The complementarity of internal and external evaluation 2024: developments and next steps

Chapter 13 - The complementarity of internal and external evaluation 2024: developments and next steps (PDF)

In 2023-2024, the Inspectorate established a team to look at how the complementarity of internal and external evaluation could be enhanced. This chapter shares the key themes arising from stakeholder meetings held in 2024 and early 2025[1]. It outlines stakeholders’ views in relation to the challenges of school self-evaluation (SSE) and their insights about enhancing the complementarity of internal and external evaluation. It also describes current development work, including the introduction of Feabhsú, a new approach to aspects of school improvement.

SSE is a process where schools reflect on their own quality and practice, gather evidence and plan for improvement. Research tells us that when teachers examine their own individual and collective practice in a constructive and structured way, they can bring about significant improvement in the learning of students [2]. Over the years, stakeholders have highlighted a need to enhance the ‘self’ in self-evaluation and to give schools greater autonomy to identify priorities and actions for improvement [3]. It is recognised, too, that not all schools have progressed at a similar pace on their school self-evaluation journey, and some schools will require more advisory support [4]. Mc Namara et al. (2022) [5] argue that a debate about the direction of SSE in Ireland is needed in light of the inconsistent ways in which schools have engaged in the process.

With the third cycle of SSE nearing completion in 2026, the Inspectorate has taken the opportunity to engage with stakeholders, gather diverse perspectives, ensure alignment with national educational priorities and co-create a shared vision for the next phase of SSE development.

[1] Chapter 11, Reflections on a paradigm for school improvement: the potential complementarity of internal and external evaluation in Inspectorate Report (2021–2023) and Thematic Review provides further background. Available at: https://www.gov.ie/en/department-of-education/publications/the-department-of-education-inspectorate-report-2021-2023-and-thematic-review-pdf-version

[2] Hislop, H. (2017). A co-professional approach to inspection for accountability and improvement: progress and prospects in the Irish context. The Irish Journal of Education / Iris Eireannach an Oideachais, 42, 3–27. Available at: https://www.jstor.org/stable/26607238; 43; Coolahan, J., Drudy, S., Hogan, P., Hyland, A. and McGuiness, S. (2017). Towards a Better Future: A Review of the Irish School System. Cork: Irish Primary Principals’ Network and the National Association of Principals and Deputy Principals. p.141

[3] Available at: https://www.gov.ie/en/department-of-education/publications/reflections-on-a-paradigm-for-school-improvement-the-potential-complementarity-of-internal-and-external-evaluation/#complementarity-of-internal-and-external-evaluation

[4] Available at: https://www.gov.ie/en/department-of-education/services/school-self-evaluation-sse/

[5] McNamara, G., Skerritt, C., O’Hara, J., O’Brien, S. and Brown, M. (2021). For improvement, accountability, or the economy? Reflecting on the purpose(s) of school self-evaluation in Ireland. Journal of Educational Administration and History, 54(2), pp.158–173. https://doi.org/10.1080/00220620.2021.1985439

SSE stakeholder consultation process

In 2024, the Inspectorate facilitated several focus group discussions with key partners and stakeholders to further explore the SSE process [6]. These sessions included representatives from patron and management bodies, school principals, leadership team members, support services and colleagues from the three main teacher unions at primary and post-primary level. The insights shared by participants helped in sharpening and strengthening the development of a reimagined SSE process. Students and parents will be included in the next stage of consultations.

Five key themes emerged from the consultation process:

• The mandatory implementation of SSE and the fostering of a collaborative culture
• The six-step process as a means of engaging with self-evaluation
• The familiarity of schools in the DEIS programme with the SSE process
• The alignment between the SSE process and enhanced school autonomy
• The advisory role of the Inspectorate and other supports.

The mandatory implementation of SSE and the fostering of a collaborative culture

Participants acknowledged that the SSE process has contributed significantly to fostering a culture of reflective practice and a capacity to self-evaluate and work collaboratively. As a whole-school initiative, SSE promotes inclusivity by engaging all members of the school community and empowering staff to lead pedagogical innovation and change. School leaders noted a marked increase in teachers’ willingness to share effective teaching and learning strategies with colleagues. They also welcomed the practical application of agreed initiatives into classroom practice and the cross-curricular focus of SSE.

