Focusing on formal multilateral organization, Ruggie (1992) posited, “multilateralism is an institutional form which coordinates relations among three or more states on the basis of generalized principles of conduct” (p. 571). This often cited definition promotes a state-centric assumption (Brenner, 2004) in that it focuses on relations of the nation-state alone and does not account for other global actors that work multilaterally (e.g. non-governmental organizations, multinational corporations, and multilateral organizations). For some time, international relations theorists have focused on the concept of multilateralism to explain global processes. In particular, the mid-1990s saw the emergence of an extensive body of literature attempting to understand multilateral cooperation (Bagwell & Staiger, 1997; Snidal, 1994; Ruggie, 1994; Caporaso, 1993; Martin, 1992). In all instances, these theories focus on the nation-state and reasons for international cooperation, but tend to ignore the possibility that multilateral organizations may in fact work multilaterally with one another. We argue that international educational assessment has emerged as a prime example of a type of multilateralism in education that can not simply be understood through the interaction of nation-states. As the world of assessment moves beyond international studies PISA and the TIMSS, to include studies such as the Programme for the International Assessment for Adult Competencies (PIAAC) and the International Civic and Citizenship Education Study (ICCS), we begin to see a new development in which multilateral organizations, such as the OECD cooperate with other international/multilateral organizations, such as the EU. Of course, cooperation amongst multilateral organizations in international assessment is not a new phenomenon. For example, the World Bank has been an active participant in promoting and funding international assessments for many years via direct funding to organizations such as the IEA. What appears different is that in recent studies, multilateral organizations have become active participants with other multilateral organizations in all aspects of assessment including funding, creation, implementation and interpretation (see King, 2007). Furthermore, the uniqueness of the EU, as a multilateral organization that acts partly as a supernational state (Dale & Robertson, 2002) requires us to adjust our understanding of multilateralism in the field of international assessment. It is with this adjustment of understanding that this paper explores the following research questions: 1. How does the EU’s involvement in LSA’s with other international organizations exemplify a changing multilateralism in education policy processes? 2. Does the EU’s involvement in LSA funding result in increased European influence in international LSA?

For this paper we use methods commonly employed in critical policy analysis (Taylor et al., 1997; Ball, 1994) as well as program evaluation (Russ-Eft & Preskill, 2001) and case study (Yin, 2004; Stake, 1995) to examine the ICCS and PIAAC studies. In particular, the paper relies on two methods to gain an understanding of the nature, purpose, and operation of the studies and their representation of a changing multilateralism: interviews of persons associated with the projects, and document analysis of key memoranda, technical reports and policy papers. A great deal of the information used in this study is derived from policy documents. However, to thoroughly gain perspective of the relationships between multilateral organizations interview with key stakeholders within the EU, OECD, and IEA has been accomplished.

Our initial results indicate that relationships between the EU, OECD and IEA are resulting in an increased influence of European countries within international educational assessment. The addition of the EU into international educational assessment negotiations may change the way we understand multilateralism within international education. Through the EU’s engagement with international assessments, we document how EU members negotiate with multilateral organizations unilaterally through specific dialogue with the assessment organizations and collectively through the EU’s negotiation with the same assessment organizations. We theorize that as the EU works with other multilateral organizations in international assessment, EU member state countries are provided with an additional forum to have their agendas heard, thereby adding to their influence in the international educational community.