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The Educational System of Spain: From Franco to Freedom

By Patty Blake
CI 706 Multicultural and Diversity Issues

July 21, 2011


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The Educational System of Spain: From Franco to Freedom

To understand and appreciate the current educational system in Spain, it is important to take a
retrospective look at the political and social influences, which have played a pivotal role over the past
few decades. Amidst the backdrop of social transformation and political polarization, it is no wonder
that the school system in Spain has a history of instability. Some like Miclescu (1994), believe that all
political conflicts have encompassed to some degree, conflicts over education. She explains that the left
criticizes the right for the desire for government-funded schools while the right scolds the left for a
desire to institute a unified school system. Those conflicts have helped to shape the educational system
, which has undergone a slow but steady transformation punctuated by both success and failure.
Following the Spanish Civil war, General Francisco Franco ascended to power as dictator and
ruled the country from 1939 until his death in 1975. Under Franco, private Catholic schools enjoyed an
educational monopoly, while meagerly trained teachers and a considerable lack of resources epitomized
public schools. The pedagogy of pain and effort infused all education (Calvo, 2006, p. 408). According
to Rowlings (1997), Franco viewed himself as the savior of Spain and ruled with an iron fist. As
dictator, he sought to restore Spain to a more traditional structure of government idealized in a strong
monarchy supported by military forces and the Roman Catholic Church. Franco declared Catholicism as
the official state religion and used the church to carry out his policies. In return, the church enjoyed tax
exemptions and government subsidies. By maintaining a marginal focus on the students not enrolled in
private schools, the state retained only a negligible role in education (Bernal, 2005).
Reform has lead to cooperative models of education, better-trained teachers, and a more
unified curriculum based on objectives and supplemented with content-specific textbooks. Reform has
also ushered in longer compulsory attendance, free public education beginning with preschool, and the
freedom of parents to choose their childs school (Bernal, 2005; Escardbul and Villarroya, 2009;
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Miclescu, 1994; Rowlings, 1997). Other constructive developments include the establishment of
autonomous communities with control over their educational systems and the modernization of
university curriculum including a credit system (Rowlings, 1997). With an almost trial and error style of
wisdom, laws were proposed ,written, and revised in rapid succession over the past several decades.
The current system, as it stands, can be traced back to significant policies and events starting in 1969.
Figure 3 illustrates a time-line to facilitate understanding the significant laws, most of which are
designated by similar acronyms.
An Overview of Educational Histories, Structures, and Policies
A 1969 government report known as the White Paper (Libro Blanco) defined the education
system as a collection of disjointed units, which delivered inappropriate, inadequate, and disparate
content to Spanish students. The state provided an academic education for only a small number of
students, a minimal education for some students, and no education for an estimated half a million
students (McNair, 1981). The government, recognizing a legal obligation as well as an economic need,
began reform efforts prior to the death of Franco. The General Education Act (Ley General de
Educacin- LGE) of 1970 established regulations for the school system as a whole.
Industrialization, rapid social and economic changes, and political tensions made educational
reform essential. LGE sought to eliminate the internal inconsistencies caused by previous partial and
inadequate reform attempts. Two critical changes occurred because of this law. First, compulsory
education in a unified and unbiased system was mandated for the entire population of Spanish youth
ages 6-14. Second, LGE marked the end of the perfunctory role in education assumed by the state. The
government, out of necessity, became more active in the planning and evaluation of education in all
levels and at all establishments (Eurydice, 2010).
Profound changes in all areas---social, economical, cultural, and educational marked the
transition from dictatorship to a parliamentary democracy. Aligned with the pervasive air of change,
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policies developed at an intense pace beginning with the 1978 Spanish Constitution. Written after
Francos death, and during a time characterized by uncertainly and instability, it was an attempt to reach
a consensus on important matters. For education, two fundamental principles were established:
freedom of education and compulsory schooling for all Spanish students. The objective was to unite the
parental right of school choice with the promise of a free public education. To meet this goal, state
subsidies for private education, the foundation for the development of the concerted school of today,
were established by 1985 (Escardbul and Villarroya, 2009).
According to Micesclu (1994), The Spanish Constitution began the process of separation
between church and state by stripping from the Roman Catholic Church the long-held status of national
religion. While maintaining a shared control for curricular content, the Constitution also set in place a
transfer of authority over education to designated autonomous regions. Changes were implemented
incrementally and gradually and like many transformations, were subject to growing pains.
The next attempt at reform was developed through the Law of University Reform (Ley de
Reforma Univeritaria - LRU) in 1983. LRU brought major changes to the university system by
restructuring and updating curriculum, information, and programs to reflect the demands of a more
modern society. Flexibility was given to degree requirements, programs of studies were streamlined to
counteract high dropout rates, and a credit system was established (Rowlings, 1997).
The 1980s was an active decade for educational policy. With the Organic Law on the Right of
Education (Ley Organica del Derecho a la Educacion LODE) in 1985, the Spanish education system
became increasingly decentralized. The government took a regulatory role for upholding the
Constitutional statues, primarily retaining the overall responsibility to establish a minimum curriculum
and to guarantee students the right to a free and public education. The transfer of authority that began
with the Constitution resulted in the emergence of seventeen solid autonomous communities with day-
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to-day control over the schools in their region while local government agencies and individual schools
had a very limited role in education (Teese, Aasen, Field, & Pont, 2006).
The adage, there is strength in numbers might be used appropriately to describe Spains entry
into the European Union in 1986. This move brought increased markets and greater stability in the form
of a fiscal union with a single currency allowing for the ease of trade between Union countries.
Membership also provided an impetus for Spain to improve education to meet Union standards. Entry
into the union meant that Spain would be not only compared to other Union countries, but also
expected to conform to the universal standards embraced by those countries.
Bernejo (2006) reports that the Organic Law for General Organization of the Education System
(Ley de Ordenacin General del Sistema Educativo LOGSE) of 1990 not only embraced and reinforced
all previous laws , but also incorporated in the system a focus on students with special educational
needs, a move necessitated by and interrelated to the increasing levels of student diversity. LOGSE
restructured the education system on two levels: compulsory and noncompulsory. Non-compulsory
education included preschool and post secondary education. LOGSE established compulsory education
as primary school for students ages 6-12 and secondary education for students 12-16. All compulsory
education was state funded and the mandatory requirement for attendance was extended to age 16
(Bernal, 2005). Figure 2 at the end of this paper provides a summary of the educational structure. In
addition, Sedgwick (2002) notes that although LOGSE did mandate the availability of religious instruction
in all schools, that instruction was now voluntary.
The Organic Act on Participation, Assessment and Administration of Educational Establishments
(La Ley Orgnica de Participacin, Evaluacin y Administracin de Establecimientos Educacionales -
LOPEG), implemented in 1995, was developed following the LOGSE mandates for special needs
education. LOPEG defined the population of students with special educational needs as not only those
students with physical and emotional needs but also those with educational needs due to
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underprivileged social or cultural situations. Special education assisted those with physical and
emotional needs, while compensatory programs provided services for students identified as having
educational needs (Bernejo, 2006).
The Organic Law of University Reform (Ley Organica de Universidades - LOU) arrived in 2001 in
response to pleas from the European Union. The goal was an extensive reorganization of higher
education to align with the Bologna Declaration that standardizes university education within the Union.
LOU however, generated tremendous controversy throughout Spain. Adamantly claiming that the
overhaul was needed to improve the quality of education, the government ignored widespread protests
and refused to withdraw or amend the law (Sedgwick, 2002). Programs that were streamlined earlier
now faced expanding requirements as the government attempts to make university degree programs in
Spain more comparable to those in surrounding countries.
The Law on the Quality of Education (Ley Orgnica de Calidad de la Educacin - LOCE) of 2002
not only reinforces and builds on the main points of education law but also expands those laws to cover
special needs and language learning programs. LOCE determined that education must promote the
integration of foreign pupils. The government developed programs in mainstream schools for those
students who do not speak Spanish. These bridge programs encompassed classes and facilities for
immigrant students allowing them to study Spanish before moving to ordinary classrooms (Boyd, 2009).
LOCE extended the benefit of free education to all foreign pupils. Because many poor families, often
immigrant, could not afford childcare, LOCE also provided free preschool to children age 3-5. This
measure highlighted the significance attached to education and has been manifested in the rising
enrollment rates for voluntary preschool participation (Teese et al., 2006).
Finally, the Organic Law of Education of 2006 (Ley Orgnica de Educacin - LOE) extended
special education laws to allow for inclusin opportunities for special needs students. LOE allows
students with special needs to attend school in separate facilities or to receive education through
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inclusion programs. Other accommodations in the law call for modification of facilities, adaptive
curriculum, use of specialized teaching materials, reduced class sizes, and special programs for late
coming students (Special Needs Education, 2009).
To prevent an overrepresentation of special education students within one school, the country
sought to implement changes in the way special education students were distributed. Escardbul and
Villarroya (2009), note that the reform law of 2006 also required public administrators to make room for
the acceptance of proportions of students with special needs in each public and concerted school. This
requires administrators to set aside a number of spaces for these students until after pre-enrollment,
prohibits obligatory contributions from families, bans schools from accepting money from families
receiving cost-free education, and increases size class up to 10% to allow late joining students.
An Overview from the Perspective of a Spanish Students Experience
Over the course of several weeks, I interviewed Mrs. Elisabet Morgan, a Spanish teacher at Poca
High School who was born and educated in Spain. Elisabet began her educational journey as a three-
year-old preschool student in 1973 when Franco was still in power and rudimentary changes were on
paper but not yet fully in practice. Private Catholic schools, so predominant at the time, provided her
education.
All schools in Spain, public and private, are in session from mid September until mid June. The
