Fixing contradictions of education commercialisation: Pearson plc and the construction of its efficacy brand

ABSTRACT

This paper explores some of the fundamental contradictions related to the commercialisation of education and how Pearson plc – ‘the world’s leading multinational education company’ – is trying to overcome these challenges through discourse and semiotics. Pearson’s Efficacy Framework is a semiotic-calculative device created to measure the impact of educational products and services sold by the company. This paper examines the ways in which the efficacy programme and tools developed by Pearson represent a type of ‘social fix’ intended to resolve contradictions linked to education commercialisation by demonstrating the ‘measurable impact’ and ‘outcomes’ resulting from its educational products and services and communicating that to customers, shareholders, policymakers, state managers and partners. Efficacy will be analysed as it relates to a hegemonic ‘knowledge brand’ in the making in education that is being actively promoted and appropriated by Pearson. Pearson, therefore, aims to construct a corporate brand and reputation around efficacy based on legible measures of performance, which this paper argues is in response to risks and contradictions associated with the commercialisation of education.     

Assumptions underlying performance‐based budgeting

Abstract

Interest in ‘performance budgeting’ is growing despite a lack of research on its effectiveness. U.S. states have largely used ‘incremental’ and ‘formula’ budgeting processes to fund higher education. However, more than half of them are experimenting with some form of ‘performance budgeting’. There have been similar attempts to reform budget practices in the U.S. in the past, but most of these processes have been largely abandoned. Governmental ‘performance budgeting’ for higher education assumes policy objectives are stable, complex decisions on budget trade‐offs can be made at governmental levels on the basis of data, institutions operate as bureaucracies, resources can be linked to outcomes, outcomes are identifiable and can be agreed upon, accountability can be achieved through budget policies, and current practices create incentives to enrol unqualified students. These assumptions are not realistic. Consequently, ‘performance budgeting’ will not meet proponents expectations and will suffer the fate of past budget fads.     

The instrumentation of test-based accountability in the autonomous dutch system

ABSTRACT

Test-based accountability or ‘TBA,’ as a core element of the pervasive Global Education Reform Movement (GERM), has become a central characteristic of education systems around the world. TBA often comes in conjunction with greater school autonomy, enabling governments to assess ‘school quality’ (i.e. test results) from a distance. Often, quality improvement is further encouraged through the publication of these results. Research has investigated this phenomenon and its effects, much of it focusing on Anglo-Saxon cases. This paper, drawing on expert interviews and key policy documents, couples a policy borrowing with a policy instruments approach to critically examine how and why TBA has developed in the highly autonomous Dutch system. It finds that TBA evolved incrementally, advancing towards higher stakes for schools and boards. Further, it argues that school autonomy has been central to the development of TBA in two ways. Firstly, following a period of decentralisation that increased school(board) autonomy, the Dutch government saw a need to strengthen accountability to ensure education quality. This was influenced by international discourse and accelerated by a (politically exploited) national ‘quality crisis’ in education. Secondly, the traditionally autonomous Dutch system, shaped by ‘Freedom of Education’, has at times conflicted with TBA, and has played a significant role in (re)shaping global policy and in mitigating the GERM.     

In/forming education policy

Policy makers in a variety of sites are embracing initiatives that attempt to tighten the links between school and work. A reinvented human capital discourse argues that more highly skilled workers are required to meet the demands of the ‘knowledge economy’. This paper explores the new vocationalism as it is promoted within the Framework for Enhancing Business Involvement, a policy report produced in 1996 in Alberta, Canada. Using a critical policy approach, this paper focuses on the process of developing this document with attention to the policy context, influences on the process, ideological assumptions and the impact of the document since its release. Analysis suggests that questions of representation in policy processes, accountability for outcomes and the role of public interests in multi-stakeholder consultation are critical in this era of new public management practices. Further, despite the impression of unity and consensus suggested by policy documents, there are tensions in vocational education and policy that must be addressed if they are also to promote equity.     

