Bob Lingard

Educational Policy and the Politics of Change

Governments around the world are trying to come to terms with new technologies, new social movements and a changing global economy. As a result, educational policy finds itself at the centre of a major political struggle between those who see it only for its instrumental outcomes and those who see its potential for human emancipation. This book is a successor to the best-selling Understanding Schooling (1988). It provides a readable account of how educational policies are developed by the state in response to broader social, cultural, economic and political changes which are taking place. It examines the way in which schools live and work with these changes, and the policies which result from them. The book examines policy making at each level, from perspectives both inside and outside the state bureaucracy. It has a particular focus on social justice. Both undergraduate and postgraduate students will find that this book enables them to understand the reasoning behind the changes they are expected to implement. It will help to prepare them to confront an uncertain educational world, whilst still retaining their enthusiasm for education.

Policy borrowing, policy learning: Testing times in Australian schooling

This paper provides a contextualised and critical policy analysis of the Rudd governments national schooling agenda in Australia. The specific focus is on the introduction of national literacy and numeracy testing and the recent creation by the Australian Curriculum, Assessment and Reporting Authority of the website ‘My School’, which lists the results of these tests for all Australian schools, including school performance against averages and against the performance of 60 other socio-economically ‘like-schools’ across the nation. It is argued that we are seeing the emergence of a national system of schooling (including national curriculum) as part of the reconstitution of the nation in the face of globalization and related economisation of education policy. This is the case despite Australias federal political structure with the States holding the ostensible Constitutional responsibility for schooling. The analysis locates these and associated developments (a national schooling policy ensemble) within considerations of new accountabilities, the restructured state, neo-liberalism, globalized education policy discourses and policy borrowing and learning. The analysis also suggests that, despite the Prime Ministers swingeing critique of neo-liberalism in the context of the global financial crisis and enhanced state intervention in the economy, this national schooling agenda (the governments so-called ‘education revolution’), is a hybrid mix of the neo-liberal with social democratic aspirations to do with social justice and schooling.

Constructing a European policy space in educational governance: The role of transnational policy actors

Educational policy is no longer, if it ever was, the product of the nation state alone. In Europe, significant policy actors in education are working today face to face and virtually in joint governmental projects and networking translating, mediating and constructing educational policies. The existence of this new social sphere of work, in which the construction of Europe is paramount, served by the regular communications and intimate work relations of a new European class of educational system actors, is deserving of further research. They appeared to constitute a form of policy elite in education, which has not surfaced into view in the study of education, either in studies of the national state or of Brussels: in the latters case, it may be because education does not have the same regulatory or legal framework as key aspects of governance in European law. The power this group wields by acting as shapers of the emerging discourse of educational policy, expressed in reports, key committees, funding streams and programmes has to be examined and recognized within studies of educational policy.

Globalizing Policy Sociology in Education: Working with Bourdieu.

This paper uses Bourdieu to develop theorizing about policy processes in education and to extend the policy cycle approach in a time of globalization. Use is made of Bourdieu’s concept of social field and the argument is sustained that in the context of globalization the field of educational policy has reduced autonomy, with enhanced cross‐field effects in educational policy production, particularly from the fields of the economy and journalism. Given the social rather than geographical character of Bourdieu’s concept of social fields, it is also argued that the concept can be, and indeed has to be, stretched beyond the nation to take account of the emergent global policy field in education. Utilizing Bourdieu’s late work on the globalization of the economy through neo‐liberal politics, we argue that a non‐reified account of the emergent global educational policy field can be provided.

Looking East: Shanghai, PISA 2009 and the reconstitution of reference societies in the global education policy field

This paper examines the outstanding performance of Shanghai, China on PISA 2009 and its effects on other national systems and within the global education policy field. The OECDs PISA is helping to create this field by constituting the globe as a commensurate space of school system performance. The effects of Shanghais success are considered in three other national contexts: the USA, England and Australia. We combine (a) analysis of data from more than 30 research interviews with senior policy actors at the OECD, the IEA and within Australia and England; and (b) document analysis of policy speeches, commissioned research reports and media coverage from the three national contexts. Shanghais performance in PISA 2009 produced a global ‘PISA-shock’ that has repositioned this system as a significant new ‘reference society’, shifting the global gaze in education from Finland to the ‘East’ at the beginning of the so-called ‘Asian century’.

