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A Guide for School Districts:
Exploring Alternative Measures of
Student Learning and Wellness
Ashley LiBetti, Juliet Squire, and Jennifer O’Neal
Schiess
September 2020
2
Introduction
Beyond federal requirements in the Every Student Succeeds Act and state-level accountability
systems, school districts across the country have an essential role in school-level
accountability, especially assessing student learning and wellness. Today — with unfamiliar
school configurations and unknown impacts on student outcomes — districts can adapt how
they measure school quality to better understand how schools are operating and how
students are learning.
Numerous school districts have developed School Performance Frameworks (SPFs) with
shared metrics for quality among their schools. With a missing year of data on state
assessments, widespread adoption of distance learning, and a renewed emphasis on student
health and safety, these districts must adjust their SPFs to account for missing data and
shifting priorities.
For those districts that have yet to establish SPFs, the urgent need to understand what schools
are doing and how it affects student outcomes can serve as a call to action. SPFs are an
essential tool that can help districts set priorities for their schools and support them as
they continue to adapt and improve. Moreover, unlike federal- and state-level officials, school
district leaders are well-positioned to establish metrics that are responsive to local
circumstances.
Bellwether has published numerous resources in recent weeks and months about the role of
metrics and accountability during the pandemic; this deck is a tool for district leaders as they
develop and adapt their approaches.
3
Districts need to rethink their approaches to measuring
student learning and wellness
It is essential for districts to understand how well schools are meeting the needs of
students, including not only academic growth but also student wellness.
Districts managing systems in which foundational decisions affecting student learning sit with
building leaders need to continue strong oversight and support decision-making at the
school and system level.
Districts have a responsibility to protect student interests while being mindful of the burdens
they place on school leaders and educators.
Measures of school quality are essential for understanding equity and ensuring that the
system of schools is collectively meeting the needs of all students.
The data gaps created by lack of testing fundamentally disrupted the ways in which districts
have assessed schools’ academic performance.
The COVID-19 pandemic, school closures, advent of distance learning, and
suspension of state testing have disrupted how districts assess and manage their
systems of schools. Districts must adapt their approaches accordingly.
Districts must shift how they assess school quality, support continuous
improvement, and hold schools accountable.
4
The need to rethink these measures has occurred within a
broader discussion of accountability
Some have argued that we should forgo accountability for the last year and beyond, while
others believe we should return to past accountability practices as soon as possible.
Neither response is adequate. Rather, districts must develop new and better approaches to
assess student learning, school performance, and quality.
Districts need not start from scratch; many can evolve their existing SPFs to assess and
communicate school quality.
Adaptations shouldn’t narrowly focus on addressing current gaps in testing data.
In developing and evolving their SPFs, districts have an opportunity to innovate in ways that
are responsive to the needs of their local communities.
Current circumstances present challenges for districts in managing school quality, as well as a
window to refresh their approach. Districts with SPFs must quickly and nimbly adjust them,
as well as how they are used for accountability and continuous improvement.
At the same time, all districts — regardless of whether they have SPFs — can start now to build
a foundation for how schools and systems recover, how we assess what we value about
school performance, and how to better support students to thrive moving forward.
5
To evolve SPFs or define new locally developed measures
and goals, districts must answer several key questions
What are the key concepts or indicators that make up the district’s current/past approach to
assessing school quality? Are there other concepts or indicators related to school performance that
become newly or more important for districts to assess in a COVID-19 world?
How has the district measured school performance within these indicators?
Why does the district focus on these measures? What questions is the district trying to answer?
What kinds of decisions does this data inform? What are the stakes of these decisions for
students, schools, communities, and districts?
What problems or complications may prevent the district from using these measures now? Are
there other limitations of those measures that the district is concerned about or aware of?
What are other ways the district could get at the questions that these measures are intended to
help us answer? What information is the district currently collecting from schools? Is there
additional information that schools are collecting that might help? Are there other information
sources that would be useful that districts and schools don’t currently have but potentially could?
What steps must the district take to implement these other ways of assessing quality or use them
well? Are there any statutory or regulatory constraints? How will the district engage stakeholders
and build buy-in for the changes?
1
2
3
4
5
6
7
6
This toolkit walks through these questions to support
adjustments to measuring student learning and wellness
To adapt existing school performance frameworks during the pandemic,
districts must audit the measures they have previously used, assess limitations
of those measures in the current context, identify other measures that are
newly relevant, and develop an approach to answering key questions about
student learning and well-being.
Crucially, a variety of stakeholders use school performance frameworks to
make decisions for their families, schools, and communities. Districts must
prioritize providing information that is most useful to those stakeholders.
7
School performance frameworks typically include measures
that align to six domains (slide 1 of 2)
1. Student Growth/Progress
2. Student Achievement
(Proficiency)
3. Postsecondary Readiness
● State standardized
assessments:
Criterion-referenced growth,
median growth percentile,
student growth percentile,
value-added measures
● Subgroup growth
● State standardized
assessments: percent of
students proficient, proficiency
rates relative to other schools
or state average
● Subgroup proficiency
● Graduation rate/Adjusted Cohort
Graduation Rate (ACGR)
● Credit units: 9th- or 10th-grade
students on-track to graduate
● ACT/SAT: participation rates;
percent scoring above a certain
threshold; average score compared
to national averages
● Completion of AP/IB or postsec
credits while in high school
● Completion of industry-recognized
credentials
● Postsecondary enrollment: College
acceptance rate; percent of
graduates enrolled in
postsecondary; remediation rate for
graduates attending postsecondary
● Post-graduation employment:
Percent of graduates employed in
the fall following graduation
This toolkit will walk through key
questions for districts one by one for the
first domain, followed by a summary of
each of the other five domains.
The measures included here are examples and do
not reflect all possible measures for each domain
8
School performance frameworks typically include measures
that align to six domains (slide 2 of 2)
4. Model-Specific Goals
5. Student & Family
Engagement & Well-Being
6. Opportunity Gaps
● Extent to which school
implements/students complete
practices aligned with specific
school model (e.g., internships
or capstones; volunteering
hours)
● Valid and reliable measures of
student learning in subjects
other than ELA and math (e.g.,
additional languages for
bilingual schools; science)
● Portfolios or other tools to
demonstrate student learning
● Instructional minutes
● Average daily attendance
● Chronic absenteeism rates
● Truancy rates
● Reenrollment rates
● School climate measures
● Parent surveys
● Student surveys
● Supports for emotional,
behavioral, mental, and physical
health
● Exclusionary discipline rates
● Exclusionary discipline rates for
student subgroups
● Student mobility
● Special education delivery
● Racial and economic segregation
● Teacher demographic data
● Teacher-student match data
● Availability & enrollment in
advanced, rigorous coursework;
gifted and talented programs;
courses in arts, social sciences,
sciences, and technology;
formalized systems of tutoring and
other academic supports
● Enrollment in above by subgroup
This toolkit will walk through key questions
for districts one by one for the first domain,
followed by a summary of each of the other
five domains.
The measures included here are examples and do
not reflect all possible measures for each domain
Appendix
Domain Example: Student Growth/Progress
10
Districts can use this process to adapt existing SPFs or
define new school measures and goals
The following slides sequentially walk through the questions districts must answer to
adapt their school performance framework or define new locally developed school
measures and goals (see here for the complete list of questions).
Each slide focuses on one of these key questions, provides instructions for examining
practices and priorities to answer that question, and identifies key considerations.
This set of slides illustrates how a district might go through this process, using the
student growth/progress domain and the state standardized assessments
measure as an example. A district should complete this same process for all
measures it is considering adapting or creating.
A workbook available here was developed to answer similar questions
for charter school authorizers, and may also be useful for districts.
11
What domains make up the district’s current/past
approach to assessing student growth/progress?
What domains make up the
district’s current/past approach
to assessing school quality?
Student growth/progress
How have we measured school
performance in these domains?
Why do we focus on these
measures?
What questions are we trying to
answer?
What kinds of decisions do these
data inform?
What complications may prevent
us from using those measures
now?
What are other ways we could get
at the questions that these
measures are intended to help us
address?
What steps must the district take
to implement these other ways of
assessing quality or use them
well?
The district must identify the
domains that make up its
vision for school quality
● Review the domains in the
district’s school
performance framework
● Identify the domains that
the district focuses on in
measuring school
performance
● Identify which of these
domains are common
across schools and which
are differentiated for
certain types of schools
(e.g., by grade level) or for
individual schools
1
12
How has the district measured school performance in
student growth/progress?
What domains make up the district’s
current/past approach to assessing
school quality?
Student growth/progress
How has the district measured school
performance in these domains?
State standardized assessments (e.g., criterion-
referenced growth, median growth percentile, student
growth percentile, value-added measures)
Why do we focus on these measures?
What questions are we trying to answer?
What kinds of decisions do these data
inform?
What complications may prevent us from
using those measures now?
What are other ways we could get at the
questions that these measures are
intended to help us address?
What steps must the district take to
implement these other ways of assessing
quality or use them well?
The district must identify
how it measures these
domains of school quality.
● For each of the domains
identified, the district must
list out the measures that
it previously used, or could
use, to assess school
performance for that
domain
● This list may get long;
there will likely be multiple
measures for each domain
● The district should not
pare down the list of
measures at this point, but
consider this a brainstorm
● This list of measures is the
district’s initial list of
student growth/progress
measures
2
13
Why does the district focus on these measures? What
questions is the district trying to answer?
What domains make up the
district’s current/past approach
to assessing school quality?
Student growth/progress
How has the district measured
school performance in these
domains?
State standardized assessments: (e.g., criterion-referenced growth,
median growth percentile, student growth percentile, value-added
measures)
Why does the district focus on
these measures?
Student growth or learning gains reflect how well a school is
supporting children’s learning; growth or gains provide a more
accurate picture of a school’s contribution to children’s learning than
achievement data alone
What questions is the district
trying to answer?
Are students learning what we expect them to learn over the course of
the year? Are students progressing at least one grade level over the
course of the year? Are students on track to reach grade-level
expectations?
What kinds of decisions do these
data inform?
What complications may prevent us
from using those measures now?
What are other ways we could get
at the questions that these
measures are intended to help us
address?
What steps must the district take to
implement these other ways of
assessing quality or use them well?
The district must be clear
about the rationale for
including these measures in
its school performance
frameworks
● For each of the student
growth/progress
measures, the district must
think through why the
measure is important
● Given that rationale, the
district must clarify the
question it is trying to
answer with that measure
Consider: Are any questions
answered by multiple
measures? Are each of the
measures worth collecting
or necessary to answer the
question?
3
14
What kinds of decisions do these data inform?
Student learning and
wellness measures are
ultimately used to make
decisions about schools.
● The district must identify
the types of decisions
that these data have
historically informed
● There will likely be
substantial overlap in
the types of decisions
Consider: How do teachers
and school leaders use this
information to inform their
instructional approaches
and priorities? How do
families and the community
use this information to
understand school quality
and make decisions for
students?
What domains make up the district’s
current/past approach to assessing
school quality?
Student growth/progress
How has the district measured
school performance in these
domains?
State standardized assessments: (e.g., criterion-referenced growth,
median growth percentile, student growth percentile, value-added
measures)
Why does the district focus on these
measures?
Student growth or learning gains reflect how well a school is
supporting children’s learning; growth or gains provide a more accurate
picture of a school’s contribution to children’s learning than
achievement data alone
What questions is the district trying
to answer?
Are students learning what we expect them to learn over the course of
the year? Are students progressing at least one grade level over the
course of the year? Are students on track to reach grade-level
expectations?
What kinds of decisions do these
data inform?
Ratings shared with parents and public; school improvement planning;
decisions about driving systemic improvement
What complications may prevent us
from using those measures now?
What are other ways we could get at
the questions that these measures are
intended to help us address?
What steps must the district take to
implement these other ways of
assessing quality or use them well?
4
15
What problems or complications may prevent the
district from using those measures now?
The district must anticipate
complications with
relying on these measures
to inform decisions.
● For each of the student
learning and wellness
measures, the district must
identify potential
challenges
● Key questions may help
elucidate challenges: What
is the short- and long-term
availability of the data?
Does the district question
or mistrust the validity of
the data for this measure?
Consider: Are there any
actions the district could take
to solve these problems? Do
any measures have
insurmountable challenges?
