Steering Dynamics in Complex Education Systems. An Agenda for Empirical Research

Many policy systems and education systems have grown more complex in the last three decades. Power has moved away from central governments in different directions: upwards towards international organisations, sideways towards private institutions and non‐governmental organisations and downwards towards local governments and public enterprises such as schools. Where once we had central government, we now have governance, which can be defined as the processes of establishing priorities, formulating and implementing policies, and being accountable in complex networks with many different actors. Steering in such complex education systems emerges from the activities, tasks and responsibilities of state and non‐state actors, operating at different levels and from different positions and often has un‐deliberate, un‐intentional and un‐foreseen consequences. There are many conceptual models that encapsulate this complexity, but this article suggests that there is a real need for empirical research. Without empirical research it remains unknown whether and how steering in complex networks works out in practice, what are its effects and for whom. Moreover, it is only through empirical research that we can find out whether central government has become less dominant, or rather whether its appearance has changed and it has become less visible, but not necessarily less influential. Foucault's governmentality perspective is a useful notion on which to build such a framework for empirical research which allows for a careful study of the interactions that signify steering. Inspired by Foucault, this article develops a trilogy of assumed conditions for steering to take effect in modern societies. Following this reasoning, ‘something' first needs to be made thinkable, calculable and practicable by different actors for steering to occur. This trilogy is a promising starting point for empirical research into very specific phenomena which can help us to understand how steering in complex education systems works.     

Steering in complex education systems. Why similar aims can have dramatically different results.

ABSTRACT

In the wake of neo-liberal informed global trends to set performance standards and intensify accountability, the Dutch government aimed for ‘raising standards for basic skills’. While the implementation of literacy standards was hardly noticed, the introduction of numeracy standards caused a major backlash in secondary schools, which ended in a failed introduction of a high stakes test. How can these major differences be explained? Inspired by Foucault’s governmentality concept a theoretical framework is developed to allow for detailed empirical research on steering processes in complex systems in which many actors are involved in educational decision-making. A mixed-methods multiple embedded case-study was conducted comprising nine school boards and fifteen secondary schools. Analyses unveil processes of responsibilisation, normalisation and emerging dividing practices. Literacy standards reinforced responsibilities of Dutch language teachers; for numeracy, school leadership created entirely new roles and responsibilities for teachers. Literacy standards were incorporated in an already used instrument which made implementation both subtle and inevitable. For numeracy, schools distinguished students by risk of not passing the new test affirming the disciplinary nature of schools in the process. While little changed to address teachers main concerns about students’ literacy skills, the failed introduction of the numeracy test usurped most resources.