Equity without excellence? A critical analysis of Kazakhstan’s pisa reading results

Abstract

Kazakhstan’s performance in the 2022 Programme for International Student Assessment (PISA) reveals a paradox that demands critical reflection. On the one hand, the country has made progress in reducing disparities in reading achievement between urban and rural students, signaling a step toward greater educational equity. On the other hand, overall proficiency levels remain alarmingly low, raising questions about whether equity is being pursued at the expense of excellence. According to official PISA data, only 36% of Kazakhstani students reached Level 2 or higher in reading, compared to the OECD average of 74%. At this minimum level, students are expected to identify the main idea in moderately complex texts, locate information based on explicit criteria, and reflect on the purpose and form of texts when guided to do so. Even more concerning is the near absence of high achievers: a mere 1% of students attained Level 5 or above, far below the OECD average of 7%. These students, in contrast, demonstrate the ability to comprehend lengthy texts, grapple with abstract or counterintuitive concepts, and distinguish fact from opinion based on implicit cues. This dual reality—equity gains alongside weak overall performance—raises pressing questions about the quality and direction of Kazakhstan’s educational reforms. The narrowing of the urban–rural gap is a positive achievement, yet the low proportion of students attaining both minimum and advanced proficiency suggests systemic weaknesses in reading instruction and literacy development. More importantly, the results point to a deficit in functional reading literacy, the ability not only to understand texts but to use, evaluate, and critically engage with information in real-life contexts. In the contemporary information society, where individuals are inundated with data from digital and traditional media, functional literacy has become a foundational skill for successful adaptation, lifelong learning, and active citizenship. Without functional reading literacy, students may be able to “cope” with basic tasks but lack the skills to think critically, analyze sources, and participate meaningfully in academic and civic life. This raises concerns about the sustainability of Kazakhstan’s educational progress: equity without excellence risks producing superficial gains that fail to prepare students for the demands of modern society. Thus, the urgent challenge is not only to close gaps in access but to raise the overall quality of reading literacy, ensuring that equity and excellence advance together.