{"id":5358,"date":"2024-11-21T15:27:19","date_gmt":"2024-11-21T14:27:19","guid":{"rendered":"https:\/\/www.rivistaeco.com\/?p=5358"},"modified":"2024-11-21T15:27:19","modified_gmt":"2024-11-21T14:27:19","slug":"teachers-facing-a-career-without-prospects","status":"publish","type":"post","link":"https:\/\/www.rivistaeco.com\/en\/2024\/11\/21\/teachers-facing-a-career-without-prospects\/","title":{"rendered":"Teachers Facing a Career Without Prospects"},"content":{"rendered":"

To improve the education system, we must enhance the quality of teachers in terms of pedagogy and methodology. The initial training of teachers, therefore, becomes crucial, which was the focus of the Draghi government’s reform under the National Recovery and Resilience Plan (PNRR). However, in its implementation, through shortcuts and facilitations, it has become a mere formality.<\/span><\/i><\/p>\n

A school system is only as good as its teachers. This is not just common sense; it is also consistently shown to be true by educational research: teacher quality is among the most important factors in explaining the academic performance of students, including in Italy. While English-speaking countries have tools and procedures to evaluate teacher quality and their contribution to student outcomes, similar analyses in Italy are not easily carried out due to the lack of reliable data, aside from a few notable exceptions from about a decade ago.<\/span><\/p>\n

The Three Essential Factors of a Reform<\/b><\/h3>\n

We know that, starting from middle school, Italian students\u2019 results in international tests have been unsatisfactory for a long time, especially compared to other European countries. There is strong suspicion that this is also due to the lack of a serious pathway developing teachers\u2019 professionalism. This deficiency has not been filled by the various disjointed reforms and interventions, unlike what has been done for preschool and primary school, where teacher training involves a more solid path with a five-year degree, restricted enrollment, and strong integration between courses, workshops, and internships.<\/span><\/p>\n

No reform that aims to positively impact the education system can ignore strategies designed to raise the quality of teachers, giving full importance to their professional profile both in subject matter and pedagogy and methodology. The quality of a teacher, along with their individual characteristics, essentially depends on three factors: initial training and hiring mechanisms, in-service training, and economic and professional incentives through salary and career progression. After decades of ineffective and often subpar actions, it is no coincidence that the main, and most anticipated, reform outlined in Mission 4 of the National Recovery and Resilience Plan “Education and Research”\u2014launched by the Draghi government with Law 79\/2022 and completed with decrees by the Meloni government\u2014was supposed to address \u201cteacher recruitment, initial training, in-service training, and career development.\u201d<\/span><\/p>\n

Yet again, however, expectations were disappointed. Here, we will focus on hiring and initial training, leaving the discussion of other aspects of the reform to the article by Andrea Gavosto, Marco Gioannini, and Alberto Zanardi in this issue.<\/span><\/p>\n

 <\/p>\n

Empty Teaching Positions and an Army of Temporary Teachers<\/b><\/h3>\n

Within the framework of the PNRR, the conditions were created to initiate a profound reform of the initial teacher training system and the selection and recruitment procedures for middle and high school teachers. Since 2017, after the discontinuation of the Active Training Internship (TFA)\u2014a one-year post-graduate programme\u2014and the collapse of the Initial Training and Internship Programme (FIT)\u2014a three-year course with an entrance exam and a paid probationary year\u2014it is precisely these teachers who have not had the opportunity to acquire adequate professionalisation. At various levels, the system reached a real impasse. On the one hand, for many years only about half of the permanent positions offered by the Ministry of Education were filled. On the other hand, with the effects of the 2015 Renzi reform fading (Law 107), the number of temporary teachers\u2014hired for the whole year or from September to June\u2014has resumed growing and surpassed 230,000 in 2023, more than a quarter of all active teachers.<\/span><\/p>\n

How is it possible that so many positions remain unfilled when there are many substitute teachers waiting for a permanent position? Because the latter do not have the geographical or subject qualifications that meet the needs of the education system. In other words, while schools in the North need math teachers, most candidates for permanent positions are humanities specialists residing in the South. This phenomenon is called territorial or subject mismatch. Mismatch leads to intense political and union pressure on governments. Inevitably, successive governments of all political colours have introduced more or less disguised forms of amnesty, organising competitions for specific categories of temporary teachers or facilitating hiring procedures for those with at least three years of service. The issue is that periodic attempts to “empty” the pool of temporary teachers are made without any real oversight of the disciplinary and pedagogical-didactic competence of future teachers, creating unjust distinctions between categories of candidates for permanent positions and hindering the entry of newly graduated young people interested in the profession.<\/span><\/p>\n

Separating Certification from Hiring<\/b><\/h3>\n

Yet, it is not difficult to identify at least two conditions under which a reform of hiring mechanisms could improve the quality of future teachers. First, separate the certification process from hiring: certification, obtained after adequate initial training, should ensure that candidates acquire the professional standards deemed essential for teaching. Hiring should then identify the most suitable candidates for available positions. Second, the separation of certification from hiring necessarily requires a serious initial training path.<\/span><\/p>\n

Until now, to participate in teaching competitions, it was enough to have obtained the required degree (in the old system, a specialised or single-cycle degree) in the specific subject area and 24 university credits in four fields (pedagogical, psychological, anthropological, and methodological-didactic) without any internship experience. Essentially, one could become a teacher without any solid competence in educational sciences and without testing their disciplinary knowledge through workshops or direct and indirect internships: an extreme choice that is at the root of some of the problems in our education system, relying on the tired refrain, \u201cto teach, you just need to know your subject.\u201d<\/span><\/p>\n

