EDD 5213 Education Policy and Practice in HK

Topic 5

Formation of Discipline-Managerialism: The Reform on Supply Side of

in the Quasi-Market of Education

EDD 5213

Education Policy and Practice in HK

Reform on Quality Assurance Mechanism of Schooling

Public sector reform movement in Post-WWII welfare states in western democratic-capitalistic countries Deregulation of public sectors

Privatization of public institutions

Marketization of public services

Understanding of New Managerialism and Public Sector Reform

The emergence of the ideas of New Public Management (NPM)

“A system dominated by central government departments, local authorities …, and based upon the values and practices of public administration … is being replaced by a new set of practices and values, based upon a new language of welfare delivery which emphasizes (1) efficiency and value for money, (2) competition and markets, (3) consumerism and customer care.” (Butcher, 1995, quoted in Clark et al., 2000, p. 6; my numbering)


The emergence of the ideas of New Public Management (NPM) The constituents of NPM: “NPM include

Attention to output and performance rather than inputs; Organizations being viewed as chains of low-trust

relationship, linked by contracts or contractual type processes;

The separation of purchaser and providers or clients and contractor roles within formerly integrated processes or organizations;

Breaking down large scale organization and using competition to enable ‘exit’ or ‘choice’ by service users;

Decentralization of budgetary and personal authority to line managers.” (Clark et al., 2000, p. 6; my numbering)


The emergence of the ideas of NPM The ideology of Managerialism

Managerialization and managerialism “can be thought of as equivalent to the concepts of professionalization and professionalism. These terms refer to processes by which an occupational group claims to be the possessors of a distinctive - and valuable – sort of expertise, and uses that expertise as the basis for acquiring organizational and social power.” (Clark, 2000, p.9)


The emergence of the ideas of NPM The ideology of Managerialism (cont’d)

Managerialism can thus be defined as a institutional and organizational orientations, which emphasize the following values and assumptions Management by output and performance rather than by p

rocess and input Management by competition and ‘choice’ and ‘exit’ rather

than by ‘voice’ and ‘loyalty’ Lean and ‘mean’ organization, i.e. sub-contracting and do

wnsizing; contractualization of work Decentralization and devolution; individuation of work


The set up of the Office for Standard in Education (Ofsted) in 1992 as the administrative arm of New Mangerialism

Ofsted’s Commission of a study entitled Review of Key Determinant of School Effectiveness in 1994

The 11 Key Factors for Effective Schools: The result of the commissioned study produced by the research team of the Institute of Education of the London U

New Managerialism in the UK

The 11 Key Factors for Effective Schools: Professional leadership Shared version and goals Learning environment Concentration on teaching and learning Purposeful teaching High expectations Positive reinforcement Monitoring progress Pupil rights and responsibilities Home-school partnership A learning organization


Debate over the result of the IEd research tam’s result “Stating the obvious” and “Verifying the common sense” Questioning the strength of causality of each Key Factors and

that the checklist as a whole Query of the transferability and universality of the Factors Criticism on the “de-contextual” nature of the checklist Questioning the methodological fundament of the review: Can

effective school be analytically dissected into exhaustive 11 Key Factors and/or 27 sub-factors?

Query of the nature of the Factors: Are the 11 Key Factors and their 27 sub-factors summative and/or prescriptive?


The checklist of Items of School Performance used by inspection team of the Ofsted: It consists of 80 items each of which is measured by 6-point scale (Excellent, very good, good, satisfactory, not satisfactory, bad). Taken together, they constitute a 323x6=1,738 matrix.


The checklist of Items of School Performance Five Dimensions

The effectiveness of the school: 10 items The standards achieved by pupils: 35 items Pupils’ attitudes, values and personal development: 15 items The quality of education provided by school: 125 items The leadership and management of the school: 38 items

6-point scale for each item Excellence Very good Good Satisfactory Unsatisfactory Poor

A assessment matrix of a total of 323 x 6 = 1738 evaluative points


Accountability mechanism: According to the inspection teams’ overall assessment schools

will be graded into G1 – Outstanding, G2 - Good, G3 - Satisfactory, and G4 - Inadequate

Schools graded as G4 (Inadequate) will be characterized as “Subject to Special Measure”, which entails intensive inspections by Her Majority’s Inspectorate (HMI).


Accountability mechanism: (cont’d) As Jane Perryman reported in her case study, a school “subject

to special measure” was inspected 8 times in 18 months, during which 5 of the inspection were undertaken within 9-month duration. (Perry, 2006, p.154)

Schools “subject to special measure” have to produce significant improvement within two years. If not, they will be shut down.

According to the 1997/98 Annual Report of the HMI, since 1993 there were 717 schools being categorized as “subject to special measure”, among which 55 were finally shut down. (Ofsted, 1999)


Disciplinary-Power technology Hierarchical observation Normalizing judgment Examination

Typology of power Physical force Traditional power Charismatic power Legal rational power Disciplinary power

Disciplinary Power and Panopticonism

Disciplinary-Power technology Hierarchical observation

Observation and Gaze can serve as instrument of asserting disciplinary power in the following ways

• to scrutinize the induce effect of disciplinary power• to put the recipients of discipline power totally visible

Effective disciplinary gaze needs relays. In order to guarantee an uninterrupted network of observation a hierarchy of observation or a pyramid of gaze is required


Disciplinary-Power technology Normalizing judgment

Disciplinary power is exercise through a micro-penalty mechanism of time, activity, behavior, speech, body, sexuality, etc.

Punishments are imposed not only on infraction of rule but also on non-observance and inability to carry out expected task, in other words, penalty is not only restrictive but also prescriptive.