school day begins around 9 a.m. and concludes around 5 p.m. Each class is about an hour long and the
lunch break is between 2 and 2 hours each day. Schools close for all national holidays and due to the
large Catholic population, students enjoy an extended Christmas break.
According to Elisabet, old remodeled mansions provided accommodations for many private
schools and most did not have lockers, gymnasiums, or cafeterias. Students did not pick their schedules;
instead, they were in self-contained classrooms at both elementary and secondary levels. In secondary
schools, teachers rotated from class to class. Schools provided no detentions or in-school suspensions.
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If a student misbehaved in school, the teacher notified parents who usually handled discipline problems
at home. Some parents, however, did elect for corporal punishment at school and provided written
permission for teachers to use it as a disciplinary measure. Formal Physical Education classes did not
exist but students, as part of a humanities course, occasionally studied dance, or gymnastics. As an
alternative, all students went out at recess---cold, wind, rain or shine to participate in physical activity or
even grueling and strenuous exercises. Class sizes, generally around twenty students, tend to be
smaller in Spain especially in the private sector. Failure of two or more classes denies promotion and
requires the student to attend tutoring in the summer. Students take an exam at the conclusion of the
summer remediation and those who pass the exam advance to the next level while those who fail must
repeat the grade. When Elisabet was a student, attendance was mandatory until the age of 14. Now, all
students are required to attend school until the age of 16. However, some students can receive a
permit that allows them to leave school earlier but they must present evidence of dire circumstances.
If, for example, the father of the household died and the student needs to work to help support the
family, the government would probably grant the permit.
Education is highly valued in Spain. Family involvement levels are high and most evenings
homework is a family activity where all work together to help one another. According to Elisabet, the
Spanish consensus is no education equals no future. The value of education and respect for teachers
varies according to the district, however, and in public schools, those levels tend to be generally lower.
Based on her interview, there is no doubt, however, that her family highly valued education.
Her parents thorough distrust of the government- administered public schools, which they viewed as
wholly inadequate, prompted them makes financial sacrifices in order to enroll their children in private
school. Elisabet claimed that only the poorest of the poor and immigrants go to public school and you
only went to public school if there was absolutely no other choice. She estimates that approximately
75-80% of the students in Barcelona attended private school when she was a student.
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For Elisabet, school was like family and in the closely-knit self-contained classrooms, everyone
knew everyone else. Otherwise, she describes the school environment as one she considered typical for
most students. Peer pressure, a ubiquitous feature of adolescence was present but in levels much lower
than she sees in the United States. Students engaged in some gossip and teasing but Elisabet cannot
recall true bullying. In addition, school violence was minimal and she knows of no reported school
shootings. Because it is common for families to serve wine at family dinners, alcohol is not taboo. The
drug of choice was marijuana but very few students abused drugs. Only those from the more influential
and upscale families could afford drugs like cocaine. Elisabet comments that even so, students would
not dare use drugs at school or report to school under the influence. Today, she observes more drug
use among youth in Spain but not to the extent that exists in the United States.
When she began school, Spain was still an official Roman Catholic nation and religion classes
were required in all schoolseven public schools. School prepared all students for First Communion
and some for Confirmation and Elisabet attended religious education classes twice a week. Although
students were not required to celebrate mass during school, monthly confession was obligatory. She
acknowledged that while most people do not look forward to the rite of confession, the students at her
school did and viewed it as a school-sanctioned time to skip class. For young students, Elisabet jokingly
recalled, We were very sinful. We all had very long lists of sins and took a great deal of time to confess
those sins.
Elisabet shared a few of the more memorable events from her school experience. One of her
earliest memories was receiving a cone, a conical piata filled with candy and knick-knacks and
traditionally given to all students on the first day of school. She also recalled breaking her leg and her
father coming to school daily for three months to carry her up and down the stairs while the leg healed.
There were no accommodations for those with disabilities, even temporary ones. She recalled with
fondness, the weekly trips to the community swimming pool, ski trips, and other special activities. One
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of the more anticipated events was the annual Concert Day, which consisted of a Christmas Symphony
broadcast from Vienna and preceded by a parade. Elisabet compared this to the Annual Macys parade
in New York. Students gathered to watch the parade and the symphony on television during the school
day. They eagerly awaited the event not just, because the symphony was so beautiful, but also because
the tradition provided a much needed break from the academic rigor of the classroom.
While most of her memories were pleasant, one in particular was not. Her last year in high
school was particularly demoralizing. Abrupt and unforeseen circumstances forced the closure of her
school. Elisabets only alternative was to enroll in a different and much larger school. The classmates
she had sat beside for more than a decade were scattered and the new school with a student body of
approximately 1,000 was four times larger than any school she had ever attended. The adjustment was
difficult. The sense of family was gone, and in the clinical, yet chaotic, environment, she floundered.
Although she was an extremely intelligent student, the trauma of adjusting to such an impersonal
environment was so debilitating that she ended up failing that year. She returned the following year,
better acclimated and more mature; repeated the grade and earned all As.
The sentiment that You are in school to learn; not play was repeatedly stressed by Elisabet
during our interviews. She describes the Spanish system as lacking in fluff which she defined as prom,
sports, band, and other nonacademic endeavors. The curriculum places a heavy emphasis on language
and requires all students to begin the study of English in the first grade while many other languages are
offered as electives. Underlying currents of arts and humanities permeate academic areas. The
recognition of great artists, composers, and philosophers along with an understanding of their
contributions to culture and society is an implicit expectation.
Questions about the teachers provoked a stern and rather serious facial expression followed by
comments obdurately punctuated with various points of emphasis. With a changed demeanor, Elisabet
shared, They were all very strict! You didnt dare sass the teacher. You feared the teacher. Teachers
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would give you a knuckle to the head! Her description of the typical teacher reminded me of the
Trunchbull, a ruthlessly stern and unyielding principal in Roald Dahls book, Matilda. In the book, the
Trunchbull would discipline students by locking them in a closet known as the chokey. In Elisabets
situation, discipline did not include students going to the chokey; instead, they went through the ring.
This phrase was coined because the principal, who wore a rather large ring on her finger, slapped
students hard enough to leave ring marks on their cheeks. Society considered corporal punishment not
as child abuse but as a tool to assist the teacher in the job of maintaining the order and discipline in the
classroom that would keep the students focused. Very small classes allowed teachers to share
occasional stories related to the subject, however most teachers lectured all the time. The teacher
talked and expected students to take notes. Teachers maintained lofty expectations for students, took
their job seriously, and conducted themselves in a professional manner. Teachers would never have
worn jeans or shorts in the classroom, as it would demean the entire profession. There was no time for
games---not even educational ones. Students would play tag or jump rope during recess but there was
no down time during class. Television was under government control and highly censored, with the
exception Concert Day, students did not watch television programming in school; not even educational
programming. Elisabet claims that students were always on task reading, writing, listening, or reciting.
Elisabet has witnessed some dramatic changes in education since she was a student. Today,
she notes, Spain is completely different from when I attended school there. Years ago, students had
to take a test when they turned ten and if a student failed the test, school was over. Today, all students
must go to school at least until the age of 16. The majority of her school experience was during the time
of government transition immediately following Francos death, which was a tumultuous and uncertain
time in Spains history. She spoke at length about the educational system under the former dictator and
in the first decade following his death. She claimed the public schools were a joke in which the
country in general was unaware to due to strict government censoring. Although the regime had
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appointed Juan Carolos as successor to Franco, Carlos, did not follow in the dictators footsteps.
Instead, the government traveled gingerly in a new direction, often taking a few steps forward, followed
by a step backward. When Elisabet was a student, the schools did not provide any support services.
Services such as counseling or tutoring were private after school matters provided as the familys
expense. Today, public schools provide some support services, especially for those students with special
needs.
According to Escardbul and Villarroya (2009), the government did not establish private school
subsidies in law until 1985 and Elisabet noted that it took some time for those subsidies to take effect in
every district. She graduated from high school prior to the establishment of some of the more
significant laws, and at a time when the system referred to secondary education, as Bachillerato
Unificado Polivalente, or BUP. An additional college preparatory year of secondary education known as
Curson de Orientacion Universitaria, or COU was available to student who earned passing scores on a
state examination required at the conclusion of BUP. Elisabet completed COU at Colegio Bofill in 1987.
Her parents paid the full cost of her education including tuition, books, and supplies.
General comparisons between Spanish and American systems
One of the most significant differences between the Spanish and American school systems is the
prevalence of three distinct types of schools in Spain: Public, Public Concerted, and Private. Figure 1
provides a comparison of school types. Concerted schools, like charter schools, are private institutions,
which receive funding from the state; however, they must follow the same rules that govern the public
system. Heavily attended private schools, are virtually free from state control and more prevalent in
higher income regions and in areas where private schools, especially religious ones, have had a strong
tradition (Escardbul and Villarroya, 2009). The development of the three types of schools in Spain is the
direct result of the Spanish Constitution, which makes freedom of choice a right. The effect that this
freedom of choice has had on the school system is a contentious area of concern.
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Policies that promise parental choice have had the propensity to create social divisions that
result in greater educational inequalities by legitimizing the strategies of the middle class (Escardibul
and Villarroya, 2009, p. 680). In addition, Escardibul and Villarroya (2009) claim that immigration has
created an exodus of the middle class to concerted schools thus permitting parents to send their
children to private schools isolated from the influence of immigration. This has raised the concern of a
