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SCI
International Institute for
Educational Planning
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HEP DOCUMENTATION UPE
003923000009
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T. I.E'.P. -"i7i."p.Y.Ì
1 a FEV/. 1999 i
Ö a N T R fe D E
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Managing Schools for Educational Quality and Equity:
Finding the Proper Mix To Make It Work
Jacques Hallak
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:rmon iiiy
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molisi rony
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.IIEP-Vi i:nni> rimmy nvntn ^D ©
© All rights reserved to the author and TIER UNESCO
This document is dissiminated free of charge to schools in Israel which participate in
The School Based Management Program
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/'inn IIT'ND ,D'Diü3'N *?\y >un r^bani lwiu>'n iii'nn nnyo DN DJ mp'uynn
nmyn IIJIN ."íaurpiui ni'oipon niwin ,mnnon in1? ii3>nn n\yo in um3n
.(n'miND m'OTon U'D-IOO inN 'jan ninnai mano yi IID3 IIPN) mb'va ii3'nn
1331m DN o mpuob m^mn ,p!wn H'-by niwinn nvJiriNn m-pjiom niacin
>D^ .laomro1? nviDoon mo um» o 'win in - on'o^ra - mmpbn iponn1?
,n>mnn jvinpnvnn nu^iyn DISO* ,D>IÍWOI \ym>\>n n^nj nuyo} ,ir nu)^
ri1?« 'JD - niD'Nn -iia>iy!?i p>iwn imanb nvrn'S' DOTT oipiVi win1? n!?o'n
.>n*y "nn^ niDOon -îaorrrpm inrn ON pi D»IU>ÛN
niD'Ni mpn ^\y D>TTOI ,i^'n nvinoi mpnnnn nuDin roiyab iiyn y^o -anon
roioi mm D'lViwa raw Tn>n ro-iyo - byian ai^pn1? n'ununpn (D'UYT3ÜD)
.rinn JJ rnip nnn
l»3ynon Dnaipn n n ^ .mion "piy . ' ^ - a ' w n nnn inw <pi3 nimio int
.-p3>nn n^iy "?iy nvni>nyn mwm
'poîijn >nv I'"T
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puni niNxmi WID ¡IDI NÏFI n]inn oW-v .nmxin rvom IJ'N /OJH ruinn"
".mi'2 D'lion D'XDNion TIN Ù'DX
(1964 ,npm ioa)
XQÛ. i
baa mon> nb>y> no>\y bto nn»n man birvib mon»nnn ,D>ya\>>ni D'iy'iyn nuwa
.mn ninnano nunoa iu>nn manyo bw no'mon mowanna na>onb -iiwpn
ibim bxi naoo o»ibi Tuonb minora iiimn ^irra b\y mo»pn maiyoniy mann
D>aNU>oi onain b\y onsan by npab DI ma ,Tpm D'ipnp ,D'i"ia b\>> ,onio b\y
.D»Up"TH1 D»aOa
in>mab\yni o'iiown muy bv nvaoan mbajon ypn byi ,iu>nn maiyo maninn oy
lyin - o»nan Danu> - o>o»pn bni'oni bimin nnoiy nmi wm manyo by
ny D'p'Don oi'N D"imNn o>iaon ;oaiya noyb Dnbia> ni'nao biaan nspb
DI>NI D»ipb miwpnn >m-iy DI ;bna m>o nipa -pi'n manyo b'yanb onypnm
.ninna nwyin by npab ondano
misa m\yp <INI ,bban,ma ,1P^Q mi'nn bni'on nijoi» ,matb i n * nr nwpna
linyb p>o>i ba by n\ypo nr aso ;nu»s bni>o b\y nnv nam nanyo Dy mo'ui'N
•lii'nn nanyoa noman
nnnaoi miop niTm mysoaa bnmo mn\y nra Nin n,u>nn bu> iyao ,p by i n '
a'jnb naon->na o>oii nunon baa oyoa .n»i\yno nn\y inn nnn ba\y ,man
nvnnnnn .o'opnanp manp D>nyb Dmi'a i»>i» o'inaoi o>n\y o n y i D'onornb
by manp D>nyb o>yaiyo .nvoipo rmnai n,ii>n msyioi Dmo HDPN ,onin
mip nioiari .om\>nb onoiyn D'amyon byi o'iyinb onion naon">na\y Dnyn
D'nyb .nnanon nonn b\y ibn ny inn nipa mbiy p>N moipon nona nvmnpw
o'mnny nipaoon nuwn nviunn pa D"31NI D"pûin nniypn 'sny o>mon manp
"iQon-Tia ,pb ion .D'p'Don ouniöna manoni mnnnn nn o'ain nbi ,D»aii»n
7
mm1? riD'Dn nN mnuiinn nvrmnn mpnaa o-npnw D'^n1? DP rnnnnb D>^N]
.•prnn naiyn bü m:ny
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bw msiap m^03 non :nnvr >D>ua 'im« nnn w obiyn nma mt>>n iirnb
.bmn imv iaon->na m umna .D»oma-iN;i omm 'D'bv nuniNnn natnna
Viy imp'öi n>N*n] -latnna ^\y msnp IN D^Nrmim'N lao-'na man ninna
nma n»í'a p:nN .ma'3 nya\yn ipVnbiy ,nmn/Dmn mmriNnn IN TÜTI nisyin
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man inv m?!"™ ninna .nit»n jirn ? ninnan mpain ¿wn1? ,nns npbnn ma
,n'S3'anan IN mnnn nma nmrn mi>n i1? tpa'üin iWNa ,mm yaiN1? amnn HT
D3QN iNnn (mm yaiN TV l y ^ p) nr man .'nwVn nu>nn nmb nnnn nm im
maiyna TINO an pva o"p niyyn1? DVIN .Dbnya nm»pn -prnn manyo "?a nN
.nio^nn nVap1? maoon 'oían bw annn punn bbn nimm
nnN baa Vin^n nia>\y i w a mrna ÌVTOI nmN m\yn o\yV n,irnn bin'] ma>\>>
,nNmnm>Nn naon-ma1? nyi nanyna nnva nnmn mann»nn nonno .n^N mono
.nuiiyn bnpnn mm pa nnv •»iiuni timy Dniyp nnm -pn
8
ïw D"JHn nimi nrwm mm .2
D'XWIJI JÎIAAO
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DbiN ,-pJ'nn bnî'nn ninan1? orna 'niN^-pa m'n nipa ni^Van ITIV1? Dina r\vp
nvuy inn1? nvron oii'n i?m>n niaiyn bw nr Nin nivin oiainw -imb iwaN
n^Nn b\y niNoan iaon DV ,mND D»ran nimm n>win n m i ni^'y >nin TINO
iaun-n'a nmVi n'mpnn nm1? ,o"i'an nmi> o"bi\y ninna 'ninni nvianti
nnpn naon1? yino .n'a^pn Vin'ii U>VN ,D'rinn ni'ianb -n\ypn baa '^TT'iiHi'Nn
'nba D"3UIN D'iana mniyp nmamn nvyan IN nmp'yn nibasnn ,ian >Nsm
.nib'y N1? y m niDivmi nona npi1? 'Vin'i i\yiaa ,D»min
nib>y ^v mbaan D'b'ünn I^N onnn pawna nnp^ i n * bin»an niû'iy ^w Niyun
.noinn ^in'in
Niyiia i\yn ]vib IÎO -nm1? i~n^ TN > y 'JUIN man ^u> HT mr\ inva nnnn p'vin
nunna np'ya nib'ya losy inoin niman nia-iyn .ima nmv1? nvron ^u>
,naiu n'nwn ,niprn bm>n niaiyn ,na^> n'ubai n'onia nano H'-^V rm»aiNon
•ioni riNnipa a^nn n'n ¿i»m ,p .n>on> nivao nuiani n^aiyn ^ya anin
Tab •"ÍJNiTiVTJ'Kn naumna l'a D'VTU D'pmn D'n»p ina\y ninna ¿INT ny
nvronn jvon' maiby miwpn ninym miann1? ^'apna ,'iiwbi 'ins inani .rainn
'3'upaN 'nbai !?>y> >nt>a ^iyan!? n^'aini yi'nm nns^nn nnnr na nnoin nwpun
p^n DN m i ' ni'a'upaNi ni^'v ni»nn iii'n niaiyn ,n!?ND nia'oia .naiynn bv
*7in'3n nmon *?\y amn inani awnnna .ini' miman mmb ibsNV nvianonn
ninnN ^u> n'ninni nn'pan nvn1? D'ins nn w m nnnn^ ima xb ,niai\y nnana
"7V ni'niy -nn ,ninnN 'ninni nn'pan n^Nnb o w i o n p vnrt sin -lansn .IT
.y?ia n'upaN »JUIN man
nom (3)'i ;D"i'an nm (2) ¡n'iyNin nmn (i) :pa ninan y-wï 'lina ,nt iiypna
.^NiTiiHj'Nn naon-n'a nm IN n'mpnn
9
•>bmnb TN I\!>ND nvi'O-iwwmN mwbin nmiynn rvwNin n m i - jviwn
D'nom IÜND ,mb'yn DTpan riN ysib >TD D'p>aon noNwn I N / I npoun nono
by "IWND IN m m m m main Nb DH'panm mnriNn >mnn -IUJND .miiypn 'smy
isn n i p p l i ,pimN D>DI by bia>o:i IN n v m w m n ^ m urn y>p\ynb bmnn
nunNi nbmn nnnnn riN io>n onnn ,N\yni D»isnn ibN .rwbian roiynn
mwb n>sbN3 ,noyin manu >byn .D'biyn tpbmn bw mop rmnp m m mnnann
\yny ovn mo nab tinna rrmnn nnb vn>\» 'bin nnbiy minvn m^n TIN mynpa
qN .nnbsnb rra'inn nnn D ^ T H pNi uym ¡IT moo1? D"JV wny D>iN\ynni n\y»b
binari iianyb nibna riviri DIP1? IN •nn'pam iNty'nb n^nnn nnb n'p'iyn Nb
D'noim niNbmb riNiJb onniyn "mp>m" iaun H'-by napin ir roup nsnap .brwnm
ipnnw ,rni2nn nun ,rvm>i nmn mmny DA ins ,nbyn >aba rtn"j b\y n-niyaN bD
.nnb D'ynj D'bmnb oan nny I N nmn D'biyn nmn vn 'bwi riN-iinn myupnn
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mbaam aniwpi paon Nb ]ÙÌKI nnspinnn ,("im OTN IN \yi'N-nri tira rvnny
-by mnab - ibN o'myn bw nnp>yn mnnNn .biyab Drvby nwpnn mm mano
.Duroni nmn .natnmb D'JDO ro>nm 'yispn yvo poub NTI - rmpnm D'bbDn 'O
mbbDï mubnn ,nvmn i T i y m ,"-iNn m>n"D pi byia 'Dio'on mnnn riwnn D^IN
m mo»pw pina .binnn pjajn b\y i n i ' mmmn mmn bN D"\!>*nn Tjmiynnn
birvin rnwpn rvbiroi mp>a puma nbyia a»3n.n nm put) ,-inv nvivn nwmn
•npnD nTpûn riN riN^nn NTI Ì 1 « IVN nnpni nw mm1? .nun1? ròymn naun-irn
Tmyw D^nnri O'n^p to .H'PND m w n m i ' u n IV'DK ,nw Dy .iryispn nD'nn1?
