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Deng Z (2010), Curriculum Planning and Systems Change. In: Penelope


Peterson, Eva Baker, Barry McGaw, (Editors), International Encyclopedia of
Education. volume 1, pp. 384-389. Oxford: Elsevier.
Author's personal copy

Curriculum Planning and Systems Change


Z Deng, Nanyang Technological University, Singapore
ã 2010 Elsevier Ltd. All rights reserved.

Systems theory, as conceptualized by theorists after the frames what should go on in a school or school system in
1950s, views the world in terms of a unified whole and terms of broad goals and general approaches to education.
self-organizing systems, with an emphasis on the interde- It serves as a means of drawing attention to educational
pendent nature of the relationships that exist among all ideals and expectations shared within a society and put-
components of the unified whole (Boguslaw, 2000). From ting forward the forms and procedures of schooling as
this perspective, significant change requires systems responses to those ideals and expectations (Doyle, 1992b:
change that entails impacting changes across all constitu- 70). Such curriculum links what is taught in schools to the
ent systems. Such a theory is useful in analyzing the social and cultural systems beyond schooling, and is
nature, character, and complexity of curriculum planning always under pressure for change. Since social and cul-
for significant change. tural contexts often change rapidly, school systems always
This article first describes three basic domains of cur- use the institutional curriculum as a convenient instru-
riculum planning which can be viewed as three constitu- ment to communicate responsiveness to the outside com-
ent systems. It then discusses their interrelationships and munities (Doyle, 1992a: 487).
the implications for curriculum planning for significant Institutional curriculum planning is always a national or
change. This is followed by an examination of three com- regional political undertaking. In countries with centralized
mon models of curriculum planning which are intended education systems like France, Singapore, Malaysia, and
to bring about significant curricular change. The article China, the legal responsibility for institutional curriculum
concludes with addressing what is entailed in curriculum planning is the province of the central government.
planning for significant change. National educational bodies (ministries, departments)
play a substantial role in the planning process. In countries
with decentralized systems such as Canada, UK, and
Australia, state or provincial governments are constitution-
Three Levels of Curriculum Planning
ally responsible for making institutional curriculum deci-
sions. Regional educational agencies are instrumental in
Curriculum planning refers to the decision-making pro-
the planning process. Regardless of it being in centralized
cess concerning the substance of schooling, that is, the
or in decentralized systems, curriculum planning at the
knowledge, skills, and dispositions that constitute the
institutional level, more often than not, involves soliciting
experience and outcome of schooling. Broadly construed,
the opinions and suggestions from various representative
it operates across three basic domains of curriculum;
groups – including policy advisory bodies, employment
institutional, programmatic, and classroom (Doyle, 1992a,
agencies, educational specialists, heads of schools, and vari-
1992b). Each of these curriculum domains constitutes a
ous civic and special interest groups.
system or subsystem that, in varying degrees, has an impact
on what is taught and learned in school.
Programmatic Curriculum Planning
Programmatic curriculum planning is at the intermediate
Institutional Curriculum Planning
levels between institutional curriculum and classroom
The institutional curriculum embodies a conception or curriculum planning, with a focus on curriculum writing
paradigm of what public schooling should be with respect in the form of curriculum documents and materials
to a society. Curriculum planning at this level is charac- (Doyle, 1992a). It translates the expectations and ideals
terized by discourse on curriculum policy at the intersec- embedded in the institutional curriculum into operational
tion between schooling, culture, and society. It invokes frameworks for schools, thereby bridging the gap between
images, metaphors, or narratives to ‘‘typify’’ what could the abstract institutional curriculum and the (enacted)
happen in a school or school system (Westbury, 2000). For classroom curriculum (Westbury, 2000). In Singapore the
instance, thinking School is used by the Ministry of notion of thinking schools becomes the introduction of
Education in Singapore to convey a vision of schooling thinking programs to be implemented in primary and
for the twenty-first century – a vision that defines the secondary schools. The programmatic curriculum is char-
development of critical thinking and creativity as a central acterized by an array of school subjects, programs, and
purpose of schooling. Institutional curriculum planning courses of study provided to a school or a system of schools.