Overall, participants expressed the view that the formal requirement to engage in SSE has played a pivotal role in embedding the process within school culture. The core principles of self-evaluation in the context of school improvement are now widely understood and accepted. This perspective aligns with the Inspectorate’s position that internal and external evaluations are not only complementary but, when integrated effectively, can drive more sustainable and long-term school improvement.

The familiarity of schools in the DEIS programme with the SSE process

During the consultations, school leaders indicated that DEIS schools were particularly well positioned to engage with the SSE process, given their longstanding involvement in action planning for improvement since 2008. They noted that, while a small number of schools still faced challenges in aligning staff understanding—specifically in recognising the DEIS plan as the school’s SSE or school improvement plan (SIP)—the overall integration of SSE within the DEIS framework appeared to work effectively.

Alignment between the SSE process and enhanced school autonomy

SSE was seen as supporting autonomy within the staff team to respond, as needed, to emerging school trends and feedback from stakeholders. There was broad agreement among stakeholders that schools liked the autonomy of deciding their own priorities and would welcome even more autonomy. A few participants stated that direction from the department about national SSE priorities had constrained school autonomy, while others welcomed the direction provided.

Participants mentioned that SSE is more likely to be successful if the unique context of each school is taken into consideration when gathering evidence, identifying priorities and setting targets. Opportunities to develop teacher leadership, agency and autonomy had been created when teachers led initiatives and provided updates on progress at staff meetings. SSE was seen as supporting realistic autonomy within the staff team to respond, as needed, to emerging school trends and feedback from stakeholders.

[6] In 2022, the Inspectorate undertook a survey of school principals and teachers about SSE. The findings, largely positive, are available at https://youtu.be/_161rB-SC1c

The advisory role of the Inspectorate and other supports

There was broad agreement about the importance of external support for SSE. Oide [7] advisory visits were recognised as important in helping schools to identify priorities and design meaningful improvement plans, and advisory visits from the Inspectorate were seen also as an important resource for schools. Participants viewed the support provided by Oide and the Inspectorate as complementary and advised that advisory visits should continue.

The partners expressed the view that there are a large number of new school principals in the system and they may need support in building further competence in the SSE process. The development of communities of practice and sharing of school improvement and SSE practices, through initiatives such as the Learning Schools Project, [8] were seen as supportive opportunities. Participants expressed a strong desire for more opportunities to engage in these types of peer-sharing and learning events.

School leaders expressed confidence in the quality of published guidance and support documentation provided by the department, describing it as effective in supporting school improvement. The documentation and guidance, such as Looking at Our School, help staff to turn ambitious goals into practical and meaningful strategies that have potential to enhance teaching and learning in the classroom. School leaders also recognised a strong alignment between national policy documents and the SSE process, particularly in how Looking at Our School defines and distinguishes effective and highly effective teaching, learning, leadership and management practices.

Challenges in implementing SSE in schools currently

School leaders identified several challenges in implementing SSE effectively in their school communities [9]. Notably, some of the successes mentioned above were connected to specific challenges. The five main challenges were:

• recognising the added value of SSE
• time to engage with the SSE process
• managing data, gathering evidence, target setting and paperwork
• competing priorities
• involving the school community

[7] See Home - Oide Available at: https://oide.ie/

[8] The Learning School Project, funded by Teacher Education Section of the department, was an action research project undertaken by education support centres in Cork, West Cork, Kerry, Limerick and Clare, with the goal to:

• develop an increased awareness of what constitutes a learning school
• support school-based activities promoting the on-going development of the learning school
• enhance the capacity of individual teachers to contribute to the learning school, and
• nurture teacher leadership in schools.

[9] Similar challenges were identified in the 2022 survey of principals and teachers about their experience of SSE. See https://youtu.be/_161rB-SC1c

Recognising the added value of SSE

School principals found it challenging to convince a significant minority of teachers about the rationale for engaging with the SSE process. They felt that some teachers viewed SSE as a formulaic task—something that had to be done—making it feel more like a compliance exercise than a meaningful tool for enhancing teaching and learning in the classroom. They noted a sense of initiative overload and staff fatigue, which translated into a lack of buy-in. While they believed that a school leader could drive SSE within a school, getting staff engagement was critical for success.