^y - Num IT«): w .D'^DH mon Vy ^in^n o»ip^ by ninb o»ran nm riK
•'jn'3 to (\K • " r a n mmb .in'y IN bimb 0"-iNnn .nnoio b^ timon Divyisn
IN m'3iyin miyu .nioT' ,nmynn b\y nnv niDinin mmn .mpb run-by n^nnn
.inbiyD TD'OI D'D-iiDn c o i ^ n D"ID'3
nnNnnn-'N -mvnn nann ,m^y naun-ri'i b\>> n m i IN n'nipnn nmn - nwïv
•nbiD1 by mya^nn mobnnb bbD-m-n D'DIIW Q]»N Q'bnjnn .mnriNb rmnu paw
3V)nnnb 'bin anb ,>ron laiNi maj-iiNn Dmn'bn nv3Dn .nn'nbnn w n riN ia\yb
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rn>m by nü'bw iiNn uyn iy n'bninbi .man iaiN3 nninn TIN oonym D'^pn
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o'Himn D'aisn DN pawna nnpib nviw ,nmnn npoyn n w r a !?w nnn^n nuin
mmn ,rmi\y nvniva mm V\y n>3iu>n DOI^H riNi DHID^H n»33n DN ,D»mpnni
D'uvn .n^'v nnaoTpa na>ao "înwbi rma1? Durian 'w Dn^-ia» nnn >myn\yn lawa
irmiann .rnisn mrva^ nvaan \yn^ D>atwn IN mano on^ wv D'bmnn on
orft u w 1ÜDN .muri mpna .nnVw laomrin nra >iaa Dnmyn DHJIIN^I ni'w!>
-ivi nana nsbn mano nuin .rraitón noia ìwaw iriv nv^a nran^ niyj
TDD N1?! ,nnv minan manyna m N^N ,nvnan ma-iyoa pi N^ nsiaa noon
.•"ran mm1? nnnn nviano m ^ w n
w .n^npm laon-ma bv D'amen nasini ynana n-pmn bu> nia'wnn ~\MÒ
D'a^na invna /ìoon-ma iia^1? winny Dna miyy^i o»mpo D>aN\yn v>vb D^njpb
p m^v1? "ìatnna >^mn ^\y nnlna» D^IN .O'b'in nnamn nma D>3N\ynn Dna\>>
nN vayn1? D'Winn D»rann D'^ni'n nupm D'^a D>n»p i w a .UNO nlnaio
.nyv in^ty rmonn bv minan D'^ÜQ an ,n>>ion m\yn^ ID'ITO D'auan
IVÙÏÙ
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11
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nviano n^KD b\y pip'yb riNiwn ip^ym ibi'p ibND nrau .limn Virici bm>nb
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ibnni ìysin - D'nisy anyam ÌOIOÌ -pj'n mawa ,b>y >nbn bin>3n DJ mbmon
n>bin>] mnns p'lynb nn»n nns nv^n .nnv nvbpm rn>aibn mu>>s Deliran iura
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muvyn b\y nisnp \yib\yn -ip>yi mir« naorrmi bw >nsy birm lyn nuyun
rn>nbm nN-nnn i-nsb WTN b>y> birvra p"ip>yn by notmn n w y i b\y nns nsiap
mwnn .laon-nn b\y b>y> birvi win TIID'N firn pw - nnoai naorrnm - pay
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.insy naon
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m'nn by urn" ,"nip»a Nbb mna Tn>n pra" im Dmrin .'man -innb nNiram
,npnoN nasi nanwn mai rmnnn UND D'SOJ oan "namm in rmnn"i ,"omn
uym iDan (D»nb\ynnn) •»•m'sn fomn >mira bw biauinn by mapnn D\y
.mawb
«ìnrann "irnn prnn" moira nnb pnn lawn mrap nuvy-i bw nra'bi» nsop
ra'bwn 'nbiyn o o i ynw "raw /p^nn yupnb manran e m u biy bm laoob
:nnnn rra>nn nr '"pm"b .-nbwn ,i"um'n pyra "biDb iirn" ram
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;0"u>nn iinran an'pi biob iirn bw nu)'jn mira
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rvn iri'3 ON Da ,u»m , p rrn N1? DN m .»mn îowi iii3iri\y D>i>m>ni rumian
l*on .D»mpnn Don^V m'Nrv N? iniy niyaN ,ni3n piN3 imiiro rumian Diy»?
•nriNn D'orna nyi nvmpnn rnm? nvwunn nmnnn nimno b^xnb n,niün prni
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D'xjjii nimn ,-uo1 nunpu
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\»> raw ivbm'o nnyn" ¡mxinb m o c o i paon D»ni>n D'-IND bw 'VTOOINH
n r a n ,D>i^pnb on>i mobnn bipb rvn-moiN mino ^ w m ' T w r i -ìaornviV
."ibiy nbmnn nsyian 'T_by c y i p w n w m >np nmoni ,DTN nin DHin>b
i\yyi mob -iW3N »nsyn binari b\y irnnn TIN onNnnn D»o-inn rmvyin riN
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,omnn ,bmnn on nbN n'mia .laorrrpi nbyanb O'anwn nm\yn D'OTUH p i
rnnp b\y DWÌH Da I O I on^y DH>nbnn ^ o>nybi nvmpnn mb>npn ,nmnn
minori npibni >IÌ'U> bw i n v i rvmynwnn n-n^n^ >NTiib n i p .nmnn nvoia
omoN nmnn .onion b\y oairpw NTI ,n>iwnn n n y m mobnn nbipb
.D'lNwnn ntwpn law TIN nnawro n w m n mmiaib nsi\ynn riN p>3ynb
i n n nu>n oTpan ,mobnnn mmn n« o>n\y»n Dmn\y m n y i iwnnni
bao ON .-ii3'\y bi nyb IN iinnb .y^nb Dnbii'i^ '3an .nnman bi n n ^ n i
mi'inn Vi WJT Nb «in oia'tyb o^op'iio b\y fuam m y n rrn' sb laon-rra
.DPI linn1? IN oipb
15
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.n'nümp rmavb mv 31 ]or nN^pm .laon-no Vin'33 qnniyn1? iboviy HD omo
- •mo''? ni'33rn DIN nia bin»3 ,3'spn 'N\yi33 mnnan npibni ntwpnn
.iaon-ri'3 *?v V'y 'o^y birr»]1? mpio 'Nin mino
^7D2 o'nilin D'wm nai ni'ni o'^ri .iiany1? IVD'3 VD ^ m ^ o IN inmsn
nvinra pi *òi - vm^iya na'w bw n n\ypi 13130 nonyo3 ptnyn iaoTi'3
'i3'\y OTO .13V3 n'ni» '33 .m'VVan mobnnn IN nmiam nvwrQ .ivoiNbn
•»a'saon 0'N3nn im^nn inpb» ^ DN wnmni? V31' tà laon-nm nnopaN
.iatrn'3 V33 o'0"pn
o'^'yan o'oiun i'3 miwpn yny win iaon-n'3 *?iy '3innn iiyi3n nany
IN N'n ;nvyn pina1? 'man 'wn nnnn yi'on n^an .DI'3'3 rianimo nTayi
^33 bmj IQOO n^nrn^n 3iy*? '3vn p1? .mo^nn V\y iri'opbip nbap n\>nn
pi ,inv3 ni3i\ynn nio'wn^ unn nvinnp m o yup"? ,D'DH) VW i\yaNn
.iaun_n'3 ripari pïN b\y nnu ninin i n n Tino p w i 3 ^ 3 .n^n
.1
.r
nans IN nonain nniyiy!? NVI y?i3 iaiN3 DOT1? ni"n ii3'n3 nomai bo .n
-n'31? p'3yn*7 w ,p Vy m' . impani v i y W? on'Tinm iro roinn TIN nyV
.lnnm i3i3Dno 'T-UWN p^m o'iyn'n win1? n^ia'n TIN iaun
,ni3'pu)i nin'na unn nr 1311 room n3'3o r\vnb nsns iaon-n'3 n3'3u .Ü
.y^io '13'^ bo DI»»!? nniyaNi ,mui»a
D'^yian D"mon n'orun HO iaon-n'3 i,m3 ny*3non (naiyn i3"m) nrpo
UNO 3i\yn 3V\y inr .laon-no *?\!> iripan iia'iy1? 'man 'N3H1? miyrii ,13
.iaun-n'33 'o*y bnn'3 biy nonai bo nbyana
.'
n^^Nn "PV n'3onoon ,'o^yn ^in'in *7i» n'uaion D'3"aNon n« iNnb in'3 .DIS'D1?
