Analysis of the Educational Administration of the Public Educational Centers of Andalusia (Spain): The Role of the Manager in the Face of New Social Challenges

Round 1

Reviewer 1 Report

Lines 50-58 describe the approach of the study but using no references that constitute its foundations, neither geographical or historical axis to assign it.

Same issue in the lines 180-186 concerning "remote government" or in the lines 215-220 no references from History of Education research that address such roots.

Some examples that could be usefull:

de Puelles, M. (2005). La influencia de la Nueva Derecha inglesa en la política
educativa española (1996-2004). Historia de la Educación, 24(29), 229-253.
http://hdl.handle.net/10366/79585 

Pettit, P. (2007). Examen a Zapatero. Madrid: Temas de Hoy. 
Prieto, M., y Villamor, P. (2013). Libertad de elección, competencia y calidad: Las políticas educativas de la Comunidad de Madrid. Profesorado. Revista de Currículum y Formación del Profesorado, 16(3), 127-144.  

Pulido-Montes, C. & Lázaro, L. (2021)Neoliberalismo y procesos de privatización “en” la educación pública en Inglaterra y España Encounters in Theory and History of Education Vol. 22, 2021, 95-116 

Torres, J. (2014). Mercado y escuela. Cuadernos de Pedagogía, 445, 58-61. 
Torres, J.  (2018).  Políticas educativas y construcción de personalidades neoliberales y neocolonialistas. Madrid: Morata.

Verger, A., Prieto, M., Pagès, M., y Villamor, P. (2018). Common standards, different stakes: A comparative and multi-scalar analysis of accountability reforms in the Spanish education context. European Educational Research Journal, 19(2), 142-164. Doi:10.1177/1474904118785556

Viñao, A.  (2012). El desmantelamiento del derecho a la educación: discursos y estrategias neoconservadoras. Áreas. Revista Internacional de Ciencias Sociales, 31, 97-107. 
Viñao, A. (2016). El modelo neoconservador de gobernanza escolar: principios estrategias y consecuencias en España. En Collet, J. y Tort, A. (Coords.). La gobernanza escolar democrática. Más allá de los modelos neoliberal y neoconservador (pp-41-64). Madrid: Morata. 

Actually, the description of the Spanish system and context should have more and specific space in the text to place the reader in this context. But also in order to contextualize the Autonmous region and, therefore, be able to conclude that is different or not from other parts of the contry with the same or different political party. The way it is presented, lines 213-253, results vague and very subjective from the own interpretation of the author and does not consider the just implemented Education Act which revokes part of the previous.

Therefore, the major aim of ", taking into account the impact of context (social, historical, cultural, etc.) as a determining element in the configuration of those regularities (perceptions, valuations and beliefs)! (lines 160-161) can not be achieved if these "introductory proposals" are not completed and imrpoved. Furthermore, there is a lack of foundations to assert that the findings can be extendable to the rest of the spanish regions, as the author/s are claiming at this point.

Author Response

 

Journal: Education Sciences (ISSN 2227-7102)

 Manuscript ID: education-1682261

 Type: Article

 Title: Analysis in the school direction of the public educational centers of Andalusia (Spain). The role of the manager in the face of new social challenges

 

 

 

May 26, 2022

 

Dear Ms. Teri Li,

 

Thank you for giving us the opportunity to revise our manuscript entitled Analysis in the school direction of the public educational centers of Andalusia (Spain). The role of the manager in the face of new social challenges. We are grateful to the Editorial office and Reviewer for their comments and we appreciate that their suggestions have contributed to improve our manuscript. We have reformulated the text according to their suggestions, as appropriate, and the changes appear detailed below in response to each of their comments.

 

Please find below the changes or comments we have made in response to the points raised (they are in bold font; our responses are in the normal font and the paragraphs copied from the article are in italics). The changes in the manuscript are highlighted in yellow.

 

We look forward to hearing from you.

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Comments:

 

1. We have incorporated references in lines requested

Thanks for this suggestion that we have incorporated to the revised manuscript.

 

WHERE IT READ:

 

Using this framework, the analysis of neoliberal processes and their implications for the field of the education policy are approached, specifically relating to the impact of the 'new governance' (New Public Management) on those who manage schools subsidised by state funds. In this line, this study is linked to an approach to 'neoliberalism' which places it as a multifactorial and multidimensional phenomenon with its own rationality, one which transcends the margins of the economic and market fields.

 

NOW IT READS:

 

Using this framework, the analysis of neoliberal processes and their implications for the field of the education policy are approached, specifically relating to the impact of the 'new governance' (New Public Management) on those who manage schools subsidised by state funds. In this line, this study is linked to an approach to 'neoliberalism' which places it as a multifactorial and multidimensional phenomenon with its own rationality [4], one which transcends the margins of the economic and market fields.

 

WHERE IT READ:

 

This mode of governance combines more direct, personal, autonomous and horizontal methods of control behaviour with the traditional ones by means of direct, bureaucratic and hierarchical measures.

 

NOW IT READS

 

'Remote government' is another important element relating to this issue. This mode of governance combines more direct, personal, autonomous and horizontal methods of control behaviour with the traditional ones by means of direct, bureaucratic and hierarchical measures. Like the quasi-market policy [20].

 

WHERE IT READ:

 

This includes appointing and contracting teachers, liaising with families and hiring external services. However, at the same time, they are held responsible for the decisions that they have carried out in a supposedly ‘autonomous’ way.

 

NOW IT READS

 

This includes appointing and contracting teachers, liaising with families and hiring external services. School institutions have the need to defend and bet on quality public education [22]. However, at the same time, they are held responsible for the decisions that they have carried out in a supposedly ‘autonomous’ way.

 

 

 

 

WHERE IT READ:

 

In this sense, the [21] downplays collegiate participatory aspects while reinforcing those which are hierarchical and administrative. A commission, formed for the most part by representatives of the administration, is now in charge of appointing headteachers. In terms of appointing and naming these school headteachers political interference by a conservative administration (the Popular Party) is obvious [13].

 

NOW IT READS

 

In this sense, the [24] downplays collegiate participatory aspects while reinforcing those which are hierarchical and administrative. Analysing the macropolitical strategies that affect the micropolitics of educational centres [27]. A commission, formed for the most part by representatives of the administration, is now in charge of appointing headteachers.

 

 

WHERE IT READ:

With this legislative change, the administration has the power to articulate commissions based on criteria relating to interests of ideology and patronage.

 

NOW IT READS

 

With this legislative change, the administration has the power to articulate commissions based on criteria relating to interests of ideology and patronage. The functions of the school direction are specified in the LOMLOE [28].

 

 

2. The LOMLOE has been incorporated, as the latest educational law, and has been specified in the region of Andalusia, referencing the information presented.

Thanks for this suggestion that we have incorporated to the revised manuscript.

 

WHERE IT READ:

 

With this legislative change, the administration has the power to articulate commissions based on criteria relating to interests of ideology and patronage.

 

 

NOW IT READS

 

With this legislative change, the administration has the power to articulate commissions based on criteria relating to interests of ideology and patronage. The functions of the school direction are specified in the LOMLOE [28].

 

 

3. We have revised the MDPI citation style.

 

Thanks for this suggestion that we have incorporated to the revised manuscript.

 

WHERE IT READ:

 

Paradoxically, this means applying the [21] anyway because headteachers are directly appointed to their posts by the regional administration rather than by the educational community (Bolívar, 2018).

 

NOW IT READS:

 

Paradoxically, this means applying the [24] anyway because headteachers are directly appointed to their posts by the regional administration rather than by the educational community [14].

 

4. The sections, discussion and conclusions have been modified.

 

Thanks for this suggestion that we have incorporated to the revised manuscript.

 

WHERE IT READ:

 

4. Discussion

Throughout this study, the goal has been to maintain consistency with the introductory proposals. In this way, the link to a critical and constructivist approach of reality has called for careful consideration, taking into account the impact of context (social, historical, cultural, etc.) as a determining element in the configuration of those regularities (perceptions, valuations and beliefs). This was then exposed to a (methodological) procedure of analysis and interpretation.

Overall, this research has managed to gather data relating to the advance of neoliberalisation processes in state education in Andalusia (extendable to the rest of Spain). It focuses, in particular, on how school headteaching in state secondary schools is influenced by neoliberal processes.

In the theoretical framework, it was necessary to establish an approach capable of establishing a foundation for the concepts, phenomena and facts which are evident in the results of this study. Thus, reference is made to a state of affairs which, vertically, covers the neoliberal phenomenon, its structural implications (systemic-governance from the outside) and action dynamics (personal-governance from within).

The results of this study highlight the particularities of the Spanish context. Together with the emerging categories, the dimensions of the impact of neoliberal advances are described. A transversal view implies that educational administration is a determining factor. The interest in its interference, and its reiteration, are undoubtedly mediated by socio-economic and cultural characteristics (SECI) in addition to the educational results of the schools investigated. Examining these variables (and as the analysis moves closer to disadvantaged social contexts) there is evidence of greater presence and resistance from headteachers in terms of their relationship with the administrative hierarchy. Whether due to the lack of a 'context view' on the part of the administration towards the centres, and/or due to the problems linked to the 'situational reality,' it is evident that, in these contexts, the demands of the administration are unwelcome. These issues are reflected in the narrative construct found in the categories administrative function (bureaucratisation of functions), representative of the administration, and school planning and organisation.

Following this, the narrative construct relates to the regularities of the emerging categories which deserve to be taken into account. There is little doubt that one of the effects of the 'good governance' has influenced the change in identity of the headteachers (Name deleted to maintain the integrity of the review process 2016). The perception of 'themselves' as representatives of the administration accounts for this. It is a (socio-professional and intermediate) positioning which exists between the demands of the administration and the interests of teachers, and which transcends the structural aspects of the management model, for example system of choice and strategies for promotion. In this context, the role of an agent-manager, who devotes a huge amount of time to administrative tasks, is reconfigured. These terms refer to a type of techno-bureaucratic form of regulation which shows, as evidence, a concern for the superior levels of control (and accountability). Furthermore, it belies the existence of a 'real autonomy' within educational centres with regard to pedagogical, organisational and other aspects. Added to this, and as an aggravating factor, is the lack of professionalisation (training) of school headteachers. This is a key issue, particularly if we consider that, today, the demands of the administration and teachers on the management functions of schools require, primarily, management and conflict resolution skills.

In short, there exists a binding analysis of these categories which exposes the many processes of neoliberal domination and governance currently existing within the Spanish educational system. According to [8], it relates to a form of governance which holds headteachers accountable for the success of the school (top-down, "governed by others") but, at the same time, makes them feel responsible for the results of their work (bottom-up, "governing of oneself"). In this way, regulation and self-regulation techniques create a framework for the power relations which control the "school's autonomy." as well as other aspects.  In this double game, the NPM's logic of competition prioritises measurable actions in order to standardise and produce results. Consequently, it sees the headteacher as a business manager (with administrative functions, and as an instrument for assessment within the school); that is, the one who is assessed, but also the one who assesses others in addition to assessing those processes involved in the management of the school. This takes place within a culture of productivity which destroys and underestimates headteachers in their personal dimension. There are, of course, headteachers who are sympathetic to this approach and to "the forms which govern them" and who are willing to (re)produce the neoliberal regime of truth (and its technologies). Others, as can be observed, are capable of creating spaces of resistance based on an ethical reflection of their experiences. In this regard they recognise themselves not only in terms of "who they are," but also in terms of "who they might become" (a "headteacher with pedagogical capacity"). This is their "space of freedom and transgression." Where appropriate, those expressions of disappointment, stress, frustration, and so on, are configured as "confrontation processes" which reveal criticism, discomfort and questioning –in short, their resistance to "what they do not want to become." This is the way in which they define their role and stance. From a Foucauldian perspective, these headteachers expose and highlight, in a critical way, the impact of power relations on their professional role [32]. As a result, their autonomy, authority, power, assessment, collegiality, etc. are at stake. This results from a stance which projects and defines them.

 

5. Conclusions

This paper offers an analysis of neoliberalisation processes, from the perspective of the NPM. Additionally, it explores the principles which govern educational "good governance." Neoliberalism has been analysed and described as a complex phenomenon which transcends a mere interest in global capitalism with its constant mantra of accumulating profit [4]. The NPM redefines world governance and, in so doing, produces novel relationships between different social actors, such as the State and capital [5]. It has been seen how individuals construct a worldview based on competition [39] and from the context of neoliberal rationality. In the world of education, the NPM focuses on strategies which aim to discipline both teachers and management teams, using accountability mechanisms and assessment [7]. Thus, within the education system, the NPM is introducing modes of bureaucratic governance which possess the values and principles of the private sector [8]. As a result, they are transforming the role of the headteacher into that of a representative of the educational administration with a predominantly managerial function, rather than a school headteacher with pedagogical skills and responsibilities [6].

The focus of this paper is on the construction of a neoliberal subjectivity, such as how the logic of "good governmentality" constructs us [10] and 'makes us' see the reality of current educational practises, and the functions of school headteaching, through entrepreneurial lenses. In other words, it perceives headteachers as 'entrepreneurs of themselves.'  It is hoped that it has clarified the fact that the NPM guides the principles of the 'good governance' as a form of governance which assesses the work of school headteachers in terms of profitability and performance control. In countries like Chile, Spain, Norway and the United Kingdom, educational reforms, centred on the NPM, perceive governance in terms of the school's autonomy, and freedom of choice (for example when a family is selecting an educational centre or school) in addition to professional accountability and management based on results [6].

In the Spanish context the NPM seeks to discipline the school headteacher and control the autonomy of the school [13]. A reflexive view of the educational policy of recent decades points to the tendency of public administrations to seek a headteaching model which is increasingly 'professionalised' with a marked managerial character. In Spain, a clear change of orientation can be seen, not only in the way headteachers are appointed, but also in the professional profile of headteachers, in addition to the functions which they are expected to perform. Since the end of the General Franco's dictatorship, with the [45], and later with the laws during the democratic periods of [46] and [23], participation in educational centres was gradually encouraged. Both teachers and families took part in the election of the headteacher, as well as in the government and management of the centre through school boards. However, with the [47] and [21], both promoted by the ultra-conservative party, PP, this participation was severely restricted, thus considerably diminishing school democracy. According to [14], these laws “end up giving the coup de grace to participation, opting for a management model which responds to neoliberal and neoconservative references.”

In this way, the [47] has modified substantial aspects of previous laws with the intention of redefining the functions of the headteacher and her, or his, election. It incorporates, as a key requirement, new competences for the headteacher, so he or she now has more power, at least on a theoretical and normative level. However, at the same time, this limits the flexibility and options of the school board. The headteacher's role is 'professionalised' and assumes more power to manage and control the centre. Thus, the educational administration is committed to a more pyramidal model which lands on the NPM's own accountability. The [21] deepens into the neoliberal and neoconservative vision, facilitating conditions which favour the market-managerial model [14].