If so, is it crucial to continue
using those measures, at
least at this point in time?
What domains make up the
district’s current/past approach
to assessing school quality?
Student growth/progress
How has the district measured
school performance in these
domains?
State standardized assessments: Criterion-referenced growth, median
growth percentile, student growth percentile, value-added measures
Why does the district focus on
these measures?
Student growth or learning gains reflect how well a school is supporting
children’s learning; growth or gains provide a more accurate picture of a
school’s contribution to children’s learning than achievement data alone
What questions is the district
trying to answer?
Are students learning what we expect them to learn over the course of
the year? Are students progressing at least one grade level over the
course of the year? Are students on track to reach grade-level
expectations?
What kinds of decisions do these
data inform?
Ratings shared with parents and public; school improvement planning;
decisions about driving systemic improvement
What complications may prevent
the district from using those
measures now?
States did not administer state standardized assessments in spring
2020, so growth data are not available for this year or next year, and
potentially further into the future
What are other ways we could get
at the questions that these
measures are intended to help us
address?
What steps must the district take to
implement these other ways of
assessing quality or use them well?
5
16
What other ways could the district get at the questions
these measures are intended to help us answer? (1 of 2)
There may be viable
alternatives to the data
historically used for
this measure.
● For each of the measures
with prohibitive challenges,
the district must brainstorm
data sources or measures
that could answer the same
question
● The districts must prioritize
data that fill a gap created
by COVID-19 and focus on
data that the district and
schools already collect or
could be collected with
limited burden
Consider: Are there steps the
district should take to collect a
new source of data in the future?
Are there partners the district
can reach out to or permissions
the district must secure in order
to have access to these data in
the long term?
What domains make up the
district’s current/past approach to
assessing school quality?
Student growth/progress
How has the district measured
school performance in these
domains?
State standardized assessments: Criterion-referenced growth, median
growth percentile, student growth percentile, value-added measures
Why does the district focus on
these measures?
Student growth or learning gains reflect how well a school is
supporting children’s learning; growth or gains provide a more
accurate picture of a school’s contribution to children’s learning than
achievement data alone
What questions is the district trying
to answer?
Are students learning what we expect them to learn over the course of
the year? Are students progressing at least one grade level over the
course of the year? Are students on track to reach grade-level
expectations?
What kinds of decisions do these
data inform?
Ratings shared with parents and public; school improvement planning;
decisions about driving systemic improvement
What complications may prevent
the district from using those
measures now?
States did not administer state standardized assessments in spring
2020, so growth data are not available for this year or next year, and
potentially further into the future
What are other ways the district
could get at the questions that
these measures are intended to
help it address?
*See next slide
What steps must the district take to
implement these other ways of
assessing quality or use them well?
6
17
What other ways could the district get at the questions
these measures are intended to help us answer? (2 of 2)
What domains make up the district’s
current/past approach to assessing
school quality?
Student growth/progress
Questions 2 - 5 *See previous slide
What are other ways the district
could get at the questions that these
measures are intended to help it
address?
Benchmark or interim measures commonly used by schools (e.g.,
NWEA adapted to produce a summative score, ANet benchmarks)
Student progress data generated by online/tech-based learning
programs (e.g., DreamBox, Waterford)
Curriculum-based assessments used by schools
Formative assessments used by schools
Students’ progress through independently defined levels of
performance (e.g., Lexile or grade-level progress in reading,
executive functioning levels for adult learning)
What steps must the district take to
implement these other ways of
assessing quality or use them well?
6
There may be viable
alternatives to the data
historically used for
this measure.
● For each of the measures
with prohibitive challenges,
the district must brainstorm
data sources or measures
that could answer the same
question
● The districts must prioritize
data that fill a gap created
by COVID-19 and focus on
data that the district and
schools already collect or
could be collected with
limited burden
Consider: Are there steps the
district should take to collect a
new source of data in the future?
Are there partners the district
can reach out to or permissions
the district must secure in order
to have access to these data in
the long term?
18
What steps must the district take to implement these
other ways of assessing quality or using them well?
The district must plan
carefully when revising its
approach
● The district must identify
statutes or regulations
that affect how it can adapt
school performance
frameworks (e.g., school
board policies)
● The district must identify
stakeholders who need to
have input and buy-in for
changes to school
performance frameworks
(e.g., board members,
school leaders, families)
Consider: Given the number of
changes schools and
communities are navigating,
careful planning and strong
communication are of utmost
importance
What domains make up the
district’s current/past approach to
assessing school quality?
Student growth/progress
Questions 2 - 6 *See previous slide
What steps must the district take
to implement these other ways of
assessing quality or use them
well?
Assess constraints in statutes, regulations, or local policies in
consultation with local school board and state education agency, as
needed
Engage school leaders to understand what assessments they use,
and how they use them (and other sources of data) to identify and
address areas of continuous improvement
Engage parent-teacher associations or other parent groups to
understand how data on student growth/progress informs public
understanding and family decision-making
Communicate with school board members and other public officials
about the ways in which the district plans to change the domains, to
solicit input and build buy-in
Determine ambitious but achievable expectations for students and
schools
7
Appendix
Domain Summaries:
● Student Growth/Progress (see previous slides)
● Student Achievement/Proficiency
● Postsecondary Readiness
● Model-Specific Goals
● Student & Family Engagement & Well-Being
● Opportunity Gaps
20
Student Achievement/Proficiency: Summary of Key
Questions (1 of 2)
What domains make up our current/past approach to assessing student achievement/proficiency?
How has the district measured school
performance in these domains?
Subgroup proficiency on state assessments
Why does the district focus on these measures?
Students need to master grade-level content in order to be prepared for success in
the next level; holding schools accountable for whether students are meeting
common grade-level standards is important as a matter of equity to ensure high
expectations for all students
What questions is the district trying to answer?
Are there differences in performance between student subgroups? Is this school
improving outcomes for underserved subgroups?
What kinds of decisions do these data inform?
Ratings shared with parents and public; school improvement planning; decisions
about driving systemic improvement
What complications may prevent the district from
using those measures now?
States did not administer state standardized assessments in spring 2020, so these
data are not available
What are other ways the district could get at the
questions that these measures are intended to
help it address?