.wow mp2t niûnnvn ,n>aviüw :0'V'o \»i^3 ,iaun_n'i H'1? nu'^iym ni30on
nionnvn ,rvnvww - -ox n'3"aN0iy (1) :mnin 'n\y o'n'io 'o^yn ^in'in 00m
•'3"3NOn HN O'Nnn1? H3 D'313J30 0'0"p1>; (2)'l ;1*7N TN I^N O'ONin - ^'DVy
mpi)
D'3'yo3 .n'33io mi3J3 n^i3 n'3i3'n naiyo nb'yan ^ mbnan^i D O I ^ i^Nn
.i1?« mnin1? un"ns ,nt IONO ÏV D'inn^n
16
iro'jno ¡ITA 1 ) . s
'nsy bin'] 712? D'^'ÛND ,-nnND ,in\y - ivasyn m pam niannwnn .mn-muiNn
lirpw nn>jn - bin»ai nu>7\» 7\y - n>iraiüiNn ¡rcnm npnn m m in'i'a nmiyp
,a'spn) D>n7in D»7in>3 Dmn in1? - rnarmwn? nrtann Ninu> - o»mun pa nbïya
N'n D3 - mannu>nn .rrmy mpab oipin 'wn on\y ,(DHIQ'!> nvîan ,DTN ma
nbyaw îaiy lown rnrwn 7W m m no'an i w i n - 7in'ii nü'7\ya rniwp
n?N *?a ;D'7'yan n'mun i n nm'win y r n niaiym rmwpn nmy IDI .nnrmoiNn
mun \yn\y? n?ia' N1? rposyn m pan ,<pua7 .n'nsyn mpan 7\y »tain ra'n oninn
awnn pia'07i rt'nuiuiN misa 7iya7 "laun-rpa ri7ia> miraV 'ysnN ion ,nnsy7\>>a
.rpmynwn mannen -iiyQNb na y r o 7\y iDinn
nmiynn\2) Tn7D p'O'în I N , n w i n nrnan nvau Dins nno] ir omon naiyn
'asyn bm'in ni»», TIN DIP»1? D'DJQ m>wa D'n'ïon D>nnn DHSÏIÏ ni'ya naon
nanan nvn»ya7 omwp I?N o»iyp .naun-'na bw p'Tnym ni7>yn HN na\y? nmna
.Ï7N DI? i7N mnsyn mpam mannwnn ,mn"muiNn a w a
ma»N nnn1? ai\yn »uman "rann .'\yi:N priN NID laon-rimy mar? u» »IVBWI
mana mannarini mouiu^m» -msn .-laon-nm rwmnnn m»nbn maw n*ninn
nanyn 7\y D»win D'oiun pa man rmbannai nu'7\yn naiyna D"unya n\yyn?
¡manan naon nr py>u!? .nnnn nnanrn D'mn'y miyrro yjn: >n?a nr mm ,"pJ'nr|
iDiri7 imai» , ' w i n n\ynn isn D'7i\yanai D'snba 7pm mpan maiari D'ny1? *
anyn1? narnn bm'nn n'7sn ,mann\ynn 7\y nbusNa ,p7 jnaiynn 7\y pans
.nü'7iym manen nu laun-'na1?
H>a 7im (i) :7ima 7\y o w i n »aw i n up'7aaip D'ny1? mmy mmaiown
-'na 7\y o'aann 7ima sin 'tna'O mpn .n7\ynnn n'a 7in>3 (2)n ;ri7'npn
rnonn mysnNa ip'ya Donino laon-'na 7\y D'nnn mn'iun mpina .laun
nimun 7y U'7nn7 i a i 7\y laioa i n s »n :H7iyn n7«wn .nnaipon nb'npn 7iy
N7U) upmaa yp\yri7 naain nb'npn DNH ?n>nyn laon-nn 7\y D'3»aNom
17
*
mun'Tin >3H'nn bnrnn mDiynn mnmain mmn ,D'VTV ubiaw >ÛD *
niDivm ib>3N .mnmuwb mon»nn in mini mnyb pn -|N ,mann\ynb
mmaiuiN -iaon">n:ib np>]yn mnnn f N .nviDOO nbüwn bw invi mmpnnn
.nmn'bnvwn (3)n ¡bau (2) p^pn (i) :n>np>yn nu'bwn >ninn nwibiaa mi
.Virion -i\yo bbia - mmr\ uNwn w n ,n"umN tmiriN on nau-Taw nnra ,JTJI^
bimjn nnbsnn nnan »miab Doain - yran <iim\ym mubnn nbipn nbiyan iinny
.D'p'Don >nbii a'1?! lyunn >n*wn mm nunm ,ny^n nmnb .naorrrpn b\y >nsyn
,D>bmn - rmym nm\>> cn-m *?"U> nb'yan timannwnn Dbynnb I>N ,DT -iiypnn
.naurrmi TIN nxnon nb^npm DH'nbn ,nmn
ipin «in bmnn .bmnn b\y n'pan nn nwrnb iy asnsb PN ,"inv >a>sao pita
mamwn upma nnbsn .>mmn nbiyn oy i\ypi nyon n'bim naon-mn bw nonun
D"nb inborn Pirran TIMIDI .nmian DW"b m u o n ,bn:»?n myn nm m'na »ibn
'awn pb n>ibn -nrnn now .("oi DHIP ,omo) naon-mi -pro tinnx D'mu
onpnn .Dninb yy"bi bnîb ,uib\yb mbon - mint* D'b'ni ,W ,bmnn bw mnmn
b\y myispnn mm pnb nniu viü'n nm 'byi natrmi pi nui DNnn D»piy win
ww D'ì^n o'bmnn -iwNDiy p by ynsn nwiipi pyi\y "ipnn ,biynb ,p .bmnn
nwaai HD man myw tpypwn DH 01 nnrmuiN nn mnai mnn« 'in nnv onb
.-laon-rvn by -TINO nvb'biy mabiyn pb >
\>> - n»mpN n ^ y a Nbi
D'iinn by boion nnnyn uniyi nwn D'bmniy ,nN"in «ip-«m by qoi] npnn
ipm\y o>bmn b\y Dn\y w ,n*on oa npnn mix .cnm ni'inbmyn nan UDin bi\yan
n»m bw nwinn msv .omon mannen n« n n y «bi bm>3 b\y nniDH n v n m
mniyai rm»3ynn num H'b nnnm nnbw n^i'uinn HN mmn ,nmnn inn
.naorrmi ma'wi m^o
.inND D»3vm D"b'bw D>03'n w laon-iri bin'n Dmnn mannwnb ,riNT Dy
nbipn DHin>bn rcwn pwm .laon-nn bin^n bn^ob y u b biD> niinn ,NDU inn
pub nnion pi DJ IDD .bn^nn pnb nan VTQ >aib>m nmn mannen .mubnn
nnimn n'33m UNESCO 'TO nma nr ]wi .nNmnn mD's n« naiyb iy»u ,nn^y
yuab nbiby nmn i^n miam mannen ,ND'J ITNQ .opiyn ui^'pwni n'DN bw
.nvrnpN mnb'yab DT-by wipinn inm rima pi» '3an n^nnn niD'Ni
18
lin: ID\>> a^ipn union rimo ,QVD nui ninnano mmol nw ,IND I » ^ 'Wi
,imb n\yn ,I^N nn>oii ."invi n'u>p D»yiüpoi ti"b^o n'Nim TayV D ^ N I I HO
Nin nmo bw mun nvvnynn "iiynyi •m'7'7 nm n'Si'oin I>N Dmon 10 n>mV
ninnai n>i»nyn noun D'iion DNH ¡n^iyn n^Niyi .I^N mmoi >i"aiN DIÛT
monn1? tpoio mino -laoni .n>yi mino n»n-iiüon nnn>pan 'iV'o INI» nv\y nanti
.TiV'Nni mip ID .n^non ino mysoNi IT n'yi ov
biy munnn IN n^Diynn nom ¡trai n'onui n'ibn naun-n>i »na oninn nianmyn
nvnioûnn inni naun-mi »a^D o'wn nn\y nunnon AID ,nsn *?!» -rnvon - nmnn
.nomVipi "üinn -laon-mn" bu> mpon .naonTPi »m innwnb Dn'iai nimnon
lirnn innm DniN my1?! noon-nn »m oninn nx ib\yb 711*3 ni\y TVT by yiso
mmn> w> "iznnn naun-n'i" bi» niiw1? .ninyn naon 'a-by .nnnV *?iy mtwnni
nN n^ao K'n ,n>i\y ;DHinñn pin T\H wynb miyaan IT ni»*j ,nn>>Nn :nm
TOion ,n>iyn\y ¡nnn1?' ninnannn naon-n>i ninnannn inv nmiyn nvn1? nmnn
.nanyon o'iiwn D'mun in ii3»n >i»iyn pnb noni nuvyi 'aib>n bu> Dipnb lain
DHinn bu> n»^Dni D»mnnn n'Ninnii) ID by yasn nnivn'to ysiii?; ion npno
m-inbu> ,nNin ipno mw .naon-nnb in>in yvt>n aio byi nmn by TINO n>y»awn
D'IDIO on ,-iaun-nn b\y D»n-innn D»nn pbn nnpb HD DTOT oninn Ton Nb\y
p by ynsn mm nimnn ivu'in ,nr -iiypnn .n'aoD nvnno naonTpnb mnnb
onb oi-nb wn naon-nn »nn nnnu>nb Dnmn m N>nnb min "nbp"n inni»
.n'aoD ID ypwnb
l'anni n'UDion D'mun Dn\y DTOD .laon-nm DH'obnn Tpan ns vunb DJ \y
D'VDQ D'mpnnn OH'nbnn niyNDiy ,n«no "\yrnn naon-n'i" ^ ivo'in .»Dii'nn
;ninn« bv n\yinn D^N nnnano p i rnsupi invb D'^ID' Dn ,ino'u)m minb
pauo nT 2üD .ibiD naun-nn bv m>obn/nN-iinn rbnm D'arni TN D'iam nn
Tpan D'^nnn "bxb ini "n^'va onnil?" b\y Tpan D'N^nnn DH!?^ in n^i'uio
,Dnpn 13D01 .iaun-n'1 iv nnb2nn mv'w n« bnan p n /'D'b'va nnin" b\>>
l»a Dnya nn^nii QH'obnn iin'iy bw IT nu>'3 ,inN nun bis nao-'nn invni
.DH^'H
nniy ,m33iN3 "MINDSACROSS" n>iDnn
19
>a^au mpn b\y ni"iyn nojn
mn^n nau niDni tramyo vn onb»n
N'H UNO
tp-iwpn riN nprnn ,rnn>Nn HN law1? 'i\yy -TON itm mu m>nnn wn n*7>npn /pun1?
pn D'DH'n .nn^n ^ ivmmnni mbnbnn ,rprnnnn niaon pnV natm-mn in
mnm D'rniin •"mnnn n'omn ¡non nil n-pan D""òn vn> n^'npn pn1? naon-mn
pi marniy ^ D>OTV oonb IIND n\yp n>n> ,rvn-n"m miao m i n i .mmNn
nmrn n^nprw >3aa ,D»nvn p-bn N^I "omro" D'orv n1™ i»n» .nV'np1? naon-rvn
p^i - nbnyaa1? i»\>> «in i^to i'1?« on"nn IN "vbV'b ima yianm IÖÜHTI'1 DV
.•»rowan nnoin1? onn n'n»pn niwn ,"nva'*"i "mû" ,"-nnn" V\y IIIWI miyan
nnv nniit n^np1? naon-mn pi rpspmOTNn ,inv "mmna" nnira ,NO». T,TND
.naon-mn V\y mmo niNinrb nwnai
naiV iri'3 .naon-mn1? n^npn pi pbnian m^ya1? orna nny nr m o w na nN ,i>tn
inn mo'onn n'PNwn iw .-p»nn nnnyan o^yian anna •»rann manu1? omn m
.nnto mnvm m 1 » ^ m m noi1?
