The “extra” in extracurricular activities

by Marilyn Achiron
Editor, Directorate for Education

It may be tempting for school systems that are trying to reduce expenses to trim the “extras” from their budgets, including school-sponsored extracurricular activities. But are these activities just a luxury that schools can no longer afford? The latest issue of PISA in Focus makes the case that the availability of extracurricular activities at school is positively related both to student performance and to students’ attitudes towards learning.

As part of the PISA 2006 survey, which focused on student performance in science, school principals were asked about the kinds of extracurricular activities they offered their students. On average across OECD countries, 89% of students attend schools whose principals reported that science-related field trips were commonly offered, 56% of students attend schools that hold science competitions, 48% of students are in schools that encourage involvement in extracurricular science projects, 42% are in schools that organise science fairs, and 41% are in schools that have science clubs.

While the types of science-related extracurricular activities vary across countries, their relationship with better student performance is consistent throughout. In 22 of 31 OECD countries and 14 of 17 partner countries and economies, students in schools that offer more science-related extracurricular activities tend to perform better in science than do students in schools that offer fewer such activities. And in 21 OECD countries and 12 partner countries and economies, this positive relationship holds even after accounting for students’ socio-economic background. However, in two countries, the relationship is very different:  in the United States, students in schools that offer fewer of these kinds of science-related activities tend to perform better in science, after accounting for students’ socio-economic backgrounds; while in Montenegro, the relationship is negative both before and after accounting for students’ backgrounds.

And there’s more at play than test scores: PISA also found a link between the availability of school-sponsored extracurricular activities and students’ belief in their ability to handle science-related tasks, known as self-efficacy, and their enjoyment of learning science. In 22 OECD countries, 7 partner countries and 1 partner economy, students in schools that offer more of these kinds of activities tend to have higher levels of self-efficacy in science; and in 20 OECD countries, 2 partner countries and 1 partner economy, they also enjoy learning science more. In no country or economy is there a negative relationship between science-related extracurricular activities and positive attitudes towards learning science.

These findings from PISA can’t determine conclusively whether being exposed to science-related extracurricular activities enhances students’ attitudes towards science or whether students with more positive attitudes towards science are attracted to schools that offer more of such activities; both could be true. But what these results do show is that these kinds of activities are positively related not only to student performance, but also to students’ attitudes towards learning and their belief in their own abilities. With that in mind, school leaders should carefully weigh the benefits of these “extras” against their cost when making tough budgetary decisions.

Links:
For more information:
on PISA: www.pisa.oecd.org
PISA in Focus: Link latest issue "Are students more engaged when schools offer extracurricular activities?"
Photo credit: Teen science experiment / Shutterstock

Urban studies

by Marilyn Achiron
Editor, Directorate for Education

To many people, the phrase “inner-city schools” is synonymous with crumbling buildings, frustrated teachers, disengaged students, truancy and violence. In some urban areas, though, city schools and the students who attend them flourish. In fact, three of the top five performers in reading in the PISA 2009 survey—Shanghai, Hong Kong and Singapore—are large cities. So are big cities a boon or a bane for education?

The latest edition of PISA in Focus presents new analyses suggesting that, in some countries, students in large cities—defined as those with over one million inhabitants—score on a par with their top-performing peers in PISA. For instance, students in urban areas in countries like Portugal and Israel, countries that tend to perform around the OECD average in PISA, compare favourably with students in Singapore; and the performance of students in Poland’s urban areas compares easily with that of students in Hong Kong.

But in Belgium, the United Kingdom and the United States, the performance of students in large urban areas drags down overall country scores in PISA. This might be because, in these countries, not all students can enjoy the advantages—including a rich cultural environment, more school choice and good job prospects after leaving school—that large urban centres offer. Some of these students may come from socio-economically disadvantaged backgrounds, speak a different language at home than the one spoken at school, or have only one parent to turn to for support and assistance.

However, these new analyses of PISA data also show that an urban environment’s impact on learning is not just related to socio-economic advantage or disadvantage. Even when comparing students of similar backgrounds in OECD countries, those attending schools in urban areas in Chile, the Czech Republic, Germany, Italy, Mexico and Turkey scored more than 45 points higher—the equivalent of more than one year of formal schooling—than their peers in rural schools. In Hungary, the performance gap between the two groups of students was more than 70 score points wide.

