Teacher Education Policies in the European Union and the Quality of Lifelong Learning

by Ewald Terhart
Ruhr-Bochum University

In the next 45 Minutes I would like to present to you central themes of the current debate on teacher education policies in Germany. In doing so, I want to spot the role of the university in teacher education. This is an interesting issue not only in Germany but in all countries with a developed teacher education system. To express my central thesis already at the beginning: I think, that in the current debate on teacher education, two different , conflicting concepts of modernity and modernization compete with each other - and it is not yet clear which of these concepts will win. So it is not clear how the future of teacher education in Germany will look like.

But first I think I briefly want to sketch the german system of teacher education.

1. The System of Teacher Education in Germany

In Germany the process of becoming a Teacher has two phases: After having gained the Abitur (the highest level of general education) and by this the allowance to go to University (average age: 19 years) a young lady or man enters the first or initial phase of teacher education at university. The number of students enrolled in teacher education is not regulated or limited in relation to forseeable demand of new teachers in the future. In some places it is limited by the capacities of the universities rsp. faculties. All teachers in Germany are educated on university level. They have to do studies in two or three subjects and in education. This will last three or four years (at minimum). During this study course at best two or three short periods of field-based experience in classrooms and schools are integrated. This first phase leeds to the first teacher examination (1. Staatsexamen) performed by state examination agencies and regulated by the state ministries of schooling.

After this, each absolvent has the right to enter the second phase of teacher education. This is a more practically oriented two year preparatory phase organized and supervized by the state ministry of schooling. This second phase runs without any participation of the university. During this second phase the future teacher is payed and he or she is trained in special „teacher training seminars" by special teacher trainers, who have to be experienced teachers. They are also trained in schools by experienced teachers. During this phase they are - to a certain part - already regular members of the schools’ staff and give lessons in own responsibility. At the end of the second phase the second teacher examination has to be passed (2. Staatsexamen). After that the examined teacher has to apply for a teacher position. The examination results of all applicants are ranked, and then the administration places them acccording to the individual rank, their subjects and the needs of the school-districts and schools. The schools themselves up to now have no ‘voice’ in this procedure.

If they get a position the young teachers begin their work. After three years they are assessed formally and then - if there are no problems - become civil servants; that means they get tenure. If a teacher does not want to make a carreer he or she can teach on - in the most cases - until 65 without officially being evaluated again. So in most cases - especially in elementary schools - teaching is an occupation without a career. Meanwhile this professional life cycle of a teacher is regarded as the third phase of teacher education: in-service teacher education. But I must say that this system of continuous professional development of teachers is up to now not very well developed in Germany. Researchers and experts in the field of teacher education constantly stress the necessity of supporting professional development of teachers during the first formative years of teaching, but such an induction phase still is not existent.

This short sketch gives an impression of the standard procedure of teacher education in Germany. But you have to take into regard an important point: Schooling and teacher education lie in the hand of our 16 „Bundesländer", that means: the 16 states Germany as a federal state consists of. There is no federal competence concerning the school system and teacher education. Of course each of our Länder follows the basic architecture of teacher education just sketched, but nevertheless all of these 16 have established some state-specific peculiarities. In general all states do accept the teacher certificates of the others, but sometimes problems arise if a teacher moves from one state to another.

So one can say that the system of teacher edcation in Germany is highly developed and needs a lot of expense: To enter teacher education you have to have the highest school-degree (Abitur); alle teachers are in the first phase trained at university for in fact 4-5 years; then they enter an additional practical preparation phase (2 years); they have to pass two state examinations, and after a short time of being a teacher they get tenure. Compared to other countries, german teachers have high monthly salaries payed also during holidays and 13 times a year. So with regard to traditional aims of the different teacher organizations a lot has been reached.

But this is just the bright side. The german teacher education system ist also connected with serious problems.

