Karin Völkner, Council of Europe. Bilateral assistance activities of the Council of Europe in Bosnia and Herzegovina in the educational field

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1 Karin Völkner, Council of Europe Bilateral assistance activities of the Council of Europe in Bosnia and Herzegovina in the educational field The Council of Europe in brief The Council of Europe was the first political international organisation to be founded in Europe after the Second World War 1. It aims to protect human rights, pluralist democracy and the rule of law; to promote awareness and encourage the development of Europe s cultural identity and diversity; to seek solutions to problems facing European society 2 and to help consolidate democratic stability in Europe by backing political, legislative and constitutional reform. For the first 40 years of its existence, the Council of Europe remained an exclusively Western European organisation, where its membership was concerned, if not its areas of activity. Since the fall of the Berlin wall in 1989 the Organisation has undergone profound changes and has been faced with new challenges, namely to further the cause of continent-wide peace and stability. The Council of Europe gained fresh political impetus through summit meetings of heads of state and government in 1993 and In Vienna in 1993, the political leaders of the 32 states which were members of the Organisation at the time determined a course of action for enlargement. In Strasbourg in 1997, with 40 member states, political leaders adopted a new Plan of Action based on four broad 1 The Council of Europe was founded on 5 Mai 1949 in London by 10 countries (Belgium, Denmark, France, Ireland, Italy, Luxemburg, Netherlands, Norway, Sweden, United Kingdom). At the end of 1989 it had 23 member states, all West European. Today it counts 43 member states; the latest countries to join (in 2001) were Armenia and Azerbaijan.

2 themes: democracy and human rights, social cohesion, security of citizens and education for democracy and cultural diversity. This roughly defines the priorities of the Council s ongoing programme of work. The Council of Europe gives a shifting geographical priority to regions of greatest need in terms of democratic security currently the Caucasus and Southeast Europe. Education in the Council of Europe 3 The Council of Europe faces the major political challenge of supporting its new, pan- European membership in their long-term preparation for European integration. This membership is culturally very diverse and extremely unequal in material resources. There are also wide differences in areas such as e.g. environmental protection or health care, as well as in the invisible conventions of a democratic culture. The challenge for education in the newer member states is not only to create the preconditions for rapid economic growth but also for a fully democratic society. Education is the central tool of policy in making up the knowledge deficits, and capitalising on the knowledge strengths, which increasingly determine the fate of nations as well as the prospects of individuals. But in spite of strong traditions, education in most post-communist countries faces severe structural problems. The Council of Europe can play an important role in giving sustained help to the newer member states. In education, as in other fields, it possesses: - a common fund of shared values; - an evolving body of standards and good practice translating these values into practical policy (the aquis); - institutional mechanisms, especially the specialised committees and the annual work programme, allowing all members to take part as equals in the development, renewal and dissemination of the aquis. 2 Some issues : Racism, intolerance, discrimination against minorities, drug abuse, social exclusion, environmental pollution, corruption and organised crime. Questions of bioethics are also addressed.

3 At the 20 th session of their Standing Conference in October 2000, in Cracow, the European Ministers of Education recognized that the traditional multilateral cooperation and the new (bilateral, regional) assistence activities are now complementary pillars of a single multilateral project. Education for democratic citizenship (EDC) in the Council of Europe: broad definition and activities It is especially since the second summit of heads of state and government in 1997 that education for democratic citizenship is considered a Council of Europe priority. From February September 2000 the Council of Europe carried out an exploratory project on EDC. The Council of Europe defines EDC as a multi-facetted concept, touching on political, social, economic, cultural, environmental and ethical aspects of modern democratic societies. A process of lifelong learning, education for democratic citizenship can take place in formal, non-formal and informal learning environments, e.g. schools and universities, families, workplaces or grassroots projects. EDC aims at the active and responsible participation of the individual in democratic life, at the creation of innovative partnerships between different democratic institutions/groups, at equity, solidarity, and social cohesion. EDC policies foster alternative and participatory pedagogical initiatives in schools and other learning contexts. The EDC project was multi-dimensional and holistic and had as its principal issues : participation, partnership, social cohesion, intercultural communication, conflict resolution, democratisation of community relations and the school. 3 «Partnerships for Educational Renewal», Annual report , prepared by the Secretariat (CC- HER (2001) 37 / CC-ED (2001) 38 rev.