Disciplinary punishment is corrective in nature. It usually takes the form of exercise, i.e. intensified, repeated, multiple forms of training

Disciplinary penalty is built upon a polar judgment of good and evil, positive and negative, right and wrong, etc. These judgments should also be quantified into an accounting system of good and bad, merit and faults

Subjects under the disciplinary power can be ranked or graded in accordance with their degree of conformity or compliance to the predetermined norms


Disciplinary-Power technology Examination: It is a combination of the techniques of both

hierarchical observation and normalizing judgment. More specifically, it is a process of subjection of those who are supposed to be the learning subjects and a process of the objectification of those learning subjects who have been subjected. This process of subjection and objectification is operated through the following mechanism Documentation: Examination is a way to exercise disciplinary

power by introducing documentation and visibility into the technology of power

Individualization: Examination introduce individuality into the field of documentary

Case-making: Examination turns individuals into cases to be described, judged, corrected, classified, normalized…



New managerialism as Panopticon on schools


New managerialism as Panopticon on schools



New managerialism as Panopticon on schools The principles of disciplinary power in Panopticon

Principle of generalized surveillance has replace actual exercise of power or even physical power to obtain compliance

Principle of constant visibility Principle of unverifiability


The Public Sector Reform The publication of the document Public Sector Refo

rm (PSR) in 1989 PSR Pilot Study 1: The School Education Programm

e: The study team produced the Public Sector Reform: A Review of Roles and Responsibilities in Schools Education in Sept., 1990

The Formation of Discipline-Managerialism in School System of HKSAR

The School Management Initiatives (SMI) The publication of The School Management

Initiatives: Setting the Framework for Quality in HK Schools in March 1991

Definition of the problem:inadequate management structure and processespoorly defined roles and responsibilitiesthe absence or inadequacy of performance measuresan emphasis on detailed controls, rather than frameworks of

responsibility and accountabilityan emphasis on cost control at the margins, rather than cost

effectiveness and value for money

The Development of SBM in Hong Kong: The Emergence of Managerialism in HKSAR

The School Management Initiatives (SMI) Framework for effective school system

Importation of Caldwell & Spinks (1988) The Self Managing School


The School Management Initiatives (SMI) Implementation Framework

School management committee (SMC)• Constituting the constitution of the SMC• Restructuring the SMC

Annual School PlanSchool ProfileBlock grant fundingEvaluation and measuring performanceSMI planning and reporting framework


The School Management Initiatives (SMI) Unpopularity of the SMI: Limited numbers of

schools joined the SMI scheme


Secondary Primary Special

Total

Aided Govt. Aided Govt.

1991 21 0 0 0 0 21

1992 3 10 0 0 0 13

1993 8 15 55 15 0 93

1994 7 11 9 15 4 46

Total 39 36 64 30 4 173

Education Commission Report No. 7 (1997)

Making the managerialism stipulated in the unpopular SMI mandatory in the ECR No.7 Quality indicators Quality assurance Quality school management Quality incentives Quality teachers Quality Education Fund


Building up of the mechanism of Discipline-Managerialism Publications of Performance Indicators in 1998: Bui

lding up the skeleton of standardization of the discipline-managerialism of schools with 4 domains 17 areas 44 aspects 99 components 240+ What to look for?


表現指標範疇：管理及組織

表現指標範疇：教與學 ( 第二版 )

重點

課程策劃與組織課程管理

策劃與技巧態度與知識課堂氣氛

學習過程中的表現和進展

評估政策與制度評估方法評估資料的運用

表現指標範疇：校風及給予學生的支援

表現指標範疇：學業及學業以外的表現

Building up of the mechanism of Discipline-Managerialism Introducing the three-tier quality assurance mechani

sm School self evaluation ay school level Quality assurance inspection (QAI) at system level Experts’ report and international comparative studies

at global level


Building up of the mechanism of Discipline-Managerialism Introducing the three-tier quality assurance mechani

sm School self evaluation ay school level Quality assurance inspection (QAI) at system level Experts’ report and international comparative studies

at global level Implementation of the Quality Assurance Inspection

(QAI) in 1998


全港層面

Building up of the mechanism of Discipline-Managerialism Publication of the Transforming Schools into Dyna

mic and Accountable Professional Learning Community: School-Based Management Consultation Document (2000)


Building up of the mechanism of Discipline-Managerialism Publication of the Transforming Schools into Dynamic a

nd Accountable Professional Learning Community: School-Based Management Consultation Document (2000)

Implementation of School Self Evaluation in 2003

Publication of the 23 Key Performance Measures (KPM)




Implementation of School Self Evaluation (SSE) in 2003

Publication of the 23 Key Performance Measures (KPM) Replacement of QAI with the External School Review (E

SR) in 2004




Implementation of School Self Evaluation (SSE) in 2003

Publication of the 23 Key Performance Measures (KPM) Replacement of QAI with the External School Review (E

SR) in 2004 The Advent of the Audit Culture


Building up of the mechanism of Discipline-Managerialism Publication of the Review of Medium of Instruction

for Secondary Schools (Feb., 2005) Re-affirming the three criteria to be EMI schools Introducing the ascending and descending mechani

sm between EMI and CMI schools into the SSPA and it will be implemented in a six-year cycle


Standardization of school management in performance-indicator Normalization of school management in the quality-assurance me

chanism Examination (gaze) of school in QAI and then ESR Discipline and punish of school Constitution of panopticon in HKSAR schooling system From panopticon to synopticon The infiltration of WebSAMS into schools and the constitution of c

yber-synopticon The implementation of SSE and KPM and the constitution of confe

ssional in HKSAR schooling system Constitution of auditing mechanism into system by means of ESR

Reflection on the Technology of Power in the Discipline-Managerialism of Schools

END

Documents

EDD 5213 Education Policy and Practice in HK