Professional Documents
Culture Documents
Series Editor
Jason Laker
San José State University
San José, CA, USA
This series will engage with the theoretical and practical debates regarding
citizenship, human rights education, social inclusion, and individual and
group identities as they relate to the role of higher and adult education on
an international scale. Books in the series will consider hopeful possibili-
ties for the capacity of higher and adult education to enable citizenship,
human rights, democracy and the common good, including emerging
research and interesting and effective practices. It will also participate in
and stimulate deliberation and debate about the constraints, barriers and
sources and forms of resistance to realizing the promise of egalitarian
Civil Societies. The series will facilitate continued conversation on policy
and politics, curriculum and pedagogy, review and reform, and provide a
comparative overview of the different conceptions and approaches to
citizenship education and democracy around the world.
David Lundie
School Leadership
between Community
and the State
The Changing Civic Role of Schooling
David Lundie
School of Interdisciplinary Studies
University of Glasgow
Dumfries, UK
© The Editor(s) (if applicable) and The Author(s), under exclusive licence to Springer Nature
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Acknowledgements
v
vi Acknowledgements
vii
viii Timeline of Research
(continued)
Full title (where Methodological Funder
Short title different) Duration summary Co-investigators details
Security, The influence of 2016–17 Interviews with British
Safeguarding securitisation 17 mid-level Academy/
and the on spiritual, policy enactors Journal of
Curriculum moral, social in two cities in Moral
and cultural England; Education
development Delphi grant
in England’s conference SG151930
schools with
participants
Westminster 2015–18 Survey of 450 Charles Clarke Higher
Faith headteachers and Linda Education
Debates on parental Woodhead Innovation
withdrawal (Principal Fund
from RE; Investigators) (survey
Headteacher Mairi Levitt only)
interviews Cathal O’Siochru
about Paul Smalley
Collective
Worship;
Analysis of
school
admissions
policies
Religious 2018–19 Analysis of GCSE Mike Ashton Culham St
Education entry data in Miyoung Ahn Gabriel’s
and Social the school Trust
Disadvan census; ‘Research7’
tage Survey of Year 9 grant 280
pupils in
disadvantaged
areas;
Participatory
action research
with teachers
Values to Personal 2019–21 Ethnographic Carly Bagelman Templeton
Virtues Liberty, observations in Phil Bamber Religion
Mutual three Joseph Maslen Trust ‘Self,
Respect and secondary Cathal O’Siochru Virtue and
Tolerance: schools in Lee Shannon Public Life’
From Values England; John Tillson grant
to Virtues Ecological Antonio
Momentary Zuffiano
Assessment of
pupil
responses
across 28 days;
Daily pupil
diaries
Praise for School Leadership between
Community and the State
“In his book, Lundie walks the path between conciseness and clarity, on the
one hand, and thick descriptions and layers of interpretations, on the other.
The length of the book is closer to the anthropological norm than to the
philosophical argument, but the many arguments within it adhere to the
analytic norm of conciseness and clarity. Once an argument has been laid out –
whether his own or that of someone else – its premises and conclusions are
given thick interpretations, with illustration from the colonial history of
Britain, philosophical sources past and present, large empirical research and
literature. And all this is woven together in a style that engages the reader to
join Lundie on his quest for understanding pluralism, tolerance, spirituality,
and schooling.
Lundie takes the reader along the path between the two traditions where,
looking towards the analytical side many of the pressing issues in contempo-
rary education become crystallized through attention to conceptual differ-
ences between, for instance, toleration and neutrality, and then further
attention to different interpretations of neutrality as to means or ends. But
the issues are not left there but are brought into the messy reality of life itself
which traverses different sectors, operates according to different logics, and
where glaring contradictions are sometimes effectively avoided because some
people have vested interest in not seeing them.”
