The Mediation of Transnational Policy Flows in Federal Systems: Standards-Based Reforms in Germany, Australia, Canada and the USA
Author(s):
Laura Engel (submitting) Glenn Savage (presenting)
Jennifer Wallner (presenting)
Sigrid Hartong
Conference:
ECER 2017
Format:
Paper

Session Information

23 SES 04 D, National Policy Making and Education Inequalities

Paper Session

Time:
2017-08-23
09:00-10:30
Room:
K4.11
Chair:
Parlo Singh

Contribution

Since the 1980s, the social and economic forces of globalisation have driven a wide array of new policy formations and processes in education. One powerful global trend has been the development of policies designed to achieve greater national standardisation in core areas of schooling, including curricula, teaching, and assessment (Hartong, 2014; Savage, 2016). Standards-based reforms have been strongly promoted by international organisations, such as the Organisation for Economic Co-operation and Development (OECD), in response to concerns about the role of education in a global economy (OECD, 2004), in turn prompting governments to reconsider how education systems can be more efficiently harnessed in a context of intensifying global competition (Rizvi & Lingard, 2010).

In recent years, the standardisation of education policies and processes has been accompanied by a complex array of new accountability measures and data infrastructures, ostensibly to evaluate the progress that is being made (Lingard & Sellar, 2013; Morgan, 2016). A proliferation of international, national, and sub-national indicators, benchmarks and assessments, for example, are now regularly used to rank and compare education systems and schools (Anagnostopoulos et al., 2013). The OECD, in particular, is playing a central role in generating a global set of policy ideas and practices through both its Programme for International Student Assessment (PISA) and ‘Education at a Glance’ reports of education indicators (Lingard & Grek, 2007).

To date, existing research on the global transformation of education policy and governance has largely focused on identifying and comparing national trends and policy changes, in federal and unitary countries alike. At the same time, however, there has been a growing body of research that points to the ambiguity of global-local flows of ‘recontextualisation’ (Steiner-Khamsi, 2012), the local meaning of reforms, but also the changing influence of national and local actors who operate as policy ‘brokers’ (or opponents) for (or against) reform. At the same time, there is a growing awareness that sub-national actors are playing a powerful role as mediators in globalising and standardising tendencies in education and that in turn, global policy actors are increasingly active at 'scales' below the nation-state (Engel & Frizzell, 2015). This awareness for (sub)national dynamics is particularly conspicuous in multi-level federal systems, in which schooling policies are not controlled by a central government and about which ‘national level’ claims about global policy influence are highly problematic. Against this background, the proposed paper provides insights from four distinctive federal systems (Australia, Canada, Germany, and the United States) to explore the following question: How are transnational education reform trends reshaping not only national, but also subnational policy processes in multi-level education systems?

Method

In this paper, we draw on cross-national comparative policy analysis of recent standardisation policies in four federations, Australia, Germany, Canada and the United States, to better understand how transnational forces interact with unique intergovernmental policy formations. In particular, we consider the role of such intergovernmental policy formations in mediating policy ideas and practices linked to standards-based reform. Our findings for this paper were generated from a series of single and cross-national comparative case studies, each generating evidence regarding the ways in which standardising policy tendencies play out in federal contexts. To guide our current work, we posed a set of questions to deepen our comparative work, including: 1) What distinctive intergovernmental formations exist in each federation in relation to education? 2) Who/what are the (changing) key agents and formations within the current standardisation movement? 3) To what extent are standarisation policies in each system related to attempts to achieve “national” education reform? 4) Who are the core actors/agents of change, mediating global-local policy flows in particular ways? Given that standardisation policies in all four federations comprise various fields of reform (i.e. curriculum, assessments, teacher training, monitoring, educational research, etc.), we concentrate on the example of (new) assessment agencies/infrastructures for standardised school performance assessments, which nonetheless may, or may not, be closely related to other reform streams. Still, the focus on assessments enables a closer observation of the important, yet distinct role of PISA (in relation to other assessments) within domestic formations of education policy standardisation.