dual education system developing in Spain. Bernal (2005) concurs and points to the market system as a
tool for continuing social divisions. He explains, The middle class and upper class go to private schools,
while the ethnic minorities, economically disadvantaged groups, and immigrants attend the public
sector (p. 779). He contends that the idea of private school being better than public school is a
common perception. While the United States does have private schools, the prevalence is not as
widespread and the perception of superiority is not as ubiquitous as it is in Spain.
Autonomous communities are another conceptual difference between Spanish and American
educational systems. Autonomous communities are similar to the departments of education for each of
the U.S. states, however, they have a much greater say in education. In 1978, the Spanish Constitution
gave the fundamental responsibility for education to autonomous communities (Rowlings, 1997).
The government has given so much power to the autonomous communities that Gibson and Carrusco
(2009) lament the fact that autonomous communities are not required to preserve or share student
achievement data. Comparatively, this would be the same as West Virginia not reporting student
achievement data to the United States Department of Education.
Although the United States has not declared English as an official national language, the country
is not responsive to developing multilingualism as a facet of American Education. In fact, many
Americans resent the increase in the use of Spanish due to the expanding number of Hispanic
immigrants across the country. Conversely, Spain considers multilingualism advantageous as evidenced
by the focus on foreign language and the fact that English is mandatory beginning in first grade (Gibson
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and Carrasco, 2009). At Poca High School, Spanish is the only foreign language offered to students and
even then, it is a requirement only for those students planning to enroll in college.
A proclivity toward the fine arts and an appreciation for all things cultural is apparent in a
Spanish education. Rowlings (1997) lists arts, culture, and foreign language as basic components for
both secondary and upper secondary levels of education in Spain. In addition, core classes required for
upper secondary education include courses in history, religion, foreign language, and philosophy (Teese
et al, 2006). Elisabet discussed the excited anticipation of Concert Day in her school when she was a
student. She also expressed her surprise at the number of students here who do not know works by
Chopin, Wagner, Monet, or even Van Gogh. Some could argue that the United States has maintained a
narrow and intense focus on core classes measured by standardized testing, often to the extent of
minimizing the fine arts curricula. Whatever the reason, there is a clear difference between the two
educational systems in terms of the amount of attention and value placed on fine arts and humanities.
The classroom might provide the most obvious differences between the two school systems.
Elisabet argues that the value of education in Spain, the level of parental involvement, and the respect
afforded to teachers is higher than that in the United States. Although these are subjective constructs,
the classroom-learning environment is more objective. Elisabets reference to a lack of fluff or
nonacademic courses and activities reflects the seriousness of education. Her comments regarding no
downtime, no educational games, no fluff, and a fear of the teacher, point to a very austere learning
environment typical of that under the martial regime.
The Franco regime distrusted foreign methodologies and this stance kept the nation isolated
and hindered curriculum development. Relying on the traditional encyclopedic model characterized by
lecture, routine, memorization, student passivity, and excessive discipline Franco managed to propagate
a curriculum dedicated to national identity and catholic idealism. Teachers did maintain notebooks,
which were a brief reference of what they had explained each day but not truly a guidance instrument
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like a lesson plan. Instead, the notebooks were another way for Franco to control the teachers activity
in the classroom, especially the ideological components of teaching (Calvo, 2006). Even though
Elisabets education began at the end of the Franco regime, her experience mirrors Calvos assertion
that, School like life itself, means effort, and sacrifice (Calvo, 2006, p. 408).
Unlike American schools where self-contained classrooms are common only at the elementary
level, Spain relies on self-contained classroom at all grade levels. Students remain seated and teachers
rotate from class to class---a practice indicating the teachers dominance. School as I remember it,
however, was much more participatory. Teachers did not view students as mere receptacles to receive
knowledge. We worked in groups, engaged in discussion, and enjoyed fluff activities like physical
education and watching Sesame Street or similar educational programs on television. We operated in a
much more free and democratic manner without the threat of corporal punishment. Teachers like
those that those Elisabet described were the exception here and not the norm.
The late 1950s marked the first attempts by Spain to break away from the isolation imposed by
Francos dogmatism and to adapt the educational system in ways necessary for the society to reach
levels of modernization required for economic survival. The use of textbooks in school is one of the
earliest examples of efforts toward a social and educational awakening. I cannot recall a time without
textbooks, which were grade specific. However, such textbooks in Spain did not appear until the early
1960s and even then, they were modified versions of the commonly used encyclopedias adapted to the
regimes requirements (Calvo, 2006).
Major Insights
The most significant insight I gained because of doing this project was the sad realization that I
do know very much about Spain! I hate to admit it but my knowledge of Spain prior to this project was
extremely limited. I knew Spain was in Europe, the capital was Madrid, the bulls run in Pamplona each
year, and that Antonio Banderas is a very handsome Spaniard who provides the voice of Puss in Boots in
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the popular Shrek movies. I did not know that Spain was under a dictatorship until 1975. While I did
know that Spain was predominantly Catholic, I did not know, that at one point, the government had
declared Catholicism as the official national religion. Even though I studied Spanish for four years in high
school, the teachers spent little to no time on the study of the culture or history of Spanish speaking
countries. As a conscientious honors student for most of my life, I have worked to broaden both my
knowledge and my mind. The realization of such ignorance was humbling. In the 21
st
-century learning
environment, this trend must change. We live in a global community and need to learn more about
those with whom we share resources and opportunities.
I learned about myself. I need to be more inquisitive and rather than make assumptions, I need
to seek out opportunities to learn about other cultures, countries, and beliefs. I need to broaden my
perspective and learn to understand things outside my personal experience, which serves as a filter and
frame of reference. Our world is diverse and learning about that diversity is essential to understanding,
appreciating, and cooperating with each other.
Reports and rumors of reports appear from time to time comparing the US to other countries
and making dire commentary about our deficiencies. I viewed Spain, a country in Europe, as holding
with the European tradition of multilingualism and an appreciation for fine arts. When I think of Europe,
my thoughts go to the Renaissance period and the Age of Enlightenment and I think of Shakespeare,
Michelangelo, DaVinci, Galileo, and Newton. Therefore, I assumed, going into this project that although
the Spanish and American Systems would be very similar, Spain would rate above the U.S. due to the
emphasis on language and fine arts. I was mistaken.
Although Spain shares similarities with the United States, there are also some significant
differences. The first being that, as mentioned earlier, the Spanish educational system is a relatively
young system marked with periods of instability and a rapid succession of reform laws geared toward
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solidity and conformity to neighboring countries. Available statistics paint a very different picture than
what I had imagined.
A report sponsored by the Organisation for Economic Co-Operation and Development (OECD)
provides the following sobering statistics. First, based on average rates of retention, achievement
differences in primary school are widening. The system retains approximately 5% of all eight year olds
but the retention rate jumps to 14% for twelve year olds. The gap varies by region and some areas
report retention rates of 21% for twelve year olds. Although the retention rates for secondary students
have declined, they are still very high with the average being 26.3% for 14 year olds and 37.9% for 15
year olds (Teese et al, 2006).
In addition the report notes that data from 2003 places Spain as one of the OECD countries with
at least 20% of students achieving a Level 1 or lower in Reading. Proficiency at Level 1 indicates only the
very basic reading tasks. Even worse, compared to data from 2000, the overall standards for reading
levels for 15 year olds fell. In Spain, approximately 25% of students do not successfully complete
compulsory education at the secondary level. Again, numbers vary by region but at least five
autonomous communities report rates of 30% or higher. In addition, the report notes that only 57% of
those over 16 progress into upper secondary education (Teese et al, 2006).
Drop out rates are another area of concern. Just recently, a report indicated a dropout rate of
31.2% for Spain making it the third highest among European Union countries. Spain was the only
country in the Union to show a worsening of the problem over the past decade (Meyer, 2011). The
statistics, although explained in part by the relatively recent emergence of policy expanding compulsory
education, still points to a strong need for continuing improvement to the education system.
One thing I found particularly interesting was that Spain is second only the United States in
terms of the number of immigrants. I did not realize that Spain had such a high rate of immigration.
Because of the large number of immigrant arrivals, Spain has had to make accommodations and
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adaptations in the school system. Ironically, despite efforts that favor multilingualism, small class sizes,
free early education, and an emphasis on socialization, there is still a marginalization of immigrant youth
and serious disparities in academic achievement between native and non-native students. Data shows
that dropout rates for not finishing 10
th
grade is 12% for natives, 30% for non-natives, and 42% for new
students who have been in the system for less than two years (Gibson and Carrusco, 2009).
Finally, I was enlightened to the role of the Catholic Church in Spanish education. Although
Spain is predominantly Catholic, I never realized the prevalence or impact of Catholic schools. I assumed
falsely that like the United States, the majority of students would receive education through the public
system. Although I recognize flaws in the church, as a practicing Catholic, I found the discovery of
Francos use of the church in maintaining regime doctrine, disheartening. Conversely, I also recognize
that flawed or not, the church was school for many Spaniards and also spread and maintained
education.
Suggested Changes
Beginning in 1990, Spain made education compulsory for all students through the age of 16.
Although a laudable move, it is also a recent move as the country continued to implement the policy
gradually through the late 1990s making the concept of mandatory attendance a relatively new one.
Participation, however, does not always lead to academic success.
Challenges noted in the OECD report on school equity (Teese et al, 2006) include (1) the recent
phenomenon of large immigrant populations, (2) the low levels of participation in upper secondary
education, and (3) the dualisation of the system created by decentralization and guaranteed freedom of
school choice. Of these three challenges, I view the dual nature of the school system as being the one
most in need of attention.
If the education system is to grow in a manner that is conducive to educating all students, the
government must address the critical need of overcoming the negative stigma attached to public
19

