Teaching and Globalization

Pasi Sahlberg
Globalization is typically understood as an economic, political and cul-
tural process that is reshaping the role of many nation-states in rela-
tion to global markets, agreements, and traditions. Recently it has be-
come frequently analyzed in the context of education. However, there is
surprisingly little work done on the pedagogical implications of glob-
alization on teaching and learning other than shifting the emphasis
from traditional subjects to information and communication technol-
ogy and English as a foreign language. This article argues that globaliza-
tion is having an eect on teaching and learning in three ways: educa-
tional development is often based on a global unied agenda, standard-
ized teaching and learning are being used as vehicles to improvement of
quality, and emphasis on competition is increasingly evident among in-
dividuals and schools. The article concludes that recent development of
standardization and competition-based education will become increas-
ingly counter-productive to preparing students for meaningful lives for
and beyond knowledge economy. Furthermore, as a response to glob-
alization, educators need to rethink the ways teaching and learning are
organized in schools, promote appropriate exibility at school level,
creativity in classrooms and risk-taking among students and teachers
as part of their daily work in school.
Education Systems in the Global Context
Globalization has typically been interpreted using economic, political
and cultural terms. Depending on the perspective, it has been seen as
a transition from a Fordist workplace orientation to internationalized
trade and consumption. Globalization is also leading to a diminish-
ing role of nation-states, loss of their sovereignty, and the emergence
of global hegemony of transnational media and entertainment corpo-
rations. As a consequence, standardization in economies, policies and
culture has become a new norm for competitive corporations, ideas, and
media. As Burbules and Torres (:ooo) write, changes in global culture
Dr Pasi Sahlberg is Senior Education Specialist
in the World Bank, Washington, uc, us..
The views are those of the author alone and do not necessarily
represent those of the World Bank or any of its aliated institutions.
Managing Global Transitions : (I): o,8,
oo Pasi Sahlberg
deeply aect educational policies, practices, and institutions. From re-
cent attempts to analyze and understand the multiple and complex ef-
fects of globalization on education it is obvious that there is no single
straightforward view of the consequences of the globalization process
on teaching and learning in schools and other education institutions
(Carnoy I,,,; Burbules and Torres :ooo; ovcu :ooI; Stromquist :oo:;
Hargreaves :oo,; World Bank :oo,). Although globalization has also cre-
ated new opportunities to transform education, this article focuses on
some counterproductive implications that are becoming evident in re-
cent education reforms.
Globalization has two macro-level paradoxical eects on our daily
lives. First, it simultaneously both integrates and segregates. It integrates
world cultures through the global communication networks and less re-
stricted movement of individuals. At the same time it creates a tension
between those who are beneting more and those who may be marginal-
ized by the market values and consumer cultures that are typical to many
societies, especially in the areas that suer from poverty or slower de-
velopment. The challenge for future public education is to give prior-
ity to teaching ethics and a sense of global responsibility that go be-
yond the bounds of the knowledge economy. Second, globalization pro-
motes competition although strategic alliances between competing par-
ties are becoming a condition of success. Economic markets have become
more open and exible because of diminishing barriers of trade and low-
ering of labor and trade regulations. The mobility of goods, services,
money and intellectual capital has increased due to sub-regional and
global agreements. Competition to expand markets, promote innova-
tions, and develop highly skilled workforces is shifting the focus of work
from quantities to qualities and from mastery of facts to professional
exibility and continuous renewal of personal capacities. Globalization
increases competition because productivity and eciency have become
key descriptors of successful economies. Corporations and service or-
ganizations are regularly using quality assurance policies and commit-
ting themselves to management strategies that are based on assessment
of performance of both sta and managers.
As a consequence, similar doctrines have emerged in education. Stan-
dards, testing and alternative forms of nancing have come to challenge
conventional public education in many countries. In the name of ac-
countability and transparency, schools, teachers and students are more
often than before measured, tested and asked to perform under the ob-
Managing Global Transitions
Teaching and Globalization o,
serving eyes of external inspectors. Even ministers of education today
compete to determine whose students can perform the best in inter-
national student assessment programs. Indeed, introduction of interna-
tional test comparisons, such as vis. (Programfor International Student
Assessment) and 1ixss (Trends in International Mathematics and Sci-
ence Study), has been one of the strongest pretexts for school reforms
in many countries including many of the transition economies (Harg-
reaves :oo,). The emerging perception seems to be that making schools,
teachers and students compete will itself improve the quality of educa-
tion, as it has vitalized corporations in market economies. Various forms
of educational standards have been created to help these competitions to
become fairer and more comparable.
Education systems are reacting dierently to the changes in the worlds
new economic, political and cultural orders. Globalization has become
an inuence in nation-states social reforms as education sectors adjust
to the new global environments that are characterized by exibility, di-
versity, increased competition and unpredictable change. Understand-
ing the eects of globalization on teaching and learning is essential for
any policy maker, reform designer and educational leader. According to
Carnoy (I,,,), the approach which governments take in reforming their
education sector and its responses to globalization depends on three key
factors:

the governments objective nancial situation,

its interpretation of that situation,

its political-ideological position regarding the public sector in edu-

cation.
These three factors are normally spelled out in the macro-economic
structural adjustment policies and related large-scale education reform
strategies through which countries adjust not only their economies but
also their education systems to the new realities.
The key purpose of structural adjustment policies in the education
sector has been a transition towards global educational standards. This
is often done by benchmarking the entire systems of less-developed
countries to those of economically more advanced ones. Unfortunately,
governments often think that there is one correct approach to adjust-
ment of education and that certain global education standards need to
be met if the system is to perform in an internationally competitive way.
Research on education reforms and experiences on structural adjust-
Volume Number Spring
o8 Pasi Sahlberg
ment suggest that governments need to realize that there is more than
one way of proceeding on the way to improvement. The major condition
for sustainable evolution of public education and cultivation of demo-
cratically functioning nation-states is the kind of reform that is based on
the principle of development rather than creation. In creation, according
to Sarason (:oo:), new externally designed solutions are being intro-
duced to solve the existing local problems. In development, on the other
hand, the key questions are:

What is the past of the system?

What kind of institutions do we want the schools to become?

What capabilities do individuals and the system need to implement

the expected reform?
This tension between development and creation is visible in most ed-
ucation system reforms in Europe and Central Asia region today. More
specically, there are three education policy directions within the more
general structural adjustment of state economy and public service that
are typical of todays large-scale education reforms. Each of these policies
is often implemented in the spirit of creation rather than development
in developing and transition countries. Moreover, the following policies
are often used to promote market-based reforms and hence character-
ize the essence of globalization of education: decentralization, privatiza-
tion, and increasing eciency of education. Decentralization is based on
an assumption that stronger self-management allows schools to nd op-
timal ways of responding to local needs and becoming more account-
able for outcomes. A recent analysis of decentralization in Central and
Eastern Europe show how complicated the concept of delegating power
can be in practice (World Bank :ooo). Decentralization per se can nei-
ther improve the quality of education nor increase the productivity of
schooling. Evidence shows that for example school autonomy alone, as
a form of decentralized education management, has produced no signif-
icant gains in student achievement (Hannaway and Carnoy I,,,). In-
deed, the rationale for decentralizing education is not to increase the
autonomy of municipalities or schools, but to reduce the central gov-
ernments responsibility for nancing of compulsory education and to
aggregate the responsibility of nancing of education to local taxpay-
ers and governments. Similarly, the cost-eciency, competition and im-
pact of private schools have been constant topics of debate among edu-
cators. Evidence from the research literature is, however, controversial
Managing Global Transitions
Teaching and Globalization o,
(Riddell I,,,; Lockheed and Jimenez I,,o; Ladd and Fiske :oo,). Al-
though cost-eectiveness in private schools may be greater than in public
schools, private provision of education through vouchers does not itself
improve student learning. For example, data from recent education re-
forms in Chile show that a large-scale and systematic privatization of
public school management has not made a signicant contribution to
school improvement in general (Carnoy I,,,; Mizala et al. :oo:; Hsieh
and Urquiola :oo,). Furthermore, research evidence from New Zealand,
Chile and even United States indicate that the common belief that in-
creased competition among schools due to parental choice and related
nancing structures leads to improved teaching and learning is either
unclear, or is simply not true (Beleld and Levin :oo:; Ladd and Fiske
:oo,).
A Tentative Typology of Global Education Reforms
Countries in transition often redesign their policies to align education
systems to what they believe to be current international practice. De-
mand for technological literacy, exibility of knowledge and skills, and
ability to adjust to new labor market needs require teachers to teach
new things in new ways. Globalization is hence catalyzing education re-
forms around the world. However, the thinking behind these reforms
varies greatly from one system to another. First and foremost, there is
no one common denominator for these reforms, but a closer analysis
identies some typical trends. Looking at the basic values, assumptions,
and purposes of various education reforms, four dierent reform cat-
egories can be identied. They constitute a tentative typology of edu-
cation reforms during the process of globalization that I have designed
based on recent thinking on education reforms (see for example Carnoy
I,,,; Sahlberg :oo:; Fullan :oo,). Some aspects of types of reforms may
overlap and this categorization is not necessarily comprehensive. The
four education reform categories are (see Table I): equity-oriented re-
