August 1, 2018
Artificial Intelligence (AI) and Education
Educational tools enabled by AI have recently attracted
traditional classroom teaching, independent textbook use,
attention for their potential to improve education quality
and non-AI computer-based instruction. However, experts
and enhance traditional teaching and learning methods.
point out that ITS curricula are rather inflexible due to
Although there is no single consensus definition, AI
technical challenges in accommodating user feedback,
generally allows computers to perform tasks that are
modified core standards, or content changes.
conventionally thought to require human intelligence.
Congress may consider the benefits and risks of AI in
AI technologies may help facilitate “personalized learning”
classrooms, including the impact of AI on issues such as
(tailoring instruction to the needs of each student) and
student data privacy, teacher preparation, and technology
“blended learning” (combining technology with face-to-
development and procurement.
face interaction). Many school officials hope that such
approaches will improve academic performance and reduce
Current Applications of AI in Classrooms
achievement gaps between groups of students. Some
Today, both startups and established companies seek to
teachers also suggest that personalized learning increases
integrate AI into marketable products. In some cases, AI
student engagement, motivation, and independence.
performs functions independently of teachers, while in
others it augments teaching capabilities. Applications of AI-
AI-based learning faces significant implementation
based education technology include the following:
challenges. Greater student independence may disadvantage
children who are less self-disciplined or who receive little
Tutoring. AI programs commonly referred to as
educational support at home, potentially exacerbating the
Intelligent Tutoring Systems (ITS) or adaptive tutors
achievement gap. Moreover, surveys indicate that some
engage students in dialogue, answer questions, and
teachers struggle to translate the data they receive from
provide feedback.
personalized learning tools into actionable instruction and
Personalizing Learning. ITS and adaptive tutors tailor
spend inordinate amounts of time creating individualized
learning material, pace, sequence, and difficulty to each
assignments. There is also debate over how well students
student’s needs. AI can also provide support for special
retain knowledge learned from an AI-based system, and
needs students, for instance by teaching autistic children
whether spending substantial class time on computers
to identify facial expressions.
diminishes social learning at school.
Testing. Computer adaptive assessments adjust the
The budget implications of using AI in education are
difficulty of successive questions based on the accuracy
unclear, given uncertainties about the cost-effectiveness of
of the student’s answers, enabling more precise
the technology. For example, the versatility and scalability
identification of a student’s mastery level.
of AI might drive some institutions to reduce teaching staff
Automating Tasks. AI can perform routine tasks such
in favor of AI alternatives. In contrast, AI might create
as taking attendance, grading assignments, and
demand for education professionals who can design and
generating test questions.
implement personalized learning programs.
As well, at least one public school district has partnered
Federal Activity
with a university to provide a K-12 AI program aimed at
Federal actions have addressed issues related to AI in
teaching students AI concepts and technologies.
schools, such as internet access and student data privacy.
Benefits and Drawbacks of AI in
Classrooms
Successful implementation of AI by schools requires
significant investment in information technology (IT) as
Researchers have yet to reach a consensus about the
well as reliable broadband internet access. These resources
effectiveness of AI-based instruction. Definitions of key
are not uniformly distributed across school districts; for
terms often vary from study to study, and the academic
example, close to 80% of schools without fiber connections
literature includes both evidence supporting and evidence
were located in rural areas as of 2017. Federal efforts to
refuting AI’s educational value. Additional research might
address this disparity include such programs as the
help resolve the issue.
Universal Service Program for Schools and Libraries.
Commonly known as E-rate, the program provides
Some studies have found benefits to using AI-based
subsidies of up to 90% to help ensure that qualifying
classroom technologies in certain situations. For example, a
schools and libraries can obtain high-speed internet access
2014 meta-analysis concluded that ITS produced
and telecommunications at affordable rates.
statistically significant improvements in student learning
outcomes (e.g., mastery and retention) when compared to
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Artificial Intelligence (AI) and Education
The National Science Foundation and the Department of
laws were modeled after California’s Student Online
Education’s (ED’s) Institute of Education Sciences have
Personal Information Protection Act (SOPIPA). Congress
awarded grants to projects researching AI-enabled
may consider whether such state efforts are sufficient or if a
classroom technologies. In addition, ED’s Office of
federal law is needed.
