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    International Journal of Intercultural Relations30 (2006) 261279

    Ethnic minorities and the Spanish and Catalaneducational systems: From exclusion to

    intercultural education

    Jordi Garreta Bochaca

    Departament de Geograa i Sociologia, Facultat de Cie `ncies de lEducacio , Complex de la Caparrella s/n,Universitat de Lleida, Lleida 25192, Spain

    Abstract

    Since the 1990s, cultural diversity in Spanish classrooms has increased notably with the arrival of immigrant origin students. This fact, together with the European Union discourses aboutconsideration for cultural differences, have contributed to the appearance in Spain, and particularlyin Catalonia, of an intercultural discourse. This article analyses the evolution of educational policiesup to the current dominant discourse (from exclusion to incorporation in the school and theclassroom, passing through segregationist actions) emphasising the difculty nowadays of puttingthis into everyday practice, among other things for the lack of references and the absence of resources. This is done through the analysis of different ofcial documents, as well as recoupingdifferent pieces of research on this question by both the author and others.r 2005 Elsevier Ltd. All rights reserved.

    Resumen

    La diversidad cultural en las aulas espan olas se ha incrementado notablemente a partir de los an osnoventa por la llegada de alumnado de origen inmigrante y este hecho, junto con los discursos detoma en consideracio n de las diferencias culturales que ha realizado la Unio n Europea, hancontribuido a la aparicio n en Espan a, y particularmente en Catalun a, del discurso intercultural. Esteart culo analiza la evolucio n realizada hasta llegar al discurso dominante actual (de la exclusio n a laincorporacio n en la escuela y en las aulas, pasando por actuaciones segregacionistas), eso s ,enfatizando en la dicultad existente hoy en d a de traducir el mismo a la pra ctica cotidiana, entreotras cosas por la falta de referentes y por la ausencia de recursos. Todo ello se realizara a partir del

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    www.elsevier.com/locate/ijintrel

    0147-1767/$ - see front matter r 2005 Elsevier Ltd. All rights reserved.doi:10.1016/j.ijintrel.2005.11.006

    Tel.: +34973702098; fax: +34 973703119.E-mail address: [email protected].

    http://www.elsevier.com/locate/ijintrelhttp://www.elsevier.com/locate/ijintrel
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    ana lisis de diferentes documentos ociales, as como de recuperar diferentes investigaciones ajenas ypropias realizadas sobre esta cuestio n.r 2005 Elsevier Ltd. All rights reserved.

    Keywords: Ethnic minorities; Immigrants; Gypsies; Spanish and Catalan educational system; Compensation;Intercultural education; Sociology of education

    Palabras clave: Minor as e tnicas; Inmigrantes; Gitanos; Sistema educativo espan ol y catala n; Compensacio n;Educacio n intercultural; Sociolog a de la educacio n

    1. Introduction

    Cultural diversity is not a new phenomenon inside the walls of the school, but it has

    undergone changes in the way it is viewed. It has gone1

    from models that postulated thatintegration into a society should be through assimilation into the dominant group of theculturally different, to more modern discourses about recognition and valuing, to a greateror lesser extent, of the other cultures by society and in schools.

    The evolution observed in other societies does not differ greatly from the Spanish case,although the rhythm and the timing do not coincide. Although it is true that there is still along way to go before Spain, and, specically Catalonia, one of its AutonomousCommunities (regions), 2 can be referred to as a society where intercultural education hasbeen implanted, it is also true that the discourses are leading in this direction. However,nowadays, it can be afrmed that assimilation, integration, through positive discrimina-tion with compensatory programmes and, partially, cultural pluralism (which, as well astransmitting the dominant culture, takes the minority cultures and languages intoconsideration, although maintaining distances) do appear to have been put into practice. 3

    Nevertheless, this is still not true as far as multicultural education for everyone isconcerned (extension of the anterior focus to the minority and majority students) orintercultural education, which would implicitly contain the idea of interaction between,and the enrichment of, all members of society. At this level, we must refer more todiscourses than to actual practice.

    Julio Caraban a, in an 1993 article that had important repercussions, considered thatamong the multicultural problems in education in Spain (i.e., those that have interestedteachers and researchers), the oldest is probably the difference in academic performancebetween social groups. This led to compensatory programmes that were applied to ethnicminorities. Other important problems are bilingualism in specic AutonomousCommunities with their own languages (Catalonia is one of these), as well as the arrivalof immigrants and their concentration in certain zones and schools, and the presence of

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    1 In some places, but in others this evolution has not occurred or has followed other directions.2 The administrative division into 17 Autonomous Communities has caused diversication in relation to the

    theme of this study. This has meant that since this structure was created, the research carried out has been partial,

    that is, centred on some of these Communities. The complexity of a comparative study has restricted any stepforward in this sense, as does the youth of the sample under consideration for the cultural differences (however, itmust be mentioned that our research team has produced a project to analyse the work done comparatively andlines for the future).

    3 With respect to these focuses, see, among others, Tarrow (1990) .

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    indigenous minorities in the country. In the case of Spain, the gypsies fall into this lattercontext.

