11
Improving both quality and equity
Hong Kong, 21 November 2003Andreas Schleicher
Head, Indicators and Analysis DivisionOECD
OECD Programme for International Student Assessment (PISA)
Insights from PISA
22 Improving both quality and equity
1.1. Why we need to worry The significance of educational
outcomes for individuals and societies2.2. Where we are today
What PISA shows about student performance and the social distribution of learning opportunities in OECD countries
3.3. Where we can be What the best performing countries show
can be achieved
4.4. How we can get there Levers for policy that emerge from
international comparisons
33
The significance of educational outcomes.
Changing contexts for education systems.
44 Changing contexts for education
Knowledge workers the only fast growing share of the workforce By 2002 - about the time when school
reforms put in place today will begin to show effects in labour markets...
...Manufacturing output in OECD area is likely to double…
…Manufacturing employment is likely to shrink to 10% of the workforce
Knowledge as the key economic and social resource
– and the only scarce one
55Traditional jobs are changing
too…Literacy skills in the manufacturing sector
170 210 255 470 663 710 990 1175 1253 12131727
4526
8012
13866
202 130
0
2000
4000
6000
8000
10000
12000
14000
16000
1.2l
1.3l
Oly
mpi
a 1.
3
Oly
mpi
a 1.
5
Oly
mpi
a 47
Oly
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a 50
Oly
mpi
a 53
Rec
ord P
1
Rec
ord P
2
Rec
ord A
Rec
ord B
Rec
ord C
Rec
ord D
Rec
ord E
Om
ega
A
Om
ega
B
Pages
1933 1951 1966 1983 1998Sou
rce :
Georg
Sp
ött
l, 2
00
2
Year
Total number of pages of repair manuals for Opel
cars
from 1933 to 1998
66 Unique opportunities Unlimited upward mobility…
Knowledge changes rapidly Everybody starts from ignorance
– Knowledge differs from traditional means of production in that it cannot be inherited or bequeathed
Knowledge is “public”– Knowledge has to be put in a form in which it can
be taught and is therefore universally accessible Every impediment to mobility…
…is perceived as a form of discrimination
… if our education systems deliver on their promises
77
0
10
20
30
40
50
60
70
80
90
100U
nite
d S
tate
s
Ger
man
y
Can
ada
Jap
an
Uni
ted K
ingd
om
Fin
land
OECD
ave
rage
Fra
nce
Kor
ea
Arg
enti
na
Chile
Peru
Ital
y
Spa
in
Bra
zil
Mex
ico
Indon
esia
Thai
land
55-64 45-54 35-44 25-34
Rise in baseline qualifications over one generation
Proportion of the population with completed upper secondary education by age group (37 countries)
10
14
4
11
1
24
31
26
37
34
9
1
Data for Hong Kong unavailable
88
Where we are today.
What PISA shows about student performance and the social distribution of learning opportunities in OECD countries.
99PISA - The OECD Programme for
International Student Assessment
A regular assessment of the yield of education (2000, 2003, 2006, 2009,…)
including and beyond the curriculum Comparable skill measures
that can guide policy decisions Insights into the mix of factors which
contribute to the development of knowledge and skills
and how these factors operate similarly or differently across countries
A strong substantive and cross-culturalcore for defining performance targets
1010PISA - The OECD Programme for
International Student Assessment
The most comprehensive international assessment to date
Geographic and economic coverage– 340,000 students randomly sampled– All 30 OECD countries plus a growing number of
non-OECD countries Subject matter coverage
– Reading, Mathematics, Science– Cross-curricular competencies
Variety of task formats Depths
– A total of 7 hours of assessment material
1111Three broad categories of
key competenciesUsing “tools”
interactively to engage with the
world
Acting autonomously
Interacting in diverse groups
e.g.
Using language, symbols and texts
Interacting with informationCapitalising on the potential
of technologies
e.g.
Relating well to othersCo-operating, working in
teamsManaging and resolving
conflicts
e.g.
Acting within the bigger picture
Forming and conducting life plans
Taking responsibility and understanding rights and
limits
To analyse, compare, contrast, and evaluate
To think imaginatively
To apply knowledge in real-life situations
To communicate thoughts and ideas effectively
PISA 2000: A new concept of literacyAccessing, managing, integrating
and evaluating written information in order to develop ones knowledge and potential,
and to participate in, and contribute to, society
1212Using “tools”
interactively to engage with the
world
Acting autonomously
Interacting in diverse groups
e.g.
Using language, symbols and texts
Interacting with informationCapitalising on the potential
of technologies
e.g.
Relating well to othersCo-operating, working in
teamsManaging and resolving
conflicts
e.g.