forms, restructuring-oriented reforms, nancing-oriented reforms, and
standardization-oriented reforms.
The main intention of equity-oriented education reforms that were
typical in the I,oos and I,,os is to promote social equity and increase
economic opportunity. In most countries educational attainment deter-
mines individuals social status as well as their capital earnings, which
makes the equalizing of access to good education an important factor in
closing the gap between the socio-economic groups in society (Carnoy
Volume Number Spring
,o Pasi Sahlberg
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Managing Global Transitions
Teaching and Globalization ,I
I,,,). Equity-oriented reforms often emphasize strengthening the po-
litical role of education in building democratic justice, social mobility
and equal opportunities for all citizens. These reforms typically focus
on shifting public spending from higher to lower levels of education,
rural/urban balance, gender issues, broadening the conception of edu-
cational quality beyond knowledge and skills in core subjects and mov-
ing towards a more integrated curriculum and inclusive organization
of teaching. Consequently, the popularity of equity-oriented education
reforms has decreased recently because of the perceptions that invest-
ing in equity may not show an increase in test scores and, hence, may
not give sucient attention to economic growth. Instead, market-based
solutions have often been seen as potential alternatives to conventional
public education in improving the quality and cost-eectiveness of ed-
ucational provision. Some fear, among them many teachers, that in this
race for higher standards only the fastest and strongest will succeed while
the weak either fail or lose their hope when being left behind.
Restructuring-oriented education reforms that emerged in I,8os are
based on structural alignments that aim to normalize the current sys-
tem with international practice. The basic assumption of such reforms
is that all education systems that function eectively and produce high
quality learning should share the same core values, assumptions and op-
erational principles. The most typical indicators of economically and ad-
ministratively adjusted education systems are pupil-teacher ratio, class-
size, school-size, time allocation per subject, education expenditure per
capita and length of compulsory education. Recently, as a consequence of
restructuring reforms especially in transition economies, several institu-
tional rearrangements have occurred, such as the emergence of indepen-
dent assessment and examination centers, privately managed education
institutions and accreditation agencies.
Financing-oriented education reforms typically aim at reducing the
share of public nancing of education by looking for ways of users to
pay for their education. As globalization increases competition among
nations, national economies have to adjust themselves to the new global
economic structural reality. In practice, since education is a signi-
cant proportion of public sector spending, reducing public spending
inevitably means also shrinking education budgets nanced from pub-
lic funding. This, in turn, leads governments to seek nancing outside
public budgets or to reduce the unit costs within the education sector, or
both of these. Financing-oriented reforms have had three direct implica-
Volume Number Spring
,: Pasi Sahlberg
tions for education. First, shifting public funding from higher to lower
levels of education. Higher education is typically high-cost, and basic ed-
ucation is relatively low cost in terms of student expenditures. The shift
of spending from higher to basic education would therefore enhance
opportunities for large numbers of primary students at the expense of
subsidizing a relatively elite group of families who could bear the costs of
university education privately anyway (Carnoy I,,,). Second, this leads
to privatization of secondary and higher education. Many governments
in the Central and Eastern European regions increase privately nanced
education in order to overcome the problems of low education nancing
portfolios in the State budgets. Third, reduction of the cost per student
is most often done by increases in class-sizes at all levels of education.
According to the economists estimates, countries that have fewer than
, students in a class could save signicant public resources by increasing
class sizes over time (World Bank I,,,). In the New Independent States,
for example, the pupil-teacher ratio is typically around Io : I, whereas the
ovcu average is I, : I.
Standardization-oriented reforms that have appeared since the I,,os
are based on the assumption that in the competitive economic and so-
cial contexts the quality of education and productivity of labor can best
be improved by setting high performance standards for teaching and
learning and then measuring whether these standards have been met.
Standardization-driven reforms were a catalyst for the introduction of
international test comparisons. Students test scores in 1ixss and vis.
have raised public interest in the performance of education systems
globally. A consequence is that the complex interconnections between
educational achievement and economic success are oversimplied. In
competition-intensive global markets, schools have been urged to reach
higher standards. This has led to focusing on education reforms that
are based on greater standardization and related micro-management of
teaching and learning. As Hargreaves (:oo,) has argued, the most com-
monly used reform strategy is:

a closely scripted curriculum with predetermined attainment tar-

gets or learning standards,

aligned testing mechanisms that measure the extent to which these

standards have been achieved,

tightened external inspection to control teachers and schools per-

formance,
Managing Global Transitions
Teaching and Globalization ,,

performance-related compensation among other reward-sanction

structures.
The types of education reforms described in Table I rarely occur in-
dependently from each other. The internal logic of that typology indi-
cates increased market-orientation of education reform as one moves
top-down in Table I. Therefore, it is normal that two or more of these
reforms are implemented simultaneously in large-scale, system-wide ef-
forts to align education to new economic or political situations and
thereby improve the quality of education and increase the productivity of
labor. Moreover, similar changes may occur within each of these reform
categories but for dierent reasons. For example, changing the curricu-
lum has been almost a t-for-all cure in education reforms of any type,
teacher in-service training is proposed as a means in most reforms, and
resource implications of reforms have often impacted on the nancial
arrangements of education.
Has globalization catalyzed one or some of these education reforms
more than others? A Canadian research team presented a synthesis of ef-
forts to reform education systems during the era of globalization. They
refer to a new ocial orthodoxy of educational reform occurring pri-
marily in predominantly Anglo-Saxon countries (Hargeraves et al. :ooI).
This strategy is rapidly being adopted also in developing parts of the
world due to development aid oered by industrialized countries. In
many cases, especially in the Europe and Central Asian region, policy,
strategies and models of educational reforms created in developed coun-
tries are exported to the less-developed transition countries. The new
educational orthodoxy is to a large extent a market-based ospring of
globalization and, according to Hargreaves et al. (:ooI), has the follow-
ing major components:

Higher standards of learning for all students, except for those who
have the most severe mental or physical dysfunctions.

Deeper learning, which shifts the focus of teaching away from a

presentation-recitation mode of instruction towards teaching for
conceptual understanding, problemsolving, and shared intelligence
that are all essential for successful participation in the knowledge
society or knowledge economy.

Centralized curricula that ensure common and consistent coverage

of what every student should know and be able to do, often in the
form of standards or pre-scripted attainment targets.
Volume Number Spring
, Pasi Sahlberg

Literacy and numeracy as prime targets of reformand which also de-

termine the success or failure of pupils, teachers, schools, and entire
education systems.

Indicators and attainment targets of student achievement and cur-

riculum planning that enable teachers and others to be clear whe-
ther these standards have been reached or not.

Aligned assessments that are tightly linked to the prescribed curricu-

lum, learning standards, and indicators making sure that teachers
focus on high learning achievements for all students.

Consequential accountability where the school performance and es-

pecially raising the quality of education, are closely tied to the pro-
cesses of accreditation, promotion, inspection and ultimately fund-
ing and rewarding (or punishing).
This educational reform ideology has been widely accepted, both po-
litically and professionally. In principle these elements of education re-
form, when implemented successfully, promise signicant progress of
education, especially in improved quality of education and better op-
portunities for all students to learn in school. In many cases, as a con-
sequence of this new global education reform movement, the introduc-
tion of various educational standards has become common in modern
education development. What has followed is an emergence of learning
standards for students, teaching standards for teachers, assessment and
curriculum standards for educators, with related indicators, criteria and
attainment targets. Although some early gains have been recorded, the
standardization movement in schools has not-welcomed backwash ef-
fects as well that are discussed in the next paragraphs (Fullan :oo,).
Globalization as Standardization
A clear impact of globalization is increased competition, not only in
economy and trade, but also in other sectors, including education. The
fundamental assumption is that boundless business opportunities and
the free movement of labor are promoting eciency and eectiveness in
private production as well as among basic public services. Previous edu-
cation policies have adopted values, principles and management models
of market economy, for example, curriculum models in the early :oth
century based on scientic management by Frederick W. Taylor. Today
again, as a response to the economic, political and cultural globaliza-
tion process, education systems are seeking governance and operational
Managing Global Transitions
Teaching and Globalization ,,
models from the business world. As a result, the number of privately
managed education institutions has increased, school choice within pub-
lic education has been made possible, local management and decision
making are becoming common due to decentralization, and schools and
teachers have been made accountable for teaching and learning. In some
instances these neo-liberal and sometimes even market fundamentalist
education policies have created what could be described as schooling
apartheid in which good schools get better and poor schools get worse
or are even abolished due to their failure to perform according to exter-
nally set standards. Many good schools have gained their reputation by
having a better intake of students and by simple raw student test result
data that have been used in comparing schools in the media in the name
of accountability.
Focusing on higher economic productivity in national economies is
one cause of increased competitiveness in our societies. In the environ-
ment where results matter the most, standards are commonly used to
determine the quality of these results. Outcomes-based education re-
form became popular in the I,8os, followed by standards-based educa-
tion policies in the I,,os rst in Anglo-Saxon countries. These reforms
shifted the focus of attention from educational inputs, i. e. regulation
of teaching, to educational outcomes, i. e. monitoring of learning. As
a result, a widely accepted belief among policy-makers and education
reformers is that by emphasizing competition among schools and set-
ting clear and high enough performance standards for schools, teachers
and students will improve the quality of education, and hence students
learning outcomes. Enforcement of external testing systems to assess how
these standards have been achieved has resulted fromstandards-oriented
education reforms. Since the late I,8os, as Hargreaves (:oo,) writes, cen-
trally prescribed curricula, with detailed and pressing performance tar-
gets, aligned assessments, and high stake accountability have dened a
new orthodoxy of educational reform worldwide, providing standard-
ized solutions at low cost for a voting public keen on accountability. It is
easy to see the linkages between what has happened in global economies,
politics and societies in general and the mainstream market-based edu-
cation reform agendas mentioned above.
Eorts to enhance quality, increase productivity and improve cost-
eectiveness, have brought standardization in various forms to the world
of education. The nancing and standardization-oriented education re-
forms mentioned in Table I have dominated education policy discourses
Volume Number Spring
,o Pasi Sahlberg
and reform agendas more than have equity- and restructuring-oriented
educational development during the last two decades. Schools and teach-
ers have been asked to improve the quality of teaching and learning at a
time of increased requirements to spend their time on non-teaching ac-
tivities in their schools, shrinking education budgets and restricted access
to necessary resources. Students test scores in standardized academic
achievement tests have been used as a sole justication for personal suc-
cess or failure. Student assessment has become a global business in ed-
ucation as schools and local education authorities are forced to spend
considerable shares of their education budgets on testing students. What
is even more worrying is the shift of teachers and students attention
from teaching and learning for understanding towards being successful
in high stake tests and exams.
Recent research on large-scale standards-driven education reforms
seems to suggest that there is a need for a change of course (Fullan
:ooo). In England and Wales, New Zealand, some provinces of Aus-
tralia, Japan, Singapore, and even in the United States there are growing
concerns about the appropriateness of standardized reform and its real
contributions to educate for citizenship and prepare youth for demo-
cratic societies and knowledge economies (Oakes et al. :ooo; Cuban
:ooI; Popham :oo:; Fullan :oo,; Hargreaves :oo,). There are indica-
tions that over-standardization while resources (both time and money)
remain the same are leading to de-professionalization of teachers work
and narrowing curriculum and learning to basic skills in core academic
subjects. If that is true, then our standardized schools are not likely to
be of much help in developing information societies and helping young
people in learning the necessary knowledge, skills and habits of mind
that they need in knowledge economies.
Knowledge societies are based on the capacities to share information,
build knowledge and create innovations, in other words, to learn. The
development of knowledge economies depends on how exibly the so-
ciety is able to react to unpredictable changes. Economies that are based
on rigid structures and inert minds are not able to succeed and grow.
However, many school systems and particularly their secondary schools
have become rational, factory-type institutions that impose standard-
ized knowledge on students rather than promote curiosity, creativity
and self-actualization. Hargreaves (:oo,) says that the rightful pursuit
of higher standards has degenerated into a counter-productive obsession
with soulless standardization. Instead of extending the space for innova-
Managing Global Transitions
Teaching and Globalization ,,
tive teaching and creative learning in schools, the opportunities for ex-
ibility and risk-taking that are essential in a knowledge economy have
been taken away from teachers and students. Education reforms in many
countries go under the label the way to a knowledge society but what
students, teachers and schools are forced to do often creates new prob-
lems rather than solves existing ones.
Education is paramount in helping young people to learn to live to-
gether in a secure globalized world. But what kind of education? The
Organization for Economic Cooperation and Development (ovcu) has
envisaged six possible scenarios for the future public education in the
knowledge society (ovcu :ooI). Two Status Quo scenarios of these pos-
sible futures of public education presume a strengthening of current ar-
rangements that will result in either more entrenched bureaucracy in
school systems or a growing emphasis on market and choice-based mod-
els as students and their parents become more dissatised with public
education. Two other scenarios termed De-Schooling scenarios pre-
sume that public schooling will simply diminish because of the lack of
enough good teachers, and that the proliferation of innovations will cre-
ate panic and meltdown in education policies. Alternative solutions,
such as non-formal education, distance education and e-learning will
gradually replace formal public schooling. Only two scenarios labeled
as Re-Schooling assume that public education can be saved and im-
proved. One scenario sees schools developing as learning organizations
that will focus on learning and development for the knowledge society.
The other scenario sees the school as an activity center in its community
that networks with other human development entities, promotes the de-
velopment of social capital and learning for a good life as well as for
productivity in the knowledge society.
Teaching and the Knowledge Society
Two decades of education reforms, as Hargreaves (:oo,) observes, have
led to rigid standardization, commercialized teaching, learning for tests
and external control that has casualized teachers in many countries
rather than empowered them to teach better. How can our schools then
become learning organizations and caring communities? One potential
way is to re-think teaching and learning by challenging conventional
beliefs of what the knowledge society and knowledge economy require
from schools. This re-thinking could constitute three dimensions:

teaching in the knowledge society,

Volume Number Spring
,8 Pasi Sahlberg

teaching for the knowledge society,

teaching beyond the knowledge society.

As teaching in the knowledge society (or economy) is self-evident, let
us look at the dimensions of teaching for and beyond it.
Teaching for the knowledge economy is concerned primarily with cog-
nitive learning and is based on three necessary elements. First, schools
need to step back to becoming exible institutions where carpe diem is
the guiding principle of teaching and learning. Knowledge economies
need individuals who can use knowledge, know how to adapt to new sit-
uations and be ready to explore the unknown. Second, a creative atmo-
sphere in classroom is a key condition for the emergence of innovations
and new ideas during the teaching and learning process. The knowledge
economy as a learning system is dependent on innovations. Innovations
require creativity and there is no creativity without risk-taking. Across
the curriculum, students should learn to develop attitudes and skills that
are necessary in social interaction, problem-solving and continuous self-
development and learning. Third, individuals should be encouraged to
develop collective intelligence and ingenuity. Rarely can only one person
master all the knowledge and skills that are required. Successful corpo-
rations and communities build on shared knowledge and competences,
not only individual mastery.
Teaching beyond the knowledge economy means teaching ethics, dispo-
sitions and a sense of global responsibility. It is based on four elements
that go beyond the bounds of the knowledge economy. First, schools
should help young people to develop values and emotions as part of
their character development. Second, teaching in school should focus on
learning the principles of democracy. Thirdly, students should be guided
to commit themselves to group life and become active members of vari-
ous communities instead of only learning to cope with short-term team-
work. And fourthly, as Giddens (:ooo) proposes, teaching should culti-
vate a cosmopolitan identity that means genuine interest in and under-
standing of other cultures, humanitarian responsibility of self and others
and caring for excluded groups within and beyond ones own society.
Teaching in the era of globalization is a challenge to teachers and to
education systems. I argue that public education will play an even more
important role in social and economic development in the coming years.
Reactions to these challenges have remained so far ineective. Education
vouchers, standardizing teaching and learning, intensifying testing, and
Managing Global Transitions
Teaching and Globalization ,,
making schools more accountable to the public, have not raised the qual-
ity of education as expected. If governments want to narrow the learning
gap between the more advanced and those who lag behind, to expand ed-
ucational opportunities for all people and to improve student learning in
general, systemic eorts that are backed up by coherent education poli-
cies are required. At the time of globalization this means stronger role of
education, more public spending on education as well as more eective
use of resources allocated for schooling. The evidence shows that those
education systems that have strong public education are likely to be more
successful in terms of eciency and quality (Carnoy I,,,; ovcu :oo:).
Concluding Discussion
The need for new thinking about educational reforms and school im-
provement is worldwide. The rhythm of change remains fast and un-
predictable. Insecurity and uncertainty, that are typical by-products of
globalization, create newchallenges for schools to prepare pupils for new
world realities such as sustainable ecologies or knowledge economies.
Schools, when governed and managed well, may provide hope for better
security and well being for many more than they do now. As described
above, schools have faced the following global phenomena:
Increased standardization of teaching and learning. The new global ed-
ucational orthodoxy together with competition-based education poli-
cies has led to over-standardization of teaching and learning (Hargreaves
:oo,). Standardization-oriented reforms that set unied and predeter-
mined expectations in the formof performance standards underestimate
the complexity and dynamics of knowledge economies. Standards are
by denition static. Testing and measurement systems that are integral
elements of standardized education systems diminish the curriculum
and limit teaching to cover the core subjects and specic content areas
that are tested (Popham :oo:). As experience from highly standardized
school systems suggests, teaching becomes technical implementation of
predetermined sequences and learning a game of memorizing what was
taught until it is externally tested.
Public resources for education are not likely to increase. Globalization in-
creases international economic competition, which automatically puts
pressure on decreasing public spending in state budgets (ovcu :oo,). As
a consequence, education ministries have been forced to look for more
ecient and cost-saving arrangements for delivering mandatory edu-
Volume Number Spring
8o Pasi Sahlberg
cational services. Teachers salaries remain lower than salaries of simi-
larly educated professionals in society. Class-sizes and school-sizes are
increasing and nancing of teacher professional development is shifting
