MINISTRY OF EDUCATION
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The BC School Trustees Association welcomes the Ministry of Education's commitment to developing a common vision and plan for student achievement. Improving the achievement of every student is the Key Work of school boards. Therefore, we are pleased to have the opportunity to contribute to the Task Force on Student Achievement's deliberations.
A clear vision and common definition of achievement are essential if we are to draw valid conclusions about the success of our students, which, in turn, tell us about the success of our public education system. The accuracy and usefulness of any assessment, evaluation, or accountability system depends on knowing exactly what it is that we want to measure.
In the absence of a clear, commonly held definition, people quite naturally gravitate to final examination scores or Foundation Skills Assessment (FSA) results as the prime indicators of quality in the BC school system. Measures such as these are inadequate if our interest is all the achievements of all students, although they do have an important role to play in assessing and evaluating some of the achievements of some students. If we are first clear about what we want, then we can turn our attention to determining the extent to which we have attained it.
We know that narrow testing programs, while efficient, cannot begin to provide the only information we need. Finding appropriate ways to evaluate the range of achievements that students in the 21st century are expected to make will not be an easy task. BCSTA believes that the provincial role is to develop a framework or definition of achievement, to set standards for outcomes, to provide funding for local school boards, and to monitor the progress of local jurisdictions. It is appropriate for local school boards to have responsibility and be accountable for locally responsive education programs and the achievements of students in their districts. In fulfilling their roles, both parties must respect the needs and diversity of individual students.
What does it mean, "to achieve"? In common terms, achievement is the realization of a goal; the attainment of an objective. Achievement is both intentional and satisfying, and it does not happen by accident. The student who says, "Oh, I get it!," the marathon runner who says, "I finished it!," the computer programmer who says, "I've solved it!," the Special Olympian who says, "I did it!," the apprentice chef who says, "I made it!" -- these are achievers.
Within the K-12 system, there are many direct and indirect definitions of achievement. First, we have Ministry documents that outline the mission and goals of the school system. Second, the attributes of an Educated Citizen that are outlined in the School Act, Statement of Education Policy Order offer another vision of what BC students are to achieve. The description includes a variety of skills, attitudes, and behaviours, as well as "a broad knowledge base." Third, the BC Performance Standards define achievement in selected areas -- reading, writing, numeracy, and social responsibility -- for students from Grades 1-10. Fourth, the Graduate Profile developed as part of the graduation requirements review offers another definition of achievement -- an elaboration of the goals of education described above, calling for "knowledge, skills, attitudes, and competencies" in 10 areas.
BCSTA takes a broad view of student achievement that goes beyond achievement in a particular test or a specific course. The goals of education and the attributes of The Educated Citizen come closest to reflecting the school trustee view of achievement.
To some extent, the problem is not that there are no definitions of student achievement, but that there are too many, and the definitions do not all share common elements. However, the connections between one area of student achievement and another are rarely made clear, thus creating a sense of incoherence. Said another way, every aspect of the system has its own set of components that is not aligned with the others.
At best, this situation results in our efforts to improve achievement being uncoordinated and less effective than they might be. At worst, it leads to cynicism, such as when the Ministry informs the public, within the same month, that our 15-year-olds are among the most literate in the world according to results of the Organization for Economic Co-operation and Development's (OECD) assessments, and also that our Grade 10 students are in dire straits because they cannot read.
Are there some components that are common to assessment and reporting of all achievement for all students? A framework that cuts across all forms of achievement for all students could help to:
As part of BCSTA's submission to the Task Force, we undertook to develop a sample BC framework. Our intention is that such a framework could be applied to assessments and accountability discussions across all areas of achievement, in order to help achieve the coherence, comprehensiveness, focus, and guidance for system improvement.
The framework elements elaborated in the submission are:
Improving and monitoring student achievement requires more than a definition and appropriate assessment techniques. Following are three possibilities for making some kind of comparison – to a standard, a norm, or a previous performance:
Each of these methods for making comparisons is useful for particular purposes, but each has strengths and limitations discussed in the brief.
In concluding, BCSTA makes recommendations to the Task Force on Student Achievement in the following six areas:
In light of our role and responsibility for local education under the School Act, and our strong commitment to student achievement through the Key Work initiative, BCSTA urges the Minister to provide school boards and their senior staff with continuing involvement in necessary follow-up to the Task Force that focuses on defining, improving, and monitoring student achievement.
To that end, BCSTA suggests that the Ministry appoint a broad-based committee involving school trustees, teachers, senior educators and parents to assist in reviewing and implementing the recommendations of the Task Force.
