In Sweden - Education - Education system - Responsibilities and administration

 

 

RESPONSIBILITIES AND ADMINISTRATION

Background

Sweden covers a total area of 450,000 km2, with a population nearly of 8.9 million. The national language is Swedish. For many centuries, Sweden was ethnically and linguistically very homogeneous with two exceptions - the Finnish-speaking population of the northeast and the Sami (Lapps). Today, approximately one million of Sweden’s total population are immigrants or have at least one immigrant parent. Immigrants include citizens from other Nordic countries.
Sweden is a constitutional monarchy with a parliamentary form of government. The King, Carl XVI Gustaf, has only ceremonial functions as Head of State and the formal power of governmental decision rests with the Government. The Parliament (the Riksdag) is the country’s highest decision-making body. It consists of one chamber, whose 349 members are elected by proportional representation for four-year terms. With the exception of altogether nine years (1976-82 and 1991-94) of non-socialist rule, the Social Democrats have been in power from 1932 until today, either alone or in coalition with other parties. The social democratic minority government, formed after the elections in 1994, remained in power after the elections in 1998. Local government is exercised through the 21 county councils and 289 municipalities.
In 1997 around 85% of the population belonged to the lutheran Church of Sweden. In 1998 the unemployment rate was 6.5%. The same year 74% of Swedish men and 69% of Swedish women (in ages of 16-64 years) were gainfully employed. The main employment sectors were as follows:

 

Basis of the education system: principles and legislation

Principles

One fundamental principle of the Swedish education system is that everybody must have access to equivalent education, regardless of sex, ethnic and social background and of place of residence.

Pre-school class, compulsory school and upper secondary school are all comprehensive, designed to accomodate all members of the young generation, and all schools are co-educational. The curricula for the various school forms are valid nationwide.

Higher education is mainly public and always free of cahrge. Higher education institutions are located all over the country, with the aim of guaranteeing everybody access to higher education, irrespective of place of residence.

Adult education in Sweden has a long history and options for further and continuing education are available in many different forms throughout the country. Education for adults equivalent to the education conferred by the compulsory and upper secondary school is part of the public school system. This gives everybody the possibility to make up compulsory and upper secondary school and to rejoin the formal system of credentials. Swedish education is thus a structurally uniform education system from elementary level via upper secondary schooling to adult education.

In addition to this, various financial schemes permit student in upper secondary, afult and higher education to finance their studies.

Legislation

State regulations for the education system are set out in the Education Act, the Higher Education Act and in a number of ordinances. Pre-school activities, child care for scholl aged children and the pre-school class have been regulated since 1998 under the Education Act. Earlier these or similar provisions were a part of the Social Services Act. Legislation is passed by Parliament while the Government issues the ordinances.

Distribution of responsibilities for the organisation and administration of the education system

Overall responsibility for education in Sweden is borne by Parliament and the Government. With the exception of the Swedish University of Agricultural Sciences, which comes under the Ministry of Agriculture, the Police Academy, which comes under the Ministry of Justice, military training, which is the responsibility of the Ministry of Defence, and labour market training, which is the responsibility of the Ministry of Industry, Employment and Communications, all education and vocational training comes under the auspices of the Ministry of Education and Science, from pre-school to higher education and research.

The ministries are rather small units, consisting of 150 employees on average. They are mainly concerned with preparing the Government’s bills to Parliament and issuing laws, regulations and general rules for the central administrative agencies. These agencies have a relatively independent position and are responsible for the enforcement of laws and Government decisions. This division of tasks between ministries and central administrative agencies is a characteristic feature of the Swedish administrative system.

Responsible for the provision of education under the Ministry of Education and Science are mainly the State, the county councils, the municipalities and private organizers. Practically all public education in Sweden below university level is operated by the municipalities, while most higher education institutions are run by the central government although decisions in several important areas have been decentralized to hte universities and university colleges.

Education in Sweden has traditionally been organized within the public sector. For many years control of activities within the system of education was heavily centralized. Through legislation, regulations and curricula the State issued detailed instructions and rules on educational activities, and on spending of State grants. The education system has, however, undergone fundamental reforms during the last decade which have changed the role of the State.