frompublic authorities to schools and teachers. At the same time, the de-
velopment of modern teaching and learning tools requires larger budgets
than before. Finally, cultural diversity in schools and the widening spec-
trum of children with various special needs call for intensied human
development and appropriate provision of support to these individuals.
Demoralization among teachers and decreasing motivation for schooling
among pupils. According to recent studies, teacher burn-out, dissatisfac-
tion with work, lower morale and increasing early retirements have been
consequences of tightening central control over teachers work, expand-
ing competitiveness within and among schools and weakening teacher
autonomy (Perie et al. I,,,). It may not be fair to blame globalization
for all these illnesses in the teaching profession but, as a consequence
of the adopted educational reform models especially the new educa-
tional orthodoxy and thus increased competition among schools de-
professionalization of teaching has become an increasingly global illness
in education systems that will have serious future eects in medium and
long term perspectives (Hargreaves :oo,; Law :oo,).
In order to cope with these impacts of globalization on schools, alter-
native directions are needed. Often inconsistent education reforms are
due to the misinterpretation of the essence of globalization and its im-
pact on education. Some of the proposed educational responses to glob-
alization, such as standardization of teaching and learning, privatization
through alternative education provision mechanisms and promotion of
open competition between schools, have only recently been more widely
questioned. Education policies and reform designers need to pay closer
attention to the issues that have been suggested by many of the leading
thinkers of educational development (Cuban :ooI; Sarason :oo:; Harg-
reaves :oo,; Fullan :oo,).
There are three dierent dimensions that schools have to consider
when planning their roles in the globalizing world. Schools need to nd
the most eective ways to teach their pupils in the knowledge society.
Then they have to design their curricula and pedagogical arrangements
to help pupils to learn for the knowledge society. Finally, school should
help young people to protect themselves from the negative side of glob-
alization, such as marginalization and inequality between rich and poor,
Managing Global Transitions
Teaching and Globalization 8I
by educating them beyond the knowledge society. This entails develop-
ing the values and emotions of young peoples character, building under-
standing and commitments to families, communities and group life and
cultivating a cosmopolitan identity.
Furthermore, school improvement should make better use of teachers
professional communities. Instead of standardizing teaching by creat-
ing more barriers to teachers genuine creativity, emotional involvement
in their students development and collegial professionalism, teachers
should be helped by providing them with time and resources to learn,
plan and reect together about their work in school. Some governments
are now shifting the focus of their policies and education reforms from
standardization of teaching and learning towards developing profes-
sional learning communities of teachers and towards emancipating the
professional potential of teachers and principals who are able to nd
new solutions to maintaining the quality of learning. Promotion of such
professional communities is based on four elements (Hargreaves :oo,):

collaborative work and discussion among the teachers and princi-

pals in school;

focus on teaching and learning within that professional collegiality;

collecting data fromclassrooms and schools to evaluate the progress

and challenges in the educational process;

rearranging time in schools.

It is obvious that globalization provides new opportunities to solve
world-wide problems and at the same time it creates new challenges that
needs to recognized. One visible trend within education is homogeniza-
tion of the content of teaching and standardization of the expected learn-
ing in schools. Many governments are currently searching for optimal
ways to respond to these challenges. According to the experts the future
scenarios are not promising. It seems that public education is still the
most powerful means to secure the development of democratic civil so-
cieties, productive knowledge economy and sustainable global security.
Each of these national and global educational goals can be achieved only
when education truly serves the public good and provides learning op-
portunities for all students. Teaching and learning that are based on the
values of democracy, common good and equal opportunities can cul-
tivate these features of our societies. The evidence from large-scale ed-
ucation reforms suggests that improving student learning or expanding
opportunities to good education requires systematic eorts and coherent
Volume Number Spring
8: Pasi Sahlberg
policies by the public sector. According to these experiences, to do that
means not only bigger but also more eective public education spend-
ing. To do this successfully, exibility, creativity and risk-taking will be
the key qualities of both institutions and their individuals.
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