Shared Future or Separate Development?

The Political Economy of Education Policies in Northern Ireland

Dunleath LectureQueens University Belfast

11 March 2015

What is political economy analysis?

’Political Economy Analysis (PEA) is concerned with the interaction of political and economic processes in society: the distribution of power and wealth between different groups and individuals, and the processes that create, sustain and transform these relationships over time.’

(OECD-DAC)

Why is political economy analysis important?

‘There is increasing recognition that blockages for effective reform at the sectoral level can be political and that technical solutions alone may not be enough.

Governance of a sector, and the way in which politics and institutions interact within that sector, will in practice have a critical impact on sector policies and services’.

(DFID, EC, UNDP, World Bank, 2009)*

*Foresti, M. and Wild, L. (2009) Analysing governance and political economy in sectors – Joint donor workshop report, London: Overseas Development Institute.

An Analytic FrameworkTo what extent is education contributing towards a just and

sustainable peace (defined in terms of the 4Rs)?‘potential indicators’

Redistribution(addressing inequalities)

• Quantitative analysis of existing data to examine vertical and horizontal inequalities relevant to education inputs, resources and outcomes

• Analysis of macro education reforms or policies to see if they are redistributive, for example, the impact of decentralisation, privatisation, how they impact different groups and affect conflict dynamics

Recognition(respecting difference)

• Language of instruction polices• Recognition of cultural diversity through curriculum• Place of religious identity in the education system• Citizenship and civic education as a means of statebuilding

Representation(encouraging participation)

• Extent to which education policy and reforms are produced through participation of stakeholders (local, national, global)

• Analysis of political control and representation through the administration of education

• School governance, school based management, involvement in decision making (teachers, parents, students)

• Extent to which education system supports fundamental freedoms.

Reconciliation(dealing with past, present and future injustices)

• Addressing historical and contemporary economic, political and cultural injustices that underpin conflict.

• Analysis of how education contributes to integration and segregation (social cohesion, shared or separate institutions)

• Teaching about the past and its relevance to the present and future.• Levels of trust – vertical (trust in schools and the education system) and

horizontal (trust between different identity-based groups)

Context Analysis

• Cessation of violence• Devolution, new political structures• Constraints of current governance arrangements• Symmetrical versus asymmetrical policies

(e.g. research by Fontana, 2014)

NI, Macedonia, Lebanon (Fontana, 2014)

Research into implementation of education reforms concluded that:

1. Reforms are implemented by government when they promote values congruent with those of the political system:

Subsidies to private schools (Lebanon) State-funding to Universities teaching in Albanian (Macedonia)

X Unified History Curriculum (Lebanon)

X Integrated Education (Northern Ireland)

2. Reforms are implemented when they have a symmetrical impact: Irish and Ulster-Scots (Northern Ireland) Promotion of mother-tongue instruction in primary and secondary school

(Macedonia)

X Macedonian-language classes in Albanian schools from first grade (Macedonia)

Stakeholder Analysis

POLITICAL STRUCTURESPolitical Parties

DEPARTMENT OF EDUCATION Education Policies

inspectorate, administration, fundingcurriculum, examinations

education and library board(s)

SCHOOLSBoards of Governors

nursery, primary, secondary, grammar, all abilitychurches, transferors, trustees, CCMS, NICIE, Irish medium

TEACHERSteacher education providers

pre-service, in-service, senior management trainingteacher employers

GTCNI, professional bodies, teacher unions

CHILDRENPARENTS

WIDER SOCIETY(political, economic, social, cultural interests)

SYSTEMIC

INSTITUTIONAL

INTER

PERSONAL

Policies relevant to transformation

• Failure to agree Education Bill and establish ESA• Representation on new Education Authority• Changes to teacher education• Teacher certification and employment• Impasse over Irish Language Act• Implications of separate schooling for equality?• Unequal priority and support given to integrated

and shared education?

Implications for integrated education?

•Shift of thinking from being defined as a sector – a challenge for all current sectors?•Is it possible to develop integrated education in ways that have symmetrical impact? •Focus on systemic change in key policy areas•Press government to ‘promote’, not simply ‘facilitate and support’ – monitor closely•Highlight the economic, as well as social necessity for change in international forums

A final word…

….. be in no doubt whatsoever that, in aspiring towards our goal of reconciliation and an end to sectarianism in Northern Ireland, we are going to make it; we are going to get there; we shall do it. We are determined to do it. Let there be no doubt about that whatsoever. It may not happen immediately, perhaps not next year or the year after, perhaps not in my lifetime, but we are going to make it because we are determined to do it.

(Lord Dunleath, House of Lords, 16 Feb 1978)