What these analyses tell us is that in order to join the ranks of PISA best-performers, countries may have to provide targeted support to isolated rural communities to ensure that students attending schools in these areas reach their full potential, while those countries whose city-based students underperform will have to figure out how to both embrace a heterogeneous student population and enable these students to tap into the cultural and social advantages that large urban areas offer.

Links:
For more information:
on PISA: www.pisa.oecd.org
PISA in Focus: Are large cities educational assets or liabilities?
Photo credit: City student / Shutterstock

Hong Kong’s success in PISA – One system, many actors

by Andreas Schleicher
Deputy Director for Education and Special Advisor on Education Policy to the OECD's Secretary General

Hong Kong is perhaps the PISA top-performer about which I knew the least. So, on the invitation of the authorities, I took a few days of annual leave to learn more about this system. It turned out to be a very rewarding experience. What interested me most was to find out how Hong Kong, with its market-driven approach in virtually every field of public service, had been able to combine high levels of student performance with a high degree of social equity in the distribution of educational opportunities.

With the majority of schools run by private entities, the government has few levers for direct intervention and parents have a powerful influence on schools, both through their choice of schools (though still banded) and through local control. They sit on school management committees, parent-teacher associations and on home-school co-operation committees. Permanent Secretary Cherry Tse concluded that parents have more influence on what happens on the ground than the Education Bureau. The vibrant cyber-community has added to the tremendous pressures on schools to maintain a high quality of education.

Most leading newspapers have education pages that deal on a daily basis with policy debates as well as disputes in schools. Ruth Lee, an inspiring principal from Ying Wa Girls’ School, one of Hong Kong’s elite schools that I visited, explained how principals and teachers face a daily struggle to balance administrative accountability, client accountability and professional accountability while keeping their focus firmly on nurturing well-rounded children and helping parents see beyond their children’s entry to university (the backdrop for this is that schooling in Hong Kong used to be the domain of philanthropy and it was only when the economy gathered strengths in the 1960s that the government began to chip in with subsidising education).

Education as a cross-government priority
All that does not mean that education isn’t a government priority. On the contrary, at 23%, Hong Kong devotes more of its public budget to education than any OECD country, realising that it is talent that transforms the lives of its citizens and drives its economy. What struck me even more was that education isn’t just the domain of the Education bureau, but that it features high on the agenda of virtually every other government agency too. For example, Robin Ip, Deputy Head of Hong Kong’s Central Policy Unit explained how important the development and deployment of talent features as a cross-government priority. His unit provides the eyes and ears of the Chief Executive across the different government departments and builds advice on how Hong Kong can maintain its competitive edge in areas such as financing, trade and shipping, nurturing emerging industries (education included), and deepen economic co-operation with mainland China. And when I visited the Ministry of Finance, Salina Yan, Deputy Secretary for Financial Services underlined the deep commitment of her sector to both nurturing local talent in the financial domain as well as attracting the most highly skilled from abroad. Also Ho Wai Chi, Assistant Director of the Independent Commission Against Corruption and his team explained how that agency deploys almost a fifth of its staff to education and community relations throughout the territory, with the aim of moving the agenda from fighting corruption to preventing it, and building a climate of trust in the rule of law and the institutions protecting it. That includes work on a secondary school curriculum that builds confidence in the rule of law, deals with ethical dilemmas and seeks to change the agency’s image from sending people to jail to sustaining the system. Hong Kong’s move up to rank 12 on Transparency International’s index of perceived corruption, and perhaps even more so, the fact that over 70% of corruption-related complaints are now posted non-anonymously, illustrate how far along the way Hong Kong has come - compared to the 1960s when corruption and a climate of fear and violence had been endemic in virtually every aspect of life. On the plane leaving Hong Kong for Shanghai I saw the front page article of the South China Morning Post quoting the chief prosecutor as demanding that not even the Chief Executive should be immune from prosecution.

Educational reform
I had interesting sharing sessions with Permanent Secretary Tse, Under Secretary Chen and his Deputy and Assistant Secretaries, the head of the Assessment Authority as well as leading academics from the major universities on key educational reform challenges in Hong Kong and the world around it. Hong Kong aims high in its educational ambitions, both as a systemic goal and to meet individual aspirations. It is always difficult to say which of the factors observed are due to cultural assets and which are due to policy interventions and practices. They are intertwined. But it is intriguing to see how Hong Kong has drawn together educational experience from the Eastern and Western world to design a world class education system. You see that in everyday life too, they treat their guests with the hospitality of the Chinese way but queue on the bus the British way.

