Advocacy As Political Strategy: the Emergence of an “Education for All”
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Advocacy as Political Strategy: The emergence of an “Education for All” campaign at ActionAid International and the Asia South Pacific Association for Basic and Adult Education by Bronwen Alexandra Magrath A thesis submitted in conformity with the requirements for the degree of Doctor of Philosophy Department of Leadership, Higher and Adult Education University of Toronto © Copyright by Bronwen Alexandra Magrath 2013 Advocacy as Political Strategy: The Emergence of an Education for All Campaign at ActionAid International and the Asia South Pacific Association for Basic and Adult Education Bronwen Alexandra Magrath Doctor of Philosophy Department of Leadership, Higher and Adult Education University of Toronto 2013 Abstract This dissertation explores why and how political advocacy emerged as a dominant organizational strategy for NGOs in the international development education field. In order to answer this central question, I adopt a comparative case-study approach, examining the evolution of policy advocacy positions at two leading NGOs in the field: ActionAid International and the Asia South Pacific Association for Basic and Adult Education (ASPBAE). Although these organizations differ in significant ways, both place political advocacy at the centre of their mandates, and both have secured prominent positions in global educational governance. Through comparative analysis, I shed light on why these organizations have assumed leadership roles in a global advocacy movement. I focus on how the shift to policy advocacy reflects the internal environment of each organization as well as broader trends in the international development field. Ideas of structure and agency are thus central to my analysis. I test the applicability of two structural theories of social change: world polity theory and political opportunity theory; as well as two constructivist approaches: strategic issue framing and international norm dynamics. I offer some thoughts on establishing a ii more dynamic relationship between structure and agency, drawing on Fligstein and McAdam’s concept of strategic action fields. In order to test the utility of these theoretical frameworks, the study begins with a historical account of how ActionAid and ASPBAE have shifted from service- and practice- oriented organizations into political advocates. These histories are woven into a broader story of normative change in the international development field. I then examine the development of a number of key advocacy strategies at each organization, tracing how decisions are made and implemented as well as how they are influenced by the broader environment. I find that while it is essential to understand how global trends and norms enable and constrain organizational strategy, the internal decision-making processes of each organization largely shape how strategies are crafted and implemented. These findings offer insight into the pursuit of advocacy as a political strategy and the role of NGOs in global social change. iii Acknowledgments I would like to express my deepest gratitude to all of the people who have helped me through my PhD journey. My supervisor, Dr. Karen Mundy, has offered ideas, information and encouragement over the past four years. This dissertation could not have taken shape without her continued support. Thanks also to my committee members, Dr. Steven Bernstein and Dr. Judith Taylor, and external examiners, Dr. Yusuf Sayed and Dr. Ruth Hayhoe, for their insightful comments and feedback. A special thank you to all the people at ActionAid and ASPBAE who have given me their time and energy, and answered many emails, as I conducted research for this project. I was lucky to have a wonderful network of friends and family in Toronto to support me during this process. Above all, I want to thank my husband Jon for his love and encouragement and for being a fantastic sounding board for ideas, and my daughter Lily May for keeping me grounded and for giving me excuses to go to the park for a swing. This project was made possible through the generous financial support of the Social Sciences and Humanities Research Council of Canada (SSHRC) and the Ontario Institute for Studies in Education at the University of Toronto. iv List of Acronyms ASPBAE Asia South Pacific Association for Basic and Adult Education CEF Commonwealth Education Fund CSEF Civil Society Education Fund CSO Civil Society Organization DfID Department for International Development (UK) DVV German Adult Education Organization EFA Education for All GMR Global Monitoring Report ICAE International Council of Adult Education IET International Education Team (ActionAid) IMF International Monetary Fund INGO International Non-Governmental Organisation GCE Global Campaign for Education MDG Millennium Development Goals NGO Non-Governmental Organisation OECD Organization for Economic Cooperation and Development RBA Rights-Based Approach RWS Real World Strategies Program SAF Strategic Action Fields UIL Unesco Institute for Lifelong Learning UNESCO United Nations Education, Social and Cultural Organization USAID US Agency for International Development v Table of Contents 1 Introduction .............................................................................................................................. 1 1.1 Overview ............................................................................................................................. 1 1.2 Background ......................................................................................................................... 3 1.3 Case study selection and project design .............................................................................. 5 1.4 Organization of the study .................................................................................................... 8 2 The Non-Governmental Sector and Global Social Change: a literature review ................ 9 2.1 Introduction ......................................................................................................................... 9 2.2 Civil society and global governance ................................................................................... 9 2.3 Social change processes: structural or constructed? ......................................................... 12 2.3.1 World Polity Theory ............................................................................................. 12 2.3.2 Political Opportunity Structure ............................................................................. 15 2.3.3 Strategic Issue Framing and International Norm Dynamics ................................. 18 2.3.4 Conclusion: Melding the two approaches? ........................................................... 24 3 Research Design ..................................................................................................................... 28 3.1 Introduction ....................................................................................................................... 28 3.2 Case study methods and case selection ............................................................................. 28 3.3 Data collection .................................................................................................................. 30 3.4 Data analysis ..................................................................................................................... 33 3.5 Limitations of the study .................................................................................................... 35 3.6 Conclusion ........................................................................................................................ 36 4 A History of ActionAid: from British charity to transnational advocate ......................... 38 4.1 Introduction ....................................................................................................................... 38 4.2 The origins of ActionAid and the post-war development regime ..................................... 39 4.3 1980s: the challenge of neoliberalism and ActionAid’s community education centres ... 44 4.4 1990s: “Empowerment”, “Participation” and the emergence of advocacy ...................... 48 4.5 1997- 2004: Fighting Poverty Together and the Rights Based Approach to Development ..................................................................................................................... 53 4.6 The rights-based approach as an emerging global norm .................................................. 55 4.7 Rights-based advocacy and organizational change at ActionAid ..................................... 62 4.8 ActionAid since 2004 ....................................................................................................... 67 4.9 Conclusions ....................................................................................................................... 69 5 A History of ASPBAE: from a network of educators to a transnational advocate.......... 71 5.1 Introduction ....................................................................................................................... 71 5.2 ASPBAE origins: UNESCO and education for development .......................................... 72 5.3 Network growth and the radicalization of adult education discourse ............................... 75 5.4 Organizational Renewal, 1987-1991: Decentralization, Regionalization and Participatory Development ..............................................................................................