Acting within the bigger picture
Forming and conducting life plans
Taking responsibility and understanding rights and
limits
To analyse, compare, contrast, and evaluate
To think imaginatively
To apply knowledge in real-life situations
To communicate thoughts and ideas effectively
Reading literacy
Using, interpreting and reflecting on written material
1313Using “tools”
interactively to engage with the
world
Acting autonomously
Interacting in diverse groups
e.g.
Using language, symbols and texts
Interacting with informationCapitalising on the potential
of technologies
e.g.
Relating well to othersCo-operating, working in
teamsManaging and resolving
conflicts
e.g.
Acting within the bigger picture
Forming and conducting life plans
Taking responsibility and understanding rights and
limits
To analyse, compare, contrast, and evaluate
To think imaginatively
To apply knowledge in real-life situations
To communicate thoughts and ideas effectively
Mathematical literacyEmphasis is on mathematical knowledge put into functional use in a multitude of different
situations in varied, reflective and insight-based ways
1414Using “tools”
interactively to engage with the
world
Acting autonomously
Interacting in diverse groups
e.g.
Using language, symbols and texts
Interacting with informationCapitalising on the potential
of technologies
e.g.
Relating well to othersCo-operating, working in
teamsManaging and resolving
conflicts
e.g.
Acting within the bigger picture
Forming and conducting life plans
Taking responsibility and understanding rights and
limits
To analyse, compare, contrast, and evaluate
To think imaginatively
To apply knowledge in real-life situations
To communicate thoughts and ideas effectively
Scientific literacyUsing scientific knowledge, identifying scientific
questions, and drawing evidence-based conclusions to understand and make decisions about the natural
world
1515Using “tools”
interactively to engage with the
world
Acting autonomously
Interacting in diverse groups
Under development:PISA assessment of
– Problem-solving skills
PISA self-reports on:– Dispositions to learning– Learning strategies– Engagement with school
1616Using “tools”
interactively to engage with the
world
Acting autonomously
Interacting in diverse groups
Not yet developed
171710%
22%
12%
6%
22%
29%
OECD Average
Levels of reading literacy
Level 5
Level 4
Level 3
Level 2
Level 1
Below Level 1
Reading Literacy Level 5:– Retrieving information
– Locate and sequence/combine multiple pieces of deeply embedded information, some of which may be outside text
– Infer which information on text is relevant to the task– Deal with highly plausible competing information
– Interpreting texts– Construe the meaning of nuanced language– Demonstrate full and detailed understanding of a text
– Reflection and evaluation– Critically evaluate or hypothesise, drawing on specialised knowledge– Deal with concepts that are contrary to expectations– Draw on deep understanding of long and complex texts
Hong Kong: 10%Germany: 9%
USA: 12%Finland: 19%
Reading Literacy Level 1:– Retrieving information
– Locate one or more independent pieces of explicitly stated information, – typically meeting a single criterion – With little or no competing information in the text
– Interpreting texts– Recognise the main theme or author’s purpose in a text about a familiar topic
– Reflection and evaluation– Make a simple connection between information in the text and common
knowledge
Hong Kong: 7%Germany: 13%
USA: 12%
Below Level 1:– Many of these students have technically
learned to read……
but they can not use reading for learning
Hong Kong: 3%France: 4%
Germany: 10%USA: 6%
Overall, Hong Kong has few low-performers
But the risk for boys in Hong Kong to perform poorly is 3 times as high as for girls !
