Prioritisation of indicators in SDG 4: Voluntary national reviews as a tool of soft governance

Voluntary national reviews (VNRs) are an important component of the follow-up and review process for the Sustainable Development Goals (SDGs). Presented by countries at the annual United Nations High-Level Political Forum on Sustainable Development (HLPF), VNRs detail a country’s self-reported progress to peers. This voluntary process has been criticised for its weak accountability. Global governance literature, however, points to an increase in these “soft” governance mechanisms as well as the potential strategic benefits of this approach. Using a mix of logistic regression and document analysis, this study examined VNRs as a soft governance tool and a reflection of the governance mechanism of the SDGs. The authors examined the scope and content of VNR submissions from 2016 to 2022, with a deeper review of 2022, which focused on the global goal for education (SDG 4). Three types of soft governance – governing by goal-setting, by numbers and by morality – were used as lenses to make sense of the results. The authors’ findings demonstrate the ability of soft governance tools to bring together diverse actors around a broad set of goals, and how the power of numbers can influence which indicators countries report on in their VNR.