Education Reforms Across OECD - Trends and Challenges
1. WENNER-GREN FOUNDATIONS &
THE ROYAL SWEDISH ACADEMY OF SCIENCES EDUCATION COMMITTEE
SYMPOSIUM RESEARCH AND POLICYMAKING IN EDUCATION
STOCKHOLM, 7-10 SEPTEMBER 2016
Education reforms across OECD:
Trends and challenges
1
Beatriz Pont
Senior Education Policy Analyst, OECD
@beatrizpont
Stockholm, 8 September 2016
2. Education Reforms Across OECD Countries: Trends and
Challenges
Presentation focus: How do countries respond to the
challenges of education policy making?
Review education reforms adopted across
OECD/Sweden
Analyse some of the main challenges
Elements for reform strategies to be effective
2
3. OECD countries have done more than 450 reforms in 7 years
(2008-2014)
3
US: Funding
grants
Chile:
Subsidies for
disadvantaged
schools
Reforms in
school leadership
and teachers
Australia, N. Zealand
Support to
students
from specific
populations
Japan: Setting
national priorities
for
education
Austria: New
middle
school reform
Canada:
National
commitment to
ECEC
UK: School
improvement
Portugal:
VET reforms
France/Nordics:
Teacher training
reform
With different strategies and options that search for educational improvement …
Italy: School
evaluation
reform
UK: Student
funding
Finland/Nordic:
Curriculum
reform
Mexico:
Constitutional
Reform
Germany: Investing
in the future
Source: OECD Education Policy Outlook 2015: Making Reforms Happen
4. Evaluation and
assessment
Disadvantaged students
and schools
Vocational education
and training
System-level
policies
Early childhood
education and care
Governance and
funding
School Improvement
Preparing students
for the futureEquity and quality
School leaders
Learning environments
Teachers
Tertiary
education Upper secondary
education
Student assessment
System level
School evaluation
System and institution
level funding
Stakeholder
engagement
Systemic prioritising
Challenge : to select policies that adapt to the context of each
education system and reach classrooms and students
5. Design of
reform
Implementatio
n of reform
Stakeholders
Funding
Context
Political
changes
Evaluation
Data for
improvement
Invest in
teachers/SL
Focus on
students
Challenge: to develop sustainable reforms that reach
classrooms in complex political environments
6. Equity and
Quality
Preparing
students for
the future
School
Improvement
Evaluation
and Assessmt
Governance
Funding
6
Policies that can contribute to improvement (OECD EPO)
Systems: how
to drive
improvement
Students:
Equity with
quality
Schools: focus
on improvement
Source: OECD Education Policy Outlook 2015: Making Reforms Happen
7. How are OECD countries using different policy options?
Trends in education policy OECD 2008-2014
0%
5%
10%
15%
20%
25%
30%
Preparing
Students for
the Future
School
Improvement
Equity and
Quality
Evaluation and
Assessment to
Improve
Student
Outcomes
Funding Governance
Distribution of policies adopted by policy lever, 2008-2014
8. Trends in OECD education policy 2008-2014: Teachers and
equity
Distribution of policies adopted by policy option, 2008-2014
8.8%
6.1%
1.9%
5.5%
8.1%
6.8%
8.0% 8.3%
2.8%
13.9%
3.1%
4.3% 4.0%
5.4%
2.9% 2.8%
7.3%
0%
2%
4%
6%
8%
10%
12%
14%
16%
Disadvantagedstudents
Investingearlyon
System-levelpoliciesthat
promoteorhinderequity
Qualityofsecondary
Qualityoftertiary
Transitionbetweenschool
andwork
Vocationaleducationand
training
Learningenvironments
Schoolleadership
Teachers
Schoolevaluation
Studentassessment
Systemevaluation
Educationpriorities
Organisationofdecision
makingprocess
Economicresourcesin
education
Useofresources
