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 AUSTRIA

The Austrian education system is characterised by vertical differentiation at lower secondary level where two types of schools exist in parallel, the Hauptschule and the
Allgemeinbildende Höhere Schule (AHS). The latter is a school for more academically inclined students. This division is reflected in two types of teaching qualification.
Teachers intending to work at academic secondary schools are trained at universities and employed as federal civil servants (Bundeslehrer), whereas prospective Hauptschule
teachers are trained at Pädagogische Akademien (teacher training colleges) and employed as provincial civil servants (Landeslehrer).
In the late 1960s, education was a high political priority, with growing awareness of the importance of education and training in social and economic development. Policy
makers were also aware of a severe shortage of teachers and took action that led to substantial improvements in their working conditions and salaries. Teaching staff easily
secured civil servant status, which made the teaching profession very attractive to young people. When the labour market for teachers became saturated and unemployment
among them increased, this status became more difficult to acquire.
Teacher unions, organisations and groups have traditionally exerted significant influence. Policy in Austria and educational policy in particular generally reflect the so-called
Sozialpartnerschaft, the consensus model established after the Second World War. With time, teacher unions secured high status and enough power to influence policy.
The 1974 Schulunterrichtsgesetz (School Education Act) regulated the internal organisation of the Austrian education system and still constitutes its foundation. It was
enacted at a time of social revolution leading to a new educational culture and can be regarded as legislation for partnership in education. The aim of the Act was to provide
the right of all stakeholders in a school (teachers, pupils, parents and the extended school community) to participate in decision-making. The reform had far-reaching
consequences for the teaching profession. The duties of teachers were redefined, but not formulated in quantitative terms. Thus, individual teachers have considerable room
for manoeuvre and are personally responsible for interpreting the curricular guidelines. They are expected to organise their work on a team basis and to coordinate their tasks.
Educational funding has changed little since 1980. Recently, however, there have been severe financial cuts affecting many aspects of education, and there is increasing
controversy over educational funding as a whole. The government’s restriction policy has led to much irritation among teachers. In particular, the regulation of overtime
premiums (payments for work other than basic stipulated duties) has considerably irritated teachers. Several adjustments put teachers at a financial disadvantage since
overtime premiums are only paid under certain conditions. Teachers have demonstrated their displeasure by limiting their involvement in extended in-service training courses
and school events – an essential component of school life. A further measure under the government’s restriction policy was the introduction of study fees at universities.
With the end of the Iron Curtain in 1989, the number of foreigners doubled in a four-year wave of immigration. This was halted in 1992, when the federal government
implemented more restrictive legislation to check the influx. However, the Balkan crisis forced thousands of refugees to flee their native countries and many of them have
remained in Austria. The majority of children from immigrant or refugee families attend the Hauptschule.

REFORMS AIMS CONTEXT

1975: Schulorganisationsgesetz (School • Create distinctive initial training Until 1975, there were two years of common initial teacher training for compulsory
Organisation Act), 5th amendment, federal for Hauptschule teachers. school teachers (for primary education and Hauptschule). In-service training was
law. required to become a lower secondary school teacher.
Introduction of separate initial teacher
training for teachers at Hauptschulen.
Three years of training in two subjects was
introduced (along the lines of initial teacher
training at universities).

