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Social Democracy in Latin America: Policymakers and Education Reform in Brazil and Chile

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Social Democracy in Latin America: Policymakers and Education Reform in Brazil and Chile The London School of Economics and Political Science Social democracy in Latin America: Policymakers and education reform in Brazil and Chile Guy Jonathan Sands Burton A thesis submitted to the Department of Government of the London School of Economics for the degree of Doctor of Philosophy London, January 2009 1 UMI Number: U61596B All rights reserved INFORMATION TO ALL USERS The quality of this reproduction is dependent upon the quality of the copy submitted. In the unlikely event that the author did not send a complete manuscript and there are missing pages, these will be noted. Also, if material had to be removed, a note will indicate the deletion. Dissertation Publishing UMI U615963 Published by ProQuest LLC 2014. Copyright in the Dissertation held by the Author. Microform Edition © ProQuest LLC. All rights reserved. This work is protected against unauthorized copying under Title 17, United States Code. ProQuest LLC 789 East Eisenhower Parkway P.O. Box 1346 Ann Arbor, Ml 48106-1346 TH£S£5 f oq. Library Ltjra»y >» ftwlica rwxt Economic Soence 5 o 6 ) Declaration I certify that the thesis I have presented for examination for the MPhil/PhD degree of the London School of Economics and Political Science is solely my own work other than where I have clearly indicated that it is the work of others (in which case the extent of any work carried out jointly by me and any other person is clearly identified in it). The copyright of this thesis rests with the author. Quotation from it is permitted, provided that full acknowledgement is made. This thesis may not be reproduced without the prior written consent of the author. I warrant that this authorization does not, to the best of my belief, infringe the rights of any third party. 2 Abstract What is social democracy in the Latin American and what has been its impact on public policy? I argue that it is a government's origins and its use of the state and related institutions that shape the nature and content of social democracy. To illustrate this, three cases using governments and their approach to educational policy to 2007 are presented: the Concertacion (since 1990) in Chile and the Cardoso (1995-2002) and Lula (since 2003) governments in Brazil. The first part situates social democracy within the Latin American context. First, social democracy is defined ideologically and sociologically in relation to the wider Left-Right divide. Second, social democracy is distinguished between two models: the Third Way (which is more tolerant of inequality resulting from difference, the market and less associated with class concerns) and the Participatory Left (which has deeper roots in socialist ideology, state intervention and social movements). The section establishes that despite differences between each, Third Way and Participatory Left social democrats adopt elite-based policymaking in government. The second part analyses the impact of Third Way and Participatory Left social democracy on public (education) policy. The findings reveal broadly similar policy approaches, including a broader role for the state, curricular reform within the prevailing economic/education paradigm; increased (targeted) public spending; extensive use of evaluation/assessment mechanisms; and adoption of more representative means of participation with (organised) stakeholders. At the same time, policy content and relations with particular stakeholders (i.e. private interests, teachers and students) was also shaped by the institutional constraints and historical contexts faced by each government. 3 Acknowledgements Along with those I interviewed, there are many others whose names do not appear within the following pages, but who must also be thanked, for taking the time to provide me with their time, assistance, guidance, advice and/or moral support during the course of this project. They are (in no particular order of importance): Patrick Dunleavy, Fiona Macaulay, Sarah McLaughlin, Matt Bolton, Sofia Sebastian, Mike Seiferling, Susana Carvalho, Heather Murchison, Jose Olivas Osuna, Vassilis Paipais, Markus Wagner, Nick Vivyan, Jacqui Baker, Nathalie Wlodarczyk, Frank and Marta Lawson, Polly Diniz, Rafael Pineiro, Sergio Toro, Tristan McCowan, Bill Kissane, Emanuela Hedayat, Ed Page, Andi Salazar, Lamprini Kaftantzi, Sara Motta, Antonio Marques, Rafael Minoro, Renato Bastos, Farimah Daftary, Omar El-Mougy, George Philip, Annika Bolton, Analla Ines Meo, Avril Fielding, Robert Funk, Florentino Rojas, Ana Maria Munoz, Eugenio Guzman, Rodrigo Castro, Fernando Atria, Hernan Ampuero, Beatriz Etchegaray, Lilian Ravest, Conor Ryan, Matthew Whiting, Marcelo Enriques, Rodrigo Mardones, Alfredo Joignant, Pablo