Equity and Quality Preparing Students for the
Future
School
Improvement
Evaluation and
Assessment to
Improve Student
Outcomes
Governance Funding
11. Students reports of teacher student relations and classrooms conduciveness to
learning, PISA 2012
-0.5
-0.4
-0.3
-0.2
-0.1
0
0.1
0.2
0.3
0.4
0.5
0.6
0.7
0.8
Mexico
Portugal
Canada
Iceland
UnitedStates
Chile
Turkey
UnitedKingdom
Denmark
Australia
Switzerland
NewZealand
Sweden
Israel
Ireland
OECDaverage
Spain
Hungary
Luxembourg
Estonia
Finland
Belgium
Korea
Greece
Norway
Austria
Netherlands
Italy
CzechRepublic
Japan
France
SlovakRepublic
Germany
Slovenia
Poland
Mean index
Index of teacher-student relations Index of disciplinary climate
Japan:
Course of
Study
UK: Curriculum for Excellence
(Scotland), and National
Literacy and Numeracy
(Wales, 2013)
Slovenia:
Updated curricula
(2012)
Denmark:
National Common Objectives (2009)
Finland:
Curriculum reform (2014)
Italy:
Curriculum guidelines
(2012)
Sweden:
New curriculum
(2011)
France: Redistribution
of learning time
Institutions: Making the content of learning more relevant
13. Central
Austria
Czech Republic
France
Greece
Hungary
Israel
Italy
Luxembourg
Portugal
Turkey
Central with local
Chile
Denmark
Estonia
Finland
Iceland
Japan
Korea
Norway
Poland
Slovak Republic
Slovenia
Sweden
Central with schools
Ireland
Netherlands
New Zealand
Shared central agreed with
regional
Mexico
Spain
Decentralised
Australia
Canada
Belgium
Germany
Switzerland
United Kingdom
United States
13
Countries define national strategies or general reforms
Systems: steering
Estonia:
LLL strategy 2014-2010
Denmark:
Denmark that stands together (2011); Folkeskole reform (2013)
Mexico:
Pact for Mexico (2012); Constitutional Reform (2012-13)
Canada:
Learn Canada 2020 (2008)
14. 14
….Countries are investing in education
Students Targeting policies to specific disadvantaged
groups and making VET and tertiary education
more relevant to labour market needs.
Institutions Institutions: Investing in improving the teaching
profession and curriculum as well as developing
more system evaluation & student assessments.
Systems System: Setting policy priorities with concrete
objectives or using funding strategically.
16. Are countries adopting coherent educational change
strategies ?
Coherence
Hargreaves &
Shirley 4 Way:
National
vision, prof.
collaboration,
engagement
Hattie: Politics
of collaborative
expertise and
student
progression
Fullan: Right
drivers
direction,
collaboration,
deep learning,
account.
17. Focusing on countries’ reforms, 2008-2014
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
GrandTotal
UK
Australia
Portugal
Slovenia
NewZealand
Turkey
Germany
France
Belgium
Canada
Finland
Netherlands
Spain
Austria
Ireland
Japan
Norway
Italy
CzechRep
Denmark
Poland
Estonia
Hungary
Korea
Sweden
Chile
Greece
Iceland
Mexico
Lux
SlovakRep
US
Governance Funding School Improvement Evaluation Assessment Preparing Students for Future Equity and Quality
18. 18
Messy reality of education reform
Policy
making
strategies
Drowned by multiple reforms and programmes.
Overlap of policies. Wide range of reform approaches.
Vision not clearly stated in many countries (or through
curriculum or assessments). Often tied to political
changes. Visible. Unclear implementation strategies.
Policies: Invest in core areas. School /classroom focus:
Countries appear to opt for equity strategies for
disadvantaged or school improvement; Teacher policy
a clear priority; Curriculum reform for XXI cent; Not
investing enough in school leadership .
Evaluation Only 10% report evaluation of policy or impact.
