School Reform, Educational Governance, and Discourses on Social Justice and Democratic Education in Germany

Abstract

In Germany, at the beginning of the 2000s, the Programme for International Student Assessment (PISA) not only served as a catalyst for the development and implementation of an overall strategy for quality assurance and development of the state school systems. The school effectiveness movement has also brought the issue of educational inequality, which had been lost out of sight in the 1980s, back on the agenda. In ongoing reforms, the improvement of the educational success of children and young people with a migration history and/or a socioeconomically deprived family background has been declared a priority. However similar to the situation in Anglo-American countries, where output-oriented and data-driven school reforms have been implemented since the 1980s, considerable tensions and contradictions became visible between the New Educational Governance and a human rights- and democracy-oriented school development. A Foucauldian discourse analysis of central education and integration policy documents at the federal political level from 1964 to 2019 examined how, and with what consequences, demands of inclusion, social justice, and democracy were incorporated, (re)conceptualized, distorted, or excluded in the New Educational Governance, which was a new type of school reform in Germany. The results of the study indicate that the new regulations of school development are far from shaping school conditions in a human rights–based understanding of inclusion and democratic education. The plethora of measures taken to improve the school success of children and young people with a history of migration (in interaction with other dimensions of inequality such as poverty, gender, or special educational needs) is undermined by a far-reaching depoliticization of discourse and normative revaluations. In the interplay of epistemology, methodology, and categories of school effectiveness research with managerialist steering instruments, spaces for democratic school development and educational processes, in which aspects of plurality, difference, and discrimination can be thematized and addressed in concerted professional action, appear to be systematically narrowed or closed. But the case of Germany also discloses some opposed tendencies, associated with the strengthened human rights discourse and new legislation to combat discrimination.