1. Origin,
scope and aim of the report
1. Europe faces many different
challenges associated with cultural diversity, for which our continent
and its States provide a haven but which is a source of both immense
enrichment and tensions. The increasing number of manifestations
of intolerance and racism raise questions that democracy has to
resolve.
2. Hundreds of our young people, either Muslims or converted
Muslims, are leaving to fight in Syria, Iraq or elsewhere for the
terrorist group known as Daesh.
Others – much larger
in number – are staying but no longer having any faith in democratic
institutions and, as victims of discrimination, are struggling between withdrawal
into their own communities and imposed social exclusion. Still others
are adopting extremist positions, advocating violence and stirring
up hatred or simply rejecting dialogue and the idea of sharing “their” country
with those guilty of having a different origin, culture or religion.
In dealing with these challenges, the culture of democracy will
have to find concrete applications.
3. All these young people were assumed to have acquired in their
families and our schools a set of values on which our identity is
based: respect for human rights and adherence to democratic principles
and the rule of law. They were also assumed to have acquired the
ability to live according to these values on a daily basis, be open
to dialogue with others and play an active role in social life as
responsible citizens.
4. The competences required to practise democratic citizenship
and to promote the protection of human rights, and to strengthen
intercultural dialogue are acquired competences, which have to be
nurtured from an early age and throughout one’s life. Education
must enable them to be acquired and developed. In France, a private
member’s bill aimed at strengthening the fundamental values and
principles of the Republic in the operation of the State education
system was tabled in the Senate on 18 September 2015
on the basis of a report by a member
of the French Senate, Jacques Grosperrin.
5. A thorough reflection is accordingly needed on whether the
educational provision contributes to greater intercultural understanding,
improved democratic participation and respect for human rights standards. Measuring
achievements in this area against a set of competence descriptors
developed at European level, seems to me essential to enable educators
and policy makers to identify areas where more work is needed.
6. Following the Declaration “Governance and Quality Education”,
adopted by the Ministers of Education meeting
in Helsinki on 26 and 27 April 2013, the Council of Europe Steering
Committee for Education Policies and Practice underscored, in March
2014, the importance of developing “descriptors for competences
for a culture of democracy and intercultural dialogue” in order
to make preparation for life as active citizens in democratic societies
an integral part of the mission of education. The expected outcome
is a framework of competences adaptable to the different national
contexts and specific needs in their respective education systems,
bearing
in mind the principle of subsidiarity. The descriptors for competences
should be used in schools, universities and other educational situations
to develop curricula and the teaching methods necessary to help
pupils become active citizens committed to democracy. These descriptors
should also enable their progress to be assessed.
7. There are four interrelated key policy issues that need to
be taken into account and understood in considering the development
of a framework of competences in democratic citizenship, human rights
and intercultural dialogue (DC/HR/ID) and how it can be integrated
successfully in the overall design of education systems, policies
and practice at a European level. These four key policy issues are:
- To what extent is it possible
to create a coherent framework of competences in DC/HR/ID?
- How could such a future framework be integrated in the
overall design of education systems, policies and practices?
- What impact could such a framework have on the functioning
of education systems?
- What is the optimum policy design and implementation strategy
for such a framework at a European level?
8. These four policy issues will need to be resolved if the development
of a framework of competences in DC/HR/ID is to be successfully
integrated in European education systems.
9. The following analysis is based on the contribution of Mr
David Kerr and other experts that our committee has interviewed,
especially those from the intergovernmental sector of the Council
of Europe and the United Nations Educational, Scientific and Cultural
Organization (UNESCO).
10. Apart from the work of the Council of Europe’s intergovernmental
sector, I have paid due regard to the commitments of the Council
of Europe member States at global level in the context of the World
Programme for Human Rights Education, and at European level through
their involvement with the Council of Europe’s flagship project
“Education for Democratic Citizenship and Human Rights Education”
(EDC/HRE).
2. Creating a coherent framework of competences
11. The first key policy issue
is a substantive one. It is the policy issue of whether it is possible
to create a coherent framework of competences in DC/HR/ID. It is
crucial that it is successfully addressed in order for the work
on DC/HR/ID competences to progress. This is necessary in order
to convince key education policy makers, on the one hand, of the
consistency of the framework of competences and of the reliability
and value of such a framework of competences and, on the other,
of the possibility of integrating these elements alongside other
core aspects of education, such as literacy and numeracy, to the
benefit of the overall quality of education.
