Sam Sellar

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’.

'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.

The OECD and Global Governance in Education.

This review essay discusses the history, evolution and development of the Organisation for Economic Co-operation and Development (OECD) and traces the growing impact of its education work. The essay is in four main sections. The first discusses Carrol and Kellow’s The OECD: A Study of Organizational Adaptation (Edward Elgar) and provides a brief historical account of the Organisation. The second section reviews Woodward’s The Organisation for Economic Co-operation and Development (Routledge) and considers the different modes of governance employed by the OECD, particularly its exercise of soft power through peer review. The third section considers Tucker’s edited book, Surpassing Shanghai: An Agenda for American Education Built on the World’s Leading Systems (Harvard Education Press) and the effects that Shanghai-China’s 2009 (PISA) success has had on education policy debates in the USA and globally. The final section engages with Sahlberg’s Finnish Lessons: What Can the World Learn From Educational Change in Finland? (Teachers College Press) and describes factors that have contributed to the high quality and equity of schooling in Finland. The review essay thus moves from an examination of the role and function of the OECD in general terms to more specific discussion of the recent impact of its PISA, which has drawn attention to particular school systems and has influenced education policy-making in both member and non-member countries. We conclude by providing a framework for understanding the epistemological and infrastructural governance functions of the OECD in education globally.

Re-Articulating Social Justice as Equity in Schooling Policy: The Effects of Testing and Data Infrastructures.

This paper examines the re-articulation of social justice as equity in schooling policy through national and global testing and data infrastructures. It focuses on the Australian National Assessment Program – Literacy and Numeracy (NAPLAN) and the OECD’s Programme for International Student Assessment (PISA). We analyse the discursive reconstitution of social justice as equity in Australian and OECD policy, and analyse NAPLAN and PISA as technologies of governance that re-articulate equity as a measure of performance. These re-articulations are set against the extension of neo-social economistic rationalities to all domains of life and the topological production of new spaces of policy and power.

Appreciating aspirations in Australian higher education

Aspiration for higher education (HE) is no longer a matter solely for students and their families. With OECD nations seeking to position themselves more competitively in the global knowledge economy, the need for more knowledge workers has led to plans to expand their HE systems to near universal levels. In Australia, this has required the government and institutions to enlist students who traditionally have not seen university as contributing to their imagined and desired futures. However, this paper suggests that failing to appreciate the aspirations of different groups, understood as a collective cultural capacity, casts doubt over the ability of institutions to deliver increased numbers of knowledge workers. Moreover, inciting subscription to the current norms of HE is a weak form of social inclusion. Stronger forms of equity strategy are possible when HE is repositioned as a resource for different groups and communities to access in the pursuit of their aspirations.

Educating for futures in marginalized regions: a sociological framework for rethinking and researching aspirations

Abstract ‘Raising aspirations’ for education among young people in low socioeconomic regions has become a widespread policy prescription for increasing human capital investment and economic competitiveness in so-called ‘knowledge economies’. However, policy tends not to address difficult social, cultural, economic and political conditions for aspiring, based in structural changes associated with globalization. Drawing conceptually on the works of Pierre Bourdieu, Raymond Williams, Arjun Appadurai and authors in the Funds of Knowledge tradition, this article theorizes two logics for aspiring that are recognizable in research with young people and families: a doxic logic, grounded in populist–ideological mediations; and a habituated logic, grounded in biographic–historical legacies and embodied as habitus. A less tangible third ‘logic’ is also theorized: emergent senses of future potential, grounded in lived cultures, which hold possibility for imagining and pursuing alternative futures. The article offers a sociological framework for understanding aspirations as complex social–cultural phenomena, and for capacitating emergent and hopeful aspirations through school- and community-based research and dialogue.

A feel for numbers: affect, data and education policy

This article explores the relationship between commensuration and affect in various contexts of education policy. Commensuration is the process through which disparate qualities are transformed into a common metric and is central to the production of performance data. The rise of governance through numbers in education has resulted in a proliferation of performance data, comparisons and rankings that influence political debate and policymaking. The efficacy of data as a governance mechanism depends on their usage to shift perceptions of performance, and this involves both conscious interpretation and affective sense-making of data and their representation in multiple forms. For example, performance data used within accountability systems in education are linked to sanctions and rewards, and their effects are partially due to the feelings that are provoked. The relationship between affect and data is also important in the mobility of policy ideas, which spread via meetings that enable affective proximity between participants. This article draws on a philosophical concept of affect, defined as the feeling of transition in bodily states, and topological concepts that are being taken up in social theory, to consider new perspectives on education policy research that these thinking tools may afford.

Commercialising comparison: Pearson puts the TLC in soft capitalism

Abstract This paper provides a critical policy analysis of The Learning Curve (TLC) (2012), an initiative developed by the multinational edu-business, Pearson, in conjunction with the Economist Intelligence Unit. TLC exemplifies the commercialising of comparison and the efforts of edu-businesses to strategically position themselves in education policy processes globally. In analysing TLC, our account seeks to proffer a critical analysis of this emerging policy genre, and the way it functions as part of the new ‘soft capitalism’. We analyse TLC in relation to Pearson’s new business strategy, which emphasises corporate social responsibility and accountability to consumers for the efficacy of its products and services. We argue that Pearson is now generating and appropriating various data to legitimise its products and services according to a ‘neo-social’ mode of accountability. Network ethnography is employed to document the global networks of both people and data associated with TLC and we reflect on the emergence of Pearson as a potential education policy actor.

Countering and Exceeding "Capital": A "Funds of Knowledge" Approach to Re-Imagining Community.

This article discusses how the ‘funds of knowledge’ approach (FoK) offers a socially just alternative to the logics of capital, by drawing on knowledge assets from students’ family and community lifeworlds to build engaging and rigorous learning, supporting school–community interactions that build capacities. We explain how we applied FoK in an action research project – Redesigning Pedagogies in the North (RPiN) – to design curriculum and pedagogy in schools of a high-poverty region. With reference to RPiN, we also observe how high-poverty regions, and their schools, appear to be undergoing complex unsettlements, as effects of globalisation, which raise problematic questions about who/what is ‘the local community’. We argue that this calls for new thinking, both sociological and ethical, which can refine the FoK approach to take fuller account of the diverse and complex spaces of social-historical life in new times. We conclude by considering a pedagogical approach through which learners in such regions can re-imagine hopeful forms of community.

PISA for Schools: Topological Rationality and New Spaces of the OECD’s Global Educational Governance

This article examines the OECD’s new PISA-based Test for Schools (“PISA for Schools”) program. PISA for Schools is part of the expanding education work of the OECD, building upon main PISA to enable school-to-schooling system comparisons. We examine the development of PISA for Schools, the nature of the instrument, and some initial effects of its introduction. Our theoretical framework focuses on new spatialities associated with globalization and the emergence of topological rationalities and heterarchical modes of governance. We analyze 33 interviews with personnel at the OECD and relevant edu-businesses, not-for-profit organizations, and philanthropic foundations. Pertinent documents and web-based media are also analyzed. We suggest that PISA for Schools provides an exemplary demonstration of heterarchical governance, in which vertical policy mechanisms open up horizontal spaces for new policy actors. It also creates commensurate spaces of comparison and governance, enabling the OECD to “reach into” school-level spaces and directly influence local educational practices.