384
International Encyclopedia of Education (2010), vol. 1, pp. 384-389
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Curriculum Planning and Systems Change 385

For those school subjects, programs, and courses of study, planning can be the effort of an individual teacher or a
the programmatic curriculum also spells out instructional team of teachers responsible for identifiable students,
guidance in terms of content standards, instructional frame- deciding alone or with students what shall occur in a
works, criteria for textbook approval and adoption, and specific educational setting. Such curriculum is shaped
assessment criteria. in a powerful way by a range of local factors, including
Programmatic curriculum planning refers to the formal teachers’ own classroom perspectives, students’ interests
process of constructing the curriculum which involves and experiences, school principals’ requirements, and par-
‘‘framing a set of arguments that rationalize the selection ents’ expectations (Doyle, 1992b).
and arrangement of content [knowledge, skills, and dispo- The three levels of curriculum planning together
sitions] and the transformation of that content into school imply a hierarchy of decision-making activities from the
subjects’’ (Doyle, 1992b: 71). The planning process, Tyler institutional to the classroom arena. This, however, does
(1949) believes, entails addressing the questions concern- not mean that curriculum planning must begin with a
ing purposes, content, organization, and evaluation in a national ministry or state department of education in
sequential fashion: formulating curriculum policy, proceed to writing curric-
ulum documents and related materials, and eventually
1. What educational purposes should the school seek to
end up with school teachers in implementing the docu-
attain?
ments and materials in classroom. In practice, curriculum
2. What educational experiences can be provided that are
planning could begin anywhere. It could, for example,
likely to attain these purposes?
start with an individual teacher or a group of teachers
3. How can these educational experiences be effectively
and a class of students. Teachers can participate in what is
organized?
called school-based curriculum development (SBCD) in
4. How can we determine whether these purposes are
which they articulate their own visions and goals of teach-
being attained?
ing, develop their own curriculum materials in the light of
Tyler’s model prescribes what steps one needs to follow their visions and goals, and put the materials into practice
in planning a curriculum. However, it does not describe with students. However, this does not mean that teachers
what curriculum developers actually do when they are could completely ignore the existence of curriculum goals
engaged in curriculum planning (Westbury, 2008). In prac- and instructional guidelines developed at the national or
tice, programmatic curriculum planning is a highly sophis- state level – a point that will be further addressed in
ticated undertaking. It is a collaborative and cooperative sections that follow.
endeavor that always involves committees made up of
representatives from governments, educational agencies,
schools, universities, business, industry, and the commu- The Interdependence of Three Levels of
nity at large. It occurs within ‘‘webs of societal and cultural Curriculum Planning
ideologies and symbols, politics and organized interest
groups, organizational and administrative structures and The three levels of curriculum planning are interrelated
processes, and local understandings, beliefs and practices’’ and interdependent; each does not function in isolation of
(Westbury, 2008). As in institutional curriculum planning, others. Curriculum planning at the institutional level pro-
national and regional educational agencies play a key role vides a departure point and a frame of reference for
in programmatic curriculum planning. curriculum planning at the programmatic level. It serves
to clarify the normative, ideological bases for curriculum
decision makings, drawing attention to the public charac-
Classroom Curriculum Planning
ter of curriculum that goes beyond the private interests
The classroom curriculum, also called curriculum as and concerns of individuals. By articulating the aims,
event or the enacted curriculum, is characterized by a purposes, ideals, and expectations for public schooling,
cluster of events jointly developed by a teacher and a institutional curriculum planning points to a desirable
group of students within a particular classroom (Doyle, direction for programmatic curriculum planning. Without
1992a, 1992b). It is an evolving construction resulting attending to those aims, purposes, ideals, and expectations,
from the interaction of the teacher and students. Curricu- programmatic curriculum planning could lose sight of the
lum planning at this level involves transforming the insti- responsibilities that schooling as an institution needs to
tutional and programmatic curriculum embodied in bear in contributing to the common good of a society.
curriculum documents and materials into educative Classroom curriculum planning, although remote from
experiences for students. It requires further elaboration institutional curriculum planning, has an indirect yet sig-
of the programmatic curriculum, making it connect with nificant link with the institutional curriculum. The con-
the experience, interests, and the capacities of students in struction of the classroom curriculum often involves a
a particular classroom (Westbury, 2000). Curriculum teacher’s use of curriculum materials (e.g., textbooks