2.1. Understanding
democratic citizenship, human rights and intercultural dialogue
12. Recent major studies of democratic
citizenship and human rights have highlighted a lack of awareness and/or
understanding among policy makers of what is meant by DC/HR/ID.
13. The Council of Europe Charter on Education for Democratic
Citizenship and Human Rights Education provides a sound basis concerning
what is meant by democratic citizenship and respect for human rights.
To this would need to be added a
clear working definition of what is meant by intercultural dialogue.
14. There has also been much development work on the definition
of competences and competence descriptors, including categories
and descriptors, for democratic citizenship, human rights and intercultural dialogue.
This has come about from the development of conceptual frameworks
for major European and international studies in these areas, as
well as through specific initiatives aimed at identifying and measuring civic
and citizenship competences across European countries. Most notable
among these developments are the conceptual frameworks for the Civic
Education Study and the International Civic and Citizenship Education Study
(ICCS09) of the International Association for the Evaluation of
Educational Achievement (IEA), and the European Commission-funded
work on developing a civic competence composite indicator.
The IEA studies are the largest ever
undertaken in relation to DC/HR/ID and help to provide the data
for the construction of the European Commission civic competence
indicator. This development work sets out the core knowledge, skills, attitudes
and values for participation, democratic citizenship, social justice
and respect for human rights. It also provides descriptors for each
of these dimensions and shows how they can be combined into a conceptual framework
that can be reliably measured using research data.
2.2. Full
integration of democratic citizenship, human rights and intercultural
dialogue in school curricula
15. Democratic citizenship, human
rights and intercultural dialogue should be fully integrated in
school curricula.
16. Literacy, numeracy (mathematics), science, languages and more
recently the addition of information and communication technologies
(ICT) are well established and recognised in education systems and
by policy makers. These disciplines have a strong status and high
acceptance at education policy and practice levels. Pupils’ competences
in these areas are assessed by influential international studies
such as PISA, TIMMS, PIRLS and TALIS, whose results are scrutinised
and seized upon by policy makers and used to make decisions in reforming
education systems.
17. Unfortunately, DC/HR/ID is in a position of considerable comparative
disadvantage in relation to these other key education areas. This
disadvantage is long term and has been exacerbated in recent years
by the impact of and policy response to the global economic recession,
with more attention paid to areas that have a direct impact on employability.
A number of recent reports have highlighted how the economic recession
has weakened policies and practices concerning DC/HR/ID across Europe
and called for policy makers to consider the impact of such changes
on society now and in the future.
18. Democratic citizenship, human rights and intercultural dialogue
can be associated with developing “soft skills” concerning attitudes,
values and behaviours for future life in society.
19. In order to convince policy makers about the importance of
promoting and supporting DC/HR/ID alongside the other key education
areas, it is necessary to use evidence and arguments to highlight
the value that DC/HR/ID bring to the quality of education, alongside
other key education areas, and its overall contribution to strengthening
society, including the economy. Skills and capacity to live together
peacefully and cohesively in democratic societies and communities
that seek to strengthen the rights and responsibilities of citizens,
both individually and collectively, and foster intercultural dialogue
and understanding for the benefit of society as a whole.
20. Such developments are becoming increasingly important for
policy makers through the influence of two drivers. The first is
recognition that the current global economic crisis was created,
in part, by the most educated in society, who had acquired language,
mathematical and scientific literacy skills in abundance, but had,
somehow, lost their wider social and moral compass in putting their
individual greed above the impacts on society as a whole. The second
is the crucial need to prepare current generations of young people effectively
for the future, in a world that continues to undergo rapid and continuous
change. This means preparing them to both compete and live effectively
in a global economy where they could live and work anywhere in the
world during their lifetime.
21. These two drivers are presenting particular challenges in
thinking through how education systems can ensure that young people
are properly prepared to be successful on a global stage so that
they can prosper individually and collectively. It means promoting
skills for life that include both traditional areas such as languages,
mathematics and science alongside the skills and competences promoted
by democratic citizenship, education for human rights and intercultural
dialogue. In short, practical competences as a means of promoting
a “global competence”.