Expected Outcomes

While we observe crucial similarities between some or all four cases (e.g. in all four cases, current standardisation reforms have been influenced by PISA, yet in different scope and intensity), we also observe important differences, which inter-alia relate to varying meanings of ‘the national’ in ongoing supra-state/supra-territorial standardising policy formations, or to the shapes and roles of cross-level ‘change agents’ (Exley et al., 2011; Hartong, 2015, p. 5). In all four cases, we identify rising concerns about whether trends towards centralisation and standardisation have the potential to undermine the historical benefits of federalism, such as diversity, experimentation, choice and competition. There also appears to be particularly significant tension in the four federal systems between ‘diversity and standardisation’ (Bilstein & Ecarius, 2009; Klein & Dungs, 2010). Consequently, as the illustrated examples show, in addition to pursuing new forms of centralisation and standardisation, all four countries have concurrently pursued reform agendas designed to devolve responsibilities to schools, to promote school choice, to engender greater competition between states/territories/Länder and schools, and to better cater for diversity and local needs through new decentralized policy designs. By taking up these ideas, this paper understands standardisation policies in federal contexts as complex, continuously transforming assemblages across and between different policy scales/levels. In this regard, standardisation might be very closely related to a nationalisation/national centralisation of education policy (as in Australia or in Germany), but it might also play out as an exclusively state-/territorial-related policy agenda (as in Canada), or as a hybrid assemblage of both (as in the United States). Moreover, standardising policy formations might be driven government-centric (as in Germany), or by intergovernmental (as in Australia) or non-governmental, e.g. philanthropic or private (as in the USA), actor formations.

References

Anagnostopoulos, D., Rutledge, S. A. & Jacobsen, R. (Eds.) (2013). The infrastructure of accountability: Data use and the transformation of American education. Cambridge: Harvard University Press. Bilstein, J., & Ecarius, J. (2009). Standardising – Kanonisierung. Erziehungswissenschaftliche Reflexionen. [Standardisation – Canonisation: Reflections from educational research]. Wiesbaden, VS JEP – Special Issue Proposal – Towards a global standardisation of education? 6 Verlag. Engel, L. C., & Frizzell, M. (2015). Competitive comparison and PISA bragging rights: Sub-national uses of the OECD’s PISA in Canada and the US. Discourse: Studies in the Cultural Politics of Education, 36(5), 665-682. Exley, S., Braun, A., & Ball, S. J. (2011). Global education policy: Networks and flows. Critical Studies in Education, 52, 213–218. Hartong, S. (2014). Neue Bildungsregulierung im Zeitalter der ‘governance by numbers’. Das Beispiel standardbasierter Bildungsreform in Deutschland und den USA”. In Leviathan, 42(4): 1-29. Hartong, S. (2015). Global policy convergence through 'distributed governance'? The emergence of ‘national’ education standards in the US and Germany. Journal of International and Comparative Social Policy, 31(1): 10-33. Klein, R., & Dungs, S. (Eds.). (2010). Standardisierung der Bildung. Zwischen Subjekt und Kultur [Standardisation of Education. Between Subject and Culture]. Wiesbaden, VS Verlag. Lingard, B., & Grek, S. (2007). The OECD, indicators and PISA: An exploration of events and theoretical perspectives. Edinburgh, ESRC/ESF Research Project. Lingard. B., & Sellar, S. 2013. ‘Catalyst data’: perverse systemic effects of audit and accountability in Australian schooling. Journal of Education Policy, 28(5), 634-656. Morgan, C. (2016). Testing students under cognitive capitalism: knowledge production of twentyfirst century skills. Journal of Education Policy. DOI:10.1080/02680939.2016.1190465 OECD. (2004). What makes school systems perform? Seeing school systems through the prism of PISA. Paris: OECD. Rizvi, F., & B. Lingard. (2010). Globalizing education policy. New York: Routledge. Savage, G. C. (2016). Who’s steering the ship? National curriculum reform and the re-shaping of Australian federalism. Journal of Education Policy. DOI: 10.1080/02680939.2016.1202452 Steiner-Khamsi, G. (2012). Understanding policy borrowing and lending. In G. Steiner-Khamsi, & F. Waldow (eds.). Policy borrowing and lending in education (pp. 3-17). London/New York: Routledge.

Author Information

Laura Engel (submitting)
George Washington University
George Washington University
Washington
Glenn Savage (presenting)
The University of Western Australia
Manning
Jennifer Wallner (presenting)
University of Ottawa
School of Political Studies
Ottawa
Helmut Schmidt University, Germany

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