During the 1980’s and the beginning of the 1990’s public administration underwent far-reaching decentralisation of responsibilities as a goal- and result-oriented steering system was introduced. As regards the educational system - schools as well as institutions of higher education - the State has gradually switched from laying down rules to the approach based on goals and results. The local authorities were secured extensive autonomy in administrating the schools within the framework set out by the Government. Decisions in several important areas were decentralized from the central level to the institutions of higher education.

The main principal of the distribution of responsibilities in the Swedish education system at present is that Parliament and the Government should control educational activities by defining national objectives, while national and local authorities and the organizers of the different institutions are responsible for ensuring that activities are implemented in line with these national objectives and achieve the necessary results.

Administration

Central level
Legislation is passed by Parliament which also decides on the funding of Government appropriations to the education system. The Government issues the Ordinances as well as general guidelines applying to various types of education and decides on the distribution of Government appropriations. For the school system the Government also lays down the curricula and syllabi.

The State is responsible for ensuring the monitoring and evaluation of all educational activities as well as for the central development and improvement of the education system. The State is also responsible for providing financial assistance to students. Subject to the authority of Parliament and the Government, these State functions in the education system are performed by central government agencies, immediately subordinate to the Ministry of Education and Science.

As regards the school system, the main central authority responsible for the supervision is the National Agency for Education (Skolverket). Its foremost responsibilities include national monitoring, evaluation and supervision of all school activities, and central development work within the school sector. The Agency is also responsible for ensuring that research is undertaken and that in-service training is arranged for teachers. The Agency itself, arranges basic training for school heads and some in-service training for teachers. School inspectors are appointed for a year at a time by the Agency.

Concerning higher education monitoring and evaluation of the activities of universities and university colleges is, at national level, entrusted to the National Agency for Higher Education (Högskoleverket). The National Agency for Higher Education has the following main tasks: follow-up and evaluation, production of a yearly report on higher education in Sweden, quality assessment, surveillance and investigation, supervision that laws and regulations within the field of higher education are observed, information and recognition of international degrees and the university aptitude test. The National Admission Office to Higher education (Verket för högskoleservice) is primarily funded by the universities and the university colleges themselves. Its main tasks are to co-ordinate the admission of students and purchase expensive equipment.

The National Board of Student Aid (Centrala studiestödsnämnden) is responsible for the administration, observation and evaluation of financial support to students for post-compulsory studies in Sweden and abroad.

The national agencies submit annual reports about their activities to the Government. In addition the National Agency for Education and the National Agency for Higher Education are, at intervals, to provide Parliament and the Government with a comprehensive picture of the situation within their field of responsibility together with data for the long-term national development of the education sector.

Statistical data on educational activities are also collected by Statistics Sweden.

Local level
Practically all public education in Sweden below university level is operated by the municipalities.

These are bound by law and regulations to provide a number of basic services, of which education is one.

Each municipal council appoints one or more committees which have the responsibility to ensure that educational activities are conducted in compliance with State regulations and guidelines and that the external conditions of education are as appropriate and favourable as possible. The committee or committees responsible for schools are obliged to ensure that i.e. schools are built and sufficient facilities are provided, that the activities of schools in the municipality are coordinated, that qualified teachers and schools staff are hired and receive in-service training, that municipal funds are allocated for school activities, that it is made possible to achieve the objectives laid down in the curricula and that the general guidelines are complied with. In practice, it is the responsibility of the municipalities to ensure that Swedish schools uphold equivalent standards all over the country.

On the basis of the Education Act, the curriculum and the syllabuses every municipality is required to set out the general objectives for its schools in a school plan, adopted by the municipal council. The measures the municipality intends taking in order to attain the national goals for the school shall be clearly stated. The municipality is obliged to monitor and evaluate the school plan, to provide the State with reports on facts and circumstances of relevance for the evaluation of educational activities as well as quality audits. In addition, every school has to devise a work plan, see below under "institutional level".