Benchmark or interim measures commonly used by schools (e.g., NWEA adapted to
produce a summative score, ANet benchmarks)
Student progress data generated by online/tech-based learning programs (e.g.,
DreamBox, Waterford)
Curriculum-based assessments used by schools
Formative assessments used by schools
Students’ progress through independently defined levels of performance (e.g., Lexile
or grade-level progress in reading, executive functioning levels for adult learning)
1
2
3
4
5
6
21
Student Achievement/Proficiency: Summary of Key
Questions (2 of 2)
What domains make up our current/past approach to assessing school quality?
What steps must the district take to implement
these other ways of assessing quality or use
them well?
Assess constraints in statutes or regulations, in consultation with local school board
and state education agency, as needed
Audit the validity and reliability of existing assessments and determine for what types
of accountability decisions it is appropriate to use them
Engage school leaders to understand what assessments they use, and how they use
them (and other sources of data) to identify and address areas of continuous
improvement
Engage parent-teacher associations or other parent groups to understand how data
on student growth/progress informs public understanding and family decision-making
Communicate with school board members and other public officials about the ways
in which the district plans to change the domains, to solicit input and build buy-in
Determine ambitious but achievable expectations for students and schools
7
22
Postsecondary Readiness: Summary of Key Questions
What domains make up our current/past approach to assessing postsecondary readiness?
How has the district measured school
performance in these domains?
Graduation rate/Adjusted Cohort Graduation Rate (ACGR)
Why does the district focus on these measures?
High school graduation is an important outcome that predicts a host of later
economic and life outcomes
What questions is the district trying to answer?
Are students in this school persisting to graduation and graduating at acceptable
rates?
What kinds of decisions do these data inform?
Ratings shared with parents and public; school improvement planning; decisions
about driving systemic improvement
What complications may prevent the district
from using those measures now?
Students whose education was disrupted due to COVID-19 may have lower on-time
graduation rates for several years into the future
What are other ways the district could get at the
questions that these measures are intended to
help it address?
Calculate additional graduation rates over extended timelines (e.g., 5-year, 6-year) to
account for COVID-related disruptions
What steps must the district take to implement
these other ways of assessing quality or use
them well?
Analyze and take steps to mitigate potential unintended consequences (e.g.,
whether adjusted graduation rates will be perceived as lowering standards)
Engage parent groups, business leaders, and postsecondary institutions to
understand how graduation data inform their decisions
Solicit input and build buy-in with school board members and other public officials
Determine ambitious but achievable expectations for students and schools
1
2
3
4
5
6
7
23
Model-specific goals: Summary of Key Questions
What domains make up our current/past approach to assessing model-specific goals?
How has the district measured school
performance in these domains?
Extent to which school implements/students complete practices aligned with the school model
(e.g., internships or capstones; volunteering hours)
Why does the district focus on these
measures?
Districts can create flexibility for schools to create specialized educational programs that
advance specific models or goals (e.g., bilingualism, arts, social justice). Districts that oversee
these systems have a responsibility to assess whether such schools are implementing the
models with fidelity
What questions is the district trying to
answer?
Is this school implementing its model as intended?
What kinds of decisions do these data
inform?
Ratings shared with parents and public; school improvement planning; decisions about driving
systemic improvement
What complications may prevent the district
from using those measures now?
Safe reopening or extended distance learning may require some changes in schools’ models
or how they implement associated activities
What are other ways the district could get at
the questions that these measures are
intended to help it address?
Are there measures that some schools collect as part of their model that are more important
now and should be a higher priority to collect for all schools/students (e.g., measures of
student well-being or health)?
What steps must the district take to
implement these other ways of assessing
quality or use them well?
Engage school leaders to identify existing and potential measures that capture the specific
value and outcomes of their school model
Engage parents to understand what measures would be useful in understanding a school’s
implementation of a specific model
Solicit input and build buy-in with school board members and other public officials about the
importance of different school models and tailored measures of quality
Determine ambitious but achievable expectations for students and schools
1
2
3
4
5
6
7
24
Student and family engagement and well-being:
Summary of Key Questions
What domains make up our current/past approach to assessing student and family engagement
and well-being?
How has the district measured school
performance in these domains?
Average daily attendance
Why does the district focus on these
measures?
Students need to be participating in the learning environment in order to grow and advance
What questions is the district trying to answer? Are students attending school regularly?
What kinds of decisions do these data inform?
Ratings shared with parents and public; school improvement planning; decisions about
driving systemic improvement
What complications may prevent the district
from using those measures now?
Unclear how to meaningfully define or measure attendance in a distance learning context;
short-term closures and illness are likely to elevate absenteeism rates
What are other ways the district could get at
the questions that these measures are intended
to help it address?
Measures of engagement with online learning platforms (e.g., logins, presence during
synchronous instructional time, software-based engagement tracking, completion of daily
objectives or activities)
What steps must the district take to implement
these other ways of assessing quality or use
them well?
Analyze and take steps to mitigate potential unintended consequences (e.g., how
attendance data informs how districts allocate and schools receive resources)
Engage parent groups to understand how they can or need to be engaged with attendance
during distance learning
Solicit input and buy-in from school board members and other public officials
Determine ambitious but achievable expectations for students and schools
1
2
3
4
5
6
7
25
Opportunity gaps: Summary of Key Questions
What domains make up our current/past approach to assessing equity?
How has the district measured school
performance in these domains?
Exclusionary discipline rates for student subgroups
Why does the district focus on these
measures?
Higher rates of exclusionary discipline for some students may reflect educator biases and/or
exacerbate disparities in other outcomes
What questions is the district trying to
answer?
Are there disparities in the rate at which different student subgroups experience exclusionary
discipline?
What kinds of decisions do these data
inform?
Ratings shared with parents and public; school improvement planning; decisions about driving
systemic improvement
What complications may prevent the
district from using those measures now?
Unclear how to meaningfully define or measure exclusionary discipline rates in a distance
learning context
What are other ways the district could get
at the questions that these measures are
intended to help it address?
Unclear until schools develop norms around discipline policies and practices in virtual
environments
What steps must the district take to
implement these other ways of assessing
quality or use them well?