The BC School Trustees Association welcomes the Ministry of Education's commitment to developing a common vision and plan for student achievement. We are pleased to have the opportunity to contribute to the Task Force on Student Achievement's deliberations. As the following motion from a recent BCSTA Provincial Council meeting indicates, school boards believe that they should play a pivotal role in this area:
That the BCSTA request the Minister of Education for school boards to have greater involvement in defining assessment and determining learning outcomes, in light of their role and responsibility for local education under the School Act. (PC48/2002)
Improving the achievement of every student is the Key Work of school boards. School boards have always worked to ensure student success. Since 1998, those efforts have become focused in the BCSTA Key Work initiative. At their 2001 Annual General Meeting, BCSTA members affirmed their determination to:
A clear vision and common definition of achievement are essential if we are to draw valid conclusions about the success of our students, which, in turn, tell us about the success of our public education system. The accuracy and usefulness of any assessment, evaluation, or accountability system depends on knowing exactly what it is that we want to measure. An explicit and well-established definition or framework is the first essential step in any attempt to measure, research or draw conclusions about student achievement. If we are first clear about what we want, then we can turn our attention to determining the extent to which we have attained it.
In the absence of a clear, commonly held definition, people quite naturally gravitate to final examination scores or Foundation Skills Assessment (FSA) results as the prime indicators of quality in the BC school system. Measures such as these are inadequate if our interest is all the achievements of all students, although they do have an important role to play in assessing and evaluating some of the achievements of some students. In order to develop valid ways of assessing and reporting on achievement, we need to seek out a common understanding that crosses the narrow contexts of subject, grade, or specific skill.
We are pleased that the Ministry recognizes the complexity of this issue. The creation of the Task Force indicates that the Ministry is interested in tackling the challenging issues that arise when we move beyond looking at academic content knowledge to a more comprehensive look at student achievement. At a time when many education changes are proposed, or are already in progress, it is crucial that we have ways to determine whether these changes do, in fact, improve the achievement of our students.
BCSTA acknowledged these issues in the following AGM motions:
That BCSTA urge the Minister of Education to work with school trustees in ensuring the use of valid and "authentic" assessment measures that address core student learning goals, which, in turn, form the basis of accountability contracts. (AGM 2002 #1)
And,
That BCSTA request the Minister of Education to:
a) Sponsor longitudinal, quantitative studies of the effects on student achievement of government's educational policy changes, and
b) Disseminate the results of these studies to provincial and district decision makers. (AGM 2002 #2)
We know that narrow testing programs, while efficient, cannot begin to provide the only information we need. Finding appropriate ways to evaluate the range of achievements that students in the 21st century are expected to make will not be an easy task. In this submission, we have chosen to focus primarily on issues associated with defining and assessing student achievement, although other issues are certainly important to consider.
BCSTA believes that the provincial role is to develop a framework or definition of achievement, to set standards for outcomes, to provide funding for local school boards, and to monitor the progress of local jurisdictions. It is appropriate for local school boards to have responsibility and be accountable for locally responsive education programs and the achievements of students in their districts. In fulfilling their roles, both parties must respect the needs and diversity of individual students.
In this submission, BCSTA offers a coherent and comprehensive framework for discussing student achievement, because we believe that the current absence of this element is leading to confusion among students, parents, educators, and the public. If we don't pay attention to first principles, rather than focusing on specific examples of individual cases where schools and teachers are being successful, we face the risk of mandating change that needs careful thought, analysis, justification and adequate attention to instruction, implementation and funding issues.
This approach will allow considered change that has the best chance of system-wide success. In this way students will be well served, and we will be able to communicate and account for our progress to the public.
A. Common Definition
What does it mean, "to achieve"? In common terms, achievement is the realization of a goal; the attainment of an objective. Achievement is both intentional and satisfying, and it does not happen by accident. The student who says, "Oh, I get it!," the marathon runner who says, "I finished it!," the computer programmer who says, "I've solved it!," the Special Olympian who says, "I did it!," the apprentice chef who says, "I made it!" -- these are achievers.
It should be recognized, however, that achievement is not necessarily permanent. Otherwise, one would remember everything and not forget anything. Achievement is also not an all or nothing process; one achieves some things partially, and some things wholly depending on one's level of maturity. For example, how one understands "democracy" is dependent on many factors, and we do not really know if anyone understands tit completely. Achievement is tempered by context; that is, one may know something if not under stress, but forget it completely if stressed. Achievement is also situation-dependent -- on needs to learn times tables backwards and forwards -- apparently, 9x8 and 8x9 are learned separately if intended for quick recall. And, finally, the achievement attained is not necessarily the same as what was intended. For instance, children learn what their parents do, not what they say!