Testing regimes, accountabilities and education policy: commensurate global and national developments

This paper focuses on outlining, contextualising and theorising the rise of global and complementary national modes of test-based, top-down accountability in schooling systems. The effects of these infrastructures of accountability on schools, teachers’ pedagogical work, on the width of curriculum and on the goals of schooling are also alluded to. These developments are theorised in terms of rescaling of the policy cycle globally, as a well as the topological turn that sees the globe reconstituted as a single space of comparative and commensurate measurement of the performance of school systems, as part of the move to new global forms of networked governance. We argue that we are seeing a new global panopticism, with national school systems variously positioned within the global market place and global educational policy field with important effects within national policy-making. The analysis and theorising provided serves as a contextual backdrop and introduction to the papers included in the special issue of the Journal of Education Policy on the theme of Testing Regimes, Accountabilities and Education Policy. We argue, and the papers demonstrate, the significance for policy sociology today of recognising testing as a, perhaps the, major policy steering systems and the work of schools today.

'Catalyst data': perverse systemic effects of audit and accountability in Australian schooling

This paper examines the perverse effects of the new accountability regime central to the Labor government’s national reform agenda in schooling. The focus is on National Assessment Program – Literacy and Numeracy (NAPLAN) results that now act as ‘catalyst data’ and are pivotal to school and system accountability. We offer a case study, with two embedded units of analysis, in which NAPLAN has become high stakes testing for systems. The first involves the relationships between the federal government and three States (Victoria, New South Wales and Queensland) in negotiating performance targets on NAPLAN for reward payments in respect of a national agreement to improve literacy and numeracy. We show how Victoria used 2009 data as baseline, set ambitious targets and failed to meet them, while Queensland set much less ambitious targets, met them and was rewarded. New South Wales created targets that combined literacy and numeracy scores, obfuscating the evidence, and met their targets. The second focuses specifically on Queensland and the ramifications of the poor performance of the State on the 2008 NAPLAN. This resulted in a review commissioned by the Premier, a Report on how to improve performance, and the introduction of Teaching and Learning Audits and State-wide targets for improvement on NAPLAN. This unit of analysis focuses on the perverse effects of this highly politicized agenda. This paper shows how States seek to protect their ‘reputational capital’ and as such, ‘game’ the system. The data for the analysis draw upon interviews with relevant senior policy-makers and on analysis of relevant documents and media coverage.

National policy brokering and the construction of the European Education Space in England, Sweden, Finland and Scotland

This paper draws on a comparative study of the growth of data and the changing governance of education in Europe. It looks at data and the ‘making’ of a European Education Policy Space, with a focus on ‘policy brokers’ in translating and mediating demands for data from the European Commission. It considers the ways in which such brokers use data production pressures from the Commission to justify policy directions in their national systems. The systems under consideration are Finland, Sweden, and England and Scotland. The paper focuses on the rise of Quality Assurance and Evaluation mechanisms and processes as providing the overarching rationale for data demands, both for accountability and performance improvement purposes. The theoretical resources that are drawn on to enable interpretation of the data are those that suggest a move from governing to governance and the use of comparison as a form of governance.

Mediatizing educational policy: The journalistic field, science policy, and cross-field effects

This paper is concerned to demonstrate the usefulness of the theory of Bourdieu, including the concepts of field, logics of practice and habitus, to understanding relationships between media and policy, what Fairclough has called the ‘mediatization’ of policy. Specifically, the paper draws upon Bourdieu’s accessible account of the journalistic field as outlined in On television and journalism. The usefulness of this work is illustrated through a case study of a recent Australian science policy, The chance to change. As this policy went through various iterations and media representations, its naming and structure became more aphoristic. This is the mediatization of contemporary policy, which often results in policy as sound bite. The case study also shows the cross‐field effects of this policy in education, illustrating how today educational policy can be spawned from developments in other public policy fields.

New scalar politics: implications for education policy

This paper argues that globalisation has implications for research and theory in the social sciences, demanding that the social no longer be seen as homologous with nation, but also linked to postnational or global fields. This situation has theoretical and methodological implications for comparative education specifically focused on education policy, which traditionally has taken the nation-state as the unit of analysis, and also worked with ‘methodological nationalism’. The paper argues that globalisation has witnessed a rescaling of educational politics and policymaking and relocated some political authority to an emergent global education policy field, with implications for the functioning of national political authority and national education policy fields. This rescaling and this reworking of political authority are illustrated through two cases: the first is concerned with the impact of a globalised policy discourse of the ‘knowledge economy’ proselytised by the OECD and its impact in Australian policy developments; the second is concerned explicitly with the constitution of a global education policy field as a commensurate space of equivalence, as evidenced in the OECD’s PISA and educational indicators work and their increasing global coverage. The paper indicatively utilises Bourdieu’s ‘thinking tools’ to understand the emergent global education policy field and suggests these are very useful for doing comparative education policy analysis.