Engage parent groups to understand what data could replace discipline rate data and be
useful for decision-making
Solicit input and buy-in from school board members and other public officials, as well as those
affected by the decisions (e.g., school leaders, counselors, families)
Determine ambitious but achievable expectations for students and schools
1
2
3
4
5
6
7
Appendix
27
About the authors
Ashley LiBetti is an associate partner at Bellwether Education Partners
Email: ashley.libetti@bellwethereducation.org
Juliet Squire is a partner at Bellwether Education Partners
Email: juliet.squire@bellwethereducation.org
Jennifer O’Neal Schiess is a partner at Bellwether Education Partners
Email: jennifer.schiess@bellwethereducation.org
We would like to thank the Michael & Susan Dell Foundation for its financial
support for this project and Super Copy Editors for proofreading.

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A Guide for School Districts: Exploring Alternative Measures of Student Learning and Wellness

  • 1. A Guide for School Districts: Exploring Alternative Measures of Student Learning and Wellness Ashley LiBetti, Juliet Squire, and Jennifer O’Neal Schiess September 2020
  • 2. 2 Introduction Beyond federal requirements in the Every Student Succeeds Act and state-level accountability systems, school districts across the country have an essential role in school-level accountability, especially assessing student learning and wellness. Today — with unfamiliar school configurations and unknown impacts on student outcomes — districts can adapt how they measure school quality to better understand how schools are operating and how students are learning. Numerous school districts have developed School Performance Frameworks (SPFs) with shared metrics for quality among their schools. With a missing year of data on state assessments, widespread adoption of distance learning, and a renewed emphasis on student health and safety, these districts must adjust their SPFs to account for missing data and shifting priorities. For those districts that have yet to establish SPFs, the urgent need to understand what schools are doing and how it affects student outcomes can serve as a call to action. SPFs are an essential tool that can help districts set priorities for their schools and support them as they continue to adapt and improve. Moreover, unlike federal- and state-level officials, school district leaders are well-positioned to establish metrics that are responsive to local circumstances. Bellwether has published numerous resources in recent weeks and months about the role of metrics and accountability during the pandemic; this deck is a tool for district leaders as they develop and adapt their approaches.
  • 3. 3 Districts need to rethink their approaches to measuring student learning and wellness It is essential for districts to understand how well schools are meeting the needs of students, including not only academic growth but also student wellness. Districts managing systems in which foundational decisions affecting student learning sit with building leaders need to continue strong oversight and support decision-making at the school and system level. Districts have a responsibility to protect student interests while being mindful of the burdens they place on school leaders and educators. Measures of school quality are essential for understanding equity and ensuring that the system of schools is collectively meeting the needs of all students. The data gaps created by lack of testing fundamentally disrupted the ways in which districts have assessed schools’ academic performance. The COVID-19 pandemic, school closures, advent of distance learning, and suspension of state testing have disrupted how districts assess and manage their systems of schools. Districts must adapt their approaches accordingly. Districts must shift how they assess school quality, support continuous improvement, and hold schools accountable.
  • 4. 4 The need to rethink these measures has occurred within a broader discussion of accountability Some have argued that we should forgo accountability for the last year and beyond, while others believe we should return to past accountability practices as soon as possible. Neither response is adequate. Rather, districts must develop new and better approaches to assess student learning, school performance, and quality. Districts need not start from scratch; many can evolve their existing SPFs to assess and communicate school quality. Adaptations shouldn’t narrowly focus on addressing current gaps in testing data. In developing and evolving their SPFs, districts have an opportunity to innovate in ways that are responsive to the needs of their local communities. Current circumstances present challenges for districts in managing school quality, as well as a window to refresh their approach. Districts with SPFs must quickly and nimbly adjust them, as well as how they are used for accountability and continuous improvement. At the same time, all districts — regardless of whether they have SPFs — can start now to build a foundation for how schools and systems recover, how we assess what we value about school performance, and how to better support students to thrive moving forward.
  • 5. 5 To evolve SPFs or define new locally developed measures and goals, districts must answer several key questions What are the key concepts or indicators that make up the district’s current/past approach to assessing school quality? Are there other concepts or indicators related to school performance that become newly or more important for districts to assess in a COVID-19 world? How has the district measured school performance within these indicators? Why does the district focus on these measures? What questions is the district trying to answer? What kinds of decisions does this data inform? What are the stakes of these decisions for students, schools, communities, and districts? What problems or complications may prevent the district from using these measures now? Are there other limitations of those measures that the district is concerned about or aware of? What are other ways the district could get at the questions that these measures are intended to help us answer? What information is the district currently collecting from schools? Is there additional information that schools are collecting that might help? Are there other information sources that would be useful that districts and schools don’t currently have but potentially could? What steps must the district take to implement these other ways of assessing quality or use them well? Are there any statutory or regulatory constraints? How will the district engage stakeholders and build buy-in for the changes? 1 2 3 4 5 6 7
  • 6. 6 This toolkit walks through these questions to support adjustments to measuring student learning and wellness To adapt existing school performance frameworks during the pandemic, districts must audit the measures they have previously used, assess limitations of those measures in the current context, identify other measures that are newly relevant, and develop an approach to answering key questions about student learning and well-being. Crucially, a variety of stakeholders use school performance frameworks to make decisions for their families, schools, and communities. Districts must prioritize providing information that is most useful to those stakeholders.