– Percentages at Levels 1 and below– Boys: 12%– Girls: 4%
1818
1910 14 16
9 125 9
1
32
31 27 24
24 22
21 2019
6
29
33 30 2831 27
33 31 27
19
1417 18 20
22 21 26 26 22
30
5 7 8 9 11 12 12 1413
28
2 3 3 4 4 6 4 510
16
40%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Fin
land
Hon
g Kon
g
Irel
and
Uni
ted_
Kin
gdom
Fra
nce
Uni
ted_
Sta
tes
Spa
in
Ital
y
Ger
man
y
Mex
ico
Percentage of students at each of the proficiency levels in reading literacy
Level 2
Level 1
Below Level 1
1 65-7
1511-16
2119-24
2221-25
53-9
87-9
1610-20
34
Level 5
Level 4
Level 3
1917-21
1919
-30
-10
10
30
50
70
90
110
130
150
170Ger
man
y
Ital
y
Hon
g Kon
g-Chi
na
Jap
an
Bra
zil
Uni
ted
Sta
tes
Rus
sian
Fed
erat
ion
Uni
ted
Kin
gdom
Indo
nesi
a
Aus
tral
ia
Tha
iland
Kor
ea
Can
ada
Fin
land
Swed
en
Variation in reading literacy performance
10
132
622
237
35
28
16
7421
89
2020
-100
-80
-60
-40
-20
0
20
40
60
80
100
Ger
man
y
Ital
y
Hon
g Kon
g-Chi
na
Jap
an
Bra
zil
Uni
ted
Sta
tes
Rus
sian
Fed
erat
ion
Uni
ted
Kin
gdom
Indo
nesi
a
Aus
tral
ia
Tha
iland
Kor
ea
Can
ada
Fin
land
Swed
en
Variation in reading literacy performance
10
132
622
237
35
28
16
7421
89
2121
-100
-80
-60
-40
-20
0
20
40
60
80
100
Ger
man
y
Ital
y
Hon
g Kon
g-Chi
na
Jap
an
Bra
zil
Uni
ted
Sta
tes
Rus
sian
Fed
erat
ion
Uni
ted
Kin
gdom
Indo
nesi
a
Aus
tral
ia
Tha
iland
Kor
ea
Can
ada
Fin
land
Swed
en
Variation of performance
between schools
Variation of performance within
schools
Variation in reading literacy performance
10
132
622
237
35
28
16
7421
89
2222
Social Advantag
e
LowPISA Index of social
background
Social background is a powerful factorinfluencing student performance
(Parental occupation, wealth, cultural resources, parental education, family structure, immigrant status)
But poor performance does not automatically follow
High performanc
e
Stu
dent
perf
orm
ance
in P
ISA
Social Background and Student Performance
2323
350
400
450
500
550
600
-2.5 -2 -1.5 -1 -0.5 0 0.5 1 1.5 2
Finland J apan Hong Kong UK
France US I taly Germany
High performanc
e
LowPISA Index of social
background
Stu
dent
perf
orm
ance
in P
ISA
Social Background and Student Performance
Social Advantag
e
2424
Where we can be.
What the best performing countries show can be achieved.
2525
Low Performan
ce
HighPerforman
ce
Low performance
Low social equity
High performance
Low social equity
Low performance
High social equity
High performance
High social equityLow
Social equityHigh
Social equity
Thailand
Peru
Liechtenstein
Russian Fed.Latvia
Israel
FYR MacedoniaIndonesia
Hong Kong- China/
Chile
Bulgaria
Albania
Brazil
Argentina
Finland
KoreaJ apan
Iceland
Canada
Ireland
Sweden
SpainI taly
PolandGreecePortugal
Luxembourg
Mexico
Denmark
AustriaNorway
New ZealandAustralia
United Kingdom
Belgium/FranceUnited States
SwitzerlandCzech Republik
HungaryGermany
325
350
375
400
425
450
475
500
525
550
-25 -20 -15 -10 -5 0 5 10 15 20 25
2626
Low Performan
ce
HighPerforman
ce
Low performance
Low social equity
High performance
Low social equity
Low performance
High social equity
High performance
High social equityLow
Social equityHigh
Social equity
Thailand
Peru
Liechtenstein
Russian Fed.
LatviaIsrael
FYR Macedonia
Indonesia
Hong Kong- China
Chile
Bulgaria
Albania
Brazil
Argentina
Finland
KoreaJ apan
Iceland
CanadaIreland
Sweden
SpainI taly
PolandGreece
Portugal
Luxembourg
Mexico
Denmark
AustriaNorway
New Zealand
AustraliaUnited Kingdom
BelgiumFranceUnited States
SwitzerlandCzech Republik
Hungary
Germany
325
350
375
400
425
450
475
500
525
550
-25 -20 -15 -10 -5 0 5 10 15 20 25
Quality and equity can be achieved together• ‘dumbing down’ is not an inevitable
consequence of the pursuit of equity
• ‘levelling up’ is achievable(e.g. Finland, Korea, Canada)
2727
Policy levers.
Overall findings
2828 Policy Levers Performance in reading
Students from advantaged backgrounds…… have a greater chance of coming to school more
engaged in reading and entering into a virtuous circle of increasing reading interest and improved reading performance
… but not all engaged students come from privileged homes…… and those from more modest backgrounds who
read regularly and feel positive about it are better readers than students with home advantages and weaker reading engagement
Schools can make a significant difference to bring students into the virtuous circle– Seeking mutual reinforcement of cognitive skills
and motivation, particularly for boys
2929 Policy Levers Student approaches to learning
The ability to manage one’s learning is both an important outcome of education and a contributor to student literacy skills at school– Learning strategies, motivation, self-related beliefs,
preferred learning styles Different aspects of students’ learning approaches
are closely related– Well-motivated and self-confident students tend to
invest in effective learning strategies and this contributes to their literacy skills
Immigrant students tend to be weaker performers… but they do not have weaker characteristics as learners
Boys and girls each have distinctive strengths and weaknesses as learners– Girls stronger in relation to motivation and self-
confidence in reading– Boys believing more than girls in their own efficacy as
learners and in their mathematical abilities
3030 Policy Levers Student engagement at school
An important outcome in itself– Disaffection at age 15 can potentially be a precursor to
the onset of more serious problems among vulnerable young people
– Engagement at age 15 is likely to influence students’ choices and educational pathways
The prevalence of disaffected students varies significantly across schools in each country– Only weak link to student’s social background – there
is thus scope for school policy/practice to engage students
– But strong link to school’s social background Students in schools with strong average
engagement tend to perform well– Engagement and performance seem to work
complementary– The school climate seems to make more of a difference
than resources For individual students, strong performance does not
necessarily ensure strong engagement at school– Relationship complex
3131
Policy levers.