    In Spain, among what are nowadays usually denominated ethnic minorities, thegypsies are the group with the most resistant ethnic identity. It has been often stated thatsomething had to be done to integrate them, which in most cases meant assimilatingthem into society and the school. Moreover, given that the arrival of a large number of foreign immigrants is relatively recent, the rst actions that we nd were aimed especiallytowards the gypsies. For Mariano Ferna ndez Enguita (1996) , historically, three stages canbe differentiated in relation to attention to diversity. In a rst stage, they were simplyexcluded from the schools, as they were from other institutional and social spheres. In asecond stage, there was a switch from exclusion to segregation given that despite theirname, the so-called bridge-schools became a form of segregated non-transitory schooling.The third step was the incorporation of these children into the ordinary classroom with thebacking of compensatory education programmes. As shown below, in the mid-1990s,compensatory programmes coincided with intercultural discourses, but little practice.Simultaneously, the above-mentioned evolution coexisted with the transformation from acentralised educational system, emanating from Madrid, to a decentralised model wherethe autonomous communities took on a very important role (some more than others) inquestions of education. This, for example, has led to different ways of understanding andworking on cultural diversity. A brief resume of each of this evolution is presented belowand given the diversity of perspectives and action that there is and the little research done,we shall base our research on the autonomous community of Catalonia.

    2. Exclusion, segregation and insertion

    2.1. Exclusion and segregation

    In Spain, in contrast with other countries, since the Real Pragma tica of Medina delCampo (1499), the aim was to make gypsies abandon all distinguishing traits and passunnoticed, and exclusion only appeared as an alternative solution for those who refused tomeld into their surroundings. Later, there was a change to imprisonment for those whoresisted. As Lie geois (1987) states, in most states, the policy of exclusion lost strengthduring the 19th century, generally up to 1950, when gypsy affairs came to be viewed withingeneral surveillance and control measures. From 1945 on (still very soon after the Nazigenocide) connement was replaced with inclusion for humanitarian considerations andfor the management of an ever more technocratic society.

    During most of the Franco period (19391975), at an educational level, it could be saidthat more than conscious exclusion, gypsies went through a period of non-compulsoryschooling. Up to a point, it can be said that they attended school when they, and theirfamilies, wanted. Moreover, this was in function of the steps taken in the process of acculturation into the payo 4 world, totally or partially renouncing their personal andgroup identity ( Ferna ndez Enguita, 1996 ). This idea is endorsed by Teresa San Roma n(1984) , who states that the appearance and relative increase in training and educationamong the above-mentioned group means higher acculturation, while illiteracy is a sign of ethnic isolation.

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    4 In Spain the word payo is used by gypsies to indentify non-gypsies.

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    2.2. Insertion and compensation

    Spanish society in the 1960s and 1970s, the last period of Francos regime, wascharacterised by economic development and social change. A consequence of this was thegreat migratory movement from the rural zones to the cities, with effects for both. At aneducational level, the panorama could be dened as one of important deciencies,overcrowding and high dropout rates, and children from marginal minority sectorsdeprived of schooling. It is in this context that the compensatory educational policyappeared in the text of the General Law of Education in 1970, which was aimed to makethe educational system function on a fairer basis. This programme was conceived tocompensate for the deciencies in the education system ( Gran eras et al., 1997 ). As Caleroand Bonal (1999) afrm, the legacy of Francos regime in education was a profoundlyunequal education system. It was polarised between a private school that took pupils fromthe better-off classes, and a public school very low in quality and quantity, obsolete inteaching contents and the training of teaching staff, authoritarian in the taking of decisionswithin the institutions and the concept of pedagogic interaction, etc.

    Of course, there was still segregationist practice disguised under legal texts that, intheory, aimed for insertion. In 1978, with the Union of the Democratic Centre (UCD) ingovernment, an agreement was signed between the National Secretariat of GypsyApostolate, dependent on the Catholic Church, and the Ministry of Education and Sciencewhich created the Bridge Schools. This covenant lasted until 1986, when it was nallydecided to enrol gypsy children in ordinary centres, although, as Mariano Ferna ndezEnguita (1996) states, there are still exceptional cases of Bridge Schools. The aim of these

    was to facilitate the access of gypsies to school through centres located near their homes,dedicated specically to them and adaptable to their circumstances. For example, in the19811982 school year, there were 182 Bridge Schools in Spain, 11 in Barcelona andanother, without specifying, in Hospitalet ( Secretariado Nacional Gitano, 1982 ). The workcarried out by the National Gypsy Secretariat in 1982 showed that the educationalproblematic of the gypsy school population was related to the consequences of theirexclusion. This took the form of precocious work, lack of social habits, discrimination inschooling, lack of school places, pedagogical imbalance, disadvantage in the educationalsystem and discordance between home and school) and thus an intervention like the BridgeSchools was justied. In fact, it was afrmed as follows:

    The creation of special schools is not a result of discrimination, but rather that theaim is to incorporate gypsy infants into the common school, and those schools carrythis name, as they are aimed at preparing the gypsies children to enter into thegeneral schools; it is a transitory stage (p. 16).

    This positive appraisal of these special classes also occurred in other contexts. Theabove-mentioned Lie geois (1987) afrmed that reality imposed itself and the best in theshort term was not to eliminate these classes, given that the ordinary schools offeredneither the pedagogic quality, respect for the culture, nor the indispensable exibility intimetables and discipline.

    Thus, despite the segregation, the perpetuation of the situation and the fact that thetargets were not reached, the result was not totally negative given that it also served toenrol those who would otherwise never have gone to school. It also gave rise to theappearance of a small sector of teachers concerned about the question ( Ferna ndez Enguita,

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    level or place of residence. The programme did, however, include cultural minorities asa specic area of action orientated to the enrolment of the infant population, theregularisation of attendance at class and the avoidance of early dropping out ( Terre n,2001 ).

