A Comparative Analysis of New Governance Instruments in the Transnational Educational Space: A Shift to Knowledge-Based Instruments?

Abstract

In recent years, the ongoing development towards a knowledge-based society -associated with globalization, an aging population, new technologies and organizational changes -has led to a more intensive analysis of education and learning throughout life with regard to quantitative, qualitative and financial aspects. In this framework, education policy is no longer merely an affair of the nation state; on the contrary, a range of significant actors (international, supranational and nongovernmental organizations) play an important role in policy formation and construct a transnational educational space. In a research project being carried out at the University of Tübingen, the education policy initiatives of an international (the Organisation for Economic Co-operation and Development [OECD]) and supranational (European Union [EU]) organization concerning the concept of lifelong learning are being examined with emphasis on its implementation into national forms of monitoring and reporting systems. A part of the study concerns issues regarding the influence of the OECD and EU on national policy formation and their managing capacity. This article focuses on the emergence of new governance instruments used by the OECD and EU in the transnational educational space, their characteristics and their impacts, applying, as a conceptual tool, Willke's analytical distinction of regulative media into power, money and knowledge.

Evidence-based policy-making: the usability of the Eurostat Adult Education Survey

“…Although it was the OECD that had a record of working with educational indicators, the European Union adopted this approach of monitoring towards common European benchmarks and indicators with the aim to shape education policy, both in the sense of policy development and policy reform, based on data gathered within e.g. surveys like the Adult Education Survey (Ioannidou, 2007). While education policy remains a core responsibility of the member states, Europe's policy mechanism can be best described as putting peer pressure on member states by continuously monitoring and evaluating the progress towards specific 'benchmarks and indicators', and by making these performances visible for everyone.…”

“…The overarching emphasis of the European lifelong learning policy is on educational achievement and attainment with the aim to build economic prosperity (Grek & Ozga, 2008). Data are meant to act as 'self-regulating' tools with education systems and individuals trying to conform towards norms agreed in the form of benchmarks and indicators, based on 'consensus, shared values and knowledge' (Ioannidou, 2007). These benchmarks and indicators can be defined as Europe's 'new governance instruments' (Ioannidou, 2007).…”

“…This paper sets out the strengths and weaknesses of using the Eurostat Adult Education Survey as a 'new technology' in order to trigger policy makers to adapt and adjust their national policy making towards European norms and values (Ioannidou, 2007). The European Union is a supranational organisation that does not have any legislative power in the field of education, but by funding surveys and measuring specific educational indicators, the Union is able to set priorities for the European educational policy agenda, and to put peer pressure on countries in order to achieve the common European objectives.…”

“…Survey instruments, such as the Eurostat Adult Education Survey which gathers comparative educational data relating to participation in adult learning activities -adults defined as those between age 25 and 64 -, become a strong reference point in creating national policies aimed at boosting knowledge and skills -and thus the economy -within a transnational context. In fact, these data are meant to control and shape the actions to be undertaken by policy makers in order to let their country perform better as poor performing countries will feel pressed to adjust and adapt their policies (Ioannidou, 2007). Although social inclusion and citizenship are known to be included in lifelong learning discourses, the economic discourse of Europe is rather dominant (Holford & MohorcicSpolar, 2012).…”

Post-National Citizenship and Higher Education in the European Union

“…In this respect, the autonomous role of the EU is limited by its lack of capacity to influence national education funding regimes and, more broadly, the large disparities in wealth and income across the EU. The promotion of mobility has enabled a structure of transnational governance of higher education to be constructed with considerable agenda setting capacity (Ioannidou, 2007). However, without the power and resources to promote social justice the substantive realisation of equality of opportunity for students within a European framework of higher education remains dependent on national regimes.…”