2012 is a year of particular importance for Hong Kong’s education system; it is the first year in which the generation that has gone through the new integrated education system will graduate. Results from PISA suggest that Hong Kong is on the right track, showing high performance standards as well as important improvements in students’ metacognitive skills and confidence as learner. But the test of truth will come in August when the new Diploma of Secondary education will be handed out, a day that school leaders, teachers, parents (and not least the administration) are anxiously awaiting. The learner-centred reforms underlying this new system have been far-reaching, paralleling similar developments in other high performing education system. They involved significant expansion of educational opportunity as well as a shift in emphasis from teaching to learning, from fact memorisation to development of learning capacities, and from economic needs to individual needs. The broadened and more flexible curriculum seeks a better balance between intellectual, social, moral, physical and aesthetical aspects, with much greater emphasis on transversal skills including foundation skills, career-related competencies, thinking skills, people skills as well as values and attitudes. The reforms have also included more funding flexibility in support of schools. All of this has pushed schools and teachers to take a professional stand and exercise professional autonomy within a collaborative culture.

And yet, it is clearly visible that education in Hong Kong faces serious tensions. It is the tension between what is desirable for the long-term and what is needed in the short-term; between the global and local; between the academic, personal, social and economic goals of the curriculum; between competition and co-operation; between specialisation and attention to the whole person; between knowledge transmission and knowledge creation and between the aspiration of a new innovative curriculum and a powerful private tutoring industry narrowly focused on exam preparation; between uniformity and diversity and between assessment for selection and assessment for development.

The system is now also more subject to the political economy than what used to be the case: Since reunification with China, policies are no longer determined by technocrats, but by politicians with an eye on re-election. With teachers and school leaders a large and vocal part of the electorate, maintaining the high quality examination and assessment regime is already proving a struggle. So far, policy makers have also shied away from any consolidation of the school system which seems inevitable in light of the demographic shifts with rapidly declining student numbers - if Hong Kong wants to avoid a downward spiral of rising costs associated with shrinking school and class sizes that drive out needed investments for attracting and developing teachers and the establishment of a 21st century learning environment.

An amazing environment
Another surprise for me has been Hong Kong’s beautiful landscape. What I knew from Hong Kong was the sprawling urban environment that looks like built by SimCity (with the disaster function turned off for a long time). But it took just an hour with the Government Flying Service to turn that impression upside down. Soon after the helicopter had left the Government complex the landscape was dominated by forests, natural parks and wetlands known by birdwatchers that cover 70% of the territory. As Robin Ip and his staff from the Central Policy Unit explained, maintaining a balance between the immense pressure to expand urban development in order to provide affordable housing, on the one hand, and preserving Hong Kong’s natural and cultural heritage, on the other, will be an ever-tougher challenge. The incoming administration will no doubt be tempted to hand out sweets by developing new housing, but the resistance this will meet at local levels from town planning board and environmental activists should not be underestimated. This is Hong Kong. You will see some demonstration almost every day and you have to make your way to the HBSC headquarters through the tents of the Occupy Wall Street movement.

Right across the boundary I could see the endless city of Shenzhen of China’s Guangdong province covered in smog, which does not seem to weigh such tradeoffs between economic development and the environment, and which has now absorbed virtually all of Hong Kong’s manufacturing industry. Close to a quarter of a million people pass the massive crossing points of Lok Ma Chou and Man Kam To each day, illustrating the rapid integration of Hong Kong’s economy with that of mainland China.

One-China, Two Systems
Can the ‘One-China Two-Systems’ policy be sustained in these circumstances or will Hong Kong simply be submerged? Different from twenty years ago, the distinction between the two systems can no longer be discerned from a helicopter, it is no longer visible in the infrastructure and hardware. When it comes to the ‘software’ though, the institutions and rule of law, Hong Kong’s autonomy seems yet unchallenged. At a meeting in the Department of Justice Paul Tsang, in charge of treaties and law, explained that, so far, there had just been three cases with questions about the interpretation of Hong Kong’s basic law – and all initiated by Hong Kong. Moreover, agreement has now also been reached on the mutual enforcement of law, such that cases can be heard in Hong Kong’s independent judicial system and then be enforced in mainland China. I also met with Daniel Cheng, Deputy Secretary for Constitutional and Mainland Affairs and his colleagues, who oversee the implementation of the One-China Two-Systems policy and who are the guardians of Hong Kong’s democratic institutions and independent judicial system, to learn more about the implementation of this policy. This was another instructive briefing session and what struck me most was how much mutual benefit both Hong Kong and mainland China derive from this. There are some obvious areas, such as the growing trade and the division of labour that serve both parts well, or the “firewalled” currency policies which Hong Kong offers for mainland China through the emerging offshore trading of the RMB. But it seems Hong Kong provides a testing ground for mainland China in many other areas too, and mainland China seems to learn fast from the ways in which Hong Kong does things and how its institutions operate. Paul Tsang recounted how Hong Kong’s assistance to the regions affected by the great earthquake in Szechuan had fundamentally changed the ways in which companies and the authorities in the area establish business relationships and contracts. So the return on the 80m Euro assistance which Hong Kong had provided for disaster relief will no doubt be high – and for both sides. Both sides are keen to consolidate what has been achieved and the complementarities and synergies between the two systems are now enshrined in China’s five-year development plan.

But not everybody is so confident that this will work out in the long term. At the Legislative Council, Hong Kong’s parliament, I met Representative Alan Leoung, who was deeply suspicious about the viability of the One-China Two-Systems policies, fearing that Hong Kong will end up with elections Chinese style (where everyone can vote but some opaque nomination committee will hold the gateway as to who can stand for election). He was already much concerned about the functioning of the political system today, where the functional constituencies guarantee vested interests a firm base in parliament, and where the 4m Hong Kong dollar in funds raised by the opposition parties compare against over 70m Hong Kong dollar raised by the parties supporting the government.

Perhaps it is the financial sector that will provide the most reliable barometer for the successful implementation of the One-China Two-Systems policy. Judged by that standard, Hong Kong has so far moved from strengths to strengths since reunification. Salina Yan’s office is located right next to the Chief Executive’s Building, and that is not just by coincidence. This is a country in which the Secretaries for Finance and Justice rank higher than any other government minister. Salina Yan portrayed an impressive trajectory for how Hong Kong had evolved into the international banking and asset management centre and open insurance market that it is today, with a market capitalisation that ranks 6th in the World and 2nd in Asia. Over a quarter of Hong Kong’s GDP now comes from trade and logistics, another 15% from financial services and 13% from professional services. Well over a third of the employment is in the financial services.
It is only logical that Hong Kong is a staunch supporter of the multilateral trading system including its principles of non-discrimination, with no tariffs on imports, no subsidies for exports and a level playing field for foreign and local enterprises. Rigorous international benchmarking and peer-learning are omnipresent.

But the financial sector too is facing challenges too. While Hong Kong had a strategic first-mover advantage in the financing sector of the region, other global cities are waking up. And there are important challenges on the expenditure side too. To maintain its competitive edge, the law requires Hong Kong to keep public spending below 20% (with a three-year window to smoothen out cyclical effects). So while the income side is fixed, Hong Kong’s rapidly ageing population, growing income inequalities and other social factors are putting immense pressure on the expenditure side. The government is acutely aware of these challenges and trade-offs, not least, as Cindy Kwan from the Central Policy Unit explained, through their weekly survey of opinions and attitudes among Hong Kong’s population. Like most other countries, however, it is struggling with finding convincing answers to these challenges and, like other democracies too, it needs to weight the long-term interests of the territory against the short-term demands from its citizens.

Links:
OECD Programme for International Student Assessment (PISA)
Video Series: Strong Performers and Successful Reformers in Education 
OECD Department for Education
Photo credit: School warning sign /Shutterstock

Another perspective on teachers’ pay

by Marilyn Achiron
Editor, Directorate for Education

Thanks largely to the OECD’s work in compiling internationally comparable data on education,  the issue of teachers’ pay has quietly crept up the political agenda in more than a few countries (take the recent French presidential election and the current US presidential campaign, to name just two). PISA takes the discussion a step further. It asks: does basing teachers’ pay on their effectiveness as teachers help to improve an education system’s overall performance?

As this month’s PISA in Focus notes, about half of OECD countries reward teacher performance in different ways. For example, in the Czech Republic, England, Mexico, the Netherlands, Sweden and Turkey, outstanding teaching performance is a criterion for decisions on a teacher’s position on the base salary scale. In the Czech Republic, Denmark, England, Estonia, Finland, Mexico, the Netherlands, Norway, Poland and the Slovak Republic, it is a criterion for deciding on supplemental payments that are paid annually. In Austria, Chile, the Czech Republic, Denmark, England, Estonia, Hungary, the Netherlands, Poland, the Slovak Republic, Slovenia, Turkey and the United States, outstanding teaching performance is used as a criterion for deciding supplemental incidental payments.