• When our fully educated teachers enter teaching a position they are much to old: 26-30 years.
• The first university phase ist not very strong directed and oriented towards the needs of the later teacher position.
• The contents of the first and second phase are not really accorded to one another.
• The system of pre-service teacher education is very ambitious and expensive in time and money; the system of in-service teacher education („third phase") is developed only very poor.
• The system of the different teacher licences is strongly connected to the different school types; there is no flexibility for a teacher to change to another school form and no flexibility for the administration to place a teacher to another school form.
• Because of demographic changes etc. the teacher profession periodically suffers from unemployment. That means that more teachers are trained than can be integrated in the job. As I mentioned the state does not limit the number of those who want to become teachers in accordance to forseeable demand. These people - especially primary teachers - have serious problems to find other jobs adequate to their level of professional training.

The problems inherent in this system are long and well known in Germany. Up to now the formula for solving them was: an even longer professional education, more sciences integrated in the study courses, an upgrading of the teaching profession in training and salary etc., a tighter system of assessment and evaluation etc. This formula fits the classical modernization paradigm which is basically led by the idea of ‘more of the same’: more and longer training, more academic and scientific studies, more state regulations and administration, more evaluation, more money. This pattern of ‘more of the same’ fits the classical concept of modernization in industrialized societies: more science, more administration, more rationality, more money to spend, more social equality, more welfare state etc. It is obvious that this modernization pattern in a way fits a traditional ‘socialdemocratic’ world-view and dominated the social-democratic era in european countries.

This modernization concept worked as long as there was a basic optimism in the possibiliity of scientific rationality, a basic optimism concerning the benefits of more education, more administration and more science. And most important of all: It worked as long as there was money to spend and there was a political will to put money in education, schools and teachers.

But in the last decades in all highly-modernized countries and also in Germany doubts came up concerning the value of clinging to this classical concept of modernization: more professional training, more administration, more science. And in fact: the money had gone. So the often-cited ‘limits of growth’ were marked; today they are marked severely more and more. And the are marked not only in relation to natural ressources, but also with regard to the welfare state and its administrative and financial capacities to ensure constant betterment in society and culture. There is a strong tendency towards a re-structuring of state policy in the opposite direction: less time for professional training, less science and more practical wisdom, less or lean administration and more deregulation, and - who wonders - less money for teacher education and teacher salaries.

This in general more neo-liberal view of modernization is connected with some administration-critical, bottom-up movements growing up from educational practice. You know that there is a long tradition auf state-, school- and profession-criticism in educational thought, especially in the different strands of „progressive education". It seems strange, but in fact ‘warm’ pedagogical romanticism today coagulates with the ‘cold’ ideas of neo-liberalism and constant competition; both oppose against classical modernization and its trust in the benefits of mere growth. In the eyes of pedagogical romanticism and neo-liberalism the adherents of the classical modernization paradigm are traditionalists only interested in saving structures they themself benefit from.

So in Germany we have the situation that the system of teacher education is developed on a very high level - in fact other countries try to reach that level - and at the same time the doubts are growing. The search for alternatives to overcome the deficits of the results of classical modernization paradigm is intense. At the end of my paper I will discuss some of these alternatives. But before this I would like to spot a certain general problem in the discussion of teacher education policies. I want to say something about the aims, role and function of universities and of acedemic knowledge in teacher education.

2. The Chances and the Problems of Academical Teacher Education at Universities

Looking back to history the teachers for the higher level rsp. track of the german schools system (Gymnasium with the final examination of the Abitur) have always been educated at universities. The teachers of elementary schools and the lower tracks of the secondary schools have reached university preparation not before 1970. Before that they were trained in Teacher Colleges, and even before that during the 19th century until 1925 in Seminaries. During the 20th century the ‘lower’ teachers got more and more academical education and training, whereas the ‘higher’ teachers kept their traditional high academical standing and additionally were supplied with some more pedagogical and didactical elements.

What is the special role and function of university in this first phase of teacher education? What are the benefits of a university training for all teachers, and what are the problems?

Benefits: If we want teachers to fulfill their professional duties in a non-standardized, non-mechanical, and that means: in a professional manner a thorough and solid academical education in their subjects and in education and didaktic is necessary. The teacher education toward a reflective practicioner - als D. Schön called it - is especially necessary if we want teachers that are able and competent to meet new challanges in the profession of teaching: continuous professional development of the teachers, organizational development of their school, continuous self-evaluation and -assessment, integrating new information technologies and media in teaching, supporting self-regulated learning of their students etc.

