double take

Will Indiana go through with a ‘confusing’ plan that could mean every school winds up with two A-F grades?

Students work on assignments at Indianapolis Public Schools Center For Inquiry at School 27.

Imagine a scenario where Indiana schools get not just one A-F grade each year, but two.

One grade would determine whether a school can be taken over by the state. The other would comply with federal law asking states to track student test progress and how federal aid is spent. Both would count, but each would reflect different measures of achievement and bring different consequences.

This could be Indiana’s future if a state board-approved plan moves ahead at the same time the state is working on a conflicting plan to comply with a new federal law.

If it sounds complicated, that’s because it probably would be, said state Superintendent Jennifer McCormick. Originally, A-F grades were intended to be an easy way for parents and community members to understand how their school is doing.

“It’s extremely confusing to have multiple accountability systems with multiple consequences,” McCormick told board members last week. “All along our message has been to get as much alignment as we can.”

Indiana would not be the first state to consider dual accountability systems — Colorado operated separate systems for years under No Child Left Behind and is now doing so again. Virginia, New Hampshire, and South Carolina have also had two models in years past. But this move would be a big departure from Indiana’s efforts over the past several years to simplify accountability, and education officials warn it could create more problems than it would solve.

Dale Chu, an education consultant who previously worked in Indiana under state Superintendent Tony Bennett, said it’s actually not common for states to have multiple systems, and doing so for political reasons, rather than what helps students and families, is concerning.

“We all know how confusing accountability systems can be when you just have one,” Chu said. “To create a bifurcated system, I don’t see how you gain additional clarity … I would certainly hope that if that’s the direction the state is going to move in, they are very thoughtful and intentional about it.”

The changes come as Indiana works to create a plan to comply with a new federal education law, known as the Every Student Succeeds Act. McCormick’s education department has been working to align the federal system with Indiana’s grading system, and is struggling to bring some state measures in line with federal laws, most notably in the area of graduation requirements and diplomas.

At the same time the Indiana State Board of Education is negotiating this alignment, it is also revamping the A-F grade system.

A new grading proposal approved by the state board last week would put more emphasis on student test scores than the A-F system that now unifies state and federal requirements. Those new rules would include extra categories for grading schools, such as a “well-rounded” measure for elementary schools that is calculated based on science and social studies tests and an “on-track” measure for high schools that is calculated based on credits and freshman-year grades. Neither component is part of  the state’s federal plan.

While that proposal is preliminary, if approved it would go into effect for schools in 2018-19.

Officials were already expecting to issue two sets of A-F grades to schools in 2018 — one state grade, and one federal — as the state continued to work all of Indiana’s unresolved education issues into the new federal plan. Figuring out how to ensure state graduation rates don’t plummet because of other federal rule changes dictating  which diplomas count and incorporating the new high school graduation requirements, for example, will take time — and legislation — to fix.

Read: Indiana has a curious plan to sidestep federal rules — give schools two A-F grades next year.

But ultimately, officials said, if some of the state board-approved changes make it into final policy, and Indiana’s federal plan doesn’t change to accommodate it, the state and federal accountability systems could remain at odds with each other — meaning schools would continue to get two grades after 2018.

The original intent was to have all Indiana’s state grading system line up with federal requirements before the plan was sent to federal officials in September. Then, once the federal government gave feedback, the state A-F revamp could continue.

But just this past fall, after the federal plan had been submitted, some members of the state board began adding in additional measures, some of which reflect their personal interests in how schools should be rated.

Those measures were added after board members had multiple chances to discuss the federal plan with the education department, conversations that were held in an attempt to ward off such changes this late in the game. Yet even last week at the state board’s monthly meeting, where the new grading changes were approved, some board members didn’t seem to realize until after the vote that the A-F systems would not match up.

David Freitas, a state board member, said he didn’t see the conflicting A-F grade rules as a problem. The board can make Indiana’s state A-F system whatever it wants, he said, and there will be plenty of time to iron out specifics as the rulemaking process unfolds over the next several months.