In summary, the changes in educational policies can be seen, especially under the [21], as moving towards a new profile of headteacher –one which is more managerialist. The different issues which have been studied in this research, fundamentally marked by contextual factors (for example, more impoverished and vulnerable environments), demonstrate how neoliberalism is normalising the tendency to redefine the role of the headteacher as a manager. Moreover, it shows how the headteacher is someone who is under the control of the administration and required to follow its guidelines. Ultimately this paper refers to a 'professional' who is responsible for ‘disciplining’ teachers in addition to being required to produce positive academic results. As a result, headteachers are caught between two realities. On the one hand, they are subject to the control and accountability required by the administration. On the other hand, they face, on a daily basis, the resistance and challenges from their teaching staff. This is what is today meant by 'educational business.'

This is particularly relevant if we take into account the fact that, in Andalusia, the number of candidates applying for the position of headteacher has declined dramatically. The Andalusian Regional Government’s opposition to [21], and its rejection of the measures for its adaptation, have forced them to appoint headteachers (or extend the duration of their tenure) on a provisional basis. This action is being taken by this administration regardless of standard procedures. Paradoxically, this means applying the [21] anyway because headteachers are directly appointed to their posts by the regional administration rather than by the educational community (Bolívar, 2018).

 

NOW IT READS:

 

4. Discussion

This paper offers an analysis of neoliberalisation processes, from the perspective of the NPM. Additionally, it explores the principles which govern educational "good governance." Neoliberalism has been analysed and described as a complex phenomenon which transcends a mere interest in global capitalism with its constant mantra of accumulating profit [5]. The NPM redefines world governance and, in so doing, produces novel relationships between different social actors, such as the State and capital [6]. It has been seen how individuals construct a worldview based on competition [44] and from the context of neoliberal rationality. In the world of education, the NPM focuses on strategies which aim to discipline both teachers and management teams, using accountability mechanisms and assessment [8]. Thus, within the education system, the NPM is introducing modes of bureaucratic governance which possess the values and principles of the private sector [9]. As a result, they are transforming the role of the headteacher into that of a representative of the educational administration with a predominantly managerial function, rather than a school headteacher with pedagogical skills and responsibilities [7].

The focus of this paper is on the construction of a neoliberal subjectivity, such as how the logic of "good governmentality" constructs us [10] and 'makes us' see the reality of current educational practises, and the functions of school headteaching, through entrepreneurial lenses. In other words, it perceives headteachers as 'entrepreneurs of themselves.'  It is hoped that it has clarified the fact that the NPM guides the principles of the 'good governance' as a form of governance which assesses the work of school headteachers in terms of profitability and performance control. In countries like Chile, Spain, Norway and the United Kingdom, educational reforms, centred on the NPM, perceive governance in terms of the school's autonomy, and freedom of choice (for example when a family is selecting an educational centre or school) in addition to professional accountability and management based on results [7].

In the Spanish context the NPM seeks to discipline the school headteacher and control the autonomy of the school [14]. A reflexive view of the educational policy of recent decades points to the tendency of public administrations to seek a headteaching model which is increasingly 'professionalised' with a marked managerial character. In Spain, a clear change of orientation can be seen, not only in the way headteachers are appointed, but also in the professional profile of headteachers, in addition to the functions which they are expected to perform. Since the end of the General Franco's dictatorship, with the [50], and later with the laws during the democratic periods of [51] and [26], participation in educational centres was gradually encouraged. Both teachers and families took part in the election of the headteacher, as well as in the government and management of the centre through school boards. However, with the [52] and [24], both promoted by the ultra-conservative party, PP, this participation was severely restricted, thus considerably diminishing school democracy. According to [15], these laws “end up giving the coup de grace to participation, opting for a management model which responds to neoliberal and neoconservative references.”

In this way, the [52] has modified substantial aspects of previous laws with the intention of redefining the functions of the headteacher and her, or his, election. It incorporates, as a key requirement, new competences for the headteacher, so he or she now has more power, at least on a theoretical and normative level. However, at the same time, this limits the flexibility and options of the school board. The headteacher's role is 'professionalised' and assumes more power to manage and control the centre. Thus, the educational administration is committed to a more pyramidal model which lands on the NPM's own accountability. The [24] deepens into the neoliberal and neoconservative vision, facilitating conditions which favour the market-managerial model [15].

In summary, the changes in educational policies can be seen, especially under the [24], as moving towards a new profile of headteacher –one which is more managerialist. The different issues which have been studied in this research, fundamentally marked by contextual factors (for example, more impoverished and vulnerable environments), demonstrate how neoliberalism is normalising the tendency to redefine the role of the headteacher as a manager. Moreover, it shows how the headteacher is someone who is under the control of the administration and required to follow its guidelines. Ultimately this paper refers to a 'professional' who is responsible for ‘disciplining’ teachers in addition to being required to produce positive academic results. As a result, headteachers are caught between two realities. On the one hand, they are subject to the control and accountability required by the administration. On the other hand, they face, on a daily basis, the resistance and challenges from their teaching staff. This is what is today meant by 'educational business.'

This is particularly relevant if we take into account the fact that, in Andalusia, the number of candidates applying for the position of headteacher has declined dramatically. The Andalusian Regional Government’s opposition to [24], and its rejection of the measures for its adaptation, have forced them to appoint headteachers (or extend the duration of their tenure) on a provisional basis. This action is being taken by this administration regardless of standard procedures. Paradoxically, this means applying the [24] anyway because headteachers are directly appointed to their posts by the regional administration rather than by the educational community [14].

 

5. Conclusions

Throughout this study, the goal has been to maintain consistency with the introductory proposals. In this way, the link to a critical and constructivist approach of reality has called for careful consideration, taking into account the impact of context (social, historical, cultural, etc.) as a determining element in the configuration of those regularities (perceptions, valuations and beliefs). This was then exposed to a (methodological) procedure of analysis and interpretation.

Overall, this research has managed to gather data relating to the advance of neoliberalisation processes in state education in Andalusia (extendable to the rest of Spain). It focuses, in particular, on how school headteaching in state secondary schools is influenced by neoliberal processes.

In the theoretical framework, it was necessary to establish an approach capable of establishing a foundation for the concepts, phenomena and facts which are evident in the results of this study. Thus, reference is made to a state of affairs which, vertically, covers the neoliberal phenomenon, its structural implications (systemic-governance from the outside) and action dynamics (personal-governance from within).

The results of this study highlight the particularities of the Spanish context. Together with the emerging categories, the dimensions of the impact of neoliberal advances are described. A transversal view implies that educational administration is a determining factor. The interest in its interference, and its reiteration, are undoubtedly mediated by socio-economic and cultural characteristics (SECI) in addition to the educational results of the schools investigated. Examining these variables (and as the analysis moves closer to disadvantaged social contexts) there is evidence of greater presence and resistance from headteachers in terms of their relationship with the administrative hierarchy. Whether due to the lack of a 'context view' on the part of the administration towards the centres, and/or due to the problems linked to the 'situational reality,' it is evident that, in these contexts, the demands of the administration are unwelcome. These issues are reflected in the narrative construct found in the categories administrative function (bureaucratisation of functions), representative of the administration, and school planning and organisation.

Following this, the narrative construct relates to the regularities of the emerging categories which deserve to be taken into account. There is little doubt that one of the effects of the 'good governance' has influenced the change in identity of the headteachers (Name deleted to maintain the integrity of the review process 2016). The perception of 'themselves' as representatives of the administration accounts for this. It is a (socio-professional and intermediate) positioning which exists between the demands of the administration and the interests of teachers, and which transcends the structural aspects of the management model, for example system of choice and strategies for promotion. In this context, the role of an agent-manager, who devotes a huge amount of time to administrative tasks, is reconfigured. These terms refer to a type of techno-bureaucratic form of regulation which shows, as evidence, a concern for the superior levels of control (and accountability). Furthermore, it belies the existence of a 'real autonomy' within educational centres with regard to pedagogical, organisational and other aspects. Added to this, and as an aggravating factor, is the lack of professionalisation (training) of school headteachers. This is a key issue, particularly if we consider that, today, the demands of the administration and teachers on the management functions of schools require, primarily, management and conflict resolution skills.

In short, there exists a binding analysis of these categories which exposes the many processes of neoliberal domination and governance currently existing within the Spanish educational system. According to [8], it relates to a form of governance which holds headteachers accountable for the success of the school (top-down, "governed by others") but, at the same time, makes them feel responsible for the results of their work (bottom-up, "governing of oneself"). In this way, regulation and self-regulation techniques create a framework for the power relations which control the "school's autonomy." as well as other aspects.  In this double game, the NPM's logic of competition prioritises measurable actions in order to standardise and produce results. Consequently, it sees the headteacher as a business manager (with administrative functions, and as an instrument for assessment within the school); that is, the one who is assessed, but also the one who assesses others in addition to assessing those processes involved in the management of the school. This takes place within a culture of productivity which destroys and underestimates headteachers in their personal dimension. There are, of course, headteachers who are sympathetic to this approach and to "the forms which govern them" and who are willing to (re)produce the neoliberal regime of truth (and its technologies). Others, as can be observed, are capable of creating spaces of resistance based on an ethical reflection of their experiences. In this regard they recognise themselves not only in terms of "who they are," but also in terms of "who they might become" (a "headteacher with pedagogical capacity"). This is their "space of freedom and transgression." Where appropriate, those expressions of disappointment, stress, frustration, and so on, are configured as "confrontation processes" which reveal criticism, discomfort and questioning –in short, their resistance to "what they do not want to become." This is the way in which they define their role and stance. From a Foucauldian perspective, these headteachers expose and highlight, in a critical way, the impact of power relations on their professional role [33]. As a result, their autonomy, authority, power, assessment, collegiality, etc. are at stake. This results from a stance which projects and defines them.

 

5. The abstract has been modified indicating the objective of the study.

 

Thanks for this suggestion that we have incorporated to the revised manuscript.

 

WHERE IT READ:

 

Abstract: The advance and influence of the neoliberalization processes have changed the way of understanding and managing the educational system, under a New Public Management (NPM) of education that integrates the values of the free market, competitiveness, accountability, external evaluation, etc. The methodology used was based on a qualitative research approach, we analyze the implications of neoliberal processes and NPM in school principalship in Andalusia (Spain). The sample of participants is consolidated into thirty principals belonging to public high schools. For data collection, the in-depth interview was used. Information analysis applies content analysis and its assembly with the grounded theory. The results are expressed in four categories that refer to the implications of neoliberal processes and NGP in the school principalship. The discussion and conclusions point out how the neoliberal processes and the NPM are reconfiguring the school principalship towards a 'manager-administrator' profile, a management instrument with administrative functions and an agent for assessment in the school. In this context, there are also processes of confrontation and discomfort with these transformations in the principal's role.

 

 

NOW IT READS:

 

Abstract: The advance and influence of the neoliberalization processes have changed the way of understanding and managing the educational system, under a New Public Management (NPM) of education that integrates the values of the free market, competitiveness, accountability, external evaluation, etc. The objective of this work is to analyse Andalusian headteachers’ perception of their professional practices from within the context of neoliberal and neo-conservative processes. The methodology used was based on a qualitative research approach, we analyze the implications of neoliberal processes and NPM in school principalship in Andalusia (Spain). The sample of participants is consolidated into fifteen principals belonging to public high schools. For data collection, the in-depth interview was used. Information analysis applies content analysis and its assembly with the grounded theory. The results are expressed in four categories that refer to the implications of neoliberal processes and NGP in the school principalship. There is tendency to redefine the role of the headteacher as a manager. The discussion and conclusions point out how the neoliberal processes and the NPM are reconfiguring the school principalship towards a 'manager-administrator' profile, a management instrument with administrative functions and an agent for assessment in the school. In this context, there are also processes of confrontation and discomfort with these transformations in the principal's role.

 

 

6. The introduction has been restructured.

 

Thanks for this suggestion that we have incorporated to the revised manuscript.

 

WHERE IT READ:

 

The results of the study combine the interpretive approach with a narrative dimension, evidencing not only link with practice, but also creating spaces for questioning and problematisation (resistance). The task of relating the empirical content (emic) to the theoretical foundation (etic) has enabled us to observe, with more clarity, the power relations and flows which exist within neoliberal governance mechanisms.

Using this framework, the analysis of neoliberal processes and their implications for the field of the education policy are approached, specifically relating to the impact of the 'new governance' (New Public Management) on those who manage schools subsidised by state funds. In this line, this study is linked to an approach to 'neoliberalism' which places it as a multifactorial and multidimensional phenomenon with its own rationality, one which transcends the margins of the economic and market fields. The construction of neoliberal subjectivity makes life look from the lens of business logic. Public resources are analysed under this lens, so the ‘good governance’ of the school is measured in terms of efficiency, effectiveness and economy. This means assuming neoliberalism as a form of school management in which some principals assume the characteristic values ​​of accountability and business corporate responsibility (the school has to be managed as if it were another business company), and others, develop resistance practices.

1.1 Processes of neoliberalisation and construction of subjectivities

Much of the academic work which has been carried out during the last decades has centred on the analysis of neoliberal processes. Researchers, such as [4], argue that we are facing a multiform phenomenon which strongly conditions our way of being and seeing the world. For Brown, neoliberalism, as an intellectual project, is something more complex than a simple interest in, and way of accumulating global capital. Although it relies on a rationality which strengthens the power of the capitalist class, it is a (political) rationality which goes beyond the economic concept of 'market.' This project redefines global governance, giving new meaning to the relationships which exist between state, economy, society, and citizens [5]. From the approach of New Public Management (NPM), individuals are seen in terms of human capital, that is, as a potential form of productivity. In this way, 'market values' are being accepted, integrated and subjectivated [6]. Thus, democracy, as a space for equality, sovereignty and community interest, is vulnerable to those forms of neoliberal appropriation that recast its meaning and value [7].

 

NOW IT READS:

 

This study combine the interpretive approach with a narrative dimension, evidencing not only link with practice, but also creating spaces for questioning and problematisation (resistance). The task of relating the empirical content (emic) to the theoretical foundation (etic) has enabled us to observe, with more clarity, the power relations and flows which exist within neoliberal governance mechanisms.

1.1 Processes of neoliberalisation and construction of subjectivities

Using this framework, the analysis of neoliberal processes and their implications for the field of the education policy are approached, specifically relating to the impact of the 'new governance' (New Public Management) on those who manage schools subsidised by state funds. In this line, this study is linked to an approach to 'neoliberalism' which places it as a multifactorial and multidimensional phenomenon with its own rationality [4], one which transcends the margins of the economic and market fields. The construction of neoliberal subjectivity makes life look from the lens of business logic. Public resources are analysed under this lens, so the ‘good governance’ of the school is measured in terms of efficiency, effectiveness and economy. This means assuming neoliberalism as a form of school management in which some principals assume the characteristic values ​​of accountability and business corporate responsibility (the school has to be managed as if it were another business company), and others, develop resistance practices.