¡mWw nnm n*7>nn nnw nu3i
manwn ,/TO)J)Ü)N viïmmnn ftv poon-nvi >my i»n» DI¿>»> /mj DN/T'
/ni? JWB> /iram ,DHMO> n^pu /awn mpïman mura ,n>axy-mp2i
,wv>iïù irnw ]ni ?>NIÍ> w B»B> J7nnnn ,nnw7 »nn monnwn bv nnva
nvbw ,r>vn2ù'?HMa D^JIV /T'DÍÍOWH upa DHJ'J DWHN jmv mnnn
>.»»yn - inv wov JQWM ,D>mrnn »na cam^-mv^a D'VWO pi», my)
"? 75 Dirmi
:mn»n nnv no»m
Tirnn /mura mwn HJID PN m?i»m ni™ mnm)» mi>w mnnn nan"
nionnvn1? DW7» D'Ì^N 7HN vwnn DNH ?7»>n 'w:u' i>u> >7yion omp'oï
Dvwnn D'vnan ms nx mina IPH ,-jwn »»jyn n»D)>nwn j)i JIUIOTI
"Tympan >u> invi
,mnnn *7\y inio'iii? mDivnm rrnion ,m>mn .nony1? rnun^nn KVIU) .nmnl? \y
my^oNn iQon-ri'i »m monnwn bu> KISDI VDÜ1? n'n» im T^1! niNi^ iwn nwp
,Î>TO manyan ,cmN3 n»]inN anna napnn ,iimn inna a« pn - bin'n D"ir\y
mmnj m^'yi mn'N1? N'nnt» n\yy laon-rcn ^^ >a*y *7irf3 .'im n^njn ni\ynnn
mun»nn ^na nms pinV i»' .m^yn ^yan nmi nwnw HI ID^N nirnn ^w nnv
.noiöva N'n inniy mnnnn inw bu) D"a^aon n'Nín1?
20
ranún
113'nn nanyn TIN jvmn misa ^yanb -pisn oy >nsyn ^in>in n\yu nu a\y»b i»>
nnaio nvinn nanan nunva int .imaa naon-rpa manya nnpnnnn .rpnibòn
1>N m .nan\y> ibNiy na natnna b>y D»NÎ? IN yiny? muinn n-priN omn'b ri'iani
Vu) D'à mnn bu> asna iaon->na ms\yn "pn .rmpnni D>y?an ^a ^IDTI nain VÎVÙ
.n'DUlOlN
'33 bv ninriNni manon UN itaVi i^n D'aupn 'iiy pa IIPN Nism Nin -uriNn
riNip^ ,nm ^Dn D»aoai n»\yiiN D'aNiyna winnyn TIN vaanb pai .nVo naiynn
.Tnbnn w n nany ^ 'Dion l y n
^na>n ^ly naiiyn nanyn nay ^N yub misn TIN Ti^yn .ninna1? 'nmna\y naoa
>nysn .niniyn nimn pa miayn ripian m r a misa -nain na\y nanyn ,Vin>3i
misa iTTJV nvmpnn iwnn nviun ^\yi D"nV\ynnn nmiyon ^ ninnsn >nmn\y
nimu ny>ap ,nvinn bv O>NU>U^ Dnuypn n»au>nn DH-yn irrnn .nnv m r a
nain bm>o n'a DHpaw nvnb D'VID' ,i" 1 3 ' n n nanyn ^ a ^v nip'am ,ma>N 'ipni
riNi Vyiaa ni\y»n PN vpùvb i»> ,iQ^V naun-n>a rima IN n'mpnn nnna .nra
Donjon nnvnai ,-pi>nn >iansi nynniyn) piy1? D'ynin D»mu n n Pirran ni'i^ya
,nm\ypn 'sny1? nau innbi na>nnV nwnN nvn? nans n»i'an nm .(onmni
. W N I aiiyn
tm>a nnyn naon TVN ,>nsyn ?in>in niy'i yin1^? onymn Dwna >nn\y nnN1?
.D»3'an nnm nnytnn nnn1?
D>aN\yn npaoN m ma ,nia>Nn rnpai niipn ,n>au>n nvmn nyap .n'WNnn nma
D'iiuina na1? nip'nnn mnman <IN man nnpnai ,tpn>ion D»n:nN Dmn ,0"aoa
nn?w \yvN n w r n ,nin>\yn bv m r a mun D'iyin ,o>n»p D'VanoD D"u-ipnva
b\y nniNJ naivm pi'innn vis'a ^v mpa1? nwNno yvn maivn ,mu>an ^ i a luisa mían1? iy> .(nmiuja ninna1? anaína \yiTn V\y nwriV nooi nNi) D'w>nn
.nii'bv mnnpa amy I^N D'ninna y>pu>nl?i a^n nmwn riN qim
21
mann b\y nbiaan rnnriNn n»ya iw a\y"V «in nnva *?TTjn -uriNn ,D»3>an nma
np'ya D'ü'WD D»2'i m n .into 'yiupnm 'bnrnn n'ui'nn n« bbian dirían
n>oa>na nan n>n3N ypiynb D>033 DH DJ OVIN ,yiüpn »WJH i3»m .nayiyb nmna
misa baob n»3'an r u m bron nn n i ^ m o'nbin o'ünnn pani? \y> .o»bn3'n
nm >-nny biy -unan sin . p w i b b'apn ,1013 -uni* .ibw nnmpran ninnai n^y>
m miwpn ynyV -ponn wn n'Vin'31 n'yupn oan nnpaniy - ma lawa o"3>an
nunbn DJI nun 'aba nbynbn DJ n>nn\y miwpn ,naon->na va'? ona-inn pa >3i"pa
nb'y m m y3nb imbü' Nb naon-'na im rannn in ,m ninn n3>\y NV1? .nbyn 'aba
.nnbw bin'3n H'pan riN
n»03b xunnb n>byw nr i n n i n ^ n o m nvnV nan* D"3>an nnna mnn^n .iioab
ir nwm .naon-'na bs ra-innn ,'i'oa ,'3iva-in mayn ynya jmnnb irrniunn
DJ ina ,m\yan bbia on'pan >bya biy mw OTN ,mn'\yn bw n i n i nnm na»nn
\y> .ni3i\2? binari n m y n pi 0"3>an nmb nvo3iibn n3"nn\>> ni3>nN y r a n m y n
.ibN n'ninnb rnnnp p'3ynb
ina) nnnan nianyn im (mnan^n nanynn ma) nvnan nianyn imy i"*b p'iyn
, p .maniyn nianyn rwnpb yi3b niiinnsn o w n nbnna io>3 ,(n>unan nanynn
nao">na b\y >n*y bin'3a D»ID>31 n m pin noi:* nvn3n o>3in\yn ni3\ya bnn ,bwnb
nvya '3ai nnniy nianynn >n\yiy n*o3 yna ."nao">na b\y o>up>ina" o>iop3n Nb I'ny nrmpni n r a ,nvnan pi niM iiPNb o'mpinn Dwnn .nmnn D»\ypi
.ibbn D"3U'3n m oiawb nn onpin pbi ,n>3unaa Nbi noi^n ÏÙ .Dwbna iN'jnnn
innNnn n r m D»nbn nnnN m3Hm n>nn D»IU'3 ^ nin'\ym m^^nn .niyynV
.V™ m3Hn17
iniN\y m i n i ni3pn yup1? iy\!) ,Nin V"3n 0"iu'3nn rinV? in'3 n^T ^DIW nn
l'inai nonV o o n s -laun-'nn nbwnnn .-lonVi pan1? D'mynn Q»mun ^D n o n *
n3"nn mnb'ya IV>N >ynv)n-in laiNi inan1? Dn'^y .TnVn1? nN^pnn nnui3 n«
H'i n3ipain ^>NI ,n'\yion nmn mnnsa n3iN\yn i1?^ ,iaun-n'i ninns nnn
H'-Vy iyip3U) nvinnpn m o b onn DVID nN yi"V \y .bn3'nn bu> n»3'in n m
D'p3yinn nbiyan \yaini ninrn nnu ns m m misa Tunb w ,ia"ina .nb^nnn
.nao-'na 'Vn3nb
22
luana mannen1? riNiipw mnsnn nmi> nayn inn1? iu>3 mnnann nunn naon
.numi n"33 ma o>nmna o>unn D"a>s30 ni3pni D ^ 3 DV D»ID>3 i3iyi ,Vn3>D3i
niTnpn ,iQDiT'»n3 ,D"3>an nvi\>n ,nannn brwrm i>3 ninriNn npi^n iin
TIN nom ,'pbn IDINI ow\y amyn Vn3'n ,onpnn in nna3 .nninn nvnnNnni
.TINO b'V'3 inüV
D'npib iu>N3iy D'3viu 13N .nt NU>i33 n>yn\>>n"Tn mnsn -i>nün^i uiaiy^ pnv Dipin
- nvianon r\n namnai unnn niV>imnn niaamn ni3iyn ,iia\>>na D'a'annn ^3 nN
nnva niaiyinn ni3nynn in - onynniynm 'nipnn ^ri3inn ,nin3nnn nonynn in
:in DN nwi /mío m y y i ni1?}) n3>n3n
;D'V>yan D'onsn ^3 *7iy o n o n i s nintuimn nunan VTO ni3iyn n m v
*
;0>snnnV •>3inonpn m ma rmpnm D'^DH nN insani i n a iaw3 ni3»^n
*
;nmyani DIU niysnNa D»!7in>3i n"Vn3'a anuya ninnan
*
.y'3n nievan r\n innb p'ao'iy pina o>3N\ynn TIN \>nnn nispo
*
na-iya1? naynn pbi ,'iob man ^na»o oy m^nnn ninnanan nunnn nmn
D33»nÍ7 IN ü'VnVTD HN 3130^7 ÜIH1? H'il'U) 13311)3 N3¿fl33 pN .HWpl >ÜN NID H311VH
mann .niñean riN TOD TxinVi ni3pnn ns ü'snn^ na lyiTn IIIN inni twaV
pawna nnp1? iy ,D»TD>"!?yi D»TIÜ> orna HWN D>o»pw tDipna .man npim
n« ^n3Í7 D'^n ON ,i*i^nn >3»3ya DnianVnn nm om^nn na D'uVi IVN nini3
.'WI3 '3i3'nn nnnn
131V3 nam n>ni3iüiNn i3n3iy nnoio Tan vn m o ^ y n ii3>nn naivaa
D'VaiD i1?« nnuioo D>an DVIN .nn^\y n>a>3an ViTin m w a nuyn maiynn im
D'V'^a^ DniN n3an nvbaVa nnun^ niwmn .niTV nom ïv nninn H nvyan ova
D>SIÜ>P ,"ninn" D>3\ya ,nny maiy .niaion o>3\ya mpian »nVa niamnn .mvna
iniyVa 3iun nanivn n o ^ ,p»al? .DH^n^nn naonai bin^n *73D3 ,D'3pnn3 o»ann
.'3i3'nn nnnn 1?Ü ninnn *73a ipmTia niniyaNa 131? n'Ni3 .narnna amwiy
D»IO»3
23
ailna rniODDû nnun. 7
.-luomro *7TD'3 -iia>\y n»yií? oiiya inno pa\y m m misi >nayu mnnp ma'yoi
-pa>n mnyn bw D'nnannn imms HN r n ^ nnnsn N1? mmnn nnynn DN
N'm .Tti'nn nnyn mnnann biy mpin iV\yi nnVsn1? nriDr FINI V I I NTI .mbp
Dnnin D>ain .mi>N m p n onya oisns ,m>annn n y i p ini Dnwiai mavn pny
,iaon->nib m>iinu mnmnb ^>im n r i n IWND i n v a i ,D"i>t>p-iüN DanN D'NIJ
mirai "pn* iy> (i) :onrr noi *?)> TVO 'nsyn Vi man ninni ìynaw p'tvan DVIN
D'nno ansia (3)-i ;mmnn n m i niN'm maiaaam mis \D> (2) ;i>naN >iN\yn
manan ïv D»minn o>wra >ibn 'n1?! laiNi nni ^au!? ima N'W nnjpnaaipi
pina i'N ,pb .^>na>nn ^ D»ann mmi nvwNin mmb mon»nn N^n .manan
ina ^nnn pini? nins m i n !?i .manan bib mo'Nnnn nuvya nnoia IN vnn
Nin nvannn >ynp >aai imvn un^n .ni?\y -pa>nn nnyn nN i»yani> n i ninyn
i?N ,]i n m w i .nou> i?'nnn nmsñ ,(n»yüi 'itva n i Tin) monna misi /)iNiy^
.-pa>m limoni nii'an many ,ia»m - nri >iany bv maiun imunn o^ynn^ DnV
ms» n v w n i?\y ms"n mani p i pwy ^ i n iyny lansyi? virnV lany ,nr i n n i
n m m *7aun pwnn innniy mnyn Dsyn yna ni 'aiu> ¡mnnnyn inn i?u> IT pa!?
