此為英文文檔 Characterisation of education information systems in Latin America and the Caribbean

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EMIS

RegionalForumonEducationPolicy/vol.5/2021

CharacterisationofeducationinformationsystemsinLatinAmericaandtheCaribbean

NancyMontes

IIEPUNESCOConsultant

Aboutthispublication

Thisarticleistheresultofthepresentation

madeatthepanel“UsesofEMISineducationpolicyplanningandmanagement”atthe

5thRegionalForumonEducationPolicy

organisedbyIIEPUNESCO,OfficeforLatinAmerica,andthesystematisationofthefirstresultsofacomparativestudycoveringeightcountriesintheregion:

Argentina

,

Brazil

,

Chile

,

Colombia

,

Ecuador,

Guatemala

,

Peru

andthe

DominicanRepublic

1.

1TheteamwascoordinatedbyFernandaLunaandBianca

GentinettaDelfina,fromtheKnowledgeManagementand

MobilisationArea.Themembersoftheresearchteamforthenationalreportswere:DanielPinkasz(Argentina),Myriam

Cunha(Brazil),JorgeCastilloandJaimePortales(Chile),

ZoraidaQuintero(Colombia),DavidVeraAlcivar(Ecuador),AméricoDurini(Guatemala),KarinaPe?aloza(Peru),andCheilaValera(DominicanRepublic).

Howtocitethispublication:Montes,N.(2022).

CharacterisationofeducationinformationsystemsinLatinAmericaandtheCaribbean.IIEPUNESCO.

Index

1.Presentation 1

2.Theroleofsupranationalorganisations

ininformationproduction 2

3.Maincharacteristicsofeducationinformation

systemsandeffectiveusesidentifiedinthe

regionlinkedtoeducationpolicyplanning

andmanagement 6

4.Conclusionsandchallengesforthe

developmentandconsolidationofstudent

informationsystems 11

5.Bibliographicalreferences 13

1.Presentation

EducationManagementInformationSystems

(EMIS)areparticularlyrelevantasresources

tocharacteriseprogressandremaining

challengesinrelationtotherighttoeduca-

tion.Theyarealsotoolswiththecapacity

toguidepolicyactionsandmanageinter-

ventions,aswellastomonitorandevaluate

achievementsandchallenges.

InLatinAmerica,existinginformation

systemsarehighlyheterogeneous,whether

intermsoftheirstateofdevelopment,the

type(s)ofinformationtheyproduceorcollect,

theirlevelofautomationorinteroperability,

ortheusesmadeofthemforplanning,mana-

gementanddecision-making(althoughthese

Index

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EMIS

RegionalForumonEducationPolicy

arefunctionsthathavelongbeenstatedinthenationallawsandtheglobalgoalsthecountrieshaveadheredto).

Althoughtherearecountriesintheregion

whosenominalsystemshavebeenconsolida-tedforadecade,andothersthatarelaggingbehindinthatrespectandmaintainstatisticalsystems,inrecentyearstherehavebeen

twoparallelandconvergentprocessesthathavemadeitpossibletogenerate,process

andmakeavailablesignificantvolumesof

informationconsideredstrategicfordeci-

sion-makingintheeducationsector.Such

processeswerei)theincreasedincorporationofdigitaltechnologiesintheareasofgover-nmentandeducationalinstitutions;andii)

agreateravailabilityofdatabasesonindivi-duals,aphenomenondrivenbytheCOVID-19pandemicandtheneed,ontheonehand,toreachtheentirepopulationand,ontheother,toidentifythecondition(social,economic,

health,educational)ofspecificpopulationgroups.

Inthiscontext,theinterestincharacterisingtheinformationsystemsonstudentsenrol-ledincompulsoryeducationintheregion

becomesmorerelevant,asdoestheneed

toidentifyandanalysethespecificuses

linkedtopolicymanagement,planningandmonitoringofimplementedactions(since

evidence-basedpolicyrequirestheseinputsandpractices).

Thedocumentaimstoprovideanoverviewoftheprogressofthesesystemsinanumber

ofcountriesintheregionandtheirmain

characteristics.Italsoseekstospecifysomeoftheusesidentifiedintheframeworkoftheaforementionedresearch,asapreviewoftheresults.

First,itpresentstheroleofcooperation

andsupranationalorganisationsinthe

developmentofinformationsystemsinthe

regionoverthelastfewdecades,consideringtheirroleaspromotersofmanyofthese

resources.ItthenpresentsasetofcurrentdefinitionsofEMIS,withtheaimofframingthedescriptionmadeinthethirdsection

belowoftheexistingsystemsin12countriesintheregion,eightofwhichhavebeen

investigatedingreaterdetail.Finally,itoffers

someidentifiedusesandthemainchallenges

thatthesystemsfaceinordertoexpandtheir

potentialforuse,gatheredfromtheinter-

viewsconductedwiththoseresponsiblefor

informationsystemsintheframeworkofthe

studycoordinatedbytheIIEPUNESCOOffice

forLatinAmerica(launchedinOctober2021).

2.Theroleofsupranationalorganisations

ininformationproduction

Thecollectionandsystematisationofinfor-

mationthataccountsforthesizeandthe

characteristicsofthepopulationsisoneof

thegovernmentfunctionsthatbecameins-

titutionalisedwiththeemergenceofnation

states(Hacking,1990).

Inrecentdecades,thedevelopmentof

informationsystemsinLatinAmericaand

theCaribbeanhasreceivedbothsupport

anddemandsfrominternationalcoopera-

tionagencies,supranationalspheresand/

ormultilaterallendinginstitutions.This

sectionpresentsthreeoftheformsthat

theseactionshavetaken.Firstly,bycarrying

outsurveysorpromotinginitiativesforthe

consolidationofdatasetsofregionalorinter-

nationalcomparability.Secondly,bydefining

socialandeducationalgoalswithassociated

progressorachievementindicatorsthat

requiretheproductionofnewinformation,or

otherbreakdowns,inordertoidentifyspeci-

ficareasorpopulations.Andfinally,through

thepromotionoftheelaborationofstudies,

reportsandresearchaimedatinformation

systemsasbasicinputsfortheelaboration

ofdiagnosesandforthedefinitionormonito-

ringofsocialandeducationalpolicies.

Thistextdoesnotproposeanexhaustive

analysisofalltheinitiatives,butitdoespoint

outsomeofthemostoutstandingmilestones

orproductionsinordertoillustratetheparti-

cipationoftheseorganisationsintheagenda

ofstrengtheningstatisticalproduction

relatedtocompulsoryeducation,giventhat,

inmanycases,theseinitiativesdrivenew

developments,consolidateprojectstosustain

informationproductionroutines,orpropose

improvementstotheavailableapplications

andtechnologies.

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RegionalForumonEducationPolicy

Atthegloballevel,thecreationofthe

UnitedNationsEducational,Scientificand

CulturalOrganisation(UNESCO)in1945asaspecialisedagencyoftheUnitedNations

incorporated,amongitsmissions,theproduc-tionofstatisticalinformation.Tothisend,it

generatedstandardsanddefinitionswiththeaimofguaranteeingcomparabilitybetweencountries.Initially,theStatisticsDivision

wasthearearesponsibleforthesurveyandpublicationofinternationalyearbooks.Thesurveyswerecarriedoutthroughtheuse

ofprintedbookletsthatwerecompletedbythenationalofficesandsentbymailtotheheadquartersinParis.

Attheregionallevel,ontheonehand,the

creationoftheSouthernCommonMarket(Mercosur)in1995organised,underthe

auspicesofUNESCO,anareatosystematiseinformationfromthecountriesthatinitiallyformedpartofthisorganisation.During1997,afirstsetofindicatorswasconsolidated(theresultofaworkshopheldattheOREALC/

UNESCOSantiagoofficeandattendedby

theheadsoftheinformationproduction

officesoftheministriesofeducationof

Argentina,Chile,BrazilandUruguay).This

meetingcountedwiththeparticipationoftheProgrammeforthePromotionofEducationReforminLatinAmericaandtheCaribbean(PREAL).Ontheotherhand,itispossible

tomentiontheOrganisationofEastern

CaribbeanStates(OECS)intheCaribbean,andtheCentralAmericanIntegrationSystem(SICA)inCentralAmericaasthesupranatio-nalorganisationswhichhavefinanciallysu-pportedordevelopedcooperationinitiativesfortheimprovementofinformationsystemsinthecountrieslinkedtotheseorganisations.

Inthesameyear,theWorldEducation

Indicators(WEI)PilotProjectwaslaun-

chedasanextensionoftheIndicatorsof

EducationSystems(INES)programme,attheinitiativeoftheOrganisationforEconomic

Co-operationandDevelopment(OECD).It

soughttograduallyincorporateagroupof

countries,whichhavebeensofarnotlinkedtotheorganisation,inordertostrengthen

thecollectionofinformationthroughthe

useofelectronicquestionnaires.UnliketheUNESCOquestionnaires,thissurveyincluded

asignificantamountofdetailonthehuman

resourcesworkingineducation,curricular

aspectsandtheorganisationofeducational

offer.Forthenationalteams,theseinitiatives

wereanopportunitytoparticipateininforma-

tioncollectionandstandardisationsystems,

whichrequiredtheexpansionofvariablesor

levelsofdisaggregationavailablesofar.

In1999,theUNESCOInstituteforStatistics

(UIS)wasestablishedtocollectandregulate

datainthefieldsofeducation,scienceand

culture.Thefirsteducationsurveywas

producedin2000.Althoughithadcoverage

problemsandadelayindatapublication,it

wasrespondedbyatotalof167countries,

thussurpassingthecoverageoftheprevious

agency,whichreachedaround97countries.

Oneofthefirsttasksundertakenbythe

organisationwastoholdworkshopstoreview

internationalclassifications,withtheaimof

creatingnetworksofthoseresponsiblefor

statisticalareasinthedifferentcountries.

Fromthenon,thetaskofthisagencyhas

beentoassistandadvisethecountriesof

theregiononhowtoconsolidatestatistics

oncompulsoryeducation.Inrecentyears,

theproductionoftheUIShasfocusedon

monitoringandproducinginformationlinked

totheSustainableDevelopmentGoalsofthe

2030Agenda.

Finally,itisworthnotingthejointworkcarried

outbetweentheIIEPUNESCOOfficefor

LatinAmericaandtheOrganisationofIbero-

AmericanStates(OEI)tomakeinformation

availableontheeducationsectorandthemain

socialindicatorsrelevanttotheelaborationof

diagnoses.Thiswasmadepossiblethrough

theuseofhouseholdsurveysandeducation

statisticsproducedbythecountriesinthe

region.The

InformationSystemonEducational

TrendsinLatinAmerica(SITEAL)

2,aproduct

ofthisinitialjointworkandlaunchedin2003,

constitutesanonlineregionalobservatoryin

whichpolicyandregulatorydocuments,re-

searchandstatisticsaresystematisedanddis-

seminatedfortheanalysisandmonitoringof

thesituationofeducationandearlychildhood

intheregion.Inrecentyears,thisworkspace

2Asof2017,theprojectceasedtohavethesupportandpartici-

pationoftheIEOinitsdesignandsustainability.

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RegionalForumonEducationPolicy

hasalsodisseminatedalineofIIEPUNESCO’sknowledgeproductiononeducationpolicies(includingtheproductionofstateoftheart

andstudiesonissuesontheeducationpolicyagenda);thesecontentshaveincreasedtheavailabilityofdiagnoses,thesystematisationofimplementedpoliciesandregulations,pro-ductsthatareopenlyaccessibletotechnicalteams,civilservantsandresearchersintheregion.

Together,theseinitiativeshadatleastthreeresults:i)forthesupranationalorganisations,theopportunitytogainin-depthknowledgeoftheconditionsandpossibilitiesofinfor-

mationproductionineachcountry;ii)forthespecialisedteams,techniciansandprofessio-nalsthatmakeupthesegroups,thepossibi-lityofputtingtherelevanceofnationalworkincomparativetermsintoperspective;andiii)forboth,thestrengtheningandexpansionofinformationsystemsandthebroadeningoftheinformationavailable.

Regardingthedefinitionofsocialandedu-cationalgoals,itcanbepointedoutthat,asof2000,thecommitmentsassumedbythecountriescalled“MillenniumDevelopment

Goals:EducationforAll,”withinthefra- meworkoftheUnitedNationsDevelopmentProgramme(UNDP)inDakar,proposedasetof8goalsfor2015.Inthefieldofeducation,theyproposedcompletingprimaryeducationandimprovingequalaccessforwomenat

alllevelsofeducation.Giventhedifficultiesinachievingthesegoalsinthetimeinitiallyplanned,theevaluationofprogressinthisregardwaspostponedto2021.

Inturn,“EducationGoals2021:theeducationwewantforthebicentennialgeneration,”adocumentpromotedbytheOEI,consistsofaseriesofgoalssignedin2008andconsolida-tedin2010inasetofindicatorsassociatedwith11goalsincluding39achievementindi-catorsdefinedfortheyears2015and2021.Inordertomonitorthesegoalsandprepareannualreports,acommitteewascreated

withtheparticipationofthoseresponsibleforinformationandevaluationareasinthedifferentcountries.

TheSustainableDevelopmentGoals(SDGs)forthe2030Agenda,signedin2015,

replacedthepreviousdefinitions.Thereare17objectivesand169goalsthatorganise

thecommitmentsundertakenbytheUnitedNationsmembercountrieswiththeaimofreducingpoverty,caringfortheplanetandreducinginequalities.Theso-calledChapter4organisesthegoalsrelatedtoeducation.

Regardinginformationsystems,thedefinitionofgoalsinvolvestheelaborationofnew

indicatorsforwhichinformationwasnotne-cessarilyavailable.Thissituationfostersnewdevelopmentsthatfavourotherworkdyna-mics,thusstrengtheningboththeteamsandtheinformationsystemsandtheexistenceofdiagnoseswithgreaterthematiccoverageinsocialandeducationalaspects.

Finally,forthepurposesofthisargument,

itisworthmakingreferencetosomeoftheworkanddiagnosescarriedoutbydifferentorganisationsoninformationandevaluationsystemsthatcollaborateinputtingonthe

agendathesituationofcountriesandthe

usesthatcanbeidentified,linkedtothe

definitionandmanagementofpoliciesintheeducationsector.

In1998,theFordFoundation,UNESCOandtheInter-AmericanDevelopmentBank(IDB)published“EducationStatisticsinLatin

AmericaandtheCaribbean”3byRobertMcMeekin.Thisreporthighlightedthepro-

gressmadebythecountriestoprovidestatis-ticsascomparedtoadecadeago.However,amongitsfindings,itexpressedlimitationsinproductioncapacitiesandwarnedabouttheinsufficientsupportfrommultilateralorga-

nisationstoaccompanycountries,promote

standardisationschemesthataddressthe

concretepossibilitiesofthesystemsinplace,andarticulatecooperationefforts.

In2002,PREALmadeacallfornationalandcomparativestudieswiththeaimoffindingout–tenyearsaftertheconsolidationof

manyofthestatisticalsystemsandthestartoflarge-scalestandardisedassessment

3Thisstudywaspresentedattheabove-mentionedworkshoporganisedinSantiagodeChilefortheelaborationofasystemofindicatorswithintheframeworkofMERCOSUR.

EMIS

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operations–whattypesofusescouldbe

observedamongdifferentaudiences;in

particular,technicalandpoliticalteamsfromtheministriesofeducationintheregion.Asaresult,in2005,PREALpublished“Usoeim- pactodelainformacióneducativaenAmérica Latina”[Theuseandimpactofeducational

informationinLatinAmerica](Cueto,2005),comprisingsevenpapersinwhicharesearchgroupof26peopleparticipated.These

paperswarnedthat,althoughevaluationandinformationsystemswereestablishedand

producedmanyresults,therewasalowuseofthemandtheiruseforpolicydefinition

waslow.Consideringthetimethathas

passedandthechangesintheinformation

systemsthemselves(forexample,inthe

movetowardsnominalisationandagreater

roleforadministrativeinformationoverstatis-tics),manyoftheanalyticalcategoriesusedappeartostillhaveexplanatoryvalue.

Recently,someoftheorganisationsreferredtohaveturnedtheirattentiontoEMIS.

Inturn,VanWykandCrouch(UNESCO,2020)elaboratedadocumentinwhichtheypoint

outthatbothSustainableDevelopment

Goal4(SDG4)ofthe2030AgendaandtheconditionsimposedbytheCOVID-19pande-mic–which,between2020and2021,affectedface-to-faceattendanceateducational

institutions–requireinformationonindivi-

duals,andthatsuchinformationcanonlybeansweredorgeneratedthroughsystemsthatbringtogetherdatafromdifferentsources

andsectors(socialdevelopment,health,edu-cation,labour,amongthemainones).Ontheotherhand,manyoftheindicatorsassociatedwiththeobjectivesoftheSDGs–astheyseektomeasurethereductionofdisparities–re-

quireinformationbyarea,gender,age,socialsector,culturaltraits,amongothers,forthecharacterisationofspecificand/orvulnerablepopulations(disability,ethnicity,mobility,

LGBTIQ+,etc.)andtheconsequentimpetusforthecollection,processinganddevelop-mentofnewindicators.

In2021,theIDBelaboratedapaperentitled “EducationInformationandManagement SystemsinLatinAmericaandtheCaribbean:theroadtothedigitaltransformationof

educationmanagement.”Thisdocument

focusesontheproblemofthequalityofEMIS

intheregionandincludesatypologyofthe

levelsofprogressandcoverageofthesys-

temssurveyed.ThepaperarguesthatEMIS

havelowlevelsofdevelopmentintheregion,

thatthereisnocomprehensivevision,andthat

therearefewinstancesofplanningforthese

developments:“mostofthecasesanalysed

–10outof16–areatanincipientlevelof

development...andonlyfoursystemsareatan

emerginglevel...”(p.136).Thepaperconcludes

bystatingthatthissituationurgestheneed

tolearnmoreaboutthesesystemsandto

generaterecommendationsfortheirextension

andconsolidation.

Inthesameyear,theInter-American

Dialogue’sWorkingGrouponTechnologyand

Innovation(2021)publishedareportwarning

that,inadditiontotechnologicaldevelop-

ments,“EMISimplementationdependson

thepoliticalwillandastrategicvisionthat

activatestheresourcesandstakeholders...”

topromotethem.

Recently,andduetotheincreaseinpro-

blemstobeaddressedinthecontextofthe

healthemergencycausedbytheCOVID-19

pandemic,somestudies(Croce,2020;Rivera

Pizarro,2020)havefocusedonthedevelop-

mentofEarlyWarningSystems(EWS),tools

thatrequire,fortheirexistence,nominalised

managementsystemswithaspecificdataset

relatedtostudenttrajectoriesandperfor-

mance,aswellasattributesthatdemographi-

cally,sociallyorculturallycharacteriseboth

studentsandfamilies.Accordingtothestudy

conductedbyPerusiaandCardini(2021),“...

theadoptionofEWSinLatinAmericaarose

mainlyasaresponsetotheeducational

urgencygeneratedbythepandemic,the

closureofschoolsforface-to-faceeducation

andtheriskofincreasedschooldropout...”

(p.12).Thepaperreportsthepresenceof

theseinstrumentsintenofthecountries

oftheregion,showingdifferentscopesin

termsofthetypeofinformationtheyinclude

andtheprotocolsorassociatedintervention

strategiestheyhavetostrengthenstudent

retentionandreduceoravoidschooldropout.

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RegionalForumonEducationPolicy

WhathasnotbeenfoundinrecentresearchistheexistenceofstudiesthatsystematicallyaddresstheusesandimpactsofEMISonthedifferentstagesofpolicy-making,namely,

formulation,planningordesign,managementandimplementation,andmonitoringor

evaluation.Forthisreason,IIEPUNESCO

undertook,attheendof2021,theelaborationofastudycoveringeightcountriesinthe regiontocarryoutadiagnosisoftheUses

ofinformationsystemsineducationpolicy planningandmanagementinLatinAmerica

(inpress).Thisworkisprecededbyanotherstudyaimedatidentifyingtheusesofthe

resultsofstandardisedlearningassessments

(Pinkasz,2021)

,whosemethodologyisrepli-catedtogatherevidenceandupdatepreviousdiagnosesonthemesofrelevanceforthe

developmentofeducationpolicies.Both

focusoncompulsoryeducationlevels,i.e.

theydonotincludehighereducationoffersorinformationandevaluationsystems.

3.Maincharacteristicsofeducation

informationsystemsandeffectiveuses

identifiedintheregionlinkedtoeducationpolicyplanningandmanagement

ThecomparativestudyUsesofinformation

systemsineducationpolicyplanningandma-

nagementinLatinAmerica(inpress)takesas

astartingpoint,inadditiontothebackgroundreferredtointheprevioussection,asetofavai-labledefinitionsofinformationsystems.Thesedefinitions,presentedbelow,weredevelopedbythespecialisedliteraturethatframesoneofthecomponentsanalysedinthispaper.

AnEducationManagementInformation

System(EMIS)canbedefinedastheset

ofeducationmanagementprocessesthat

servetodesign,record,exploit,generate,

anddisseminatestrategicinformation

onlineinacomprehensivemanner,framedbyaspecificlegal,institutionalandtechno-logicalinfrastructure.AnEMISshouldallowtherelevantprocessesoftheeducation

systemtobemanagedinacomprehensiveandefficientmanneratalllevels(central,

regionalandschool),throughtheincorpora-tionofnewtechnologies(AriasOrtizetal.,2019,citedinIDB,2021,p.11).

Accordingly,anEMIS(Education

ManagementInformationSystem)canbe

definedas:

asystemforthecollection,integration,

processing,maintenanceanddissemination

ofdataandinformationtosupportdecision-

-making,policy-analysisandformulation,

planning,monitoringandmanagement

atalllevelsofaneducationsystem.Itis

asystemofpeople,technology,models,

methods,processes,procedures,rulesand

regulationsthatfunctiontogethertoprovi-

deeducationleaders,decision-makersand

managersatalllevelswithasetofrelevant,

reliableandunambiguousdataandinforma-

tiontosupportthemincompletionoftheir

responsibilities(UNESCO,2019,citedin

UNESCO,2020).

ThemainpurposeofRegistration

ManagementSystems(RMS)istheidenti-

fication,processinganddisseminationof

administrativeinformation(management

ofpeopleandresourcesandthecarrying

outofprocedures),statisticalinformation

(enrolmentflows,indicators,earlywarning

systems[EWS],informationoninfrastructure,

scopeandactionsofprogrammes),and

informationonevaluation(orientedtowards

decision-making)(Sunkeletal.,2020).These

definitionsrefertosystemspecificfunctions

orobjectives,andtotheirprocessesand

purposesandthetypeofinformationthey

contain.

InLatinAmerica,threetypesofcurrentdeve-

lopmentscanbeidentifiedfortheproduction

ofinformationnecessaryforthemanagement

ofeducationsystemsatthenationalorfede-

rallevel.Dependingonthegovernmentand

levelsofdecentralisationofeducationalde-

cision-makingineachcountry,sub-national,

localandinstitutionallevelsshouldalsobe

included.First,therearecensus-basedand/

orsample-basedstatistics.Theycollectinfor-

mationonschoolsoreducationalinstitutions,

students,teachers,buildinginfrastructure,

technologicalequipment,andlearningasses-

sment.Theirperiodicityvariesfromcountry

tocountry:insomecountriesthefrequencyis

annual(therearecountriesandsub-national

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RegionalForumonEducationPolicy

statesthatcollectdataatthebeginningandendoftheschoolyear);inothers,itmaybe

triennialordecennial,dependingonthepur-poseforwhichtheinformationiscollected.

Secondly,especiallysince2000,management systemshavebeendevelopedwhich,based onadministrativerecords,individualise

studentsand/orteachers,andcollectand

produceinformation(monthlyorinrealtime,i.e.immediatelyavailable).Someofthesede-velopmentsareassociatedwithEWS,whichaimtoprotectrightsandschooltrajectoriesinordertosupportschooling,whichiswhy

theyidentifycertainyearsofstudyorcyclesofeducationlevelsand/orgroupsofpeoplewhoaresubjecttospecificinterventions

ormonitoring.Ingeneral,theyareaimedat

preventingschooldrop-out.Finally,inthosecountrieswherethedevelopmentofnominali-sedsystemsisstillincipientorgradual,mixedsystemscoexist,i.e.thereexistbothtypesofrecords(statisticalandadministrative)with

distinctscopesandfunctionalities.

Asmentionedintheprevioussection,

statisticalinformationsystemsaregovernedbyinternationalclassificationsandproduc-tionrules,whileadministrativeinformationsystemsrespondtonationalorsub-nationallogicsanddefinitions.Toillustrate,while

thereisastatisticaldefinitionofastudent

withenrolmentorregistration,theirrequi-

rements,theirmodes,theconditionsfor

definingenrolmentandregularattendance

followdifferentparameters.Table1shows

thediversityofsystemsinforceintheco