International Encyclopedia of Education (2010), vol. 1, pp. 384-389


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386 Curriculum Development – Planning and Development

and teacher guides) adopted by a school or school system – in no sense straightforward. It has to do with the gover-
materials that are normally developed with reference to nance structure of curriculum planning. As already men-
what is desired and valued in the institutional curriculum. tioned, in centralized education systems programmatic
In planning instructional activities, a teacher interprets curriculum planning is carried out mostly by government
and transforms the materials in the light of his or her educational agencies (e.g., national ministries of educa-
knowledge and beliefs about the purposes of schooling, tion). The programmatic curriculum, which more often
about his or her students, about pedagogy, and about the than not is linked with high-stakes public examinations,
school and classroom contexts (Wilson et al., 1987). To a tends to have high power and authority over the class-
certain extent, the classroom curriculum thus reflects the room curriculum. Classroom teachers are supposed to
teacher’s interpretation of ‘‘what is desired by unseen, follow closely the standards, frameworks, and guidelines
remote decision makers’’ (Goodlad et al., 1979: 21). laid out in the programmatic curriculum; they have rela-
Furthermore, when the classroom curriculum becomes tively less latitude in deciding what to teach and how to
visible in various ways (such as public examinations, teach it (Cohen and Spillane, 1992). Programmatic cur-
classroom surveys, and parent meetings) to administra- riculum planning thus could significantly influence class-
tors, parents, and others interested in education, questions room curriculum planning. However, in a decentralized
concerning the interplay between schooling and society education system where high-stakes public examinations
could be inevitable: for example, what are the purposes of do not exist and local or regional authorities make most
schooling? How well does the curriculum prepare stu- programmatic curriculum decisions, classroom teachers
dents to meet the current and future challenges of the have considerably high latitude in shaping the content and
social and political order? Social and political forces are process of their curriculum. Programmatic curriculum
brought to bear at the school or classroom level. The planning tends to have much less impact on the classroom
classroom curriculum thus is connected indirectly back curriculum. The education system in the United States
to the institutional curriculum which, in one way or typifies this governance structure of curriculum planning
another, ‘‘serves as a normative framework for defining in which state developed or mandated curriculum frame-
and managing the work of teachers’’ (Doyle, 1992a: 487). works and materials do not have formal authority over
Apparently, institutional curriculum planning seeks to classroom practice (Cohen and Spillane, 1992).
affect classroom curriculum planning through the pro- Furthermore, programmatic curriculum planning,
grammatic curriculum – curriculum that provides the whether in a centralized or a decentralized system, de-
medium in and through which the institutional curricu- pends, for its effect, on those implementing the program-
lum operates. By translating the institutional curriculum matic curriculum in school and classroom. While school
into an array of school subjects, programs, and courses of leaders could make decisions concerning the adoption of
study, programmatic curriculum planning creates the a particular curriculum framework and related materials
organizational and operational structure for classroom cur- as the programmatic curriculum for the school, classroom
riculum planning. School subjects, programs, or courses of teachers are the ones ultimately responsible for carrying
study constitute the locus of classroom teaching; they frame out the programmatic curriculum in their classrooms.
the character of the classroom curriculum and the ways Programmatic curriculum planning affects classroom cur-
in which the curriculum might be seen within the school riculum planning only if teachers understand and employ
community (Grossman and Stodolsky, 1995). The ways of the adopted framework and materials (Synder et al., 1992).
teaching a traditional school subject (e.g., history) and an Teachers are not ‘‘conduits’’ for the use of a curriculum
integrated subject (e.g., social studies) in a classroom could framework and related materials; as mentioned earlier,
be substantially different, so are the criteria of judging these they interpret and transform the framework and materials
two subjects. Furthermore, by developing content standards, in the light of their experience, beliefs, and practice. This
instructional frameworks, syllabi, assessment criteria, and could further compound the impact of programmatic
the like, for those school subjects, programs, and courses of curriculum planning on the classroom curriculum. Tea-
study, programmatic curriculum planning furnishes the chers’ entrenched beliefs, experience, and practice could
instruments that serve to regulate and control classroom override the educational ideals and innovations embedded
curriculum planning, guiding what is to be taught and in the programmatic curriculum.
learned in the classroom (Doyle, 1992a). These instruments
could ‘‘steer’’ classroom curriculum planning in the direc-
tion set out in the institutional curriculum (Cohen and Curriculum Planning for Systems Change
Spillane, 1992). They could also be resources for teachers
to learn the ideals and reform visions embedded in the As highlighted in the above discussion, the three basic
institutional curriculum (Cohen and Hill, 2001). domains of curriculum are interrelated and interdepen-
The effect of programmatic curriculum planning on dent, together constituting an organic whole. Signifi-
classroom curriculum planning, however, is complex and cant curricular change thus cannot be achieved by just