Time to engage with the SSE process

There was consensus that time for collaborative work was important in fostering staff ownership of SSE. In discussions, school context emerged as a critical factor. Several senior and middle school leaders reported limited opportunities to meet regularly. Some reported that SSE-related meetings often occur during lunch breaks or teachers’ personal time.

Participants also noted that the reallocation of Croke Park hours towards individual CPD [10] has reduced time significantly for collective SSE planning—a shift regarded as a substantial loss, given the value of SSE as a shared professional endeavour.

Managing data, gathering evidence, target setting and paperwork

Almost all participants noted a significant improvement over time in the type of evidence gathered as part of the SSE process. Many remembered a time when an excessive amount of data was gathered, which became difficult to manage and may not have been particularly useful for quality improvement purposes. In relation to surveys and focus groups, participants agreed that there is a need for more support and advice on how to frame questions and how to record, analyse and report on the data gathered.

School leaders highlighted challenges in analysing data and in formulating specific, measurable, realistic and timebound (SMART) targets that are both meaningful and realistic within their specific contexts. They acknowledged that not every target can be quantified and that more training is required to support schools in setting effective targets. They thought it was necessary to build the capacity of school leaders and teachers to identify evidence, gather and analyse data, set targets, and to monitor and report on progress.

Some participants felt that school leadership needed to be more realistic about the amount of work that can be completed in an SSE cycle and to plan for more appropriate timeframes to embed practices. It is essential to maintain focus on school improvement initiatives that extend beyond the completion of the SSE cycle and allow sufficient time for these strategic actions to become fully embedded. For example, one principal observed that “the three-year cycle is restrictive. Some targets may need five years to embed whereas others may need a shorter period.”

Competing priorities

Principals noted the difficulties of increasing workloads and the concurrent responsibilities of promoting SSE and supporting achievement of other school priorities. They suggested that more support is required to enable schools to see the connections between SSE and teaching and learning, and to demonstrate how SSE can be used meaningfully to enable the implementation of curricular reform in the primary and post-primary sectors.

Challenges relating to the delegation of responsibilities, staff turnover and changes to SSE leadership roles were also mentioned. At primary level and in smaller schools, principals often felt full responsibility for the leadership of SSE. In post-primary schools, participants felt that there was a need to empower subject co-ordinators to lead their subject departments. Participants considered that SSE was a particular challenge for recently established or developing schools, because the process needed to be established anew and could appear overwhelming.

Involving the school community

Despite the value school leaders placed on involving the school community, many primary and post-primary leaders reported significant challenges in engaging parents and students meaningfully in the SSE process. Achieving a high response rate from parents during surveys proved difficult. Additionally, some participants inquired about effective ways to include parents in the process and how best to share progress reports with the wider school community.

In discussing the role of the board of management in relation to SSE, some participants noted that agendas for board meetings were often extensive, making it difficult to allocate sufficient time for meaningful discussion about SSE and planning for school improvement. Additionally, some highlighted that the timing of school improvement plan (SIP) reporting—typically scheduled for the June board meeting—poses challenges, as it often coincides with the summer holiday period, leading to reduced focus and engagement levels.

Enhancing the complementarity of internal and external evaluation

A key element of the stakeholder engagement was to consider how internal and external evaluation could be enhanced. The stakeholder group considered how the Inspectorate might promote a sustainable school-improvement model that is collaborative and evidence-based and that connects internal and external evaluation more closely. Consultation participants advised that there was a need to:

• create a high-trust model and provide more autonomy for schools to determine their own improvement priorities
• keep the school-improvement model simple with a greater focus on teaching, learning and assessment
• provide advisory support for schools
• share best practice and facilitate collaboration with other schools
• promote whole-school collaboration and a sense of shared responsibility.

Feabhsú

The Inspectorate is developing its thinking and practice around how, in practical terms, high-quality education provision and education improvement can be supported. ‘Feabhsú’ is the term we are giving to how this is conceptualised. Feabhsú acknowledges that the education a school provides can be improved through meaningful, reciprocal engagement on issues of quality between those involved in external evaluation (the Inspectorate) and internal evaluation (schools).