mi1™ nasinn ,mniT\>>n m i m i .DIN >an poiy >a\yn -innnu» i i y i mnnn xtiì
/vn^n Nin mpi?n DN p i - nvv\yn nnnni mp'pn *?v nV'yan imanmyni TINO
,miyn Nin orni» minnnn mi'Ni mp^n *?iy mi»>Nn imoann .naip IN yoia ,ni?m
.>aion isinn !>y yaiyn1? I N I 'aion isinn i m nvn nnwi nnu>n nvn1? n^ii'
,m^"n n"iyyni inmau» "m^V'i "lina" Vu> D'j^im mniVi mniNmy i n n w a
^y nm .D'niTiyn n n m Dm« D'DIÜ»D IIÖND myunV I N Dni^yi D^uan^i DI'N
Diurni m m p D'ny1? Dnyia n^'nn 'PVII .D'IUTUÌI - ii^"n nviyyn^ iwai ,11
iiDNiiy i n n ï)iTa .p'ayn n y i mmun bi n« nmym o'mna oonnnn -IWNI
manían myniyn ns -in\yb JINI1? \y ,"niyo nain pam"1? pian V'nnnn HN D'iyann
.tannnn ^11 mann^nm
25
naoj
'nniiun nenn mmni -|ii>n nien
biy mniN^n ywnn nsyin nu na^nn n\>nn mniNb f i r n miyi ,1991 > ^ r a
,nmnn mwm 'a-by .mrmyn iivnn naiyn iv nnra urn pb> ypm .rvrniy
•Nnni y^ann iaon->naa ntmnniy muan1? níón mnnN insy ^y n^apn mn>yn
npoyn iam w v a .n^nnm uinVian n»-by nyapiiy rnaunai n"niNVn ony1?
nixjbnm ;nvïn^n\ynb nny'N mnnN ;ti»\y>N omna omni D'bmn ïw ntùn
.nano >piyna i¡)in>i¡)l> orna nvNnsy
113'nn imyin 24 bw iay\y^ mnwbn iii'nn rrayin bw bm>nn >Tpan ibuia
,ni?w D'mwn DHIOTII mini» i?yi nurmn rpnitòn nownn munn by .nvnnnn
:mawn n m w >m>> i^vnn
mnwV naiyn bv n^yam mira - iuni>a\y .nmiwa -pimn naiyn rnpa i^nn (i )
.Dm^yi D31J1« ,-iûomna w n riN ripian ,naiym mp>a bv na'pm nnmnn
latto TiiNn miub laon-'naa i^'nn n i n ^ rnysm o>ua m>^> :mma rrnay (2)
nn'wn^ i»\y 'awnn ipnnn oi-pp .D»arsaD D'mnn ima ispn rrnobi ,>^a
nvrropn mn'Nnn nnm nvin^nwn pna mysQNi ,m\y»V onn1? 1»» ,p"ina .IT
.nain p i t o obnin in^yw ninnai1?
n'wnna >i^n »n^a lawa ^iyab rpniNbn iwnn murin ma*n ,naiynn nn>wnV iwaa
onpnai ninainn rivmnVi miy1? Dwina miran nn'ün riN ysab u>> .uaninaa IN
.n'jwnnn Vw marsau n\ypa »a-by - (nmn DHID'^rnaanmira .b^nV) nwion
Tirnn nsyin a>spnn (rinn 50) mann ton n\yinn mnwVn iirnn mun a>spn
DHiwnn mini» VÜ !HD^ - \y>bu> ;nunn niiyn^ lyvn - inn wbv .nnnpn mniN^n
.•mw nnjpmaa n a - ò ^ i nnn »a-l?y n>nmn npoyn1? - IÖ^TÖI ;D»iimn
Consortium of Institutes for Development and Research in Education in Europe, :11pnn
CIDREE Brief, No. 3, October 1991
27
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innion "7y
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,Tu»ra nimiam iii'nn pwn *?U> D'NIDDI a m annsm nnpnn ,onao ûtno NIH
vniina inn .iiD'nn ninnarmi 'uny n w r o ,uniN INÌWD nwa ,yvr\ ,:mpni nvi^y
D'ou'n ni'iany m o nynp - "Tnyi nypiyn" :nao nN i " ^ 'Wi D'innari
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(Investing in the Future: Setting Educational Priorities in the Developing World).
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www.education.gov.il/planning
31
International Institute for
Educational Planning
HEP Contributions No. 8
Managing schools for educational
quality and equity: finding the
proper mix to make it work
Jacques Hallak
This paper was prepared for the Third SEAMEO 1NNOTECH International
Conference on 19 to 21 November 1991 in Manila, the Philippines
^
International Institute for Educational Planning
(Established by UNESCO)
The views and opinions expressed in this paper arc those of ihc author and do not
necessarily represent die views of UNESCO or of die HEP. The designations employed and
the presentation of material diroughout this paper do not imply the expression of any opinions
whatsoever on die part of UNESCO or IIEP concerning die legal status of any country,
territory, city or area or its audiorides, or concerning its frontiers or boundaries.
The publication costs of diis document have been covered üirough a grant-in-aid
offered by UNESCO, die list of which will be found at die end of die document
This document has been typeset using IIEP's computer facilities
and has been printed in HEP'S printshop.
International Institute for Educational Planning
7-9 rue Eugène-Delacroix, 75116 Paris
© UNESCO June 1992
Contents
Page
I.
Introduction
^
II.
Central- and intermediate-levels of administration: trends and issues
g
HI.
The case for school-based management
8
IV.
School-based management: major principles, assumptions, conditions
9
V.
Learning from experience
11
VI.
Moving towards a hybrid administrative system
14
Vu.
Concluding remarks: a prologue
16
Appendix
Bibliography
18
Managing schools for educational quality and equity:
finding the proper mix to make it work
by Jacques Hallak
"The right structure does not guarantee results. But the wrong structure
aborts results and smothers even the best directed efforts. "
(Peter Drucker, 1964)
I.
Introduction
In the 1960s and 1970s, centralized administration was generally regarded as
reasonably effective in supporting the fantastic expansion of educational systems in many
developing countries. Existing education administrative systems proved capable of training
and recruiting a growing number of teachers, of building and equipping facilities, and of
monitoring the distribution of financial and didactic materials and resources.
With the growth in the size of educational systems, coupled with the financial
constraints of the 1980s and their consequences on educational systems, existing
administrative and managerial sectors - mostly centralized - seemed to have reached their
limits and were suffering from inadequate organizational structures, an incapacity to operate
large-scale educational systems and, from poor communication channels, to monitor what
was happening in the classrooms.
In this connection, we should recall that the style of educational administration
generally reflects, and is intricately linked, to the wider system of public administration, thus
complicating attempts to reform the educational system.
The nature of education is, moreover, such that it is provided by a multitude of small,
dispersed and disparate units. In virtually all countries, schools must respond to diverse
interests and goals which are often in conflict. Parents' associations, teachers' unions and
locally elected school boards often have a powerful influence both on the objectives that the
schools are expected to attain and on the resources available to schools. Local level
priorities often do not coincide with those of the central level. Horizontal and vertical
communication channels between the various agencies providing educational services are
often blocked.
Responsibility and authority are often not accompanied by adequate resources. In
addition, schools have frequently to contend with the pressures generated by the competitive
examinations that guard the gates to the various stages of the educational system.