19. Australian reforms 2008-2014 (07,10, 13)
2008
Smarter Schools National Partnership for Low Socio-economic
Status School Communities
Closing the Gap: Indigenous Early Childhood Development
National Assessment Program – Literacy and Numeracy
National Partnership Agreements (Smart Schools)
Melbourne Declaration on Educational Goals for Young
Australians
2009
National Partnership on Youth Attainment and Transitions
VET targets
National targets for higher education
Australian Early Development Index
National Education Agreement
Investing in Early Years – National Early Childhood Development
Strategy
National Agreement for Skills and Workforce Development
National Partnership on Improving Teacher quality
2010
National Professional Standards for Teachers
Aboriginal and Torres Strait Islander Education Action Plan
Higher Education Participation and Partnerships Programme
My School website, My Skills and My University website
Review of Funding for Schooling
Australian Institute for Teaching and School Leadership
2011
Australian Professional Standards for Principals
Australian Qualifications Framework
Skills Quality Authority
Tertiary Education Quality and Standards Agency
2012
The National Quality Framework for Early Childhood Education
and Care (NQF)
National Foundation Skills Strategy for Adults
Advancing Quality in Higher Education
The Australian Workforce and Productivity Agency
My University website
National Partnership Agreement on Skills Reform
2013
National Partnership Agreement on Universal Access to Early
Childhood Education (replaced National Partnership on Early
Childhood Education - 2008)
Accreditation of Initial Teacher Education Programmes
Australian Charter for the Professional Learning of Teachers and
School Leaders
Australian Teacher Performance and Development Framework
New Colombo Plan
Education Act
2014
Teacher Education Ministerial Advisory Group
Upholding-Quality Indicators for Learning and Teaching
measures
Students First
20. Irish reforms 2008-2014 (07,11)
Delivering Equality of Opportunity in Schools: Action Plan for Educational Inclusion (DEIS) 2005
Traveller Education Strategy 2006
Survey on Lifeskills in Primary (2009) and Post-Primary Schools (2012) 2009
Project Maths 2010
Intercultural Education Strategy 2010
Springboard programme 2011
Professional development for teachers and school leaders 2011
Initial Teacher Education Criteria and Guidelines for Programme Providers 2011
Higher education reforms 2011
National Strategy to Improve Literacy and Numeracy among Children and Young People 2011-20 2011
Increase in reading instruction 2011
National Strategy for Higher Education to 2030 2011
ICT Action Plan 2012
Standardised assessment in literacy and numeracy 2012
School Self Evaluation: Guidelines for Primary Schools 2012
School Self-Evaluation: Guidelines for Post-Primary Schools 2012
Investing in education infrastructure 2012
Third Level Bursary Scheme – scholarship scheme 2012
Action Plan for Jobs 2012
Procedures for Induction and Procedures and Criteria for Probation 2013
Education and Training Boards Act 2013
SOLAS – New National Education and Training Authority 2013
21. 21
Sweden: 2011 reforms
New grading scale
Upper
secondary
reform
National tests
Support for minority
language learning
Training schools Teacher education
reform
Selected reforms to shift decline in performance
Curriculum
reform
But no consistency and coherence in reform efforts
22. Challenges
1. Need to raise expectations of student performance
and develop learning environments that are conducive
to learning for all students and address high variability
across system
2. Build the capacity of the teaching profession to
improve teaching and learning
3. Strenghten accountability and gear evaluation and
assessment arrangements to focus on continuous
improvement
4. Steer policy and focus on improvement to adapt to
current governance structure.
