Beneath the surface of accountability: Answerability, responsibility and capacity-building in recent education reforms in Norway

Recent educational reforms in Norway include national tests and monitoring mechanisms to see if key outcomes are being achieved. At the same time, Norway has not established the follow-up mechanisms like high-stakes incentives and rewards that are characteristic of accountability policies in some other countries. As a consequence, one could argue that Norway has only moved “half-way” toward accountability. In contrast, this paper suggests that these developments in Norwegian policies demonstrate the difficulties of navigating the tensions between promoting two key aspects of accountability—answerability for the achievement of short-term goals and responsibility for the fulfillment of broader purposes—and the challenges of building capacity for both. Exploring developments in the Norwegian context highlights what it may take to develop policies that address both answerability and responsibility and reveals some of the cultural, geographic, political, and economic realities that make it difficult to do so.     

Tracing the Discourses of Accountability and Equity: The Case of the Grade 4 Literacy Test in Jamaica

In an attempt to understand how a narrowed version of accountability in the form of high-stakes assessment deepens inequity rather than improves educational equity, we examine three education documents in Jamaica using critical discourse analysis. Our two research questions were: How did each government document position the Grade Four Literacy Test? What did that positioning signify in terms of accountability and equity? Our analyses reveal that the discourse of equity becomes silenced or overpowered in the presence of powerful discourses of accountability. It is to this extent, we contend, that a narrower version of accountability in the form of high-stakes testing serves to compound and complicate inequities in education. We offer the view that a more comprehensive framework for accountability in which teachers are supported and literacy projects are comprehensive and sustained moves closer to achieving, over the long run, the equity that is needed in literacy at the primary level in Jamaica.     

Mediated diffusion: Translating professional practice across schools in a high-stakes system

Educational systems across the globe are attempting to reshape the vertical and horizontal dimensions of school accountability. The vertical dimension involves devolution of responsibility to individual schools while the horizontal typically entails promoting the professionalism of leaders and teachers through school networks and school-to-school pairings. In many systems, these shifts occur within an environment of high-stakes accountability. Little is known about the ways that high-stakes consequences for individual schools shape the translation of professional practice across schools. The study reported here traces the diffusion of data-informed practices in a formal pairing of two primary schools in England—a school ranked as “outstanding” and a school in “special measures,” a persistently low-achieving school. Study findings trace the ways in which the threat of consequences under which the low-achieving school operates shapes the diffusion of professional practice across schools. The study details how the lead school brokered, or mediated, state requirements, co-constructing the supported school’s narrative of improvement. Findings from this study illuminate the ways that vertical relationships within the system of schooling influence horizontal relationships across schools. Clarifying the shaping of professional practice across schools is increasingly critical as patterns of provision of schooling proliferate and the links among the state and schools become increasingly complex.     

Searching for the Norm in a System of Absolutes: A Case Study of Standards-Based Accountability Reform in Pre-Kindergarten

Research Findings: The emergence of standards-based accountability reforms in early childhood education has created new challenges for the field. This article presents findings from a case study that explored how stakeholders in a large urban pre-kindergarten program struggled to implement an assessment tool that aligned the normative academic achievement expectations found among their teachers and administrators with the absolute measures of this construct found in their state policymakers' high-stakes standards-based accountability reforms. Analyzing the tension that emerged in this process of alignment highlights the challenges early educators face as they fold their child-centered programs into these larger high-stakes standards-based kindergarten through grade 12 education systems. Practice and Policy: The findings from this study illuminate the need for early childhood education programs to understand how high-stakes standards-based accountability reforms define student achievement. Furthermore, as early childhood programs and personnel address these reforms, their responses need to be explicit about how their assessment measures are connected to their normative conceptualizations of student achievement and what this means for the education of children in their programs.     

The Effect of Stakes on Accountability Test Scores and Pass Rates

Students may not fully demonstrate their knowledge and skills on accountability tests if there are no stakes attached to individual performance. In that case, assessment results may not accurately reflect student achievement, so the validity of score interpretations and uses suffers. For this study, matched samples of students taking state accountability tests under low-stakes and high-stakes conditions were used to estimate the effect of stakes on test performance and subsequent pass rates. Across five assessments, expected performance was greater under high-stakes conditions, with effect sizes ranging from 0.41 to 0.50 standard deviations and with students of lower ability tending to be slightly more affected by stakes. Depending on where cut scores were set, pass rates differed by up to 30% when comparing the low- and high-stakes conditions.     

More Unintended Consequences of High-Stakes Testing

This article explores the basis of negative sentiments toward and current critiques of high-stakes student testing from within the education profession. To promote some balance for current policy debates, evidence for 10 unintended, unrecognized, or unarticulated positive consequences is provided. The article concludes with an examination of the relationship between high-stakes testing and accountability systems.     