Reforming such a complex system represents a major challenge for most
governments. As an example, primary education throughout the world has organizational
structures which are fundamentally similar: at the base are groups of schools organized in
geo-political districts. Almost all schools are managed by a headmaster or principal. In
many countries, individual schools or groups of schools are overseen by school boards or
parent/teacher assocations, some of which have considerable influence. An intermediate
administrative organization, the district-level, provides some level of supervision and
technical support. At the top of the structure is a national ministry or department of
5
HEP Contributions No. S
education, responsible for the planning and administration of the educational system as a
whole, with one department holding principal responsibility, for example, for primary
schooling. In larger countries, this structure extends over four levels with the addition of a
state education agency or provincial ministry, between the district and the national ministry.
Although this three- or four-tier structure basically describes all educational systems, there is
actually great diversity in educational systems because of the variety of distribution of
patterns in decision-making authority.
Improving school management for quality and equity means improving management
at each of diese levels, from the highest hierarchical level in the system to the school and
establishing more effective and rational linkages between the various administrative levels.
II.
Central- and intermediate-levels of administration: trends and issues
Although it is not easy to generalize on an international scale about trends in
education administration, the predominant pattern is that of rather centralized systems of
education administration: very ineffective entities at both the central- and
intermediate-levels, with some examples of minor devolution of authority and
responsibilities to intermediate-, local- and school-levels for curricula, staffing and budget
management. Apart from a few exceptions, the major constraints or problems relate to
inadequate organizational structures, lack of adequate managerial capacity and ineffective
information systems.
In addressing die issue of improvement of management, we should basically take
into consideration these dimensions which constitute constraints to managerial and
institutional effectiveness.
The most central notion is that of an effective organizational structure. We do not
need to go back to the long-standing debate on centralization versus decentralization.
Centralized systems have proven most effective in countries characterized by a politically
and economically stable environment, strong administrative systems, good infrastructure,
comparatively well educated and compensated teachers and a relatively homogenous context
for schooling. For example, this has been the case in Korea and Japan.
However, in countries with long distances between individual schools and die centre,
great ethnic and linguistic diversity, and relatively poorly developed transportation and
communication systems, rigid centralization blocks resources and information flows and
leads to the inefficient and ineffective operation of the system. In such circumstances,
educational systems are likely to be more efficient and effective if certain functions are
devolved to die lower levels. Given die very wide variety of administrative traditions in
different societies, it is not possible to prescribe what these functions and responsiblities
should be. The challenge is to define criteria for devolving functions and responsibilities
while maintaining an overall effective organizational structure.
In this regard, I should like to make a distinction between (i) die central-level, (ii) the
intermediate-level and (iii) the local- or school-level.
6
Managing schools for educational quality and equity:
finding the proper mix to make it work
Firstly, the central-level, administrative weaknesses generally arise when managers
do not have sufficient authority and/or resources to do their job effectively, when
communication channels are blocked, when roles and responsibilities are unclear or when
managers' time is either consumed with routine tasks or with addressing, on an ad hoc basis,
requests by the political structure. For those who are acquainted with the subject, the usual
picture in many developing countries is all too familiar: a small group of first class
managers, who have little power and have continously to change their programme of work
without clear notions of the agenda to be implemented and the resources to be mobilized for
that purpose; there is little or no accountability nor the incentives for them to remain in their
posts or to undertake major programmes to improve administration and management This
small group is surrounded by some 'old-timers', waiting for retirement and blocking any
possibility for upward mobility, and by large numbers of mediocre, untrained colleagues
who have escaped from the teaching profession and who may have been excellent teachers
but prove to be poor administrators.
Secondly, the intermediate-levels, offices tend to be even more inadequately staffed
(which can mean over- or under-staffed), poorly financed and accepting the limitations in
their authority to act. Their principal responsibility - at least according to the rules and
regulations — is to provide professional assistance and technical support to schools, teachers
and principals. The typical district office operates however solely as a 'mailbox',
transmitting guidelines, decisions and rules from the central offices down to the lower layers
of the administrative machinery. There are, of course, more favourable circumstances,
where the intermediate structure operates as an inspectorate, serving as a link in the
top-down administrative control of schools, although neglecting its role as a source of
professional support. Even under such favourable circumstances, however, there are no
incentives to encourage the intermediate levels to report mis-management, violation of rules,
or, on the other hand, the good performance of institutions, requiring rewards or
encouragement Nor are there incentives for the intermediate levels to promote, at the lower
levels of the system, initiatives, innovative attitudes or educational experiments with a risk
element.
Thirdly, at the local- or school-level, the mismatch between authority and
responsibility is particularly acute. Principals are largely excluded from decisions that affect
their ability to improve student achievement. Curricula are designed centrally, often with
little attention to the diversity of schools and students' interests. Teachers are very often
appointed, assigned and evaluated centrally, leaving principals with little control over the
choice or discipline of teachers.
The failure of teacher employment policies to take into account regional and local
needs, subject matter and grade level needs undermines significantly the ability of principals
to build and maintain an effective school environment Few principals have the authority or
the resources to organize staff development programmes aimed at the problems and
challenges faced by the teachers in their schools. At best, they may have access to more
general programmes created nationally. The lack of full authority at the school level is most
prevalent in highly centralized systems but even in more decentralized ones, authority is not
always delegated below the intermediate levels.
7
HEP Contributions No. 3
Given the importance of learning as a joint effort-outcome of the school and the
community, school managers need to be able to mobilize and use local resources for school
improvement especially in situations where central level resources are scarce. However,
school leaders are severely constrained in their ability do this. When central administrative
rules and regulations require that funds raised be submitted to the central ministry, this
restricts the purposes for which they had been intended.
At the same time, in the absence of testing and monitoring systems which make it
possible to assess performance, schools are largely held accountable to rules that govern the
use of basic inputs (enrolment allocations, student/teacher ratios, schedules and time
allocations, reporting requirements). Such rules are and may be necessary, but obviously
they do little to create incentives for schools to focus on interventions that lead to improved
student achievement.
III.
The case for school-based management
Given the severe difficulties faced by educational administrations - often attributed to
the inherent weaknesses of centralized structures, efforts have been made to find alternative
approaches for the administration and management of education. Such approaches have
been inspired and have inspired the principle of devolution of authority to lower levels in
matters of governance, financial control, content, methods, norms and standards. However,
given the difficulties facing some decentralized systems such as in the United Kingdom and
the USA, which also suffer from inefficiency in management, low quality of education, and
enormous disparities, more radical alternative approaches to administration and management
of education were proposed in the 1980s. One suggestion was to entrust managerial
responsibility to the schools. The arguments for school-based management have been
basically determined by three sets of ideas.
One set of ideas stems from the fact that effective management is needed at the level
where teaching and learning take place - in the school, in the classroom, because quality
education requires effective school management. The Thai programme of clustering schools
for greater collaboration and co-operation in order to improve the quality of education is a
good illustration of school-centred administrative practice.
A second set of ideas is connected with the image concerning the role of the State as
a poor manager and provider of services when compared to the private sector. Words like
'open, deregulated school market', 'emphasis on parental choice' and 'school competitions'
have become commonplace in many countries of Europe and North America where it is
fashionable to attack the monopoly of public (government) school services.
A third set of ideas is very much linked to the so-called 'expanded vision' which is
shared by a large number of partners of the educational profession and which was adopted
by the World Conference on Education for All, held in Jomtien, Thailand. This vision has
five dimensions:
• the universalizing of access to education and the promotion of educational equity;
• a focus on learning acquisition;
• the broadening of the means and scope of basic education;
8
Managing schools for educational quality and equity:
finding the proper mix to make it work
• the enhancing of the environment for learning;
• the strengthening of partnership in the planning and implementation of education.
The latter dimension, the strengthening of partnership, is considered to be
fundamental because of the proven incapacity of central administrative services (money and
control) to implement locally, at the school level, centrally designed reforms and
innovations. Even if that were not the case, i.e. even if reforms designed centrally could be
implemented, these may prove to be irrelevant to local needs. Hence, the need for
devolution of authority from central to local levels, down to other actors of the educational
system.
When the three groups of ideas are combined and the benefits set out, the pressures
for local management of schools become irresistible. The type of benefits expected are:
•
•
•
•
•
•
•
greater flexibility in utilizing funds;
increased involvement of various actors in decision-making;
removal of centralized bureaucratic control;
increased capacity for innovation, creativity and experimentation;
potential for economies;
ability to reallocate resources to meet school objectives;
greater autonomy in decision-making.
Such expectations may be summarized in three clusters."
• increased efficiency;
• increased quality;
• more democratic and equitable responsibility in the management of schools.
IV.
School-based management: major principles, assumptions, conditions
It is difficult to find a consensus view on what is meant by school-based
management. The Australian Thesaurus of Education Descriptors provides a reasonable
basis: "an administrative system in which an individual school exercises autonomous
decision-making on budgets, curriculum and personnel within policy guidelines set by its
governing board".
The main iili-as ilcsuibing wliui sdmnl based inanagrmrni ivallv is run Insminimii/cd in ten points.
1.
School-based management may be defined as a change in the distribution of the
power structure (decentralization). The school becomes the principal entity of any
change in the educational system. It is the epicentre for the implementation of
educational reforms.
-¿-^
2.
The possibility for the school to operate on a relatively autonomous basis and to
solve its own problems requires the co-operation of the different actors and the
sharing of responsibilities among all those who participate in the life of the school.
9
HEP Contributions No. 8
3.
The professionals of the school have increased responsibility and accountability
vis-à-vis the hierarchical structure because the new system implies a systematic use
of both internal and external evaluation and assessment, as well as reports on the
results of self-evaluation.
4.
New structures of participation (forums, councils) are established to enable the
interchange and participation of various actors in the running of the school. The
actors are the headmaster, the teachers, the parents, the local communities and
sometimes the students as well as representatives of private enterprise from the
locality or the region. The participation of teachers is probably the most significant
form of change in the distribution of decision-making power in the educational
system. Teachers are supposed to inspire the necessary reforms which will improve
resource allocation. Given the fact that teachers implement most decisions, their role
is very important for the success of any reform, because they are able to propose,
support or block any improvement. If the personnel of me school has not been
involved in the design of the projects of improvement, they will not feel committed
to promoting and supporting them.
5.
Structures for management assistance and support have to be established. Such
structures include a special budget, the preparation of teachers so that they are
capable of participating in the management of the school, and increased allocation of
time for group work. The delegation and distribution of responsibility in me school
for budget, personnel management and curriculum matters are prerequisites for
effective school-based management.
6.
The success or failure of any improvement depends very much on the conditions
prevailing in each school engaged in the very complicated and difficult task of
improving its operations and not only on the national policy, global plans of reform
or general decisions, as was previously the case. No effective change can take place
if it does not take into consideration the specific conditions existing in each school.