Much of the academic work which has been carried out during the last decades has centred on the analysis of neoliberal processes. Researchers, such as [5], argue that we are facing a multiform phenomenon which strongly conditions our way of being and seeing the world. For Brown, neoliberalism, as an intellectual project, is something more complex than a simple interest in, and way of accumulating global capital. Although it relies on a rationality which strengthens the power of the capitalist class, it is a (political) rationality which goes beyond the economic concept of 'market.' This project redefines global governance, giving new meaning to the relationships which exist between state, economy, society, and citizens [6]. From the approach of New Public Management (NPM), individuals are seen in terms of human capital, that is, as a potential form of productivity. In this way, 'market values' are being accepted, integrated and subjectivated [7]. Thus, democracy, as a space for equality, sovereignty and community interest, is vulnerable to those forms of neoliberal appropriation that recast its meaning and value [8].

 

7. We have corrected the sample size error

 

Thanks for this suggestion that we have incorporated to the revised manuscript.

 

WHERE IT READ:

 

The sample of participants is consolidated into thirty principals belonging to public high schools.

 

NOW IT READS:

 

The sample of participants is consolidated into fifteen principals belonging to public high schools.

 

 

Reviewer 2 Report

The article is theoretically and methodologically well supported.

Author Response

 

 

Journal: Education Sciences (ISSN 2227-7102)

 

Manuscript ID: education-1682261

 

Type: Article

 

Title: Analysis in the school direction of the public educational centers of Andalusia (Spain). The role of the manager in the face of new social challenges

 

 

 

May 26, 2022

 

Dear Ms. Teri Li,

 

Thank you for giving us the opportunity to revise our manuscript entitled Analysis in the school direction of the public educational centers of Andalusia (Spain). The role of the manager in the face of new social challenges. We are grateful to the Editorial office and Reviewer for their comments and we appreciate that their suggestions have contributed to improve our manuscript. We have reformulated the text according to their suggestions, as appropriate, and the changes appear detailed below in response to each of their comments.

 

Please find below the changes or comments we have made in response to the points raised (they are in bold font; our responses are in the normal font and the paragraphs copied from the article are in italics). The changes in the manuscript are highlighted in yellow.

 

We look forward to hearing from you.

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Comments:

 

1. We have incorporated references in lines requested

Thanks for this suggestion that we have incorporated to the revised manuscript.

 

WHERE IT READ:

 

Using this framework, the analysis of neoliberal processes and their implications for the field of the education policy are approached, specifically relating to the impact of the 'new governance' (New Public Management) on those who manage schools subsidised by state funds. In this line, this study is linked to an approach to 'neoliberalism' which places it as a multifactorial and multidimensional phenomenon with its own rationality, one which transcends the margins of the economic and market fields.

 

NOW IT READS:

 

Using this framework, the analysis of neoliberal processes and their implications for the field of the education policy are approached, specifically relating to the impact of the 'new governance' (New Public Management) on those who manage schools subsidised by state funds. In this line, this study is linked to an approach to 'neoliberalism' which places it as a multifactorial and multidimensional phenomenon with its own rationality [4], one which transcends the margins of the economic and market fields.

 

WHERE IT READ:

 

This mode of governance combines more direct, personal, autonomous and horizontal methods of control behaviour with the traditional ones by means of direct, bureaucratic and hierarchical measures.

 

NOW IT READS

 

'Remote government' is another important element relating to this issue. This mode of governance combines more direct, personal, autonomous and horizontal methods of control behaviour with the traditional ones by means of direct, bureaucratic and hierarchical measures. Like the quasi-market policy [20].

 

WHERE IT READ:

 

This includes appointing and contracting teachers, liaising with families and hiring external services. However, at the same time, they are held responsible for the decisions that they have carried out in a supposedly ‘autonomous’ way.

 

NOW IT READS

 

This includes appointing and contracting teachers, liaising with families and hiring external services. School institutions have the need to defend and bet on quality public education [22]. However, at the same time, they are held responsible for the decisions that they have carried out in a supposedly ‘autonomous’ way.

 

 

 

 

WHERE IT READ:

 

In this sense, the [21] downplays collegiate participatory aspects while reinforcing those which are hierarchical and administrative. A commission, formed for the most part by representatives of the administration, is now in charge of appointing headteachers. In terms of appointing and naming these school headteachers political interference by a conservative administration (the Popular Party) is obvious [13].

 

NOW IT READS

 

In this sense, the [24] downplays collegiate participatory aspects while reinforcing those which are hierarchical and administrative. Analysing the macropolitical strategies that affect the micropolitics of educational centres [27]. A commission, formed for the most part by representatives of the administration, is now in charge of appointing headteachers.

 

 

WHERE IT READ:

With this legislative change, the administration has the power to articulate commissions based on criteria relating to interests of ideology and patronage.

 

NOW IT READS

 

With this legislative change, the administration has the power to articulate commissions based on criteria relating to interests of ideology and patronage. The functions of the school direction are specified in the LOMLOE [28].

 

 

2. The LOMLOE has been incorporated, as the latest educational law, and has been specified in the region of Andalusia, referencing the information presented.

Thanks for this suggestion that we have incorporated to the revised manuscript.

 

WHERE IT READ:

 

With this legislative change, the administration has the power to articulate commissions based on criteria relating to interests of ideology and patronage.

 

 

NOW IT READS

 

With this legislative change, the administration has the power to articulate commissions based on criteria relating to interests of ideology and patronage. The functions of the school direction are specified in the LOMLOE [28].

 

 

3. We have revised the MDPI citation style.

 

Thanks for this suggestion that we have incorporated to the revised manuscript.

 

WHERE IT READ:

 

Paradoxically, this means applying the [21] anyway because headteachers are directly appointed to their posts by the regional administration rather than by the educational community (Bolívar, 2018).

 

NOW IT READS:

 

Paradoxically, this means applying the [24] anyway because headteachers are directly appointed to their posts by the regional administration rather than by the educational community [14].

 

4. The sections, discussion and conclusions have been modified.

 

Thanks for this suggestion that we have incorporated to the revised manuscript.

 

WHERE IT READ:

 

4. Discussion

Throughout this study, the goal has been to maintain consistency with the introductory proposals. In this way, the link to a critical and constructivist approach of reality has called for careful consideration, taking into account the impact of context (social, historical, cultural, etc.) as a determining element in the configuration of those regularities (perceptions, valuations and beliefs). This was then exposed to a (methodological) procedure of analysis and interpretation.

Overall, this research has managed to gather data relating to the advance of neoliberalisation processes in state education in Andalusia (extendable to the rest of Spain). It focuses, in particular, on how school headteaching in state secondary schools is influenced by neoliberal processes.

In the theoretical framework, it was necessary to establish an approach capable of establishing a foundation for the concepts, phenomena and facts which are evident in the results of this study. Thus, reference is made to a state of affairs which, vertically, covers the neoliberal phenomenon, its structural implications (systemic-governance from the outside) and action dynamics (personal-governance from within).

The results of this study highlight the particularities of the Spanish context. Together with the emerging categories, the dimensions of the impact of neoliberal advances are described. A transversal view implies that educational administration is a determining factor. The interest in its interference, and its reiteration, are undoubtedly mediated by socio-economic and cultural characteristics (SECI) in addition to the educational results of the schools investigated. Examining these variables (and as the analysis moves closer to disadvantaged social contexts) there is evidence of greater presence and resistance from headteachers in terms of their relationship with the administrative hierarchy. Whether due to the lack of a 'context view' on the part of the administration towards the centres, and/or due to the problems linked to the 'situational reality,' it is evident that, in these contexts, the demands of the administration are unwelcome. These issues are reflected in the narrative construct found in the categories administrative function (bureaucratisation of functions), representative of the administration, and school planning and organisation.

Following this, the narrative construct relates to the regularities of the emerging categories which deserve to be taken into account. There is little doubt that one of the effects of the 'good governance' has influenced the change in identity of the headteachers (Name deleted to maintain the integrity of the review process 2016). The perception of 'themselves' as representatives of the administration accounts for this. It is a (socio-professional and intermediate) positioning which exists between the demands of the administration and the interests of teachers, and which transcends the structural aspects of the management model, for example system of choice and strategies for promotion. In this context, the role of an agent-manager, who devotes a huge amount of time to administrative tasks, is reconfigured. These terms refer to a type of techno-bureaucratic form of regulation which shows, as evidence, a concern for the superior levels of control (and accountability). Furthermore, it belies the existence of a 'real autonomy' within educational centres with regard to pedagogical, organisational and other aspects. Added to this, and as an aggravating factor, is the lack of professionalisation (training) of school headteachers. This is a key issue, particularly if we consider that, today, the demands of the administration and teachers on the management functions of schools require, primarily, management and conflict resolution skills.

In short, there exists a binding analysis of these categories which exposes the many processes of neoliberal domination and governance currently existing within the Spanish educational system. According to [8], it relates to a form of governance which holds headteachers accountable for the success of the school (top-down, "governed by others") but, at the same time, makes them feel responsible for the results of their work (bottom-up, "governing of oneself"). In this way, regulation and self-regulation techniques create a framework for the power relations which control the "school's autonomy." as well as other aspects.  In this double game, the NPM's logic of competition prioritises measurable actions in order to standardise and produce results. Consequently, it sees the headteacher as a business manager (with administrative functions, and as an instrument for assessment within the school); that is, the one who is assessed, but also the one who assesses others in addition to assessing those processes involved in the management of the school. This takes place within a culture of productivity which destroys and underestimates headteachers in their personal dimension. There are, of course, headteachers who are sympathetic to this approach and to "the forms which govern them" and who are willing to (re)produce the neoliberal regime of truth (and its technologies). Others, as can be observed, are capable of creating spaces of resistance based on an ethical reflection of their experiences. In this regard they recognise themselves not only in terms of "who they are," but also in terms of "who they might become" (a "headteacher with pedagogical capacity"). This is their "space of freedom and transgression." Where appropriate, those expressions of disappointment, stress, frustration, and so on, are configured as "confrontation processes" which reveal criticism, discomfort and questioning –in short, their resistance to "what they do not want to become." This is the way in which they define their role and stance. From a Foucauldian perspective, these headteachers expose and highlight, in a critical way, the impact of power relations on their professional role [32]. As a result, their autonomy, authority, power, assessment, collegiality, etc. are at stake. This results from a stance which projects and defines them.

 

5. Conclusions

This paper offers an analysis of neoliberalisation processes, from the perspective of the NPM. Additionally, it explores the principles which govern educational "good governance." Neoliberalism has been analysed and described as a complex phenomenon which transcends a mere interest in global capitalism with its constant mantra of accumulating profit [4]. The NPM redefines world governance and, in so doing, produces novel relationships between different social actors, such as the State and capital [5]. It has been seen how individuals construct a worldview based on competition [39] and from the context of neoliberal rationality. In the world of education, the NPM focuses on strategies which aim to discipline both teachers and management teams, using accountability mechanisms and assessment [7]. Thus, within the education system, the NPM is introducing modes of bureaucratic governance which possess the values and principles of the private sector [8]. As a result, they are transforming the role of the headteacher into that of a representative of the educational administration with a predominantly managerial function, rather than a school headteacher with pedagogical skills and responsibilities [6].

The focus of this paper is on the construction of a neoliberal subjectivity, such as how the logic of "good governmentality" constructs us [10] and 'makes us' see the reality of current educational practises, and the functions of school headteaching, through entrepreneurial lenses. In other words, it perceives headteachers as 'entrepreneurs of themselves.'  It is hoped that it has clarified the fact that the NPM guides the principles of the 'good governance' as a form of governance which assesses the work of school headteachers in terms of profitability and performance control. In countries like Chile, Spain, Norway and the United Kingdom, educational reforms, centred on the NPM, perceive governance in terms of the school's autonomy, and freedom of choice (for example when a family is selecting an educational centre or school) in addition to professional accountability and management based on results [6].

In the Spanish context the NPM seeks to discipline the school headteacher and control the autonomy of the school [13]. A reflexive view of the educational policy of recent decades points to the tendency of public administrations to seek a headteaching model which is increasingly 'professionalised' with a marked managerial character. In Spain, a clear change of orientation can be seen, not only in the way headteachers are appointed, but also in the professional profile of headteachers, in addition to the functions which they are expected to perform. Since the end of the General Franco's dictatorship, with the [45], and later with the laws during the democratic periods of [46] and [23], participation in educational centres was gradually encouraged. Both teachers and families took part in the election of the headteacher, as well as in the government and management of the centre through school boards. However, with the [47] and [21], both promoted by the ultra-conservative party, PP, this participation was severely restricted, thus considerably diminishing school democracy. According to [14], these laws “end up giving the coup de grace to participation, opting for a management model which responds to neoliberal and neoconservative references.”

In this way, the [47] has modified substantial aspects of previous laws with the intention of redefining the functions of the headteacher and her, or his, election. It incorporates, as a key requirement, new competences for the headteacher, so he or she now has more power, at least on a theoretical and normative level. However, at the same time, this limits the flexibility and options of the school board. The headteacher's role is 'professionalised' and assumes more power to manage and control the centre. Thus, the educational administration is committed to a more pyramidal model which lands on the NPM's own accountability. The [21] deepens into the neoliberal and neoconservative vision, facilitating conditions which favour the market-managerial model [14].

In summary, the changes in educational policies can be seen, especially under the [21], as moving towards a new profile of headteacher –one which is more managerialist. The different issues which have been studied in this research, fundamentally marked by contextual factors (for example, more impoverished and vulnerable environments), demonstrate how neoliberalism is normalising the tendency to redefine the role of the headteacher as a manager. Moreover, it shows how the headteacher is someone who is under the control of the administration and required to follow its guidelines. Ultimately this paper refers to a 'professional' who is responsible for ‘disciplining’ teachers in addition to being required to produce positive academic results. As a result, headteachers are caught between two realities. On the one hand, they are subject to the control and accountability required by the administration. On the other hand, they face, on a daily basis, the resistance and challenges from their teaching staff. This is what is today meant by 'educational business.'

This is particularly relevant if we take into account the fact that, in Andalusia, the number of candidates applying for the position of headteacher has declined dramatically. The Andalusian Regional Government’s opposition to [21], and its rejection of the measures for its adaptation, have forced them to appoint headteachers (or extend the duration of their tenure) on a provisional basis. This action is being taken by this administration regardless of standard procedures. Paradoxically, this means applying the [21] anyway because headteachers are directly appointed to their posts by the regional administration rather than by the educational community (Bolívar, 2018).

 

NOW IT READS:

 

4. Discussion

This paper offers an analysis of neoliberalisation processes, from the perspective of the NPM. Additionally, it explores the principles which govern educational "good governance." Neoliberalism has been analysed and described as a complex phenomenon which transcends a mere interest in global capitalism with its constant mantra of accumulating profit [5]. The NPM redefines world governance and, in so doing, produces novel relationships between different social actors, such as the State and capital [6]. It has been seen how individuals construct a worldview based on competition [44] and from the context of neoliberal rationality. In the world of education, the NPM focuses on strategies which aim to discipline both teachers and management teams, using accountability mechanisms and assessment [8]. Thus, within the education system, the NPM is introducing modes of bureaucratic governance which possess the values and principles of the private sector [9]. As a result, they are transforming the role of the headteacher into that of a representative of the educational administration with a predominantly managerial function, rather than a school headteacher with pedagogical skills and responsibilities [7].