4 Follow-up EDC activities ( programme) have moved beyond the exploratory realm and focus on EDC policy development, networking and communication and awareness aising. 4 Since 1996, bilateral assistance activities have been carried out in Bosnia and Herzegovina in higher education, human rights and citizenship education and teacher training. Many of them belong in the larger framework of education for democratic citizenship and human rights in the Council of Europe. In the following, I would like to present two particular examples: - the development of the human rights education curriculum and introductory teacher training in the two political entities of Bosnia and Herzegovina, the Federation and the Republika Srbska, which took place in 2001 as a cooperative effort of the two Education Ministries, Civitas BiH, the Center for Civic Education, Calabasas, USA, and the Council of Europe; - WKH KXPDQ ULJKWV HGXFDWLRQ WHDFKHU WUDLQLQJ SURJUDPPHLQWKH%UþNRGLVWULFW (international protectorate within BiH), which could serve as a model for possible follow up activities to the above training programme. The human rights education curriculum and teacher training in Bosnia and Herzegovina in 2001 Background In September 2001 a new programme entitled Education for Democracy and Human Rights was introduced into all secondary schools in Bosnia and Herzegovina, replacing the subject National Defence. The process of change from a subject like National Defence with its military overtones to human rights education was an important step in the democratisation and the building of a human rights culture in Bosnia and Herzegovina. The introduction of the new subject followed 4 For further information, please consult the Council of Europe s EDC website at

5 - a major comprehensive agreement of the National Conference of Education Ministers 5 on long-term education development and reform (May 2000) in Bosnia and Herzegovina, - an initial curriculum development process, undertaken by the Center for Civic Education/Civitas BiH in cooperation with the Ministries of Education, with contributions from Council of Europe experts, - a teacher training activity, facilitated by Civitas and the Council of Europe. The content of the Education for Democracy and Human Rights programme focuses on introducing students to the key ideas which underpin democracy, in particular examining the constitution, law, the idea and practice of civic virtue, individual rights and the common good as well as looking at issues relating to international relations and organisations. The key methodologies promoted in the materials are based on interactive teaching methodologies that encourage students active participation in their learning. The teacher training The teacher training activity - parallel one-week introductory courses for approximately 300 teachers all over the country - aimed at preparing teachers for the introduction of the new programme among third year secondary school students (age 17 years approx.). The teachers involved in the training, some of whom formerly taught civil defence, while others were teachers of philosophy, history or sociology, clearly expressed the need for and the value of such a programme. The training groups were cross-community, ie. members of different ethnic communities participated and cooperated. It was pointed out many times by experts, organisers and participants that this kind of cooperation would not yet have been possible a few years ago. It seemed that a crucial moment in time had arrived when common activities of the different communities were once again possible. The participating teachers had a number of useful suggestions for a further development of the democracy and human rights education programme. Three ideas 5 The National Conference of Education Ministers was formally established in Since then the Council of Europe has co-chaired monthly meetings with the OHR (Office of the High Representative).

6 were particularly interesting as they underline the teachers great interest in and commitment to this programme/school subject and their search for the greatest possible balance between primary and secondary education, theory and practice and BiH reality and international input. Firstly, the teachers wished for the development of an introductory programme in the first and second year of high school in order to be able to build upon work done at primary level and to achieve the greatest possible continuity in the subject. This issue of developing a progressive curriculum in Education for Democracy and Human Rights will have to be looked into during the follow up discussions. Further, the teachers considered the introduction of a strong action component (such as, e.g. Civitas Project Citizen 6 ) necessary to balance the theory and practice of Education for Democracy and Human Rights and to give students the opportunity to develop their sense of agency, which is a vital aspect of being citizens. The suggestion was that a group of teachers develop this action component during the pilot year 2001/2002. Finally, the teachers wished for the inclusion in the materials of a focus on the Council of Europe and its role in human rights protection and promotion not only to improve their students grasp of factual knowledge about the specialised work of an intergovernmental organisation, but also because education for democratic citzenship and human rights in the Council has various different dimensions (political, social, historical, economic, cultural, etc.). Taking on the life-long learning approach and holistic view of EDC could help to expand students horizons even beyond the traditional civic and political sphere. The 2001 programme has only been the start of a curriculum development process. By definition, Education for Democracy and Human Rights must be developmental, dynamic and open to revision as teachers become more familiar with the methodologies and as circumstances in BiH change. In the future, the inclusion of The comprehensive agreement was signed by the Minister and Deputy Minister of Education in the Federation, and the Minister of Education in the Republika Srbska.

