International student assessments have become the "lifeblood" of the accountability movement in educational policy contexts. Drawing upon Stuart Hall's concept of representation, I critically examined who comprises epistemic communities responsible for developing the Organization for Economic Co-operation and Development's Assessment of Higher Education Learning Outcomes economics strand. Through my analysis, I identify homogeneity among test-makers, missing voices, and western concepts as represented ideas that become fixed and circulated through policy channels. In an era of accountability and comparison, comparative international student assessments are becoming increasingly normative in educational settings. As scholars, policymakers, and educators use these test results, we must critically examine "who" is responsible for producing these tests.