The focus of this paper is on the construction of a neoliberal subjectivity, such as how the logic of "good governmentality" constructs us [10] and 'makes us' see the reality of current educational practises, and the functions of school headteaching, through entrepreneurial lenses. In other words, it perceives headteachers as 'entrepreneurs of themselves.'  It is hoped that it has clarified the fact that the NPM guides the principles of the 'good governance' as a form of governance which assesses the work of school headteachers in terms of profitability and performance control. In countries like Chile, Spain, Norway and the United Kingdom, educational reforms, centred on the NPM, perceive governance in terms of the school's autonomy, and freedom of choice (for example when a family is selecting an educational centre or school) in addition to professional accountability and management based on results [7].

In the Spanish context the NPM seeks to discipline the school headteacher and control the autonomy of the school [14]. A reflexive view of the educational policy of recent decades points to the tendency of public administrations to seek a headteaching model which is increasingly 'professionalised' with a marked managerial character. In Spain, a clear change of orientation can be seen, not only in the way headteachers are appointed, but also in the professional profile of headteachers, in addition to the functions which they are expected to perform. Since the end of the General Franco's dictatorship, with the [50], and later with the laws during the democratic periods of [51] and [26], participation in educational centres was gradually encouraged. Both teachers and families took part in the election of the headteacher, as well as in the government and management of the centre through school boards. However, with the [52] and [24], both promoted by the ultra-conservative party, PP, this participation was severely restricted, thus considerably diminishing school democracy. According to [15], these laws “end up giving the coup de grace to participation, opting for a management model which responds to neoliberal and neoconservative references.”

In this way, the [52] has modified substantial aspects of previous laws with the intention of redefining the functions of the headteacher and her, or his, election. It incorporates, as a key requirement, new competences for the headteacher, so he or she now has more power, at least on a theoretical and normative level. However, at the same time, this limits the flexibility and options of the school board. The headteacher's role is 'professionalised' and assumes more power to manage and control the centre. Thus, the educational administration is committed to a more pyramidal model which lands on the NPM's own accountability. The [24] deepens into the neoliberal and neoconservative vision, facilitating conditions which favour the market-managerial model [15].

In summary, the changes in educational policies can be seen, especially under the [24], as moving towards a new profile of headteacher –one which is more managerialist. The different issues which have been studied in this research, fundamentally marked by contextual factors (for example, more impoverished and vulnerable environments), demonstrate how neoliberalism is normalising the tendency to redefine the role of the headteacher as a manager. Moreover, it shows how the headteacher is someone who is under the control of the administration and required to follow its guidelines. Ultimately this paper refers to a 'professional' who is responsible for ‘disciplining’ teachers in addition to being required to produce positive academic results. As a result, headteachers are caught between two realities. On the one hand, they are subject to the control and accountability required by the administration. On the other hand, they face, on a daily basis, the resistance and challenges from their teaching staff. This is what is today meant by 'educational business.'

This is particularly relevant if we take into account the fact that, in Andalusia, the number of candidates applying for the position of headteacher has declined dramatically. The Andalusian Regional Government’s opposition to [24], and its rejection of the measures for its adaptation, have forced them to appoint headteachers (or extend the duration of their tenure) on a provisional basis. This action is being taken by this administration regardless of standard procedures. Paradoxically, this means applying the [24] anyway because headteachers are directly appointed to their posts by the regional administration rather than by the educational community [14].

 

5. Conclusions

Throughout this study, the goal has been to maintain consistency with the introductory proposals. In this way, the link to a critical and constructivist approach of reality has called for careful consideration, taking into account the impact of context (social, historical, cultural, etc.) as a determining element in the configuration of those regularities (perceptions, valuations and beliefs). This was then exposed to a (methodological) procedure of analysis and interpretation.

Overall, this research has managed to gather data relating to the advance of neoliberalisation processes in state education in Andalusia (extendable to the rest of Spain). It focuses, in particular, on how school headteaching in state secondary schools is influenced by neoliberal processes.

In the theoretical framework, it was necessary to establish an approach capable of establishing a foundation for the concepts, phenomena and facts which are evident in the results of this study. Thus, reference is made to a state of affairs which, vertically, covers the neoliberal phenomenon, its structural implications (systemic-governance from the outside) and action dynamics (personal-governance from within).

The results of this study highlight the particularities of the Spanish context. Together with the emerging categories, the dimensions of the impact of neoliberal advances are described. A transversal view implies that educational administration is a determining factor. The interest in its interference, and its reiteration, are undoubtedly mediated by socio-economic and cultural characteristics (SECI) in addition to the educational results of the schools investigated. Examining these variables (and as the analysis moves closer to disadvantaged social contexts) there is evidence of greater presence and resistance from headteachers in terms of their relationship with the administrative hierarchy. Whether due to the lack of a 'context view' on the part of the administration towards the centres, and/or due to the problems linked to the 'situational reality,' it is evident that, in these contexts, the demands of the administration are unwelcome. These issues are reflected in the narrative construct found in the categories administrative function (bureaucratisation of functions), representative of the administration, and school planning and organisation.

Following this, the narrative construct relates to the regularities of the emerging categories which deserve to be taken into account. There is little doubt that one of the effects of the 'good governance' has influenced the change in identity of the headteachers (Name deleted to maintain the integrity of the review process 2016). The perception of 'themselves' as representatives of the administration accounts for this. It is a (socio-professional and intermediate) positioning which exists between the demands of the administration and the interests of teachers, and which transcends the structural aspects of the management model, for example system of choice and strategies for promotion. In this context, the role of an agent-manager, who devotes a huge amount of time to administrative tasks, is reconfigured. These terms refer to a type of techno-bureaucratic form of regulation which shows, as evidence, a concern for the superior levels of control (and accountability). Furthermore, it belies the existence of a 'real autonomy' within educational centres with regard to pedagogical, organisational and other aspects. Added to this, and as an aggravating factor, is the lack of professionalisation (training) of school headteachers. This is a key issue, particularly if we consider that, today, the demands of the administration and teachers on the management functions of schools require, primarily, management and conflict resolution skills.

In short, there exists a binding analysis of these categories which exposes the many processes of neoliberal domination and governance currently existing within the Spanish educational system. According to [8], it relates to a form of governance which holds headteachers accountable for the success of the school (top-down, "governed by others") but, at the same time, makes them feel responsible for the results of their work (bottom-up, "governing of oneself"). In this way, regulation and self-regulation techniques create a framework for the power relations which control the "school's autonomy." as well as other aspects.  In this double game, the NPM's logic of competition prioritises measurable actions in order to standardise and produce results. Consequently, it sees the headteacher as a business manager (with administrative functions, and as an instrument for assessment within the school); that is, the one who is assessed, but also the one who assesses others in addition to assessing those processes involved in the management of the school. This takes place within a culture of productivity which destroys and underestimates headteachers in their personal dimension. There are, of course, headteachers who are sympathetic to this approach and to "the forms which govern them" and who are willing to (re)produce the neoliberal regime of truth (and its technologies). Others, as can be observed, are capable of creating spaces of resistance based on an ethical reflection of their experiences. In this regard they recognise themselves not only in terms of "who they are," but also in terms of "who they might become" (a "headteacher with pedagogical capacity"). This is their "space of freedom and transgression." Where appropriate, those expressions of disappointment, stress, frustration, and so on, are configured as "confrontation processes" which reveal criticism, discomfort and questioning –in short, their resistance to "what they do not want to become." This is the way in which they define their role and stance. From a Foucauldian perspective, these headteachers expose and highlight, in a critical way, the impact of power relations on their professional role [33]. As a result, their autonomy, authority, power, assessment, collegiality, etc. are at stake. This results from a stance which projects and defines them.

 

5. The abstract has been modified indicating the objective of the study.

 

Thanks for this suggestion that we have incorporated to the revised manuscript.

 

WHERE IT READ:

 

Abstract: The advance and influence of the neoliberalization processes have changed the way of understanding and managing the educational system, under a New Public Management (NPM) of education that integrates the values of the free market, competitiveness, accountability, external evaluation, etc. The methodology used was based on a qualitative research approach, we analyze the implications of neoliberal processes and NPM in school principalship in Andalusia (Spain). The sample of participants is consolidated into thirty principals belonging to public high schools. For data collection, the in-depth interview was used. Information analysis applies content analysis and its assembly with the grounded theory. The results are expressed in four categories that refer to the implications of neoliberal processes and NGP in the school principalship. The discussion and conclusions point out how the neoliberal processes and the NPM are reconfiguring the school principalship towards a 'manager-administrator' profile, a management instrument with administrative functions and an agent for assessment in the school. In this context, there are also processes of confrontation and discomfort with these transformations in the principal's role.

 

 

NOW IT READS:

 

Abstract: The advance and influence of the neoliberalization processes have changed the way of understanding and managing the educational system, under a New Public Management (NPM) of education that integrates the values of the free market, competitiveness, accountability, external evaluation, etc. The objective of this work is to analyse Andalusian headteachers’ perception of their professional practices from within the context of neoliberal and neo-conservative processes. The methodology used was based on a qualitative research approach, we analyze the implications of neoliberal processes and NPM in school principalship in Andalusia (Spain). The sample of participants is consolidated into fifteen principals belonging to public high schools. For data collection, the in-depth interview was used. Information analysis applies content analysis and its assembly with the grounded theory. The results are expressed in four categories that refer to the implications of neoliberal processes and NGP in the school principalship. There is tendency to redefine the role of the headteacher as a manager. The discussion and conclusions point out how the neoliberal processes and the NPM are reconfiguring the school principalship towards a 'manager-administrator' profile, a management instrument with administrative functions and an agent for assessment in the school. In this context, there are also processes of confrontation and discomfort with these transformations in the principal's role.

 

 

6. The introduction has been restructured.

 

Thanks for this suggestion that we have incorporated to the revised manuscript.

 

WHERE IT READ:

 

The results of the study combine the interpretive approach with a narrative dimension, evidencing not only link with practice, but also creating spaces for questioning and problematisation (resistance). The task of relating the empirical content (emic) to the theoretical foundation (etic) has enabled us to observe, with more clarity, the power relations and flows which exist within neoliberal governance mechanisms.

Using this framework, the analysis of neoliberal processes and their implications for the field of the education policy are approached, specifically relating to the impact of the 'new governance' (New Public Management) on those who manage schools subsidised by state funds. In this line, this study is linked to an approach to 'neoliberalism' which places it as a multifactorial and multidimensional phenomenon with its own rationality, one which transcends the margins of the economic and market fields. The construction of neoliberal subjectivity makes life look from the lens of business logic. Public resources are analysed under this lens, so the ‘good governance’ of the school is measured in terms of efficiency, effectiveness and economy. This means assuming neoliberalism as a form of school management in which some principals assume the characteristic values ​​of accountability and business corporate responsibility (the school has to be managed as if it were another business company), and others, develop resistance practices.

1.1 Processes of neoliberalisation and construction of subjectivities

Much of the academic work which has been carried out during the last decades has centred on the analysis of neoliberal processes. Researchers, such as [4], argue that we are facing a multiform phenomenon which strongly conditions our way of being and seeing the world. For Brown, neoliberalism, as an intellectual project, is something more complex than a simple interest in, and way of accumulating global capital. Although it relies on a rationality which strengthens the power of the capitalist class, it is a (political) rationality which goes beyond the economic concept of 'market.' This project redefines global governance, giving new meaning to the relationships which exist between state, economy, society, and citizens [5]. From the approach of New Public Management (NPM), individuals are seen in terms of human capital, that is, as a potential form of productivity. In this way, 'market values' are being accepted, integrated and subjectivated [6]. Thus, democracy, as a space for equality, sovereignty and community interest, is vulnerable to those forms of neoliberal appropriation that recast its meaning and value [7].

 

NOW IT READS:

 

This study combine the interpretive approach with a narrative dimension, evidencing not only link with practice, but also creating spaces for questioning and problematisation (resistance). The task of relating the empirical content (emic) to the theoretical foundation (etic) has enabled us to observe, with more clarity, the power relations and flows which exist within neoliberal governance mechanisms.

1.1 Processes of neoliberalisation and construction of subjectivities

Using this framework, the analysis of neoliberal processes and their implications for the field of the education policy are approached, specifically relating to the impact of the 'new governance' (New Public Management) on those who manage schools subsidised by state funds. In this line, this study is linked to an approach to 'neoliberalism' which places it as a multifactorial and multidimensional phenomenon with its own rationality [4], one which transcends the margins of the economic and market fields. The construction of neoliberal subjectivity makes life look from the lens of business logic. Public resources are analysed under this lens, so the ‘good governance’ of the school is measured in terms of efficiency, effectiveness and economy. This means assuming neoliberalism as a form of school management in which some principals assume the characteristic values ​​of accountability and business corporate responsibility (the school has to be managed as if it were another business company), and others, develop resistance practices.

Much of the academic work which has been carried out during the last decades has centred on the analysis of neoliberal processes. Researchers, such as [5], argue that we are facing a multiform phenomenon which strongly conditions our way of being and seeing the world. For Brown, neoliberalism, as an intellectual project, is something more complex than a simple interest in, and way of accumulating global capital. Although it relies on a rationality which strengthens the power of the capitalist class, it is a (political) rationality which goes beyond the economic concept of 'market.' This project redefines global governance, giving new meaning to the relationships which exist between state, economy, society, and citizens [6]. From the approach of New Public Management (NPM), individuals are seen in terms of human capital, that is, as a potential form of productivity. In this way, 'market values' are being accepted, integrated and subjectivated [7]. Thus, democracy, as a space for equality, sovereignty and community interest, is vulnerable to those forms of neoliberal appropriation that recast its meaning and value [8].

 

7. We have corrected the sample size error

 

Thanks for this suggestion that we have incorporated to the revised manuscript.

 

WHERE IT READ:

 

The sample of participants is consolidated into thirty principals belonging to public high schools.

 

NOW IT READS:

 

The sample of participants is consolidated into fifteen principals belonging to public high schools.

 

 

Reviewer 3 Report

This manuscript should be better reflect the subject matter objectively.

Excessively negative interpretations are made of the intentions of educational policies without a scientific basis.

The chosen experimental design is not suitable from an unbiased point of view, as is applied in this research.

The authors misuse the MDPI citation style, rendering many citations unintelligible, such as pg. 61, 73, etc.

The discussion is not such, since there is no comparison with other authors.

The conclusions should better summarize the article. There still are some references to other previous works.

In conclusion,  it would be advisable to broaden the overview of the study to give it greater objectivity and improve its design to avoid researcher bias.

