Elliott Elementary in Lincoln, Neb., struck off on its own last year when it became the only school in the city to win money through the federal . Winning wasn鈥檛 something to be proud of, though: It meant the school qualified as one of the worst in the nation. About a third of 5th graders at Elliott were proficient on state reading tests when the reforms began, compared with 80 percent in Lincoln as a whole.
Winning also meant a lot of work for teachers and administrators. One of the biggest tasks was overhauling the way teachers at the school are evaluated. Elliott was the only school in the city making the change, which meant it had to come up with a new way of rating teachers mostly on its own.
鈥淭he challenge was connecting it to student achievement,鈥� said Jadi Miller, named the principal at Elliott after a longtime principal was ousted to comply with the grant鈥檚 mandate of new leadership. 鈥淭hat was certainly very new for us.鈥�
In the Obama administration鈥檚 new push to turn around what鈥檚 described as the bottom 5 percent of schools nationwide, the vast majority of districts chose the reform option that seemed the least invasive: Instead of closing schools or firing at least half the teaching staff, schools could undergo less-aggressive interventions, such as overhauling how teacher performance is measured and rewarding teachers who do well.
But the teacher-evaluation requirement has turned out to be a major stumbling block for many schools in the SIG program. Last summer, when the U.S. Department of Education offered waivers to extend the deadline for launching new teacher and principal evaluations, more than two dozen states applied on behalf of their SIG schools, according to federal officials. Anecdotal evidence from around the country suggests that nearly two years into their three-year grants, many schools have yet to change how they rate and reward teachers.
鈥淵ou have this pressure you鈥檙e putting on these schools, and it really becomes a challenge for them to respond,鈥� said Scott Marion, the associate director of the Dover, N.H.-based , which has advised schools on evaluation models.
States with School Improvement Grants seeking more time to create teacher-evaluation systems
SOURCE: U.S. Department of Education
The movement to overhaul how teachers are rated has sparked public battles between school officials and teachers鈥� unions across the country. Controversial state laws鈥攆ueled in part by a separate Obama administration grant competition, the Race to the Top鈥攈ave called for more thorough evaluations based on frequent classroom observations and student test scores. In some states, teachers now face losing tenure or their jobs if they are rated poorly.
Amid the tumult, the SIG program has received less attention. Yet it鈥檚 likely to be just as instrumental in spreading the Obama administration鈥檚 vision of reform for the teaching profession. After the initial delays, many schools, along with entire districts and states, are set to launch new evaluation systems to fulfill the grant鈥檚 mandates in the next year鈥攄espite technical difficulties, resistance from teachers鈥� unions, and questions about the accuracy of various evaluation methods.
Picking a Model
Schools applying for SIG money had to choose from. During the first round of the program, launched in 2010, nearly three-quarters of schools鈥攎ore than 600鈥攕igned up for the 鈥渢ransformation鈥� model, which requires schools to create new evaluation and reward systems for teachers based in part on student academic growth.
Education Week, the Education Writers Association, and The Hechinger Report partnered with 18 news outlets in 16 states to examine how $3 billion in federal School improvement Grants is being used in efforts to revitalize some of the nation鈥檚 lowest-performing schools. In interviews with scores of teachers, students, researchers, and education officials at all levels of government, reporters set out to determine how the money is being spent and whether the changes the SIG program sparks are likely to last. For the complete series, visit the Turnaround Watch page.
Some transformation schools are located in states already in the midst of launching new statewide teacher-evaluation systems, including Florida, New York, and Tennessee. State support has not been a guarantee that launching the new evaluations will go smoothly, however. In New York City, school officials and the local teachers鈥� union have battled over job protections for poorly rated teachers at 11 schools using the transformation model.
Elsewhere, SIG schools have helped influence whole districts and states to rework how teacher performance is measured. For example, the school districts in Yakima, Wash., and Hazelwood, Mo., a suburb of St. Louis, plan to introduce new evaluations at every school, not just those in the SIG program. And in Michigan, Mississippi, and New Jersey, SIG schools are acting as pilots for new teacher-evaluation systems that will eventually be rolled out statewide.
But in some states, schools have had to go it alone.
In Alaska, schools were left to figure out how to revamp their teacher evaluations with the help of private consultants.
鈥淭he difficulty is that none of these sites had anything in place at all for collecting and analyzing student-achievement data in terms of tying it to teacher evaluation,鈥� said Gerry Briscoe, a school improvement specialist at the , a nonprofit group that is supporting the state鈥檚 10 SIG schools. 鈥淲e鈥檙e really building this from the ground up.鈥�
And in Nebraska, teachers鈥� unions are currently locked in a battle with state legislators over a proposal to increase the frequency of classroom observations. At the same time, Jim Havelka, a consultant who is aiding the state鈥檚 seven SIG schools, all of which chose the transformation model, says measuring student academic growth has been challenging because the state doesn鈥檛 provide sufficient test-score data to schools.
鈥淒oing value-added just isn鈥檛 going to happen,鈥� Mr. Havelka said, referring to the statistical models that many states are now using to measure student growth on standardized tests. 鈥淲e just don鈥檛 have that kind of data.鈥�
Nontested Subjects
Even schools in states with advanced data systems must figure out how to measure student academic progress for the vast majority of teachers whose students don鈥檛 regularly take standardized tests, including those who teach social studies, music, art, or physical education. The federal Education Department has said the measurements must be both 鈥渞igorous and comparable鈥� across teachers and schools, but experts say following that mandate can be hard.
Officials in the Obama administration say they recognize the challenges, but insist that the requirements for the new teacher- and principal-evaluation systems are critical to the success of the reforms as a whole.
鈥淲e want to make sure that districts have time to develop high-quality evaluation systems that will help them successfully turn around their schools,鈥� said Jason Snyder, a deputy assistant secretary in the Education Department鈥檚 office of elementary and secondary education.
In Nebraska, the principal of Elliot Elementary is optimistic that the changes under way, including the new evaluation system, will transform the school: Already, test scores have risen significantly after just one year. The next challenge is to figure out how to follow another SIG requirement鈥攖hat high-performing teachers be rewarded for their work.
鈥淭o be one of 37 elementaries and we鈥檙e the only one looking at [evaluation] this way, that has created some issues sometimes,鈥� Ms. Miller said. 鈥淭hat compensation piece continues to be a puzzle for us, and there hasn鈥檛 been great guidance.鈥�
