Præmier og præstationer: skolelederes meningsskabelse

Forfattere

  • Per Nikolaj Bukh
  • Karina Skovvang Christensen
  • Morten Lund Poulsen
  • Anne Kirstine Svanholt

DOI:

https://doi.org/10.22439/sis.v36i6.6425

Nøgleord:

Folkeskolen, resultatbaseret styring, resultatbudgettering, sensemaking, skolepuljen, teaching-to-the-test, tilbageløbseffekter, økonomistyring

Resumé

Med henblik på at reducere andelen af lavt præsterende elever ved afgangseksamenerne i folkeskolen vedtog Folketinget i 2016 den såkaldte skolepulje. Formålet var at give udvalgte skoler et økonomisk incitament til at reducere andelen af lavtpræsterende elever. Denne artikel fokuserer på, hvordan skoleledere opfattede skolepuljen og de initiativer, der blev taget som følge heraf. Vi fokuserer især på, om der forekom negative tilbageløbseffekter (washback), dvs. uønskede påvirkninger af undervisning eller elever. Artiklen er baseret på semistrukturerede interviews gennemført med skoleledere. I analysen anvendes meningsskabelse (sensemaking) som en teoretisk linse til at undersøge, hvordan ledere skaber nye meninger, når nye initiativer igangsættes som konsekvens af skolepuljen. Resultaterne indikerer, at puljens resultatbaserede finansiering påvirkede undervisningspraksis på samme måde som tilbageløbseffekterne fra standardiserede elevtests. Dog blev skolepuljen og dens virkninger generelt oplevet som positive. Undersøgelsen viser desuden, at skoleledere spiller en vigtig rolle for, hvordan skoler reagerer på resultatbaseret finansiering.

Forfatterbiografier

Per Nikolaj Bukh

Per Nikolaj Bukh er cand.oecon. og ph.d. samt professor i økonomistyring ved Aalborg Universitet

Karina Skovvang Christensen

Karina Skovvang Christensen er cand.oecon. og ph.d. samt lektor ved Institut for Økonomi, Aarhus Universitet.

Morten Lund Poulsen

Morten Lund Poulsen er cand.mag. i filosofi og ph.d.-studerende ved Institut for Økonomi, Aarhus Universitet.

Anne Kirstine Svanholt

Anne Kirstine Svanholt er cand.soc. i udviklingsstudier fra Aalborg Universitet og enhedsleder i socialforvaltningen, Københavns Kommune.

Referencer

Akpinar, K.D. & B. Cakildere. (2013). Washback Effects of High-stakes Language Tests of Turkey (KPDS and ÜDS) on Productive and Receptive Skills of Academic Personnel, Journal of Language and Linguistic Studies, 9(2), 81-94.

Alderson, J. C. & D. Wall. (1993). Does Washback Exist?, Applied Linguistics, 14(2), 115-129. doi: 10.1093/applin/14.2.115. https://doi.org/10.1093/applin/14.2.115

Al-Samarrai, S., U. Srestha, A. Hasan, N. Nakajima, S. Santoso & W. H. A. Wijoyo. (2018). Introducing a Performance-Based Component into Jakarta’s School Grants: What Do We Know About Its Impact After Three Years?, Economics of Education Review, 67, 110-136. https://doi.org/10.1016/j.econedurev.2018.10.005

Amrein-Beardsley, A. (2009). The Unintended, Pernicious Consequences of “Staying the Course on the United States’ No Child Left Behind Policy”, International Journal of Education Policy and Leadership, 4(6), 1-13. doi: 10.22230/ijepl.2009v4n6a199.

Andersen, S. C., L. M. Andreassen, G. S. Harrits, U. Hvidman, M. V. Kristensen & S. Munkedal. (2019) Evaluering af skolepuljen: 1. midtvejsrapport, Aarhus, Trygfondens Børneforskningscenter.

Andersen, S. C., L. M. Andreassen, G. S. Harrits, C. G. Jensen, S. Y. Junge & S. Munkedal. (2020) Evaluering af skolepuljen: 2. midtvejsrapport, Aarhus, Trygfondens Børneforskningscenter.

Andersen, M. M., R. Dilling-Hansen & A. V. Hansen. (2020). Expanding the Concept of Social Impact Bonds, bringes i Journal of Social Entrepreneurship, doi: 10.1080/19420676.2020.1806100

Andersen, L. B., C. B. Jacobsen, M. L. F. Jakobsen, T. Pallesen & S. Serritzslew. (2017). Økonomiske incitamenter i den offentlige sektor, 2. udgave. København: Hans Reitzels Forlag.

Andersen, S. C. & H. S. Nielsen. (2020). Learning From Performance Information, Journal of Public Administration Research and Theory, 30(3), 415-431. doi: 10.1093/jopart/muz036.

Ankestyrelsen. (2020). Tilsynsudtalelse om kommuners brug af private konsulenter på det sociale område. J.nr. 19-62648, J.nr. 19-62648, 24. juni 2020.

Au, W. (2007). High-Stakes Testing and Curricular Control: A Qualitative Metasynthesis, Educational Researcher, 36(5), 258–267. doi: 10.3102/0013189x07306523

Balogun, J. and Johnson, G. 2004. “Organizational restructuring and middle manager sensemaking”, Academy of Management Journal, 47(4), 523-549. https://doi.org/10.5465/20159600

Beuchert, L. V. & A. B. Nandrup. (2018). The Danish national tests at a glance, Danish Journal of Economics, (1), 1-37. https://doi.org/10.2139/ssrn.2996431

Biggs, J. B. (1995). Assumptions Underlying New Approaches to Educational Assessment, Curriculum Forum, 4(2), 1-22.

Bjerrild, S. (2017). Dumpekarakter til Løkkes præmiepulje, Folkeskolen, No. 20, pp. 14-19.
Blankenberg, B. & A. Phillips. (2016). Performance Funding in Illinois Higher Education: The Roles of Politics, Budget Environment, and Individual Actors in the Process, Educational Policy, 30(6), 884-915. doi:10.1177/0895904814556748.

Booher-Jennings, J. (2005). Below the Bubble: ‘Educational Triage’ and the Texas Accountability System, American Educational Research Journal, 42(2), 231–268. doi: 10.3102/00028312042002231.

Brill, F. J., K. Grayson, L. Kuhn & S. O’Donel. (2018). What Impact Does Accountability have on Curriculum, Standards and Engagement in Education? A Literature Review. Berkshire: National Foundation for Educational Research.

Bukh, P. N. & K. S. Christensen. (2020a). Tildelingsmodeller og effektbaserede principper i den offentlige sektor, Samfundslederskab i Skandinavien, 35(4), 207-249. https://doi.org/10.22439/sis.v35i4.6019

Bukh, P. N. & K. S. Christensen. (2020b). Effektbaserede ressourcetildelingsmodeller for forløbs- og periodebaserede indsatser, Samfundslederskab i Skandinavien, 35(6). https://doi.org/10.22439/sis.v35i6.6111
Bukh, P. N., K. S. Christensen & A. K. Svanholt. (2020a). Omkostningsbevidsthed i socialt arbejde: fra spændingsfelt til professionalisme, Tidsskrift for Professionsstudier. 31.

Bukh, P. N., K. S. Christensen & A. K. Svanholt. (2020b). Making sense of cost-consciousness in social work, Qualitative Research in Accounting & Management. https://doi.org/10.2139/ssrn.3721062

Bukh, P. N. & A. K. Svanholt. (2019). Styring i spændingsfeltet mellem vilde problemer og stramme budgetter, Samfundslederskab i Skandinavien, 34(3), 229-266. https://doi.org/10.22439/sis.v34i3.5812

Bukh, P. N. & A K. Svanholt. (2020). Empowering Middle Managers in Social Services Using Management Control Systems, Journal of Public Budgeting, Accounting & Financial Management, 32(2), 267-289. doi:10.1108/JPBAFM-06-2019-0096. https://doi.org/10.1108/JPBAFM-06-2019-0096

Burgess, S. M., C. Propper, H. Slater & D. Wilson. (2005). Who Wins and who Loses from School Accountability? The Distribution of Educational Gain in English Secondary Schools, Centre for Economic Policy Research, Discussion Paper No. 5248.

Børne- og Undervisningsministeriet (2017a). Pulje til løft af fagligt svage elever i folkeskolen, København, Danmark. https://www.uvm.dk/puljer-udbud-og-prisuddelinger/puljer/puljeoversigt/tidligere-udmeldte-puljer/grundskole/pulje-til-loeft-af-fagligt-svage-elever-i-folkeskolen-skolepuljen. (tilgået 20. juli 2020)

Børne- og Undervisningsministeriet (2017b). Program for elevløft. https://www.uvm.dk/folkeskolen/laeringskonsulenterne/pulje-til-elevloeft/program-for-elevloeft. (tilgået 20. juli 2020)

Cheng, L. (1999). Changing Assessment: Washback on Teacher Perceptions and Actions, Teaching and Teacher Education, 15(3), 253–271. doi: 10.1016/S0742-051X(98)00046-8. https://doi.org/10.1016/S0742-051X(98)00046-8

David, J. (2011). What students need to learn: High-stakes testing narrows the curriculum, Educational Leadership, 68(6), 78-80.