Author Response

 

 

Journal: Education Sciences (ISSN 2227-7102)

 

Manuscript ID: education-1682261

 

Type: Article

 

Title: Analysis in the school direction of the public educational centers of Andalusia (Spain). The role of the manager in the face of new social challenges

 

 

 

May 26, 2022

 

Dear Ms. Teri Li,

 

Thank you for giving us the opportunity to revise our manuscript entitled Analysis in the school direction of the public educational centers of Andalusia (Spain). The role of the manager in the face of new social challenges. We are grateful to the Editorial office and Reviewer for their comments and we appreciate that their suggestions have contributed to improve our manuscript. We have reformulated the text according to their suggestions, as appropriate, and the changes appear detailed below in response to each of their comments.

 

Please find below the changes or comments we have made in response to the points raised (they are in bold font; our responses are in the normal font and the paragraphs copied from the article are in italics). The changes in the manuscript are highlighted in yellow.

 

We look forward to hearing from you.

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Comments:

 

1. We have incorporated references in lines requested

Thanks for this suggestion that we have incorporated to the revised manuscript.

 

WHERE IT READ:

 

Using this framework, the analysis of neoliberal processes and their implications for the field of the education policy are approached, specifically relating to the impact of the 'new governance' (New Public Management) on those who manage schools subsidised by state funds. In this line, this study is linked to an approach to 'neoliberalism' which places it as a multifactorial and multidimensional phenomenon with its own rationality, one which transcends the margins of the economic and market fields.

 

NOW IT READS:

 

Using this framework, the analysis of neoliberal processes and their implications for the field of the education policy are approached, specifically relating to the impact of the 'new governance' (New Public Management) on those who manage schools subsidised by state funds. In this line, this study is linked to an approach to 'neoliberalism' which places it as a multifactorial and multidimensional phenomenon with its own rationality [4], one which transcends the margins of the economic and market fields.

 

WHERE IT READ:

 

This mode of governance combines more direct, personal, autonomous and horizontal methods of control behaviour with the traditional ones by means of direct, bureaucratic and hierarchical measures.

 

NOW IT READS

 

'Remote government' is another important element relating to this issue. This mode of governance combines more direct, personal, autonomous and horizontal methods of control behaviour with the traditional ones by means of direct, bureaucratic and hierarchical measures. Like the quasi-market policy [20].

 

WHERE IT READ:

 

This includes appointing and contracting teachers, liaising with families and hiring external services. However, at the same time, they are held responsible for the decisions that they have carried out in a supposedly ‘autonomous’ way.

 

NOW IT READS

 

This includes appointing and contracting teachers, liaising with families and hiring external services. School institutions have the need to defend and bet on quality public education [22]. However, at the same time, they are held responsible for the decisions that they have carried out in a supposedly ‘autonomous’ way.

 

 

 

 

WHERE IT READ:

 

In this sense, the [21] downplays collegiate participatory aspects while reinforcing those which are hierarchical and administrative. A commission, formed for the most part by representatives of the administration, is now in charge of appointing headteachers. In terms of appointing and naming these school headteachers political interference by a conservative administration (the Popular Party) is obvious [13].

 

NOW IT READS

 

In this sense, the [24] downplays collegiate participatory aspects while reinforcing those which are hierarchical and administrative. Analysing the macropolitical strategies that affect the micropolitics of educational centres [27]. A commission, formed for the most part by representatives of the administration, is now in charge of appointing headteachers.

 

 

WHERE IT READ:

With this legislative change, the administration has the power to articulate commissions based on criteria relating to interests of ideology and patronage.

 

NOW IT READS

 

With this legislative change, the administration has the power to articulate commissions based on criteria relating to interests of ideology and patronage. The functions of the school direction are specified in the LOMLOE [28].

 

 

2. The LOMLOE has been incorporated, as the latest educational law, and has been specified in the region of Andalusia, referencing the information presented.

Thanks for this suggestion that we have incorporated to the revised manuscript.

 

WHERE IT READ:

 

With this legislative change, the administration has the power to articulate commissions based on criteria relating to interests of ideology and patronage.

 

 

NOW IT READS

 

With this legislative change, the administration has the power to articulate commissions based on criteria relating to interests of ideology and patronage. The functions of the school direction are specified in the LOMLOE [28].

 

 

3. We have revised the MDPI citation style.

 

Thanks for this suggestion that we have incorporated to the revised manuscript.

 

WHERE IT READ:

 

Paradoxically, this means applying the [21] anyway because headteachers are directly appointed to their posts by the regional administration rather than by the educational community (Bolívar, 2018).

 

NOW IT READS:

 

Paradoxically, this means applying the [24] anyway because headteachers are directly appointed to their posts by the regional administration rather than by the educational community [14].

 

4. The sections, discussion and conclusions have been modified.

 

Thanks for this suggestion that we have incorporated to the revised manuscript.

 

WHERE IT READ:

 

4. Discussion

Throughout this study, the goal has been to maintain consistency with the introductory proposals. In this way, the link to a critical and constructivist approach of reality has called for careful consideration, taking into account the impact of context (social, historical, cultural, etc.) as a determining element in the configuration of those regularities (perceptions, valuations and beliefs). This was then exposed to a (methodological) procedure of analysis and interpretation.

Overall, this research has managed to gather data relating to the advance of neoliberalisation processes in state education in Andalusia (extendable to the rest of Spain). It focuses, in particular, on how school headteaching in state secondary schools is influenced by neoliberal processes.

In the theoretical framework, it was necessary to establish an approach capable of establishing a foundation for the concepts, phenomena and facts which are evident in the results of this study. Thus, reference is made to a state of affairs which, vertically, covers the neoliberal phenomenon, its structural implications (systemic-governance from the outside) and action dynamics (personal-governance from within).

The results of this study highlight the particularities of the Spanish context. Together with the emerging categories, the dimensions of the impact of neoliberal advances are described. A transversal view implies that educational administration is a determining factor. The interest in its interference, and its reiteration, are undoubtedly mediated by socio-economic and cultural characteristics (SECI) in addition to the educational results of the schools investigated. Examining these variables (and as the analysis moves closer to disadvantaged social contexts) there is evidence of greater presence and resistance from headteachers in terms of their relationship with the administrative hierarchy. Whether due to the lack of a 'context view' on the part of the administration towards the centres, and/or due to the problems linked to the 'situational reality,' it is evident that, in these contexts, the demands of the administration are unwelcome. These issues are reflected in the narrative construct found in the categories administrative function (bureaucratisation of functions), representative of the administration, and school planning and organisation.

Following this, the narrative construct relates to the regularities of the emerging categories which deserve to be taken into account. There is little doubt that one of the effects of the 'good governance' has influenced the change in identity of the headteachers (Name deleted to maintain the integrity of the review process 2016). The perception of 'themselves' as representatives of the administration accounts for this. It is a (socio-professional and intermediate) positioning which exists between the demands of the administration and the interests of teachers, and which transcends the structural aspects of the management model, for example system of choice and strategies for promotion. In this context, the role of an agent-manager, who devotes a huge amount of time to administrative tasks, is reconfigured. These terms refer to a type of techno-bureaucratic form of regulation which shows, as evidence, a concern for the superior levels of control (and accountability). Furthermore, it belies the existence of a 'real autonomy' within educational centres with regard to pedagogical, organisational and other aspects. Added to this, and as an aggravating factor, is the lack of professionalisation (training) of school headteachers. This is a key issue, particularly if we consider that, today, the demands of the administration and teachers on the management functions of schools require, primarily, management and conflict resolution skills.

In short, there exists a binding analysis of these categories which exposes the many processes of neoliberal domination and governance currently existing within the Spanish educational system. According to [8], it relates to a form of governance which holds headteachers accountable for the success of the school (top-down, "governed by others") but, at the same time, makes them feel responsible for the results of their work (bottom-up, "governing of oneself"). In this way, regulation and self-regulation techniques create a framework for the power relations which control the "school's autonomy." as well as other aspects.  In this double game, the NPM's logic of competition prioritises measurable actions in order to standardise and produce results. Consequently, it sees the headteacher as a business manager (with administrative functions, and as an instrument for assessment within the school); that is, the one who is assessed, but also the one who assesses others in addition to assessing those processes involved in the management of the school. This takes place within a culture of productivity which destroys and underestimates headteachers in their personal dimension. There are, of course, headteachers who are sympathetic to this approach and to "the forms which govern them" and who are willing to (re)produce the neoliberal regime of truth (and its technologies). Others, as can be observed, are capable of creating spaces of resistance based on an ethical reflection of their experiences. In this regard they recognise themselves not only in terms of "who they are," but also in terms of "who they might become" (a "headteacher with pedagogical capacity"). This is their "space of freedom and transgression." Where appropriate, those expressions of disappointment, stress, frustration, and so on, are configured as "confrontation processes" which reveal criticism, discomfort and questioning –in short, their resistance to "what they do not want to become." This is the way in which they define their role and stance. From a Foucauldian perspective, these headteachers expose and highlight, in a critical way, the impact of power relations on their professional role [32]. As a result, their autonomy, authority, power, assessment, collegiality, etc. are at stake. This results from a stance which projects and defines them.

 

5. Conclusions

This paper offers an analysis of neoliberalisation processes, from the perspective of the NPM. Additionally, it explores the principles which govern educational "good governance." Neoliberalism has been analysed and described as a complex phenomenon which transcends a mere interest in global capitalism with its constant mantra of accumulating profit [4]. The NPM redefines world governance and, in so doing, produces novel relationships between different social actors, such as the State and capital [5]. It has been seen how individuals construct a worldview based on competition [39] and from the context of neoliberal rationality. In the world of education, the NPM focuses on strategies which aim to discipline both teachers and management teams, using accountability mechanisms and assessment [7]. Thus, within the education system, the NPM is introducing modes of bureaucratic governance which possess the values and principles of the private sector [8]. As a result, they are transforming the role of the headteacher into that of a representative of the educational administration with a predominantly managerial function, rather than a school headteacher with pedagogical skills and responsibilities [6].

The focus of this paper is on the construction of a neoliberal subjectivity, such as how the logic of "good governmentality" constructs us [10] and 'makes us' see the reality of current educational practises, and the functions of school headteaching, through entrepreneurial lenses. In other words, it perceives headteachers as 'entrepreneurs of themselves.'  It is hoped that it has clarified the fact that the NPM guides the principles of the 'good governance' as a form of governance which assesses the work of school headteachers in terms of profitability and performance control. In countries like Chile, Spain, Norway and the United Kingdom, educational reforms, centred on the NPM, perceive governance in terms of the school's autonomy, and freedom of choice (for example when a family is selecting an educational centre or school) in addition to professional accountability and management based on results [6].

In the Spanish context the NPM seeks to discipline the school headteacher and control the autonomy of the school [13]. A reflexive view of the educational policy of recent decades points to the tendency of public administrations to seek a headteaching model which is increasingly 'professionalised' with a marked managerial character. In Spain, a clear change of orientation can be seen, not only in the way headteachers are appointed, but also in the professional profile of headteachers, in addition to the functions which they are expected to perform. Since the end of the General Franco's dictatorship, with the [45], and later with the laws during the democratic periods of [46] and [23], participation in educational centres was gradually encouraged. Both teachers and families took part in the election of the headteacher, as well as in the government and management of the centre through school boards. However, with the [47] and [21], both promoted by the ultra-conservative party, PP, this participation was severely restricted, thus considerably diminishing school democracy. According to [14], these laws “end up giving the coup de grace to participation, opting for a management model which responds to neoliberal and neoconservative references.”

In this way, the [47] has modified substantial aspects of previous laws with the intention of redefining the functions of the headteacher and her, or his, election. It incorporates, as a key requirement, new competences for the headteacher, so he or she now has more power, at least on a theoretical and normative level. However, at the same time, this limits the flexibility and options of the school board. The headteacher's role is 'professionalised' and assumes more power to manage and control the centre. Thus, the educational administration is committed to a more pyramidal model which lands on the NPM's own accountability. The [21] deepens into the neoliberal and neoconservative vision, facilitating conditions which favour the market-managerial model [14].

In summary, the changes in educational policies can be seen, especially under the [21], as moving towards a new profile of headteacher –one which is more managerialist. The different issues which have been studied in this research, fundamentally marked by contextual factors (for example, more impoverished and vulnerable environments), demonstrate how neoliberalism is normalising the tendency to redefine the role of the headteacher as a manager. Moreover, it shows how the headteacher is someone who is under the control of the administration and required to follow its guidelines. Ultimately this paper refers to a 'professional' who is responsible for ‘disciplining’ teachers in addition to being required to produce positive academic results. As a result, headteachers are caught between two realities. On the one hand, they are subject to the control and accountability required by the administration. On the other hand, they face, on a daily basis, the resistance and challenges from their teaching staff. This is what is today meant by 'educational business.'

This is particularly relevant if we take into account the fact that, in Andalusia, the number of candidates applying for the position of headteacher has declined dramatically. The Andalusian Regional Government’s opposition to [21], and its rejection of the measures for its adaptation, have forced them to appoint headteachers (or extend the duration of their tenure) on a provisional basis. This action is being taken by this administration regardless of standard procedures. Paradoxically, this means applying the [21] anyway because headteachers are directly appointed to their posts by the regional administration rather than by the educational community (Bolívar, 2018).

 

NOW IT READS:

 

4. Discussion

This paper offers an analysis of neoliberalisation processes, from the perspective of the NPM. Additionally, it explores the principles which govern educational "good governance." Neoliberalism has been analysed and described as a complex phenomenon which transcends a mere interest in global capitalism with its constant mantra of accumulating profit [5]. The NPM redefines world governance and, in so doing, produces novel relationships between different social actors, such as the State and capital [6]. It has been seen how individuals construct a worldview based on competition [44] and from the context of neoliberal rationality. In the world of education, the NPM focuses on strategies which aim to discipline both teachers and management teams, using accountability mechanisms and assessment [8]. Thus, within the education system, the NPM is introducing modes of bureaucratic governance which possess the values and principles of the private sector [9]. As a result, they are transforming the role of the headteacher into that of a representative of the educational administration with a predominantly managerial function, rather than a school headteacher with pedagogical skills and responsibilities [7].

The focus of this paper is on the construction of a neoliberal subjectivity, such as how the logic of "good governmentality" constructs us [10] and 'makes us' see the reality of current educational practises, and the functions of school headteaching, through entrepreneurial lenses. In other words, it perceives headteachers as 'entrepreneurs of themselves.'  It is hoped that it has clarified the fact that the NPM guides the principles of the 'good governance' as a form of governance which assesses the work of school headteachers in terms of profitability and performance control. In countries like Chile, Spain, Norway and the United Kingdom, educational reforms, centred on the NPM, perceive governance in terms of the school's autonomy, and freedom of choice (for example when a family is selecting an educational centre or school) in addition to professional accountability and management based on results [7].

