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Introduction
In many countries, government policies explicitly address religious education
(Davis and Miroshnikova 2013). This is not new: for example, in England,
the 1870 legislation barred overtly denominational proselytising in state
schools, under the Cowper-Temple clause (Section 29, UK Government
1870), while in France the contested status of religious education was central
to the development of the constitutional principle of lacit in 1905
(Baubrot 2004). In both countries, its status was linked to the related but
not identical issue of religious organisations involvement in education.
More recently, these policy debates often centre on whether religious education should be a form of religious nurture or an impartial study of a range of
religions (Loobuyk and Franken 2011), but are still entwined with policy on
religious organisations in education (Kay 2002; Walford 2008).
This intersection of politics and religious education is not only
long-standing but highly charged; teachers, academics, religious leaders,
*Email: nigel.fancourt@education.ox.ac.uk
2014 Christian Education
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politicians, secular groups and the general public often have strong views.
Some place this debate within wider perspectives on religion and society,
notably secularisation (Weisse 2007; Gearon 2012). However, there are also
an increasing number of studies focusing on the mechanisms of policy processes in religious education, as a eld of enquiry rather than a eld of
debate (Skeie 2001, 238), showing how educational policies are created,
interpreted and played out. For instance, Parker and Freathy (2011, 2012)
conducted an historical analysis of Birminghams 1974 Agreed Syllabus,
which initiated multi-religious approaches in England. Other examples
include Schreiners (2012) study of how European institutions developed
policies on religious education. Mayrl (2011) explored how teachers willingly adopted secular state policies in church schools in New South Wales.
It has also been applied to religious education across Europe (Fancourt
2013).
This paper analyses the changes in religious education policy in England
from 1994 onwards for state-maintained schools without any religious afliation. Schools with a religious afliation (faith schools) set their own religious education (Walford 2000; Jackson 2004). England is an important
case study because it shifted from a Christian nurture model towards the
impartial study of religions before many other countries (Copley 2005;
Gearon 2013), so is illustrative of potential issues. Further, English policy
formalised a distinction between learning about religion and learning from
religion, which has been borrowed (Philips and Ochs 2004) by, for example, Finland (Hella and Wright 2009) and Canada (Ouellett 2007), and
supra-national organisations (Keast 2007; Organisation for Security and
Co-operation in Europe [OSCE] 2007). It is sometimes contrasted with
teaching into religion (Loobuyk and Franken 2011, 173). The borrowers
however may be unaware of the policys development.
Current policy denitions
The current distinction in policy is set out in a non-statutory framework [the
Framework] (Qualications and Curriculum Authority [QCA] 2004).
Learning about religion is dened as:
Enquiry into, and investigation of, the nature of religion, its beliefs, teachings
and ways of life, sources, practices and forms of expression. It includes the
skills of interpretation, analysis and explanation. Pupils learn to communicate
their knowledge and understanding using specialist vocabulary. It also
includes identifying and developing an understanding of ultimate questions
and ethical issues. [It] covers pupils knowledge and understanding of
individual religions and how they relate to each other as well as the study of
the nature and characteristics of religion. (11)
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each key stage, later in the text, set out two new features, more akin to
Grimmitts formulations: pupils should have opportunities for enhancing
their own spiritual and moral development and developing positive
attitudes towards other people and their right to hold different beliefs
(SCAA 1994a, 13). Behind them is an assumption about the role of religious education in moral and spiritual development, which had become a
legal obligation. They were included here within attainment targets, but paradoxically in other policy documents were considered unassessable
(National Curriculum Council 1993b, 16). This ambiguity can be accounted
for in the context of text production, as different elements were welded
together to try to satisfy the divergent voices of inuence; however, different draftspersons resolved this differently, with unintended incoherence.
What happened in the context of practice is hard to judge precisely, particularly given the role of local authorities. The case for centralisation continued (OFSTED 1997), supported by the production of exemplication
material (QCA 1998). Nevertheless, some preferred older models, thus
South Gloucestershire based its syllabus on the FARE project (South
Gloucestershire County Council 2000). Two surveys of teachers aims provide insights (Astley et al. 1997; Francis et al. 1999). These highlighted a
generational difference with younger teachers who were more focused on its
place alongside the national curriculum, and older teachers who maintained
the confessional or neo-confessional aim of promoting a religious way of
life (183), suggesting that teachers did not automatically accept the thrust
of the new approach. Inconsistencies within the document also meant that it
was writerly. The ambiguity between religion and religions meant that religion might simply be the sum of the six religions identied, or something
more holistic (Hull 1995) Progressives could interpret it in Grimmitts sense,
neo-conservatives could point to the focus on differences between religions,
and neo-liberals could look to the use of National Curriculum terminology.
New labour neo-liberalism
In 2000, the QCA, SCAAs replacement, published guidance on assessment
in religious education (QCA 2000) (the Guidance). This followed the arrival of Blairs New Labour government in 1997, whose educational policies
were not a return to progressivism. They maintained many neo-liberal policies, notably combining a National Curriculum and assessment system with
quasi-markets, and detailed specication in literacy and numeracy (Whitty
2002, 128; see Kay 2002). The Guidance was avowedly neo-liberal: to
help improve consistency and effectiveness of assessment (QCA 2000, 4).
The 1994 denitions were unchanged, but an eight-level assessment scale
was set out, matching the revised National Curriculum. The criteria were
tightly specied for the eight levels, plus exceptional performance; indeed
it sub-divided them into three sub-sections for each attainment target, giving
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