    In the 198384 course, it was applied statewide and its function was to deal with theneeds of those pupils who were at risk of social exclusion. In Catalonia, 8 it was rst appliedin mainly gypsy La Perona neighbourhood in Barcelona before being expanded to otherareas. The programme came into being with a provisional nature, but in reality, it becameconsolidated. From 1986 to 1987 on, it was extended to students of Moroccan origin in ElRaval in Barcelona, and since then, the number of teachers, the presence of pupils fromother cultures, and its geographical distribution, have continued increasing, reaching allover Catalonia ( Crespo, 1997 ). This was so until the end of 2003 when it disappearedmerged with other Services of the Generalitat de Catalonia (the Catalan AutonomousGovernment).

    For its part, the 1990 Constitutional Law of General Ordering of the EducationalSystem, LOGSE, 9 underlined as targets of the educational system, among others, respectfor cultures and education in co-operation and the solidarity. For Eduardo Terre n (2001) ,it was the rst Spanish educational law affecting all the country (like the Law of Qualityreferred to below) that mentions the need to ght ethnic-cultural and sexual discriminationand, in line with the directives of the Council of Europe, opened the door for theimplantation of intercultural education programmes. 10 It should be emphasised that, incontrast to the 1970 LGE, that set out an educational system with parallel compensatoryaction, the LOGSE is intended to build an education system that also compensates for

    inequalities without parallel action ( Gran eras et al., 1997 ).At the end of 1990, the agreement was signed with the Departament dEnsenyament 11 of the Generalitat to take over the Compensatory Education programme in Catalonia. Thisprogramme was then centred on providing help for the full integration of children withproblems of social exclusion. In practice, these pupils are mainly from the gypsy ethnicgroup and immigrant origin, specically from the so-called Third World. This programmewas gradually modied, inuenced by the teaching demands, as well as the interculturaldiscourse that appeared in a confused way at the beginning, and especially, at the end of the 1990s. An example of this confusion is the work of the Laboratory of InterculturalStudies at the University of Granada ( Garc a, Barraga n, Granados, & Garc aCano, 2002 )

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    8 Autonomous Community this study is centred on given that it is where the intercultural discourse and theinterest in dealing with cultural diversity is most highly developed. Among other things, this is a result of it beingone of the Autonomous Communities with its own language and which has been characterised by the vindicationof its different culture and identity.

    9 Constitutional Law 1/1990 of 3 October.10 With respect to the discourse by the Council of Europe, consult; Conseil de lEurope (1983, 1989) .11 The name of the department in the autonomous administration in Catalonia that looks after all formal

    education, except universities. It should be borne in mind that from the 1978 Constitution and the 1979 Statute of Autonomy, Catalonia has full control of education. That means that it has evolved from a centralised system toone that is decentralised in which the various autonomous governments have the power to manage at an

    educational level. This is, however, always within a common legal framework, which denes the minimums,leaving the regional governments with room for manoeuvre. Moreover, in the Catalan case, the fact of having itsown language (as also happens in the Basque Country and Galicia but not in the other autonomous communities)has meant that the teaching language is Catalan (to develop this aspect and that of autonomous education, whichwe do not have space to deal with here, consult: www.gencat.es ).

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    http://www.gencat.es/http://www.gencat.es/
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    who show how the little conceptual clarity, the lack of knowledge about diversity in theclassroom in statistical terms, among other questions, led to important doses of speculation in the discourse. The authors analysed the X Congreso Nacional de Pedagog aheld at the beginning of 1992 under the theme Intercultural Education in the Perspectiveof the United Europe. They draw attention to the little research carried out, the lack of theoretical reference points, the vagueness or simplicity of the proposals made, althoughwith good intentions, the corporate interest in taking over a theme that they hadalways worked on, etc.

    Recently a new step was taken at the legislative level in Spain, namely the approval inParliament (31 October 2002) of the Project for the Constitutional Law of Quality inEducation. Without going into excessive detail, given that the specic details still remain tobe decided despite the time that has elapsed and waiting still to see how these evolve withthe new government, this Popular Party law includes signicant support for opportunitiesfor quality for everyone as one of its axis (the third). This axis would specify, for example,the principal of equality (that guarantees, according to the document, equality of opportunity for quality) and the right of the pupil to receive help to compensate for family,economic, social and cultural shortcomings that impede, or obstruct access to, andpermanence in, the education system. Moreover, it dedicates special attention (chapter VII,rst section) to foreign students and their specic educational needs. To this end, it willpromote the creation of learning programmes and specic classrooms with the intention of favouring their integration, as well as adopting the necessary measures to assess theirparents about their rights, duties and opportunities. It is clear that we will need to bewatchful over coming years as to how this law is applied in the day to day in the classroom.

    3. Towards intercultural education: analysis of the contradictions of the Catalan model

    One of the motives for the development of the intercultural discourse in Spain, butespecially in Catalonia, the Autonomous Community we concentrate on, is the notableincrease in the number of pupils of immigrant origin in the classroom, especially in publiccentres. Thus, for example, while in the 19911992 course these pupils made up 0.8% of total pupil numbers in schools in Catalonia, in 19951996 this gure was 1.5%, and in19981999, 1.8%. In 20002001 they represented 2.5% and in 20022003 this had risen to4.7% ( Departament dEnsenyament, 2002 ; Secretaria per a la Immigracio , 2003). The same

    source provides the geographic origins of these pupils. The data from 2001 to 2002 showsthe following distribution. The 35.1% are from North Africa, 37.8% from Central andSouth America, 8.3% from the European Union, 7.4% from non-EU European countries,6.5% from Asia and Oceania, 4.1% from sub-Saharan Africa and 0.8% from NorthAmerica. Another interesting question is the effect of this new focus on the gypsies, anethnic minority with a long history in Spain. They are, for example, invisible at a statisticallevel, in the sense that, in contrast to pupils of immigrant origin for whom statistics appearevery year, it is not known exactly how many of them there are, where they are or theirdegree of academic success or failure.

