Radical
Statistics
Planning with Numbers: The National Grid for Learning, Statistical Support for a Technological Fix for Schools in the Information Age?
Claire Tupling
Introduction
This paper focuses on the statistical bulletin ‘Information and Communications Technologies in Schools’. It asks if and how, as an example of planning with numbers this publication supports the National Grid for Learning as a ‘technological fix’.
What is a ‘technological fix’? On the one hand it describes the use of technology as a means to solving problems. However, the phrase is not always complimentary. In this paper I seek to challenge the ‘technological fix’ as a method for solving social problems. I seek to challenge the application of and reliance on technology alone, as ways of addressing social problems, in this case educational underachievement. Behind this criticism is a belief that technology has no ability of it’s own to fix society’s problems. In other words I am challenging what may described as ‘technological determinism’. I will explain later how the NGFL can be described as a ‘technological fix’. An introduction to several examples of technological fixes can be found at: http://people.clemson.edu/~pammack/lec122/techfix.htm.
It is intended that parallels may be drawn between the ‘technological fix’ and the resistance to an uncritical reliance on statistics.
I attempt to draw a distinction between two types of planning with numbers; First, the use of statistical information as an effective feedback mechanism which in this case could be used by the education sector to compare the use of and plan the development of the NGFL in individual schools, Second the use of statistics to justify and push forward an existing policy. I aim to demonstrate that the statistics used to evaluate the NGFL are suited more to this latter example of planning with numbers.
In addition I hope that this paper will explore the possibility that this use of statistics supports the idea of the NGFL as ‘technological fix’.
This paper will attempt to critically analyse the statistical methods used by the Government as a means of evaluating and monitoring the National Grid for Learning. It will assess the implications for the future development of the NGFL and wider social policy.
The National Grid for Learning
The National Grid for Learning launched in 1998 aims at ‘connecting the learning society’ (DFEE, 1997). The Government’s vision of a ‘Learning Society’ aims to enable life long educational opportunities. This is a response to the perceived needs of the ‘Information Society’ where technological change requires new skills. The term ‘Knowledge Society’ can be used as an alternative to both the ‘Learning Society’ and the ‘Information Society’. Connection to the ‘Learning Society’ requires Information and Communications Technologies.
Through ICTs the policy aims to link all schools, universities, community centres, libraries and museums via the Internet to the NGFL. In order to achieve a Learning Society electronic content provided must be available not only from within these institutions but accessible from homes, workplaces and any other places learners find convenient. The NGFL is an important part of the Government’s wider information age strategy in the form of UK Online, through which Government services are to be accessible via ICTs.
The NGFL as a technological fix:
ICTs are credited with many capabilities which the NGFL will be able to exploit. In particular the NGFL will be able to fix the problems facing education. Problems facing the current education system is a theme running through Connecting the Learning Society. This was the consultation document that outlined the proposals for the NGFL. Although not stated explicitly there are several claims in this document that education in the UK needs fixing with new technologies. The NGFL is credited with the ability to raise educational standards. In particular the NGFL is designed to be used to improve levels of literacy and numeracy (DFEE, 1997:36).
Raising educational standards is a priority for this Government. Michael Barber who was appointed by Tony Blair to be head of the DFEE’s Standards and Effectiveness Unit describes that how, despite increased numbers of pupils achieving GCSEs and A-Levels, educational standards in England fall behind many of our European and other International competitors (Barber, 1997).
The current education system also requires a technological fix because as Tony Blair states "[c]hildren cannot be effective in tomorrow’s world if they are trained in yesterday’s skills" (DFEE, 1997:foreword). This reflects a belief that the current education system is suited to the needs of an industrialised society but that this is inadequate for the needs of a post-industrialised or information society . Thus, the Government believes that an injection of ICTs is the fix that is required if pupils are to have the skills needed for working in the technologically intensive information society. Although the need for a workforce trained with information skills is not an assumption that is universally shared. For example Jeremy Rifkin in an article for the New Statesman and Society (1995) challenges the belief that an information society will necessarily mean the continuation of employment through knowledge related jobs. He suggests that an Information Society could mean the end of work as technology replaces the need for human labour.
The fix of the National Grid for Learning is also apparent in that Connecting the Learning Society claims the NGFL will be all things to all involved in education. For example ICTs will help school children with their learning, ICTs will be beneficial to learners with special needs. Parents will benefit from ICTs because the NGFL can be used for communication between home and school. Teachers will benefit because ICTs will reduce their burdens and provide access to resources and support. The administrative responsibilities of schools will be fixed by ICTs because they will reduce the need for paperwork and speed up communications (DFEE, 1997; DFES, 2002).
Measurable Targets of the NGFL:
As a part of the overall aims of the NGFL already outlined several targets or ‘outputs’ have been set for the NGFL. Information on progress towards these targets are produced as official statistics in the bulletin ‘Informations and Communications Technologies in Schools’.
Specific targets include an Internet connection in all schools by the end of the summer term this year (2002). Other targets relating to infrastructure involve the ideal computer to pupil ratio. By the same date primary schools should have a ratio of 1 computer for every 11 pupils. For secondary schools the ratio should be higher with 1 computer for every 7 pupils.
The NGFL is also designed to increase a school’s expenditure on ICT in view of the importance that is placed on this technology within schools. To aid schools with purchasing ICT resources can be accessed via the Standards Fund subject to approval of their ICT plan.
From 2002 ICTs are intended to become the normal medium of communication for administrative purposes between schools and the Department for Education and Skills (as well as Ofsted). In particular the Information Management Strategy used in January to transfer The Pupil Level Annual School Census (or PLASC) between schools, LEAs and the DFES. Therefore all schools require at least one Internet enabled computer for administration purposes.
A programme of professional development aims to ensure that teachers have the relevant skills as well as the confidence to teach using ICTs. As from 1999 newly qualified teachers enter the profession having received training in using ICT to assist their teaching. Money from the New Opportunities Fund has been allocated to train existing teachers in the use of ICT by 2002.
What will hardware and teacher training provide? Infrastructure and professional expertise is intended to provide access to educational online content. For example museums are being offered NOF grants to provide access to their resources via the Internet. The professional development of teachers is to be supported through ICTs and teachers are to be given personal email addresses and encouraged to make use of resources such as the Virtual Teachers Centre (http://vtc.ngfl.gov.uk).
Statistical methods of policy evaluation
Statistics collected by the Government which are used to monitor and evaluate the progress towards achieving the NGFL targets are published in the annual statistical bulletin ‘Statistics of Education: Survey of Information and Communications Technology in Schools’. This is published by the DFES and the Office for National Statistics. It first appeared in 1988 but became annual when the NGFL was launched. At this time Communications was added to the IT in the title making ICT. The statistics are derived from a questionnaire sent to a random sample of all schools in England. The format of this publication involves summary tables, graphs and charts. The survey results from 1998 are publicly available from the DFES website as well as from the Stationery Office. The statistical bulletin is also sent to LEAs.
The importance of the results of this survey for Government is evident in a number of ways. All surveys sent to schools by Government departments have to pass through a chamber of scrutiny at the DFES. This process examines surveys and research to ensure that schools are only asked to take part in research that is relevant to current policy.
The importance of Government statistics as a method for policy evaluation is stated in Connecting the Learning Society:
the collection of statistics by the UK Education Departments should be focused on assessing progress towards achieving the new targets for ICT and the implementation of the Grid; and avoiding false impressions based on obsolete equipment (DFEE, 1997:66).
The findings of these surveys have been used as evidence to demonstrate the success of the NGFL policy. For example, prior to the publication of the bulletin a DFES press release stated ‘Virtually all schools are now connected to the Internet’ (DFES, 2001).
Uses of Statistical Bulletins
The figures published annually by the DFES are an important source of information regarding ICTs in schools.
As the figures are derived from a questionnaire which is similar each year the information contained in the bulletins can be compared with the results of previous and future year’s surveys. This makes the information very powerful as the impact of the NGFL policy over it’s duration can be monitored and trends identified. This can be used to evaluate the policy over time identifying shortcomings before the policy has reached its end date, enabling possible remedial action through intervention. They represent a comprehensive set of information. The figures are national, regular and they relate directly to NGFL targets. The information can be used to make a judgement as to whether the targets of NGFL are being achieved across the country.
What the figures reveal
The latest figures revealed by the DFES show that by the date of the survey, in spring of 2001 nearly all schools were connected to the Internet. There are slight differences by type of school. More than 99% of secondary schools, 96% of primary schools and 97% of special schools were connected to the Internet. Overall 97% of all schools have an Internet connection. The level of Internet connectivity has increased during the existing lifetime of the NGFL. As the chart indicates Internet connectivity increased dramatically in the first two years of the Grid’s existence. Most schools obtained an Internet connection during this time.
Click HERE for Figure 1.
Has the National Grid for Learning therefore been a resounding success?
Limitations of Statistical Bulletins
The answer is a decisive Yes and No.
The figures support the Government by demonstrating that many of the targets have been met or are well on the way to being met by the target date. In this sense the NGFL could be claimed to be successful if it is seen as a technological fix.
I believe the statistical bulletins support a ‘technological fix’. They do this because the statistics focus on the crude technological orientated targets of the NGFL. This limits this method as a mechanism for effective policy evaluation.
The statistics produced by the DFES are not value neutral evidence of the implementation of the NGFL. The format in which the statistical information is presented does not produce an unbiased view of the effectiveness of the NGFL policy.
This is not to argue that the figures are inaccurate or that the methodology for gathering the data is flawed. The evaluation possibilities of the data is limited because information is provided for percentage related, or ‘threshold’ targets of the NGFL. These do not provide schools and others with statistical information from which they are able to make comparisons with a view to developing the NGFL at a local level.
The figures providing the percentage of schools that are connected to the Internet can be misleading. These figures provide information on one of the key targets of the NGFL, to connect all schools to the Internet by 2002. The question that this figure is derived from asks, ‘Is your school connected to the Internet?’. This key figure therefore includes any school that has at least one computer from which it is possible to connect to the Internet. The information provided maybe accurate but it is not explanative.
In 2001 there was an average of 20.7 computers per primary school. This is of limited use in planning resources for an LEA and schools themselves when this figure fails to take account of the different sizes of schools. It is meaningless for a school to aim towards having the average number of computers. Again in 2001 there was an average number of 12 computers linked to the Internet in a primary school. This perhaps tells us more about the access to the Internet within schools than does the figure telling us the percentage of schools connected to the Internet. It is still of limited use to schools themselves for these reasons. The Government can use these figures to demonstrate the number of computers in schools has increased and alongside that, the numbers of Internet connections within schools has also increased during the lifetime of the NGFL.
The pupil to computer ratio can also be used by the Government in this way to claim it is meeting its targets.
The NGFL is not totally technologically orientated. The important role of teachers is demonstrated through the commitment of the Government to train existing teachers in using ICT in their teaching (through the NOF) and in the support mechanisms provided online via the NGFL. However this information appears to be missing from the statistical bulletins despite it’s claimed importance. It is even more strange that this information was collected in the survey from which the data in the bulletin is derived. Question 9 g of the most recent survey asks:
"Under the New Opportunities (National Lottery) Funded training in the use of ICT, how many staff:
Have already completed ICT training?
Have already started, but not completed ICT training?
Are scheduled to undertake ICT training?" (DFES, 2001, Survey Form)
The omission of the results to this question leaves a gap of important and potentially valuable information. What could the reasons be? Could the omission be so that potentially embarrassing information is not disseminated? If this were the case then does this undermine this method of policy feedback?
Conclusions
The statistics used by the Government to evaluate the NGFL serve their purpose of indicating progress towards the crude targets of the NGFL.
Statistics are presented as accurate, reliable and informative because they are apparently ‘value free’. This method focuses on the technological aspects of the NGFL and supports the NGFL as a technological fix.
I believe that the statistical bulletins have a potential to enhance planning with numbers. Distribution figures would be helpful as averages are subject to extremes. The average pupil to computer ratio could be broken down into size and location of schools to enable better comparison between schools themselves. Socio-economic information would also serve the purpose of assessing whether this policy was benefiting all types of schools. The NGFL is centrally important to current education policy so is a random sample of schools the best way of obtaining this statistical information. The survey from which this information is derived from is voluntary. I haven’t mentioned what the possible implications of this are. Could it be that schools who have embraced the NGFL are more likely to take the time to respond? Should not information be collected as part of the schools census as the NGFL, the information would then be more comprehensive, which would reduce the error involved in estimation.
Qualitative information could also be useful. These national figures show what equipment there is and what subjects are using ICT. They do not reveal a great deal about how a school integrates ICT or the NGFL into its curriculum. We may also know that nearly all schools are connected to the Internet but we really don’t know if this connection is being used at all.
The DFES has other methods by which it is evaluating the success of the NGFL. For example Ofsted inspections and related reports. The British Educational Communications Technology Agency (BECTA) has published several research reports regarding the effectiveness of ICT on educational achievement. These may go some way to filling the gaps.
The aims of the NGFL, are to create a learning society and remove barriers to learning. These are not covered currently covered in the statistical bulletins designed to evaluate the NGFL. I hope I’ve gone some way to questioning how these aims are going to be evaluated.
References:
Barber, Michael (1997) The Learning Game: Arguments for an Education Revolution, London: Indigo.
DFEE (1996) Survey of Information Technology in Schools.
DfEE (1997) Connecting the Learning Society, National Grid for Learning: The Government's Consultation Paper.
DFEE (1998) Survey of Information and Communications Technology in Schools.
DFEE (1999) Survey of Information and Communications Technology in Schools.
DFEE (2000) Statistics of Education: Survey of Information and Communications Technology in Schools, England.
DFES (2001) Statistics of Education: Survey of Information and Communications Technology in Schools.
DFES (2001) Virtually all Schools are now connected to the Internet - Ashton DFES Press Release 04 September 2001.
DFES (2002) The School of the Future will Radically Transform Learning: Estelle Morris, DFES Press Release 09 January 2002.
Rifkin, Jeremy (1995) ‘The end of work?’, New Statesman and Society, 9th June 1995, pp18-21.