Validity of High‐Stakes Assessment: Are Students Engaged in Complex Thinking?

The validity of high-stakes assessments and accountability systems is discussed in relation to the requirements of No Child Left Behind (NCLB). The extent to which content standards and assessments are cognitively rich, the challenges in setting performance standards, and the impact of high-stakes assessments on instruction and student learning are addressed. The article argues for quality content standards, cognitively rich assessments, and a cohesive, balanced assessment system.     

Input-Guarantee Versus Performance- Guarantee Approaches to School Accountability: Cross-State Comparisons of Policies,Resources, and Outcomes

States' policy approaches to accountability tend to divide between a primary emphasis on input guarantees and a primary emphasis on performance guarantees. In the midst of keen controversies about the impact of high-stakes testing under the No Child Left Behind Act, this article examines separate and joint effects of input-guarantee versus performance-guarantee policies on reading and math achievement. Combining data from state policy surveys, the School District Finance Survey (F-33), and the Schools and Staffing Survey, the study examines 50 states' activism in test-driven external accountability policies and their support for key school resources (per-pupil spending, class size, in-field teaching). The school resources factor is not correlated with the accountability policy factor at the state level, implying that high-stakes testing pressure was not balanced with school support. Further, hierarchical linear growth models were used to examine interstate variations in the trends of National Assessment of Educational Progress 4th- and 8th grade reading and math scores. The effects of accountability policy alone were not significant in reading and math, whereas the joint effects of accountability and resources were significant in math. The findings suggest that the effects of accountability on academic achievement are moderated by the availability of school resources and that the states can help schools make greater academic progress by combining a performance guarantee approach with an input-guarantee approach.     

Care Ethics in Education

This article uses the Kentucky portfolio assessment to illustrate ways a sophisticated writing requirement can stimulate statewide professional development and school change. Though the authors question the accountability function of the assessment, they applaud the broad and deep professional development movement that has resulted because of it. They conclude that this particular high-stakes test has benefits for teachers and students that far outweigh its limitations as an accountability instrument.     

Using high-stakes grades to incentivize learning

I use a natural experiment in Norwegian high school to investigate how high-stakes grades affect students’ investment in schooling. By exploiting variation across space and time I compare the performance of students taking the same exit exam in compulsory school, but where the test is high-stakes for only a subset of students. Using a staggered triple-difference framework, I find that exam grades increase in the high-stakes setting if students have a sufficient number of prospective high schools within traveling distance. Results from low-stakes ability assessments suggest actual learning — and not test-taking strategy — could largely explain the effect.     

The impact of high-stakes testing on student proficiency in low-stakes subjects: Evidence from Florida's elementary science exam

An important criticism of high-stakes testing policies – policies that reward or sanction schools based on their students’ performance on standardized tests – is that they provide schools with an incentive to focus on those subjects that play a role in the accountability system while decreasing attention to those subjects that are not part of the program. This paper utilizes a regression discontinuity design to evaluate the impact of Florida's high-stakes testing policy on student proficiency in the low-stakes subject of science. We confirm prior results that students in schools facing more immediate sanctions under the policy made substantial gains in the high-stakes subjects of math and reading. Contrary to the crowding-out hypothesis, we find that students in these schools made substantial achievement gains in the low-stakes subject of science as well.     

Is the Physical Being Taken out of Physical Education? On the Possible Effects of High-Stakes Testing on an Embattled Profession’s Curriculum Goals

Building on recent discussions regarding how current national standards for physical education promote cognitive outcomes over physical outcomes, the authors explore how a new era in high-stakes testing is also contributing to an emphasis on the cognitive, over the physical. While high-stakes testing has been linked to reducing the amount of physical education schools offer, less attention has been given to the newest phase of high-stakes testing: the use of student achievement test data to evaluate teachers. To explore how this new high-stakes testing may influence physical education curriculum goals, the authors examine new teacher evaluation policies in New York State. The authors then propose an alternative rational for physical education. By promoting the physical—physical activity, exercise, and structured physical movement through physical education programming—physical education can play a unique and key role in creating the conditions for both student cognitive development and improved public health.     

Unintended Consequences of Test-Based Accountability When Testing in "Milepost" Grades

Educational accountability systems that use test scores as the primary measure of performance are in use in many states. Research has shown that such high-stakes testing can have negative consequences, including narrowing of the curriculum and overemphasizing decontextualized skills. This study examined the impact of a particular form of high-stakes testing, dubbed milepost testing, in which tests are only given at selected grade levels. Data were gathered in Kentucky at a time when state-mandated tests were given in some subjects in grades 4, 7, and 11, and in other subjects in grades 5, 8, and 11. This approach was used to reduce the cost and the burden of assessment and accountability. The study found that many of the effects identified in previous research were present when tests were only given in selected grade levels. This study documents substantial differences in practice between tested and nontested grades and draws implications for national testing proposals that are currently being debated.     

Changing the Subject: Neoliberalism and Accountability in Public Education

This article examines the relation between the rise of neoliberalism and accountability in education. I argue that the contemporary accountability system of high-stakes standardized tests and privatized school choice is a manifestation of the neoliberal project of cultural reconstruction and moral reform. This study situates neoliberalism in the context of the accountability movement that emerged in the United States around 1970, and examines the implications of the philosophy, culture, and ethos of neoliberalism for educational thought and practice. I argue that resisting neoliberal forms of accountability is crucial, not only to defending the right of students to a genuine and equitable public education, but to refusing the extension of market values and culture to education. I conclude that neoliberal accountability fails to engender the cultural ideals it professes to value, and that this failure makes it possible to challenge the self-evident nature of neoliberal discourse and practices.     

Responses of schools to accountability systems using multiple measures: the case of New York City elementary schools

Many studies point to potential unintended consequences of accountability systems such as when schools narrow their teaching to fixate on tested subjects. As a result, some states and districts in the USA have complemented the federal test-based accountability system with additional measures of educational practices to hold schools accountable on multiple measures. To explore the consequences of such systems, this study focuses on the responses of nine elementary schools to a multiple-measure accountability system in New York City, including high-stakes tests and quality reviews. While some schools showed broader improvement efforts, results suggest the state test remains the dominant measure in driving responses of schools, and in some cases, the quality review further reinforces the schools' focus on the test.     

Historical High-Stakes Policies Relating to Unintended Consequences of High-Stakes Testing

Current high-stakes, standardized testing policy is discussed through historical analogy with Chairman Mao's famine in China and the Maginot Line in France. Both of these national, high-stakes policies resulted in catastrophic failure. If the accountability movement's goals are to improve our ability to compete economically with other nations, we may also be heading for failure. Assessment should be aligned with the skills and knowledge crucial to our success in the future such as collaboration, experimentation, and comfort with ambiguity. Funds currently allocated to standardized testing should be reallocated to the development of measures for such skills and knowledge.     

Have State Accountability and High-Stakes Tests Influenced Student Progression Rates in High School?

The question addressed in this paper is whether there are signs that students' progression through high school to graduation has been affected by the efforts to increase school accountability, including high-stakes exit exams. If such accountability systems were able to raise student academic performance significantly in elementary and middle school, these same students should be more likely to succeed academically in high school and graduate with their cohort. If state accountability systems also attempt to raise minimum standards for high school graduation by requiring exit tests, as many do, this could have the opposite effect of lowering high school graduation rates by putting yet one more barrier in the way of lower-performing students completing requirements.     

<Emphasis Type="Italic">Assistencialism</Emphasis> and the Politics of High-Stakes Testing

In this article I argue that the current high-stakes testing accountability model is an assistencialist model, derived from deficit thinking paradigms. Such models, like the No Child Left Behind Act, sanction low performance with serious consequences for students and educators. Drawing from Freire, I propose an anti-assistencialist accountability model based on local community culture and needs that would include critical, problem-posing education, dialogue as a means toward raising social consciousness, and appropriate assessments according to local community needs. I further argue that such an accountability model can be implemented through cultural immersion programs that include three levels of immersion, (1) classroom culture, (2) local community culture, and (3) trans/cultural, or transnational exposure.     

A New Politics of the Principalship? Accountability-Driven Change in New York City

How do principals adjust to new standards and measurement rulers of school performance when they are coupled with high-stakes consequences? Adopting a contingent view of leadership and a multiple accountabilities framework, this qualitative study explores how high school principals enacted their accountability in New York City, by comparing two periods: just before such policy changes took effect and just after. We observed large differences in principals' attention to external political, bureaucratic, and market accountabilities; how much accountability conflict or alignment was experienced; and how principals' sense of professionalism was constructed. These differences may portend a new politics of the principalship.     

The Elusive Relationship Between Teacher Characteristics and Student Academic Growth: A Longitudinal Multilevel Model for Change

Teacher characteristics and student achievement growth are currently a significant topic of investigation in the educational accountability arena. Given the environment of high-stakes accountability associated with the No Child Left Behind (NCLB) legislation and state accountability systems, staffing all classrooms with highly qualified teachers is a critical national concern. A new era of research is needed to understand the complexity of teacher quality when defined by student learning growth. The present study evaluated the effects of teacher characteristics (i.e., experience, education, and race) in high school reading achievement gains using a multi-level growth model in an urban school district in Kentucky. Findings showed significant effects of time, but non-significant effects of teacher characteristics in high school reading achievement growth. Implications for educational policy and future research are discussed.