) III Abstract In littlemore than two decades following the deathof the iron-fisteddictator General Francisco Franco,Spain celebrated its transitionfrom the most centralized to one of themost decentralized nationsin Europe-ingovernment and education. Few countries if any in modembmes can boast of similarsuccess. The objectve of this study is todescribe and analyze the strengths and weak- nessesof a complexand comprehensive reform that ultimately resulted in a successfulbut uneasy transferof authorityand financial resources from the center to theregions. While the reform in law andpolicy set out to constructa decentralizededucational system that would be responsiveto a stateand regional shared governance process (de jure), the study explains the actual outcome (de facto)which appears to havegone considerably beyond the original intent. This outcome is par- ticularlyinteresting because decentralization initiatives typically deliver much less than originally promised.In tracingthe change process, this paper examines the turbulent political, economic, andorganizational complexibes of the reform as it (1)reacts against the concentrated centralism of the Francoyears (1939-1975); (2) makesthe transition from autocratc to democraticgovern- ment(1975-1982); (3) survives a dramatc shift to the political left (1982-1996); and (4) endures the traumaof a shiftto the political right (1996-). Theauthor conducted the study with the cooperation ofthe Autonomous University of Madridand thepermission of the Ministryof Education'sresearch division (CIDE). A conventonalfield study methodto gatherdata in Spainwas conducted on sixoccasions between 1987 and 1997. Over 200individuals were interviewed, including university scholars, senior Ministry of Educationoffi- cials,politcians, constitubonal lawyers, regional educational managers, school directors and teachers.In addition, several hundred documents (e.g., laws, policies, final reports, joumal articles, stabsticalabstracts) were reviewed. V About the Author MarkHanson is a professorat the Universityof Califomia,Riverside where he hasa jointappoint- mentwith the GraduateSchool of Educationand the AndersonGraduate School of Management. Hereceived his B.S.and M. Ed.from the Universityof Illinois,Urbana and his Ph.D.from the Uni- versityof NewMexico in EducabonalAdministration and LatinAmerican Studies. His interest in the Hispanicworld began in the 1960sas a PeaceCorps instructor in PuertoRico and then as a junior professorat the Universidadde Antioquiain Medellin,Colombia. His longstanding interest in re- gionaland localdevelopment concems began in those early years as hediscovered the unrealized potentialof the landwhen driving a motorcycleacross the backroads of Colombiaand then up the PanAmerican Highway to the UnitedStates. ProfessorHanson has receivedtwo FulbrightSenior Scholar Research Awards and has beena memberof theFulbright Senior Scholar Advisory Committee for LatinAmerica. He hasalso been a VisitingScholar at the Universidadde Antioquia,Medellin, the Institutode EstudiosSuperores de Administracionin Caracas,the FacultadLatinoamencana de CienciasSociales (FLACSO) in Bue- nosAires, the Centrode Investigaci6ny Documentaci6n Educativa (CIDE) of the SpanishMinistry of Educationand Culture (MEC) in Madrid,and the UniversidadAut6noma de Madridin Spain.He has conductedfield studies of educationalreform, particularly decentralizabon initatives, in several LatinAmerican nations as wellas in the MiddleEast. He hasbeen a consulanton topicsof edu- cabonalreform in developingcountries for UNESCO,UNDP, USAID, USIA, the WorldBank and the HarvardInstitute for IntemationalDevelopment.
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