If we want our teachers to develop these capacities and competencies , their professional training must have a basis in scientific knowledge. A lot of research has been perfomed concerning the professional knowledge and development of teachers. Often it has been stressed that teachers' professional knowledge is personal knowledge, that means: it is not just the adaption and application of scientific research knowledge in the field of instruction, learning and curriculum. Surely it is evident that the professional knowledge of teachers is personal knowledge - but that does not mean that scientific knowledge is not necessary in teacher education. Acedemical knowledge in the subject areas, pedagogical content knowledge, knowledge concerning learning, teaching processs, classroom management, diagnosis of learning problems, evaluation of learning results etc. is a necessary background for development towards a competent and professional teacher. It is the chance and the duty of the university to support teachers with this kind of background knowledge.

Of course it would be possible to organize teacher education in another way. In fact it is possible to renounce teacher education at all. The minimal model of teacher education looks as follows: an experienced teacher takes one or two bright students in apprenticeship, and the young ones learn by imitation and by doing exactly those things their master already does. This model of teacher education would lead to a stable, inflexible and tradition-oriented teaching style. To say it again: This strictly school-based teacher training would be possible, but the result does not fit to the challenges of teaching and teachers in the 21st century.

A sound and thorough academical education, study courses at university supply future teacher with the necessary scientific information, with the competence to reflect their own actions and with the capacity of critical thinking. A tight connection to educational research, to research on learning and teaching can be established at universities, and by this the entrance of newly trained teachers can bring in innovations to the existing classroom culture.

Problems: In Germany the universities have accepted their duty to supply the future teachers with the knowledge in their teaching subjects (Geography, Literature, Mathemathics etc.). But there are serious problems in the field of pedagogical content knowledge, in education and in didactic. In these fields the curriculum of teacher education is rather weak and in lack of a clear structure. This is due to the fact that educational research and research on teaching in Germany are rather young disciplines at the university and still have to fight for acceptance.

So the problem is that in many universities in Germany teacher education is regarded as some kind of additional burden, a duty not genuine to the culture of university. On the other hand a lot of faculties especially in the humanities only do exist because of teacher education. In other words: These faculties need the high number of enroled teacher students. They need them, they take them, but then they do not support them.

This problem can only be overcome by comparative evaluation procedures. That means that in Germany every state should evaluate the quality of teacher education at the universities over several years. If a university or a faculty constantly does not fulfil its duties teacher education should be withdrawn from this place.

To sum it up: Universities cannot and should not try to prepare in a direct an instrumental sense for practical teacher competency, but they can and have to develop knowledge, reflexivity and discernement as a basis for later professional competence. For a teacher education according to a modern concept of professionalization the intellectual and reflective backing of teacher competency is important: Teaching is not just a craft or a technique but a profession combining knowledge, reflection, committment and practical competence. To build up this mixed competence it is also necessary that the preparation for professional practice also offers chances to win a certain distance to practical needs. Distance is a presupposition for reflection; and reflection has to be re-integrated in practical experience to lead to reflective acting. The relation between reflection and action, between theory and practice can be imagined in a form of a spiral leading to higher forms of reflexivity and practical competence.

3. Current Policies in Teacher Education

In the last years all the long-known problems of teacher education have led to an intense discussion about reforms and new models. The fact that this discussion grew and grows intensively more and more does not go back to educational considerations concerning the quality of the teachers but - in my view - primarily has to do with more general themes and issues, changes and initiatives not especially and in first place related to teachers and teacher education:

- Teachers and teacher education is part of the public sector organized by state agencies. In Germany - but I think everywhere in the high-industrialized world - the size and the efficiacy of the state services are in discussion, if not: in doubt. Teacher education is only one example or one element in this general discussion about the future of state services.

