John Coolahan has been, perhaps, the most important policy guru on Irish education for more than two decades. As he prepares to step down as professor of education at NUI Maynooth, he says we should focus on implementing the ambitious reform agenda that already exists before we ask for more new ideas

The Shaping of the Educational Reform Agenda

As Ireland, in common with other developed countries, comes to grips with a new era of civilisational development - the Knowledge Society - it is timely to reflect on how it has been positioning its educational system for the challenges and opportunities that are involved. Education incorporates so much of the heritage, values, aspirations, interests of so many people that it is a particularly sensitive area of social concern. Education's centrality to a country's well-being was never more obvious than in the current era of historical change. How well has Ireland been handling the educational reform agenda?

In many ways it has been a very creditable story. The context was that of the early 1990s, with the adoption of the social partnership model and a realisation that globalisation, the accelerating knowledge base, the information and communications technology (ICT) revolution, greater international educational linkages and significant social and demographic change heralded a new era for society.

Since then, the Government has published two Green Papers and three White Papers on education. It also published its "Strategy for Lifelong Learning". A series of major reports was issued, such as those on special education, the points system, the teaching council and the allocation of second-level teachers. Two reviews of teacher education were carried out. A new curriculum was introduced for primary schools and many curricular changes introduced at post-primary level, with an on-going policy debate on senior-cycle education.

The new information technologies were introduced throughout the education system. New policies on the integration of special-needs pupils, school planning, whole school evaluation, among others, were also introduced. The National Qualifications Authority was established with a major remit to promote lifelong learning. As well as a myriad of changes for higher education, the sector is currently being reviewed by an OECD team.

One of the most distinctive features of the educational policy process was the extensive and unprecedented degree of consultation that took place, and the use of external advisers. This was most notable through regional discussion seminars, the National Education Convention at which 42 stakeholders participated, the National Forum on Childhood Education at which 22 stakeholders took part, the Roundtable on Regionalisation and the National Consultation Conferences on adult education. The use of websites also facilitated consultation. The Irish public participated wholeheartedly in the deliberations, many hundreds of meetings were held throughout the country and a vast range of written responses were submitted on policy issues.

A most striking outcome of this educational policy process was a raft of new educational legislation, that contrasted strongly with Ireland's past history. This included the first comprehensive Education Act and University Act in the history of the State. It also involved the Education (Welfare) Act, the National Qualifications Authority Act, the Teaching Council Act, the Vocational Education Act, among other Acts relating to education.

The legislation affects almost all aspects of education and its out-working involves a significant change of agenda for many agencies. Overall, it can be stated that Irish education has been analysed, evaluated and re-shaped for the whole life-span of a citizen - from the cradle to the grave. Irish education is being faced with the most extensive change agenda ever formulated.

Aspects of Implementation of Reform

However, it is the implementation of policy that is the most crucial aspect of educational development. International research indicates that the successful implementation of large-scale educational reform is a difficult and complex process.

While financial resources are a necessary element in achieving reforms, they are not a sufficient condition. Irish citizens have, indeed, increased their investment in education, with the public budget more than quadrupling from €1,350 billion in 1990 to €6.6 billion in 2004, with €5.350 billion earmarked for education and training in the National Development Plan.

It requires a great deal of political sophistication, commitment of stakeholders, targeted supports, monitoring processes and a climate of partnership, trust and goodwill, if major educational changes are to be achieved. It is also highly desirable that there is continuity, consistency and sustainability of policy approaches over an extended time-period. Affirmation of progress and empathy with difficulties encountered are also desirable elements in implementation.

In this context, it is not at all clear that a new national consultative process, on an open agenda, as in the Minister Noel Dempsey's "Your Education System" is what Irish education needs at this time. Rather, one suggests that the concentration in the period ahead should be on the successful implementation of the very ambitious reform agenda that already exists.

The implementation of this agenda is only in its early stages and, for some elements, it has not yet begun. The change agenda has emerged from the collective engagement of the citizens. The common good requires that it be given the attention, time, resources, insight and skills to bring the reforms about.

Looking to the future, Irish education is well positioned to make further progressive strides towards being a leading world system, which will be crucial for Ireland in the knowledge society. There is both potential and challenge involved. To help achieve this, there are a number of issues that require attention, as well as the prioritisation of the implementation process.

The education portfolio needs to be a central, strategic one in government, with strong supportive links to other relevant ministries. The internal reform of the Department of Education and Science needs to accelerate, with an improved discipline of devolving appropriate authority, rather than exercising micro controls. Evaluation and assessment need to be strengthened, which should be actively promoted by the restructured inspectorate and the new Public Examinations Commission. There is a need for greater support for teacher education built on a comprehensive "3 I's" policy of good quality initial, induction and in-career education.

The quality of the teaching force is a national asset, that can be buttressed by the new Teaching Council and a better balance in the professional and trade are concerns of the teacher unions. The lifelong learning agenda needs more sustained attention by all stakeholders, and, in particular, the reforms set out in the Government White Papers on early childhood education - Ready to Learn (1999) - and on adult education - Learning for Life (2000) - should be seriously addressed.

It will also be necessary to give sustained attention and support to the planned reform of senior cycle - second-level education - in the immediate future. The students' voices need to be heard more in Irish education, with regular, scientific monitoring of their views.

Moves towards a coherent and cohesive policy on assistance for disadvantaged pupils should be accelerated. Policy on higher education and research needs to be more enlightened and consistent than has been evident in the recent past. Many of the reforms that emerged on higher education in the 1990s need to be more grounded, while the up-coming OECD report should provide further guidelines.

Industry's contribution to higher education needs to be developed and systematised. The role of parents within the education system needs to be further supported.

Within a knowledge society, it is essential that education be regarded as a central plank of social, cultural and economic policy, and it is desirable that it be located within a social partnership model. The strategic decisions Ireland makes at this stage of its educational development will have long-lasting consequences for future generations.