Matthew Parris
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When a government loses a nation's respect, it is not individual politicians alone who fall from favour: the ideas they bring with them, too, may become tainted by association.
One such casualty has been highlighted by the current row over standard assessment tests - or SATs - in schools. Suddenly everyone is sneering at the idea of assessment. The sneers are part of a pattern of criticism that includes (for example) health service targets, targets for police arrests, the ranking of local authorities and star-ratings for hospitals. League tables, targets, tests and rankings are falling out of fashion.
The pattern is dubbed the “target culture”: dirty words these days. Implied in the belief in targets is that success in the delivery of public services can be be measured; and that excellence is quantifiable. Such measurements underlie performance ratings for public institutions, and the carrots and sticks by which they are regulated. This is the philosophy that is now suspect among conservatives and professionals alike.
The reasons are not surprising. The targets politicians have set have often been crude - driven by a desire for easy headlines, not for the most effective means of raising standards. Obviously if you make headline hospital waiting lists your trumpeted target you may distort health workers' efforts, encouraging deception, and spawning sly ruses for keeping patients off the published lists. Obviously, if in an effort to assess teachers' performance you test children repeatedly and oppressively from an early age, you may reduce the time spent teaching; and find children learning only how to sit tests. Obviously if you assess local authorities under the headings of a small number of performance categories - rubbish collection, leisure facilities, parking services etc - you may encourage them to neglect those functions not assessed. Oversimplification, misdescription and political posturing bring such assessment into disrepute.
But bad targeting should not be an argument against all quantitative analysis. Good and bad, the whole idea of published measurement of the quality of public service is now falling into disrepute. “How can you measure care?” people ask; “How can you quantify sympathy? How can you calibrate the performance of an arts body, the comforting manner of a doctor, the common sense of a police officer, or the child-focused skills of a teacher with a problem kid who will not be well served by being pushed to take exams?”
Fair questions, all. The answer, though, is that we must never give up trying. Across a wide range of the “delivery” of public services, measurement must always be a messy, sometimes imprecise, often hit-and-miss and occasionally unfair business, but there is no alternative. It is not enough to thumb our noses at unintelligent targeting. When public money is spent it is government's duty to get value for it. The money is disbursed in measurable amounts. Value must be assessed in the same way.
It was really John Major's government and his “Citizen's Charters” that sharpened the drive to see the public as customers for public services. Where the customers of the State had limited real choice, and free-market competition could not be relied on to keep providers on their toes, the idea was to publish aims, establish standards of service, and try to measure performance in attaining them. Labour governments have shared this thinking enthusiastically. I believe their instinct to quantify has been sound, even if sometimes translated into crude or counter-productive policy.
The “how can you measure... ?” brigade are riding high at present, but we should be suspicious of them. Listen carefully to the objections that some educationists and teachers' unions are raising to the SATs and you will hear - behind the obvious complaints about excessive testing - something close to an objection in principle to external testing: the “How can you compare chalk in Portsmouth with cheese in Pontefract?” sorts of argument. Worse, you will hear the view that nobody is better qualified to assess a school class's performance than its own teachers. This is nonsense, but seductive.
We should be on guard against what are, at heart, reactionary views. The case for the essential unquantifiability of the more sophisticated forms of public service too easily becomes a professional conspiracy against the taxpayer, unconsciously calculated to featherbed a quiet life for public servants. Did you know, for instance, that schools and class teachers have to be given advance warnings of outside inspections? This is outrageous; but try inveighing against it, and see what support you get from the professionals.
Half of Britain has always had its performance measured and been paid according to the results, with few excuses taken. The labourer, the machinist, the cleaner - the working classes - have seldom been allowed the “How can you measure...?” plea when their work comes to be assessed. Assessing a bricklayer is a rough-and-ready business: how many courses of bricks per hour? He too could make arguments about the perverse effects of a targets culture; but we would be impatient with them.
It's a pity the white-collar classes don't apply the same rough justice to assessing themselves. “How can you measure...?” is a charter for loafers in any organisation. Have you noticed how the cry of “quality can't be quantified” tends to come from the professions? From the lips of doctors, lawyers, architects, university lecturers, public service broadcasters and schoolteachers, the lament that targets or - Heaven forbid - assessment would have a brutalising effect upon their work, has slipped easily from the tongue.
From this special pleading we columnists are not exempt. Doubtless I could frame for you an argument that the worth of a column can be weighed - if weighed at all - by considerations deeper than whether many readers can be bothered to read it in the first place. But I wouldn't. Editors must try, however imperfectly, to define their market. They must research, however approximately, the extent to which they are reaching it; and any writer who forgets that he writes to be read, and that success is measurable, misunderstands the animating spirit of English writing.
Without targets, how do we ensure that public servants aim as we direct them to? Without measurement, how can we tell whether things are getting better? Without tests and exams, how can we try to see that parents and children across Britain are not served patchily? What can be measured must be central to the way we regulate, motivate and discipline our public service. What cannot must be viewed with suspicion.
Overenthusiastic quantifiers will sometimes make silly mistakes, and these will be seized on by the “How can you measure...?” brigade. Its arguments will be shrewdly self-serving: advanced by producer interests masquerading as defenders of the customer's interests. We should resist them. Customers for public services, trapped by monopoly provision, depend utterly upon the State's techniques of assessment. Assessment depends upon measurement. What we cannot at least try to measure, we should not ask taxpayers to fund.

Matthew Parris joined The Times as parliamentary sketchwriter in 1988, a role he held until 2001. He had formerly worked for the Foreign Office and been a Conservative MP from 1979-86. He has published many books on travel and politics and an autobiography, Chance Witness, for which he won the 2004 Orwell Prize. His diary appears in The Times on Thursdays, and his Opinion column on Saturdays
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Outcome of the comments to date
For Matthew Parris: 2
Against Matthew Parris: 15
Matthew is therefore officially wrong. The figures do not lie. No nuance permitted.
* I have arbitrarily discounted some comments that do not fit within my easy self-imposed box-marking scheme
Andy, London,
It's a given that the very basics of education were absorbed better up to the 60s/70s than today.
It's false to say a better education is available now if the students perform the basics so badly, without even knowing it.
The effects of bad testing will have a negative effect on whole generations.
Padraig, Perth, Australia
The point Matthew misses is that if the targets set for any organisation corrupt the behaviour of that organization, they do more harm than good.
Colin Moon, Portsmouth, Hampshire
I feel the Government has confused targets with bench marking. The article considers the problems with targeting which start because they are top down. Bench marking is a bottom up exercise where you look at how to make improvements. Trouble is that requires hard thinking rather than ticking a box
Richard, West Midlands,
The mistake is confusion of outcomes and objectives. The outcome - a higher score - becomes a proxy for better health, education, police work... and all energy diverts into "making the numbers". In theological terms, taking things out of context to worship them blindly is the heresy of idolatory.
Geoffrey Morton-Haworth, London,
goal setting theory (from Locke&Latham) requires that a correct combination of process, performance & outcome goals to be used-setting the wrong types of goals will end you up in the mess we see these days in schools and hospitals (amongst others), but without goals you are rudderless...
simon, richmond, uk
Theoretically and as a Ph.D. economist, I agree with Mr. Parris. As an MA psychologist working in US public mental health, I daily see how expensive and intrusive the measurement of target compliance is: the process of measuring seriously and negatively affects the process it is supposed to measure.
Wolfgang, Boulder, CO, USA
'Have you noticed how the cry of quality can't be quantified tends to come from the professions? From the lips of doctors...'
Own goal, I'm afraid, Matthew. Remember how this government forced the GPs to adopt a new system of payment, only to discover they'd been doing far MORE than they thought?
Tom Welsh, Basingstoke,
Very perceptive article, Mathew. Many of the comments demonstrate your point. Public employees can come up with 100 reasons not to be measured. So could employees in any business but it would not work. Freedom of information is the key. The public can work out for themselves what the measures mean.
Anthony, Richmond, UK
The trouble with targets, like statistics, is that they are being used like a drunk against a lamp post, for support rather than enlightenment.
They have become an end in themselves rather than a means to an end. As we all know they can and are fiddled.
Steve Lux, Caerdydd,
My assessment is a good article Matthew. But would it have been a better article had you written another ten pages? Can quality be measured by amount? The bricklayer has to lay so many bricks in a day but it has to be done to a standard. In my experience in the NHS at the moment quantity is king.
baz, basildon, uk
Schools are given advance notice of inspections because they have to produce half-a-ton of paperwork for the inspectors. And SATs are not reliable, whether as summaries of what the child has achieved or as predictiors of what it can achieve. They take up a lot of time to little purpose.
Henry Sopwith, Montpellier,
Matthew, the problem with league tables is that they encourage schools to focus on less difficult subjects in order to achieve a greater headline rate of passes. Hence, the absorption of Physics and Chemistry into 'General Science', much to the detriment of the country's educational standards.
Paul, Coventry,
"Worse, you will hear the view that nobody is better qualified to assess a school class's performance than its own teachers. This is nonsense, but seductive."
So who else is better to assess them then? who else sees them virtually every day? who else sees the work they produce? answer me that!
Nathan James, Liverpool, UK
Matthew Paris misses the obvious conclusion: that public sector service provision should only be used as a last resort. Private organisations, profit-making or charities, go out of business unless they give the customers what they want. State bureaucracies can go on giving a poor service forever.
Dr. Keith Anderson, Durham,
A "target" culture is part of the apparatus of Corporatism and the attendant Managerialism that goes with it. It is all about making the existing system "work" better. Politics is rendered into management and management proves its worth by audit. It prevents challenges and new thinking emerging.
Ron Tod, Sydney, Australia
Andy, Measuring MP's. The quantifiable - time spent in the house and on committees, questions asked, speeches given, constituency issues dealt with to the satisfaction of constituent. At least its a check on effort put in. And a periodic vote on quality delivered.
Robert D, London,
Jon Livesey: there was a lot wrong with English education before Plowden but it was hidden away in secondary moderns.
The Adult Literacy campaign of the early 1970s revealed that!
Tom MacFarlane, Thornton, UK
You ask "Without measurement, how can we tell whether things are getting better?", yet using targets and measurements out politicians are telling us that our schools are better than ever.
I ask "With measurement, how can we tell whether things are getting better?"
David, brighton,
The point is, Matthew, that SATS were meant to be a snapshot of progress at any one time. Not a goal; not fodder for league-tables. They have turned into an end in themselves with teachers aiming only to get kids the best marks possible rather giving the best education possible.
Rick Worth, Rochester, UK
"the focus is on top-down measures through national targets"
David Miliband
"Not everything that can be counted counts, and not everything that counts can be counted" Einstein
No prizes for guessing who I agree with!
jessica, Milton Keynes,
My objection to SATs is that a child's whole educational experience and by default the quality of a school's provision is whittled down to one exam. A child in my class this year, more than capable of being a level 5, only attained a level 4in writing. The reason: he said the writing task was boring
Rob, Northolt,
Interesting perspective. Perhaps Mathew would dare to suggest a suitable target to measure the performance of individual MP's, the ultimate public servants?
andy, belfast,
Of course performance needs some form of assessment. What people mean by 'target culture' is the " oversimplification, misdirection, and political posturing " that takes the place of proper measurement, and is a typical part of a shallow, 'PC' system that has dropped standards through the floor.
L Stewart, Spalding, England
Obviously providers of public services must be held accountable, somehow, somewhere, someday. But the extreme difficulty of doing so, as evidenced by the mess of the "target culture," is telling us something.
It is telling us that government-delivered public services should be a last resort.
Christopher Chantrill, Seattle, USA
"Targets" may be OK to help achieve overall aims but can go wrong at the front-line eg "Sticks and carrots" mentality sometimes feels like "workers rewarded for treating the one they're paid to serve like ass" in my experience. Regulatory sticks must be used protect citizens, not systems, first.
Mrs.Josephine Hyde-Hartley, Bacup, UK
Colin, shrewsbury seems to be completely deluded. Does he really think that English education lagged for "one hundred years"?
Anyone educated in the UK no later than the sixties received a superior education. Only since Plowden has the rot set in.
jon livesey, Sunnyvale, CA/USA
Sorry, Matthew, but you're wrong. I teach at a 16+ college; the schools have tried so desperately to get enough year 11s through GCSE, by any means necessary, that students arrive with a clutch of meaningless passes, know almost nothing, have no idea how to learn, and M&D think they're brilliant!
Gill, Southampton, UK
The teaching profession is especially prone to special pleading. For about 100 years their work was not measured at all, with the result that England fell miles behind Europe. Their squawks of self-interested protest can still be heard in every union meeting and BBC interview.
Colin, shrewsbury,
Auditing outcomes is necessaary. Targets that cause perverse conequences because they are ill thought out are a bad idea, but that is what we have at present.
Adam, Oxford, UK