7 other dimensions that are all important components of citizenship education, such as equality, gender, power, poverty, and intercultural education should be envisaged. 7 State and civil society and the role of the Council of Europe The teachers made a point about a focus on a European perspective and on the Council of Europe and human rights (education). This leads me to the question of what the Council of Europe s political role in the promotion of education for democratic citizenship and human rights is and can be in Bosnia and Herzegovina. There are different levels to be looked at, the local, the national and the international. On the local level, some groups of teachers decided to create local associations of EDC teachers, some suggested the creation of self-development and peer-support groups. All underlined the need for further development in EDC methodologies. These development groups should be accompanied by training and advice, not only from local, but also from international trainers (not necessarily only from the Council). EDC or civic education teachers often face the risk of getting isolated in their schools with their subject, which is often considered rather vague and is not always taken as seriously as other subjects, e.g. Maths or languages. Training and involvement of local and regional school authorities and headmasters is therefore important so as to enlist their support for the endeavour and to help develop a supportive culture in schools. On the national level the cooperation between the Education Ministries, the Center for Civic Education/Civitas BiH can be seen as an example of good practice in building partnerships between state and civil society that work in and with the system and can lead to systemic change. The State will need to continue to support the initiative, politically, financially and morally. It will also be important that the State regard the NGO community as an important resource for EDC and in ensuring a broad and balanced EDC/human rights education curriculum. 6 «Project Citizen» : pupils examine a particular policy issue and make recommendations to relevant authorities

8 The role of the Council of Europe, on the international level, is manifold. The Organisation will continue to encourage the Ministries of Education in BiH to provide further technical, financial and political support to EDC activities in schools. The Council will keep underlining the importance it attaches to the application of European standards in curriculum developments/harmonisation and policy implementation in Bosnia and Herzegovina. In cooperation with the Ministries, the Council is in a position to support and accelerate the process of establishing a wellfunctioning in-service teacher training system in BiH. The following chapter about the Council of Europe s teacher training activity in %UþNR LV DQ H[DPSOH RI WUDLQLQJ WHDFKHUV RI all subject areas in human rights education in a longer-term programme. Experiences and knowledge gained from this programme could serve towards developing a model for follow up training activities to the Civitas/CoE programme. 7KH&RXQFLORI(XURSH VWHDFKHUWUDLQLQJSURJUDPPHLQ%UþNR%L+ Background 7KH %UþNR GLVWULFW KDV VSHFLDO VWDWXV LQ WKH SROLWLFDO ODQGVFDSH RI %RVQLD DQG Herzegovina. Because of its strategic importance for the three major ethnic communities in BiH, no agreement could be reached to which entity it would belong. The Dayton accords put it under international administration, the OHR (Office of the High Representative for BiH) is responsible for its administration. The Council of Europe was instrumental in establishing a two-year programme of HGXFDWLRQDO GHYHORSPHQW LQ WKH%UþNR GLVWULFW ZLWK ILQDQFLDO FRQWULEXWLRQV IURP WKH World Bank) and decided to engage in a long-term process of in-service teacher training (which started in 2000). The issue of long-term involvement was particularly important as there had been a problem of discontinuity where the activities of international organisations in BiH were concerned. International employees used to leave and be replaced after short terms. Consequently, the organisations could not 7 Karen O Shea, Report to the Council of Europe on Teacher Training Activity in Bosnia and