    It was in 1992 when the Department of Education, on dening the curriculum forprimary ( Departament dEnsenyament, 1992a ) and compulsory secondary education(Departament dEnsenyament, 1992b ), rst referred to interculturality. For theDepartment, it is necessary that the innumerable decisions that are taken every day arecoherent with an educational project that tends towards an intercultural society, without

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    dening this, and promote the capacity for interpersonal relations and social insertion andaction.

    Thus, in 1993 Inter-departmental Plan for Immigration was approved. This would lead,years later, to the concretion of the intercultural option. The document envisaged action bythe Department of Education, as well as other departments, in the eld of interculturality,specically in the training of trainers. According to Salvador Carrasco (1999) , sociologistand then in the General Sub-department, the idea of the plan was to promote a generalpolicy for immigration, promoting full integration and facilitating access to existingresources and programmes, adapting them to the necessities when needed. On anotherhand, during the 19931994 and 19951996 courses, various guidelines and resolutionsfrom the Council of the European Union about the response to the problems of racism andxenophobia were published. 12 In his opinion, some of these would corroborate the line of work taken. However, it was in 1996, with the publication of the transversal axis onintercultural education, when a clearer bid was made to advance towards this model. Thisdocument ( Departament dEnsenyament, 1996 ) afrmed that education has to prepare thenew generations for life in Catalan society, an aim implying developing a set of attitudesand aptitudes in all the pupils with respect to their own culture and cultural diversity insociety and the school. This was rooted in the community itself and openness, respect anddialogue, tolerance and critical sense, coexistence and constructive resolution of conicts,empathy and afrmation of ones own identity, etc. In this framework, the teaching staff was invited to introduce these approaches into schools and not to see them as adding to theteaching task a load that generates headaches and stress.

    The document, the basis for the transversal axis to be followed in schools in Catalonia,

    considers that it should not be a supercial educational practice, on the margin of theordinary curriculum, nor aimed solely at the culturally different minority pupils.Intercultural education is intended to give all pupils the above-mentioned culturalcompetence in each centre and classroom. Thus, the objectives of this conception of intercultural education would be:

    (1) cultivate positive intercultural attitudes (respect, value, tolerate, overcome prejudices);(2) improve the personal, cultural and academic self-conception (look after ones own

    cultural identity, introduce different cultural elements);(3) strengthen coexistence (discover resemblances, play and learn co-operatively, resolve

    conicts constructively); and(4) improve the equality of opportunity for all pupils (maximise performance, adapt the

    curriculum, manifest positive expectations).

    If we follow Ouellet (1991) ,13 the position taken in this document by the Generalitat deCatalunya would respond, to a great degree, to the model of taking cultural differencesinto consideration, that postulates that it is necessary to prepare the pupils to live in aculturally diverse society. Thus, the principal objectives of this model coincide: strive forthe participation and implication of parents in the educational project, promote awareness

    of cultural diversity, promote the implication of the teaching staff and give importance to

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    12 See Hansen (1998) .13 He would group the efforts for the promotion of intercultural education into three models: promotion of

    cultural pluralism, taking cultural differences into consideration and combating racism.

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    the mother tongue. If the discourse is analysed in greater depth, it must be pointed out thatsome of these objectives for the priorities and specications that appear in the document,such as the reference to the mother tongues, although important, are given lower prioritythan others. But it is also true that, although it is little, the Department of Educationcarries out the programme of Learning, for the immigrant pupils, of Arab language andculture that seeks to promote courses with the aim of conserving their identity and, to thisrespect, make them feel accepted in Catalonia. This programme is carried out with theschool timetable and is voluntary for the families of these pupils. These courses will only berun in some zones and it must be mentioned that they are not yet very well developed(Secretaria per a la Immigracio , 2001a, 2001b ).

    In Catalonia, these orientations to dene intercultural education passes to the schoolsthe request for them, slowly, to adopt their Educational Project (PEC) 14 and CurricularProject (PCC) 15 to its objectives (at rst only a few of these to ensure that they would reallybe put into practice and advance progressively). For Jorda n, Castella, and Pinto (1998)(the former played an important role in drawing up the document in the Department of Education), the process of preparing an intercultural curriculum in the centres consists of these three logical stagesthe Centre Educational Project (CEP), the Centre CurricularProject (CCP) and transfer to the areas of knowledge. To achieve this, some basic criteriaare provided to draw up the CEP in the line of inter-culturality. Among others, theseinclude proposing lines of action to eradicate prejudices, reecting on the multiculturalsociety and what it represents; ensuring the participation of parents; giving priority to thedesign of objectives in the eld of inter-culturality and debating cultural proposals fromdifferent areas.

    To sum up, nowadays the Department of Educations policy of intercultural education iscentred and dened in ve wide elds of action. These are the reception of recently arrivedpupils in the school; support for school enrolment; training of teaching staff inintercultural education; support for the teaching staff (didactic material); and thepromotion and participation in elds of debate about intercultural education ( Castella,2001 ; Secretaria per a la Immigracio , 2001 ). It must be said that these actions are speciallydesigned for immigrant-origin pupils and would indirectly implicate gypsies given that theyare recognised as culturally different, although their incorporation in the school is believedto be difcult ( Garreta, 2003 ).

    4. Catalonia and cultural diversity during the 1990s and beginning of the new century

    During recent years, the studies carried out centre their interest, or part of it, on thediscourse, guidelines and intervention, that is, on the practice. These, not to be toonegative, could be said not always to be favourable to what the Generalitat of Catalunyahas been doing to respond to the recently so-highly valued cultural diversity. These workshave often been more critical of the interventions and guidelines, in that order, than with

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    14

    For the Department of Education, the CEP is made up of the pedagogical and organisational principals andthe linguistic project.