Eyes wide shut: the fantasies and disavowals of education policy

ABSTRACT

This paper examines the tensions between education policy’s attachment to notions such as excellence and inclusion and its investments in managerial tropes of competition, continuous quality improvement, standards and accountability that are at odds with and which undermine its attachments. In order to explore these tensions, I draw on the psychoanalytic notion of fantasy, explained through Stanley Kubrick’s final film, Eyes wide shut. My argument is that while the individual and society are both constituted through unavoidable division, antagonism and opacity, these notions are obscured through the operations of fantasy which holds out the promise of wholeness, harmony and redemption. In particular, education serves as a key site in which these fantasmatic ideals are promoted and pursued, a claim I substantiate via an analysis of the UK government’s 2016 White Paper, Educational Excellence Everywhere. Specifically, I read the White Paper in terms of five fantasies of: control; knowledge and reason; inclusion; productivity; and victimhood. My argument is that while fantasy is an inescapable element that inevitably structures what we take to be ‘reality’, education policy might strive to inhabit fantasy differently, thereby finding ways of escaping its current mode of seeing education with eyes wide shut.     

The ethics of competition: accountability policy enactment in Chilean schools’ everyday life

ABSTRACT

Public policies have a moral order, an ethical horizon. They offer a vocabulary of imagined micro-policies. Using the case of Chile, this paper examines the ways in which accountability policies are reworked within schools and how they affect actors’ subjectivities. It adds new findings to the existing body of research on school accountability policies, offering in-depth evidence based on the case of Chile, which has a high-stakes testing model and a widespread competitive voucher system. The research is based on case studies of ten public and private subsidised schools, framed by a sociological perspective of policy enactment theory. The research findings show the ways that accountability policies are recreated, expanded, and intensified at the local level, permeating an ethic of competition. The analysis focuses on three qualitative trends: school actors’ sense-making of test scores and labels; zones of safety and risk for teachers under an accountability regime; and the emergence of a sticky web of persuasion, surveillance, and coercion among school members in order to improve performance. The practices examined are not understood as ‘secondary effects’ or an ‘implementation problem’, as if they occur unconnected from the policy rationale. The outcomes are consistent with the policy itself in interaction with school life.     

Educational Accountability and Market Ideology: some socio‐legal considerations

ABSTRACT

Sociology of education, particularly in Britain and to a limited extent the USA, is examined in its relations to law and socio‐legal discourse. It is argued that in order to develop our understanding of educational accountability a fuller exploration of the institutional interface between law and education will be required. Several lines of scholarship and empirical inquiry are suggested, particularly with respect to the functions of law professionals and legal institutions in the contexts of ’public choice’, ‘juridification’ and the institutionalisation of irresponsibility in education.     

Curriculum policy reform in an era of technical accountability: ‘fixing’ curriculum,teachers and students in English schools

Abstract

Drawing on a Levinasian ethical perspective, the argument driving this paper is that the technical accountability movement currently dominating the educational system in England is less than adequate because it overlooks educators’ responsibility for ethical relations in responding to difference in respect of the other. Curriculum policy makes a significant contribution to the technical accountability culture through complicity in performativity, high-stakes testing and datafication, at the same time as constituting student and teacher subjectivities. I present two different conceptualizations of subjectivity and education, before engaging these in the analysis of data arising from an empirical study which investigated teachers’ and stakeholders’ experiences of curriculum policy reform in ‘disadvantaged’ English schools. The study’s findings demonstrate how a prescribed programme of technical curriculum regulation attempts to ‘fix’ or mend educational problems by ‘fixing’ or prescribing educational solutions. This not only denies ethical professional relations between students, teachers and parents, but also deflects responsibility for educational success from government to teachers and hastens the move from public to private educational provision. Complying with prescribed curriculum policy requirements shifts attention from broad philosophical and ethical questions about educational purpose as well as conferring a violence by assuming control over student and teacher subjectivities.     

Judgement of the Teacher: the Norwood Report and internal examinations

ABSTRACT

This paper discusses the intervention of the Norwood Report of 1943 in the debate over secondary school examinations. It emphasises the role of the report in supporting the active involvement of teachers in ‘internal’ examinations, as opposed to external examinations administered by examination boards. It relates this debate to its wider social and political contexts. It also suggests a longer‐term historical framework involving contestation between different interests and ideologies for control over examinations, the ‘professionalism’ of secondary school teachers in relation to their own sphere of activity, and notions such as ‘accountability’ and the ‘market’. The contribution of this historical episode to a ‘social history of education policy’ relevant to unresolved issues and tensions of the 1990s is also discussed.     