7.
The improvement of the organizational capacity of each school requires both a clear
communication line among the actors and improved group work. The circulation of
information is a necessary condition to solving problems; this also requires that
decisions be taken collectively. It is therefore essential that the largest number of
actors be involved from me outset, that a priority be established as to what are the
most important tasks, and so on. This requires, in the first phase, a good diagnosis of
how the school operates.
8.
Any school reform should be conceived globally and not piecemeal; it has also to
involve the institution as a whole and consider all its objectives and its functions.
Moreover the school should have the capacity to innovate built into its design and
organization.
9.
The environment of the school should be a favourable one and this requires
transparency, simplicity and the possibility to implement any proposed change.
10
Managing schools for educational qualify and equity:
finding the proper mix to make it work
10.
School-based review (i.e. evaluation) by and for the major actors of the school is
considered as a necessary condition for improving the operation of the school. It is a
very important step in the introduction of any school-based management reform.
In summary, the main characteristics of school-based management which assumes
heavy devolution of authority and governance to the schools, can be described in three
words: autonomy, participation and self-monitoring. Promoters of school-based
management assume that (i) these characteristics - autonomy, participation, and
self-monitoring - are compatible with each other and (ii) that there are mechanisms for
reconciling them with the needs and constraints of operating an overall educational system
in a coherent fashion. In the last Sections of this paper, I shall address these assumptions.
V.
Learning from experience
Autonomy, participation and self-monitoring are intimately interlinked features of
school-based management. Autonomy - an issue of governance - supposes co-operation
between actors, the key to participation, and adequate management structures (budget,
personnel, curricula), a pre-requisite for self-monitoring. Participation - also an issue of
governance — requires a clear perception of the tasks of the institution in which autonomy is
exercised, and adequate communication channels and information systems among the actors
involved, which is a central aspect of self-monitoring. Finally, self-monitoring cannot be an
end in itself but serves to support the capacity of the school to operate autonomously and
provide the required feed-back of information to allow meaningful participation.
Although this set of arrangements is conceptually reasonable, experience shows,
however, that a number of problems and tensions appear, when applying the school-based
management approach with a view to improving efficiency and equity of schools. These
relate to the difficulty of reconciling autonomy, participation and self-monitoring.
Firstly, it should be borne in mind that the school is a human organization. This
human dimension is very important for an understanding of the quality of schooling and the
quality of learning which is given in the school. As autonomy and participation imply, in
essence, changes in governance and in the distribution of power among the main actors of
the educational system, they are bound to generate conflict and competition. A few
examples illustrate this argument:
•
Decentralization has often suffered from pressures and obstacles from the central
office, resulting in disorganization of the system ; hence, in the name of participation,
central administration has been able to restore authority and control over the schools.
•
Autonomy has sometimes generated conflict between two concepts of management:
(i) management by the community and (ii) management by the government. A
typical case in point is the management of school buildings. In some countries,
school buildings arc financed mostly by contributions from the local community.
Who should decide ultimately on the norms and characteristics of the future school?
Is the community ready to invest in a project which would not remain under its
control?
11
HEP Contributions No. 8
As we all know, most reforms of education administration systems refer to
participation but rarely to autonomy. Even in the most advanced systems of
devolution, the State provides very little autonomy to schools in the three key areas
of governance: (i) budget, (ii) staff and (iii) curriculum.
Secondly, because schools are human organizations, human resource conditions
— including capacity for management, collaborating in decision-making and sharing and
using information -- are determinant factors for successful school-based management.
Unfortunately, in many countries the conditions of human resources are poor and
inadequate. In this regard, the active participation of the different actors in the process
should not be neglected. This concerns the principals or headmasters, the teachers, the
parents, the pupils and the community surrounding the school.
More specifically, the role of the principal or headmaster should not be minimized.
The principal is the focus of authority in the school and the crucial link with the outside
world. The success of a participatory project depends very much on the attitude of the
principal, his readiness to implement a reform, his managerial capacity and his ability to
mobilize other actors within the school (teachers, parents,...). The quality of education will
therefore depend on the nature of the leadership given by the headmaster, in other words, his
ability to control, direct and guide teachers. Studies have shown that there is a strong
correlation between schools with the highest performance and the quality of the headmaster.
For instance, a study on Korea shows that, when headmasters feel they have too much
responsibility and very little autonomy and that they are spending too much time in meetings
and not enough on academic business, the implications for the schools are very negative.
Another study on Hong Kong shows that headmasters consider that a major obstacle
to in-service training is the increase in the workload of teachers. The same study shows that
the attitude of headmasters who stick to a centralized policy of management without
encouraging participation of teachers generates a sense of rejection on the part of the
teachers, lower motivation and a lack of interest and involvement in improving the school.
The participation of teachers in school management has, however, both positive and
negative attitudes. On the one hand, the teacher can help the headmaster in his task of
directing the school, designing the programme of studies and in decision-making.
Participation of teachers and the exchange of information between teachers and the
headmaster as well as among teachers have helped improve the quality of teaching. This
idea was developed by UNESCO in its regional programme for Asia and the Pacific. On the
other hand, increased participation by teachers may be detrimental to the quality of teaching
because the time devoted to academic activities may be reduced.
It is also fair to say that, in many developing countries today, most teachers are
underpaid and have to work under very adverse economic and professional conditions. In
these circumstances, it is important to note that many of them are not motivated and a high
absenteeism rate is a typical pattern in many countries. The question which one can then ask
is do teachers really want to have more responsibilities when simply carrying out their own
traditional tasks poses problems. Some countries try to address this issue by establishing
incentive systems. This is the case in Thailand.
12
Managing schools for educational qualify and equity:
finding the proper mix to make il work
The participation of parents in the life of the school is dependent on many factors:
the level of education or training of the parents, especially of the mother, the kind of
commitment they feel towards the school and the possibilities they have of participating in
the life of the school. The case of Escuela Nueva in Colombia shows how parents can be
integrated into the life of the school and be involved in the processs of children's education
and training. According to several evaluations, the Escuela Nueva approach has many
advantages. Firstly, it has enabled the teaching content to be enriched. Secondly, parents
feel more concerned about the development of the school and that of their children. Thirdly,
the institution becomes a place for an exchange and discussion of educational matters
between the various actors of the system.
Another study on Indonesia shows that the social and economic conditions of the
parents have great influence upon the level and type of assistance given to the school. The
same study shows that, although parents are not always available to participate in the social
life of the school, they are ready to contribute financially to the school. In this connection,
the experience of many countries shows that the 'easiest' way of making parents participate
in the life of the school is to get them to participate financially.
The role of the pupils has to be defined because they are the fundamental actors of
the educational process. The experience of Escuela Nueva shows that, when more advanced
students help the teacher in his task, they can work in groups which helps develop a sense of
responsibility; they thus become partners in the whole teaching/learning process of the
school. This motivates both the children who are active learners and those who are active
teachers, thus increasing the rate of school success. In some cases, especially in one-teacher
schools, the participation of pupils has reduced the disparity in performance between
children.
An interesting example in a very specific case is the programme 'MINDSACROSS'
in Uganda which was introduced for textbooks and in which children arc involved in the
preparation of school textbooks.
Finally, the community is another factor in improving quality, by strengthening the
linkages between the school and the social, economic and cultural milieu of the children.
The relationship between the school and the community will depend very much on the type
of social relationships prevailing in the country concerned. In a closed and hierarchically
segmented society, it will be very difficult to establish participatory relationships between
the school and the community. Relations will be 'closed' and not very proactive, since the
community would either identify with the school which becomes iti school, or it considers
that this school belongs to the government and thus generates the same 'respect', 'fear' and
'expectations' felt vis-à-vis all exogenous institutions. On the other hand, in more open
societies, interaction between the schools and the community is easier and more likely to
produce highly beneficial results for the school.
Incidentally, what has just been said about the interaction between the community
and the school, can be generalized to apply to the other major actors of the education system.
The basic question can be formulated in both a negative and positive way. To take the
negative formulation first:
13
¡IEP Contributions No. S
"Is school-based management and its assumption about autonomy,
participation and self-monitoring, applicable in societies which are highly
segmented, lacking a tradition of participation in public life, with or
without high political instability and where a large proportion of the
population suffers from illiteracy, marginality, poverty and hence are
prevented from being involved in civil life and more specifically in the
business of the school!"
In a more positive tone:
"In increasingly complex societies, is there not a serious danger of keeping
education under the sole control of the 'technicians' in education? Is not
one of the important challenges for the professsion the search for the most
propitious climate for participation and involvement of the majority of the
population in educational matters!"
Admittedly, without reference to values, cultures, traditions and to the systems for
regulating societies, it is very difficult to see how it will be possible to address the issue of
participation in the life of the school through changes in management, whether these be
decentralization, establishment of adequate organizational structures, information systems,
training of managers... School-based management may produce greater quality and
efficiency in education but for such an approach to work effectively, it needs to be designed
bearing in mind the specific conditions of the societies in which it is to be applied.
VI.
Moving towards a hybrid administrative system
The school-based management approach has, however, to be reconciled with the
need to operate coherently the national educational system. Focussing on improving the
school as an organization does not mean mandating central policies and programmes that try
to pressure or intimidate schools to improve. Nor does it mean eliminating all rules and
regulations, leaving schools adrift in a sea of autonomy.
The challenge is to find a balance between these two extremes, to carefully delineate
and distribute authority and responsibility throughout the system, maximizing the use of
human and financial resources at each level with the ultimate goal of improving student
achievement.
In a recently published book, I have argued for the need to move towards a hybrid
system of administration and management with a clearly defined division of labour between
the various levels.
I have suggested that the responsibilities of the ministries and local education
authorities be more clearly defined. The definition of educational objectives addressing
policy issues, establishing norms and standards of quality, and regulating the overall
education system could be entrusted to this central administration. At the local- level or
school-level, actual implementation and management activities should be entrusted to the
actors involved (users and consumers of education, and in particular the headmasters and the
14
Managing schools for educational quality and equity:
finding the proper mix to make it wort
teachers). The intermediate level would be responsible for support and backstopping
activities, communication channels, feedback, and staffing.
Having already discussed the conditions for adopting a school-based management
approach, allow me to comment on the central and intermediate levels.