Achievers are aware of their accomplishments. They choose to meet challenges; they engage and put forward effort; they recognize their own accomplishments. Goals may be initially set by someone else, but choosing to engage in the challenge is an intensely personal action. No one else can accomplish a goal for you.
B. Current BC Definitions
Within the K-12 system, there are many direct and indirect definitions of achievement. For example, we have Ministry documents that outline the mission and goals of the school system. They indirectly define what should count as student achievement in terms of intellectual, human, social and career development, and development as citizens, with intellectual development taking precedence. Achievement is also related to "individual potential":
The purpose of the British Columbia school system is to enable all learners to develop their individual potential and to acquire the knowledge, skills and attitudes needed to contribute to a healthy, democratic and pluralistic society and a prosperous and sustainable economy. (Ministry of Education Service Plan, 30 January 2002.)
Second, the attributes of an Educated Citizen that are outlined in the School Act, Statement of Education Policy Order offer another vision of what BC students are to achieve. The description includes a variety of skills, attitudes, and behaviours, as well as "a broad knowledge base." The Educated Citizen could provide the basis for examining achievement in the K-12 system; however, it is currently not used as a framework, and is not directly referenced in curriculum documents or assessment systems. While there seems to be general agreement that The Educated Citizen represents an ideal, it has not had much practical impact to date, and it is likely that different people interpret achievement of each of the aspects in very different ways. (See Appendix B for the full statement.)
Third, the BC Performance Standards define achievement in selected areas -- reading, writing, numeracy, and social responsibility -- for students from Grades 1-10. The Performance Standards draw from the curriculum outcomes, but focus on broader application of the skills students are expected to develop. They describe and provide examples of various performance levels, e.g., "Fully Meeting Expectations." In terms of breadth versus specificity, the Performance Standards fall somewhere in between the broad goals of the system, and the very specific outcomes associated with each subject area. The Foundation Skills Assessment (FSA) and Grade 12 provincial examinations are also attempts to measure achievement within defined subject areas.
Fourth, the Graduate Profile developed following a symposium that was part of the Ministry's consultation review of graduation requirements offers another definition of achievement -- an elaboration of the goals of education described above, calling for "knowledge, skills, attitudes, and competencies" in ten areas; then elaborating some of the qualities graduates should demonstrate. (See Appendix B for detail.)
For many students, parents, teachers, and others, achievement is simply defined as doing well in school -- specifically, "achieving" good marks in school subjects, or in some cases, passing marks. In this view, student achievement is tied to the curriculum outcomes that specify the skills and knowledge students are expected to acquire, or, in the case of students with special needs, the skills and knowledge that are specified in their Individual Education Plans (IEPs).
A test-based or marks-based view of achievement is much narrower than that envisioned for The Educated Citizen. And, because each subject area or discipline is organized and assessed in a different way, it is difficult to find common threads of achievement from one context to another. Thus, if we adopt only these limited approaches to student achievement, we will not encompass all achievements, and we will focus just on elements directly related to a school subject or course. Student achievement then becomes narrowly defined as grade point average.
C. BCSTA Position
BCSTA takes a broad view of student achievement that goes beyond achievement in a particular test or a specific course. The goals of education and the attributes of The Educated Citizen come closest to reflecting the school trustee view of achievement.
In beginning the work of preparing this submission, BCSTA's Education Committee identified elements of a common definition of student achievement. These elements are shown in Appendix C.
To some extent, the problem is not that there are no definitions of student achievement, but that there are too many, and the definitions do not all share common elements.
While broad guiding visions like The Educated Citizen are often quoted in support of broad based student achievement, in reality achievement is most often described within a narrow context, such as a particular course, unit, subject, or skill. The Ministry's Graduation Review appears to recognize this, most notably in proposing a Graduate Profile and cross-curricular portfolio as part of the new graduation requirements. It is our hope that the deliberations of this Task Force will help to determine what is included and measured in that portfolio. If we do not become more focused and specific, we will continue to have competing and confusing definitions of achievement that undermine any sense of coherence in the system.
Educational leaders are all too familiar with the caveats that accompany FSA results, which, we are told, reflect only a small portion of student learning. The question that is never clearly answered is: What, exactly, is missing? And, where would we learn more about the missing pieces? A comprehensive, practical definition of achievement would make the answers to these questions clearer.
Further, there is every prospect that the proposed new graduation requirements could contribute to further incoherence in the system, unless the proposed assessments and examinations reflect and specifically relate to a clearly conceptualized framework of achievement that also incorporates courses, programs, and other studies that students undertake.
As BCSTA has noted, each subject, grade, program, unit, and other facet of the current education system has its own set of outcomes and measures. This is as it should be. However, the connections between one area of student achievement and another are rarely made clear, thus creating a sense of incoherence. Said another way, every aspect of the system has its own set of components that is not aligned with the others.
At best, this situation results in our efforts to improve achievement being uncoordinated and less effective than they might be. At worst, it leads to cynicism, such as when the Ministry informs the public, within the same month, that our 15-year-olds are among the most literate in the world according to results of the Organization for Economic Co-operation and Development's (OECD) assessments, and also that our Grade 10 students are in dire straits because they cannot read.
Are there some components that are common to assessment and reporting of all achievement for all students? A framework that cuts across all forms of achievement for all students -- including academic disciplines, fine and practical arts, special needs (e.g., life skills), pre-employment, human and social development, general interest -- could help to:
As part of BCSTA's submission to the Task Force, we undertook to develop a sample BC framework. Our intention is that such a framework could be applied to assessments and accountability discussions across all areas of achievement, in order to help achieve the coherence, comprehensiveness, focus, and guidance for system improvement that we described in the prior section.
To do this work, we reviewed BCSTA policy adopted by the membership, then analyzed a variety of BC documents, including The Educated Citizen, the Graduation Requirements Review Discussion Paper (2002), various Ministry and district vision statements, curriculum and policy documents, specifications for Grade 12 examinations, etc. We also consulted documents from other jurisdictions. From these analyses BCSTA developed a preliminary framework reflecting the core components of achievement that appear to be consistently valued regardless of the overall goals, discipline or learners involved.
At various times, instruction and assessment may focus on a subset of the following components; such as in the case of partial courses, selected units of study, etc. However, as a rule, any comprehensive assessment of students, schools, districts, or the province would incorporate most, if not all of the components.
The framework presented below is simply intended to be a sample -- a point of departure for further discussion. We are more concerned that the Ministry coordinate its efforts to develop a common framework for achievement, than that the framework we propose be adopted without change. Obviously, such important work would require greater input and deliberation from the education community, including BCSTA, senior educational leaders such as superintendents, etc., than we are able to offer at this time. We put forward the following ideas in order to stimulate further discussion. For each component in the framework, we have highlighted some assessment possibilities and implications; again, these are only a first step.
It is important to note that the following framework is not hierarchical. The categories are not "higher" or "lower" than each other: they simply reflect different aspects of achievement. The framework is not a taxonomy. The categories overlap and are interdependent -- they are not mutually exclusive.
A. Acquisition of a defined body of knowledge and concepts
Scope: Acquiring knowledge and understanding a set of concepts is certainly a key aspect of achievement in any context. In an academic subject, this body of knowledge is typically specified in the curriculum. For instance, in a life skills course for special needs students, this knowledge may include such things as where to put a bus transfer, or how to prepare a nutritious meal. In reading or writing, it may relate to word or genre knowledge. In some areas of human and social development, it may include knowing rules/ethical guidelines.
Implications for Assessment. To date, educational assessment, which has traditionally depended on paper-and-pencil tests, has had its greatest success in determining the extent to which students have achieved mastery of required knowledge. Effective assessment of this aspect of achievement is relatively straightforward: a) define the body of knowledge; b) Determine the appropriate balance among topics studied and cognitive levels, e.g., recall, understanding, analysis; c) Create or select tasks that elicit evidence of the required content; and score them according to standard rules and procedures.
Because paper-and-pencil testing has been the traditional form of assessment for many years, there are well-established standards, procedures, and techniques for creating valid and reliable tests.
B. The for reasoning -- thinking, problem-solving, making sense
Scope. Most disciplines, programs, or other educational contexts share a strong focus on the capacity and willingness to think and reason, although they may have different labels for the thinking skills that students are expected to develop and apply. Critical thinking, questioning, problem-solving, decision-making, making judgements, "digging deeper," engaging in inquiry, and reasoning logically, are closely related.
For example, a special needs student, who is able to make judgements about who is a safe person to ask for help, shares a great deal with an art student who is evaluating a particular work, with a Kindergarten student who is deciding why Cinderella didn't leave the ball on time, with a senior debater who is attacking an opponent's arguments, and also with another student who makes a responsible decision about when to report another student's behaviour to an adult.
Implications for Assessment. Skilful test makers are often able to address simple, direct and convergent aspects of this category of student achievement. For example, they may provide a scenario or set of documents and ask students to analyze them. However, as the Ministry's review of graduation requirements appears to recognize by requiring evidence of critical thinking or problem-solving in the proposed portfolio, students also need complex, open-ended opportunities in order to develop and demonstrate achievement in this area.
Essays and other paper-and-pencil questions can be helpful, but they do not allow for the kind of extended inquiry, problem-solving or decision-making that also characterizes student achievement in this area. For example, it is difficult to draw conclusions about a student's thinking or reasoning unless the student is able to make choices and pursue alternate lines of reasoning or inquiry. This poses measurement problems, particularly in terms of time, feasibility, and comparability of results. However, these are not insurmountable problems, and a careful mixture of written and performance assessment can provide evidence of student achievement in this area.
C. A set of skills that enable students to use processes and create products -- to "do"
and "make," as well as "know" and "think"
Scope. Traditionally, "skills" were associated with practical arts and fine arts. However, skills are also an important part of most academic subjects, and of life skills, and special education programs.
Each subject area, program or course includes skills associated with creating or performing something. From their first days in school, students begin to learn the skills they need to make things – a paper-plate flower, a poem, a coffee table, a poster, a computer program, an address label, and to do things – skip rope, place a slide in a microscope, operate heavy equipment, use a search engine or a spread sheet, make a lay-up shot.
Implications for Assessment. It is not possible to validly assess a student's ability to demonstrate skills and create products using traditional paper-and-pencil tests. These aspects of student achievement require performance assessment -- often, focused projects that take place over a period, and may involve collaboration with other people.
There are some formidable -- but not insurmountable -- barriers to assessing the achievement of skills and products, particularly in terms of ensuring reliability, so that all student work is assessed fairly and consistently. Because most performance assessments are time-consuming, it is not possible to have students complete a broad selection of tasks within the traditional time frame available. These problems can also affect the validity of the results.
Despite the challenges, there are powerful benefits to using performance assessment: foremost, its positive effect on instructional practice and on student learning. Research indicates that students prepare differently when they know performance assessments will be used. They actually learn and retain more over an extended period when they prepare for these assessments, than when they prepare for a traditional test. This is one of the most researched and rapidly developing areas of educational measurement and assessment, and there is good reason to expect that tools and techniques will continue to improve.
D. Ability to make connections and apply knowledge, concepts, reasoning, skills
appropriately in new situations
Scope. Student achievement means more than acquiring a body of knowledge and skills. Achievers are able to use what they have learned: they operate from a belief that the world "makes sense," and that the knowledge and skills they have acquired can be put to use. In a classroom, teachers often see achievement in this area when students spontaneously make connections between a current topic and something they have already learned. Frequently, these achievements require going beyond the classroom -- providing students with opportunities to engage in "real" activities; to apply their learning to accomplish tasks that are important to them. Such accomplishments might include an intermediate student who uses mathematical understanding to reduce personal water consumption; a student in a life skills class who independently takes a bus and gets to the intended destination; or a golf student who applies ball-striking skills that were learned on the practice tee to improve previous scores or to reduce a handicap over time.
Other examples might include an English or social studies student who writes a letter to the editor to express views on a community issue; a group of students that organizes a fund-raising event; a student who applies what he or she has learned about social responsibility to make a new student feel welcome; a student who identifies a need in the community and tries to fill it. An important aspect of these achievements is "metacognition" -- knowing what you know, what you can do, and how and when to use it.
For many students, these are the most satisfying achievements -- achievements that students see as worthwhile and relevant. The BCSTA First Nations Education Committee notes that for aboriginal students, relevance of school to life is a particularly strong issue, and the inability to see this connection often contributes to their leaving school. (See Appendix D for the Committee's statement.)
Implications for Assessment. This area of achievement is one of the most difficult to assess. Often, the most telling evidence of achievement occurs when no one is looking, or, long after the course is over, and the student has left school. However, it is possible to set up situations, pose realistic tasks, and engage students in simulations that invite and require them to connect what they have learned to a new challenge. These are challenging assessments to design; they require a thorough understanding of the learning in question, and some creative design.
There are several approaches to assessing this aspect of achievement. For example: a) Create conditions that foster connections and application, and watch what happens, i.e., observe on an ongoing basis as most primary teachers do; b) Create particular tasks or simulations that require application, i.e., pose a realistic, but perhaps not "real" task; and c) Engage students in developing evidence of their own achievement, often drawing on situations outside of class or school, e.g., some of the requirements of the proposed graduation portfolio.
As in other categories, student engagement and self-assessment are key factors. BCSTA notes that the Ministry has taken a first step in addressing this dimension of assessment in the proposed graduation portfolio requirement.
E. Communicating appropriately, following the rules or guidelines of the discipline or situation
Scope. At one time, student achievements related to communication most often focused narrowly on academic forms, such as essays. Today, communication in its many forms is increasingly recognized as a key aspect of achievement in all contexts. Certainly, students in traditional academic disciplines are still expected to demonstrate competence in familiar forms such as essays. Further, in mathematics, achievement includes the ability to communicate clearly through symbols, relevant graphics, e.g., tables, graphs, diagrams, and in words. Investigations in science result in reports. Fine arts students are expected to master aesthetic forms of communication. Students in life skills courses learn to communicate their wants and needs.
While the nature of communication varies from one discipline or context to another, student achievements related to communication are most often judged in terms of how well the purpose is accomplished. For example, to what extent is the essay convincing to the reader? How effectively does the graphic convey results? Can the reader/listener follow the instructions? How well is the student able to convey a request or demand, as in a life skills class or problem-solving situation? How well does the diagram convey the scientific or technical process?
Implications for Assessment. Assessing achievements in communication is often time-consuming, and thus, relatively expensive. An added complication is that many forms of communication need to be evaluated in "real time" -- that is, the evaluation must be done "on the spot," with no opportunity for review or consultation, e.g., an oral explanation, a debate, a demonstration. Even forms of communication that seem relatively straightforward and easy can offer complications, e.g., the ability to write a clear explanation. Achievement in communication requires purpose, audience, and commitment.
These are very difficult factors to control or standardize. Ideally, as we noted above, a communication is judged in terms of how well the purpose was accomplished -- did readers, listeners, viewers get the message that was intended? Did they react in the way the student intended? When communication is removed from realistic situations and the "communicator" has little control or choice in the situation, it becomes difficult to generalize about his or her "communications" achievement.
However, there is a solid body of knowledge about how to judge communications in most areas. For example, research and practice in the assessment of writing have provided the basis for a wide variety of performance assessments. We currently have the technical expertise to evaluate communication; but we are much less successful in ensuring that the communication we evaluate reflects what student truly is able to do.
F. Taking responsibility for and pride in learning; being willing to take on challenges
Scope. As students progress through various learning experiences, they are expected to develop positive and productive attitudes – to take pride in their learning, to strive for improvement, to engage in challenges, to value their own efforts, to persevere through struggles, and ultimately, to become lifelong learners.
Are these achievements? Some people believe that these are the prerequisites to student achievement, rather than outcomes, or that they constitute evidence that we should measure and "count."
However, we point out that this category of student achievement was mentioned in almost every conversation, discussion, or written response the BCSTA considered. Certainly, this category of behaviours crosses all grades, subjects, programs, and situations. Should we attempt to measure our students' achievements in this area -- the extent to which they do put forward effort, enjoy learning, and take pride in their accomplishments? While it could be argued that it is inappropriate to judge an individual student in terms of these skills, most people would agree that classes, programs, schools, districts -- all aspects of our system -- ought to develop these skills and dispositions. Thus, measuring them becomes an important factor if we are to work toward and evaluate school and district improvement.
In adopting this category as true student achievement, and not a prerequisite of achievement, BCSTA also wishes to emphasize that it is not the same thing as satisfaction, which the Ministry is now attempting to measure through surveys.
Implications for Assessment. This is perhaps the most challenging area of all to assess. While teachers, parents, and students themselves are often able to recognize and celebrate these achievements, in the case of a particular student, they are less confident about describing them: What exactly does it look like? Assessment of the variety of ways that an individual can demonstrate pride in achievement, love of learning, and willingness to take on challenges, can be very problematic.
However, the fact that assessment is challenging, and may be imprecise, should not prevent us from attempting to describe or characterize student achievement in this category, or from insisting on finding out how our students are growing and improving in their approach to learning.
In summary, the above-described framework of six categories encompasses many of the achievements that the BCSTA advocates for students: knowing, thinking, doing, creating, connecting, communicating, striving and caring. Assessing student achievement in these areas is not uniformly easy, given our knowledge base at this time. Nonetheless, school trustees are committed to a broad view of student achievement that necessarily requires a flexible approach to assessment, recognition of limitations, and openness to experimentation and change.
Improving and monitoring student achievement requires more than a definition and appropriate assessment techniques.
In this submission, we have not yet discussed the critical challenge of evaluating student, school, and district achievement: how to judge and interpret the results. This requires making some kind of comparison -- to a standard, a norm, or a previous performance.
There are three possibilities:
There is an intuitive appeal to using improvement or, in current terms, "value-added," to assess student achievement. This method can more easily take into account individual differences in learning styles, preferences or other factors, such as test anxiety, that may be unrelated to real achievement. It clearly has a role to play in monitoring and reporting on an individual's development. However, comparisons with previous performance alone may mislead students, parents, or educators about a student's capability for future learning.
In concluding, BCSTA makes recommendations to the Task Force on Student Achievement in the following six areas:
1. Take A Broad View of Achievement
View achievement in broad terms that encompass all achievements of all students. Academic achievement in the traditional disciplines will always be a cornerstone of education. However, we do our schools and students a disservice if we do not take a broad view of achievement that includes the goals, efforts and accomplishments of all students.
2. Support Comprehensive and Balanced Information Gathering and Sharing
Encourage the Ministry, districts and schools to strive to present balanced and comprehensive information about achievement. At present, discussions of achievement -- whether individual or collective -- tend to focus on a small number of measures, most notably, FSA, provincial examinations, and participation data. These are appropriate measures for some aspects of achievement.
However, as our schools change in response to a changing society and new expectations for our students, we need to shift some of this attention to other aspects of achievement, regardless of whether these are easy to measure. It is almost a rule of thumb that the more important something is, the more difficult it is to measure. Complexity is an unavoidable and welcome feature of learning. Use of a framework such as the one we have presented in this submission could help to create a more balanced and comprehensive picture that would be of benefit to everyone, parents, students, educators, school boards, government and the public.
3. Seek Coherence through a Consistent Framework
Develop and use consistently throughout the K-12 system a framework of achievement such as the one described in this submission to create a sense of focus and coherence. Students, parents, educators and the public need to see clearly the connections among different components of learning in different situations.
At this time, the Ministry should consider focusing on two specific dimensions of learning in reporting on student achievement: 1. Subject/content learning, e.g., English, citizenship, mathematics; and 2. Components or aspects of learning, e.g., knowing/understanding; thinking/reasoning; performing skills/creating products; applying/making connections; communicating; engaging.
By using this approach, it would be possible to create profiles of student, school, district, or provincial achievement across programs, subjects and age levels. A school might determine, for example, that a high percentage of its students were achieving well in terms of acquiring knowledge and understanding and in communicating, but that a much smaller proportion were able to make connections or apply what they had learned. Such information could provide focus and direction for school improvement. At the same time, achievement information in traditional subjects would continue to be reported. A school would then have a profile of achievement that reflected both subjects/programs, and broad components of student achievement.
It should be noted that the Ministry's previous accreditation program attempted something similar. However, many of the topics assessed were specific to accreditation, and were not integrated into all aspects of learning and assessment.
As described earlier in this submission, the problem is not that there are no definitions of achievement in the K-12 system, but rather that there are currently too many.
4. Adopt Fair and Principled Assessment
Encourage everyone to put the learner first in any discussion or assessment of achievement. Above all, assess achievement in a fair and principled manner that respects individual differences and supports learning. Assessment is the single most powerful instructional intervention.
In our need to show improvement and demonstrate accountability, we must not lose sight of our overriding mission: to support all learners in developing their individual intellectual, human, social and career potential, which, in turn, supports the development of an educated citizenry.
Carelessly used, even well intentioned assessment can undermine learning, particularly through its negative effect on student motivation. Effective assessment, on the other hand, can have an extremely positive effect on student learning.
5. Adopt Evidence-Based Changes
What is the first priority of public education? -- improving student achievement. Student achievement is the key work, not only of school boards, but also of the entire education system. The current discussion of student achievement represents an important beginning. The Ministry should ensure adequate time and opportunity for further development of definitions and practices based on sound research and field experience.
A quick fix is always tempting. However, past quick decisions about certain frameworks and models of achievement have contributed to a level of incoherence and dissatisfaction that government now recognizes.
While BCSTA acknowledges the need for change and commends the Ministry for leadership, we respectfully urge that it balance carefully the need for immediate action with deliberate, well-reasoned change.
6. Provide for Follow-Up to the Task Force
Finally, in light of our role and responsibility for local education under the School Act, and our strong commitment to student achievement through the Key Work initiative, BCSTA urges the Minister to provide school boards and their senior staff with continuing involvement in necessary follow-up to the Task Force that focuses on defining, improving, and monitoring student achievement.
