Critiquing the World Development Report
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What is the connection between education and the economy? For many neoclassical economists, the connection is found in Human Capital theory.
My guest today, Professor Steve Klees, thinks human capital theory and rates of return analyses are very problematic.
In our conversation, Steve talks about his new article, “Human Capital and Rates of Return: Brilliant Ideas or ideological dead ends?”, which can be found in the latest issue of the Comparative Education Review. He takes us through human capital theory, its internal logical fallacies, and proposes a set of alternatives.
Steve Klees is a professor of International Education Policy in the College of Education, University of Maryland.
Citation: Klees, Steve, interview with Will Brehm, FreshEd, 54, podcast audio, December 5, 2016. https://www.freshedpodcast.com/steveklees/
Will Brehm 1:45
Steve Klees, welcome to FreshEd.,
Steve Klees 1:52
I’m very glad to be here. Thank you for having me.
Will Brehm 1:55
You are an economist by training. But you have spent most of your career in the comparative and international education field. How do economists typically think about, or look at education?
Steve Klees 2:12
That’s a huge question, but the answer really depends on what kind of economist you’re talking about; they’re different schools of thought. But the the main dominant school of thought is called neoclassical economics. And neoclassical economics is really about competitive capitalist market systems. And within that education is a very important piece of understanding education, economics and development. In particular, neoclassical economists have developed something they call “human capital theory” that is a framework for understanding education’s role in the economy and in society.
Will Brehm 3:10
And how is human capital theory measured? How do economists see human capital?
Steve Klees 3:22
Well, human capital is a latecomer to economics, to neoclassical economics. Neoclassical economics goes back to Adam Smith, and the Wealth of Nations in the 1700s and the term “neoclassical” actually was coined at the end of the 1800s, and it’s about how a competitive market system operates. Human capital theory wasn’t developed till the late 1950s, early 1960s. Prior to human capital theory, economists understood the economy in terms of supply and demand, you’d always see economists talking about supply and demand – of small companies, small firms, small households competing with each other – and trying to understand how that competition worked, what you got out of it, how a market system worked.
Prior to human capital theory, economists had a lot of difficulty understanding labor and work. Labor prior to human capital theory was an anomaly. It wasn’t something you could talk about in terms of supply and demand. The economists in those days, in the 50s, look more like sociologists; it was a whole field of labor economics where they studied real world labor, they studied strikes, they studied unions, they studied how large firms operated. But education didn’t really fit into that structure at all – that way of thinking. And there were odd people out in neoclassical economics because they were more like sociologists, and they weren’t talking about competitive market structures and supply and demand, and human capital changed all that
Will Brehm 5:28
How so?
Steve Klees 5:29
Well, it really made economists able to talk and think about education and labor. Labor, especially, as a commodity like any other commodity that’s bought and sold on a marketplace, that has a price, that’s determined by supply and demand in the marketplace. Human Capital theory developed because it was explaining puzzles. People were trying to understand how economies grew. And they understood that there were more workers, and there was more capital investment, but they didn’t really have any idea about quality of work. And the whole idea of human capital, was it explained better, to neoclassical economists anyway, why some countries grew faster versus slower. They called it a revolution in thought, and the idea behind it was essentially simple – that education wasn’t just a consumer good, it was an investment. It was an investment in individuals, and it was an investment by society and societal development.
Will Brehm 6:48
So in a sense, it would be that if an individual were to receive education, or more education than another, they or he or she would be more productive in an economy, and maybe measured through income? Is this the way the neoclassical economists were seeing this?
Steve Klees 7:12
Yes. They looked at two outcomes of education in particular They looked at earnings, and they weren’t interested in private benefits as much; earnings were a benefit to you, income is a benefit to you. But they were interested in, within their framework earnings as a proxy for people’s productivity, like you said. And so, they were trying to get a handle on education’s connection to individual productivity. And secondly, education’s direct influence on economic growth, its effect on gross national product. So you saw starting in the 60s, lots of studies of the “rate of return”, they called it, the return on investment. So education in terms of earnings as a proxy for productivity, and in terms of economic growth measured by gross national product.
Will Brehm 8:15
So based on the rate of return methodology is is some education better than other education for foreign economy or for foreign individuals’ productivity?
Steve Klees 8:27
Yes. I should explain a little bit about rates of return. Rates of return are a measure of benefits and costs. In neoclassical economics, the private sector is motivated by profit. Profit is a signal that this endeavor is valuable. Adam Smith talked about the invisible hand of supply and demand working in the public interest. That’s the profits supposedly representing where peoples’ benefits exceed their costs; where the outcome of whatever you’re making, tables or software or whatever, the benefits exceed the costs. And so economists were looking for something as analogous to that in the public sector. So the idea was to explicitly study the benefits and costs of public sector activities, whatever field, education, health care, environment, transportation, and rate of return is a summary measure, after you figure out what are all the benefits to an education investment, what are all the costs of that investment, and it’s a summary measure to try and get at – gosh, you know, you’re making 20% on your investment, the benefits exceed costs by 20%. And so that’s applied to lots of different types of educational activities, and other sector activities, to study the returns to education, of various types of vocational education versus academic education; of higher different levels of education, higher education versus early childhood, or primary education; different programs of education. Anything where you can find reasonable monetary measures of outcomes. Sometimes you can’t do that, you’re just looking at test score differences between different programs. And then economists do a more limited array of what they call “cost effectiveness” analysis. But mostly economists really like to go after cost-benefit analysis, because that gives them a metric that they can compare with returns in the private sector: Is this a better investment to take your money out of the private sector, tax it and put in an education or health care or environmental protection?
Will Brehm 11:13
This sort of thinking of cost-benefit analysis of education to an economy, do you see this is problematic in anyway?
Steve Klees 11:24
Yes, the paper you mentioned that I did, and actually much of my work over the last – I hesitate to say it – 40 years (I’ve been working in this field for a while) has been with the problems of neoclassical economics, generally. And more specifically, with the internal dynamic, the internal problems with that field that gives you measures like benefit-cost studies of rates of return. My work has been recently basically saying that even not taking in a critical outside neoclassical economics look, which we can talk about in a little bit, of political economy perspective, for example. But even if you take the neoclassical economics perspective, there are so many problems within that framework, that for me, the benefit-cost analysis/rate of return type measures just fall apart; that they become almost meaningless.
Will Brehm 12:41
How, so? Let’s dig into it, human capital theory, rates of return analyses. If you’re saying that there are problems of the internal logic of neoclassical economics for human capital theory, and for rates of return analysis, can you can you dig more into that? Like how, so? What are some examples of this?
Steve Klees 13:05
I don’t know whether to start with the details or the broader picture. Let me just start with the broader picture, because I think, then the problems with the details become clearer. And the broader picture really revolves around one central idea of neoclassical economics, and that’s the idea of economic efficiency or societal efficiency. They sometimes called it Pareto efficiency after an Italian economist a century ago called Pareto, and it’s a complex idea that I find completely unsound and unreal. And I’ll try and explain the idea briefly, explain why I think it’s unsound, and then give you how it manifests itself in this cost-benefit/rate of return type studies. So efficiency is something, you know, it’s a common sense concept. So to us, people talk about efficiency of this or that; it’s an engineering concept, it’s a physics concept of, you know, you can do more with less somehow. But in education, you can talk about it sensibly, right? Limited ideas of efficiency, like you can talk about an educational system as inefficient because it has a lot of dropouts, or a lot of people repeating grades, or a lot of people who aren’t learning much. So there’s a common sense idea of efficiency that makes sense to all of us. And I have no objections to that. It’s the economist concept of efficiency that’s problematic. And that’s not about an individual sector or individual project, as much as it’s the overall society is deemed economically efficient if it operates according to the assumptions of a very highly competitive market framework that in abstract neoclassical economics discussion is called “perfect competition”. Perfect competition is a competitive system that is so highly competitive that you’ve got many buyers and many sellers of identical products: that nobody’s big, nobody can influence prices, they’re all taking prices in the market, they’re all small potatoes. Consumers and producers are the two major motivators and movers of the economy. Consumers are just out there maximizing their happiness, and producers are just out there maximizing their profits. And if everything functions according to, and information is perfect, you know everything about everything. If you operate according to these simple assumptions, the whole economy is deemed efficient. And what they mean by that is that somehow, not only is there no waste, you’re you’re doing everything as cheaply as you possibly can. But you’ve got the right balance of everything, the correct balance of everything. So you’re producing the right amount of chairs and tables, and movies and hamburgers, and software. There’s something called “correct balance”. And that’s what’s efficient in this. And it’s completely separable from their other major concept, which is equity or fairness or the distribution of these things. So the distribution is sort of irrelevant to efficiency. You can have an efficient society in which half the people in the world are starving. That’s that can be efficient, because efficiency is just about those people who have effective demand, meaning they have money. And they can wave that money in the marketplace and demand goods and services. And so efficiency is really to economists about forgetting equity, forgetting distribution. Are we producing as much as possible with the inputs of land/labor/capital/technology that we have? In the theory, and in practice, this is just simply absurd.
There’s actually in theory neoclassical economists have something called “second best theory”. And second best theory says that if you don’t live in the first best world of perfect competition with all those tight assumptions – unreal, impossible assumptions – but let’s say have one monopoly in one sector in which everything else is highly competitive, second best says in the second best world with just one imperfection, you have no idea if the economy’s efficient at all, there’s no idea if it’s close to efficient at all. Because this framework is so tight that you only get this overall efficiency of the correct balance of things if prices are the accurate signal sending benefit and costs signals to producers that act in the public interest. With one price off, all of the prices are affected. So in practice, efficiency demands, for example, that you have the correct balance, the correct inputs balance of producing yachts for rich people and rice and beans for poor people. Well, that’s just a distributional issue to me. That’s an equity issue to me. There’s no right balance of yachts and rice and beans; there’s no right balance of computer software, higher education, early childhood education, nutritional programs, roads building. There’s no correct balance of that. And in practice, there’s just no vantage point in the sky. That’s what this efficiency idea is. Where you could separate what we produce from who gets it. They’re all integrally tied in practice. And this is what in practice they’re trying to do with cost-benefit analysis of rate of return: get an idea of whether something in particular is efficient or not.
Will Brehm 20:06
Just hearing that, it just makes me think that the theory of the world in neoclassical economics doesn’t match the reality that I live in. I mean, certainly people do not have perfect information when it comes to to buying anything. But at the same time, I also think that this separation of equity and distribution from efficiency seems to have actually happened. The world I see today, there seems to be a huge gap between the rich and the poor, that those eating rice and beans and those on their yachts.
Steve Klees 20:48
Yes, absolutely. The real world today is very problematic in terms of distribution, as we all know. In terms of equity.
Will Brehm 21:04
How is this embodied in rates of return?
Steve Klees 21:08
The whole efficiency framework is translated into guidelines for the public sector through cost-benefit analysis. And not costs and benefits to private individuals they’re after, they’re after costs and benefits to society as a whole. Because they want to correct the market, to account for all the costs and benefits to society as a whole. And so if you’re thinking about education, you think about the benefits of education. They buy benefits in terms of earnings to an individual. That’s a benefit to society if earnings reflect productivity. That’s problematic because earnings are a price, and prices are distorted in real world economies. So there’s no reason to believe that earnings reflect productivity at all. Earnings are determined by market power, by the vagaries of who’s got skills and who doesn’t have skills, on where firms do their business. So the idea of earnings as a proxy for productivity is a problem.
A second problem is that even if you wanted earnings as a proxy for productivity, that’s just one individual benefit. That is a social benefit, because it measures productivity, but there are what they call externalities. There are benefits to other people who were not included in the market transaction, you decide how much education you’re getting, some supplier gives it to you, a public school or private school, a training program, the benefits to education go way beyond you. And those are not taken into account in the market. So when there are benefits beyond the individual, they’re called externalities, because the market doesn’t take them into account. And therefore, the market is making inefficient decisions, because it’s not counting all the benefits. So in education, you can think of lots of benefits that aren’t just to you, your education benefits other people through your coworker productivity, through your family, through household health decisions, through helping your children, through lowering crime rates, through lowering welfare rates. It’s got lots of these external effects. And the second problem with rates of return is measuring those all are very problematic.
And the third problem with rates of return is that even if we were trusting earnings as a good measure, it’s very hard, I would say impossible, to figure out the effect of education on earnings. This goes to our problems, not neoclassical economics, but our problems with research methods generally. Separating our causes from effect, impact evaluation is extremely difficult to the point where I think it can’t be done quantitatively. If, for example, you took 1000 people and you ask them what’s their income, and then you try to figure out what are the dozens of factors that make those incomes different. And then you’ve actually tried to build a mathematical model that would separate those dozens of factors, so that you could say, “Well, their income went up, because they were a union this much, because they had another year of education this much, because they were in a high demand field this much, because they were healthy that much.” I mean, it boggles the mind. I’ve done another paper on the economist statistical procedure called regression analysis that tries to do that – it tries to take the dozens of factors affecting some outcome and separate them out. And my view is that we just can’t do that. So that even the minimal idea of looking at the impact of education on individual earnings is problematic. Taking them all together, I find rates of return and cost-benefit analysis, generally not a good basis for decision-making.
Will Brehm 25:48
But yet, it has been. These methods and this particular theory have been dominant and have been used to make decisions in education systems, among other sectors. So what’s the scholarly track record of those using rates of return and human capital theory? All of the critiques that you put forward seem very plausible to me, but yet rates of return and human capital theory has had quite the long longevity in academic research.
Steve Klees 26:23
Yes, it’s certainly has. And just two things to say in response to that. One is you asked about their track record, and in terms of track record, there’s no testing this. This isn’t something you can predict and then find out was a true. Because, I say the rate of return to expanding higher education is 12% in your country at this time. Is that a good investment, if you decide 12% is a good return, and you put your money in. But there’s no validation of whether you got 12% or not, so there’s no track record in terms of these predictions. They’re making predictions now, for example, about education and GNP. And I just find those scary and absurd. There’s some very interesting economists, very competent economists doing this. Eric Hanushek and [Ludger] Woessmann, and they tried to do regression analysis to say if your PISA scores go up (the PISA being that international test that people take as a proxy for cognitive achievement), how much will your GNP go up? And they come to these conclusions like a 10% increase in cognitive skills gives you a 2% boost on GDP and if everybody moved a standard deviation on PISA, your GNP would grow seven times in the next 30 years. I mean, this is carrying this framework to an absurdity to me. They can’t separate out the impact of education from the dozens and dozens of other factors that influence GDP or GNP, and then to take that out as its influence now and project that 30 or 40 years in the future is just the height of irrational use of a framework of this kind. And I understand why they do it. These are reasonable people, you want good information for decision-making, and to economists, this idea of efficiency, separable from equity is the touchstone.
But the real question for me is the second question you asked: basically, why has this framework been dominant for so long? And neoclassical economists would say at the very simple answer – it’s because of its explanatory power. It explains differences in investments in health and differences in individual behavior. And it’s true, I mean, in differences in individual behavior, this is useful framework because your decisions are affected by the returns to you, and you make decisions about your educational investment versus your investment in health care, versus your decision to go to a movie or your decision to buy a house, about returns to you. And that’s fine. So there is some use for this framework in terms of understanding people’s motivations. But in terms of societal’s efficiency and investment preferences, this framework is bankrupt and it’s empty. So to me, and to many critics, it’s not the dominant framework because of its explanatory power, it’s the dominant framework because it fits. Human capital theory is embedded in neoclassical economics, and that’s embedded in capital market – it fits with a capitalist market economy. The critics would argue the reason there’s so much attention to efficiency and rates of return and technical views of whether you invest in this thing, or that and how much do you do is because it makes sense in terms of efficiency. If you lose that efficiency framework, you realize that this is just a way to support a market system. This is neoclassical economics is an ideological justification for capitalist market systems to be efficient. To act in everybody’s interests aside from equity. If you question that, then you can see neoclassical economics generally, and human capital theory, as basically an ideological framework and ideological bulwark.
The whole skills discourse today comes from human capital theory and a skills discourse seems like common sense. It says if people only had better skills, they would be better off, and their countries and societies would be better off. That skills discourse based as it is on human capital theory and neoclassical economics is very problematic. People today have talked about the “triple economic challenge” that we face, and they talk about the three things: job creation; poverty elimination; and inequality reduction. Human capital theory and neoclassical economics generally gives one simplistic answer to all three challenges: lack of skills or equivalently, the mismatch between what education is producing and what businesses in the economy need. For the critics, lack of skills is not why people are poor, are not why jobs are scarce, and not why societies are so unequal. The culprit for the critics is that the very structure of the world system in which we are living, capitalism most particularly, but patriarchy, racism and other structures. Those very structures are problematic. While capitalism has increased our ability to produce material goods tremendously, so it looks very productive in that way, in another sense, it’s one of the most inefficient and destructive structures that you can imagine. Why? Because almost half the world – the World Bank says 3 billion people – are relegated to the margins of society. Capitalism has not created jobs for them, livelihoods for them. For the vast majority of our global population, if capitalism was an efficient system, we would be taking advantage of the skills and develop the skills of the 7 billion people on the planet and produced a lot more. Capitalism in its 200, 300 years hasn’t done that, and isn’t doing that. You know, some people talk about we live in a meritocracy. What nonsense! These 3 billion people are relegated to the margins of society because they’re not meritorious? It’s not that at all. It’s poverty, unemployment and inequality, not to mention environmental destruction and other problems, are not failures of capitalism, as they’re sometimes seen, but the logical outcome of its inherent structure. So that that in many ways, contrary to prevailing economic views, human capital has been a very destructive discourse. This is contrary to what the majority of economists think as it’s been brilliant, but it’s been a destructive discourse, because it’s really blamed individuals for their lack of skills, their lack of investment in the right skills, the lack of good choices. And so instead of understanding problematic structures that we need to do something about, we’ve been directing attention towards the supply of individuals and how to fix that. And we’ve been fixing it for decades. And the payoff with poor countries is abysmal. And the payoff even within rich countries is abysmal. The inequalities within the US, the level of hunger in the United States, the level of marginalization, the level of poor dead end jobs, the level of insecurity, the level of environmental destruction, this is not an efficient system.
Will Brehm 36:04
Turning to alternatives. I mean, is it even possible, or can we even have an education system in a capitalist economy without human capital theory? It almost seems like many of these problems that we see in education in terms of equity that you were just mentioning stem from the capitalist economic systems that that are pervasive in most countries. So how can we envision and create education systems in alternative ways that account for equity while still being in capitalist economies?
Steve Klees 36:48
Yes. All you’re asking today’s tough questions.
Will Brehm 36:55
I apologize.
Steve Klees 36:57
That’s okay. Let me preface my response to education with a little bit on how these alternatives are viewed to the very structures in which we live. Because education can only be successful if it’s a part of a challenge to those structures in fundamental ways. And there’s a lot of alternatives. Everything is contested terrain in this world; everything is up for grabs, up for debates with different views. So I view the alternative to neoclassical economics as what I call “political economy”. Political economy is a contested term and people on the right use it as well as people on the left. I’m using it more from the left of center point of view of critics of capitalism, critics of other world system structures. And for me, a political economy perspective today raises questions about the structures of the world system in which we live.
It’s the intersection of feminist perspectives, of post- perspectives, postcolonial, post structural, neo-Marxist perspectives, queer theories about heterosexism in society, disability theories, critical race theories. Not that these theories are identical, not that these approaches are identical, but all of them see marginalization as central, and all of them see marginalization not as failures of the world system -they’re failures for sure – but more is a logical consequence of the structures of patriarchy and racism and capitalism in which we live. And while there’s agreement that reproduction is pervasive, that is this marginalization is not an aberration, systems are out there that reproduce and legitimate marginalization and inequality. And the education system is part of that, as are all of the systems in which we live.
But the critics, the political economists, as I label them agree that while reproduction is pervasive, there are lots of spaces for progressive action. Through exercising individual and collective agency. You have the ability, and especially collectively, we have the ability to challenge these structures. And collective challenge is perhaps the watchword of political economists. Social movements like the women’s movement, like the civil rights movement. These are worldwide now. Like the landless movement in Brazil and now other countries. The poorest people in the world are organized and having an influence on policy. The untouchable movement in India, not anti-globalization, but the alter-globalization movement and in human rights movements and the children rights movement. And so there’s lots of examples of contestation at the systemic level and in education.
There’s lots of examples in every education in every city, in every country, and in every school system of what political economists call more progressive approaches to education. The legacy of people at Paolo Freire, the famous Brazilian educator who founded a field that we call today “critical pedagogy”. Critical pedagogy is a political economy approach to education, arguing that while reproduction is pervasive in schools, there’s lots of ways to challenge that. And so people, individual teachers challenge that all the time. They close their doors to their classroom, they use different learning materials, they teach their students differently about fairness, about equity, about the structures in which they live, they raise questions on that. And it’s not just individual teachers, there are systems of it. In Brazil, the landless movement which I just mentioned, have their own schools that are Freirean, that are participatory, that are so different from the technicist technical approach to education that we have today throughout the world. In Brazil, something called the citizen school movement that, again, is very participatory, that involves the community. We say “community involvement” all the time, but this is serious community involvement. This is serious democracy for students, for teachers, for administrators, participating and directing curriculum, directing grading, making decisions at a local level together, and sometimes very explicitly challenging the types of feeding education into work and into the labor market that dominates so strongly. On the alternative, for most political economists, when you reject the sort of functionalist view of sociologists, of society, of efficiency of markets, and say, “This is not something in which everybody is benefiting, there’s conflict here, there’s different interests, and the only way that’s going to change is through struggle, through individual and collective struggle.”
What that means in terms of alternative system-wide is difficult to say. At a minimum, where we’re not a neoliberal form of capitalism. Capitalism in the 60s, and 70s was a much more liberal capitalism in which government intervention was recognized as necessary to correct the ills that were essentially built into the structure of capitalism. Neoliberalism starting in the 80s with Reagan and Thatcher and Kohl in Germany said: Government is the problem, the market is the solution. We need to get away from that. We need to restore the legitimacy of government action, we’ve got the sustainable development goals of the United Nations on the table. Goals that are very ambitious about improving the world, we’re not going to get there under neoliberal capitalism. We’re not going to get there when we think it’s illegitimate for government to direct action. We’re not going to get there if everything is a public-private partnership and depends on corporate profitability in order to direct that system.
And maybe we have to move beyond capitalism. At the local level there’s lots of alternatives. And broadly speaking, it’s the subject to a whole another conversation. And I have a paper coming out next year on capitalism in education that talks about alternatives, so maybe we’ll do another podcast there. But the broad answer is, you need to build towards a more participatory democracy and more towards a workplace democracy. The problem with capitalism is that our workplace is authoritarian. We teach democracy in the political sphere; we don’t have a lot of that at a very participatory level either. But we need democracy in the workplace as well.
Will Brehm 45:28
It seems like a lot of what you’re saying is that we have to think beyond the connection of education as being for the development of human capital, and having a different value of education. And there can be many it sounds like, and many different ways of achieving those values or putting those values into action. But it seems like that’s the first step: decoupling, or de-linking the connection between education and human capital development.
Steve Klees 46:05
No, I would agree. And to be fair to human capital theorists, some of them recognize that broad connection. It’s got narrowed in practice so much that all we’re looking at as the connection to education to the workplace. But citizenship can be subsumed in that human capital framework. The problem is its basis in efficiency. You want to talk about the many things education does, the many more things we want it to do. We don’t want to just make education about workplace. We don’t want to make education just about literacy and numeracy. We need education for peacebuilding, for people to not be aggressive, for people to be fair with each other, for people to have resilience, and people to be creative. So there’s lots of purposes of education, and human capital theory and practices just narrow the field too much. And more broadly speaking about this political economy framework versus a more mainstream dominant human capital neoclassical framework, the political economy framework doesn’t offer the technical policy guidance that rates of return give. For neoclassical economists, policies are a dime a dozen. You just do your cost-benefit analysis and this year, vocational education is better than academic education, higher education is better than primary education.
If you reject that framework, what you have is human capital theory, neoclassical economics – our ideologies masking as science. It’s absurd to think that there’s some way to assess technically, the tradeoff between higher education and primary education, between education and health and the environment. All we have is a messy, participatory democratic struggle of individuals and groups with some common interests and some different interests. And for me, what we have to do is find ways to facilitate that struggle and in doing so, economics and the dominant scientific perspective says you need to stay neutral and objective. For me, I’ve learned that you always take sides. That when I write a paper, when I teach a class, when I’m doing research, when I engage in policy, when I engage in my life, I always have to take a side. And if you don’t think you’re taking a side, you are because this is a struggle. This is contestation. And I guess my concluding point is that for me, this is what I said in the paper you cited, neoclassical economics and human capital theory are ideological dead ends. But fortunately for all of us, there are lots of alternatives.
Will Brehm 49:29
Well, Steve, Klees, you gave us a lot to think about in this conversation. Thank you so much for joining FreshEd, and you’re definitely welcome back when that new paper comes out on capitalism in education.
Steve Klees 49:41
Thank you very much for having me.
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Low-fee private schools are a hot topic in educational research. What happens when public schooling is provided by for-profit companies that charge families monthly user fees? What happens when those companies receive government funds? Researchers around the world have been exploring various issues around for-profit public schooling.
One company has been of particular interest. Bridge International Academies operates schools in Africa and Asia and is supported by people such as Bill Gates and Mark Zukerburg. Bridge International uses a standard curriculum that is read off of a tablet computer. This low-cost model of schooling relies on paying small wages to instructors, who simply read the curriculum, and fees paid by students to attend (or government subsidies). This type of schooling can be extremely profitable when delivered to scale. In the most extreme case, in Liberia, the Ministry of education is trying to outsource its entire primary education system to Bridge International.
Given Bridge international’s work, it’s no wonder that researchers are interested in exploring what’s happening at the policy level and at the school level when it comes to low-fee private schools.
In May this year, Canadian Researcher Curtis Riep was in Uganda researching Bridge International’s work. At one of his meetings, held at a local café, he was arrested for impersonation and criminal trespass
ing while collecting data. These charges were later proven to be baseless and he was released and not charged (see image on right).
The interesting thing, however, is that Bridge International seems to have played a role in Curtis’ arrest. Before he was arrested, for instance, Bridge International took out a public notice in New Vision, a local newspaper (see image below), warning the general public of Dr. Riep’s presence.
My guest today takes us through this odd case and explores the larger issues around Bridge International. Angelo Gavrielatos is a project director at Education International, the Global federation of teacher unions and the organization that funded Curtis Riep’s research.
After recording the show with Angelo, new developments unfolded in Uganda. Below the fold, you can read the latest updates.
The Ugandan ministry of education has recently closed many schools that did not meet minimum standards, including schools operated by Bridge International. Although the connection between Curtis Riep’s research and the recent closures are unknown, these events suggest Curtis was likely on to something important:
Bridge International Academies appears to be losing its foothold in Uganda following a government decision to close 87 for-profit primary schools, including those belonging to Bridge, after failing to comply with minimum standards and regulations. (Link)
UPATE: The research Curtis was working on has finally been published. From Education International’s (EI’s) press release:
EI’s analysis of Bridge’s curriculum and pedagogy reveals serious implications for teachers and students that fundamentally alters the nature and practice of education itself. The company has created a business plan based on strict standardisations, automated technology, cheap school structures, and internet-enabled devices that are used to carry out all instructional and non-instructional activities that make up an education system.
You can download the full report here.
Citation: Gavrielatos, Angelo, interview with Will Brehm, FreshEd, 36, podcast audio, August 8, 2016. https://www.freshedpodcast.com/angelogavrielatos/
Will Brehm 2:03
Angelo Gavrielatos, welcome to FreshEd.
Angelo Gavrielatos 2:10
Welcome. Thank you.
Will Brehm 2:12
So Curtis Riep is a researcher at the University of Alberta and he was arrested for impersonation and criminal trespassing while collecting data there. Why was Curtis in Uganda?
Angelo Gavrielatos 2:27
Curtis Riep is a scholar from the University of Alberta and during the month of June and just prior to June, he was in Uganda researching on behalf of Education Interational, the global union federation of teachers. And his research was focusing on the operations of Bridge International Academies in that country. Curtis is a highly regarded, highly respected scholar, had been conducting research into privatization of education in Ghana, in the Philippines and elsewhere. A highly regarded young scholar.
Will Brehm 3:07
As a researcher myself, it’s a huge fear that I have of going to a country and asking sensitive questions and then getting in trouble for that. Can you describe how or why Curtis Riep was arrested?
Angelo Gavrielatos 3:25
Well, I can describe to you how he was arrested. Why he was arrested, one can only speculate because clearly the allegations that were made by Bridge International Academy have been found to be, and proven to be, false and without substance. So the question with respect to why he was arrested we’ll come back to shortly. But in terms of how he was arrested, one morning, he was meeting with senior officials from Bridge International Academies in Kampala at a coffee shop, and during their meeting, they obviously tipped off the police who proceeded to that venue to apprehend Curtis on the basis of charges that they’d made. Prior to these allegations that had been made by Bridge International Academies, they had also bought space in a national newspaper and printed what we would describe as a wanted photo with Curtis’ photo on it alleging impersonation and criminal trespass, saying that he was wanted by the police. Now this is an extremely irresponsible set of actions on the part of this company. And one can conclude, to come back to your first question, why he was arrested, one can conclude that this company is very clear in its intent of wishing to stop any scrutiny, any external scrutiny, of its operations which have come under considerable criticism by scholars across the globe. And I’m talking about their operations of course in Kenya and elsewhere.
Will Brehm 5:11
And we’ll get into that, what they actually do, in a second. But first, it’s just amazing to think that the police and Bridge International have such a close relationship that Bridge International could simply call on them to arrest someone that quickly.
Angelo Gavrielatos 5:31
Well, I am not going to go into the relationship that may or may not exist between Bridge and the police. But what we can say is that they made certain allegations. Allegations which have been shown to be false without substance. But that didn’t stop a young researcher having been arrested, and I would say terrorized and traumatized by that process whilst going about his business as a researcher. It is important to note that prior to visiting any school, Curtis has stated that he tried to make contact with the academy manager to alert them to the fact that he was visiting, and where that wasn’t possible, he reported to the front office of schools to announce his arrival and request access to the premises. To thereafter find yourself the subject of a wanted poster, and to find yourself arrested on allegations, which I repeat, were shown to be without substance – they were dismissed following investigation by the police and the public prosecutor. To have found yourself having been arrested and to be driven to a police station some 90 minutes from where you were arrested, having passed two or three police stations along the way, is quite traumatic. I think it is also important to note that upon his arrival at that police station, there were news crews, media crews awaiting his arrival. Clearly, one could only suspect having been tipped off by Bridge National Academies in order to try to get some mileage out of this very, very ugly episode.
Will Brehm 7:33
It seems like it was planned, right? Because the police came pretty much soon thereafter he entered the cafe to have his meeting and his research meeting. From my understanding, the lawyer for Bridge International was sitting in the police car when he was arrested.
Angelo Gavrielatos 7:53
That is correct.
Will Brehm 7:54
And then like you said, these reporters were at the police station when he arrived some 90 minutes later. It just seems like there was such a high level of organization to target Curtis Riep.
Angelo Gavrielatos 8:10
Well, if anyone would conclude that this was set up, their conclusion would be very much within the realm of high possibility. You know, these things just don’t happen. The fact that you said that their lawyer was in the same police car is just outrageous. But I’ll say this, if Bridge International Academies thought that they were going to get some political mileage out of what they do, they’ve made a very big mistake. They have been roundly condemned by scholars, academics, researchers, every serious education commentator in the world is just shocked and appalled by what they’ve done.
Will Brehm 9:01
Do you know what Curtis was researching specifically that that you know made Bridge so nervous?
Angelo Gavrielatos 9:08
Well, Curtis was researching Bridge’s operations in Uganda. He was looking at all aspects of their operation. He was also investigating why it is that the Ugandan authorities had stopped, had suspended any further expansion of Bridge’s operations in Uganda. I think it is important to note that this company has very little regard for the nation state and national laws, and they seek to operate in ways that are not entirely consistent with national requirements with respect to the provision either looking for loopholes, seeking to exploit loopholes, or seeking to have the government bend in terms of their operations. For example, in Kenya – and this is because their business plan is predicated upon this – in Kenya, they seek to register themselves as “informal schools”, so that the requirements applicable to schools are not as stringent; the bar is set lower. But they are for all intents and purposes schools. So what they do is they operate on a basis where they don’t meet requirements with respect to the employment of qualified teachers. In fact, in Kenya, they employ high school graduates and have resisted, have lobbied strongly and strenuously and persistently against the government, which has sought to impose requirements such as guaranteeing at least that half of its employees are qualified teachers.
They do not follow the national curriculum, and in fact, in Kenya, the head of the Curriculum Authority said that they don’t recognize their curriculum. And other such, and there are other such examples where they fail to operate consistent with guidelines. In Uganda, for example, the reason why their operation has been suspended is because they don’t observe the law in terms of the employment of teachers, nor in terms of appropriate learning facilities. Again, what we’re seeing here is a company that’s operating in such a way to satisfy its business interest, employing unqualified staff delivering a curriculum that’s not consistent with national standards, and often facilities that are not conducive to a school of teaching and learning, and do not satisfy national standards. So Curtis was investigating all of those things, and they clearly don’t want the spotlight put on them.
Will Brehm 11:47
Why do you think a government like Uganda would contract Bridge International Services after you articulated so many of the issues that Curtis was researching?
Angelo Gavrielatos 12:01
Well, I’m not privy to the full history, nor the terms that saw Bridge initially enter into Uganda, and I certainly await Curtis’ report as no doubt you do and many of your listeners. But what we do know is that Bridge started to operate in such a way that was inconsistent with the terms that had been determined, and hence the government suspended any further expansion on their part, the part of Bridge, subject to certain reviews of their operations, not least of which go to questions of meeting minimum standards. So we eagerly await to see the report, what the findings are there. And we certainly hope that the government maintains where it already has existing legislative requirements. And where it doesn’t, strengthen legislative requirements to ensure the social contract that exists between governments and students is not broken. And by that social contract, what I mean is that governments have apart from a political obligation, a moral obligation.
Governments for good reason compel children to go to school; we support that. But having compelled children to go school, that brings with it a political and moral obligation. And given that political moral obligation, we insist the governments ensure that when it comes to the provision of schooling, non-state actors must adhere to certain minimum requirements. Those minimum requirements, which go to the questions of the employment of qualified teachers. Those minimum standards, which go to the condition of ensuring that the curriculum delivered, is consistent with national standards. Legislative requirements, which go to the question of schooling facilities to ensure that those facilities meet minimum national standards. We would certainly hope the government applies those standards that are already in existence properly, enforces them, and where they need to be strengthened, they should be strengthened, because ultimately we are talking about the well-being of children.
Will Brehm 14:17
What sort of fallout has happened since Curtis was arrested, and then found not guilty of any of these charges? In Uganda, what has happened? You said that a lot of people have condemned what Bridge has done, but has there been any more substantial outcomes from this case?
Angelo Gavrielatos 14:38
Well, I know that this matter received considerable media attention in Uganda, as it did internationally. There was some very, very serious and large media interest around the world. That media interest, both internationally and domestically in Uganda, has generated some further discussions. To the best of my knowledge, the government has not altered its position with respect to halting the further expansion of Bridge in Uganda. We believe that the Bridge authorities have been desperately lobbying the government ever since that suspension was put in place. I’m not aware of any further developments there, but certainly, as the Global Union Federation of Teachers Education International together with our national member organization in Uganda – UNATU as it’s called – we will continue to advocate strongly in the interest of students, our members, our teachers, and education workers in the communities we serve. And will continue to advocate that in Uganda and elsewhere, governments must fulfill their primary obligation to properly and adequately fund quality public education, free quality public education for all to include within any legislative framework guarantees that go to the questions of access and equity; issues that go to the question of the respect to the profession in terms of professional judgment, But also we will advocate strongly for the existence and enforcement of a strong legislative framework and minimum requirements for the provision of education. Surely, every child, regardless of background, regardless of who they are, or where they are, regardless of their wealth. Surely, every child’s entitled to be taught by a qualified teacher delivering an engaging curriculum in a safe environment. We will continue to advocate for the achievement of such measures.
Will Brehm 16:40
Do you think if Curtis Riep was not affiliated with Education International, that he would have gone through this ordeal?
Angelo Gavrielatos 16:48
I don’t think we’ll ever know the answer to that question. Can I say this? When we learnt of what was occurring in in Uganda, in Kampala, can I just say to you that we did everything within our power to make sure that Curtis was dealt with, appropriately, expeditiously. And we certainly did everything we could to get him back home safe, back to his loved ones. This was an awful ordeal. Whether he was targeted because of his affiliation with Education International – and by way of his affiliation, he is an independent researcher who was commissioned by EI to do some work. Whether he was targeted for that reason or not, we won’t know, but what I do know is that this has affected him and I certainly hope – and we’re doing everything we can to help him deal with what was an awful set of circumstances. And again, I’ve got to say, the actions of Bridge which have been shown to be without foundation; their actions to print wanted posters or advertisements printed, to call the police to try, and to try and influence the judicial and criminal process in the way that they tried to influence it by taking out that wanted poster, this is mostly irresponsible, and certainly not the behavior becoming of any organization that purports to have the interest of children education at hand.
Will Brehm 18:29
I’d like to just zoom out a little bit here away from this one incident of Curtis Riep being arrested on false pretenses to look at Bridge International kind of globally, because you said they do work in Kenya and they obviously work in Uganda. What other countries are they working in?
Angelo Gavrielatos 18:52
Well, again, let’s start off by saying who Bridge is. Bridge International Academies is a global entity with some very powerful backers. They’re supported by the large global edu business Pearson, the largest global education corporation in the world; they’re supported by billionaires Zuckerberg and Gates, and their foundations; they’re supported by other foundations; they’re supported by the World Bank; and they’re supported by the United Kingdom’s Department for International Development, the aid wing. So they’ve got some very, very strong, influential backers. But ultimately, this is a company that is driven by the profit motive, a company that sets out to make profit. And we believe that when it comes to education, and the provision of education and schooling in particular, the profit motive has no place in dictating what is taught, how it’s taught, how it’s assessed, nor how our schools are organized.
Because in that world, the first victims are students, their teachers, and the communities we serve. Their business plan, when you examine their business plan, and we don’t have much time for me to go in great detail. But their business plan is predicated upon the employment of either fewer teachers, under qualified teachers, or in the main unqualified staff paid at a fraction of the rate of a teacher. On average around the world, plus or minus 5% or thereabouts, about 70 odd percent of a school budget is teacher salary. So you want to make profit, you would basically undercut the provision of teachers or qualified teachers. That’s their first way of making profit. They then go on to make profit through economies of scale. Their product is highly standardized. These high school graduates are not equipped to deliver a lesson as would be a qualified teacher. So what they do is they have all the curriculum material downloaded onto a tablet. And these high school graduates read off that tablet word for word. This is a highly scripted, standardized curriculum developed some where far away, which shows very little regard for cultural and linguistic diversity, let alone respect. But it’s a standardized product read word for word without any deviation from it. And of course, they use facilities which are very simple, and again, reduce costs for them. That is their business plan. So they operate in Kenya. In Kenya, as I said, they use certain loopholes, they seek exemptions, and object to – and lobby against – any government attempt to make them satisfy minimum requirements such as the employment initially of 50% of their staff being qualified teachers, and then the government back down a bit and they said, 30% of your staff. Now that is outrageous. Every teacher employed should be qualified teacher.
Now Bridge goes on so on to say that – and my quote may not be verbatim – but they go on to say, and this has been printed, that there is no “correlation” between teacher qualifications and student outcomes. Now, these are in interesting statements they make, but here is my challenge to Bridge, their supporters, and their most senior supporter, “Would you sacrifice your child to be taught by someone that’s not a qualified teacher?” That is the question I ask of Bridge. And the answer is, I bet you, “No”. I do not think that any of their children are taught by unqualified teachers, high school graduates, reading off a tablet, entirely scripted lesson. They are also operating in Uganda as we said. There is a few conflicting numbers in terms of how many schools I have got in Uganda. But we know they want to expand dramatically over the next little while, but that’s been thwarted. And in Liberia, the government has entered an agreement with them, MOU, where the government has flagged its intentions to outsource its entire primary and pre-primary education system, the whole lot to a private provider and Bridge is at the forefront of that. Also, in a document recently released, a document that Bridge didn’t want people to see, it was an internal document being used – a prospectus of sorts – they indicated their desire to operate 4000 schools in the state of Andhra Pradesh in India with the government and they signed a MOU with the Andhra Pradesh government in September last year. So this is the kind of operation it is, it’s a big operation driven by the profit motive. Standardized education, and not the kind of education, I dare say, as I said earlier, that they would want for their own children. I always say of policy makers, opinion makers, let’s expect and demand everyone else’s child what we wish for our own.
Will Brehm 24:13
So in Kenya and Uganda, and in Liberia, does the government pay Bridge money to basically then hire teachers at a low cost that allows for the profit? And does this then mean that students that attend Bridge International Academies, do they get to go for free, assuming that the governments are the ones paying Bridge International?
Angelo Gavrielatos 24:40
So there’s different models here. In Kenya and Uganda, the students pay fees. Bridge tries to describe these fees and their operations as low fee, affordable schools. But when the fee represents 30, or 40, or whatever it is percent of the daily income of the poorest of the poor, there’s nothing affordable about it. In fact, it is reprehensible. It is offensive. As I said, when when it represents 30% or more of the daily income of the poorest, there’s nothing affordable about it. And when you have more than one child, that’s when we start to see inequalities and segregation start to slip in. Because when you have more than one child, and you have to choose between children, unfortunately, the evidence shows us from elsewhere in the world, that invariably the boy child is privileged over the girl child. In Liberia, the operation is different. In Liberia, they want to manage the school system, and they want to get a management fee from the government for managing their system. So it’s a different operation as opposed to charging fees of students. But again, the management system would be redirecting money that would otherwise be available for education and therefore compromising the education that could be provided. And before I go further, let me just say no one is saying that education systems in these countries are perfect. In fact, there is not a country in the world where the education system is perfect. There is always room for improvement. We talk about the progressive realization of quality education for all. But what we’re seeing is a set of policies being pursued by these large global corporates aided and abetted by governments in some places that are putting in place a set of policies and a set of circumstances that undermine and compromise our ongoing journey to improve education for all. And ultimately, as per the Sustainable Development Goals embraced by the international community in September last year at the United Nations, goal number four: inclusive, equitable and quality education, and lifelong learning for all; and target one of goal four, which says to ensure all girls and boys access quality, free primary and secondary education. What we’re seeing is the undermining of that goal even before the ink had dried.
Will Brehm 27:14
Will Education International commission more work to be done looking at Bridge International?
Angelo Gavrielatos 27:21
We certainly will be commissioning a lot more work on the question of the ongoing commercialization and privatization of education. We released a significant piece of work last week in India. It was launched in Hyderabad and Delhi; launched in Hyderabad on the 17th of July and in Delhi on the 21st of July – that was about the emergence of multinational edu-businesses in Hyderabad. And Curtis’ research is in the pipeline, will be completed shortly. And no doubt you and others will be looking keenly to hear about when it will be released, and you’ll learn about it. And there’s more research projects in the pipeline. You will excuse me by don’t share all of those with you and your listeners, because they’ll be released strategically. And we are intent on maintaining that spotlight on governments and their failure to fulfill their obligation to ensure the achievement of the Sustainable Development Goals by allowing, encouraging, in some cases, facilitating an on-going commercialization and privatization, but we’re also going to keep the spotlight on some large global corporations whose behavior leaves a lot to be desired when it comes to children. And that right, their right, to quality free public education.
Will Brehm 28:45
Well, Angelo Gavrielatos, thank you so much for joining FreshEd.
Angelo Gavrielatos 28:50
Absolute pleasure. Thank you.
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Arrested while researching: The case of Curtis Riep and Bridge International