The Many Meanings of Quality Education: Politics of Targets and Indicators in SDG4
| Author | Elaine Unterhalter |
| DOI | http://doi.org/10.1111/1758-5899.12591 |
| Published date | 01 January 2019 |
| Date | 01 January 2019 |
The Many Meanings of Quality Education:
Politics of Targets and Indicators in SDG4
1
Elaine Unterhalter
University College London
Abstract
The formulation of the SDG education targets was more inclusive than the processes linked with the MDGs. Key constituencies
making representations through the Open Working Group and other consultative processes succeeded in formulating targets
that stressed inclusion, quality and equality in all phases of education. However, the development of the global indicators for
SDG4, has resulted in metrics that miss many of the values of the targets, most notably with regard to quality and free educa-
tion and substantive, not simply distributive, meanings of equality. The article analyses why some of these slippages took
place, and what potential there may be to mobilise for metrics that better depict the key tenets of the education goal and tar-
gets. The analysis thus considers ways forward for exploring measurement of the many meanings of quality and equalities in
education, reflecting on numbers as instruments that impose power and hierarchy, and the possibility of using reflections on
numbers and indicators for critical dialogue and an enhancement of participation, accountability, and work to change injus-
tices in education.
SDG4 expresses a vision to ‘Ensure inclusive and equitable
quality education and promote lifelong learning opportuni-
ties for all’(UN 2015). This represents a shift from the nar-
row focus on universal primary education in the MDG
framework, and goes considerably beyond the Dakar Plat-
form of Action for Education for All (EFA), which accompa-
nied the MDGs. The targets for SDG 4 mention expanding
opportunities across all phases of education –pre-primary,
primary, secondary, vocational, higher and adult education.
The targets broaden the scope of education as a global pro-
ject to encompass outcomes in literacy, numeracy, and
wider learning including global citizenship, sustainability
and gender equality. Education is noted in a number of
other SDG targets, including SDG3 on good health and well-
being, SDG 5 on gender equality and women’s empower-
ment, and SDG8 on decent work. While it is acknowledged
that in some SDGs the education components and connec-
tions could be better articulated (Nilsson et al., 2016), the
SDG framework has been read as offering something for
everyone working on education (UNESCO, 2016). This paper
discusses why, despite this laudably ambitious vision, there
is considerable slippage in meaning between the broad val-
ues outlined in the goal statement, detailed aspiration
expressed in the targets, and global indicators selected to
evaluate progress. King (2017) has termed this a loss associ-
ated with translation between levels. The paper considers
some of the reasons for this, based on an analysis of key
documents, and published accounts of meetings where the
discourses deployed illuminate some of the politics entailed.
The authority promoted for numbers, associated with count-
ing inputs or outputs, rather than indicators portraying
inclusion, equity and quality opportunities is documented.
This historical review is used to reflect on some of the
possibilities to develop a critically informed approach to
metrics for SDG4, enhancing discussion and practice to
develop indicators which more closely express the values of
the goal. The possibility is considered of mobilisations for
better measures. The discussion is organised in four parts.
Part 1 briefly summarises SDG4 and details the targets and
indicators. Part 2 outlines some of the politics entailed in
the framing of SDG4 and the selection of the targets and
indicators. Part 3 highlights some key omissions in the indi-
cators which illuminate features of distortion and difficulty
associated with numbers and some of the tensions that can
emerge between metrics that review performance and those
that may expand insight into complex concepts such as
equality and quality in education. Part 4 explores some of
the possibilities and limitations for mobilisations around
equity and inclusion linked to SDG indicators and what
potential and difficulties there may be to build critical dia-
logue around metrics that better depict the key tenets of
the education goal and targets.
SDG4: Goal, target and indicators
The SDG4 comprises seven targets that deal with quality
and equality for different phases of education. The first 3
targets are intended to ensure all children and adults access
to quality education from early years through primary and
secondary school to technical and university levels. Target
4.4 aims to enhance skills for youth and adults linked to
work. Target 4.5 is concerned with the distribution of educa-
tional access across a range of demographics noting needs
of people with disabilities, indigenous peoples and vulnera-
ble groups. Target 4.6 aims to ensure literacy and numeracy
for all youth and substantially reduce adult illiteracy. Target
Global Policy (2019) 10:Suppl.1 doi: 10.1111/1758-5899.12591 ©2019 The Authors. Global Policy published by Durham University and John Wiley & Sons Ltd.
This is an open access article under the terms of the Creative Commons Attribution License, which permits use,
distribution and reproduction in any medium, provided the original work is properly cited.
Global Policy Volume 10 . Supplement 1 . January 2019 39
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