    15 The curricular project (PCC) is an eminently pedagogical document that is a basic instrument for dening theapproaches and options that respect the principals and the prescriptions of the curriculum, the structuralorganisation of the educational system and diversity of characteristics of the pupils.

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    the discourses, which, despite the criticisms they have and can receive, have been adaptedto the dominant intercultural current.

    In 1992, Pascual analysed the response given by the Catalan administration to culturaldiversity conrming that the school system had maintained the ofcial curriculumpractically intact, the only response being the reinforcing of schooling for those who arrivehalf-way through a course or cycle. With respect to the centres, the admission of immigrant-origin children is often perceived as a problem, especially when they arrive half-schooled, have a lower level than the majority of the native children of their age and whenthe school becomes, or is thought to be becoming, a ghetto-school. In third place, thepedagogical practice of the teachers was limited to the curricular lines that the schoolimposed and, in particular, to each centres educational plan. In each centre, theeducational offer was mono-cultural and uniform, whether there were minority pupils ornot.

    For Bartolome (1997) , the approach by Pascual should be modied and take intoaccount the contribution of the Compensatory Education Programme, that has worked foryears; the various experiences, the result of the growing sensitivity to cultural differences;the training courses on this theme and the support of various movements, associations andinstitutions, international agreements and support, and the materials and resourcesprepared for use by the teaching staff. We would also add the programme of trainingtrainers carried out by the Autonomous University of Barcelona and the Department of Education (see Carrasco, Soto, & Tov as, 1997 ).

    But it is also true that the Colectivo IOE (1996) concluded in its work that the dominanttendency in the Spanish school, 16 both at a practical and an ideological level, is an

    assimilating posture. For the Colectivo IOE, a profound reappraisal is needed of theconceptions the school institutions and the majority of its agents and implicate theeducators seriously in the proposal of intercultural education to abandon the assimilatoryapproaches. Specically, with reference to the teaching staff, it is believed necessary not topolarise efforts on the attitudes of the teaching staff or the contents, but rather to worksimultaneously in both directions.

    In 1998, Palauda rias differentiated three levels of action and intervention carried outwith regard to the presence of the cultural diversity generated by foreign-origin pupils 17 :discursive, normative and compensatory of inequalities. From the discursive point of view,he considered that the Administration and the educational services had generated a

    discourse in which the concepts of inter-culturality and intercultural education lled thevacuum created by the non-existence of guidelines, strategies and school practices fordealing with cultural diversity. However, Palauda rias considered that understanding thediscourse was difcult given that it had to articulate the previous, essentially assimilatory,practices, and the changes that supposed the transfer to the praxis of the interculturaldiscourse. This meant, among other things, that the teaching staff had promoted few newand really intercultural practices and guidelines and that when they had done so these fellinto the promotion in schools of action about other cultures without too much priorreection, often falling into the folkloric, which Banks (1986) called addition. At thesecond level, the normative, the author considered that although no specic normative had

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    16 His work was centred on Moroccans in Catalonia and the Autonomous Community of Madrid, which has thehighest number of immigrant origin pupils.

    17 In some occasions taking and adapting previous legislation and the practices.

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    been generated, the existing one had been adapted, in some aspects, with the intention of providing a legal framework for the recognition and defence of the educational rights of the immigrants and their families. As far as the gypsies were concerned, being Spanishcitizens, specic legislation would be unnecessary. The third level, the compensation forinequalities, was dened by the compensatory focus that it had taken on in Catalonia. Thispolicy, applied through the really compensatory Compensatory Education Programme,and the linguistic Catalan Teaching Service, that aimed at integration, was not welladapted to school practices. He considered that there was a policy to orientate theschooling of the children of non-Community immigrants, but he found it to be seriouslydamaged, having been applied for some time without obtaining the expected results, andunable to face the challenges of a multi-cultural society. Years later, Palauda rias (2002)recognised that, more than the ofcial programmes, some professionals have progressedcloser to intercultural action than the really compensatory education. However, he stillconsiders an effort in this direction necessary given that little has yet been done.

    Another study that should be mentioned is the one that, from a comparative point of view, specically compared intercultural education in Switzerland and Spain, especially inCatalonia, and which carried out by Akkari and Ferrer (2000) . This work, after presentingthe statistics about students belonging to the cultural minorities, analysed the distributionpolicy and the reception and support programmes for these pupils. It then afrmed thatthe current theoretical and practical position with respect to intercultural education, bothin the schools, the public administration and society, is generally assimilatory. This,according to their opinion, is closely related to the process of strengthening culturalidentity in Catalonia and the implicit belief that diversity, rather than enriching this

    process, obstructs it. The dominant assimilatory and compensatory models in theeducational administration in Catalonia respond to the afrmation of the culture of thehost society. This situation is not seen as contradictory to the compensatory vision,endorsed by the Administration, 18 of the phenomena of intercultural education and, inturn, signs are seen of an opening towards more advanced models. The Arab language andculture classes would be indicators of this.

    To sum up, the studies cited present a certain evolution during the 1990s but continueindicating, more or less conclusively, that the educational practice is more assimilatory andcompensatory than really intercultural. We wished to verify this fact by carrying out anextensive in-depth study into the situation of the attitudes and opposition, and

    intercultural practice in schools in Catalonia (see Garreta & Llevot, 2003 ).19

    This alsoindicated that the dynamic of implanting intercultural education is slow (although we alsogive it a certain leeway) and that until now, due to the lack of a general proposal or onefrom a specic centre, the teaching staff have not received adequate orientation andresources and nor are they obliged to dene themselves on this question and thus act.