In the Spanish context the NPM seeks to discipline the school headteacher and control the autonomy of the school [14]. A reflexive view of the educational policy of recent decades points to the tendency of public administrations to seek a headteaching model which is increasingly 'professionalised' with a marked managerial character. In Spain, a clear change of orientation can be seen, not only in the way headteachers are appointed, but also in the professional profile of headteachers, in addition to the functions which they are expected to perform. Since the end of the General Franco's dictatorship, with the [50], and later with the laws during the democratic periods of [51] and [26], participation in educational centres was gradually encouraged. Both teachers and families took part in the election of the headteacher, as well as in the government and management of the centre through school boards. However, with the [52] and [24], both promoted by the ultra-conservative party, PP, this participation was severely restricted, thus considerably diminishing school democracy. According to [15], these laws “end up giving the coup de grace to participation, opting for a management model which responds to neoliberal and neoconservative references.”

In this way, the [52] has modified substantial aspects of previous laws with the intention of redefining the functions of the headteacher and her, or his, election. It incorporates, as a key requirement, new competences for the headteacher, so he or she now has more power, at least on a theoretical and normative level. However, at the same time, this limits the flexibility and options of the school board. The headteacher's role is 'professionalised' and assumes more power to manage and control the centre. Thus, the educational administration is committed to a more pyramidal model which lands on the NPM's own accountability. The [24] deepens into the neoliberal and neoconservative vision, facilitating conditions which favour the market-managerial model [15].

In summary, the changes in educational policies can be seen, especially under the [24], as moving towards a new profile of headteacher –one which is more managerialist. The different issues which have been studied in this research, fundamentally marked by contextual factors (for example, more impoverished and vulnerable environments), demonstrate how neoliberalism is normalising the tendency to redefine the role of the headteacher as a manager. Moreover, it shows how the headteacher is someone who is under the control of the administration and required to follow its guidelines. Ultimately this paper refers to a 'professional' who is responsible for ‘disciplining’ teachers in addition to being required to produce positive academic results. As a result, headteachers are caught between two realities. On the one hand, they are subject to the control and accountability required by the administration. On the other hand, they face, on a daily basis, the resistance and challenges from their teaching staff. This is what is today meant by 'educational business.'

This is particularly relevant if we take into account the fact that, in Andalusia, the number of candidates applying for the position of headteacher has declined dramatically. The Andalusian Regional Government’s opposition to [24], and its rejection of the measures for its adaptation, have forced them to appoint headteachers (or extend the duration of their tenure) on a provisional basis. This action is being taken by this administration regardless of standard procedures. Paradoxically, this means applying the [24] anyway because headteachers are directly appointed to their posts by the regional administration rather than by the educational community [14].

 

5. Conclusions

Throughout this study, the goal has been to maintain consistency with the introductory proposals. In this way, the link to a critical and constructivist approach of reality has called for careful consideration, taking into account the impact of context (social, historical, cultural, etc.) as a determining element in the configuration of those regularities (perceptions, valuations and beliefs). This was then exposed to a (methodological) procedure of analysis and interpretation.

Overall, this research has managed to gather data relating to the advance of neoliberalisation processes in state education in Andalusia (extendable to the rest of Spain). It focuses, in particular, on how school headteaching in state secondary schools is influenced by neoliberal processes.

In the theoretical framework, it was necessary to establish an approach capable of establishing a foundation for the concepts, phenomena and facts which are evident in the results of this study. Thus, reference is made to a state of affairs which, vertically, covers the neoliberal phenomenon, its structural implications (systemic-governance from the outside) and action dynamics (personal-governance from within).

The results of this study highlight the particularities of the Spanish context. Together with the emerging categories, the dimensions of the impact of neoliberal advances are described. A transversal view implies that educational administration is a determining factor. The interest in its interference, and its reiteration, are undoubtedly mediated by socio-economic and cultural characteristics (SECI) in addition to the educational results of the schools investigated. Examining these variables (and as the analysis moves closer to disadvantaged social contexts) there is evidence of greater presence and resistance from headteachers in terms of their relationship with the administrative hierarchy. Whether due to the lack of a 'context view' on the part of the administration towards the centres, and/or due to the problems linked to the 'situational reality,' it is evident that, in these contexts, the demands of the administration are unwelcome. These issues are reflected in the narrative construct found in the categories administrative function (bureaucratisation of functions), representative of the administration, and school planning and organisation.

Following this, the narrative construct relates to the regularities of the emerging categories which deserve to be taken into account. There is little doubt that one of the effects of the 'good governance' has influenced the change in identity of the headteachers (Name deleted to maintain the integrity of the review process 2016). The perception of 'themselves' as representatives of the administration accounts for this. It is a (socio-professional and intermediate) positioning which exists between the demands of the administration and the interests of teachers, and which transcends the structural aspects of the management model, for example system of choice and strategies for promotion. In this context, the role of an agent-manager, who devotes a huge amount of time to administrative tasks, is reconfigured. These terms refer to a type of techno-bureaucratic form of regulation which shows, as evidence, a concern for the superior levels of control (and accountability). Furthermore, it belies the existence of a 'real autonomy' within educational centres with regard to pedagogical, organisational and other aspects. Added to this, and as an aggravating factor, is the lack of professionalisation (training) of school headteachers. This is a key issue, particularly if we consider that, today, the demands of the administration and teachers on the management functions of schools require, primarily, management and conflict resolution skills.

In short, there exists a binding analysis of these categories which exposes the many processes of neoliberal domination and governance currently existing within the Spanish educational system. According to [8], it relates to a form of governance which holds headteachers accountable for the success of the school (top-down, "governed by others") but, at the same time, makes them feel responsible for the results of their work (bottom-up, "governing of oneself"). In this way, regulation and self-regulation techniques create a framework for the power relations which control the "school's autonomy." as well as other aspects.  In this double game, the NPM's logic of competition prioritises measurable actions in order to standardise and produce results. Consequently, it sees the headteacher as a business manager (with administrative functions, and as an instrument for assessment within the school); that is, the one who is assessed, but also the one who assesses others in addition to assessing those processes involved in the management of the school. This takes place within a culture of productivity which destroys and underestimates headteachers in their personal dimension. There are, of course, headteachers who are sympathetic to this approach and to "the forms which govern them" and who are willing to (re)produce the neoliberal regime of truth (and its technologies). Others, as can be observed, are capable of creating spaces of resistance based on an ethical reflection of their experiences. In this regard they recognise themselves not only in terms of "who they are," but also in terms of "who they might become" (a "headteacher with pedagogical capacity"). This is their "space of freedom and transgression." Where appropriate, those expressions of disappointment, stress, frustration, and so on, are configured as "confrontation processes" which reveal criticism, discomfort and questioning –in short, their resistance to "what they do not want to become." This is the way in which they define their role and stance. From a Foucauldian perspective, these headteachers expose and highlight, in a critical way, the impact of power relations on their professional role [33]. As a result, their autonomy, authority, power, assessment, collegiality, etc. are at stake. This results from a stance which projects and defines them.

 

5. The abstract has been modified indicating the objective of the study.

 

Thanks for this suggestion that we have incorporated to the revised manuscript.

 

WHERE IT READ:

 

Abstract: The advance and influence of the neoliberalization processes have changed the way of understanding and managing the educational system, under a New Public Management (NPM) of education that integrates the values of the free market, competitiveness, accountability, external evaluation, etc. The methodology used was based on a qualitative research approach, we analyze the implications of neoliberal processes and NPM in school principalship in Andalusia (Spain). The sample of participants is consolidated into thirty principals belonging to public high schools. For data collection, the in-depth interview was used. Information analysis applies content analysis and its assembly with the grounded theory. The results are expressed in four categories that refer to the implications of neoliberal processes and NGP in the school principalship. The discussion and conclusions point out how the neoliberal processes and the NPM are reconfiguring the school principalship towards a 'manager-administrator' profile, a management instrument with administrative functions and an agent for assessment in the school. In this context, there are also processes of confrontation and discomfort with these transformations in the principal's role.

 

 

NOW IT READS:

 

Abstract: The advance and influence of the neoliberalization processes have changed the way of understanding and managing the educational system, under a New Public Management (NPM) of education that integrates the values of the free market, competitiveness, accountability, external evaluation, etc. The objective of this work is to analyse Andalusian headteachers’ perception of their professional practices from within the context of neoliberal and neo-conservative processes. The methodology used was based on a qualitative research approach, we analyze the implications of neoliberal processes and NPM in school principalship in Andalusia (Spain). The sample of participants is consolidated into fifteen principals belonging to public high schools. For data collection, the in-depth interview was used. Information analysis applies content analysis and its assembly with the grounded theory. The results are expressed in four categories that refer to the implications of neoliberal processes and NGP in the school principalship. There is tendency to redefine the role of the headteacher as a manager. The discussion and conclusions point out how the neoliberal processes and the NPM are reconfiguring the school principalship towards a 'manager-administrator' profile, a management instrument with administrative functions and an agent for assessment in the school. In this context, there are also processes of confrontation and discomfort with these transformations in the principal's role.

 

 

6. The introduction has been restructured.

 

Thanks for this suggestion that we have incorporated to the revised manuscript.

 

WHERE IT READ:

 

The results of the study combine the interpretive approach with a narrative dimension, evidencing not only link with practice, but also creating spaces for questioning and problematisation (resistance). The task of relating the empirical content (emic) to the theoretical foundation (etic) has enabled us to observe, with more clarity, the power relations and flows which exist within neoliberal governance mechanisms.

Using this framework, the analysis of neoliberal processes and their implications for the field of the education policy are approached, specifically relating to the impact of the 'new governance' (New Public Management) on those who manage schools subsidised by state funds. In this line, this study is linked to an approach to 'neoliberalism' which places it as a multifactorial and multidimensional phenomenon with its own rationality, one which transcends the margins of the economic and market fields. The construction of neoliberal subjectivity makes life look from the lens of business logic. Public resources are analysed under this lens, so the ‘good governance’ of the school is measured in terms of efficiency, effectiveness and economy. This means assuming neoliberalism as a form of school management in which some principals assume the characteristic values ​​of accountability and business corporate responsibility (the school has to be managed as if it were another business company), and others, develop resistance practices.

1.1 Processes of neoliberalisation and construction of subjectivities

Much of the academic work which has been carried out during the last decades has centred on the analysis of neoliberal processes. Researchers, such as [4], argue that we are facing a multiform phenomenon which strongly conditions our way of being and seeing the world. For Brown, neoliberalism, as an intellectual project, is something more complex than a simple interest in, and way of accumulating global capital. Although it relies on a rationality which strengthens the power of the capitalist class, it is a (political) rationality which goes beyond the economic concept of 'market.' This project redefines global governance, giving new meaning to the relationships which exist between state, economy, society, and citizens [5]. From the approach of New Public Management (NPM), individuals are seen in terms of human capital, that is, as a potential form of productivity. In this way, 'market values' are being accepted, integrated and subjectivated [6]. Thus, democracy, as a space for equality, sovereignty and community interest, is vulnerable to those forms of neoliberal appropriation that recast its meaning and value [7].

 

NOW IT READS:

 

This study combine the interpretive approach with a narrative dimension, evidencing not only link with practice, but also creating spaces for questioning and problematisation (resistance). The task of relating the empirical content (emic) to the theoretical foundation (etic) has enabled us to observe, with more clarity, the power relations and flows which exist within neoliberal governance mechanisms.

1.1 Processes of neoliberalisation and construction of subjectivities

Using this framework, the analysis of neoliberal processes and their implications for the field of the education policy are approached, specifically relating to the impact of the 'new governance' (New Public Management) on those who manage schools subsidised by state funds. In this line, this study is linked to an approach to 'neoliberalism' which places it as a multifactorial and multidimensional phenomenon with its own rationality [4], one which transcends the margins of the economic and market fields. The construction of neoliberal subjectivity makes life look from the lens of business logic. Public resources are analysed under this lens, so the ‘good governance’ of the school is measured in terms of efficiency, effectiveness and economy. This means assuming neoliberalism as a form of school management in which some principals assume the characteristic values ​​of accountability and business corporate responsibility (the school has to be managed as if it were another business company), and others, develop resistance practices.

Much of the academic work which has been carried out during the last decades has centred on the analysis of neoliberal processes. Researchers, such as [5], argue that we are facing a multiform phenomenon which strongly conditions our way of being and seeing the world. For Brown, neoliberalism, as an intellectual project, is something more complex than a simple interest in, and way of accumulating global capital. Although it relies on a rationality which strengthens the power of the capitalist class, it is a (political) rationality which goes beyond the economic concept of 'market.' This project redefines global governance, giving new meaning to the relationships which exist between state, economy, society, and citizens [6]. From the approach of New Public Management (NPM), individuals are seen in terms of human capital, that is, as a potential form of productivity. In this way, 'market values' are being accepted, integrated and subjectivated [7]. Thus, democracy, as a space for equality, sovereignty and community interest, is vulnerable to those forms of neoliberal appropriation that recast its meaning and value [8].

 

7. We have corrected the sample size error

 

Thanks for this suggestion that we have incorporated to the revised manuscript.

 

WHERE IT READ:

 

The sample of participants is consolidated into thirty principals belonging to public high schools.

 

NOW IT READS:

 

The sample of participants is consolidated into fifteen principals belonging to public high schools.

 

 

Reviewer 4 Report

Thank you for submitting your manuscript “Analysis in the school direction of the public educational centers of Andalusia (Spain). The role of the manager in the face of new social challenges” to Education sciences MDPI. I am glad to be given this opportunity to read and review this manuscript. This manuscript highlights the effects of the neo-liberalisation process on the management of the education system. I found this article very informative and crucial to expanding our understanding of the implications of neo-liberal processes.

My view is that this article has potential for publication. The following issues must be addressed by the authors before publication.

Abstract:

Please before the sentence beginning with “The methodology used” on line 8, include one sentence describing the gaps in the previous study and the purpose of your study.

Please include a summary of your main findings or results somewhere in the middle of your abstract and the implications of your study at the end of your abstract.

Introduction:

Please I have issues with how this section is organized.

The paragraph from lines 42 to 46 is somewhere in the results section.

Please include the paragraph starting from lines 47 to 58 in section 1.1.

Please is there a problem with the sample size, I can see thirty principals in the abstract and 15 headteachers in the section for selection criteria.

All the other sections of the manuscript are well-written with all important issues addressed (Materials and Methods, Result and Discussion). The authors have reviewed relevant and current literature relating to their study. They have excellently explored the gaps in previous studies and clearly discussed how their study addresses the void in previous studies.

Thank you

Author Response

 

 

Journal: Education Sciences (ISSN 2227-7102)

 

Manuscript ID: education-1682261

 

Type: Article

 

Title: Analysis in the school direction of the public educational centers of Andalusia (Spain). The role of the manager in the face of new social challenges

 

 

 

May 26, 2022

 

Dear Ms. Teri Li,

 

Thank you for giving us the opportunity to revise our manuscript entitled Analysis in the school direction of the public educational centers of Andalusia (Spain). The role of the manager in the face of new social challenges. We are grateful to the Editorial office and Reviewer for their comments and we appreciate that their suggestions have contributed to improve our manuscript. We have reformulated the text according to their suggestions, as appropriate, and the changes appear detailed below in response to each of their comments.