schooling. Based on prior history and current statistics, the concept of deficiency in the public system,
has some merit. To overcome the stigma, the country must work to eliminate disparity created by the
dualistic nature of the current system. Unfortunately, the parental right to freedom of choice along with
subsidies for concerted schools does little to reduce the divide in education.
Two conventions support the dual system. First, the practice of subsidies to private schools
enables the middle and upper class students to attend private schools at the governments expense.
Second, the disparity between autonomous regions in terms of means, resources, and opportunities
perpetuates inequality in across the nation. Poor regions, relying on fewer resources, provide fewer
opportunities to students and generally produce poorer results in achievement.
Experts report on the division and disparity created by such a system as the middle class and
upper classes fill private schools leaving the public school to shoulder the burden of education for the
poor, immigrant, special needs, and generally more challenged student ( Bernal, 2005; Escardbul and
Villarroya, 2009).
A report sponsored by the University of Barcelona states that 82 percent of immigrant students
attend public school. The report attributes this high number to the prohibitive costs imposed by private
schools for extracurricular activities. The disproportionate distribution creates what many refer to as
the ghetto effect which is strengthened by the number of parents who routinely transfer their
children out of public schools where the minority population comprises the majority of students. Many
consider the unequal social distribution of students inherent in the dual system as one of the more
blatant problems of inequity in the Spanish educational system (Dooly, Vallejo, and Ferrer, 2008, p.6).
Policies are in place to promote equity but frequently, concerted schools violate those policies.
By illegally charging parents for activities beyond tuition, the schools work to circumvent fair admissions
policies and assure that they receive students deemed desirable. The government should enact stricter
controls over policies to ensure fair and nondiscriminatory admissions. In addition, the government
20