National summary tables on the reforms of the training and conditions of service of teachers in lower secondary education - Austria 1
 REFORMS
1982 (1): Schulorganisationsgesetz (School
Organisation Act), 7th amendment, federal
law.
The Pädagogische Institute (in-service
training institutions) formally responsible for
in-service training and further education.
1982 (2): Introduction of ability group
instruction in Hauptschulen.
Teamwork has been made compulsory in
German, mathematics and English.
1984: Full implementation of the
Allgemeines Hochschul-Studiengesetz
(General University Studies Act, federal
law). As a result, professional training has
been integrated within initial training for
AHS teachers.
1988: Unterrichtspraktikumsgesetz (School
Traineeship Act), federal law.
Provisions governing traineeship of
graduates for AHS. During a one-year
Unterrichtspraktikum (traineeship in
teaching practice), trainee teachers are to be
initiated into the practice of teaching and
supported by ‘experienced’ teachers. This
last stage is regarded as a transition period
between initial teacher training and full
integration into professional life.
National summary tables on the reforms of the training and conditions of service of teachers in lower secondary education - Austria
AIMS CONTEXT
• Develop uniform coordination of Until 1982, in-service training took place at different institutions. It was now to be
in-service training. organised and offered at local and regional levels. With a uniform system, educational
aims could be implemented more efficiently. Teachers had to constantly update their
knowledge.
• Adapt the curriculum of Until the mid-1980s, great effort was made to improve and develop the education
Hauptschulen to different pupils’ system.
needs and abilities;
There has been extensive political debate about the introduction of a ‘comprehensive’
• combat school failure; school system at lower secondary level and possible abolition of the two separate
systems. The two separate systems were finally maintained.
• improve the quality of educational
provision.
• Upgrade the professional training Contrary to the training of Hauptschule teachers, initial teacher training at universities
stage of university teacher mainly focused on subject-specific education. Students were supposed to become
training; specialists in their chosen subject areas. Consequently, the curricula did not
concentrate on the complex professional skills required for teaching as such. In the
• develop close cooperation with last 30 years, theoretical and practical teacher training at universities has tended to
school authorities; occur at the end rather than the beginning of training for secondary education. Some
• interrelate theory and practice; educationists have been alive to this and developed a new professional training
programme providing students with real school experience at the start of their course
• share responsibility for the quality (Studieneingangsphase). This is meant to help them identify their personal interest in
of training programmes. teaching. Furthermore, it is considered that the emphasis on professional training from
the outset has to be stimulated throughout the entire programme of teacher education.
The universities have sought different approaches to tackle the challenge of
professional training.
• Facilitate transition to professional Before the Unterrichtspraktikum was introduced, trainee teachers had to complete a
life; Probejahr (probationary year) which was very unpopular among them. A whole
academic year was mainly spent observing lessons with only short periods actually
• provide more practical training; devoted to teaching. The study reforms of the 1960s were followed by discussions on
• restore the influence of school abolition of the probationary year. If this had occurred, university graduates would
administration on university have been fully qualified teachers. However, this proposal was superseded by
teacher training, by giving it a introduction of the one-year traineeship, following abolition of the probationary year
final say in qualification in 1988.
procedures.
2
 REFORMS
1989: Introduction of a new form of support
for teachers provided by Beratungslehrer
(teacher counsellors). Counsellors are not
additional staff but teachers who – alongside
their regular duties – offer advice to other
teachers and on internal school issues. These
arrangements are still in a trial phase and
have not yet been legally consolidated.
1993 (1): Schulorganisationsgesetz (School
Organisation Act), 15th amendment, federal
law.
Schools were granted greater autonomy.
Activities resulting from the freedom of
schools to act independently make greater
demands on teachers than previously.
1993 (2): Universitäts-Organisationsgesetz
(University Organisation Act), federal law.
1995 (1): Introduction of an early retirement
model. Teachers aged over 56,5 may retire
prematurely, with a reduction in their
pension benefits.
1995 (2): Introduction of parental leave up
to ten years. Teachers can take advantage of
maternity (or paternity) leave and part-time
work.
1995 (3): Introduction of a sabbatical, with a • Enable teachers to take one year Budgetary restrictions and growing unemployment among young teachers owing to a
one-year exemption from teaching
assignments and a reduced salary over a
five-year period
National summary tables on the reforms of the training and conditions of service of teachers in lower secondary education - Austria
AIMS CONTEXT
• Take some of the burden off This new form of support for teachers was introduced because of the increased
teachers by supervising workload and confrontation with stressful situations.
maladjusted or badly-behaved
children during lessons, either in