Deming, D. J., S. Cohodes, J. Jennings, & C. Jencks. (2016). School Accountability, Postsecondary Attainment, and Earnings, Review of Economics and Statistics, 98(5): 848–862. doi: 10.1162/REST_a_00598. https://doi.org/10.1162/REST_a_00598

Donaldson, M. L. & J. L. Papay. (2015). Teacher evaluation for accountability and development. I Handbook of Research in Education Finance and Policy, H. F. Ladd & M. E. Goertz (red.), 174-193. New York: Routledge

Dougherty, K.J., S. M. Jones, H. Lahr, R. S. Natow, L. Pheatt & V. Reddy, V. (2016), Performance Funding for Higher Education. Baltimore: John Hopkins University.
Edminston, D. & A. Nicholls. (2018). Social Impact Bonds: The Role of Private Capital in Outcome-Based Commissioning, Journal of Social Policy, 47(1), 57-76. doi: 10.1017/S0047279417000125

Edwards, N. R. & D. L. Mindrila. (2019). Improving Graduation Rates: Legitimate Practices and Gaming Strategies. Education Policy Analysis Archives 27 (41), 1–25. doi: 10.14507/epaa.27.4222.

Figlio, D. N., & H. F. Ladd. (2015). School Accountability and Student Achievement. In Handbook of Research in Education Finance and Policy, edited by H. F. Ladd and M. E. Goertz, 194–210. New York, NY: Routledge

Flick, U. (2009), An Introduction to Qualitative Research, 4th edition, London, Sage Publications.

Ganon-Shilon, A. & C. Schechter. (2018). School Principals’ Sensemaking of Their Leadership Role during Reform Implementation. International Journal of Leadership in Education 22(3), 279–300. doi: 10.1080/13603124.2018.1450996.

Gioia, D. A. & K. Chittipeddi. (1991), Sensemaking and sensegiving in strategic change initiation, Strategic Management Journal, 12(6), 433-448. https://doi.org/10.1002/smj.4250120604

Gioia, D. A. & J. B. Thomas. (1996), Identity, Image, and Issue Interpretation: Sensemaking During Strategic Change in Academia, Administrative Science Quarterly, 41(3), 370-403. https://doi.org/10.2307/2393936

Gunnulfsen, A. E. & A. Roe. (2018). Investigating teachers’ and school principals’ enactments of national testing policies: A Norwegian stud. Journal of Educational Administration, 56(3), 332-349. doi: 10.1108/JEA-04-2017-0035. https://doi.org/10.1108/JEA-04-2017-0035

Hammer, S. & J. Høpner. (2019). Meningsskabelse, organisering og ledelse: En introduktion til Weicks univers, 2. udgave, København: Samfundslitteratur.

Hardy, I., V. Reyes, & M. O. Hamid. (2019). Performative Practices and ‘Authentic Accountabilities’: Targeting Students, Targeting Learning? International Education Journal: Comparative Perspectives 18(1), 20–33.

Herbst, M. (2008). Financing Public Universities: The Case of Performance Funding. Dordrecht: Springer.

Holm, L. & K. B. Kousholt. (2019). Beyond Washback Effect: A Multi-disciplinary Approach Exploring How Testing Becomes Part of Everyday School Life Focused on the Construction of Pupils’ Cleverness, Annual Review of Critical Psychology, 16, 917–952.

Jacobsen, R., & R. Rothstein. (2015). Educational Goals: A Public Perspective. I Handbook of Research in Education Finance and Policy, H. F. Ladd and M. E. Goertz (eds.). New York: Routledge.

Jennings, J. L. & J. M. Bearak (2014). ’Teaching to the Test’ in the NCLB Era: How Test Predictability Affects our Understanding of Student Performance. Educational Researcher 43(8), 381–389. doi: 10.3102/0013189X14554449.

Jongbloed, B., & Vossensteyn, H (2016). University Funding and Student Funding: International Comparisons. Oxford Review of Economic Policy, 32(4), 576-595. doi: 10.1093/oxrep/grw029

Kelley, C. & J. Protsik. (1999). Risk and Reward: Perspectives on the Implementation of Kentucky’s School-Based Performance Award Program, Educational Administration Quarterly, 33(4): 474-505. doi: 10.1177/0013161X97033004004.