should also exact stiffer penalties for those who violate admission policies. Finally, adjustments to
subsidies or decreasing subsidized amounts might stem the flood of students seeking private education.
Government intervention, in the form of standards for school expenditures and the requirement to
collect and report achievement and other data, could assist in bringing equity to the autonomous
communities across the nation. Valid information is vital to generate data-driven decisions that affect
the school system as a whole. Of course, such reform could prove highly contentious since
decentralization, a cherished freedom, has been in place since the passing of LODE in 1985. Still, there
must be some attempt to equalize education between the poor and the wealthy communities.
Addressing the needs of education for immigrant populations is another area where
recommendations are necessary. Gibson and Carrusco (2009) take an in-depth look at the inequalities
for immigrant youth. There are strengths in the Spanish program, notably the role of socialization, but
the overall outcome is unequal results for immigrants. These inequalities are most profound for first
and second-generation immigrants, especially poor immigrants. The focus on socialization coupled with
the absence of publicly available achievement data for student subgroups divert attention away from
actual disparities in achievement between immigrant and native youth.
The large progression of immigrants to Spain is relatively new but rapidly expanding. At least 53
out of every 1,000 students in 2003-2004 were immigrant students compared to five out of every 1,000
students only a decade earlier. Additionally enrollment of immigrant students is four times higher in
public education than in private education (Teese et al, 2006). The demands of educating immigrant
youth challenge the school system as a whole. Teachers, in particular those who are not adequately
trained to deal with diversity issues, also face challenges. Moreover, Gibson and Carrusco (2009) point
out that many secondary teachers viewed the mandate to provide education for all students with
disfavor and considered it a loss to their professional standing.
21