classes or away from them;
• help to solve conflicts with
parents and pupils;
• work out solutions in classes
where there is considerable
potential for violence among
pupils.
• Provide for more school However, policies for autonomy are concerned solely with educational matters.
autonomy. Measures for decentralisation have been limited to pilot projects concerning financial
and administrative matters in which schools have to administer their operational and
capital resources themselves.
• Give more freedom to the The Universitäts-Organisationsgesetz readjusted the principles governing the work of
universities. universities which were also granted greater independence in curricular matters. As
regards teacher education, this led to increased research in the field of school
pedagogy and teacher training.
• Ease the problem of teacher Budgetary restrictions and growing unemployment among young teachers owing to a
surplus; surplus of teachers in the case of certain subjects and regions. The offer of early
retirement has been accepted by many members of the profession, thus reducing the
• reduce public expenditure. surplus.
• Ease the problem of teacher Until 1995, teachers could not claim parental leave by law. The authorised period of
surplus; absence was subject to supply and demand. Teacher over-supply and a family-friendly
policy contributed to the introduction of parental leave up to ten years.
• allow teachers to care for their
children. Women teachers are particularly interested in such offers. The impact of this labour
market policy is clear, as there are now many more part-time teachers than previously
and the unemployment rate among young teachers has dropped.
off with pay; surplus of teachers in the case of certain subjects and regions. The sabbatical has not
been accepted by many teachers.
• ease the problem of teacher
3
 REFORMS
five-year period.
1996 (1): Introduction of a Frühwarnsystem
(early warning system); amendment to the
Schulunterrichtsgesetz (School Education
Act), BGBI.Nr. 767/1996, federal law.
Teachers are obliged to inform parents in
writing if pupils are in danger of receiving
an ‘unsatisfactory’ mark (‘nicht genügend’)
in a subject. In a formal letter, parents are
asked to contact the teacher of the subject
concerned to strengthen their partnership
with the school and help pupils succeed
there.
1996 (2): Provisions on the integration of
pupils with special educational needs at
lower secondary schools; amendment to the
Schulorganisationsgesetz (School
Organisation Act), BGBI Nr. 766/1996,
federal and provincial law.
Lower secondary schools became obliged by
law to integrate pupils with special needs
into mainstream classes.
1997: Universitäts-Studiengesetz (University
Studies Act), federal law.
Provisions governing the educational
objectives and tasks of science and arts
universities; principles of study course
design. Redesign of the curriculum for AHS
teacher accreditation programmes.
1999 (1): Akademien-Studiengesetz
(Academy Studies Act), federal law.
Provisions governing studies at teacher
training colleges and the establishment of
pedagogical universities. Development of
new curricula and a stronger focus on
National summary tables on the reforms of the training and conditions of service of teachers in lower secondary education - Austria
AIMS
surplus.
• Prevent failure at school;
• improve the quality of education.
• Promote equal opportunities.
• Link the previously isolated
elements of training - the
instructional, the pedagogical, and
school practical training - into a
holistic system.
• Upgrade teacher training colleges;
• overcome their ‘static’ character;
• cooperate more closely with
universities and in-service training
institutions.
CONTEXT
Schools have been encouraged to exercise greater initiative in problem-solving. The
early warning system resulted in a more active contribution by school stakeholders to
school life.
This reform follows the successful integration of children with special needs into
primary education. (The first integration classes (Integrationsklassen) were formed in
the 1987/88 school year.) Since then, the number of children with special needs
attending lower secondary schools instead of Sonderschulen (special schools) has
increased constantly. However, the development of adequate teacher training has not
matched the real situation in schools over the last decade. At university, special needs
education is not part of the initial teacher training programme. The current situation
demonstrates that much less has been done to achieve integration in academic
secondary schools. At teacher training colleges, curricula for both the theoretical and
practical branch of special needs education had to be developed or revised. However,
there is a consensus that teacher training should reflect the application of such
fundamental principles as equality of opportunity.
Previously, the curriculum for the initial teacher training at university was close to that
of the diploma programme. The expectations placed on prospective teachers and the
needs of schools were not considered.
The Pädagogische Akademien are currently going through a transitional period. Up to
now, teacher training colleges for Hauptschule teachers had little scope for
determining the content of the training programme; research was merely a subsidiary
activity.
The colleges now have to devise new curricula and develop a competitive profile.
Within the new legal framework, the Studienkommission (curriculum committee) of
4
 REFORMS
(practice-oriented) research. After full
implementation of the Academy Studies Act,
this initial teacher training will be classified
at ISCED level 5A.
1999 (2): Lehrplanreform (curricular
reform).
