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Programme for International Student Assessment

Scholastic performance study by the OECD

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The results of the 2022 data collection were released in December 2023.

Influence and impact

PISA, and similar international standardised assessments of educational attainment are increasingly used in the process of education policymaking at both national and international levels.

PISA was conceived to set in a wider context the information provided by national monitoring of education system performance through regular assessments within a common, internationally agreed framework; by investigating relationships between student learning and other factors they can "offer insights into sources of variation in performances within and between countries".

Until the 1990s, few European countries used national tests. In the 1990s, ten countries / regions introduced standardised assessment, and since the early 2000s, ten more followed suit. By 2009, only five European education systems had no national student assessments.

The impact of these international standardised assessments in the field of educational policy has been significant, in terms of the creation of new knowledge, changes in assessment policy, and external influence over national educational policy more broadly.

Creation of new knowledge

Data from international standardised assessments can be useful in research on causal factors within or across education systems. Mons notes that the databases generated by large-scale international assessments have made it possible to carry out inventories and comparisons of education systems on an unprecedented scale on themes ranging from the conditions for learning mathematics and reading, to institutional autonomy and admissions policies. They allow typologies to be developed that can be used for comparative statistical analyses of education performance indicators, thereby identifying the consequences of different policy choices. They have generated new knowledge about education: PISA findings have challenged deeply embedded educational practices, such as the early tracking of students into vocational or academic pathways.

Barroso and de Carvalho find that PISA provides a common reference connecting academic research in education and the political realm of public policy, operating as a mediator between different strands of knowledge from the realm of education and public policy. However, although the key findings from comparative assessments are widely shared in the research community the knowledge they create does not necessarily fit with government reform agendas; this leads to some inappropriate uses of assessment data.

Changes in national assessment policy

Emerging research suggests that international standardised assessments are having an impact on national assessment policy and practice. PISA is being integrated into national policies and practices on assessment, evaluation, curriculum standards and performance targets; its assessment frameworks and instruments are being used as best-practice models for improving national assessments; many countries have explicitly incorporated and emphasise PISA-like competencies in revised national standards and curricula; others use PISA data to complement national data and validate national results against an international benchmark.

External influence over national educational policy

PISA may influence national education policy choices in a variety of ways. Participation in international assessments like PISA has been linked to significant education policy changes and outcomes, such as higher student enrollments and education reforms. However, critics have argued that participation could lead to undesirable outcomes, such as higher repetition rates and narrowing of curricula. The impact of PISA may also vary according to the specific country context.

Policy-makers in most participating countries see PISA as an important indicator of system performance; PISA reports can define policy problems and set the agenda for national policy debate; policymakers seem to accept PISA as a valid and reliable instrument for internationally benchmarking system performance and changes over time; most countries—irrespective of whether they performed above, at, or below the average PISA score—have begun policy reforms in response to PISA reports.

Against this, impact on national education systems varies markedly. For example, in Germany, the results of the first PISA assessment caused the so-called 'PISA shock': a questioning of previously accepted educational policies; in a state marked by jealously guarded regional policy differences, it led ultimately to an agreement by all Länder to introduce common national standards and even an institutionalised structure to ensure that they were observed. In Hungary, by comparison, which shared similar conditions to Germany, PISA results have not led to significant changes in educational policy.

Because many countries have set national performance targets based on their relative rank or absolute PISA score, PISA assessments have increased the influence of their (non-elected) commissioning body, the OECD, as an international education monitor and policy actor, which implies an important degree of 'policy transfer' from the international to the national level; PISA in particular is having "an influential normative effect on the direction of national education policies". Thus, it is argued that the use of international standardised assessments has led to a shift towards international, external accountability for national system performance; Rey contends that PISA surveys, portrayed as objective, third-party diagnoses of education systems, actually serve to promote specific orientations on educational issues.

National policy actors refer to high-performing PISA countries to "help legitimise and justify their intended reform agenda within contested national policy debates". PISA data can be "used to fuel long-standing debates around pre-existing conflicts or rivalries between different policy options, such as in the French Community of Belgium". In such instances, PISA assessment data are used selectively: in public discourse governments often only use superficial features of PISA surveys such as country rankings and not the more detailed analyses. Rey (2010:145, citing Greger, 2008) notes that often the real results of PISA assessments are ignored as policymakers selectively refer to data in order to legitimise policies introduced for other reasons.

In addition, PISA's international comparisons can be used to justify reforms with which the data themselves have no connection; in Portugal, for example, PISA data were used to justify new arrangements for teacher assessment (based on inferences that were not justified by the assessments and data themselves); they also fed the government's discourse about the issue of pupils repeating a year, (which, according to research, fails to improve student results). In Finland, the country's PISA results (that are in other countries deemed to be excellent) were used by Ministers to promote new policies for 'gifted' students. Such uses and interpretations often assume causal relationships that cannot legitimately be based upon PISA data which would normally require fuller investigation through qualitative in-depth studies and longitudinal surveys based on mixed quantitative and qualitative methods, which politicians are often reluctant to fund.

Recent decades have witnessed an expansion in the uses of PISA and similar assessments, from assessing students' learning, to connecting "the educational realm (their traditional remit) with the political realm". This raises the question of whether PISA data are sufficiently robust to bear the weight of the major policy decisions that are being based upon them, for, according to Breakspear, PISA data have "come to increasingly shape, define and evaluate the key goals of the national / federal education system". This implies that those who set the PISA tests – e.g. in choosing the content to be assessed and not assessed – are in a position of considerable power to set the terms of the education debate, and to orient educational reform in many countries around the globe.

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