  • 7. 7 School performance frameworks typically include measures that align to six domains (slide 1 of 2) 1. Student Growth/Progress 2. Student Achievement (Proficiency) 3. Postsecondary Readiness ● State standardized assessments: Criterion-referenced growth, median growth percentile, student growth percentile, value-added measures ● Subgroup growth ● State standardized assessments: percent of students proficient, proficiency rates relative to other schools or state average ● Subgroup proficiency ● Graduation rate/Adjusted Cohort Graduation Rate (ACGR) ● Credit units: 9th- or 10th-grade students on-track to graduate ● ACT/SAT: participation rates; percent scoring above a certain threshold; average score compared to national averages ● Completion of AP/IB or postsec credits while in high school ● Completion of industry-recognized credentials ● Postsecondary enrollment: College acceptance rate; percent of graduates enrolled in postsecondary; remediation rate for graduates attending postsecondary ● Post-graduation employment: Percent of graduates employed in the fall following graduation This toolkit will walk through key questions for districts one by one for the first domain, followed by a summary of each of the other five domains. The measures included here are examples and do not reflect all possible measures for each domain
  • 8. 8 School performance frameworks typically include measures that align to six domains (slide 2 of 2) 4. Model-Specific Goals 5. Student & Family Engagement & Well-Being 6. Opportunity Gaps ● Extent to which school implements/students complete practices aligned with specific school model (e.g., internships or capstones; volunteering hours) ● Valid and reliable measures of student learning in subjects other than ELA and math (e.g., additional languages for bilingual schools; science) ● Portfolios or other tools to demonstrate student learning ● Instructional minutes ● Average daily attendance ● Chronic absenteeism rates ● Truancy rates ● Reenrollment rates ● School climate measures ● Parent surveys ● Student surveys ● Supports for emotional, behavioral, mental, and physical health ● Exclusionary discipline rates ● Exclusionary discipline rates for student subgroups ● Student mobility ● Special education delivery ● Racial and economic segregation ● Teacher demographic data ● Teacher-student match data ● Availability & enrollment in advanced, rigorous coursework; gifted and talented programs; courses in arts, social sciences, sciences, and technology; formalized systems of tutoring and other academic supports ● Enrollment in above by subgroup This toolkit will walk through key questions for districts one by one for the first domain, followed by a summary of each of the other five domains. The measures included here are examples and do not reflect all possible measures for each domain
  • 10. 10 Districts can use this process to adapt existing SPFs or define new school measures and goals The following slides sequentially walk through the questions districts must answer to adapt their school performance framework or define new locally developed school measures and goals (see here for the complete list of questions). Each slide focuses on one of these key questions, provides instructions for examining practices and priorities to answer that question, and identifies key considerations. This set of slides illustrates how a district might go through this process, using the student growth/progress domain and the state standardized assessments measure as an example. A district should complete this same process for all measures it is considering adapting or creating. A workbook available here was developed to answer similar questions for charter school authorizers, and may also be useful for districts.
  • 11. 11 What domains make up the district’s current/past approach to assessing student growth/progress? What domains make up the district’s current/past approach to assessing school quality? Student growth/progress How have we measured school performance in these domains? Why do we focus on these measures? What questions are we trying to answer? What kinds of decisions do these data inform? What complications may prevent us from using those measures now? What are other ways we could get at the questions that these measures are intended to help us address? What steps must the district take to implement these other ways of assessing quality or use them well? The district must identify the domains that make up its vision for school quality ● Review the domains in the district’s school performance framework ● Identify the domains that the district focuses on in measuring school performance ● Identify which of these domains are common across schools and which are differentiated for certain types of schools (e.g., by grade level) or for individual schools 1
  • 12. 12 How has the district measured school performance in student growth/progress? What domains make up the district’s current/past approach to assessing school quality? Student growth/progress How has the district measured school performance in these domains? State standardized assessments (e.g., criterion- referenced growth, median growth percentile, student growth percentile, value-added measures) Why do we focus on these measures? What questions are we trying to answer? What kinds of decisions do these data inform? What complications may prevent us from using those measures now? What are other ways we could get at the questions that these measures are intended to help us address? What steps must the district take to implement these other ways of assessing quality or use them well? The district must identify how it measures these domains of school quality. ● For each of the domains identified, the district must list out the measures that it previously used, or could use, to assess school performance for that domain ● This list may get long; there will likely be multiple measures for each domain ● The district should not pare down the list of measures at this point, but consider this a brainstorm ● This list of measures is the district’s initial list of student growth/progress measures 2
  • 13. 13 Why does the district focus on these measures? What questions is the district trying to answer? What domains make up the district’s current/past approach to assessing school quality? Student growth/progress How has the district measured school performance in these domains? State standardized assessments: (e.g., criterion-referenced growth, median growth percentile, student growth percentile, value-added measures) Why does the district focus on these measures? Student growth or learning gains reflect how well a school is supporting children’s learning; growth or gains provide a more accurate picture of a school’s contribution to children’s learning than achievement data alone What questions is the district trying to answer? Are students learning what we expect them to learn over the course of the year? Are students progressing at least one grade level over the course of the year? Are students on track to reach grade-level expectations? What kinds of decisions do these data inform? What complications may prevent us from using those measures now? What are other ways we could get at the questions that these measures are intended to help us address? What steps must the district take to implement these other ways of assessing quality or use them well? The district must be clear about the rationale for including these measures in its school performance frameworks ● For each of the student growth/progress measures, the district must think through why the measure is important ● Given that rationale, the district must clarify the question it is trying to answer with that measure Consider: Are any questions answered by multiple measures? Are each of the measures worth collecting or necessary to answer the question? 3
  • 14. 14 What kinds of decisions do these data inform? Student learning and wellness measures are ultimately used to make decisions about schools. ● The district must identify the types of decisions that these data have historically informed ● There will likely be substantial overlap in the types of decisions Consider: How do teachers and school leaders use this information to inform their instructional approaches and priorities? How do families and the community use this information to understand school quality and make decisions for students? What domains make up the district’s current/past approach to assessing school quality? Student growth/progress How has the district measured school performance in these domains? State standardized assessments: (e.g., criterion-referenced growth, median growth percentile, student growth percentile, value-added measures) Why does the district focus on these measures? Student growth or learning gains reflect how well a school is supporting children’s learning; growth or gains provide a more accurate picture of a school’s contribution to children’s learning than achievement data alone What questions is the district trying to answer? Are students learning what we expect them to learn over the course of the year? Are students progressing at least one grade level over the course of the year? Are students on track to reach grade-level expectations? What kinds of decisions do these data inform? Ratings shared with parents and public; school improvement planning; decisions about driving systemic improvement What complications may prevent us from using those measures now? What are other ways we could get at the questions that these measures are intended to help us address? What steps must the district take to implement these other ways of assessing quality or use them well? 4