—Ólafur Páll Jónsson, Professor of Philosophy, School of Education,
University of Iceland
1 Individual
Liberty, Mutual Respect and Tolerance 1
‘Free Trade and Toleration’ in British India 1833–1947 1
Toleration, Neutrality and the ‘Bristol School’ of
Multiculturalism 12
Multiculturalism in the Brexit Moment 19
Two Tests, Two Paradoxes and Two Biases of Pluralism 25
Toleration and Neutrality 25
Neutrality as to Means or Ends 27
The Epistemic Paradox 28
The Fundamental Values Paradox 30
Constitutive Bias—Defining Community 33
Directive Bias—Teaching ‘for’ Tolerance 34
Works Cited 35
2 P
ost-Historical Institutionalism 43
On the Notion of Authority 43
From Historical to Post-Historical Institutionalism 52
Towards a Philosophy of Bureaucracy 67
Choice and Diversity, the Problem of a Marketplace for Values
Education 76
Works Cited 78
xi
xii Contents
3 L
eadership and Community 85
Religious Education and Community Cohesion 85
Does Religious Education Work? 89
Revisiting Does RE Work? Ten Years on 101
From Community Cohesion to ‘Mere’ Tolerance 119
Works Cited 122
4 Schools,
Leadership and the Law129
Mediating Law: The Inspectorate and the Courts 129
The Trojan Horse 137
Researching Security and Schooling 146
Becoming Post-Institutional 162
Works Cited 166
5 School
Leadership and the Market173
Public Choice Economics 173
Communities, Academies, Faith and Business 185
The Market and Mid-Level Policy Enactors 194
Works Cited 197
6 Leadership
and the Political State203
Mediating Teacher Agency Through School Strategy 203
Theorising the Political Sector, Liberty and Liberalism in the
Fundamental British Values 232
Works Cited 240
7 C
onclusions247
Mapping the Politicisation of School Values Through
Marketisation 247
Theorising Multi-Agency Working 252
Researching Institutional and Post-Institutional Logics in
Education 253
Works Cited 255
Contents xiii
8 Epilogue—From
the Political to the Undifferentiated257
School Values in the COVID-19 Pandemic Moment 257
From British Values to Personal Development 259
Works Cited 265
W
orks Cited267
I ndex301
List of Figures
xv
List of Tables
xvii
Introduction: What Is Philosophy
of Education For?
xix
xx Introduction: What Is Philosophy of Education For?
The Mexican Sierra [a fish] has 17 + 15 + 9 spines in the dorsal fin. These
can easily be counted. But if the Sierra strikes hard on the line so that our
hands are burned, if the fish sounds and nearly escapes and finally comes in
over the rail, his colours pulsing and his tail beating the air, a whole new
relational externality has come into being—an entity which is more than
the sum of the fish plus the fisherman. The only way to count the spines of
the Sierra unaffected by the second relational reality is to sit in a laboratory,
open an evil-smelling jar, remove a stiff colourless fish from the formalin
solution, count the spines, and write the truth… There you have recorded
a reality which cannot be assailed—probably the least important reality
concerning either the fish or yourself. It is good to know what you are
doing. The man with his pickled fish has set down one truth and recorded
in his experience many lies. The fish is not that colour, that texture, that
dead, nor does he smell that way. (Steinbeck, 1951, p. 5)
the nature and role of education for global citizenship (Bourn et al.,
2017). Educating for tolerance is among the success indicators for the
UNESCO sustainable development goals; however, a growing concern
for national, even nationalistic values within schools and education pol-
icy has seen a turn against the previous decade’s ‘global turn’ (Mannion
et al., 2011; Bamber et al., 2018). The announcement, in the run up to
the 2020 Presidential election in the United States, of a commission to
promote ‘patriotic education’ is just the most egregious example of the
normalisation of a nationalistic turn in education.
Drawing on the history of British educational interventions in India
under Imperialism, Chap. 1 theorises the separations of religion from
materiality and from fundamental values which are necessary before a
concept of ‘religious neutrality’ can be advanced. These separations leave
open a number of questions as to the purpose and practice of tolerance or
neutrality—whether this is to be understood as an indifferent ‘letting
alone’, a precondition for the authentic choice of a pre-defined good, or
the valorisation of pluralism as a good. This last conception is a corner-
stone of British multicultural political philosophy, and played an impor-
tant role in setting out the context of ‘community cohesion’ policy, which
came to characterise the New Labour years in English politics (1997–2010).
By exploring the origins of these ideas in colonial pragmatism, this chapter
problematises the assumption that neutrality is necessarily motivated by a
multicultural politics of recognition. It poses a number of conceptual
questions which the rest of the book seeks to answer.