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    18 Inducing and disseminating this focus among the teaching professionals.19 Our interest was to analyse the opinion and the attitudes of the teaching staff from the public, private and

    grant-aided private primary and compulsory secondary education centres (pupils from 6 to 16 years old) in

    Catalonia. For this, using the Department of Education census of teaching staff, the sample was calculated to givean optimum degree of error. Thus the sample was 740 teaching staff from all over Catalonia, which, in the mostunfavourable case ( p q 50%) and with 95.5% condence, gives a degree of error of 7 3.6. The eldwork wasdone through personal interviews in the centres. A total of 211 schools scattered around all the districts of Catalonia were visited.

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    Through our empirical study, we were able to establish the extent of training in this eldamong teaching staff in compulsory education in Catalonia, and we consider it no morethan insufcient and poor, as do other authors. However, it is also true that this is owing tothe current situation, given that until a few years ago, the concern to maintain and respectcultural diversity did not dominate. On the contrary, homogeneity was valued. Apart fromthis, many teachers have other training priorities or preferences. Nevertheless, not all theresponsibility should be placed on the teaching staff. The educational administration andthe University Schools for Teachers, nowadays Faculties of Educational Sciences, alsohave responsibility. 20

    Referring to initial training in cultural diversity, intercultural education, etc., which isthe responsibility of the university, 90% of the interviewees stated that they had none. Thislack of specic training is related to the age of the interviewee, as among the under 30s, thisresponse fell to 68%, indicating that there have been changes in teacher traininginstitutions and that they are gradually incorporating training options in this eld.

    As far as on-going training is concerned, the results show rstly an improvement in thelevel, in comparison with initial training, although 64% have none. This percentage againvaries in function of age, but in this case in the opposite sense: the younger the teacher themore they afrm not having done any (73%), 21 against 57% for the over-50s. Amongthose who state that they have done on-going training in cultural diversity, the most usualis courses on diversity (17%), 22 conict resolution (8%), intercultural education (7.5%),adaptation of the curriculum to cultural diversity (4%) and practical strategies for workingwith it in the classroom (2%). The circumstances that the teaching staff nd themselves incondition the choice of on-going training, whether this is on general or more specic

    themes. Thus, for example, as the presence of gypsy and immigrant-origin pupils increases,so does the index of on-going training related to cultural diversity received by the teacher.To give an overall vision, teachers were divided into three groups in function of their

    training in the eld of cultural diversity in the school. The differentiation was relativelyeasy given that, on one hand, there were those without any kind of training and, on theother, those that had done third cycle studies, i.e., those who had specialised. It appearsfrom this classication that 57.7% of the teaching staff have no training in this eld, 40.3%have a basic level (from the mentioned criteria, those that had done some training courseor courses; for example, with a duration of 10, 15 or 20 h). The remaining 2% wereconsidered to have specialised training (Graph 1).

    Continuing with more data, which can be found in greater detail in Garreta and Llevot(2003) , the teaching staff in compulsory education in Catalonia believe that all, and werepeat all, centres should have intercultural education as a reference. Based on theseresults, it seems that the crystallisation of the aims of interculturality will not fail as a resultof opposition from the teaching staff. Evidently, however, there is a small minority who donot believe that intercultural education must be a reference for all centres (2.5% are littlein agreement and 0.1% not at all). The results obtained are presented graphically inGraph 2.

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    20

    For a basic explanation of what is done and who does it in initial and on-going training in Spain, consult:Centro de Investigacio n y Documentacio n Educativa (2000) .

    21 It must be stated that age is a conditioning factor.22 The courses mentioned (antiracist education, coexistence, Arab language, etc.) are so varied, that it was opted

    to group everything that cannot be placed in the following categories under this label.

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    However, on the other hand, there are difculties with putting the pedagogic aims intopractice in schools. To sum up, the proposition, the discourse of intercultural education isdifcult to put into daily practice, is a warning. Although it is believed that it has to go ina specic direction, how to put it on the road and how this discourse can become a realityis not clearly seen (Graph 3).

    The opinion that this is difcult is more common among those teachers who have notraining in the eld of cultural diversity, intercultural education, etc., and less so for those

    who the training received has given more condence that it can be put into practice. It isalso true that, despite the training received, they are suspicious.

    Another question that continues to indicate the existing situation is the answer to thephrase the increase in cultural diversity in the classroom represents adding to the loadthat the teaching staff already have to bear. 23 Again, the answers differ signicantlydepending on whether it is from teaching staff trained in this eld, who are less inagreement, than those who have no training, with a higher level of agreement. Thus,without much orientation, only that which some received in the initial and on-goingtraining, and which is not always the best possible, the day to day question is to see wholooks after these pupils, whether it is the teaching staff in the classroom or a specialist. Thisalso means falling back on elements of professional and personal baggage (from resources

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    58

    38.5

    0.1

    0.92.5

    A lot Enough Little Nothing Not respond

    Graph 2. Level of training in the eld of cultural diversity among teaching staff in compulsory education.

    57.5

    40.3

    2

    Without training Basic Specialised

    Graph 1. Level of training in the eld of cultural diversity among teaching staff in compulsory education inCatalonia.

    23 Specically, 42.5% would be a lot, 43.5% enough, 10% little and 3% nothing, the others did notrespond.

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    from previous situations to notions of common sense, and here one nds action based bothon ethics, for example human rights, as well as the ethnocentric prejudices).

    As mentioned, in Catalonia, the deployment and the concretion of the curriculum is aprocess that requires a set of decisions based on the characteristics of each centre. Theseare specied in the CEP, the CCP and in the programming of the cycle (Department of Education, 1995). Thus the Departament dEnsenyament (1996) gives a set of guidelinesfor taking inter-culturality into consideration in the cited documents so that it impregnatesthe day-to-day practice in the schools. However, it should be asked if these guidelines anddocuments have had any effect on the centres. This is not only from the fact that there areethnic minority groups, but also for the multi-linguistic and multi-national composition of

    the Spanish state, not to mention the cultural pluralism which is characteristic of advancedsocieties. To what extent have the CEP, the CCP and the curricular areas taken intoaccount that we live in a multicultural society and adapted to this reality? These are someof the questions posed and which we try to answer from the results obtained.

    Concentrating on the CEP, we asked our interlocutors to tell us the degree to which theybelieve that common criteria for working on cultural diversity [have been] established.The answers indicate that 15.5% of the teaching staff believe that it has been adapted alot and 35% enough, while 32.5% consider it little or not at all. As on otheroccasions, this data can be differentiated to indicate who have adapted the PEC of theircentre more to the cultural diversity of society. This is in function of the presence of

    immigrants, not gypsies. As an example of this, as the presence of foreigners in the centreincreases, so does the degree of adaptation of the CEP to cultural diversity, while in centreswithout foreigners little adaptation occurs. Moreover, certain origins inuence morethan others. Adaptation is higher among those centres with pupils of EU, sub-Saharan andMaghreb origin (in that order) while it is signicantly lower when the pupils are gypsies.Following this logic, the PEC is more adapted in the centres where the teaching staff hasmore training in cultural diversity. There is no doubt that training is linked to theexperience of cultural diversity in the school and the classroom, and that it awakens theinterest of the teaching staff beyond the credential pressure.

    A similar degree of adaptation appears in the CCPs, about which the interviewees wereasked if they believed the CCP had adequately detailed the need to attend to culturaldiversity. This way, while in the previous project we were interested in knowing if common criteria had been established, in this case, it was whether they had stated thatadequate attention was necessary. The answers given were mainly little (27.5%) and

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    32.5

    43.5

    12.5 3.51

    Alot Enough Little Nothing Not respond

    Graph 3. Degree of agreement with: The intercultural education discourse is difcult to put into daily practice.

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    enough (38.5%). Leaving aside the few who did not answer, 17% answered a lot,while 10% say not at all. On this occasion, the points mentioned when referring to theCEP also appear. As the number of foreigners in the centres increases, the CCP ismentioned more often. This increase is more important when there are pupils of EU, sub-Saharan and Maghreb origin (in this order), while the centres that have gypsy pupils arethe ones that make the fewest changes. Moreover, we continue noting that the responseschange in function of the training the teaching staff has in the eld of cultural diversity,and there is a direct relation between training and higher assertion of the need for adequateattention. These results perpetuate our opinion that action is taken in specic contexts andsituations, but not in others, and this is not what the intercultural model advocates.Naturally, it can always be added that more time is needed and that a start has been madewhere the needs are more urgent.

    With reference to the third of the steps necessary to draw up an intercultural curriculum,specifying the way in which interculturalism can be worked on in the different curricularareas, another trigger sentence allowed insight into the work done. In this occasion wewere interested in knowing if how to work on interculturality in the different areas hadbeen specied and the results showed that less progress has been made than in the previousquestions, which in turn, as mentioned above, we do not consider to be notable. Theanswers were again concentrated in little (39%) and enough (35%). At the extremes,12% say nothing and 9% that a lot has been done. As above, as the number of foreigners in the centres rises, the afrmative responses increase while those schools thathave gypsy pupils continue to adapt to a lesser degree.

    From the above, it is deduced in general terms that, when we refer to pedagogical and

    organisational principals (CEP) and there curricular concretion (CCP), more has beendone the closer we go to the more concrete, that is to the extrapolation of the approachdevised to the areas of knowledge. Thus, for A. Jorda n, E. Castella and C. Pinto, theprocess of preparing an intercultural curriculum in the centre consists of three steps. It canbe said that the rst two have been started and carried out in some centres. However, thelast, and most specic, level is not as far forward as it is more difcult and requires moreinvolvement ( Table 1 ).

    To continue getting closer to the practices we wished to know, as well as the previousaction done in the eld of the centres, if the teaching staff had done anything in the

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    Table 1Adaptation to diversity in educational centres

    Establish common criteriain the PEC for working oncultural diversity

    Detail the need to attend tocultural diversity in thePCC

    Specify how to work oncultural diversity in theareas of knowledge

    A lot 15.5 17 9Enough 35 38.5 35Little 32.5 27.5 39None 9 10 12

    No answer 8 7 5

    Mean 2.6 2.7 2.4Deviation 0.88 0.89 0.83

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    classroom. This not only means if the teaching staff in the school as a whole are more orless interested in this question, but rather whether the interviewee had done anything

    personally and, in case of not having done anything, how they justify this decision. Therst point to emphasise is that over half (51.5%) of those interviewed had done nothing, anomission justied because there was no diversity (41%) or because they did not believe itwas necessary to do anything (10.5%). The answers obtained still show that there is theperception that these questions belong to the centres and classrooms where there is culturaldiversity and, apparently, teachers tend to consider that the rest of the students need notprepare themselves to live in a culturally diverse society. It is curious and symptomatic tosee that 29% of the teaching staff who have more than 5% of foreign-origin students, or27% of those who have gypsies, argue that it is not necessary to do anything, given thatthere is no diversity in the class.

    Among those who had done something to take the cultural diversity into consideration,they mention that they have given specic explanations about the culture of some students(15%), carried out specic curricular changes (14%), dedicated sessions to tolerance(10.5%), organised tutorials (5%) and informative sessions for the parents of the gypsy orimmigrant origin students (4%), organised intercultural conferences (2.5%), adaptedlinguistically (3%) and explained the host society to the minorities (0.5%). This being anopen question allows us to see the denition that is made of adaptation to culturaldiversity, often interpreted as an addition and not necessarily transversally (impregnatingall the subjects over the whole course 24 ) (Table 2 ).

    On their part, almost the only answer from those who had not adapted was that it wasnot necessary (90%). The data, as well as indicating that there is a part of the teaching

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    Table 2Action to attend to the cultural diversity in the classroom in function of the presence of ethnic minorities

    Action Total Classroom with ethnicminorities a

    Classroom withoutethnic minorities

    None, there is no cultural diversity 41 27 58.5None, it is not necessary to doanything

    10.5 13.2 7

    Intercultural conferences 2.5 2.5 3Informative sessions with the families 4 6.5 1Specic curricular changes 14 19 7.5Specic explanation about their culture 15 18 11.5Explanation about the host society forthe minorities

    0.5 0.2 0.3

    Dedicate sessions to talking abouttolerance

    10.5 11 10

    Tutorials 5 6.5 3Linguistic adaptation 3 4 2Other 5.3 7.5 2.2Dont know/no answer 0.7 0.5 0.6

    a Understood as the presence of gypsy and/or from immigrant origin students.

    24 Although we will not develop this further here, other more specic questions on this theme were asked in thecited text by Garreta and Llevot (2003) and Garreta (2004) .

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    staff who believe it unnecessary to do anything in this eld, also showed that thisperception is still higher in the classrooms without gypsy or immigrant-origin students.Other answers mention that they believe that something should be done, or do not dare tosay that it is necessary, but... The justied buts range from there being too much workand time cannot be dedicated to it (5%), 25 to it is not necessary to do it in my subject(3%), others have done it so I do not need to (1%) and, in last place, those who do notknow how to do it (0.5%). It is curious that this last argument appears with soinfrequently when they have previously acknowledged not knowing how to work on thetheme. It is logical that a phrase that does not carry any blame for the interlocutor gathersmore answers in this sense than a spontaneous one where they must recognise their ownlimitations.

    5. Conclusions

    As shown above, Spain, and in particular Catalonia, has taken steps towardsrecognising the presence and valuing cultural diversity in the classroom. If initially, withrespect to the gypsies, the most common was a lack of concern about their schooling, thisevolved until reaching the inclusion of these students in the ordinary classroom, previouslypassing through segregationist experiences. Spain has evolved in a short time from acentralised educational system, where cultural diversity, focused on the gypsies, wasscorned, to a decentralised system of autonomous communities, much closer to amulticultural pedagogic model, especially designed for immigrant origin pupils, and inwhich the cultural pluralism of the state is accentuated. The 1980s and 1990s would be

    years of school enrolment, with the support of the compensatory programmes, with theaim of improving opportunities and facilitating the process of integration, equal toassimilation for most of the authors cited. In the mid-1990s, the increase in the number of immigrant-origin students and the guidelines from the Council of Europe, as well as theinternal dynamic followed by the Catalan Administration led to the commitment tointercultural education. However, although it is true that some action has been carried out,it seems (as the 1996 document implied) to be left excessively as a responsibility for theteaching staff. Most teachers already feel overloaded with responsibilities (in line with thewell-known text by Hargreaves, 1996 ) and although pedagogic programme has beenaccepted, most do not know how to put it into practice. Moreover, there is another greatproblem in the implementation of the model. This is the fact that teachers who do not haveethnic minorities in their centres and classrooms do not feel implicated and believe that it isnot up to them to prepare the new generations to live in a culturally diverse society. Morespecically, those who do act, do so depending on whether they are dealing withimmigrants or gypsies. We continue to see that it is the gypsies who still are mainlyforgotten continue in the rhetoric of interculturality that has been constructed, as well as inthe day-to-day practice by teachers.

    It must be asked whether there is really a desire to put the intercultural model intopractice. This is another basic question that is being studied through interviews withpolitical and technical representatives from the administration. It appears very necessaryto make a clearer commitment to the development of the proposed model, which is nothing

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    25 The excuse, real or cticious, of too much work is more prevalent among those teachers who have minoritiesin their classroom (7%).

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    more than coherent when it reects a reclamation of a cultural difference, the Catalan, in awider context, Spain and Europe. Although it is also true that the existence of a pedagogicrhetoric in itself, without resources, strategies for intervention, etc., can be very useful forprotecting a culture and identity that feels threatened by Spain and by the arrival of a largenumber of immigrants. Thus, if its application is not reinforced, this would lead us toconclude that interculturality as a mirage that hides a reality far removed from theseapproaches. But, is this specic to the Spanish case or the Catalan case? Perhaps asCatalonia perceives a threat from a double risk (the linguistic hegemony of Castilian overCatalan and the erosion of Catalan culture and identity that the presence of foreign-originimmigrants could represent) we could believe that, as in other divided societies or with theambiguity of ethnic domination given a double majority (see, among others, McAndrew,2001; McAndrew & Gagnon, 2000; Garreta, Samper, & Llevot, 2003), there is resistance tothe real recognition of other cultures. But maybe not, and it is more likely the universalphenomenum of the contradictions between legal texts, pedagogic orientations, curriculardesigns y and the reality in the school. To sum up, it is a question of one the hiddenfunctions of the educational system to correct and adapt the great words that, at least intheory, inspire the laws, orientations and designs of the specic practices in the classroomsto the day-to-day reality.

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