Large populations of immigrant youth have had a great impact on the educational system and
achievement statistics for this population is discouraging. Possible solutions might include expanding
the curriculum to provide language instruction for non-European based languages, reducing the
segregation for immigrant students in special and isolated programs for socialization skills, expanding
vocational opportunities, and providing teachers with specialized training to deal with language
deficiencies and issues that relate to cultural diversity.
LOGSE established programs for students with special needs in 1990, and those programs have
undergone a number of modifications in the past several years. Although the current push is toward
inclusion, the government provides separate facilities for students with specific special needs deemed
best served outside the ordinary classroom. A report from the European Agency for Development in
Special Needs Education report that laws now provide for accessibility via by alterations to school
buildings, adaptations in curriculum, specialized teaching materials, reduced class size, support staff,
and varied assessment tools. Social guarantee programs, though considered weak by some standards,
are in place for students who do not respond to ordinary measures of attention to diversity and special
needs (Special needs education, 2009). Given the newness of this measure, special needs education has
taken large steps towards equity. This is a big change compared to when Elisabet was in school and
reports no special services or accommodations. Progress in this area needs to continue.
One final recommendation would be to expand and improve vocational options. Rowlings
(1997) notes that, compared to neighboring countries, vocational training was one of the weakest areas
in the Spanish education system. Indeed, improving vocational programs is a recommendation
promoted by OECD. To advance vocational education, OECD proposes creating more flexibility in the
curriculum and developing connections between the levels of education so that no career option, such
as social guarantee programs, leads to a dead end. Other proposals include considering approaches to
program design and delivery, including language support, to attain greater multicultural effectiveness,
22