The curious promise of educationalising technological unemployment: What can places of learning really do about the future of work?

Abstract

University education is full of promise. Indeed universities have the capacity to create and shape, through staff and students, all kinds of enthralling ‘worlds’ and ‘new possibilities of life’. Yet students are encouraged increasingly to view universities as simply a means to an end, where neoliberal education delivers flexible skills to directly serve a certain type of capitalism. Additionally, the universal challenge of technological unemployment, alongside numerous other social issues, has become educationalised and portrayed in HE policy, as an issue to be solved by universities. The idea that more education can resolve the problem of technological unemployment is a political construction which has largely failed to deliver its promise. In this article, we look at educationalisation in hand with technologisation and we draw on a Critical Discourse Analysis of HE policies, to demonstrate the problems arising from taken for granted visions of neoliberal social development related to education, technology, and employment. To disrupt the tired visions of ‘techno-fixes’ and ‘edu-fixes’ we identify in these texts, we call for a radical re-imagining of HE policy. Instead of attributing responsibility for social change to abstract notions of education, market and technology, a new shared vision is needed where more agency is explicitly attributed to the researchers, teachers, and students who are the genuine human future of work.     

The recontextualisation of ‘quality’ in Australian higher education

In the education policy arena, the notion of ‘quality'as a mechanism for increasing accountability to stakeholders has risen to prominence in the 1990s, as part of the micro‐economic reform agenda of many national governments. This study analyses the way in which policy makers in Australian higher education have recontextualised the notions of quality adopted in other countries to reconstruct a uniquely Australian version. Further, the study analyses how this recontextualisation continues from the ministerial level, through the Higher Education Council (HEC), and then the Committee for Quality Assurance in Higher Education (CQAHE), to the site of intended policy effect ‐‐ individual universities. A theoretical framework, in part offered by Stephen Ball's policy trajectory studies, is employed to examine the negotiation, resistance and even transformation of the original ministerial quality policy of 1991. A central contention is that the operation of the subsequent 3‐year cycle of quality reviews between 1993 and 1995 provides an example par excellence of a government strategy of ‘steering at a distance’.     

Measuring ‘progress’: performativity as both driver and constraint in school innovation

Abstract

In this paper, we describe one secondary school’s radical attempt to rethink the shape and purpose of education for its pupils, and its subsequent return to more traditional methods in the face of pressures of performativity and accountability. Framing our analysis within activity theory and its emphasis on contradiction as a driver for change, we describe the school’s move towards a thematic curriculum and ‘personalised learning’ as a process of productive tensions which enabled the development of new approaches to education. While these innovations were considered to be of major benefit to both teachers and pupils, a fundamental contradiction between the focus on individual development underpinning the new approach and the demands of accountability in a persistent culture of performativity proved to be insurmountable. We argue that this particular contradiction highlights the dominance of measurability in judgements of school success and individual progress, with consequences for the pupils’ longer term education futures.     

New structures of power and regulation within ‘distributed’ education policy – the example of the US Common Core State Standards Initiative

Abstract

This article focuses on the growing development towards new forms of ‘distributed’ governance within current large-scale educational reforms. The emphasis is on so-called ‘governance through standards’ as a transformative reform complex which manifests itself in a simultaneous process of regulative destabilisation and (global) reconstruction of policy control. This newly emerging regulative policy ‘ensemble’ is found to be directly related to the growing collaborative activity of cross-field networks between governmental, non-governmental and private actors. Empirically, this article refers to the so-called Common Core State Standards (CCSS) Initiative which has fundamentally reshaped US education policy since 2001. The initiative comprised the negotiation, implementation and controlling of supra-state core skill standards for K-12 education as the benchmark for other regulating instruments such as assessments, monitoring and teacher training. In the context of the CCSS, the aforementioned new structures of regulation can then be located within an entrepreneurial alliance around the non-profit organisation Achieve, Inc. Through its function as a core policy network manager, Achieve generated simultaneous practices of collaboration and distinction, discourse initiation and (invisible) norm stabilisation.     