  • 15. 15 What problems or complications may prevent the district from using those measures now? The district must anticipate complications with relying on these measures to inform decisions. ● For each of the student learning and wellness measures, the district must identify potential challenges ● Key questions may help elucidate challenges: What is the short- and long-term availability of the data? Does the district question or mistrust the validity of the data for this measure? Consider: Are there any actions the district could take to solve these problems? Do any measures have insurmountable challenges? If so, is it crucial to continue using those measures, at least at this point in time? What domains make up the district’s current/past approach to assessing school quality? Student growth/progress How has the district measured school performance in these domains? State standardized assessments: Criterion-referenced growth, median growth percentile, student growth percentile, value-added measures Why does the district focus on these measures? Student growth or learning gains reflect how well a school is supporting children’s learning; growth or gains provide a more accurate picture of a school’s contribution to children’s learning than achievement data alone What questions is the district trying to answer? Are students learning what we expect them to learn over the course of the year? Are students progressing at least one grade level over the course of the year? Are students on track to reach grade-level expectations? What kinds of decisions do these data inform? Ratings shared with parents and public; school improvement planning; decisions about driving systemic improvement What complications may prevent the district from using those measures now? States did not administer state standardized assessments in spring 2020, so growth data are not available for this year or next year, and potentially further into the future What are other ways we could get at the questions that these measures are intended to help us address? What steps must the district take to implement these other ways of assessing quality or use them well? 5
  • 16. 16 What other ways could the district get at the questions these measures are intended to help us answer? (1 of 2) There may be viable alternatives to the data historically used for this measure. ● For each of the measures with prohibitive challenges, the district must brainstorm data sources or measures that could answer the same question ● The districts must prioritize data that fill a gap created by COVID-19 and focus on data that the district and schools already collect or could be collected with limited burden Consider: Are there steps the district should take to collect a new source of data in the future? Are there partners the district can reach out to or permissions the district must secure in order to have access to these data in the long term? What domains make up the district’s current/past approach to assessing school quality? Student growth/progress How has the district measured school performance in these domains? State standardized assessments: Criterion-referenced growth, median growth percentile, student growth percentile, value-added measures Why does the district focus on these measures? Student growth or learning gains reflect how well a school is supporting children’s learning; growth or gains provide a more accurate picture of a school’s contribution to children’s learning than achievement data alone What questions is the district trying to answer? Are students learning what we expect them to learn over the course of the year? Are students progressing at least one grade level over the course of the year? Are students on track to reach grade-level expectations? What kinds of decisions do these data inform? Ratings shared with parents and public; school improvement planning; decisions about driving systemic improvement What complications may prevent the district from using those measures now? States did not administer state standardized assessments in spring 2020, so growth data are not available for this year or next year, and potentially further into the future What are other ways the district could get at the questions that these measures are intended to help it address? *See next slide What steps must the district take to implement these other ways of assessing quality or use them well? 6
  • 17. 17 What other ways could the district get at the questions these measures are intended to help us answer? (2 of 2) What domains make up the district’s current/past approach to assessing school quality? Student growth/progress Questions 2 - 5 *See previous slide What are other ways the district could get at the questions that these measures are intended to help it address? Benchmark or interim measures commonly used by schools (e.g., NWEA adapted to produce a summative score, ANet benchmarks) Student progress data generated by online/tech-based learning programs (e.g., DreamBox, Waterford) Curriculum-based assessments used by schools Formative assessments used by schools Students’ progress through independently defined levels of performance (e.g., Lexile or grade-level progress in reading, executive functioning levels for adult learning) What steps must the district take to implement these other ways of assessing quality or use them well? 6 There may be viable alternatives to the data historically used for this measure. ● For each of the measures with prohibitive challenges, the district must brainstorm data sources or measures that could answer the same question ● The districts must prioritize data that fill a gap created by COVID-19 and focus on data that the district and schools already collect or could be collected with limited burden Consider: Are there steps the district should take to collect a new source of data in the future? Are there partners the district can reach out to or permissions the district must secure in order to have access to these data in the long term?
  • 18. 18 What steps must the district take to implement these other ways of assessing quality or using them well? The district must plan carefully when revising its approach ● The district must identify statutes or regulations that affect how it can adapt school performance frameworks (e.g., school board policies) ● The district must identify stakeholders who need to have input and buy-in for changes to school performance frameworks (e.g., board members, school leaders, families) Consider: Given the number of changes schools and communities are navigating, careful planning and strong communication are of utmost importance What domains make up the district’s current/past approach to assessing school quality? Student growth/progress Questions 2 - 6 *See previous slide What steps must the district take to implement these other ways of assessing quality or use them well? Assess constraints in statutes, regulations, or local policies in consultation with local school board and state education agency, as needed Engage school leaders to understand what assessments they use, and how they use them (and other sources of data) to identify and address areas of continuous improvement Engage parent-teacher associations or other parent groups to understand how data on student growth/progress informs public understanding and family decision-making Communicate with school board members and other public officials about the ways in which the district plans to change the domains, to solicit input and build buy-in Determine ambitious but achievable expectations for students and schools 7
  • 19. Appendix Domain Summaries: ● Student Growth/Progress (see previous slides) ● Student Achievement/Proficiency ● Postsecondary Readiness ● Model-Specific Goals ● Student & Family Engagement & Well-Being ● Opportunity Gaps
  • 20. 20 Student Achievement/Proficiency: Summary of Key Questions (1 of 2) What domains make up our current/past approach to assessing student achievement/proficiency? How has the district measured school performance in these domains? Subgroup proficiency on state assessments Why does the district focus on these measures? Students need to master grade-level content in order to be prepared for success in the next level; holding schools accountable for whether students are meeting common grade-level standards is important as a matter of equity to ensure high expectations for all students What questions is the district trying to answer? Are there differences in performance between student subgroups? Is this school improving outcomes for underserved subgroups? What kinds of decisions do these data inform? Ratings shared with parents and public; school improvement planning; decisions about driving systemic improvement What complications may prevent the district from using those measures now? States did not administer state standardized assessments in spring 2020, so these data are not available What are other ways the district could get at the questions that these measures are intended to help it address? Benchmark or interim measures commonly used by schools (e.g., NWEA adapted to produce a summative score, ANet benchmarks) Student progress data generated by online/tech-based learning programs (e.g., DreamBox, Waterford) Curriculum-based assessments used by schools Formative assessments used by schools Students’ progress through independently defined levels of performance (e.g., Lexile or grade-level progress in reading, executive functioning levels for adult learning) 1 2 3 4 5 6