Koyama, J. (2014). Principals as Bricoleurs: Making Sense and Making Do in an Era of Accountability, Educational Administration Quarterly 50(2), 279–304. doi: 10.1177/0013161X13492796.

Kvale, S. (1996). InterViews: An Introduction to Qualitative Research Interviewing. Thousand Oaks: Sage.

Ladd, H. F. & R. P. Walsh. (2002). Implementing Value-Added Measures of School Effectiveness: Getting the Incentives Right, Economics of Education Review. 21(1), 1-17. doi: 10.1016/S0272-7757(00)00039-X.

Lambersky, J. (2016). Understanding the Human Side of School Leadership: Principals' Impact on Teachers' Moral, Self-Efficacy, Stress, and Commitment, Leadership and Policy in Schools, 15(4), 379–405. doi: 10.1080/15700763.2016.1181188.

Lavy, V. (2007). Using Performance-Based Pay to Improve the Quality of Teachers, The Future of Children 17(1), 87–109. doi: 10.1353/foc.2007.0007.

Lee, J. D. & O. Medina. (2018). Results-Based Financing in Education: Financing Results to Strengthen Systems. Results in Education for All Children (REACH), World Bank Group. https://doi.org/10.1596/31250

Lowenhaupt, R., J. P. Spillane & T. Hallett. (2016). Education Policy in Leadership Practice: “Accountability Talk” in Schools, Journal of School Leadership, 26(5), 783–810. doi: 10.1177/105268461602600503.

Li, A. Y., & Ortagus, J. C. (2019), Raising the Stakes: Impacts of the Complete College Tennessee Act on Underserved Student Enrollment and Sub-baccalaureate Credentials, The Review of Higher Education, 43(1), 295-333. doi: 10.1353/rhe.2019.0097
Lukka, K. & E. Vinnari. (2014), Domain theory and method theory in management accounting research, Accounting, Auditing & Accountability Journal, 27(8), 1308-1338. https://doi.org/10.1108/AAAJ-03-2013-1265

Madau, G. (1988). The influence of testing on the curriculum. I L. Tanner, red. The politics of reforming school administration. London: The Falmer Press, 83-121.

Maitlis, S. (2005). The social processes of organizational sensemaking, Academy of Management Journal, 48(1), 21-49. https://doi.org/10.5465/amj.2005.15993111

Maitlis, S. & M. Christianson. (2014). Sensemaking in organizations: taking stock and moving forward, The Academy of Management Annals, 8(1), 57-125. Maitlis, S. & M. Christianson.

(2014). Sensemaking in organizations: taking stock and moving forward, The Academy of Management Annals, 8(1), 57-125.https://doi.org/10.5465/19416520.2014.873177

Maitlis, S. & T. B. Lawrence. (2007). Triggers and Enablers of sensegiving in Organizations, The Academy of Management Journal, 50(1), 57-84. https://doi.org/10.5465/amj.2007.24160971

Martin-Rios, C. (2016), Innovative management control systems in knowledge work: a middle manager perspective, Journal of Management Control, 27, 181-204. https://doi.org/10.1007/s00187-015-0228-8

Miles, M. B., A. M. Huberman & J. Saldaña. (2014). Qualitative Data Analysis: A Methods Sourcebook, 3. udgave. Thousand Oaks, Sage.

Neal, D. & D. W. Schanzenbach. (2010). Left Behind by Design: Proficiency Counts and Test-Based Accountability, The Review of Economics and Statistics, 92(2), 263–283. doi: 10.1162/rest.2010.12318.

Paletta, A., E. Ferrari & G. Alimehmeti. (2019). How Principals use a new Accountability System to promote Change in Teacher Practices: Evidence from Italy. Educational Administration Quarterly, 46, 25–48. doi: 10.1177/0013161X19840398.

Popham, W. J. (2001). Teaching to the Test?, Educational Leadership, 58(6), 16–21.

Regeringen. (2016). Regeringens politik A til Å: Folkekolen, https://www.regeringen.dk/regeringens-politik-a-å/folkeskolen/ (tilgået 20. juli 2020)

Rutledge, S. A., D. N. Harris & W. K. Ingle. (2010). How principals ‘bridge and buffer’ the new demands of teacher quality and accountability: A mixed-methods analysis of teacher hiring, American Journal of Education, 116(2), 211-242. doi: 10.1086/649492

Saldaña, J. (2016). The Coding Manual for Qualitative Researchers, 3. udgave. Los Angeles: Sage.
Sandberg, J. & H. Tsoukas. (2015), Making sense of the sensemaking perspective: Its constituents, limitations, and opportunities for further development, Journal of Organizational Behavior, 36(2S). 6-32. DOI: 10.1002/job.1937