22. It is interesting to note that policy makers in education
in many countries are already recognising the importance of ensuring
that through their education systems young people have opportunities
to develop skills for life and this broader global competence. It
explains why the PISA framework of the Organisation for Economic
Co-operation and Development (OECD) for 2018 will include, for the
first time, a measurement of global competence alongside information
gathered by other PISA assessments in reading, mathematics, science
and problem solving. This inclusion is intended to provide a first
snapshot for countries of how well young people are being prepared
to be successful global citizens who can operate on a global stage.
The outcomes can then be used by policy makers to make necessary
reforms and adjustments in their education systems.
23. This work will also be strengthened at international and European
level through the new IEA International Civic and Citizenship Education
Study in 2016 (ICCS16) which is a follow-up to ICCS09. The refined
framework for ICCS16 will help to further strengthen the definition
of DC/HR/ID and provide further proof that such dimensions can be
robustly defined and measured.
2.3. Training
teachers and school leaders with regard to the implementation of
the framework of competences
24. A main focus of such additional
training of teachers and school leaders should be consideration
of how schools are organised vis-à-vis opportunities for young people
to experience active or participatory citizenship and for policy
review and reflection about DC/HR/ID.
25. In terms of training teachers and school leaders, it is clear
that there is currently insufficient training for those in education
systems in relation to DC/HR/ID. This insufficiency is at a number
of levels and phases. In terms of initial teacher education, not
enough new teachers are being trained with the knowledge, skills
and confidence to address DC/HR/ID in classrooms and across the
school. In the primary school phase, initial training is about producing
specialists in other subjects (mathematics, languages and science)
or generalist teachers. In the secondary school phase initial training
does not train enough teachers who can teach DC/HR/ID as a standalone
curriculum subject and/or teachers who can address DC/HR/ID coherently
through other related subjects, such as history or social sciences.
All new teachers lack training and confidence in becoming involved
in active or participatory citizenship through their teaching and
involvement in the school community.
26. There is also a lack of training, in many countries, on DC/HR/ID
for those who are already teaching in schools, what is often referred
to in the literature as either continuous professional development
or in-service training. This means that new teachers often enter
schools where existing teachers are equally unconfident about addressing
DC/HR/ID. The situation concerning teacher training for DC/HR/ID
contrasts with that for other key education areas, such as mathematics
and languages where specialists are developed through initial teacher
education and receive considerable on-going training when in schools.
27. There is also the related issue of a lack of training for
school leaders, both existing and future, concerning the implications
of DC/HR/ID at whole-school level. This is an issue because all
the major research studies on education for democratic citizenship
and human rights education highlight the crucial role of school
leaders in fostering effective policies and practices in relation
to DC/HR/ID.
Interestingly, the latest Eurydice
report singles out room for improvement in the education and continuing
professional development of teachers and school leaders as a critical
policy recommendation for all European countries. The need to strengthen
the competence of teachers and school leaders in relation to DC/HR/ID
is a key issue for policy makers to address if a framework of competences
in DC/HR/ID is to be successfully integrated into schools in education
systems across Europe, at primary, secondary and tertiary levels.
3. Integrating
the framework of competences into education systems and anticipating
its impact
3.1. Integrating
the framework of competences into the development, implementation
and assessment of education policies
28. Having convinced policy makers
of the value of DC/HR/ID and of the importance of creating a coherent framework
of competences for DC/HR/ID, the next key policy issue that needs
to be addressed is explaining how such a framework of competences
can be successfully integrated into the overall design of education systems,
policies and practices. The experiences and lessons of the integration
of democratic citizenship and human rights education into the education
systems of European countries, collected since 1997 through the Council’s
flagship EDC/HRE Project, suggests that such integration is more
successful where policy makers take a consistent and coherent approach
across the education system through supporting policies, research and
practices. A particular key is also the fostering of partnerships
and supporting networks.
29. The Council of Europe’s publication “Strategic Support for
Decision Makers: Policy Tool for Education for Democratic Citizenship
and Human Rights” is particularly instructive in this respect. It
draws together the experiences and approaches of all Council of
Europe member States in promoting DC/HR/ID to set out strategic
advice for policy makers as to how to foster effective teaching
in this area.
They underline the need for a partnership
approach that involves dialogue and co-operation between policy
makers, stakeholders (parents, community representatives, media
and the general public) and practitioners (those who work in the education
system such as school leaders, teachers and support staff).