and increasing optional content of the noncompulsory phase of secondary education to allow schools to
place a larger emphasis on basic learning skills (Teese et al, 2006).
Dropout rates, often preceded by years of failure, are a major problem in Spain. Many cite lack
of student engagement and limited options for vocational programs as contributory factors. Social
guarantee programs are the only option for many students, especially those who do not complete the
secondary phase of education. Students, who do finish compulsory secondary education, have three
options. Students may choose to end their formal education, they may choose to go to college, or they
may opt to attend a vocational program. Many who choose vocational education will not be successful.
According to data for the 2004-2005 school year, the probability of failure in a post-compulsory
vocational training program was 18.9%; almost double that of the 9.5% probability of failure in the
baccalaureate programs. For social guarantee programs, the data is more encouraging, due in part to
the close relationships between student and teacher and the absence of exams, which is considered the
most important academic problem for at-risk students (Enguita, Martnez, Gmez, 2010).
Spain has not remained impervious to the need for reform. In 2008, the Ministry of
Education in collaboration with the Ministry of Labour presented an outline for promoting and
improving vocational training. The plan aims to provide quality vocational training connected to the
labor market and updated to reflect the needs of the 21
st
century learner. Goals include promoting
lifelong learning and allowing for flexible transfer between professional activities. As regulated by a
2009 Royal decree, the government is now developing a system to evaluate and provide credit for
knowledge and skills acquired through experience or other non-formal means (Eurybase, 2010).
Transitioning from a stifling dictatorship to a Socialist state has not been without challenge and
resistance. The Spanish educational system is comparatively young and a changing society, massive
influx of immigrants, and technological advances has complicated matters. Membership in the
European Union has spurred the government to adopting those foreign looking methodological
23