Educational Technology has released several publications
on topics relevant to AI in schools, such as learning
Teacher Preparation. If AI technologies are adopted on a
analytics and educational data mining, teacher preparation,
broader scale, teachers face the task of not only learning to
personalized learning, and student privacy.
use specific products but also integrating a range of AI
technologies into their lessons. Preparation programs
The Every Student Succeeds Act (P.L. 114-95), which
offered by teacher-certifying universities and institutes
reauthorized the Elementary and Secondary Education Act
might provide such training. In FY2018, ED’s Teacher
of 1965, authorized the use of computer adaptive testing in
Quality Partnership (TQP) competition plans to award
state student academic assessments mandated under the act.
approximately $14 million in grants to these programs. If
This marked the first time Congress explicitly approved an
Congress decides to support funding teacher preparation for
AI testing technique for widespread use in schools.
AI, options could include redirecting funds toward teacher
technology training and directing ED to develop best
Congress has taken steps to address public concerns
practices for teacher technology competency.
regarding the privacy of students’ personal information,
including concerns about education technology companies
Product Procurement and Support. Choosing products
collecting personally identifiable information (PII) from
can be a time- and energy-intensive effort involving
students to maintain user accounts.
teachers, administrators, IT staff, and other school officials.
While some schools allow teachers to experiment freely,
The Family Educational Rights and Privacy Act of 1974
others require IT staff to vet hundreds of privacy policies
(FERPA), as amended in 2013, limits the power of
and security measures. Some school districts have turned to
schools to disclose students’ education records but has
digital content consultants for guidance in selecting
been criticized for weak enforcement mechanisms
products. To help schools gather research on educational
against third parties that misuse student data.
tools and strategies, nonprofits and federal agencies have
The Protection of Pupil Rights Amendment of 1978
developed resources. For example, the State Educational
(PPRA), as further amended in 2015, requires schools to
Technology Directors Association provides a best practices
notify parents and offer an opt-out choice if a third party
guide for product procurement, and ED’s What Works
surveys students for marketing purposes.
Clearinghouse rigorously reviews the effectiveness of
educational products and practices. Despite these resources,
The Children’s Online Privacy Protection Act of 1998
surveys indicate that peer recommendation is a more
(COPPA) requires parental consent before websites
prevalent basis for choosing products than research-based
collect information about children aged 13 or under.
evidence. A centralized platform to exchange information
Many experts worry that current law, passed largely before
and collaboratively troubleshoot problems might help
AI became a major policy consideration, is insufficient to
formalize inter-district communication and allow schools to
address today’s cybersecurity threats. Bills introduced in
make wiser and less costly purchases. The Technology for
the 115th Congress, such as the Protecting Student Privacy
Education Consortium estimates that districts would
Act (S. 877), SAFE KIDS Act (S. 2640), and Protecting
collectively save $3 billion per year on education
Education Privacy Act (H.R. 5224), would affect how third
technology purchases simply by sharing price information.
parties can access and use students’ PII.
Algorithmic Accountability. Parents and school
Selected Policy Considerations
administrators may find it difficult to trust AI technologies
Although most education policies are set at the state and
used to influence or make decisions about student learning.
local level, Congress may consider oversight and legislative
Mistrust can stem from the refusal of companies to disclose
actions on issues such as student privacy, teacher
their algorithms, which they argue are trade secrets, or from
preparation, product selection, and algorithmic
the “black box problem,” which occurs when an
accountability.
algorithm’s complexity renders its processes inscrutable
even to developers. Options for Congress could include
Student Privacy. Like many digital services, AI-enabled
holding hearings, conducting oversight, and considering
education tools collect and store PII. In response to public
requirements to enhance transparency and accountability of
concerns about data security and privacy, activists created a
data use more broadly, as the European Union has sought to
voluntary Student Privacy Pledge in 2014. Signatories
do through the General Data Protection Regulation.
promise to place limits on the lifespan of stored data,
NOTE: Former CRS intern Joyce J. Lu contributed to this
maintain reasonable security measures, and refrain from
product.
selling data. Although President Obama and several
Members of Congress endorsed the pledge, critics have
Laurie A. Harris, Analyst in Science and Technology
asserted that the language is vague and the pledge is little
Policy
more than a publicity move. Meanwhile, 41 states have
enacted laws governing student data collection, use,
IF10937
reporting, and safeguarding since 2013. Several of those
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Artificial Intelligence (AI) and Education
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https://crsreports.congress.gov | IF10937 · VERSION 2 · NEW