In its original version, Law 79\/2022 took these two conditions as pillars of the new model. Once in place, it provided for:<\/span><\/p>\n

    \n
  1. a clear separation between training and entry into the profession: after earning a disciplinary degree (in math, history, English, etc.), those who wanted to teach would need to obtain certification through a closed-enrollment, one-year university course (60 additional credits, including 40 in education sciences and subject-specific didactics and 20 in internships). The closed-enrollment system was supposed to be based on regional teacher demand for each subject area.<\/span><\/li>\n
  2. Once certified, one could apply for a teaching position.<\/span><\/li>\n<\/ol>\n

    The goal was to have teachers who were not only well-prepared in their subject (which they usually are) but also had broad, up-to-date competencies in effective teaching strategies, grounded in real practice that they would experience through concrete supervised experiences (unlike many substitute teachers who, unfortunately, obtain their first annual assignment without ever having set foot in a classroom). Two years ago, thanks to strong institutional dialogue with relevant scientific societies and the CRUI (Conference of Italian University Rectors) on the future of teacher training, Law 79\/2022 laid the groundwork for “normalising” this part of the education system. Despite some compromises already present at the time, the perspective had given rise to reasonable hopes that were dashed by a long wait and a series of subsequent measures that ultimately hollowed out and distorted the original premises and structure of the reform.<\/span><\/p>\n

    A Law Implemented Through Shortcuts and Facilitations<\/b><\/h3>\n

    The change was the result of various factors, which we can only briefly mention here. First, there was the transition from the Draghi government to the Meloni government, two administrations with different visions of the needs of the Italian school system. The current government decided both to renegotiate the entire process with the EU and to issue the expected implementing decree, scheduled for July 2022, only in September 2023. Nearly a year later, the reform\u2019s outcome is disastrous: all the legal leeway was used to turn certification paths into little more than formalities, piling on shortcuts and facilitations, especially to cater to the demands of unions advocating for temporary teachers.<\/span><\/p>\n

    This happened with little resistance from the CRUI and in silence from scientific societies. In the case of the rectors\u2019 conference, the prospect of boosting university coffers with enrollment fees for the courses may have influenced their decisions, launching the programmes without demanding sufficient rigour. Meanwhile, the lack of a voice from most scholars working in this field is truly incomprehensible and worrying. To be clear, this does not mean that the many university professors dealing with the flurry of recent regulations are not doing their best through the teaching and learning centres created to deliver certification courses, ensuring a decent level of educational offerings. However, this effort is often individual rather than institutional.<\/span><\/p>\n

    The conditions under which they are forced to operate are very different from what was initially envisioned:<\/span><\/p>\n

      \n
    1. the priority launch of 30-credit programmes entirely online without any oversight of the proposed content and disconnected from the established and communicated needs of October 2022;<\/span><\/li>\n
    2. granting a privileged role to online universities\u2014which were excluded from Law 79.<\/span><\/li>\n<\/ol>\n

      Overall, the characteristics of all these programmes are poorly aligned with the idea of a national certification. Universities have considerable discretion in configuring their educational offerings, and there is the possibility of recognising a large number of previously earned credits, weakening the notion that the programmes should develop new competencies. In addition, there are high thresholds for permissible absences, and up to 50% of teaching can be done online.<\/span><\/p>\n

      Moreover, during the entire transitional phase aimed at addressing the long-standing backlog of temporary teachers, there will be up to six different certification paths depending on the categories of candidates, and one of these is disconnected from the actual need for positions that should be made available in competitions. It is therefore easy to predict that most subject areas will become saturated.<\/span><\/p>\n

      As hoped for in the debates and intentions behind Law 79\/2022, there should have been an effort to resolve the temporary teacher issue by focusing on initial training as a selection and orientation gateway to professionalise a number of certified teachers that the system could absorb. Instead, the choice was made to undermine and fragment the teacher profile, reducing the importance of actual needs to a mere non-binding suggestion, and promoting temporary positions because service titles provide essential points for accessing certification paths.<\/span><\/p>\n

      We are well aware of the commitments made with the European Commission to obtain PNRR funds regarding numbers and timelines, but the approaches adopted so far seem to aim, albeit ineffectively, at merely quantitative results, neglecting candidate quality. While awaiting the results of the first PNRR competition (launched in December 2023), which is already delayed in many regions, the 2024-2025 school year will see yet another spike in temporary teachers. Furthermore, the groundwork has been poorly laid for numerous legal challenges, as not everything is aligned in the complexity of the new regulations, creating numerous issues.<\/span><\/p>\n

      In the coming years, we will see whether the \u201cshortcuts\u201d taken will at least achieve the stated quantitative goals. It is already clear, however, that quality is being sacrificed, ignoring scientific evidence about initial teacher training, and demonstrating a severe shortsightedness that prevents a vision where schools could be a driving force for the cultural, economic, and human development of the country.<\/span><\/p>\n

       <\/p>\n

      Bio<\/span><\/em><\/p>\n


      \n<\/span>Carlo Cappa is a Full Professor of the History of Pedagogy and coordinator of the Teaching and Learning Center at the University of Rome Tor Vergata.<\/span><\/em><\/p>\n


      \n<\/span>Andrea Gavosto is the Director of the Agnelli Foundation, where he conducts research in the field of education.<\/span><\/em><\/p>\n


      \n<\/span>Marco Gioannini is Head of Communications and School Programmes at the Agnelli Foundation.<\/span><\/em><\/p>\n

       <\/p>\n","protected":false},"excerpt":{"rendered":"

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