Strengths
1. Public commitment to education and to
equity is high
2. Recognition of the need for change and
general support for recent reforms (e.g.
curriculum)
3. Efforts to develop teachers underway (ITE,
i.e. first teachers and first subject teachers)
4. Emerging assessment and evaluation culture
5. Decentralisation and autonomy can lead to
examples of local good practice
Swedish system strengths and challenges
OECD
23. • Strengthen
school
evaluation
• Monitoring
framework
• Steer policy
(objectives) and
accountability
focused on
improvements
• Build capacity
for teaching
and learning
through a long
term hr
strategy
• Establish
conditions that
promote
quality w/
equity across
schools
Equity and
quality
Schools:
the
education
profession
Evaluation
and
assessment
Steering
and
account-
ability
23
Sweden: policy options for improvement
Cohere
nce
24. 24
24
Norway
Wales
Sweden
Reality of policy making/reform
Mexico
Time…changes in government…need for results….highly
political…need more capacity…uncertain…ever
changing….complex implementation strategies…need to
be adapted to context
26. To conclude
There is no one model for success. Each education system can reach
results combining policies based on evidence and implementation
processes adapted to the context and concrete challenge. Key to
focus on schools and students; investment in capacity building and
engagement of stakeholders.
An international overview: can provide elements, principles and
support for education reform.
28. Set high expectations for all students building on the existing
curriculum.
Consolidate support to disadvantaged groups.
Review school funding to ensure quality learning
opportunities for all students.
Revise school choice arrangements to ensure quality with
equity.
Policy actions:
Recommendation 1: Promote quality with equity
29. Policy actions:
Recommendation 2: Build a high quality teaching
profession
Create a publicly-funded National Institute of Teacher and
School Leader Quality.
Review the number and quality of existing teacher education
providers.
Improve the attractiveness of the teaching and school
leadership profession.
30. Policy actions:
Recommendation 3: Steer policy and
accountability focused on improvement
Together with key stakeholders define a set of ambitious
education priorities.
Develop a comprehensive national school improvement
strategy.
Strengthen school self-evaluation and planning through an
agreed set of indicators.
Strengthen the School Inspectorate to help shift a culture of
administrative compliance to responsibility for improvement.
31. Issues for further research…
Link between education and adult skills. PIAAC data shows
high adult literacy skills.
Beyond basic literacy and numeracy: Strong skills in civic
engagement and citizenship and in english as a foreign
language.
Link to economic growth and competitiveness: will it remain
highly competitive despite educational decline?
Use of ICT: among most connected and innovative societies –
strong gap with schools use of ICT.
Notas del editor
We are going to be reviewing the main education context, situation and challenges so that throughout the course we can review them and provide responses:
The aim is that you, as future policy makers in different national and international agencies, institutions, ministries, NGOs have the knowledge and skills to respond.
The recovery from the financial crisis has been slow and national governments are working hard to tackle unemployment, address inequality and promote competitiveness. Increasingly they are turning to education in seeking to restore long-term and inclusive economic growth.
Discussion on the classification of policies for the trends section
Across OECD countries, a number of factors have contributed to raise the importance of education policy and of developing the evidence base to support effective reforms. As the economic crisis continues to push policy makers to allocate scarce resources in an effective manner, policy makers need to have the most up to date and evidence based analysis to assist them in providing education systems that are performing as well as possible.
The starting point is the increased focus on raising student outcomes across countries. “Skills transform lives and drive economies…….and skills have become the global currency of 21st century economies”. Skills affect peoples’ lives and the well being of nations not only in terms of economic growth and labour market outcomes, but also in terms of social and individual wellbeing (OECD, 2012c). And education is one of the key levers for raising knowledge and skills of our young populations. Ensuring that education and training are of high quality, and that education systems are equitable for all are key levers for improvement (OECD, 2012d).
With more information, there is also a growing body of evidence that agrees on the different factors that contribute to education improvement. A number of international reports have reviewed the factors that contribute to quality education (OECD, Hattie, 2009; Fullan, 2010; Levin, 2008, 2010; Heargreaves and Shirley, 2009; Mourshed et al, 2010). While each of these reports adds its own specific focus to the quest for what make good systems perform as they do, many of them agree on the common core policy levers: teaching and teachers, high standards for all students, the wise use of data to follow student progress, capacity building of those engaged in the education process, the key role of school leadership, supporting disadvantaged students and schools and sound policy making.