  • 21. 21 Student Achievement/Proficiency: Summary of Key Questions (2 of 2) What domains make up our current/past approach to assessing school quality? What steps must the district take to implement these other ways of assessing quality or use them well? Assess constraints in statutes or regulations, in consultation with local school board and state education agency, as needed Audit the validity and reliability of existing assessments and determine for what types of accountability decisions it is appropriate to use them Engage school leaders to understand what assessments they use, and how they use them (and other sources of data) to identify and address areas of continuous improvement Engage parent-teacher associations or other parent groups to understand how data on student growth/progress informs public understanding and family decision-making Communicate with school board members and other public officials about the ways in which the district plans to change the domains, to solicit input and build buy-in Determine ambitious but achievable expectations for students and schools 7
  • 22. 22 Postsecondary Readiness: Summary of Key Questions What domains make up our current/past approach to assessing postsecondary readiness? How has the district measured school performance in these domains? Graduation rate/Adjusted Cohort Graduation Rate (ACGR) Why does the district focus on these measures? High school graduation is an important outcome that predicts a host of later economic and life outcomes What questions is the district trying to answer? Are students in this school persisting to graduation and graduating at acceptable rates? What kinds of decisions do these data inform? Ratings shared with parents and public; school improvement planning; decisions about driving systemic improvement What complications may prevent the district from using those measures now? Students whose education was disrupted due to COVID-19 may have lower on-time graduation rates for several years into the future What are other ways the district could get at the questions that these measures are intended to help it address? Calculate additional graduation rates over extended timelines (e.g., 5-year, 6-year) to account for COVID-related disruptions What steps must the district take to implement these other ways of assessing quality or use them well? Analyze and take steps to mitigate potential unintended consequences (e.g., whether adjusted graduation rates will be perceived as lowering standards) Engage parent groups, business leaders, and postsecondary institutions to understand how graduation data inform their decisions Solicit input and build buy-in with school board members and other public officials Determine ambitious but achievable expectations for students and schools 1 2 3 4 5 6 7
  • 23. 23 Model-specific goals: Summary of Key Questions What domains make up our current/past approach to assessing model-specific goals? How has the district measured school performance in these domains? Extent to which school implements/students complete practices aligned with the school model (e.g., internships or capstones; volunteering hours) Why does the district focus on these measures? Districts can create flexibility for schools to create specialized educational programs that advance specific models or goals (e.g., bilingualism, arts, social justice). Districts that oversee these systems have a responsibility to assess whether such schools are implementing the models with fidelity What questions is the district trying to answer? Is this school implementing its model as intended? What kinds of decisions do these data inform? Ratings shared with parents and public; school improvement planning; decisions about driving systemic improvement What complications may prevent the district from using those measures now? Safe reopening or extended distance learning may require some changes in schools’ models or how they implement associated activities What are other ways the district could get at the questions that these measures are intended to help it address? Are there measures that some schools collect as part of their model that are more important now and should be a higher priority to collect for all schools/students (e.g., measures of student well-being or health)? What steps must the district take to implement these other ways of assessing quality or use them well? Engage school leaders to identify existing and potential measures that capture the specific value and outcomes of their school model Engage parents to understand what measures would be useful in understanding a school’s implementation of a specific model Solicit input and build buy-in with school board members and other public officials about the importance of different school models and tailored measures of quality Determine ambitious but achievable expectations for students and schools 1 2 3 4 5 6 7
  • 24. 24 Student and family engagement and well-being: Summary of Key Questions What domains make up our current/past approach to assessing student and family engagement and well-being? How has the district measured school performance in these domains? Average daily attendance Why does the district focus on these measures? Students need to be participating in the learning environment in order to grow and advance What questions is the district trying to answer? Are students attending school regularly? What kinds of decisions do these data inform? Ratings shared with parents and public; school improvement planning; decisions about driving systemic improvement What complications may prevent the district from using those measures now? Unclear how to meaningfully define or measure attendance in a distance learning context; short-term closures and illness are likely to elevate absenteeism rates What are other ways the district could get at the questions that these measures are intended to help it address? Measures of engagement with online learning platforms (e.g., logins, presence during synchronous instructional time, software-based engagement tracking, completion of daily objectives or activities) What steps must the district take to implement these other ways of assessing quality or use them well? Analyze and take steps to mitigate potential unintended consequences (e.g., how attendance data informs how districts allocate and schools receive resources) Engage parent groups to understand how they can or need to be engaged with attendance during distance learning Solicit input and buy-in from school board members and other public officials Determine ambitious but achievable expectations for students and schools 1 2 3 4 5 6 7
  • 25. 25 Opportunity gaps: Summary of Key Questions What domains make up our current/past approach to assessing equity? How has the district measured school performance in these domains? Exclusionary discipline rates for student subgroups Why does the district focus on these measures? Higher rates of exclusionary discipline for some students may reflect educator biases and/or exacerbate disparities in other outcomes What questions is the district trying to answer? Are there disparities in the rate at which different student subgroups experience exclusionary discipline? What kinds of decisions do these data inform? Ratings shared with parents and public; school improvement planning; decisions about driving systemic improvement What complications may prevent the district from using those measures now? Unclear how to meaningfully define or measure exclusionary discipline rates in a distance learning context What are other ways the district could get at the questions that these measures are intended to help it address? Unclear until schools develop norms around discipline policies and practices in virtual environments What steps must the district take to implement these other ways of assessing quality or use them well? Engage parent groups to understand what data could replace discipline rate data and be useful for decision-making Solicit input and buy-in from school board members and other public officials, as well as those affected by the decisions (e.g., school leaders, counselors, families) Determine ambitious but achievable expectations for students and schools 1 2 3 4 5 6 7
  • 27. 27 About the authors Ashley LiBetti is an associate partner at Bellwether Education Partners Email: ashley.libetti@bellwethereducation.org Juliet Squire is a partner at Bellwether Education Partners Email: juliet.squire@bellwethereducation.org Jennifer O’Neal Schiess is a partner at Bellwether Education Partners Email: jennifer.schiess@bellwethereducation.org We would like to thank the Michael & Susan Dell Foundation for its financial support for this project and Super Copy Editors for proofreading.