30. The particular steps set out in the Policy Tool for the promotion
of effective policies and practices in EDC/HRE in European countries
and their education systems are also instructive and help to answer
how to integrate the framework of competences for DC/HR/ID across
Europe. These steps, in what is termed a “Policy Cycle”, include:
Policy Formation:
- having
a shared working definition of EDC/HRE;
- raising awareness of EDC/HRE and making it a policy priority;
- making regulations on EDC/HRE;
- recognising and closing the “implementation gaps” between
EDC/HRE policy formation and policy implementation.
Policy Implementation:
- agreeing
the necessary strategic supports to turn EDC/HRE into effective
practices;
- addressing the implications for education and training
frameworks (including school curricula);
- addressing training and development needs;
- promoting democratic governance in education institutions;
- developing and supporting active participation;
- assessing learner outcomes;
- building strong networks and partnerships that involve
the key actors in EDC/HRE;
- developing monitoring and evaluation of EDC/HRE.
Policy Review and Sustainability:
- developing review measures for EDC/HRE;
- building a reliable evidence base for EDC/HRE;
- sharing the outcomes of the evidence base with key actors
in EDC/HRE;
- acting on the outcomes to review and sustain EDC/HRE policies.
31. The Policy Tool also includes
a self-evaluation checklist so that policy makers can gauge where
their country is in relation to each of these steps. If the terms
EDC/HRE are substituted with democratic citizenship, respect for
human rights and intercultural dialogue (DC/HR/ID) then the outcome
is a robust set of approaches and actions in these steps that, if
enacted, will go a long way to ensuring the successful integration
of a framework of competences in DC/HR/ID into the overall design
of education systems, policies and practices in Europe. The approaches
and actions have the advantage of already being aimed at policy
makers and being derived from actual policies and practices across
European countries.
32. Policy and research literature also highlights a number of
issues that need to be considered and actions that need to be taken.
As the INCA (International Review of Curriculum and Assessment Frameworks) database
of leading developed countries highlights, DC/HR/ID works best where
it is an integrated and identifiable aim as part of the broader
aims of education.
In this way, DC/HR/ID is seen publicly
to have the same status and value as other key education areas,
thus encouraging policy makers and practitioners to value and commit
to it by supporting policies and practices at all levels in the
education system.
33. The recent studies also underline the need to recognise and
support a variety of curricular approaches to DC/HR/ID in individual
countries. They have identified four main approaches currently applied
in European countries: including DC/HR/ID as a separate, standalone
curriculum subject; integrating it into other subjects; approaching
it in a cross-curricular fashion; defining it through extra-curricular
activities. In practice, most European countries adopt a mixture
of these approaches. These policy lessons underline that the integration of
a framework of competences for DC/HR/ID across Europe will only
be successful if the elements of the framework are capable of being
flexible and adaptable to a range of education systems and approaches. Integration
will not be successful if the framework demands one fixed approach
for all countries.
34. The recent reviews of the experiences of European countries
also show that it is crucial in terms of integration that the framework
of competences in DC/HR/ID is multi-dimensional in its scope. This
means that it encompasses and links the development of competence
in a variety of contexts and locations that include the school classroom,
the whole-school context and links with wider communities (both
local to schools and more widely in society). The Eurydice and ICCS
reports highlight how the majority of European countries have policies
in this area that encourage and promote the active involvement of
young people in democratic practices and actions such as student
voice and school governance and through community projects and activities.
A framework of competences in DC/HR/ID demands opportunities for
young people to apply their knowledge, understanding and skills
in order to test out how far they have developed these competences through
actual experiences and actions in this area. Furthermore, education
for democratic citizenship, human rights and intercultural dialogue
must not stop at the end of secondary school, as is currently the
case, if we want young people to put into practice what they have
learned on this subject when they reach adulthood.
35. Many countries in Europe currently lack proper assessment
of DC/HR/ID in relation to student outcomes and whole-school approaches.
Although there is innovative practice in some countries in relation
to the assessment of student learning in this area, in many others
there is no tangible assessment of student learning and outcomes.
This means that in many countries
there is no means of validating young people’s learning and experiences
of DC/HR/ID and no way of assessing the extent of their development
of competences. This is a considerable stumbling block to the integration
of the framework of competences in DC/HR/ID as teachers and young
people may not understand the aims of the framework or how it could
work in practice.
36. A related issue is that of whole-school evaluations of DC/HR/ID
approaches. While there is evidence that such evaluations are beginning
to take place in some countries, there is recognition that they
are not the norm in the majority of countries. This presents a considerable
gap for policy makers to address if a framework of competences in
DC/HR/ID is to be truly successfully integrated across education
systems. The framework is likely to be most successfully integrated
if it applies at whole-school level and addresses the contexts of
the classroom, whole-school and links to communities, as well as
learning in the classroom and opportunities to put that learning
into practice. It suggests the need for more training for teachers
and school leaders.
3.2. Anticipating
and assessing the impact of the framework of competences on the
functioning of education systems
37. In terms of the overall education
system, the adoption of the framework of competences in DC/HR/ID will
reorientate the overall aims and goals of education so that they
are more rounded. The narrow emphasis on existing core areas of
languages, mathematics and science will be broadened through the
inclusion and promotion of DC/HR/ID. DC/HR/ID will also be viewed
as a key education area of equal status and standing. The framework
will also reshape education systems and ensure that they are better
at identifying the challenges facing society going forward and educating
and equipping young people with the competences needed to meet those
challenges head on with confidence and optimism.
38. In terms of education institutions, particularly schools,
the framework will demand that such institutions adopt a “joined
up”, holistic approach to DC/HR/ID. This will ensure that the area
is embedded and connected throughout education institutions in terms
of overall ethos and values, and policies and practices in the curriculum,
at whole-school level and through links with wider communities.
It will also impact on classroom ethos
by encouraging increased opportunities for young people to experience
discussion and debate. The major IEA (CIVED, on civic and citizenship
education, and ICCS09, on civic and citizenship education policies and
practices) studies both underline the key role of an open classroom
climate in promoting higher levels of civic knowledge among young
people.
39. The framework, if designed and implemented successfully, will
have a profound and positive impact on the functioning of education
systems and on the functioning of society. It will help to deliver
one of the fundamental goals driving DC/HR/ID, as set out in the
Council of Europe Charter on education for democratic citizenship
and human rights education which is “equipping learners with knowledge,
understanding and skills, but also empowering them with the readiness
to take action in society in the defence and promotion of human rights,
democracy and the rule of law”.
This will be a great accomplishment
and will be worth all the efforts in developing the framework and
supporting its implementation across education systems.
40. The CD/DH/DI framework of reference is all the more necessary
as, in many countries today, there are no effective means of validating
young people’s learning and experience in these areas and no means
of assessing to what extent they have strengthened these skills.
4. Establishing
a strategy and ensuring the necessary political support for optimum
implementation of such a framework at European level
41. As far as the policy design
and implementation strategy for this framework of reference is concerned,
I believe it is worth making a preliminary remark: in a way, the
situation is similar to the one that prompted the Council of Europe
to draw up the Common European Framework of Reference of Languages
(CEFR).
For example, the methodology of the
latter, which takes account of several levels of “individual ability”
to use a language, namely the ability to communicate, thus going
beyond the stage in which mechanically learned vocabulary is assessed,
is highly relevant, even though drawing up a framework of competences
for democratic citizenship, human rights and intercultural dialogue
is likely to be more complex.
42. The reference levels of the CEFR provide descriptors of competences
that can be used to determine language learning objectives and assess
the results achieved, namely what the learner is capable of doing
in the target language and the quality of his/her performance in
the use of that language. It was important to possess examples of
easy-to-use descriptors. In the CEFR, they are referred to in a
concise, clear and concrete way as “Can do” statements, so that
they are easily understood by everyone concerned, including learners.
The CEFR is not limited to standardising levels of proficiency and
scales of descriptors but also includes examples of scenarios for
implementing linguistic diversity in the curriculum and developing multilingual
and multicultural education, in accordance with the educational
values and principles of the Council of Europe.
43. The CEFR remains a dynamic instrument that can be expanded
to take account of the development of the context and particular
needs. It has been supplemented by a series of guides and practical
tools developed to facilitate its implementation: guides for different
user categories and contexts; video and written aids illustrating
each level of proficiency; guides describing how to relate language
examinations to the CEFR reference levels in a valid and reliable
way; guide for the development of language tests and examinations;
and a specific website providing numerous practical resources.
44. Taking account of “what works” in DC/HR/ID and the experience
gained with the CEFR, it seems to me that the optimum policy design
and implementation strategy for a framework of competences in DC/HR/ID should
contain five key elements:
- preparing
the ground;
- making implementation as smooth, flexible and adaptable
as possible;
- being aware of the interrelated stages of the “Policy
Cycle” for DC/HR/ID and looking to ensure that all the stages are
properly addressed;
- continually monitoring, assessing and reviewing;
- promoting the outcomes and benefits
4.1. Preparing
the ground
45. The current varying levels
of understanding about and engagement with DC/HR/ID among policy
makers suggests the need to prepare the ground for a framework of
competences in DC/HR/ID across Europe. This should consist of four
stages. Stage one is to campaign, with evidence, to improve the
awareness about and understanding of DC/HR/ID among policy makers.
This should include understanding of democratic citizenship, human
rights and intercultural dialogue as individual dimensions as well
as collectively.
46. Stage two is to convince policy makers of the coherence and
value of a framework of competences in DC/HR/ID. In this connection,
we are delighted that the framework of competences required for
a culture of democracy and intercultural dialogue is one of the
key elements of the “Council of Europe Action Plan on the fight
against violent extremism and radicalisation leading to terrorism”
adopted by the Committee of Ministers on 19 May 2015.
The project will also be part of
another transversal Action Plan, currently in preparation, on “Building
inclusive societies”. This is an example of clear political support
for the acquisition of competences in line with the values of democracy
and human rights. The link between DC/HR/ID education and efforts
to combat radicalisation of young people through education was also
underlined by the UNESCO Director General, Irina Bokova, and the
US Deputy Secretary of State, Anthony Blinken, at a meeting on the
subject held in Paris on 6 November 2015 during the 38th UNESCO
General Conference.
47. Stage three is to persuade policy makers that such a framework
can enhance other key education areas – languages, mathematics and
science – and the overall functioning of education systems and quality
of education. Stage four is that the framework can be tied in with
supporting developments such as skills for life and the promotion
of global competence through PISA 2018.
4.2. Making
implementation as smooth, flexible and adaptable as possible
48. It will be important to construct
a robust, overarching framework, but one that is flexible and adaptable to
the diversity of approaches to and contexts for DC/HR/ID within
and across European education systems. The framework should contain
a clear definition of what competence in DC/HR/ID means in terms
of knowledge, understanding, skills, attitudes, values and behaviours.
It should then enable European countries to decide how best to integrate
it with existing policies and practices. The multidimensionality
of the framework and States’ ability to adapt it to their specific
contexts will be central to its successful implementation.
4.3. Being
aware of the interrelated stages of the “Policy Cycle” for DC/HR/ID
and looking to ensure that all the stages are properly addressed
49. The Policy Cycle for EDC/HRE,
as set out by the Council of Europe based on existing policy and
practice in European countries, provides a helpful aide-memoire
for policy makers concerning the policy design and implementation
strategy for the framework. The three stages of the Cycle – policy
formation, policy implementation and policy review and sustainability
– are precisely the stages that will need to be successfully negotiated
if the framework of competences in DC/HR/ID is to be successfully
designed and taken up by European countries in a consistent way.
It will be important for policy makers to be aware of the existence
of “implementation gaps” between policy formation and policy implementation
and the need to address them. In terms of the various stages of
the Policy Cycle, there is a number of areas that need to addressed
in the implementation strategy for the framework.
Policy formation:
- encouragement
of policies that link teaching and learning about DC/HR/ID with
opportunities to put that teaching and learning into practice through
active or participatory experiences;
- support for policies that promote democratic governance
across institutions and the involvement of young people;
- development of policies across all education phases and
sectors from pre-school, primary and secondary through to tertiary
phases.
Policy implementation:
- provision
of adequate financial assistance and resources for DC/HR/ID;
- development of a considerable programme of training across
all education phases and for school leaders, teachers and support
staff to raise awareness about and confidence in approaching DC/HR/ID;
- building of robust assessment and validation measures
and frameworks that enable the measurement of the development of
competence in DC/HR/ID for both young people and education institutions.
Policy review and sustainability:
- need to be clear about the intended outcomes of the framework;
- importance of constructing measures and an evidence base
to monitor and measure outcomes;
- need to have a dissemination strategy to promote and share
outcomes.
4.4. Continually
monitoring, assessing and reviewing
50. Though the framework is still
at the development stage, it will be important that thought is given
to the outcomes of the framework and how the functioning of the
framework will be continually monitored and assessed within and
across European countries. How the outcomes are used, in terms of
strengthening the framework and making it more sustainable in the
future, will also be an important dimension of this work.