Many of these reports focus on high performing school systems or the analysis of the variables that make a difference in improving school outcomes. They propose ways to motivate education systems towards high performance, and highlight the importance of taking into account the specificities of governance and context to ensure success. But the evidence base is still ad hoc, and there is no systematic and comparative analysis of education policy trends.
In addition, much evidence highlights the importance of contextual factors to the definition of policies and their implementation. The political or economic situation and the institutional settings of each country and its education system have a strong influence on the way policies are introduced and sustained. This implies that every policy reform can be different because of the system’s political structure, social, cultural and economic context. Reforms follow different channels in different political contexts: federal systems will have different dynamics than majoritarian or other parliamentary models (OECD, 2010g).
In fact, education systems extend from local schools and independent universities to national ministries in capitals. The responsibilities of institutions and different levels of government vary from country to country, as does the relative importance and independence of non-public providers. Policy making needs to a) be aligned to the governance structure and b) take into account the respective responsibilities of different actors (Fazekas and Burns, 2012). Federal systems such as Austria, Australia, Canada, Germany or Switzerland may look for different options to steer the system, as states or provinces have responsibility for delivering education, and therefore require different types of policies or institutional arrangements for their education systems to progress. Because context is key in the process of policy design and implementation, there is no assurance that a specific policy from one country would have similar results in another: results may vary from one education system to another.
The Education Policy Outlook series will review how countries respond to their own challenges based on their current realities and context. The following pages present the education policy highlights for four OECD countries to review similarities and differences. They provide food for thought and show that among high and low performers, many share similar challenges but respond differently.
Equity and quality: Eliminate system level policies that hinder equity and support disadvantaged students and schools.
Preparing students for the future: Improve skills up to tertiary and ensure successful transitions to the labour market.
School improvement: Strengthen the teaching and school leadership profession and develop positive learning environments.
Evaluation and assessment: Develop an integrated evaluation and assessment framework putting students at the center.
Governing effectively: Define priorities, ensure effective planning and delivery of policies, enhance local capacity to deliver.
Funding: Increase efficiency and effectiveness of funding systems.
Context: Between 2007 and 2010, the average relative income poverty in OECD countries (i.e. the share of people living with less than half the median income of their country annually) rose from 12.8% to 13.4% among children (0-18) (OECD, 2014b).
On average in OECD countries, students from low socio-economic backgrounds tend to have a greater probability of being low performers in mathematics (2.15), as do students from immigrant backgrounds (1.71) (Figure 2.3). Across OECD countries, students’ background accounts for 14.8% of the variance in mathematics performance of 15-year-olds, according to the PISA index of economic, social and cultural status, with variations that range from 7.4% in Norway to 24.6% in the Slovak Republic (2012) (Chapter 1, Figure 1.3). Many education systems also struggle to provide quality education to groups that are difficult to reach (e.g. Roma, Travellers, Aboriginals and Torres Strait Islander People, and Indigenous communities).
Figure 7.3
Figure 7.3
The use of evaluation and assessment is increasing across OECD countries. Evaluation and assessment tools seek to achieve three objectives: 1) measure student progress; 2) evaluate performance of the key factors that improve student outcomes; and 3) provide evidence-based feedback on how to move forward. According to PISA, student assessments have increasingly been used across OECD countries between 2003 and 2012 to monitor schools’ progress, as well as to identify aspects of the curriculum to be improved. Across the OECD, a majority of 15-year-old students are in schools where the principal reported that assessment results are used to inform parents on their child’s progress, to monitor schools’ progress and to identify areas of the curriculum to improve, although this varies by country.
In using data to guide improvement, countries face two challenges: balancing accountability and improvement, and ensuring the capacity of education stakeholders to develop and use evaluation.
Education policy-making environments have become increasingly complex, due to increased decentralisation and institutional autonomy, greater accountability, and reduced public budgets. Furthermore, educational contexts and institutional and policy approaches vary depending on each country’s historical development and political and institutional frameworks, as do distribution and approaches to education funding.