At the central-level, the functions of setting educational policies, regulations and
quality control, as well as the provision of financial resources, require special organizational
structures, and, in many cases, radical reforms of existing cumbersome administrative
machineries, a clear definition of tasks, adequate staffing policies including training,
appropriate information systems for monitoring policies and proper evaluation of
achievements. (See the Appendix for a description of a recent innovation in Sweden).
Urgent attention should be given to investment in these priority areas.
At the intermediate level, perhaps the most important challenge before us is to
reconcile the dual responsibility of the organizational structure which is both administrative
and professional. While intermediate structures tend to be predominantly staffed with
ex-teachers, i.e. professionals, they also tend to devote more energy to administrative
support. Proper incentives should be designed so as to encourage staff at the intermediate
level to discharge their professional responsibilities efficiently. At the same time, another
challenge is to transform the intermediate level into becoming, from the administrative and
professional point of view, a two-way comunication channel between the centres and the
schools and which has to be both top-down and bottom-up. Without the latter, neither the
centre nor the schools can manage effectively.
Finally, responsibility at the intermediate level has to be proactive in the sense that it
should resist the traditional tendency to behave as a one-way passive transmission channel
from the centre to the schools.
This again will require clear definition of tasks, adequate staffing including training,
reliable information systems which are relevant at the intermediate-level and different
reward structures. Priority should be given to these areas of concern.
It is interesting to note that both centralized systems, such as the French, and
decentralized systems, such as the British, have tried during recent years to move towards
what might be called hybrid administrative systems. For example, France adopted a law on
decentralization about a decade ago and school-based management experiments called
'projets scolaires' were started in the 1980s. For the time being, it seems that both systems
are facing severe problems and difficulties. The prerequisites for an adequate balance
between centralization, decentralization and localization have not yet been completely met,
neither in France nor in the United Kingdom, and it is certainly too early to judge these
experiments. In fact, the results and the applicability of similar experiments in other
countries will depend on how well they are adapted to those countries.
What they do suggest however is that regulations must be clearly laid down, known
and understood by all the actors involved. The government and the schools must be familiar
with and understand the allocation formula. There must be unambiguous demarcation as to
which activities shall be under the responsibility of the school, which shall remain with the
15
HEP Contributions No. S
central-level and which will have to be entrusted to the intermediate-level of administration.
The priorities set by the government must be known to all, and the initiatives and freedom of
action of principals in the management of their schools must be plainly defined.
Some developing countries have tried to go beyond the rhetoric of participatory
planning and administration and have experimented with specific new rules and regulations
in areas such as building and nutrition, splitting responsibility among the central
administration, the intermediate authorities and the schools, communities and parents'
associations. Partially implemented hybrid administration has been particularly effective in
some cases.
Although it is too early to judge and make a definitive statement, we would suggest
that, all things considered, hybrid systems which gradually reallocate responsibilities among
the central systems, the local administrations and the users appear the most attractive on
grounds of both cost and efficiency, if they:
• establish diversified information systems adapted to the needs of all actors;
• clearly specify and diffuse the rules and regulations and the criteria for incentives;
• develop administrative and managerial capacities through recruitment and
training;
• redirect resources which are adequate to finance the above.
Most of the developing countries start out with a fairly centralized administration and
moving towards hybridization will be slow and difficult. No planner is eager to incur the
displacements or to enter into the long negotiations which are necessary to adapt regulations
and to redefine duties, ranks and power bases. Where elementary and secondary teachers'
unions exist, these are forces to be considered and the support and enthusiasm of these
essential elements in the business of education must be enlisted if the sector is to run well.
At the tertiary level, there have always been institutions which enjoy wide and solid
autonomy and they have experienced very little interference in their routine management
Today, however, many of them also suffer more or less serious problems of inefficiency.
New sensitivity to economic cycles has made them particularly vulnerable. Uncontrolled
expansion in fat years is followed by drastic adjustment in facilities, staff and management
of student flows in lean years. Thus some kind of hybridization introduced gradually is seen
as a valid possibility at all levels of the sector.
VIL
Concluding remarks: a prologue
In the preceding paragraphs, I have amply suggested that there is no simple answer to
the question of improving school management If the system of centralized structures has
failed to serve the evolving needs of expanding education systems, they did help in the early
days of quantitative educational expansion and they are still essential in determining
policies, reducing disparities and in quality control. If decentralized structures are attractive
especially when decentralization leads to devolution of authority to schools, the experiences
of school-based management suggest: (i) the need for human resource development;
(ii) accepting co-ordination mechanisms at the central level; and (iii) tensions and conflicts
which can not be addressed independently of the social conditions of the countries
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Managing schools for educational qualify and equity:
finding the proper mix to make it wort
concerned and without reference to the central and intermediate administrative levels.
There is therefore no quick solution, no simple formula suitable for all countries. Each
society has to design its own proper mix to make things work. The challenge for
policy-makers is to strive, in a pragmatic way (trial and error), towards the establishment of
such a mix. In doing so, they should not overlook the final aim of such a change. It is the
improvement of quality and equity in education.
In this regard, we should remind ourselves that there is a profound difference in
production culture between the manufacturing industries and the services; this stems from
the simple fact that the former handles inanimate raw materials and the latter human beings.
In most services, the outcome is strongly dependent upon the active participation of the
client in the service process, whether the client is a pupil, a patient, a passenger, or a
customer. The client's experience of the quality of the processes in which he or she is
involved may be as important as the final product and also strongly influences the final
product. This means that economic theories and concepts of productivity and efficiency as
developed in relation to manufacturing industry have little relevance and may be quite
misleading in service sectors. Moreover, unlike manufacturing industries, services including
education often function at their best when the processes are open-ended and involve all
actors. This means that when searching for the proper mix, in "dosing the hybrid structure",
the share of partnership and participation should keep its significance in all sectors.
17
Appendix
A new national education authority in Sweden1
A new national education authority replaced the National Board of Education in
Sweden on 1 July 1991. The background is a decentralization of the Swedish education
system. The municipalities will take the full responsibility for ensuring that schooling is
carried out in accordance with the national goals and guidelines and within the framework
laid down by the Parliament and the Government This implies full employment of head
teachers and teachers on own contracts; own responsibility for inservice training; own
decisions about the use of the state grants.
The administrative duties of the former Skolöverstyrelsen (National Board of
Education) and of the 24 County Boards of Education have disappeared. The new National
Educational Agency with eight regional offices has two important assignments:
(i)
A continuous evaluation of schooling in Sweden ; this implies the development and
operation of a nationally coordinated and comprehensive system of supervision and
evaluation, comprising the results of schools and their organization and efficiency.
(ii)
Development work: producing a basis for and proposals for the development of
education in schools in general and for a long view, and within specific areas and a
short term. Promoting educational research belongs to this assignment. And also the
contribution to the implementation, by organizing adequate inservice training for
centrally determined reforms.
Regarding the evaluation task, the National Educational Agency is expected to act
independently from Government and Parliament. The development task has to be done in
accordance with central objectives and guidelines and, in some cases (for example, the
development of a new syllabus) on a specific request by the Government.
The budget of the National Educational Agency is 50 per cent of the budget of the
former National Board of Education. One third for headquarters, one third for staff in the
eight regional offices and one third to contract experts for projects.
1. Source: Consortium of Institutes for Development and Research in Education in Europe, CIDREE Brief,
No. 3, October 1991
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Bibliography
Hallak, J. 1990. Investing in the future: setting educational priorities in the developing
world. Paris, UNESCO/HEP, Pergamon Press.
Lockheed, M.E.; Verspoor, A.M.; et al. 1989. improving primary education in developing
countries: a review ofpolicy options. Washington, The World Bank.
Moegiadi. 1991. Research report on community participation in education at the primary
school level in Indonesia. Paris, HEP, Internal document.
Namaddu, K. 1991. Collaboration for educational change: improvement of basic
education through MINDSACROSS: a school literacy project in Uganda. Paris,
IIEP, Internal document.
Paixao, M.B. 1991. 'School-based management' et sa mise en pratique dans les pays
en voie de développement. Paris, HEP, internai document.
Schiefelbein, E. 1990. Redefining basic education for Latin America • lessons to be drawn
from the Colombian Escuela Nueva. Paris, IIEP.
Shaeffer, S. 1991. Collaborating for educational change: the role of parents and the
community in school improvement. Paris, HEP.
Wheeler, C ; Chuaratanaphong; Pragog Kunarak. 1991. Improving basic education through
collaboration and co-operation: school clusters in Thailand.
19
International Institute for Educational Planning
Institut International de Planification de l'Education
Iqn Denison, Deputy Chief Publications
Tel (direct Une): (33) (I) 45 03 77 46
Internet: i.denison@iiep.unesco.org
Ref.: IIEP/Pub/98.123
Dare: 3 June 1998
Dear Mr. Bar-Elli,
Thank you for your letters of 17 March 1998 concerning the translation into Hebrew of the two HEP
booklets "The school restructuring movement in the USA" and "Managing schools for educational quality
znd equity". The HEP is happy to grant authorization for the translation and dissemination of these
documents under the following conditions:
i)
ii)
iii)
iv)
That the UNESCO copyright notice appears in the translated version. The name and address of the
Institute should figure on the same page as the copyright;
That 'International Institute for Educational Planning' with the UNESCO and HEP logos appear on
the cover page and that the same should appear (with or without the logos) on the title page of the
translation;
That there is mention that the Hebrew edition has been translated from the original English HEP
booklets (presuming that you are translating from English) giving the original tide in English;
That HEP receives six voucher copies of each booklet translated into Hebrew.
Your correspondence mentions that you will be distributing these translations free o f charge to
Israeli principals participating in your School-Based Management programme. I would be grateful if you
could inform me as to how many copies are to be distributed in this manner.
Let me thank you again for your interest in HEP publications. If you have any further questions
relating to these translations please do not hesitate to contact me. I look forward to seeing these two HEP
booklets published in Hebrew in the near future.
Yours sincerely,
\
Ian Denison
Deputy Chief, Publications
Mr. Daniel Bar-Elli
Center for Educational Planning and Policy
Ministry of Education, Culture and Sport
34 Shivtei Israel Street
Jerusalem 91911
Israel
ID/If
IIEP Director/ADG
Ms Cohen-Tamondji, Permanent Delegation
Mr. Zevulun Hammer, Israel National Commission for UNESCO
Chief, HEP Documentation Centre
7-9, rue Eugène-Delacroix,
75116 Paris, France • Cables: Eduplan
Paris
International Tel: (33) 1.45.03.77.00 • Fax: (33) 1.40.72.83.661 IfatìonalTel: 01.45.03.77.00 • Fax: 01.40.72.83.66
20