- The financial crisis of the welfare state leads to an intense search for possibilities to save money, to reduce expenditures and to get rid of those things where the efficiacy and importance is not clearly prooved. Teacher education is one of these things, because the effects of teacher education are difficult to evaluate and show up many years later.

- Germany suffers from the fact that the young people with academical education are much to old when they enter job-life. When they have their Abitur they are nearly 20 years old, and when they leave university they are about 25-28 years old. Compared to other countries this is a much to long period of education. Especially in teacher education with its two phases this problem is even more serious.

These general problems and issues lead to ideas of an institutional degradation or downsizing of teacher education, often wrapped in a vocabulary of „robust, school-based oriententation towards practice". There are four proposals to do this:

3.1. Replacing teacher education for elementary teachers from universities to Fachhochschulen (Technical Colleges).

In general the portion of students visiting these technical colleges in relation to all students in higher education is growing, and policy strives to enlarge this portion. The technical colleges themselves look for possibilities to 'take over' study programs from the universities. And as universities have big problems in organizing the education and training especially of elementary teachers the technical colleges want to take over this part of teacher education in their study programme. Studying at a Technical College lasts three years, and the study courses are strictly directed towards occupational competence. In general the staff of the technical colleges is not payed that high as the staff of universities, and also the later career chances and salaries of students from Technical Colleges are not that high than those of students from Universities.

So by transporting teacher education to technical colleges it would be shorter, cheaper, and it would be strictly oriented towards practice. A second phase of teacher education would no be necessary - it would be superficial.

3.2. Reducing the time/costs of the second phase of teacher education

During the two-year-long second phase of teacher education the future teachers are payed, although it is possible that only 30- 60% of them get a position as a teacher. This leads to proposals of shortening the two-year phase to one-and a half year and concentrate it on practice-oriented training. This would reduce the costs and shorten the total time of teacher trainig.

3.3. Adopting the anglo-american model of Bachelor/Master-Degrees

The very long time of studying at university in general led to a discussion about reconstructing the study courses and adapt them to the bachelor-master-system well known in the english-speaking world. This in fact means a complete revolution of the german university. When this study-structure is installed the traditional teacher education system with its two phases and two state-examinations does not fit in. The tendency to install the Bachelor-Master-Structure is very strong and already realized in several places. This inforces the development of new model of teacher education. A solution for this problem has not been found yet.

3.4. Concentrate teacher education on the second phase

Some experts propose that teacher education should not be a part of university studies but should start after having passed university. On the basis of their university degree those who want to work as teachers should apply to the institutions of the former second phase, which in fact then is the only phase of teacher education. These institutions enrol people according to the forseeable demand of teacher recruitment. This model of teacher education after having passed university studies would reduce the problem of periodical teacher unemployment, because the number of enrolled persons could be related to the demand. But this model would also imply that the teacher qualification is not a genuine but a mere additional qualification to study courses not directed to a teacher qualification from the beginning on.

4. Concluding Remarks

All these different proposals have two things in common: (1) They reduce or low down the current level of teacher education in respect to time, costs, status and payment. (2) Combined with this all proposals try to reduce the academic or intellectual basis of teacher education in favour of a stricter orientation towards the practical need of teachers' work. Both of these common elements cause trouble to teacher education placed - in its first phase - at universities.

So the current discussion about teacher education policies is characterized by conflicting concepts of modernisation in education: After some decades of continuous growth and upgrading the voices claiming a reduction of the state-expenditures in education, schooling in general and especially in teacher education become urgent more and more. I myself am convinced that the current high level of teacher education in Germany - on the one hand - has to be conserved. On the other hand I am also convinced that we urgently need strong efforts in all parts and elements of this formal framework towards a more reflective teacher education aiming at professional competencies of teachers. For me the conservation of the formal framework makes only sense in combination with constant efforts for betterment. And with regard to universities as places for teacher education I want to add: This can only be reached if the universities fulfill their duties in this field seriously and with a higher level than today. The next years offer a chance for university teacher education. I am afraid that it is the last chance. But I also must say: If the universities do not take this chance and change things to betterment then a fundamental restructuring and replacing of teacher education will be the only adequate reaction.