Halpern, Alfonso Morais, Nelson Silva, Joao Felipe Rammelt Sauerbronn, Fatima Lobato.Marisa Rigo, Camila Souza, Patricia Scarlat, Carolina Cucumides, Tanya Harmer, Victor Figueroa-Clark, Pablo Mejias, Franklin Roach, Thaice de Oliveira, Natalia de Moraes, Luciana Ribeiro da Costa, Ana Alzamova, Ximena Osses, Sonia Kuzmanic, Wendy Hunter, Leany Lemos, Maxine Molyneux, Ricardo Candia, Laura Thiele, Michael Hardy, Luis Armando Gandin, Paulino Motter, Sandra Sales, Rodrigo Prando, Maria do Ceu de Lima, Jean Tible, Danielle Ardaillon, Julie Coimbra, Angela Dias, Cinara Custodio, Laurie Henderson, Mike Macdonnell, Kieran Brett, Jairo Nicolau, Carlos Costa Ribeiro, Tomas Chuaqui, Alfredo Rehren, Angelica Atalla, Ryan Carlin, Ursula Zurita, Graciela Riquelme and Colin Rogers. I am especially grateful to Francisco Panizza, Ken Shadlin, Alan Angell, Anthony Hall, Malte Gerhold, Christopher Burton and Alejandra Falabella, who managed to work their way through all or part of the final draft. Their contributions improved it immeasurably. Last, but by no means least, I would not have achieved half of what I have without the constant love and support of my parents, Christopher and Maureen Burton. It is to them that I dedicate this work. 4 Table of Contents GLOSSARY .....................................................................................................................................................................................................................6 LIST OF FIGURES AND TABLES.......................................................................................................................................................................10 1. INTRODUCTION..............................................................................................................................11 2. LATIN AMERICAN SOCIAL DEMOCRACY: THIRD WAY AND PARTICIPATORY LEFTS IN BRAZIL AND CHILE...................................................................................................... 31 3. ENGINEERING ELITES: ACCOUNTING FOR THE NATURE OF GOVERNMENTAL POLICYMAKING IN EDUCATION IN BRAZIL AND CHILE.................................................55 4. FINDING THE RIGHT BALANCE: THE ROLE OF THE STATE AND SOCIAL DEMOCRATIC GOVERNMENTS................................................................................................... 77 5. THE PURPOSE OF EDUCATION: SOCIAL DEMOCRATIC OBJECTIVES AND CURRICULAR REFORM...................................................................................................................96 6. SPENDING MORE?: PUBLIC EXPENDITURE ON EDUCATION AND SOCIAL DEMOCRATIC GOVERNMENTS................................................................................................. 116 7. MAKING US ALL MANAGERS?: THE USE OF ASSESSMENT AND EVALUATION BY SOCIAL DEMOCRATIC GOVERNMENTS......................................................................... 143 8. NO PARTICIPATION WITHOUT REPRESENTATION: SOCIAL DEMOCRATIC GOVERNMENTS AND PARTICIPATION IN THE EDUCATION SECTOR.......................160 9. A COMPROMISED POSITION: PRIVATE INTERESTS AND SOCIAL DEMOCRATIC GOVERNMENTS.................................................................................................................................182 10. LOBBYING FROM THE LEFT: TEACHERS AND SOCIAL DEMOCRATIC GOVERNMENTS.................................................................................................................................202 11. AN UNEQUAL RELATIONSHIP: STUDENTS AND SOCIAL DEMOCRATIC GOVERNMENTS.................................................................................................................................226 12. CONCLUSION...............................................................................................................................244 APPENDIX 1: POLITICAL EVENTS IN CHILE, 1964-2006................................................................................................................... 257 APPENDIX 2: POLITICAL EVENTS IN BRAZIL, 1964-2006....... 259 APPENDIX 3: TIMELINE OF EDUCATION IN CHILE........................................................................................................................... 261 APPENDIX 4: TIMELINE OF EDUCATION IN BRAZIL........................................................................................................................263 APPENDIX 5: COMPARATIVE EXPENDITURE ON EDUCATION IN SELECTED COUNTRIES, 1990-2005................. 265 APPENDIX 6: INTERVIEW METHODOLOGY AND SCHEDULE ......................................................................................................267 BIBLIOG RAPH Y......................................................................................................................................................................................................274 5 Glossary abertura Attempt at controlled
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