Chapter 2 goes on to set out the theoretical apparatus for a philosophy
of administration which will be used to answer these conceptual ques-
tions. Drawing on a concept of recognition developed by Alexandre
Kojève in his post-historical reading of Hegel, the chapter argues that
many of the traditional structures and logics associated with the political
sector no longer function in the way they are commonly understood. In
place of Kojève’s pessimistic ‘post-historical’ thesis, however, the chapter
also draws upon a multi-sectoral analysis from the Copenhagen school of
security studies, positing that this post-historical thesis operates only on
the level of the political sector, concerned with the institutions of the
state. At the same time as this post-institutional focus has come to pre-
dominate politically, spaces for agency continue to operate in the societal
xxvi Introduction: What Is Philosophy of Education For?
The impact of these changes in the ways community and public sector
actors are positioned by these shifting market logics on education policy
is the focus of Chap. 6. Returning to a focus on school values, and the
shift in language from community cohesion to fundamental British val-
ues, two more in-depth case studies are introduced—from 2016 and
2019. The first of these studies highlights the role and spaces of agency
for teachers and school leaders in relation to the values of their communi-
ties and the values of the political state. The second highlights the role
mid-level policy enactors can play in the recontextualisation and rein-
scription of policy enactment. Drawing on these studies, it is possible to
map the domain of ethos and values as the English education system
undergoes a further shift towards the language of ‘personal development’,
as well as to highlight the ways that language, like in the colonial context
in Chap. 1, can mask as well as reveal fundamental differences in the aims
and purposes of teaching tolerance.
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Arthur, J. (2015). Extremism and neo-liberal education policy: A contextual
critique of the Trojan Horse affair in Birmingham schools. British Journal of
Education Studies, 63, 311–328.
Bamber, P., Bullivant, A., Clark, A., & Lundie, D. (2018). Educating Global
Britain: Perils and possibilities promoting ‘national’ values through critical
global citizenship education. British Journal of Education Studies,
66(4), 433–453.
Bamber, P., Bullivant, A., Clark, A., & Lundie, D. (2018). Educating Global
Britain: Perils and possibilities promoting ‘national’ values through critical
global citizenship education. British Journal of Education Studies,
66(4), 433–453.
Barbour, I. (1990). Religion in an age of science. Harper.
Bourn, D., Hunt, F., & Bamber, P. (2017). A review of education for sustainable
development and global citizenship education in teacher education. UNESCO.
Buzan, B., Waever, O., & deWilde, J. (1997). Security: A new framework for
analysis. Lynne Rienner.
xxviii Introduction: What Is Philosophy of Education For?
Ghosh, R., Chan, W. Y., Manuel, A., & Dilimulati, M. (2017). Can education
counter violent religious extremism? Canadian Foreign Policy Journal,
23, 117–133.
Hand, M. (2008). What should we teach as controversial? A defense of the epis-
temic criterion. Educational Theory, 58, 213–228.
Landahl, J. (2013). The eye of power(-lessness): On the emergence of the pan-
optical and synoptical classroom. History of Education: Journal of the History
of Education Society, 42, 803–821.
Lundie, D. (2017a). Religion, schooling, community, and security: Exploring
transitions and transformations in England. Diaspora, Indigenous, and
Minority Education, 11(3), 117–123.
Lundie, D. (2017b). Is RE still not working? Reflections on the Does RE Work?
project 5 years on. British Journal of Religious Education, 40, 348–356.
Lundie, D. (2017c). Security, safeguarding and the curriculum: Recommendations
for effective multi-agency Prevent work in schools. Liverpool Hope University.
Lundie, D. (2019). Building a terrorist house on sand: A critical incident analy-
sis of interprofessionality and the Prevent duty in schools in England. Journal
of Beliefs and Values, 40, 321–337.
Lundie, D., & O’Siochru, C. (2019). The right of withdrawal from religious
education in England: School leaders’ beliefs, experiences and understand-
ings of policy and practice. British Journal of Religious Education, 43, 161–173.
Mannion, G., Biesta, G., Priestley, J., & Ross, H. (2011). The global dimension
in education and education for global citizenship: Genealogy and critique.
Globalisation, Societies and Education, 9, 443–456.
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Piro, J. (2008). Foucault and the architecture of surveillance: Creating regimes
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A Bernsteinian perspective on policy interpretation, translation, enactment.