A look at the overall picture shows no relationship between average student performance in a country and the use of performance-based pay schemes. In other words, some high-performing education systems use performance-based pay while others don't. But the picture changes when taking into account how well teachers are paid overall in comparison with national income. In countries with comparatively low teachers’ salaries (less than 15% above GDP per capita), student performance tends to be better when performance-based pay systems are in place, while in countries where teachers are relatively well-paid (more than 15% above GDP per capita), the opposite is true.

But deciding on whether or not to have performance-based pay for teachers is only the first step. Measures of teacher performance must be clearly defined and be considered by teachers themselves to be fair and accurate. School systems also have to decide whether to reward individual teachers, groups of teachers or schools. And they also have to consider whether to create one “pot”, of a pre-determined sum, out of which rewards will be paid, or to be flexible enough to allow more teachers to earn rewards.

In the end, though, salary is only part of the work environment. Countries that have succeeded in making teaching an attractive profession have often done so not just through pay, but by raising the status of teaching, offering real career prospects, and giving teachers responsibility as professionals and leaders of reform. This requires teacher education that helps teachers to become innovators and researchers in education, not just civil servants who deliver curricula.

Links:
For more information:
on PISA: www.pisa.oecd.org
PISA in Focus: Does performance-based pay improve teaching?
Preparing Teachers and Developing School Leaders for the 21st Century: Lessons From Around The World
Photo credit: Performance / Shutterstock

It’s a small world indeed

by Barbara Ischinger
Director for Education

Earlier this week I attended the Transforming Education Summit  in the Emirate state of Abu Dhabi. Some 15 ministers and former ministers from all regions of the world, from countries in all stages of development found—perhaps surprisingly—a lot they could agree on when it comes to education: the importance of raising the status of the teaching profession so that qualified candidates apply, the need to strike a better gender balance among teachers at all levels of education, and the need for trust in education systems—trust between governments and teachers, and trust between parents and teachers.

What this says to me is that our expertise in education policy can and should be shared more widely; and the OECD stands ready to work with non-member countries as they seek to improve their education systems. Already, 29 of the 75 countries and economies that participated in PISA in 2009-10 were recipients of Official Development Assistance. And we see that the share of public budgets devoted to education in many ODA recipient countries is equal to or above the OECD average.

What can non-member countries gain from working with the OECD? Take participation in PISA. PISA provides internationally comparable data and benchmarks for comparing the quality of national education systems. Evaluations of education policies help non-members to better understand their PISA results, identify why their students are performing they way they are, and help these countries and economies find feasible ways of addressing shortcomings. These kinds of targeted evaluations help countries to direct money to the right places.

In addition, we can conduct peer reviews of national education policies. Since 1992, more than 70 reviews have been conducted in countries in southeast Europe, the Commonwealth of Independent States, Asia, Latin America and the Middle East and North Africa region, some in collaboration with the World Bank. These reviews are jointly organised by national authorities and the OECD. Policy recommendations, which can be used for planning development aid, target all areas of education systems. They tend to stimulate broad public discussion and are used by governments and multilateral organisations as reference in shaping reforms. Perhaps most important: we talk to all stakeholders—representatives from different areas and levels of education, and unions too—at the same time.

And we learn from our experiences with non-member countries too. The OECD is proposing to introduce several new indicators to measure progress towards development. These include average teacher salary as a percentage of GDP per capita, enrolment and completion rates by education level, the school-to-work transition as measured by unemployment rates by education level, measures of equity in education achievement by gender and background characteristics, and  the extent to which highly educated students emigrate out of ODA-receiving countries, what is known as brain drain.

Throughout our 50 years of working on education policy, we’ve found that good ideas come from countries large and small. In sharing those ideas, we can create better policies for better lives all around the globe.

And speaking of our small world, if you’re interested in speaking in our small world, I recommend leafing through one of the OECD’s latest books, Languages in a Global World: Learning for Better Cultural Understanding. Did you know that the world’s seven billion people speak about 6 000 languages? That there are over 30 times as many languages as there are states? This provocative book, which sweeps from history and sociology through psychology and neuroscience, to music, philosophy and ethics, makes the case with wit and irreverence that learning languages is now more crucial than ever.

Find out more about: OECD work on education in non-member economies

Photo credit: Sphere of letters / Shutterstock