The Irish Adult Education Policy Process Since 1997 Some Lessons for the Future
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View metadata, citation and similar papers at core.ac.uk brought to you by CORE provided by MURAL - Maynooth University Research Archive Library The Irish Adult Education Policy Process since 1997 Some Lessons for the Future Luke Murtagh February 2009 Submitted for PhD in Adult Education, National University of Ireland Maynooth Supervisor: Professor Anne Ryan, Dept. of Adult & Community Education, Faculty of Social Sciences ii PhD in Adult and Community Education Student Declaration I certify that this thesis does not incorporate without acknowledgement any material previously submitted for a degree or diploma in any university and that, to the best of my knowledge and belief, it does not contain any material previously published or written by another person except where due reference is made in the text. Permission is given for the NUI Library, Maynooth to lend or copy this dissertation on request. The views and conclusions expressed herein are my own. Signed LUKE MURTAGH - i - Acknowledgements Writing this thesis has taken me on an exciting but arduous journey. Many people have helped on the way and others helped before I started. I am grateful to all of them. First of all I would like to thank my family for their encouragement and understanding on this and many other journeys. My main debt of gratitude is to Anne, my anchor, for her constant support and understanding during our life together. Another inspiration is my mother, now ninety nine years old, who has always valued education and is a beacon of light for her extended family. I would also like to thank Bláthnaid, Niamh, Aoife, Fiona, Eoghan and Eamonn, for their encouragement and support and for their practical help. During my career in Mullingar, Thomastown and Tipperary, I was fortunate to work with some exceptional people, who challenged and inspired me. That challenge and inspiration gave me a love for education and encouraged me to look beyond what was happening day-to-day to the theories that shaped the education process and the systems underpinning it. In that regard I was fortunate to work with a number of people from third level, who guided me towards an interpretive framework to analyse the type and quality of education I was trying to provide. To them I owe a special debt. While many people have inspired me during my life, others helped me directly in the process of writing the thesis. I would like to start by thanking those interviewed, who gave so generously of their time and expertise. Interviewing them was an enriching experience and contributed enormously to the research. Next I would like to thank those who were responsible for dealing with the Freedom of Information process in the Department of Education and Science (DES), Department of Enterprise, Trade and Employment (DETE), the Departments of Finance and the Taoiseach. Both Tom Slevin in DES and Deirdre O’ Higgins in DETE were particularly helpful and contributed significantly to the research. Finally, I would like to give a special word of thanks to Des O’ Loughlin for agreeing to be interviewed and for keeping a diary during his time in adult education in DES. The diary is a rich source of data for any researcher trying to understand the public policy process in adult education and the day-to-day operation of a Government Department. - ii - As mentioned earlier, I also got practical help from my family. Fiona, Eamonn and Eoghan provided essential IT support for a greenhorn. I want to express a particular word of thanks to Eamonn, who helped with the layout and acted as a critical friend during the entire journey. I also want to thank my friend and former colleague John Slattery who provided editorial support. His advice and attention to detail were invaluable. Dr. Joe Putti also contributed to the process. I owe a great debt of gratitude to my supervisor Professor Anne Ryan. A former colleague of Anne’s told me that “she was a gifted supervisor”. During the supervision process for this thesis Anne lived up to her reputation. She was both patient and insightful. The insights and patience facilitated and guided me through a thick jungle of ideas, material and data towards the golden grail of the completed thesis. Her encouragement, advice, candour and patience were critical to completing my journey. - iii - Abstract This thesis examines Irish adult education policy making since 1997 to identify lessons for future development of the sector. It is aimed at adult education stakeholders, policy makers and researchers to provide them with a deeper understanding of adult education policy making so that they can contribute effectively to its future development. I engaged in the research because of the emerging importance of adult education as part of lifelong learning and my professional and personal interest. The research involved literature review, interviews and a documentary analysis of published and internal departmental adult education policy documents and revealed a fragmented system with a dysfunctional architecture that remained intact despite ten years of intense policy making. The study also highlighted rivalry between the Department of Education and Science (DES) and the Department of Enterprise Trade and Employment (DETE) for control over adult education policy as well as a lack of capacity in DES to manage the development of adult education policy. Because of the rivalry, resources have been wasted in adult education since 1997 while stakeholders are disenchanted and many adults with literacy problems cannot avail of tuition. The problems revealed by the research were exacerbated by political failure. The failures are an outcome of a corporatist approach to policy making and are contributed to by interdepartmental rivalry which can be explained by public choice theory. Political failure was facilitated by Coalition Government which tends to encourage an incremental approach to policy making. In addition the Irish public policy system is complex, multi-layered and operates across different planning cycles and sequences. The outstanding issues for the future include the capacity of senior management in DETE to manage adult education, nominating a lead department, devising an adequate institutional architecture for adult education and the evaluation of the National Adult Literacy Strategy. The research provides advocacy groups with a reform agenda and will also contribute to the debate about the reform of the Irish public service. - iv - Table of Contents Student Declaration ............................................................................................... i Acknowledgements .............................................................................................. ii Abstract ................................................................................................................ iv CHAPTER ONE: INTRODUCTION 1.1 Overview of Thesis ..................................................................................... 1 1.2. Personal and Professional Experience in Adult Education and Policy Making........................................................................................... 2 1.2.1 Personal Insights into the Policy Process......................................................2 1.2.2 Blind Spots as a Policy Analyst.......................................................................3 1.2.3 Professional Experiences Pertinent to the Research....................................3 1.2.3.1 Interdepartmental Steering Committee for TRBDI ........................................3 1.2.3.2 Officer of the Irish Vocational Education Association ...................................4 1.3 The Reasons for Choosing Adult Education Policy Making ................... 6 1.4 Reasons for Starting the Research in 1997 .............................................. 7 1.4.1 Political Reasons for Choosing 1997 ..................................................... 7 1.4.1.1 The Election of a New Government and the Appointment of a Minister of State for Adult Education ..........................................................................7 1.4.1.2 Ideological Shift from Centre Left to Centre Right ........................................8 1.4.1.3 Public Service Management Act (1997)........................................................9 1.4.2 Publication of Adult Education Policy Documents and Initiation of the National Employment Action Plans.................................................................9 1.4.2.1 International Adult Literacy Survey Report ...................................................9 1.4.2.2 The White Paper on Human Resource Development and the National Employment Action Plan.............................................................................10 1.4.2.3 Green Paper on Supporting Voluntary Activity ...........................................11 1.4.2.4 The National Anti-Poverty Strategy.............................................................11 1.5 Reasons for Ending the Research in 2007.............................................. 12 - v - 1.6 Defining Adult Education ......................................................................... 12 1.6.1 Adult Education within the Lifelong Learning Framework..........................13 1.6.1.1 Adult Education and Lifelong Learning .......................................................13 1.6.1.2 Formal, Non-formal and Informal Parts of Adult Education and Lifelong Learning......................................................................................................14 1.6.2 Definition