‘Tomorrow's Schools’ in New Zealand: from social democracy to market managerialism

This paper uses one national case to illustrate how diverse ideological agendas of central state agencies contest the discursive space within which major education policy reforms are developed. In Aotearoa New Zealand in 1988, ‘self‐managed’ schools were promoted ostensibly to allow parents more say in their children’s education and local school administration. The Tomorrow’s Schools reform policy texts included an existing social democratic partnership rhetoric, positioning principals as professional leaders working collaboratively with elected parent boards of trustees. However, the new ideology of ‘parental choice’ of school within a local schooling marketplace, underpinned by a chief executive or market managerial model of principalship, was later operationalised through mechanisms of ‘steerage’ from the centre. To explain this shift, we examine selected policy text pre‐cursors to the reforms and identify how contrasting forms of ‘principal’ and ‘teacher’ identity emerged within social democratic, neo‐liberal and market managerial ideologies. We further show that while radical (Treasury) market liberal arguments for labour market deregulation and consumer choice failed to gain widespread support, the State Services Commission preferred market managerialist strategies for promoting public accountability of schools (based on aggregate student achievement outcome data and centrally determined national educational priorities) were successfully embedded during the 1990s.     

Anxiety of performativity and anxiety of performance: self-evaluation as bad faith

ABSTRACT

Self-evaluation, a devolved, rigorous form of teacher inspection, has increasingly been promoted in educational circles as a way to balance both teacher autonomy and accountability. Such balancing acts help to alleviate anxiety around inspection, for the teacher who would otherwise face a visit from an inspector, and for the public who are concerned about self-evaluation being less objective. Using the Irish policy of self-evaluation, this paper will first explore the evidence-based approaches and the appropriation of a ‘language of evaluation’ that are inherent to so-called low-stakes accountability systems. In part, such mechanisms are used in order to alleviate anxiety. The anxiety that self-evaluation focuses on, however, corresponds only to aspects of teaching that are conducive to measurement, and therefore refers solely to what may be called an anxiety of performativity. Furthermore, its attempts to repress an anxiety of performativity ironically fails to acknowledge a more fundamental form of anxiety that teaching as a ‘performance’ involves. Using Sartre’s idea of ‘bad faith’, this paper will ultimately argue that teaching inevitably involves an element of anxiety that should not be repressed but rather should be lived and worked with well, something which self-evaluation in its current form fails to capture.     

Transforming the early years in England

The goal of this paper is to explore the design and implementation of early years educational policy in England in the period 1997–2004. First to be described are the innovations in policy (i.e. the promise), followed by the ‘evidence base’ for new policy (i.e. the research), the delivery of new services (i.e. the achievement), and finally the tensions and gaps which remain (i.e. the shortfall). The paper will focus on evidence concerning expansion of services and on the benefit of early years education on children’s development. It is argued that early years education in England has been transformed through the following: integration of education and care at local and national level, the introduction of the Foundation Stage Curriculum 3–6 years and its birth–3 years supplement, and the firm focus on families as well as children in the delivery of services. There are, however, gaps and tensions to be resolved before the overall vision can be achieved.     

The (mis)use of the Finnish teacher education model: ‘policy-based evidence-making’?

Abstract

Background: International achievement studies such as the Programme for International Student Assessment (PISA) have an increasing influence on education policy worldwide. The use of such data can provide a basis for evidence-based policy-making to initiate educational reform. Finland, a high performer in PISA, is often cited as an example of both efficient and equitable education. Finland’s teachers and teacher education have not only garnered much attention for their role in the country’s PISA successes, but have also influenced education policy change in England.

Main argument: This article argues that the Finnish model of teacher education has been borrowed uncritically by UK policy-makers. Finnish and English philosophies of teacher preparation differ greatly, and the borrowing of the Finnish teacher education model does not fit within the teacher training viewpoint of England. The borrowed policies, thus, were decontextualised from the wider values and underpinnings of Finnish education. This piecemeal, ‘pick “n” mix’ approach to education policy reform ignores the fact that educational policies and ‘practices exist in ecological relationships with one another and in whole ecosystems of interrelated practices’. Thus, these borrowed teacher preparation policies will not necessarily lead to the outcomes outlined by policy-makers in the reforms.