“We’re not banned from having two different systems,” Freitas said. “But we need to consider the implications and consequences of that.”

Read more of our coverage of the Every Student Succeeds Act here.

Every Student Succeeds Act

Plans for a single Indiana diploma advance with new rules that raise the bar for graduation waivers

In a move that might make it more difficult for some students to graduate, Indiana lawmakers are considering raising the threshold for allowing students to earn a diploma when they have fallen short of some state requirements.

A proposal to change the graduation waiver system is the latest attempt by the state to amend graduation requirements as part of a policy initiative to ensure that students are prepared for life after high school. The change in waiver policy could make it more challenging for students who struggle academically to complete high school.

“I want to make sure we have as few waivers as possible,” said Rep. Bob Behning, Republican chairman of the House Education Committee and author of House Bill 1426, which includes the waiver changes. And if a waiver is necessary, he said, he wants the requirements to be stringent enough to ensure post-graduate success.

The proposed waiver requirements are part of a sweeping effort by the state to align state law with the state’s new graduation pathways system. The bill, which passed its first major hurdle with the approval of the House Education Committee on Tuesday, would combine the state’s four diplomas into one to deal with the effects of a change in federal law that no longer counts the state’s less-rigorous general diploma in the federal graduation rate. With one diploma, Indiana would be more likely to pass muster under the new federal rules, but final approval from the federal government won’t come for several months.

An amendment to the bill proposed on Tuesday will change Indiana’s policy for allowing students to receive a waiver that, while controversial, is widely used. More than 8 percent of the more than 70,000 students who graduated last year received waivers from meeting graduation requirements.

Supporters say waivers provide opportunities to students who might face challenges that affect their ability to meet the basic graduation requirements. But critics say they allow high schools to push through students that lack the kind of skills needed to be successfully employed.

Waiver requirements for students with disabilities would not change under the new proposal.

The current system allows students who repeatedly fail required state tests in English and math to be granted a waiver that lets them graduate if they meet other criteria.

But under the new pathways system, which will affect students now in seventh grade, the state graduation exam will be replaced with one of several new graduation pathways requirements, which could include passing a college-entrance exam, taking career and technical education classes, or passing advanced courses.

Under Behning’s proposal, a waiver would be granted if a student had earned an average GPA of 2.0; maintained 95 percent attendance; or if he or she has been admitted to college, a job training program, the military or has an opportunity to start a career.

The bill allows a school’s principal to approve alternative requirements but doesn’t address how those would be developed. The new rules could also be used by students transferring from schools that are out of state or from private schools not held to graduation pathway rules.

The current criteria to receive a waiver do not call for students to be admitted to college, the military or a job. Students do have to maintain a 95 percent attendance record and a 2.0 grade point average, and also have to complete requirements for a general diploma, take a workforce readiness assessment or earn an industry certification approved by the state board. The standards also require students to obtain letters of recommendation from teachers (with approval of the school principal) and to use class work to show students have mastered the subject despite failing the graduation exam.

It’s not yet clear how many students might be affected by a change to the graduation waiver system. In the months since the Indiana State Board of Education approved the new graduation pathways, educators have raised concerns to state board staff members about the types of students who might not have a clear-cut pathway under the plan — for example, a student headed to college who might not have an exceptional academic record. A waiver outlined by HB 1426 could give them another shot. But for students without definite post-graduation plans, that waiver could be out of reach.

None of the educators or education advocates who testified on the bill spoke out specifically on the waiver changes. Mike Brown, director of legislative affairs for the Indiana Department of Education, said that based on a “cursory look,” the department didn’t have any issues with it.

Aside from the diploma and graduation waiver changes, the bill would also:

  • Make Indiana’s high school test a college-entrance exam, such as the ACT or SAT, instead of end-of-year tests in English and math.
  • Encourage the state board to look into alternatives for Algebra 2, currently a diploma requirement.
  • Ask the state board to establish guidelines for how districts and schools can create “local” graduation pathways and how they would be approved by the state board. It would also add $500,000 to fund development of local pathways that districts and schools could apply for.
  • Eliminate the Accuplacer exam, which schools now use to see if high school students need remediation in English or math before they graduate.