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Curriculum Planning and Systems Change 387

tweaking one or two domains in isolation; it entails sys- or are not implemented in the way they were intended
tems change that requires impacting change across all due to various reasons. There could be problems in com-
three domains of curriculum. To achieve this, all three munication between the central agency and schools. Tea-
levels of curriculum planning are necessary and need to chers might resist a new vision and a framework in the
work together in a way that ensures sustainable curricular belief that they know better than those working at the
change at the classroom level. A defensible model of central agencies (Chapman and Mählck, 1997). Further-
curriculum planning for systems change, therefore, more, a reform vision and a curriculum framework can be
needs to take account of all three levels of planning and read and understood by teachers in very different ways
their relationships. None of the levels can be undermined according to their varying beliefs, values, commitments,
without undermining a vital factor in curriculum plan- and experiences, thereby leading to different ways of
ning and development. With this in mind, three common implementing that vision and framework (Cohen and
models of curriculum planning – namely top-down, Ball, 1990). The importance of curriculum planning at
bottom-up, and combination – that intend to bring about the classroom level, and particularly the complex rela-
significant curricular change, or by implication, systems tionship between programmatic and classroom curri-
change – will be considered. culum planning, is largely overlooked or ignored in the
top-down model. In addition, the means and support for
implementing curricular change at the classroom level is
Top-Down Model
always inadequate in top-down approaches to curriculum
The top-down model has been widely used in countries planning for systems change.
with a centralized education system. For many centralized Top-down, centralized planning for curricular change
countries, curriculum reform has been for a long time part can be seen as an effective instrument for steering cur-
of national plans and development strategies. Usually, the riculum discourse at the institutional and programmatic
central government initiates curricular change by putting levels; the discourse, however, often gets lost in school and
forward new curricular visions and goals. These visions classroom (Westbury, 2008). When coupled with high-
and goals are then translated into programmatic or cur- stakes tests and accountability measures, this model
ricular frameworks that specify course structure, content could have a detrimental impact on the classroom curric-
standards, pedagogy, and assessment. Using these frame- ulum. The current implementation of the No Child Left
works as a point of reference, the national education body Behind (NCLB) Act in the United States, Apple (2008)
would implement a series of initiatives such as textbook argues, leads to an impoverished curriculum that is
revision, assessment modification, teacher preparation, defined and driven by the measure of student ability and
and professional development restructuring. These initia- competency which is extremely narrowly defined, and
tives are expected to steer teaching and learning in class- that creates greater inequalities between minority and
room toward the reform visions and goals, resulting in majority children in educational attainment.
significant change in the classroom curriculum. Also
termed the framework approach (see Skilbeck, 1994),
Bottom-Up Model
the top-down model was adopted by many traditional
decentralized systems over the last two decades. For In contrast to the top-down model, the bottom-up model
example, in the 1990s following the lead of the federal holds that significant curricular change comes from inside
government, virtually all American states developed their out rather than the outside in or from the top down.
statewide curriculum frameworks. In Australia, Canada, Central educational agencies (e.g., ministries of educa-
and other federated countries, there was a growing collab- tion) can really do little to influence what happens in
oration between state and federal authorities concerning school and classroom. To bring about change at the class-
the construction of an overall framework for the school room level, curriculum planning must be grounded in the
curriculum based upon new curricular visions and goals deliberative knowing and practical action of school prac-
(Skilbeck, 1994). These curriculum frameworks were titioners. By participating in bottom-up approaches to
believed to play a crucial role in steering the classroom curriculum planning like SBCD and action research, tea-
curriculum in the reform direction. chers can become the central players in the curriculum
Such a top-down, centrally driven, and command- reform endeavor (MacDonald, 2003). Furthermore, a
oriented model places an extremely high emphasis on school could become a learning organization by creating
institutional and programmatic curriculum planning conditions for school leaders and teachers to continually
for change. Curriculum planning virtually becomes a develop new ideas and improve their quality of thinking
national or state enterprise under the authority of the and capacity for reflection. They can work with students
central educational agency. This model, however, rarely and parents to form new curricular visions, translate their
works well at the school or classroom level. New curricu- visions into operational frameworks, and decide how best
lar visions and frameworks often do not get implemented, to bring about change in the classroom curriculum