 

Please find below the changes or comments we have made in response to the points raised (they are in bold font; our responses are in the normal font and the paragraphs copied from the article are in italics). The changes in the manuscript are highlighted in yellow.

 

We look forward to hearing from you.

 

 

Comments:

 

1. We have incorporated references in lines requested

Thanks for this suggestion that we have incorporated to the revised manuscript.

 

WHERE IT READ:

 

Using this framework, the analysis of neoliberal processes and their implications for the field of the education policy are approached, specifically relating to the impact of the 'new governance' (New Public Management) on those who manage schools subsidised by state funds. In this line, this study is linked to an approach to 'neoliberalism' which places it as a multifactorial and multidimensional phenomenon with its own rationality, one which transcends the margins of the economic and market fields.

 

NOW IT READS:

 

Using this framework, the analysis of neoliberal processes and their implications for the field of the education policy are approached, specifically relating to the impact of the 'new governance' (New Public Management) on those who manage schools subsidised by state funds. In this line, this study is linked to an approach to 'neoliberalism' which places it as a multifactorial and multidimensional phenomenon with its own rationality [4], one which transcends the margins of the economic and market fields.

 

WHERE IT READ:

 

This mode of governance combines more direct, personal, autonomous and horizontal methods of control behaviour with the traditional ones by means of direct, bureaucratic and hierarchical measures.

 

NOW IT READS

 

'Remote government' is another important element relating to this issue. This mode of governance combines more direct, personal, autonomous and horizontal methods of control behaviour with the traditional ones by means of direct, bureaucratic and hierarchical measures. Like the quasi-market policy [20].

 

WHERE IT READ:

 

This includes appointing and contracting teachers, liaising with families and hiring external services. However, at the same time, they are held responsible for the decisions that they have carried out in a supposedly ‘autonomous’ way.

 

NOW IT READS

 

This includes appointing and contracting teachers, liaising with families and hiring external services. School institutions have the need to defend and bet on quality public education [22]. However, at the same time, they are held responsible for the decisions that they have carried out in a supposedly ‘autonomous’ way.

 

 

 

 

WHERE IT READ:

 

In this sense, the [21] downplays collegiate participatory aspects while reinforcing those which are hierarchical and administrative. A commission, formed for the most part by representatives of the administration, is now in charge of appointing headteachers. In terms of appointing and naming these school headteachers political interference by a conservative administration (the Popular Party) is obvious [13].

 

NOW IT READS

 

In this sense, the [24] downplays collegiate participatory aspects while reinforcing those which are hierarchical and administrative. Analysing the macropolitical strategies that affect the micropolitics of educational centres [27]. A commission, formed for the most part by representatives of the administration, is now in charge of appointing headteachers.

 

 

WHERE IT READ:

With this legislative change, the administration has the power to articulate commissions based on criteria relating to interests of ideology and patronage.

 

NOW IT READS

 

With this legislative change, the administration has the power to articulate commissions based on criteria relating to interests of ideology and patronage. The functions of the school direction are specified in the LOMLOE [28].

 

 

2. The LOMLOE has been incorporated, as the latest educational law, and has been specified in the region of Andalusia, referencing the information presented.

Thanks for this suggestion that we have incorporated to the revised manuscript.

 

WHERE IT READ:

 

With this legislative change, the administration has the power to articulate commissions based on criteria relating to interests of ideology and patronage.

 

 

NOW IT READS

 

With this legislative change, the administration has the power to articulate commissions based on criteria relating to interests of ideology and patronage. The functions of the school direction are specified in the LOMLOE [28].

 

 

3. We have revised the MDPI citation style.

 

Thanks for this suggestion that we have incorporated to the revised manuscript.

 

WHERE IT READ:

 

Paradoxically, this means applying the [21] anyway because headteachers are directly appointed to their posts by the regional administration rather than by the educational community (Bolívar, 2018).

 

NOW IT READS:

 

Paradoxically, this means applying the [24] anyway because headteachers are directly appointed to their posts by the regional administration rather than by the educational community [14].

 

4. The sections, discussion and conclusions have been modified.

 

Thanks for this suggestion that we have incorporated to the revised manuscript.

 

WHERE IT READ:

 

4. Discussion

Throughout this study, the goal has been to maintain consistency with the introductory proposals. In this way, the link to a critical and constructivist approach of reality has called for careful consideration, taking into account the impact of context (social, historical, cultural, etc.) as a determining element in the configuration of those regularities (perceptions, valuations and beliefs). This was then exposed to a (methodological) procedure of analysis and interpretation.

Overall, this research has managed to gather data relating to the advance of neoliberalisation processes in state education in Andalusia (extendable to the rest of Spain). It focuses, in particular, on how school headteaching in state secondary schools is influenced by neoliberal processes.

In the theoretical framework, it was necessary to establish an approach capable of establishing a foundation for the concepts, phenomena and facts which are evident in the results of this study. Thus, reference is made to a state of affairs which, vertically, covers the neoliberal phenomenon, its structural implications (systemic-governance from the outside) and action dynamics (personal-governance from within).

The results of this study highlight the particularities of the Spanish context. Together with the emerging categories, the dimensions of the impact of neoliberal advances are described. A transversal view implies that educational administration is a determining factor. The interest in its interference, and its reiteration, are undoubtedly mediated by socio-economic and cultural characteristics (SECI) in addition to the educational results of the schools investigated. Examining these variables (and as the analysis moves closer to disadvantaged social contexts) there is evidence of greater presence and resistance from headteachers in terms of their relationship with the administrative hierarchy. Whether due to the lack of a 'context view' on the part of the administration towards the centres, and/or due to the problems linked to the 'situational reality,' it is evident that, in these contexts, the demands of the administration are unwelcome. These issues are reflected in the narrative construct found in the categories administrative function (bureaucratisation of functions), representative of the administration, and school planning and organisation.

Following this, the narrative construct relates to the regularities of the emerging categories which deserve to be taken into account. There is little doubt that one of the effects of the 'good governance' has influenced the change in identity of the headteachers (Name deleted to maintain the integrity of the review process 2016). The perception of 'themselves' as representatives of the administration accounts for this. It is a (socio-professional and intermediate) positioning which exists between the demands of the administration and the interests of teachers, and which transcends the structural aspects of the management model, for example system of choice and strategies for promotion. In this context, the role of an agent-manager, who devotes a huge amount of time to administrative tasks, is reconfigured. These terms refer to a type of techno-bureaucratic form of regulation which shows, as evidence, a concern for the superior levels of control (and accountability). Furthermore, it belies the existence of a 'real autonomy' within educational centres with regard to pedagogical, organisational and other aspects. Added to this, and as an aggravating factor, is the lack of professionalisation (training) of school headteachers. This is a key issue, particularly if we consider that, today, the demands of the administration and teachers on the management functions of schools require, primarily, management and conflict resolution skills.

In short, there exists a binding analysis of these categories which exposes the many processes of neoliberal domination and governance currently existing within the Spanish educational system. According to [8], it relates to a form of governance which holds headteachers accountable for the success of the school (top-down, "governed by others") but, at the same time, makes them feel responsible for the results of their work (bottom-up, "governing of oneself"). In this way, regulation and self-regulation techniques create a framework for the power relations which control the "school's autonomy." as well as other aspects.  In this double game, the NPM's logic of competition prioritises measurable actions in order to standardise and produce results. Consequently, it sees the headteacher as a business manager (with administrative functions, and as an instrument for assessment within the school); that is, the one who is assessed, but also the one who assesses others in addition to assessing those processes involved in the management of the school. This takes place within a culture of productivity which destroys and underestimates headteachers in their personal dimension. There are, of course, headteachers who are sympathetic to this approach and to "the forms which govern them" and who are willing to (re)produce the neoliberal regime of truth (and its technologies). Others, as can be observed, are capable of creating spaces of resistance based on an ethical reflection of their experiences. In this regard they recognise themselves not only in terms of "who they are," but also in terms of "who they might become" (a "headteacher with pedagogical capacity"). This is their "space of freedom and transgression." Where appropriate, those expressions of disappointment, stress, frustration, and so on, are configured as "confrontation processes" which reveal criticism, discomfort and questioning –in short, their resistance to "what they do not want to become." This is the way in which they define their role and stance. From a Foucauldian perspective, these headteachers expose and highlight, in a critical way, the impact of power relations on their professional role [32]. As a result, their autonomy, authority, power, assessment, collegiality, etc. are at stake. This results from a stance which projects and defines them.

 

5. Conclusions

This paper offers an analysis of neoliberalisation processes, from the perspective of the NPM. Additionally, it explores the principles which govern educational "good governance." Neoliberalism has been analysed and described as a complex phenomenon which transcends a mere interest in global capitalism with its constant mantra of accumulating profit [4]. The NPM redefines world governance and, in so doing, produces novel relationships between different social actors, such as the State and capital [5]. It has been seen how individuals construct a worldview based on competition [39] and from the context of neoliberal rationality. In the world of education, the NPM focuses on strategies which aim to discipline both teachers and management teams, using accountability mechanisms and assessment [7]. Thus, within the education system, the NPM is introducing modes of bureaucratic governance which possess the values and principles of the private sector [8]. As a result, they are transforming the role of the headteacher into that of a representative of the educational administration with a predominantly managerial function, rather than a school headteacher with pedagogical skills and responsibilities [6].

The focus of this paper is on the construction of a neoliberal subjectivity, such as how the logic of "good governmentality" constructs us [10] and 'makes us' see the reality of current educational practises, and the functions of school headteaching, through entrepreneurial lenses. In other words, it perceives headteachers as 'entrepreneurs of themselves.'  It is hoped that it has clarified the fact that the NPM guides the principles of the 'good governance' as a form of governance which assesses the work of school headteachers in terms of profitability and performance control. In countries like Chile, Spain, Norway and the United Kingdom, educational reforms, centred on the NPM, perceive governance in terms of the school's autonomy, and freedom of choice (for example when a family is selecting an educational centre or school) in addition to professional accountability and management based on results [6].

In the Spanish context the NPM seeks to discipline the school headteacher and control the autonomy of the school [13]. A reflexive view of the educational policy of recent decades points to the tendency of public administrations to seek a headteaching model which is increasingly 'professionalised' with a marked managerial character. In Spain, a clear change of orientation can be seen, not only in the way headteachers are appointed, but also in the professional profile of headteachers, in addition to the functions which they are expected to perform. Since the end of the General Franco's dictatorship, with the [45], and later with the laws during the democratic periods of [46] and [23], participation in educational centres was gradually encouraged. Both teachers and families took part in the election of the headteacher, as well as in the government and management of the centre through school boards. However, with the [47] and [21], both promoted by the ultra-conservative party, PP, this participation was severely restricted, thus considerably diminishing school democracy. According to [14], these laws “end up giving the coup de grace to participation, opting for a management model which responds to neoliberal and neoconservative references.”

In this way, the [47] has modified substantial aspects of previous laws with the intention of redefining the functions of the headteacher and her, or his, election. It incorporates, as a key requirement, new competences for the headteacher, so he or she now has more power, at least on a theoretical and normative level. However, at the same time, this limits the flexibility and options of the school board. The headteacher's role is 'professionalised' and assumes more power to manage and control the centre. Thus, the educational administration is committed to a more pyramidal model which lands on the NPM's own accountability. The [21] deepens into the neoliberal and neoconservative vision, facilitating conditions which favour the market-managerial model [14].

In summary, the changes in educational policies can be seen, especially under the [21], as moving towards a new profile of headteacher –one which is more managerialist. The different issues which have been studied in this research, fundamentally marked by contextual factors (for example, more impoverished and vulnerable environments), demonstrate how neoliberalism is normalising the tendency to redefine the role of the headteacher as a manager. Moreover, it shows how the headteacher is someone who is under the control of the administration and required to follow its guidelines. Ultimately this paper refers to a 'professional' who is responsible for ‘disciplining’ teachers in addition to being required to produce positive academic results. As a result, headteachers are caught between two realities. On the one hand, they are subject to the control and accountability required by the administration. On the other hand, they face, on a daily basis, the resistance and challenges from their teaching staff. This is what is today meant by 'educational business.'

This is particularly relevant if we take into account the fact that, in Andalusia, the number of candidates applying for the position of headteacher has declined dramatically. The Andalusian Regional Government’s opposition to [21], and its rejection of the measures for its adaptation, have forced them to appoint headteachers (or extend the duration of their tenure) on a provisional basis. This action is being taken by this administration regardless of standard procedures. Paradoxically, this means applying the [21] anyway because headteachers are directly appointed to their posts by the regional administration rather than by the educational community (Bolívar, 2018).

 

NOW IT READS:

 

4. Discussion

This paper offers an analysis of neoliberalisation processes, from the perspective of the NPM. Additionally, it explores the principles which govern educational "good governance." Neoliberalism has been analysed and described as a complex phenomenon which transcends a mere interest in global capitalism with its constant mantra of accumulating profit [5]. The NPM redefines world governance and, in so doing, produces novel relationships between different social actors, such as the State and capital [6]. It has been seen how individuals construct a worldview based on competition [44] and from the context of neoliberal rationality. In the world of education, the NPM focuses on strategies which aim to discipline both teachers and management teams, using accountability mechanisms and assessment [8]. Thus, within the education system, the NPM is introducing modes of bureaucratic governance which possess the values and principles of the private sector [9]. As a result, they are transforming the role of the headteacher into that of a representative of the educational administration with a predominantly managerial function, rather than a school headteacher with pedagogical skills and responsibilities [7].

The focus of this paper is on the construction of a neoliberal subjectivity, such as how the logic of "good governmentality" constructs us [10] and 'makes us' see the reality of current educational practises, and the functions of school headteaching, through entrepreneurial lenses. In other words, it perceives headteachers as 'entrepreneurs of themselves.'  It is hoped that it has clarified the fact that the NPM guides the principles of the 'good governance' as a form of governance which assesses the work of school headteachers in terms of profitability and performance control. In countries like Chile, Spain, Norway and the United Kingdom, educational reforms, centred on the NPM, perceive governance in terms of the school's autonomy, and freedom of choice (for example when a family is selecting an educational centre or school) in addition to professional accountability and management based on results [7].

In the Spanish context the NPM seeks to discipline the school headteacher and control the autonomy of the school [14]. A reflexive view of the educational policy of recent decades points to the tendency of public administrations to seek a headteaching model which is increasingly 'professionalised' with a marked managerial character. In Spain, a clear change of orientation can be seen, not only in the way headteachers are appointed, but also in the professional profile of headteachers, in addition to the functions which they are expected to perform. Since the end of the General Franco's dictatorship, with the [50], and later with the laws during the democratic periods of [51] and [26], participation in educational centres was gradually encouraged. Both teachers and families took part in the election of the headteacher, as well as in the government and management of the centre through school boards. However, with the [52] and [24], both promoted by the ultra-conservative party, PP, this participation was severely restricted, thus considerably diminishing school democracy. According to [15], these laws “end up giving the coup de grace to participation, opting for a management model which responds to neoliberal and neoconservative references.”

In this way, the [52] has modified substantial aspects of previous laws with the intention of redefining the functions of the headteacher and her, or his, election. It incorporates, as a key requirement, new competences for the headteacher, so he or she now has more power, at least on a theoretical and normative level. However, at the same time, this limits the flexibility and options of the school board. The headteacher's role is 'professionalised' and assumes more power to manage and control the centre. Thus, the educational administration is committed to a more pyramidal model which lands on the NPM's own accountability. The [24] deepens into the neoliberal and neoconservative vision, facilitating conditions which favour the market-managerial model [15].

In summary, the changes in educational policies can be seen, especially under the [24], as moving towards a new profile of headteacher –one which is more managerialist. The different issues which have been studied in this research, fundamentally marked by contextual factors (for example, more impoverished and vulnerable environments), demonstrate how neoliberalism is normalising the tendency to redefine the role of the headteacher as a manager. Moreover, it shows how the headteacher is someone who is under the control of the administration and required to follow its guidelines. Ultimately this paper refers to a 'professional' who is responsible for ‘disciplining’ teachers in addition to being required to produce positive academic results. As a result, headteachers are caught between two realities. On the one hand, they are subject to the control and accountability required by the administration. On the other hand, they face, on a daily basis, the resistance and challenges from their teaching staff. This is what is today meant by 'educational business.'

This is particularly relevant if we take into account the fact that, in Andalusia, the number of candidates applying for the position of headteacher has declined dramatically. The Andalusian Regional Government’s opposition to [24], and its rejection of the measures for its adaptation, have forced them to appoint headteachers (or extend the duration of their tenure) on a provisional basis. This action is being taken by this administration regardless of standard procedures. Paradoxically, this means applying the [24] anyway because headteachers are directly appointed to their posts by the regional administration rather than by the educational community [14].

 

5. Conclusions

Throughout this study, the goal has been to maintain consistency with the introductory proposals. In this way, the link to a critical and constructivist approach of reality has called for careful consideration, taking into account the impact of context (social, historical, cultural, etc.) as a determining element in the configuration of those regularities (perceptions, valuations and beliefs). This was then exposed to a (methodological) procedure of analysis and interpretation.

Overall, this research has managed to gather data relating to the advance of neoliberalisation processes in state education in Andalusia (extendable to the rest of Spain). It focuses, in particular, on how school headteaching in state secondary schools is influenced by neoliberal processes.

In the theoretical framework, it was necessary to establish an approach capable of establishing a foundation for the concepts, phenomena and facts which are evident in the results of this study. Thus, reference is made to a state of affairs which, vertically, covers the neoliberal phenomenon, its structural implications (systemic-governance from the outside) and action dynamics (personal-governance from within).

The results of this study highlight the particularities of the Spanish context. Together with the emerging categories, the dimensions of the impact of neoliberal advances are described. A transversal view implies that educational administration is a determining factor. The interest in its interference, and its reiteration, are undoubtedly mediated by socio-economic and cultural characteristics (SECI) in addition to the educational results of the schools investigated. Examining these variables (and as the analysis moves closer to disadvantaged social contexts) there is evidence of greater presence and resistance from headteachers in terms of their relationship with the administrative hierarchy. Whether due to the lack of a 'context view' on the part of the administration towards the centres, and/or due to the problems linked to the 'situational reality,' it is evident that, in these contexts, the demands of the administration are unwelcome. These issues are reflected in the narrative construct found in the categories administrative function (bureaucratisation of functions), representative of the administration, and school planning and organisation.

Following this, the narrative construct relates to the regularities of the emerging categories which deserve to be taken into account. There is little doubt that one of the effects of the 'good governance' has influenced the change in identity of the headteachers (Name deleted to maintain the integrity of the review process 2016). The perception of 'themselves' as representatives of the administration accounts for this. It is a (socio-professional and intermediate) positioning which exists between the demands of the administration and the interests of teachers, and which transcends the structural aspects of the management model, for example system of choice and strategies for promotion. In this context, the role of an agent-manager, who devotes a huge amount of time to administrative tasks, is reconfigured. These terms refer to a type of techno-bureaucratic form of regulation which shows, as evidence, a concern for the superior levels of control (and accountability). Furthermore, it belies the existence of a 'real autonomy' within educational centres with regard to pedagogical, organisational and other aspects. Added to this, and as an aggravating factor, is the lack of professionalisation (training) of school headteachers. This is a key issue, particularly if we consider that, today, the demands of the administration and teachers on the management functions of schools require, primarily, management and conflict resolution skills.

In short, there exists a binding analysis of these categories which exposes the many processes of neoliberal domination and governance currently existing within the Spanish educational system. According to [8], it relates to a form of governance which holds headteachers accountable for the success of the school (top-down, "governed by others") but, at the same time, makes them feel responsible for the results of their work (bottom-up, "governing of oneself"). In this way, regulation and self-regulation techniques create a framework for the power relations which control the "school's autonomy." as well as other aspects.  In this double game, the NPM's logic of competition prioritises measurable actions in order to standardise and produce results. Consequently, it sees the headteacher as a business manager (with administrative functions, and as an instrument for assessment within the school); that is, the one who is assessed, but also the one who assesses others in addition to assessing those processes involved in the management of the school. This takes place within a culture of productivity which destroys and underestimates headteachers in their personal dimension. There are, of course, headteachers who are sympathetic to this approach and to "the forms which govern them" and who are willing to (re)produce the neoliberal regime of truth (and its technologies). Others, as can be observed, are capable of creating spaces of resistance based on an ethical reflection of their experiences. In this regard they recognise themselves not only in terms of "who they are," but also in terms of "who they might become" (a "headteacher with pedagogical capacity"). This is their "space of freedom and transgression." Where appropriate, those expressions of disappointment, stress, frustration, and so on, are configured as "confrontation processes" which reveal criticism, discomfort and questioning –in short, their resistance to "what they do not want to become." This is the way in which they define their role and stance. From a Foucauldian perspective, these headteachers expose and highlight, in a critical way, the impact of power relations on their professional role [33]. As a result, their autonomy, authority, power, assessment, collegiality, etc. are at stake. This results from a stance which projects and defines them.

 

5. The abstract has been modified indicating the objective of the study.

 

Thanks for this suggestion that we have incorporated to the revised manuscript.

 

WHERE IT READ:

 

Abstract: The advance and influence of the neoliberalization processes have changed the way of understanding and managing the educational system, under a New Public Management (NPM) of education that integrates the values of the free market, competitiveness, accountability, external evaluation, etc. The methodology used was based on a qualitative research approach, we analyze the implications of neoliberal processes and NPM in school principalship in Andalusia (Spain). The sample of participants is consolidated into thirty principals belonging to public high schools. For data collection, the in-depth interview was used. Information analysis applies content analysis and its assembly with the grounded theory. The results are expressed in four categories that refer to the implications of neoliberal processes and NGP in the school principalship. The discussion and conclusions point out how the neoliberal processes and the NPM are reconfiguring the school principalship towards a 'manager-administrator' profile, a management instrument with administrative functions and an agent for assessment in the school. In this context, there are also processes of confrontation and discomfort with these transformations in the principal's role.

 

 

NOW IT READS:

 

Abstract: The advance and influence of the neoliberalization processes have changed the way of understanding and managing the educational system, under a New Public Management (NPM) of education that integrates the values of the free market, competitiveness, accountability, external evaluation, etc. The objective of this work is to analyse Andalusian headteachers’ perception of their professional practices from within the context of neoliberal and neo-conservative processes. The methodology used was based on a qualitative research approach, we analyze the implications of neoliberal processes and NPM in school principalship in Andalusia (Spain). The sample of participants is consolidated into fifteen principals belonging to public high schools. For data collection, the in-depth interview was used. Information analysis applies content analysis and its assembly with the grounded theory. The results are expressed in four categories that refer to the implications of neoliberal processes and NGP in the school principalship. There is tendency to redefine the role of the headteacher as a manager. The discussion and conclusions point out how the neoliberal processes and the NPM are reconfiguring the school principalship towards a 'manager-administrator' profile, a management instrument with administrative functions and an agent for assessment in the school. In this context, there are also processes of confrontation and discomfort with these transformations in the principal's role.

 

 

6. The introduction has been restructured.

 

Thanks for this suggestion that we have incorporated to the revised manuscript.

 

WHERE IT READ:

 

The results of the study combine the interpretive approach with a narrative dimension, evidencing not only link with practice, but also creating spaces for questioning and problematisation (resistance). The task of relating the empirical content (emic) to the theoretical foundation (etic) has enabled us to observe, with more clarity, the power relations and flows which exist within neoliberal governance mechanisms.

Using this framework, the analysis of neoliberal processes and their implications for the field of the education policy are approached, specifically relating to the impact of the 'new governance' (New Public Management) on those who manage schools subsidised by state funds. In this line, this study is linked to an approach to 'neoliberalism' which places it as a multifactorial and multidimensional phenomenon with its own rationality, one which transcends the margins of the economic and market fields. The construction of neoliberal subjectivity makes life look from the lens of business logic. Public resources are analysed under this lens, so the ‘good governance’ of the school is measured in terms of efficiency, effectiveness and economy. This means assuming neoliberalism as a form of school management in which some principals assume the characteristic values ​​of accountability and business corporate responsibility (the school has to be managed as if it were another business company), and others, develop resistance practices.

1.1 Processes of neoliberalisation and construction of subjectivities

Much of the academic work which has been carried out during the last decades has centred on the analysis of neoliberal processes. Researchers, such as [4], argue that we are facing a multiform phenomenon which strongly conditions our way of being and seeing the world. For Brown, neoliberalism, as an intellectual project, is something more complex than a simple interest in, and way of accumulating global capital. Although it relies on a rationality which strengthens the power of the capitalist class, it is a (political) rationality which goes beyond the economic concept of 'market.' This project redefines global governance, giving new meaning to the relationships which exist between state, economy, society, and citizens [5]. From the approach of New Public Management (NPM), individuals are seen in terms of human capital, that is, as a potential form of productivity. In this way, 'market values' are being accepted, integrated and subjectivated [6]. Thus, democracy, as a space for equality, sovereignty and community interest, is vulnerable to those forms of neoliberal appropriation that recast its meaning and value [7].

 

NOW IT READS:

 

This study combine the interpretive approach with a narrative dimension, evidencing not only link with practice, but also creating spaces for questioning and problematisation (resistance). The task of relating the empirical content (emic) to the theoretical foundation (etic) has enabled us to observe, with more clarity, the power relations and flows which exist within neoliberal governance mechanisms.

1.1 Processes of neoliberalisation and construction of subjectivities

Using this framework, the analysis of neoliberal processes and their implications for the field of the education policy are approached, specifically relating to the impact of the 'new governance' (New Public Management) on those who manage schools subsidised by state funds. In this line, this study is linked to an approach to 'neoliberalism' which places it as a multifactorial and multidimensional phenomenon with its own rationality [4], one which transcends the margins of the economic and market fields. The construction of neoliberal subjectivity makes life look from the lens of business logic. Public resources are analysed under this lens, so the ‘good governance’ of the school is measured in terms of efficiency, effectiveness and economy. This means assuming neoliberalism as a form of school management in which some principals assume the characteristic values ​​of accountability and business corporate responsibility (the school has to be managed as if it were another business company), and others, develop resistance practices.

Much of the academic work which has been carried out during the last decades has centred on the analysis of neoliberal processes. Researchers, such as [5], argue that we are facing a multiform phenomenon which strongly conditions our way of being and seeing the world. For Brown, neoliberalism, as an intellectual project, is something more complex than a simple interest in, and way of accumulating global capital. Although it relies on a rationality which strengthens the power of the capitalist class, it is a (political) rationality which goes beyond the economic concept of 'market.' This project redefines global governance, giving new meaning to the relationships which exist between state, economy, society, and citizens [6]. From the approach of New Public Management (NPM), individuals are seen in terms of human capital, that is, as a potential form of productivity. In this way, 'market values' are being accepted, integrated and subjectivated [7]. Thus, democracy, as a space for equality, sovereignty and community interest, is vulnerable to those forms of neoliberal appropriation that recast its meaning and value [8].

 

7. We have corrected the sample size error

 

Thanks for this suggestion that we have incorporated to the revised manuscript.

 

WHERE IT READ:

 

The sample of participants is consolidated into thirty principals belonging to public high schools.

 

NOW IT READS:

 

The sample of participants is consolidated into fifteen principals belonging to public high schools.

 

 

Round 2

Reviewer 1 Report

The term "school direction" has been only removed in one sentence but, from my point of view, it affects to to the tittle and rest of the text. The translation from the Spanish term to the English term is not accurate and it is lacking appropriate use of definition, e.g. UNESCO thesaurus:

https://vocabularies.unesco.org/browser/thesaurus/es/page/?clang=en&uri=concept1371

 No explicit mention was made to the suggestions of the reviews but only a general answer that is not addressing some issues that must be review.

Author Response

Journal: Education Sciences (ISSN 2227-7102)

 

Manuscript ID: education-1682261

 

Type: Article

 

Title: Analysis in the school direction of the public educational centers of Andalusia (Spain). The role of the manager in the face of new social challenges

 

 

Jun 15, 2022

Thank you for giving us the opportunity again to revise our manuscript entitled Analysis in the school direction of the public educational centers of Andalusia (Spain). The role of the manager in the face of new social challenges. We are grateful to the Editorial office and Reviewer for their comments and we appreciate that their suggestions have contributed to improve our manuscript. We have reformulated the text according to their suggestions, as appropriate, and the changes appear detailed below in response to each of their comments.

 

Please find below the changes or comments we have made in response to the points raised (they are in bold font; our responses are in the normal font and the paragraphs copied from the article are in italics). The changes in the manuscript are highlighted in yellow.

 

We look forward to hearing from you.

 

 

Yours sincerely,

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Comments:

 

The term "school direction" has been replaced by "educational administration" according to the UNESCO Thesaurus. Thanks for this suggestion that we have incorporated to the revised manuscript.

 

WHERE IT READ:

 

Analysis in the school direction of the public educational centers of Andalusia (Spain). The role of the manager in the face of new social challenges

 

NOW IT READS:

 

Analysis in the educational administration of the public educational centers of Andalusia (Spain). The role of the manager in the face of new social challenges

 

WHERE IT READ:

 

With this legislative change, the administration has the power to articulate commissions based on criteria relating to interests of ideology and patronage. The functions of the school direction are specified in the LOMLOE [28].

 

NOW IT READS

 

With this legislative change, the administration has the power to articulate commissions based on criteria relating to interests of ideology and patronage. The functions of the educational administration are specified in the LOMLOE [28].

 

 

Author Response File: Author Response.pdf

Round 3

Reviewer 1 Report

I think the paper is ready to publish after minor revision of English style.