Education Journal



《全港性系統評估檢討報告》的批判:政策評鑑研究的視域

2016.第44卷第1期(Vol. 44 No. 1).pp. 195–212
 

《全港性系統評估檢討報告》的批判:政策評鑑研究的視域

A Critique on the Report on Review of the Territory-wide System Assessment: In the Perspective of Policy-evaluation Research

曾榮光(Wing-Kwong TSANG)

摘要

2016年2月29日,教育局在網上發布了《全港性系統評估檢討報告》(下稱《檢討報告》)。縱觀這份報告,都找不到任何政策檢討及評鑑研究應有的關於政策效果及/或後果的實徵分析及論證;然而報告卻能斷定可以「肯定系統評估的設立原意及價值」,並建議只要對實施細節稍作調整,就可以繼續「於2017年在全港實施」。本文正是要從公共政策檢討及評鑑的視域及方法出發,從三方面對《檢討報告》加以批判。第一,對《檢討報告》「肯定系統評估的設立原意及價值」是「回饋學與教」的立論加以質疑與批判。第二,從實徵角度論證實施了十年的系統評估根本就沒有實現《檢討報告》聲稱的「回饋學與教」的一種「進展性評估」應有的政策效果,即為未達標的學生提供「補底」的教學支援,相反卻對全港學校、教師、學生及家長造成巨大的應試操練壓力這種政策後果。最後,本文對《檢討報告》的主要政策建議更不表贊同,並認為根本沒有必要繼續每年強迫全港小三、小六及中三近十萬名學生參加這個評估。若單從系統性評估的角度,一個隨機抽樣的小樣本學校評估就可達到目的。

關鍵詞:全港性系統評估;進展性評估;總結性評估;質素保證機器;政策評鑑研究

Abstract

On 29 February 2016, the Report on Review of the Territory-wide System Assessment (TSA) was released on the official website of the Education Bureau of the HKSAR government. In this report, we cannot find any empirical analysis or justification on the effects and consequences of the policy in point, as we would expect of any formal policy-review study; yet we are told to accept its conclusion that the intent and value of the TSA is worth to be “reaffirmed” and what is needed is some tinkering on the implementation procedures. As a result, we are also told to accept the fact that the “improved” TSA will be launched in 2017 for “territory-wide implementation.” In this article, the Report will be examined and critiqued from the perspective of policy-evaluation research. First, the article will query and critique the basic premise assumed by the Report, that is, “the intent and value of the establishment of TSA” is “to provide feedback to learning and teaching.” Second, it will argue empirically that for the last ten years, the TSA policy has failed to serve as an effective formative-assessment instrument to provide relevant feedbacks and supports to learning and teaching of students, especially those who are lagging behind in the Basic Competence Assessment. On the contrary, the article will argue that the TSA policy has espoused a policy consequence of unleashing a wave of pressure of teaching for testing, which has been permeating widely among schools, especially primary schools in recent years. Finally, the article will take issue with the primary policy recommendation of the Report. It will argue that it is totally unnecessary to continue a “territory-wide” TSA to mandate all students of Primary 3, Primary 6 and Secondary 3 to sit for the assessment annually. The article will suggest that the coverage of the TSA can be scaled down to a randomly selected sample of schools, and argue that such a scaled-down TSA could still provide reliable and valid evidence for the school performance at system level.

Keywords: Territory-wide System Assessment; formative assessment; summative assessment; quality-assurance mechanism; policy-evaluation research