innovations (Calvo, p. 410) that Franco feared. Now, Spain is taking steps to align curriculum to
standards universal to the Union.
Difficulties will continue to exist and change will unfold gradually over several generations.
However, Spain is meeting challenges and taking steps to overcome obstacles. Elisabet claims that
Francos death turned the country 180 degrees. According to her, There are now freedoms that were
only dreamed of before and people can state their opinions more openly. We were a very poor nation
under Franco and very disadvantaged in terms of economy and education. We are still in the hole but
we are now digging ourselves out. If I were in Spain now, I would find a shovel and join them in digging
out of that hole. I value their tenacity and commend the efforts, spirit, and optimism of the Spanish
people.















24










Figure 1: Educational Progress in Spain (Luis Bernal, 2005)
Figure 1: Educational Progress in Spain (Luis Bernal, 2005)














Infant Education
Cycle 1: Newborn-2
Cycle 2: Age 3-5
Educational Progress in Spain
Bachillerato

University

Secondary Education
Two 2-year cycles
Ages 12-16
Primary Education
Three 2-year cycles
Ages 6-12
Grado Superior Grado Medio
Compulsory
Infant Education
Cycle 1: Newborn-2
Cycle 2: Age 3-5
Educational Progress in Spain

Figure 1: Education Progress in Spain


25


Figure 2: Spanish Public School Structure

School Length Ages Features
C
O
M
P
U
L
S
O
R
Y

Obligatory
Primary
6 years
3 two-year
cycles
6-12 Foreign language, Physical
Education, Music. Class Size
Limited to 25 students.
English is required beginning
in first grade.
Obligatory
Secondary
4 years
2 Two-year
cycles
12-16 Options for foreign language,
cultural and occupational
education. Class size limited
to 30 students.
Upper
Secondary
Bacchilator 2 years 16-18 Four university preparatory
programs: Art, Natural and
Health Sciences, Human and
Social Sciences, and
Technology. Students move
from Bacchilator to University
Studies or to Advanced
Occupational Studies.
Upper
Secondary
Occupational
Studies

1000-2000 contact hours
16-18
Medio Pre-requisite: Obligatory
Secondary. Leads to Ticino
Certificate.
Superior Pre-requisite: Baccilator.
Leads to Tecnico Superior
Certificate.
Figure 2 : Spanish Public School Structure- Data from World Education News and Reviews, Spring 1997


26


























1970 1975 1978 1983 1985 1986 1990 1995 2001 2002 2006 2011
General
Education
Act
Spanish
Constitution
Organic
Law-
LODE
Organic
Law- LOGSE
Organic Law-
LOCE
Death of
General Franco

Law of
University
Reform - LRU
Spain joins
the
European
Union
Organic Law
LOPEG
Organic Law
- LOE
University
Law -
pending
University
Law - LOU
Figure 3: Timeline of Important Laws and Events in Spanish Education
Source: data from Eurybase (2010)

Figure 3: Important Events and Laws in the History of Spanish Education




27

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