Sources of evidence: Two teacher preparation reforms in England, the University Training Schools (outlined in the UK Government’s 2010 Schools White Paper, The Importance of Teaching) and the Master’s in Teaching and Learning (MTL), are used to illustrate the problematic nature of uncritical policy borrowing. This article juxtaposes these policies with the Finnish model of teacher education, a research-based programme where all candidates are required to complete a Master’s degree. The contradictions exposed from this analysis further highlight the divergent practices of teacher preparation in England and Finland, or the disparate ‘ecosystems’. Evidence of educational policy borrowing in other settings is also considered.

Conclusions: Both the MTL and the White Paper reforms overlook the ‘ecosystem’ surrounding Finnish teacher education. The school-based MTL contrasts with the research-based Finnish teachers’ MA. Similarly, the University Training Schools scheme, based on Finnish university-affiliated, teaching practice schools, contrasts heavily with the rest of the White Paper reforms, which contradict the philosophies and ethos behind Finnish teacher education by proposing the move of English teacher preparation away from the universities. The analysis highlights the uncritical eye through which politicians may view international survey results, looking for ‘quick fix’ options instead of utilising academic evidence for investigation on education and education reform.     

‘Becoming co-operative’ – challenges and insights: repositioning school engagement as a collective endeavour

ABSTRACT

This article explores how a school’s decision to become co-operative affects its engagement relationships with students and parents. The findings stem from a wider study exploring approaches to engagement in a recently converted co-operative academy, a large secondary school in a northern English city. The article surfaces the possibilities and tensions that occur as the school seeks to reposition itself in the English education marketplace, with a co-operative model that explicitly sets out to promote mutualisation, not privatisation; ‘we’ rather than ‘me’. The process of becoming co-operative is examined by exploring the underlying purposes of the school’s engagement with students and parents and the relationships that emerge as a result. The study surfaces the issues faced as a co-operative school seeks to enact thicker, ‘collective forms’ of democratic engagement against a backdrop of English education policy based on individualistic notions of democracy as freedom of choice. The findings point to the need for a different policy understanding of school engagement, an understanding that suggests engagement is about the process of developing more equitable, collaborative relationships with stakeholders and rests on the repositioning of students, parents and community members – from ‘choosers’ and ‘consumers’ to a collective public in education.     

‘Gems Unwrought Can Form Nothing Useful’: Socialist China’s Pedagogical Erasure of Individuality, 1949–1958

ABSTRACT

This article investigates socialist China’s pedagogic treatment of individuality between 1949 and 1958, with a focus on the debates concerning ‘all-round development’ and ‘teaching in accordance with aptitude’, two principles that clashed regarding students’ individuality. It reconstructs how educational bureaucrat and theorist Zhang Lingguang spearheaded the debates in People’s Education, China’s leading educational journal. Building on the existing idealistic, critical and cultural perspectives on the debates, this article offers an analysis of power dynamics on three levels. Interpersonally, bureaucrats and ideologues were in conflict with ordinary teachers from local schools. Institutionally, People’s Education mediated between the Ministry of Education and teachers nationwide, while managing its accountability. (Inter)nationally, the debates were conditioned by the changing Sino–Soviet relationship, and by the Hundred Flowers Campaign.     

The accountability era in US teacher education: looking back,looking forward

Abstract

In keeping with the theme of the 40th anniversary issue of EJTE, this article looks back and forward at US teacher education accountability. It argues that “holding teacher education accountable” has been the major approach to reforming teacher education in the US for the last two decades, assuming that enhanced teacher education quality depends on vigilant public evaluation and monitoring of outcomes related to teacher education institutions, programs, and teacher candidates. This article looks back at the “era of accountability” by examining five policy, political, and professional developments that contributed to its emergence and strong hold on US teacher education. Looking forward to the future of teacher education accountability in the US, the article argues that we need a new approach – democratic accountability in teacher education – which is based on intelligent professional responsibility for students’ learning including democratic knowledge and skills, strong equity, and genuine collaboration with multiple stakeholders.