Some characteristics shared by some strongly performing countries
Combining the empirical results obtained through PISA with qualitative information on the socio-cultural conditions and education policy
strategies.
3232 Sympathy doesn’t raise standards – aspiration does
In the countries studied National research teams report a strong
“culture of performance”– Which drives students, parents, teachers
and the educational administration to high performance standards
PISA shows that students perceived a high degree of teacher support– Which should not be simply equated with
“achievement press”
3333 Governance of the school system In the countries studied…
Decentralised decision-making is combined with devices to ensure a fair distribution of substantive educational opportunities
The provision of standards and curricula at national/subnational levels is combined with advanced evaluation systems
– That are implemented by professional agencies Process-oriented assessments and/or
centralised final examinations are complimented with individual reports and feed-back mechanisms on student learning progress
3434
Thailand
Peru
Liechtenstein
Russian Fed.
LatviaI srael
FYR Macedonia
I ndonesia
Hong Kong- China
Chile
Bulgaria
Albania
Brazil
Argentina
Finland
KoreaJ apan
I celand
CanadaI reland
Sweden
SpainI taly
PolandGreece
Portugal
Luxembourg
Mexico
Denmark
AustriaNorway
New Zealand
AustraliaUnited Kingdom
BelgiumFranceUnited States
SwitzerlandCzech Republik
Hungary
Germany
325
350
375
400
425
450
475
500
525
550
-25 -20 -15 -10 -5 0 5 10 15 20 25
Low Social equity
HighSocial equity
HighPerforman
ce
Low Performan
ce
E.g. Learning environment and course offering
High degree of autonomy
Low degree of autonomy
% Variance between schools
3535 Organisation of instruction In the countries studied…
Schools and teachers have explicit strategies and approaches for teaching heterogeneous groups of learners
– A high degree of individualised learning processes– Disparities related to socio-economic factors and
migration are recognised as major challenges Students are offered a variety of extra-
curricular activities Schools offer differentiated support
structures for students– E.g. school psychologists or career counsellors
Institutional differentiation is introduced, if at all, at later stages
– Integrated approaches also contributed to reducing the impact of students socio-economic background on outcomes
3636
Thailand
Peru
Liechtenstein
Russian Fed.
LatviaI srael
FYR Macedonia
I ndonesia
Hong Kong- China
Chile
Bulgaria
Albania
Brazil
Argentina
Finland
KoreaJ apan
I celand
CanadaI reland
Sweden
SpainI taly
PolandGreece
Portugal
Luxembourg
Mexico
Denmark
AustriaNorway
New Zealand
AustraliaUnited Kingdom
BelgiumFranceUnited States
SwitzerlandCzech Republik
Hungary
Germany
325
350
375
400
425
450
475
500
525
550
-25 -20 -15 -10 -5 0 5 10 15 20 25
Low Social equity
HighSocial equity
HighPerforman
ce
Low Performan
ce
Early selection and institutional stratification
Low degree of stratification
High degree of stratification
3737Support systems and professional teacher
development In the countries studied… Effective support systems are located at
individual school level or in specialised support institutions
Teacher training schemes are selective The training of pre-school personnel is
closely integrated with the professional development of teachers
Continuing professional development is a constitutive part of the system
Special attention is paid to the professional development of school management personnel
3838Summary of common characteristics
“hit and miss” Universal high standards
“Inputs” Outcomes
Bureaucratic Devolved responsibility
Look up Look outwards
Received wisdom Data and best practice
Uniformity Diversity
Prescription Informed profession
Evaluation to controlMotivating feedback and incentivising success and innovation
3939 One challenge – different approaches
The tradition of education systems
has been “knowledge poor”
The future of education systems needs to be
“knowledge rich”
National prescription
Professional judgement
Informed professional judgement, the teacher
as a “knowledge worker”
Informed prescription
Uninformed professional judgement
Uninformed prescription,
teachers implement curricula
4040 Further information
www.oecd.org www.pisa.oecd.org email: [email protected]
…and remember:
Without data, you are just another person with an opinion
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