One aspect of the planned reform was the
introduction of cross-subject teaching on a
compulsory basis in both types of lower
secondary school.
2000: Introduction of compulsory ICT
training courses (Angewandte Informations-
technologien) at training colleges for
Hauptschule teachers. There are no specific
recommendations regarding training in
particular skills. However, training courses
usually cover word-processing, data
processing, use of educational software
programmes and the Internet.
2001: Landeslehrer-Dienstrechtsgesetz
(Province Teacher Service Code),
federal law.
All functions and activities of teachers will
be taken into consideration and calculated as
working hours for the very first time. Not
only teaching assignments are included in
the Service Code but also the preparation
and review of lessons, along with marking
and correction, and all further activities such
as supervision.
With the introduction of the new Service
Code, teaching tasks will be increased as
there will no longer be a reduction for non-
National summary tables on the reforms of the training and conditions of service of teachers in lower secondary education - Austria
AIMS
• Improve the quality of education.
• Improve the competence of
teacher trainees in ICT.
• Make the work of teachers more
transparent;
• make the general public more
aware of the activities of teachers
within and beyond the school.
CONTEXT
each institution has to draw up the programme on offer. The committee has limited
autonomy regarding the number of training units assigned to the four areas of studies
(humanities, subject areas and didactics, additional courses and school practice). As
far as the curricula are concerned, they are developed by the individual departments
which have to be formally designated by the curriculum committee. In addition, the
committee has to create an environment for quality assurance and evaluation of
courses and examinations. What seems unchallenged, however, is the division of
teacher education into two main strands depending on the type of school in which
trainees will eventually work.
In the late 1990s, the public has become increasingly interested in the quality of the
education system. The curricular reform can be seen as the policy makers’ response to
the public discussions. As no draft budget had been drawn up for the additional
expenditure which would arise, the teachers’ unions protested strongly and the
compulsory condition attached to cross-subject teaching was withdrawn.
Although decision-makers have been conscious of the importance of training in
information technologies for over a decade, no real reform has yet occurred. At
universities, for example, there is no compulsory training to equip all (future) teachers
with the skills needed to use ICT as a personal tool or to apply it directly to teaching.
So far, ICT training has mainly been provided by in-service training institutions.
Recently, pre-service institutions are becoming increasingly aware of the need for ICT
training. Teacher training colleges have already acknowledged the importance of ICT
and so have the universities to some extent. They are therefore investing much effort
in boosting the confidence of teachers in the potential usefulness of the new medium.
Since the mid-1990s, there have been passionate discussions about the administrative
and economic restructuring of the education system. Basically, the debate is about the
State’s role in the education system, and about restrictions on the budget. The present
federal government and its measures to consolidate the budget have led to tension
between it and the teachers’ unions. Until now, the increasing workload has been
accepted by teachers as a necessity and has been financially compensated to some
extent by the government. With the reduction in the budget, however, compensation
has been restricted or even cut off completely.
Unlike the AHS Lehrergewerkschaft (AHS teachers’ union), the
Pflichtschullehrergewerkschaft (compulsory school teachers’ union) is striving for
constructive cooperation with the government. Successful negotiations on the new
Service Code boosted the morale of the teaching force. As a result, compulsory school
teachers voted in favour of the new Landeslehrer-Dienstrechtsgesetz (Provincial
Teacher Service Code) which has been drawn up for four years. During this time it
will be evaluated and further developed if necessary
5
 REFORMS
teaching activities.
2001: Introduction of an internal school
behaviour policy (Erziehungsvertrag). The
school forum (Schulforum and
Schulgemeinschaftsausschuss) is to prepare
voluntarily a code of behaviour with
corresponding possible sanctions. The
school behaviour policy should represent an
agreement between all school partners.
AIMS
• Involve parents more actively in
their children’s upbringing;
• awake a sense of responsibility in
pupils;
• provide teachers with clear
guidelines regarding the sanctions
available to them.
CONTEXT
will be evaluated and further developed if necessary.
Duties in teaching assignments are regulated by the appropriate provincial authority
whose task it is to evaluate educational aims and supervise implementation into
teaching. This move away from central regulation may lead to a greater sense of
responsibility in the provinces and local education authorities.
During the last few years, schools have been increasingly entitled to exercise authority
in problem-solving issues. Although the school regulations – laid down in the School
Education Act – give teachers a considerable scope for dealing with sanctions, legally,
the regulation is an imprecise instrument. The main body of teachers therefore
demanded a code of behaviour in order to directly combat increasing pupil
misbehaviour.