To that end, BCSTA suggests that the Ministry appoint a broad-based committee involving school trustees, teachers, senior educators and parents to assist in reviewing and implementing the recommendations of the Task Force.
APPENDIX A: BCSTA PRINCIPLES OF FAIR STUDENT ASSESSMENT AND EVALUATION
BCSTA adopts as policy the following statement of principles with respect to fair student assessment and evaluation:
Assessment: The systematic gathering of evidence about what a student knows and is able to do.
Evaluation: The making of judgements about the quality of a student's performance (e.g., the quality of a demonstration, the appropriateness of an attitude or behavior, or the correctness, completeness or depth of an answer).
1. Assessment methods and tools should:
2. Assessments and evaluations should not be used in ways that harm students' self esteem.
3. Students and parents should be informed about:
4. The number and nature of assessments should ensure a rich, accurate and ongoing flow of information about student progress and achievement, without placing undue pressure on instructional time or financial resources, or undue stress on students.
5. Assessment should be administered, scored and/or interpreted only by individuals who have the necessary knowledge and skills to perform these tasks. (AGM 2001 #1)
APPENDIX B: THE MINISTRY OF EDUCATION’S THE EDUCATED
CITIZEN AND A POSSIBLE GRADUATE PROFILE
1. The Educated Citizen (School Act, Statement of Education Policy Order. Mandate for
the School System, OIC1280/89)
A quality education system assists in the development of human potential and improves the well being of each individual person in British Columbia society.
Continued progress toward our social and economic goals as a province depend upon well-educated people who have the ability to think clearly and critically, and to adapt to change. Progress toward these goals also depends on educated citizens who accept the tolerant and multi-faceted nature of Canadian society and who are motivate to participate actively in our democratic institutions.
Government is responsible for ensuring that all of our youth have the opportunity to obtain high quality schooling that will assist in the development of an educated society. To this end, schools in the province assist in the development of citizens who are:
2. Ministry of Education, Symposium, the Graduation Requirements Review, May 2002
"During the first phase of the consultation on graduation requirements participants were asked to comment on the attributes -- the knowledge, skills, and attitudes -- that they think are important for all graduates from BC's K-12 education system."
These comments from the consultation were then consolidated into the Graduate Profile, a description of the knowledge, skills, attitudes, and competencies that British Columbia students should be developing throughout their school years, supported by family and community."
The Profile elaborates on the Goals of Education: intellectual development, human and social development and career development (School Act, Statement of Education Policy Order, OIC 1280/89).
"The public education system, in partnership with parents and community, is responsible for ensuring that our graduates have acquired knowledge, skills, attitudes, and competencies in the following areas:
The report goes on further to say the following:
"The Graduation Years are ones in which students assume increasing responsibility for the enhancement of core competencies in an area of interest. The British Columbia K-12 system strives to develop graduates who are:
APPENDIX C: BCSTA EDUCATION COMMITTEE INPUT: ELEMENTS
OF A DEFINITION OF STUDENT ACHIEVEMENT
APPENDIX D: ACHIEVEMENT OF FIRST NATIONS STUDENTS (BCSTA
FIRST NATIONS EDUCATION COMMITTEE, 2002)
First Nations students, like all students, are powerfully affected by the ways that achievement is defined and assessed. They also face additional challenges. Regardless of educators' good intentions, negative or unfounded assumptions, unrecognized cultural differences, previous unsuccessful experience with schooling and the like all combine to undermine aboriginal student success. Given the histories and current situation of aboriginal student in public education, greater emphasis and effort are required from the education system in areas including anti-racism, parental involvement and awareness of bias in assessment.
It is especially important that First Nations students have opportunities to be assessed and recognized for a broad range of achievements -- not only academic -- and that different modes of learning be recognized and accommodated. Broad assessment of a variety of accomplishments can help to strengthen student ties to school. However, it is also important that First Nations not be assumed incapable of academic achievement. Like any other student, First Nations students need access to whatever works for them.
In working to support student achievement for aboriginal students, it is necessary to recognize the differences between status-on-reserve students and urban populations in terms of supports required and potential parental and community engagement on behalf of their students.
Enhancing Achievement of Aboriginal Learners
Taken from the McBride Report (April 2001) on the Over-Representation of Aboriginal Students Reported with Behaviour Disorders, the following is a checklist of ways the education system can work to ameliorate difficulties for aboriginal students:
The most significant finding is that those districts that most closely adhere to what is described in the literature as good educational practice are also those districts that appear to have the most success in the education of aboriginal learners and the lowest rate of behavioural problems. They tend to: