This past October, the Organization for Economic Cooperation
and Development (OECD) released the first results from its survey of adult
skills, OECD Skills Outlook 2013 [1]. It presents more evidence that the
United States is lagging behind other economically developed nations in building a
quantitatively literate workforce. A rich source of data, the report is unusual
in its focus on the numerical skills of adults, covering ages 16 through 65,
and on its parallel investigations of literacy and "problem solving in
technology-rich environments." Intriguingly, its data suggest that—although
their numerical skills rank near the bottom—U.S. workers consider the numerical
demands of their work and their ability to handle those demands to be greater
than do workers in most other developed countries.
The OECD measured numerical proficiency at five levels:
1.
Able to perform basic calculations in common,
concrete situations.
2.
Can identify and act on mathematical information
in a common context.
3.
Can identify and act on mathematical information
in an unfamiliar or complex context.
4.
Can perform multi-step tasks and work with a
broad range of mathematical information in unfamiliar or complex contexts.
5.
Can understand complex mathematical or
statistical ideas and integrate multiple types of mathematical information
where interpretation is required.
As an illustration of a task at level 3 (from the Reader’s Companion to the report [2,
p. 30]): In 2005, the Swedish government closed its Barsebäck
nuclear power plant, which was generating 3,572 GWh (Gigawatt hours) of power
per year. Given that a wind power station generates about 6,000 MWh (Megawatt
hours) of power per year, that 1 MWh = 1,000,000 Wh (Watt hours), and 1 GWh =
1,000,000,000 Wh, how many wind power stations would be needed to replace the
Barsebäck
plant?
Now the discouraging news. Only just over a third, 34.4%, of
U.S. adults were capable of solving such a problem. In many OECD countries, over
half the working age population was numerate at level 3 or above, including
Austria (50.8%), the Czech Republic (51.9%), Finland (57.8%), Japan (62.5%),
Norway (54.8%), the Slovak Republic (53.7%), and Sweden (56.6%). Germany came
in just under at 49.1%. South Korea, at 41.4%, suffered from the fact that many
of its older workers, especially those over 45, have skills that are far below
those of younger Koreans. Other countries in which less than 40% of the
population reached level 3 include Poland (38.9%), France (37.3%), and Ireland
(36.4%). Only Italy (28.9%) and Spain (28.6%) came in lower than the United States. [1,
Table A2.5, p. 262]
While the top 5% of U.S. adults are capable of working at
level 4, the scores at the 95th percentile in the United States were well below
those in most other OECD countries. The exceptions were France, Ireland, Italy,
South Korea (again the unequal opportunity effect for older workers), Poland, and Spain. Only Finland had more than 2% of the adult population capable of
working at level 5. In the United States, 0.7% of the adult population was capable of answering
questions at level 5. [1, Table A2.8, p. 266]
The OECD data also reveal that the weakness of U.S. adults is
not a recent phenomenon. The report separates numeracy skill levels by age
decade: 16–24, 25–34, 35–44, 45–54, and 55–65. The United States is near the bottom of every
age cohort, though it stayed above Italy and Spain and managed to climb above France
and Ireland for adults 45 and older and above Poland and South Korea for adults
55 and older. [1, Table A3.2 (N), p. 272]
Given the low marks on numerical ability, it is interesting
that when U.S. workers were asked whether they need to use their numeracy skills
at work, the percentages were near the top of the OECD list. All of the
following comparisons are for workers in the top 25% in terms of numeracy
level. In the United States, 28.8% of these workers said that they need to use their
numeracy skills frequently, as opposed to 28.0% in Finland, 26.7% in Germany,
and only 17.7% in Japan. Only the Czech Republic at 30.0% and the Slovak
Republic at 29.4% reported higher rates of frequent use of numerical skills.
[1, Table A4.3, p. 303]
In addition, U.S. workers are more inclined to consider their
numeracy skills to over qualify them for the requirements of their job. In the
United States, 9.4% of workers considered their numeracy skills greater than the
requirements of their job. In Italy, it was 12.6%; in Spain, 15.8%. In
contrast, only 7.9% of the workers in Japan and 7.0% in Finland considered
their numeracy skills to be greater than the demands of their job. [1, Table
A4.25, p. 358] Across the OECD countries, there is a strong negative
correlation between numerical ability and the perception of how well one has
mastered the numerical skills required for one’s work.
That should be the most troubling aspect of this study.
[1] OECD
(2013), OECD Skills Outlook 2013: First
Results from the Survey of Adult Skills, OECD Publishing. http://dx.doi.org/10.1787/9789264204256-en
[2] OECD
(2013), The Survey of Adult Skills:
Reader’s Companion, OECD Publishing.
[3] The OECD countries in the survey were Australia,
Austria, Czech Republic, Denmark, Estonia, Finland, France, Germany, Ireland,
Italy, Japan, Korea, Netherlands, Norway, Poland, Slovak Republic, Spain,
Sweden, United States, and three subnational entities: Flanders (Belgium), England
(UK), and Northern Ireland (UK). Some data are also presented for Cyprus and
the Russian Federation.
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