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Introduction: What Is Philosophy of Education For? xxix
Victories of free trade and toleration, through which Christianity for the
first time in the history of India took its place as the one divine religion,
and because divine, to be commended to every man’s conscience by its own
self-evidencing authority, and sweet persuasiveness alone. No sovereignty
with physical force, no Church with inquisition tortures. (Smith, 1893)
It was on the soil of India that many of the seeds of subsequent British
thinking on public education were first planted. It was on this soil that
many of the pioneers of mass public education in the UK, such as
Alexander Duff (1806–1878) and the ‘monitorial’ system of common
schooling established by Andrew Bell (1753–1832) incubated their peda-
gogies. Among these seeds, we may also count the denominational neu-
trality enjoined by Butler’s Elementary Education Act of 1870, with its
stipulation that religious instruction was not to follow the catechism or
formulary of any one denomination, in language reminiscent of earlier
East India Company missives on religious neutrality in the sub-continent’s
schools. More than a century later, a similar strand of thinking was to
inspire postcolonial policy on religion in schools in documents such as
Working Paper 36 (Schools Council, 1971) and the groundbreaking
Birmingham Agreed Syllabus of 1975, which sought to marry faith and
toleration in a country rapidly experiencing transitions towards both plu-
rality and secularity. Religious neutrality was enshrined in the
4 D. Lundie
some Hindu priests who complained that this was a religious custom,
which the Company was thus bound to respect, Napier retorts:
Be it so. This burning of widows is your custom; prepare the funeral pile.
But my nation has also a custom. When men burn women alive we hang
them, and confiscate all their property. My carpenters shall therefore erect
gibbets on which to hang all concerned when the widow is consumed. Let
us all act according to national customs. (Napier, 1851, p. 35)
fideism, where practice follows doctrine, are sadly still common in some
approaches to teaching about the Dharmic traditions in UK schools
(Insight UK, 2021). The revelation that the priests of Jagannath were
paying revenue to British East India Company in return for investment
in the renovation of their temple was a cause of scandal denounced from
pulpit and press. The missionary Claudius Buchanan first drew attention
to the practice, representing these deaths as both pagan sacrifice (making
a Biblical analogy to the human sacrifices to the pagan idol Moloch) and
suicide. While the magistrate of Puri represented such deaths as a “sad
accident” rather than suicide (Ghosh, 2018), the reality, as with sati, is
that the self-representations of priests and devotees were never sought,
and neither the categories of accident or suicide encapsulate the practice
in their episteme or worldview.
In its response to these scandals, both of the sectoral separations dis-
cussed above are in evidence. In relation to the separation between reli-
gion and materiality, the idea of financial support or taxable benefit from
religious buildings and festivities was to come to an end. In relation to
the separation between religion and fundamental values, as with sati, the
Jagannath case highlights a key difference from the Enlightenment
Protestant context in which British attitudes to toleration first developed.
Christians of all denominations and Jews shared a commitment to a God
who wills the good of his followers, who “desire[s] mercy not sacrifice”
(Hosea 6:6). An implicit foundation of shared fundamental rights set the
boundaries of religious toleration at home, and demarcated the ground
on which the meaning of religious neutrality abroad would be contested.
Drawing on this, and other examples, it can be argued that tolerance is
not a ‘value’ but a practice, underpinned by a series of mutually exclusive
values. Three distinctive threads of value can be identified, intertwined in
such complexity in the writings of colonialists1 that it is impossible to
disentangle motives from excuses. Firstly, the instrumental value of toler-
ance identified by Smith, as a prerequisite for the ‘sweet persuasion’ of
Gospel truth; secondly, a neutrality born of a more authentic openness to
1
I acknowledge a limitation in the presentation of this chapter is that it deals only with contempo-
rary sources written by British colonialists and missionaries, and that in foregrounding policy con-
siderations at the level of colonial administration, I am also complicit in eliding indigenous voices.
8 D. Lundie
(p. 598)—for example, the state can force parents to educate children,
but should not claim a monopoly on education.
Mill’s bureaucratic impulses towards India, however, do not merely
amount to a Eurocentric preference for enlightenment despotism. In
leaving his position of many years with the British East India Company
after the proclamation of Empire in 1858, turning down a place on the
Council which replaced the Company, Mill foregrounds the importance
of administrative efficiency (Harris, 1964, p. 191). In Mill’s view, the
trade-focused bureaucracy of the Company tended towards a pragmatic,
utilitarian form of government, which was preferable to an explicitly
political government—whether controlled from London or by indige-
nous democracy—subject to the whim and rhetoric of politicians. Trade
and toleration once again find themselves bedfellows in Mill’s preference
for a bureaucratic state run for the self-interest of investors, if only the
rulers can identify their self-interest with that of the ruled.