Shirrell, M. (2016). New principals, accountability, and commitment in low-performing schools, Journal of Educational Administration, 54(5), 558-574. doi 10.1108/JEA-08-2015-0069

Siverbo, S., M. Cäker & J. Åkesson. (2019). Conceptualizing dysfunctional consequences of performance measurement in the public sector, Public Management Review, 21(12), 1801-1823 doi: 10.1080/14719037.2019.1577906

Smith, P. C. (2007). Formula Funding of Public Services. Oxon: Routledge. https://doi.org/10.4324/9780203013021

Sonenshein, S. (2010). We´re changing–or are we? untangling the role of progressive, regressive, and stability narratives during strategic change implementation, Academy of Management Journal, 53(3), 477-512. https://doi.org/10.5465/amj.2010.51467638

Spillane, J. P., J. B. Diamond, P. Burch, T. Hallett, L. Jita & J. Zoltners. (2002). Managing in the Middle: School Leaders and the Enactment of Accountability Policy. Educational Policy 16(5), 731–762. doi: 10.1177/089590402237311.

Spillane, J. P. & A. W. Kenney. (2012). School Administration in a Changing Education Sector: The US Experience. Journal of Educational Administration 50, 541–561. doi: 10.1108/09578231211249817.

STIL. (2019). De socioøkonomiske referencer for grundskolekarakterer, Styrelsen for IT og læring, Børne- og Undervisningsministeriet. Tilgået fra https://www.uvm.dk/-/media/filer/uvm/stat/pdf19/191025-metodenotat-bag-om-de-sociookonomiske-referencer-for-grundskolekarakterer.pdf (tilgået 23. juli 2020)

Sundheds- og Ældreministeriet. (2019). Cirkulære om statsligt, resultatafhængigt tilskud i 2020 til regionernes sundhedsvæsen (Nærhedsfinansiering), CIR1H nr 10186 af 18/12/2019.

Undervisningsministeriet. (2013). Aftale om et fagligt løft af folkeskolen mellem regeringen (Socialdemokraterne, Radikale Venstre og Socialistisk Folkeparti), Venstre og Dansk Folkeparti. Tilgået fra https://www.uvm.dk/folkeskolen/folkeskolens-maal-love-og-regler/politiske-oplaeg-og-aftaler (tilgået 23. juli 2020)

Undervisningsministeriet. (2014). Improving the Public School: Overview of Reform of Standards in the Danish Public School (Primary and Lower Secondary Education), Copenhagen, Denmark. Tilgået fra https://www.uvm.dk/-/media/filer/uvm/publikationer/engelsksprogede/2014-improving-the-public-schools.pdf. (tilgået 20. juli 2020)

Undervisningsministeriet. (2018). Bekendtgørelse om pulje til løft af fagligt svage elever i folkeskolen, BEK no. 117 of 21/02/2018, København, Danmark.

Umbricht, M. R., F. Fernez & J. C. Ortagus. (2017). An Examination of the (Un)intended Consequences of Performance Funding in Higher Education. Educational Policy 31(5), 643–673. doi: 10.1177/0895904815614398.

Warner, M.E. (2013). Private finance for public goods: social impact bonds. Journal of Economic Policy Reform, 16(4), 303-319, doi: 10.1080/17487870.2013.835727

Weick, K.E. (1979). The Social Psychology of Organizing, 2. udgave, New York: McGraw-Hill.

Weick, K.E. (1995). Sensemaking in Organizations, Thousand Oaks: Sage.

Weick, K.E. (2001). Making Sense of the Organization. Oxford: Blackwell Publishing.

Weick, K.E. & K. M. Sutcliffe. (2003). Hospitals as cultures of entrapment: a re-analysis of the Bristol Royal Infirmary, California Management Review, 45(2), 73-84. https://doi.org/10.2307/41166166

de Wolf, I. F. &. F. J. G. Janssens. (2007). Effects and Side Effects of Inspections and Accountability in Education: An Overview of Empirical Studies. Oxford Review of Education, 33(3), 379–396. doi: 10.1080/03054980701366207.

Yuan, K., V. N. Le, D. F. McCaffrey, J. A. Marsh, L. S. Hamilton, B. M. Stecher & M. G. Springer. (2013). Incentive Pay Programs do not Affect Teacher Motivation or Reported Practices: Results from three Randomized Studies. Educational Evaluation and Policy Analysis, 35(1), 3–22. doi: 10.3102/0162373712462625.

Downloads

Publiceret

2021-12-01

Nummer

Sektion

Artikler