Because the bill includes a request for state funding, it next heads to the House Ways and Means Committee.

hurdle cleared

Indiana’s federally required education plan wins approval

PHOTO: Courtesy of the Indiana Department of Education
State Superintendent Jennifer McCormick greets elementary school students in Decatur Township.

U.S. Education Secretary Betsy DeVos has signed off on Indiana’s federally required education plan, ushering in another era of changes — although not exactly major ones — to the state’s public school system.

The U.S Department of Education announced the plan’s approval on Friday. Like other states, Indiana went through an extensive process to craft a blueprint to comply with the Every Student Succeeds Act, or ESSA, which was signed into law in 2015.

“Today is a great day for Indiana,” state Superintendent Jennifer McCormick said in a statement. “Our ESSA plan reflects the input and perspective of many stakeholders in communities across our state. From the beginning, we set out to build a plan that responded to the needs of Hoosier students. From our clear accountability system to our innovative, locally-driven approach to school improvement, our ESSA plan was designed to support student success.”

The federal government highlighted two aspects of Indiana’s plan. One is a pledge to close achievement gaps separating certain groups of students, such as racial and ethnic groups, from their peers by 50 percent by 2023.

Another is a staple of other states’ plans, as well: adding new ways for measuring how ready students are for attending college or starting their careers. Indiana education officials and lawmakers have made this a priority over the past several years, culminating in a new set of graduation requirements the Indiana State Board of Education approved late last year.

Under Indiana’s plan, high schoolers’ readiness will be measured not just by tests but also by performance in advanced courses and earning dual credits or industry certifications. Elementary school students will be measured in part by student attendance and growth in student attendance over time. Test scores and test score improvement still play a major role in how all schools are rated using state A-F letter grades.

In all, 35 states’ ESSA plans have won federal approval.

Advocates hope the law will bring more attention to the country’s neediest children and those most likely to be overlooked — including English-learners and students with disabilities.

Indiana officials struggled to bring some state measures in line with federal laws, such as graduation requirements and diplomas.

Under the state’s ESSA plan, A-F grades would include these measures (see weights here):

  • Academic achievement in the form of state test scores.
  • Test score improvement.
  • Graduation rate and a measure of “college and career readiness” for high schools.
  • Academic progress of English-language learners, measured by the WIDA test.
  • At least one aspect of school quality. For now, that will be chronic absenteeism, but the state hopes to pursue student and teacher surveys.

The last two are new to Indiana, but represent ESSA’s goal of being more inclusive and, in the case of chronic absenteeism, attempting to value other measures that aren’t test scores.

Because the Indiana State Board of Education passed its own draft A-F rules earlier this month — rules that deviate from the state ESSA plan — it’s possible Hoosier schools could get two sets of letter grades going forward, muddying the initial intent of the simple A-F grade concept parents and community members are familiar with.

The state board’s A-F changes include other measures, such as a “well-rounded” measure for elementary schools that is calculated based on science and social studies tests and an “on-track” measure for high schools that is calculated based on credits and freshman-year grades. Neither component is part of  the state’s federal plan. The state board plan also gets rid of the test score improvement measure for high-schoolers.

While that A-F proposal is preliminary, if approved it would go into effect for schools in 2018-19.

The state can still make changes to its ESSA plan, and the state board’s A-F draft is also expected to see revisions after public comment. But the fact that they conflict now could create difficulties moving forward, and it has led to tension during state board meetings. Already, the state expected schools would see two years of A-F grades in 2018. If both plans move forward as is, that could continue beyond next year.

Read: Will Indiana go through with a ‘confusing’ plan that could mean every school winds up with two A-F grades?

Find more of our coverage of the Every Student Succeeds Act here.