Steering education systems is a significant challenge for education policy makers.
Total volume of world trade increased tenfold: USD 334 billion in 1970 USD 3 910 billion in 2010
Social networking and changing interactions: 552 million people use Facebook every day
Migrants represent 11.5% of the population in the OECD
The recovery from the financial crisis has been slow and national governments are working hard to tackle unemployment, address inequality and promote competitiveness. Increasingly they are turning to education in seeking to restore long-term and inclusive economic growth.
The recovery from the financial crisis has been slow and national governments are working hard to tackle unemployment, address inequality and promote competitiveness. Increasingly they are turning to education in seeking to restore long-term and inclusive economic growth.
Challenge 6:
Lack of clarity and different views on education priorities at various levels of the system are diluting school improvement efforts and have led to ‘cherry-picking’ of priorities at the local level.
A range of reforms and policies implemented to reverse the decline in performance, but a lack of clear education priorities and a piece meal approach to reform hinders the alignment and coherence and potential impact of various reforms and policies.
Research shows there is no single model for success in implementation of education reforms. Factors such as the history of the country’s education system, institutional and political settings, existing policies, teachers’ beliefs and competences will influence how policies are interpreted and implemented in the local context.
Research evidence however also shows the benefits of developing a coherent education strategy that deals with various components of the system needing improvements, over time and in a focused manner (OECD, 2010; OECD, 2011)
The country has responded through a range of reforms that are aimed at reversing the negative trend in student performance and set the country on a trajectory towards educational excellence. However, more consistent and coherent efforts at the national and local level are required to redress the performance decline and make Swedish commitment to education excellence and equity a reality for schools and their students.
Equity and quality
Diverse student groups
Welsh medium
poverty
Too many incentives
Developing professional and social capital
Low status of the profession
Quality of new candidates
No stable CPD
Assessment and evaluation
Confusing and changing indicators
High stakes
Reliability?
Governance
Initiative overload
Too many structures around the same objectives
Equity and quality: Eliminate system level policies that hinder equity and support disadvantaged students and schools.
Preparing students for the future: Improve skills up to tertiary and ensure successful transitions to the labour market.
School improvement: Strengthen the teaching and school leadership profession and develop positive learning environments.
Evaluation and assessment: Develop an integrated evaluation and assessment framework putting students at the center.
Governing effectively: Define priorities, ensure effective planning and delivery of policies, enhance local capacity to deliver.
Funding: Increase efficiency and effectiveness of funding systems.
The recovery from the financial crisis has been slow and national governments are working hard to tackle unemployment, address inequality and promote competitiveness. Increasingly they are turning to education in seeking to restore long-term and inclusive economic growth.
Ensure that all students can reach higher levels of performance, by raising and clarifying expectations building on the curriculum, introducing early identification and intervention of failing or at-risk students, and using formative assessment and support for more personalised learning to engage students.
Nationally, address systemic practices that can hamper equity by reviewing school and student funding mechanisms to ensure their consistency across municipalities, reviewing school choice arrangements to reduce segregation of students, and including independent schools in municipal planning.
Ensure that all students can reach higher levels of performance, by raising and clarifying expectations building on the curriculum, introducing early identification and intervention of failing or at-risk students, and using formative assessment and support for more personalised learning to engage students.
Nationally, address systemic practices that can hamper equity by reviewing school and student funding mechanisms to ensure their consistency across municipalities, reviewing school choice arrangements to reduce segregation of students, and including independent schools in municipal planning.
Ensure that all students can reach higher levels of performance, by raising and clarifying expectations building on the curriculum, introducing early identification and intervention of failing or at-risk students, and using formative assessment and support for more personalised learning to engage students.
Nationally, address systemic practices that can hamper equity by reviewing school and student funding mechanisms to ensure their consistency across municipalities, reviewing school choice arrangements to reduce segregation of students, and including independent schools in municipal planning.