9 develop into learning organisations, and no stable relationships with partners in the country were created. The Council s programme centred around an initiative undertaken by a group of committed teachers, pedagogues and psychologists in this district. They set up a District Advisory Educational Committee 8, which had as its objective the creation of DQ LQWHJUDWHG VFKRRO LQ %UþNR 7KLV ZDV SDUWLFXODUO\ UHPDUNDEOH DV WKH GLVWULFW KDG been the site of horrible war crimes. The integrated school was built on no man s land between Serb and Bosnian housing areas, and it was chosen to become a regional teacher training centre. The Council of Europe organised four training seminars in 2000 and four in 2001 for teachers of all subjects, working both in primary and secondary education. From the beginning, the teachers from the three major ethnic communities, Bosnian Croats, Bosnian Muslims and Bosnian Serbs participated in the training. One small core group of teachers participated in and accompanied new participants through all training sessions. It was probably also due to this specific element of a core group, whose members developed increasing expertise and advisory capacities, that a very active local programme of self-development and training activities has started. As in the Civitas/Council of Europe programme, the different ethnic communities cooperated very well. This was probably due, not only to the years that have passed since the war, but also to the preparatory work done and the long-term commitment made by the Council of Europe. During the cooperation it was certainly beneficial that in BiH references to the external, but commonly accepted framework of the Council of Europe could contribute to diminishing tensions between ethnic communities. School education and society and the culture of teaching 9 7KHLQWHUQDWLRQDO:HVWHUQ(XURSHDQWUDLQHUVRIWKH%UþNRSURJUDPPHSRLQWHGWRWKH fact that in former Yugoslavia, a high standard of school education had been maintained, of which experimental classes and interactive teaching had been part. Herzegovina, July 2001 (unpublished) 8 This Committee has, in the meantime, been dissolved by the OHR. 9 Rolf Gollob, Peter Krapf, Reports on in-vhuylfhwhdfkhuwudlqlqjvhplqduvlq%uþnrxqsxeolvkhg

10 However, today s mix of teachers, who had joined the profession in pre-war times, during or after the war, had very varied levels of qualifications and needs. The trainers were also aware of differences in cultural/societal backgrounds and approaches to teaching between themselves and the participants and of the need to take these differences into account and integrate them sensitively into the training. They underlined, for example, the sense of community which they encountered (and saw as a great strength in society) throughout the trainings in a less urban and less individualistic society than their own social backgrounds. As they were careful to point out repeatedly in the trainings, the in-service teacher training did not mean a transfer of knowledge, attitudes and skills from western to southeast European societies, but a process of mutual learning. Their and the CoE s mission training teachers to teach in the spirit of human rights - is, in sociological and ultimately also in economic terms, a contribution to modernisation. But this is, as it has been elsewhere, an ambivalent process. On the one hand, we hope this will weaken nationalist ties on all sides. On the other hand, we should be aware of the strengths in society that should be preserved 10. On several occasions the trainers found that their western style of conducting the teacher training, did not meet the expectations and experiences of the participants. The trainers tended at first to let participants decide how to carry out a task. However, the participants expected precise instructions and examples of concrete teaching methods or materials. The more concrete the instructions were, and the more carefully the examples were selected, the more meaningful they were to the participants. Summarising this point, the trainers said, we have always understood our teacher training seminars to set examples in teaching on, and particularly in human rights. Which topics we treat, and how we treat them, must serve as a model for the participants own work in the classroom. Our participants did not realize this immediately, but when they did, they appreciated it immensely and their notes showed that they took our examples very seriously, 10 Rolf Gollob, Peter Krapf, Report on the seminar on May 2000 (unpublished) ; page 4

11 We took this as an expression of a more authoritative, teacher-centred tradition of teaching and learning, but we think it should not be judged in any way. It is a reality, and needs to be taken into account in teacher training. Rather, learning by imitating i.e. creatively adapting examples of successful teaching is an approach that is being rediscovered in our countries, 11 Outlook 7KH%UþNRLQ-service teacher training is just a small stable element in a very fragile situation. A strong political will on the part of the State and many more and continuing national and international efforts will be needed in order to overcome the structural problems of a seriously underfinanced education system and their consequences, e.g. extremely low pay for and very low status of teachers. It is a legacy of the former system that in all ex-yugoslavian states there is no pre-service teacher training. In the interest of long-term sustainability of Education for Democracy and Human Rights in Bosnia and Herzegovina, the issue of pre-service teacher education will have to be addressed. The priority task for the Conference of Education Minister in Bosnia and Herzegovina is to ensure that the outlines of an educational reform strategy aimed at steering the system upon a course of integration and equal opportunities are expanded and implemented. The Council of Europe continues to support this process through a range of activities. A final point on bilateral assistance work International cooperation is a process of mutual learning and assistance activities are more than an extension of unchallengeable multilateral standards. They constantly contribute feedback and suggestions to the common reflection. The multilateral consensus will often be confirmed in the confrontation with the reality of the new Europe. Sometimes it will be creatively challenged, not least in Bosnia and Herzegovina. 11 Rolf Gollob, Peter Krapf, Report on the seminar on May 2000 (unpublished) ; page 7