Essentially, Feabhsú strives to combine internal and external evaluation processes and outcomes more efficiently and more effectively. It seeks to promote a sustainable school-improvement model that is collaborative and evidence based. The approach will take account of the factors identified by stakeholders. It will also be informed by international practice [11] and feedback from school communities where it is being trialled.

During a school evaluation, inspectors provide oral feedback to the school or setting highlighting strengths in educational provision and, where applicable, areas requiring improvement, and they provide a written a report based on their findings. The Feabhsú process enables school leadership to reflect on the inspection report and to prioritise relevant areas for improvement, rooted in the unique context of each school. Feabhsú aims to promote school agency and to strengthen the professional capacity of teachers to engage in meaningful, impactful school improvement initiatives with advisory support from the Inspectorate.

As part of the process, the inspector will undertake an advisory visit, or visits, to the school. During a visit, the inspector, school leaders and teachers discuss the actions and other areas for improvement identified by the school since the last inspection. The school’s target setting and monitoring of progress will be discussed, as well as how the outcomes for learners and the impact of interventions are monitored at school level. Consideration of further actions by the school or supports needed will form part of the discussion.

Feabhsú can enhance the relevance of external inspection findings by aligning them more closely with the school community’s development needs. It aims to promote greater responsibility among all members of staff and recognition of the value of bringing an external perspective through the use of external evaluations. Nevo (2001) reminds us that both systems of evaluation (internal and external) benefit from each other [12].

Feabhsú was trialled in thirteen schools (eight primary schools and five post-primary schools) in the first half of 2025. Each of the schools had a recent subject inspection or curriculum evaluation leading to a published report. The trial phase was viewed by participants as a very collaborative process, offering opportunities for school leaders, teachers, support staff and inspectors to work together.

Participants indicated that they experienced Feabhsú as empowering and developmental. School leaders and teachers saw it as a worthwhile opportunity to learn more about school improvement from the experience of inspectors. School leaders noted that the involvement of both the leadership team and other teachers, in the Feabhsú visit, worked well and this helped to foster shared ownership for improvement. The visit offered an opportunity to reflect on whole-school practices, particularly practices in relation to learning and teaching. They also noted that it gave them confidence in moving forward with their plans for school improvement.

[10] Review of Usage of Croke Park Hours – Amendment to Circular 0008/2011 Available at: https://circulars.gov.ie/pdf/circular/education/2014/43.pdf; Public Service Stability Agreement 2013 – 2016 (Haddington Road Agreement) - Teachers - Review of Usage of Croke Park Hours – Amendment to Circular 0025/2011 Available at: https://circulars.gov.ie/pdf/circular/education/2014/43.pdf

[11] The team engaged with inspectorate partners across Europe and beyond to see how they combined internal and external evaluation. The outcomes will be reported in the Inspectorate Report (2025) and Thematic Review.

[12] Nevo, D. (2001). ‘School evaluation: internal or external?’ Studies in Educational Evaluation, 27, pp. 95-106. http://lst-iiep.iiep-unesco.org/cgi bin/wwwi32.exe/[in=epidoc1.in]/?t2000=016690/ (100). 27. 10.1016/S0191-491X (01)00016-5.

In its work to strengthen the complementarity of internal and external evaluation in supporting school improvement, the Inspectorate will consider carefully the feedback received during consultations and build upon the positive partnerships established with schools and settings.

As Feabhsú evolves, it will aim to motivate, challenge and support schools as they implement sustainable school improvement processes based on their own identified needs and the recommendations of external evaluation. It will:

• provide targeted feedback on school improvement processes
• assist schools in interpreting and acting upon their evidence and data
• facilitate professional learning communities, at school level or across clusters of schools with similar needs

With Feabhsú, schools are trusted to set their own priorities, while still using information from external inspection reports and internal self-evaluation to guide them. Feabhsú offers an opportunity to address both system-wide education requirements and areas for improvement identified by the schools themselves. In this way, the initiative strives to bring internal and external priorities closer together in order to bring tangible benefits for children and young people in their learning experiences and outcomes. Further trials of Feabhsú are planned for 2025-2026.