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388 Curriculum Development – Planning and Development

(Fullan, 1993). The assumption is that successful curricu- other hand, the need for institutional and programmatic
lar change could be relatively easy to achieve in a local curriculum planning in guiding, supporting, and enabling
school or a cluster of local schools, and a significant num- curricular change at the classroom level. Three conditions
ber of such local changes can, over time, in an innovation are critical with respect to institutional and programmatic
diffusion process build from the bottom up into a major curriculum planning by external agencies. First, there
change in the overall education system (Farrell, 1997). needs to be coherence among new curricular visions,
This bottom-up, decentralized model, while appearing curriculum frameworks, assessments, and teacher profes-
promising, is fraught with problems and pitfalls. When the sional development. Inconsistency would lead to different
entire enterprise of curriculum planning is reduced to and divergent interpretations of curricular change. Sec-
nothing but school and local business, the public character ond, curriculum frameworks and materials need to be
of the school curriculum would be seriously undermined, developed in a way that supports teachers’ planning for
together with the public governance of curriculum significant change (Cohen and Hill, 2001). Curriculum
planning. Personal and local interests and powers would frameworks and materials can be an effective agent that
prevail over those broader concerns for the society and enables classroom teachers to plan for significant change
the welfare of mankind. Furthermore, when the full task in a particular classroom context, if they were designed to
of curriculum planning is lobbed onto schools, at all ‘‘place teachers in the center of curriculum construction
three levels, with all its complexity, it creates tremendous and make teachers’ learning central to efforts to improved
demands on classroom teachers. Most teachers are neither instruction’’ (Ball and Cohen, 1996: 7). Third, teachers
prepared for, nor do they have the experience and exper- need to have substantial opportunities for professional
tise necessary to undertake, such a task. With respect to the learning that are grounded in practice and in specific
implementation of SBCD, MacDonald (2003) observes curricular changes (Cohen and Hill, 2001). In other
that ‘‘what occurred in many Australian states and in the words, substantial professional learning is a key element
USA were less demanding, poorly resourced and loosely in curriculum planning for systems change.
assessed curricula’’ (p. 141). The above innovation diffu-
sion assumption is indeed questionable. When planning
for curricular change is entirely left to the school, the Conclusion
possible consequences include: (1) not much change at
school or classroom level; (2) changes in a problematic Significant curricular change requires systems change that
direction; and (3) changes that do not spread out or endure entails impacting change across the institutional, program-
(Fullan, 2003). The basic problem of the bottom-up model matic, and classroom curriculum. Curriculum planning for
lies in the failure of recognizing the need for institutional systems change is a highly complex and challenging
and programmatic curriculum planning that necessarily endeavor. It entails a coordination of institutional, program-
go beyond the realm of school localities. matic, and classroom curriculum planning, the absence of
any of which would not result in significant change. It
requires a collaboration of a multitude of participants and
Combination representatives from the government, educational agencies,
There has been an increasing interest in strengthening the universities, business, schools, and communities at large.
relationship between curriculum planning at the national It needs to provide teachers with sufficient support and
or state level and at the school and classroom level. This is resources. Furthermore, it is important to bear in mind
based on the realization that top-down guidance and that curriculum reform is part of a larger effort to reform
bottom-up initiatives need each other. While central edu- the school system. Curriculum planning thus needs to be
cational agencies are incapable of dictating or mandating related to larger issues of school change and improvement,
change at the school and classroom level (Fullan, 1993), significantly influenced by other policies and factors.
they still have a fundamental role to play in designing
reform and translating reform into curricular frameworks, See also: Curriculum and Teacher Change; Curriculum
documents, and materials that could support and enable Governance and Planning; Curriculum Reform.
curricular change at the school or classroom level. While
classroom teachers need to have sufficient freedom and
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