Ongoing topics of debate

Civil servant status
In recent years, it has been literally impossible for teachers to get civil servant status. In addition, there are discussions about whether or not this status should be granted to
them at all. This debate concerns not just teaching staff but also other employees in the public service. Civil servants were always considered to have many privileges
which employees in the private sector cannot enjoy. Discussion is focusing in particular on higher salaries and employment guarantees. The new government is gradually
adapting the civil service code to that of the private sector.
Act on the Teaching Assignment of Federal Teachers
There will be no new Bundeslehrer-Lehrverpflichtungsgesetz (Act on the Teaching Assignment of Federal Teachers) since the AHS Lehrergewerkschaft (AHS teachers’
union) declined to accept the model worked out by a study group. As an independent study on the effectiveness, acceptance and implementation of the Landeslehrer-
Dienstrechtsgesetz (Provincial Teacher Service Code) is being worked out, it was decided to await the results of this analysis before discussing once more the introduction
of this Service Code. Nevertheless, certain changes will come into effect from the 2001/02 academic year. The present financial situation can be expected to result in
further financial restrictions, which are being firmly resisted by AHS teachers. The main bone of contention is the new salary regulation for activities such as form teacher,
or involvement in the administration and organisation of the school (supervision of teaching material and coordination of teachers of specialised subjects). In future, such
activities will no longer be regarded as a teaching assignment but as a general undertaking. Since ‘extraordinary’ activities are no longer regarded as part of the teaching
assignment, teachers will be faced with more work, thus reducing the workload for young members of the profession. The reform endangers the jobs of young teachers and
the prospects of a permanent position diminish even further. For this reason, the teachers’ union is demanding that the government places existing contracts on a firm
footing. In the spring of 2001, a token strike occurred and teachers are considering restricting extracurricular activities and planning to work to rule (Dienst nach
Vorschrift).

National summary tables on the reforms of the training and conditions of service of teachers in lower secondary education - Austria 6
Teacher salaries and pension system
Under the government’s policy of restricted expenditure, the salary system has been subject to much criticism. Over the last 30 years, the salary scale has remained largely
the same. Due to the ageing teacher population, the situation has changed because the rate at which teachers reach the next band on the scale is not dependent on their
proficiency, but on their length of service. Under this scheme, teachers clearly earn most at the end of their careers. Moreover, this has a tremendous impact on the pension
system, since it is dependent on final salaries. A further criticism is the one-sided development which puts young people in particular at a disadvantage. Currently, a new
salary scheme is being devised. Its main feature will be a higher starting salary with fewer increases, with the overall income remaining the same. In future, however,
teachers will receive a smaller pension, since it will still be dependent on their salary in the final years of service.
LehrerIn 2000 (‘Teacher 2000’) is a recent representative survey among Austrian teachers to gain insight into their duties, position and health status. Around 17,000
randomly selected teachers were sent a questionnaire in which they were asked to note their precise duties and working hours. The completed questionnaire was returned
by 39 % of those questioned. The survey is divided into two parts. Module One focuses on teachers’ working hours, personal job satisfaction (or dissatisfaction), and
occupational demands. Module Two consists of an industrial medical examination and points out the physical and mental implications of a job in teaching.
Main results: Payment of teachers: as mentioned before, this depends on just three factors: the type of contract, their formal workload commitment (Lehrverpflichtung) and
the number of years spent teaching. This approach is challenged in the survey which claims that the time individual teachers spend in the classroom is only about one-third
of their total working time. Consequently, the current system takes only one-third of a teacher’s activities into account. Highly motivated and committed teachers are not
rewarded. The survey recommends an approach that takes account of and reflects the variety of these activities and would also make schools more flexible
Staff dissatisfaction: the bad public reputation of the teaching profession is considered to be the main cause of staff dissatisfaction. In recent years, society has come to
have more varied and higher expectations of schools and the teaching profession than in the past, and this has put constantly fresh demands on teachers.

Authors: Michael Schratz, Paul Resinger

National summary tables on the reforms of the training and conditions of service of teachers in lower secondary education - Austria 7