This article takes as its background the shift over time in Britain towards models of target setting in education which are based almost entirely on measurable outputs. The original 'headline' targets proposed by the National Council for Educational Technology were of a very different nature, as are those of many other developed nations. The article outlines some alternative models involving targets for both inputs and processes, and the use of targets which are exhortative rather than directly measurable. It is suggested that the main reason these more 'qualitative' targets have disappeared from British policy-making is that they are not considered to be directly measurable. This is contrasted, at least in some accounts, with the more visible output indicators. However, the substantive purpose of this article is show how weak the claim is that we can ever adequately measure even these privileged targets. The article therefore argues that if a policy of target setting is to be pursued, and given other ndings from the authors' study in Wales this is far from clear, then more sophisticated models than those in current vogue may be required. The expense involved in setting up such an extension to our already heavily audited society may be unjusti ed-for it is surely better to spend money on improving lifelong learning even if we cannot measure that improvement de nitively, than to have an accurate metric revealing a picture of stagnation or worse.
Target-Setting for Lifelong LearningOne of the most striking features of recent educational policy has been the introduction of target setting, aimed at improving the performance (variously de ned) of educational systems by specifying desirable future levels of attainment and activity. In Britain, for example, this trend is re ected in the setting of the National Learning Targets. Of course, the use of attainment targets in education is by no means a new phenomenon, dating back at least to the nineteenth-century school-based practice of 'payment by results' (Marsden, 1991). However, more recently, there has been a burgeoning use of target-setting in education in Britain and elsewhere, leading Neave (1988) to identify such targets