The organization of administration within a municipality, such as the inclusion of one or more schools in a school head’s school management district or the allocation of responsibilities and financing, varies from one municipality to another.

Some few study programmes within upper secondary education are provided by the county councils, which also appoint one or more committees having the responsibility to ensure that educational activities are conducted in compliance with State regulations and guidelines and that the external conditions of education are as appropriate and favourable as possible.

Institutional level
In addition to the school plan adopted by the municipal council, every school has to devise a work plan based on the curriculum and local priorities. The local work plan shall not only specify how the goals are to be realised, but also how the activity is to be drawn up and organised. Goals for the work of the school of the school as a whole are thus set up. The work plan is also to be monitored and evaluated. Teachers and pupils together draw up learning goals, which in combination with the needs and preconditions of different groups of pupils provide the basis for selecting different working methods.

Most of the higher education institutions are run by the Government, however decisions in several important areas are decentralised to the universities and university colleges. The Government lays down certain objectives and parameters - mainly financial - while the organization of study - the design of study programmes and the content of courses, the use of available resources and the principles of admissions procedures are decided by the universities and university colleges themselves.

Inspection/supervision/guidance

Now that the administration of the education system is based on objectives and results, the State and local authorities, as well as individual schools and institutions of higher education are required to systematically monitor and evaluate educational activities in relation to the objectives and conditions applying to them. As mentioned above, the National Agency for Education and the National Agency for Higher Education monitor and evaluate the system at national level.

The Government has decided on several measures in order to strengthen quality control in school education, i.e. a new supervisory organisation with state education inspectors. In addition to supervise the quality of education in schools they shall also promote the development of local quality work. The inspectors, appointed for a year at a time by the National Agency for Education, will consider different aspects of schooling each year. In 1999 the state inspectors are amongst other things examining how schools are working to counteract mobbing.

Financing

The funding of school-level education is shared between central and local governments. The municipal tax revenue is the main income of the local government. As a supplement to this the local government receives a state grant of dual character, consisting of both pure grants as well as tax and structural equalisation. The structural equalisation part is determined by several underlying factors, i.e. population and structurally related cost differences. Each municipality has the sovereign right to decide on the allocation of resources and the organisation of activities, within its field of responsibility.

State funding, then, is not directly linked to school organization; the municipalities are free to use the grant for the educational services or other activities. In a growing number of municipalities the committee(s) entrusts to each school an overall budget for salaries, the costs of teaching materials and equipment, rents and income from, for example, letting school premises. However, if a municipality seriously disregards its obligations under the Education Act, or under regulations issued on the basis of the Act, the Government has a right to intervene. Government intervention has, however, so far never been necessary.

In addition, there are still special State grants for research and development, in-service training for school staff and measures for intellectually handicapped pupils, and for a number of independent upper secondary schools.

Teaching materials and school meals in compulsory school are free of charge to the individual; in most municipalities, this also applies to upper secondary pupils. The municipalities are obliged to provide free school transport for compulsory school pupils; but not for pupils who choose to attend a school different from that proposed by the municipality.

All pupils between 16 and 20 years of age who are attending upper secondary education receive State financial support. This also applies to pupils attending private schools if their studies come under State supervision. Financial support to students at upper secondary level comprises a general study grant, representing a continuation of child allowance, payable to all pupils from the age of 16, and a needs-tested grant towards the cost of studies and daily travel.

Higher education is financed directly from the state. Appropriations for universities and university colleges are based on proposals from the Government and made out as lumpsums from Parliament to each institution. The basic principles of the allocation system is that appropriations are made as a renumeration for results achieved. Results refer to the number of credit points earned by students and the number of full-time equivalent students taught at the institution.

All public higher education in Sweden is free of charge for the students. According to their individual economic situation (the family’s means excluded), students are awarded both non-repayable grants and low interest loans.

Advisory and consultative bodies

Within the school system, teachers’ organisations and other employees organisations are entitled, under the Codetermination Act, to receive information on and to influence impending decisions. Pupils’ rights are enshrined in the Education Act, but their practical implementation is decided locally. In the compulsory school, it is the school head’s duty, (usually performed by the teachers) to provide information to and consult pupils and parents on matters which are of importance to the pupils and concern the entire school. Parents are organized in parents’ or parent-teacher associations and are able to influence school work in this way. At national level, the National School and Home Union is often consulted.

In 1996, a government bill came in force stating that the municipalities have the right to establish local boards in compulsory education consisting of head teachers, staff representatives and with parents in the majority. There are also municipalities which on trial arrange local boards with pupils in the majority in upper secondary schools. These are pilot projects which will continue until 2001. Within a municipality, it is possible that only certain schools, or even certain classes or working units are embraced by the local boards.

Cooperation with the surrounding society has been added as a third task for universities and university colleges besides education and research (or artistic development work). The governing boards of the universities and university colleges consist of a majority of external members (i.e. representatives from trade and industry, municipalities and county councils). This way, experience from different parts of society may enrichen and influence the management of higher education institutions. As of 1998 the chairman of the governing board shall be a person who has his/her main responsibilities outside the university or university college concerned

The student’s right to be represented in councils and governing boards of the universities and university colleges, dealing with educational matter, is enshrined in the Higher Education Act and the Higher Education Ordinance. At least three students shall be representatives in each council or governing board.

Furthermore, students at Swedish universities and university colleges are required to become members of a student union. At each institution of higher education there are one or more such organisations. They function as "trade unions" on behalf of students and, among other things nominate the student representatives to the various governing bodies in the universities and university colleges. They are also responsible for a considerable share of student welfare services and social activities.

Private institutions

In the middle of the 1980’s some possibilities were opended up for private organisers to receive public funding for child care. These possibilities were reinforced in the beginning of the 1990’s. The number of private pre-schools (with municipal funding support) have increased steadily since then. In 1996 they accounted for 12 per cent of all pre-schools.

The conditions for private institutions at school level in Sweden have also changed over the last decade. New possibilities have been opened up for private organisers to operate within the system. The percentage of pupils in independent (private) schools, at a level equivalent of compulsory and upper secondary schools, is now approximately three per cent. The number of private schools at compulsory level has more than doubled since the School Funding Act was implemented in 1992.

Independent schools must, in the same way as municipal schools, be based on a democratic foundation and characterised by democratic values, openness, tolerance, objectivity and versatility. Nearly half of the independent schools have a specific pedagogical orientation, such as the Montessori or Rudolf Steiner methods; others are denominational or have a more general pedagogical approach.

The municipalities are obligated, by law to award grants to approved independent compulsory schools according to the same criteria as those applied to the municipality's own schools. Education at an independent compulsory school that receives a public grant is free of charge. The National Agency for Education approves the independent compulsory schools entitled to grants, and also exercises supervision over the independent schools. Regarding independent schools that receive municipal grants, the municipality in which a school is located is entitled to inspect the school's activity.

The principle that all independent schools should be open to everyone is written in the Education Act. It is incumbent on the independent schools to offer school health care and home-language instruction.

There are two types of independent non-compulsory schools - independent upper secondary schools and 'supplementary' schools. Education at an independent upper secondary school must provide pupils with knowledge and skills equivalent to that received from a municipal school, and must also in other respects reach up to the general goals of the upper secondary school. The National Agency for Education tries out the eligibility for public support. The municipality where the pupil is resident is responsible for making payments to the independent school if the National Agency for Education has declared that the school is entitled to a grant.

Courses of study at supplementary schools are either based on completed upper secondary studies and/or job experience, and provide study programmes not offered by upper secondary schools and which are not university or university college education. The Government may grant a supplementary school the right to state funds if the course of study constitutes a valuable complement, from a national viewpoint, to existing courses of study. Assistance takes the form either of state supervision - which gives pupils the right to grants - or of both state supervision and grants.

There are few private institutions within higher education. Recognition by the Government now implies placement in one of two categories: those given the right to award degrees and those which in addition receive State subsidies to assist with operational costs. Students at an independent university or university college with a right to award degrees have the right to receive financial support.

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