An incident in Mill’s career with the British East India Company is
illustrative of a nuance missing in Parekh’s characterisation: the reauthor-
ing of the Company’s charter to include educational provision in 1813
opened the way for public investment and inspection of education some
decades before such provisions would be made in England. A controversy
began almost immediately between ‘orientalists’, who stressed the value
of Indian languages and learning in the education of an indigenous
administrative elite, and ‘anglicisers’ who demanded the assimilation of
educated Indians to English language, literature, sciences and customs.
Governor General Macaulay’s minute of 1835, reserving funds only for
English language education, seemingly settled this dispute once and for
all. A draft despatch of the following year, however, drafted by Mill under
the title “Recent Changes in Native Education” cautions against too hasty
an implementation, and argues for the importance of teaching Hindu
and Islamic legal scholarship for the administration of justice in India
(Tunick, 2006). In relation to this despatch, John Stuart Mill shows a
growing influence of South Asian ideas on his thought, in stark contrast
to his father James Mill.
As would be the case in England some six decades later, the first forays
of the British state into funding education involved a bipartite system,
maintaining existing madrassas and Sanskrit colleges at the same rates as
10 D. Lundie
was both being imagined and deconstructed at the same time; nonethe-
less, these spatial/temporal, postcolonial and communitarian features can
be traced in policy and theory.
Following the assault on a white pensioner in Oldham by three Asian
youths, a demonstration by the far-right National Front on 5 May 2001
became a flashpoint for some of the worst racially motivated civil unrest
in the UK since the early 1980s. Centred around a racially polarised area
of the town, rioting subsequently spread to other Northern English towns
of Bradford, Leeds and Burnley, all of which had diverse but increasingly
polarised populations. Following the events of the summer, a report into
the riots compiled by Professor Ted Cantle (2001) problematised ‘com-
munity fragmentation’—disaffected Asian youth (framed in racial terms)
living parallel lives to their white peers without meaningful interaction.
Similar concerns were voiced around that time by Sir Trevor Phillips,
then head of the Commission for Racial Equality, when he warned that
parts of Britain were “sleepwalking into segregation” (Phillips, 2005), and
such spaces have been described as “failed spaces of multiculturalism”
(Thomas et al., 2018) (West, 2016).
Within months of the Oldham riots, however, agendas were radically
refocused by the response of the UK security apparatus to the events of
9/11 and the subsequent framing of the ‘War on Terror’. While elements
of the community cohesion agenda continued to focus on challenging
far-right racism, discourse shifted from a framing of Asian youth in racial
terms to a focus on religion, and particularly on Muslims (Panjwani,
2017). As I have argued elsewhere (Lundie, 2017), the conflation of race
and religion and the identification of religious education within schools
as the primary site of community cohesion work have led to significant
misidentifications of core problems in educating for a diverse society.
Further, the reactive reframing of these core ideas in the wake of unrest or
the fears generated by a terrorist threat (Miah, 2017) operationalises not
only a shift in language from communities in the plural to society in the
singular, but from society as an imagined community to a stronger role
for the political and security state. The separation of religion from politi-
cal life, and later from fundamental values, opens a space of opportunity
for the identification of fundamental values with the political state.
18 D. Lundie
Le 19. — Que de fois je renonce à rien écrire ici, que de fois j’y
reviens écrire ! Attrait et délaissement, ô ma vie !
Que mon désert est grand, que mon ciel est immense !
L’aigle, sans se lasser, n’en ferait pas le tour ;
Mille cités et plus tiendraient en ce contour ;
Et mon cœur n’y tient pas, et par delà s’élance.
Où va-t-il ? où va-t-il ? Oh ! nommez-moi le lieu !
Il s’en va sur la route à l’étoile tracée ;
Il s’en va dans l’espace où vole la pensée ;
Il s’en va près de l’ange, il s’en va près de Dieu !…
La mort ne sépare que les corps, elle ne peut désunir les âmes.
C’est ce que je disais naguère près d’un cercueil, c’est ce que je dis
encore, car ma douleur n’a pas changé, pas plus que mes
espérances, ces espérances immortelles qui seules soutiennent
mon cœur et me rattachent au sien, trait d’union entre le ciel et la
terre, entre lui et moi. Mon ami, mon cher Maurice ! par là nous
sommes ensemble, et ma vie revient à ta vie comme autrefois, à peu
de chose près [34] .
[34] Quatre feuillets enlevés.