51. The development of competence descriptors has advanced considerably:
around 650 descriptors (20 to 40 per competence) were tested with
teachers and other education professionals during summer 2015 via
an online survey. The education professionals linked each descriptor
to a given competence. Various networks of professionals took part
in the exercise. A new bank of descriptors is being developed in
preparation for more practical piloting in classroom situations
in 2016.
52. A Conference of Ministers of Education will be held in spring
2016. The competences for democratic culture will be one of the
key focuses of the conference, which will provide an opportunity
to stress the importance of encouraging educators to take part in
this piloting process. Meanwhile, work on supporting documents linking
the competences to curriculum design, pedagogy and assessment, etc.
will begin and the whole framework should come together in time
for publication at the end of 2017.
4.5. Promoting
the outcomes and benefits
53. The intended outcomes and impact
of the framework are likely to be considerable, impacting on education
systems in general and all those who engage with and in them – participants,
practitioners and stakeholders. It will therefore be crucial to
the design and implementation of the framework of competences in DC/HR/ID
that consideration is given as to how to publicly promote the outcomes
and benefits of the framework to a wide range of audiences both
within and across European countries. Such promotion will be crucial
if the framework is to be successfully integrated into the daily
policies and practices of education systems and of society at large.
5. Closing
remarks
54. Education – both formal and
non-formal – must foster the development of the competences and knowledge
needed for “living together”.
55. In addition to such competences as adaptability, the ability
to listen and involve others, critical thinking and the ability
to assess context, a key competence is being able to take differences
in perspective into consideration. Specific work has been done at
the Council of Europe on the question of multiperspectivity in the
teaching of history and should be borne in mind when drawing up
the framework of competences for democratic citizenship, human rights
and intercultural dialogue.
56. Language skills, that is proficiency in foreign languages,
also promote intercultural dialogue: the ability to directly initiate
a dialogue with people from various countries and representing different
cultures helps to break down barriers. In addition, knowledge of
a language, which is the key vehicle of the culture that it embodies,
also enables a person to engage more directly and in greater depth
with the culture in question and is therefore complementary to open-mindedness
and multiperspectivity.
57. The acquisition of civic knowledge is a bedrock for building
positive attitudes and behaviours. Recent studies
highlight
the positive correlation between civic knowledge and future participation
levels, and also with positive attitudes to equality and fairness
in society. There is also clear evidence from the Citizenship Education
Longitudinal Study (CELS) in England that receiving regular teaching
about DC/HR/ID, planned and delivered by specialist teachers, which
also includes robust assessment measures, increases civic knowledge and
influences the attitudes and behaviour of young people. However,
education systems must not simply dispense theoretical knowledge
on democracy, but must also endeavour to develop democratic participation and
governance in all areas of life, beginning with school.
They must equip young
people with practical skills that will enable them to address future
challenges in their lives and in society.
58. The education systems in Europe have not achieved all the
expected outcomes; we must therefore question existing arrangements
and seek new solutions. In particular, I believe that more humanist
and humanitarian education must be provided. Besides national focus,
there is a need for a more international and European focus. The
report by the member of the French Senate, Jacques Grosperrin, underlines
this aspect:
“Several of the persons heard by
the commission of inquiry expressed concern about the decline in the
teaching of humanities. For instance, Mr Jean-Pierre Chevènement,
former Education Minister, said that it was unfortunate that ‘the
great works of literature are no longer taught and the national
narrative has been broken’. As vectors of a shared cultural and
historical heritage and ‘transmission as much as interpretation disciplines’,
the humanities present numerous opportunities for asking questions,
giving explanations and fostering commitment to the values of the
Republic. … Similarly, Mr Philippe Meirieu said that the teaching
of the humanities and literature was vital, as they ‘greatly foster
cohesion and the sense of belonging to a common humanity’.”
59. The Progress Report of the World Programme for Human Rights
Education draws attention to the need to look not only at the competences
of learners, but also at the competences of teachers and trainers
in human rights education.
60. It will be necessary, in particular, to adapt curricula and
teacher training, to deal with potential perception barriers (for
example those resulting from racism and xenophobia), to provide
the required (additional) financial means to DC/HR/ID programmes,
to ensure proper “recognition” of learning outcomes in DC/HR/ID
and deliver an effective validation
system, capable of assessing not only substantive knowledge in DC/HR/ID,
but also the acquisition of suitable attitudes and values.