From: Alex Johnston, ConnCAN
To: Members of the Connecticut General Assembly Education Committee
Date: March 12, 2010
Since Connecticut was rejected in the first round of the $4 billion Race the Top competition one week ago yesterday, you have made amazing strides in raising a number of bills that speak directly to the changes that Connecticut needs to make to be competitive when the Round 2 applications are due on June 1, 2010.
Over the past week, my team and I have been busy analyzing the characteristics of the 16 states selected as finalists with particular attention paid to the handful of states most likely to be winners when Round 1 concludes in early April.
As the below analysis makes clear, incremental gains are unlikely to put us in a position as a state to be competitive in Round 2. With competition this tough, we simply can’t afford to leave anything on the table, and to secure enough points to win our share of these Race to the Top funds, we must pass legislation in all three areas where we have fallen behind the frontrunner states: measuring effectiveness, superstar principals, and money follows the child.
1) MEASURING EFFECTIVENESS
A state-of-the-art growth model that links to teacher and principal evaluation is worth 83 points, and using this growth model to improve the effectiveness of teacher and principal preparation programs would earn the state another 14 points.
The Finalists
Our analysis of finalists’ applications revealed that leading states already have the ability to track individual student achievement and have made or are planning to make student achievement growth a significant part of teacher evaluation.
In fact, nearly 70 percent of the finalists (11 out of the 16) have data systems with a teacher identifier that allows evaluators to match individual teachers and students , something Connecticut still doesn’t have in place. And half of the finalists explicitly committed to making student achievement growth worth at least 50 percent of a teacher’s evaluation.
Rhode Island went a few steps further, by making it 51 percent; directing districts not to allow a student to be taught by more than one year by a teacher deemed “ineffective;” and prohibiting districts from assigning ineffective teachers to low-income, low-performing or high-minority schools. Two additional states required that student growth meet clearly defined expectations in order for a teacher to earn an “effective” rating. Louisiana has used a value-added model to track student achievement and evaluate teachers for three years and has already experimented with performance-based compensation in 41 school districts.
Although it may seem like the frontrunner states have a strong head start on Connecticut, it is worth noting that several finalists passed recent legislation on teacher evaluation to strengthen their application ahead of the Round 1 deadline. For example, Illinois’ state legislature helped their state secure a finalist spot by passing a reform requiring all districts in the state to incorporate student improvement into teacher and principal evaluations. In Tennessee, a state with an 18-year history of tracking longitudinal student data through its Tennessee Value-Added Assessment System (TVAAS), the governor signed legislation that requires districts to base at least 50 percent of their teacher evaluations on student test results and 35 percent on data from TVAAS. Since Tennessee is one of only 6 finalist states that meet all ten of the Data Quality Campaign’s “essential elements” for state data systems , this last-minute legislation likely helped push the state into the lead in this competition.
Where Connecticut Stands
Connecticut’s current Race to the Top application promises that the state will take on a long list of actions to measure effectiveness and ensure that we have great teachers in our classrooms and great leaders in our schools. In doing so, however, Connecticut revealed a major policy weakness: as a state, we don’t have a trusted system to benchmark student progress against clear expectations. By contrast, Race to the Top leaders used their state applications to describe established data systems to measure individual student growth, and the frontrunner states already use that data to evaluate teachers and principals.
Raised Bills that Make a Difference
The Education Committee is now considering two bills, S.B. 440, and H.B. 5491 (Section 3) that would allow Connecticut to take immediate action so that we have a solid policy to measure effectiveness in place before the next round of applications.
Connecticut needs a data system that measures individual student growth and links it to teachers and principals. These two bills will create a new system that will allow us to begin to both measure the effectiveness of teachers and principals and the programs that train them.
The proposed legislation includes specific deadlines for the State Department of Education to:
• Establish a student growth measurement model.
• Assign unique identifiers to teachers in Connecticut.
• Assign unique identifiers to school leaders in Connecticut.
• Attach a unique teacher or principal training institution identifier to the unique teacher or school leader identifier of every graduate of an in-state teacher training institution.
• Gather and publicly report on an annual basis (in a non-personally identifiable fashion) the teacher and principal effectiveness data for each in-state teacher principal credentialing program.
The proposed legislation also requires local and regional school boards to incorporate student achievement as a significant factor in their teacher and principal evaluation programs. Teacher and principal evaluation would not become a mandatory subject of bargaining, but this proposal does call for local school boards to work with teachers, administrators, their bargaining representatives and other stakeholders to modify the teacher and principal evaluation programs to meet this new requirement.
If a local school board fails to modify its evaluation program to incorporate student achievement, it will be required to adopt a model evaluation plan to be developed by an advisory council of experts and stake-holders convened by the State Board of Education. Under the proposed legislation, the State Board of Education is required to develop guidelines to assist boards of education incorporate student performance into teacher and principal evaluation programs. In addition, the state is required to develop and implement a variety of data collection and evaluation support systems to assist school districts effectively implement student achievement as a factor in their programs.
Subject to funding availability, all school districts will modify and implement their revised teacher and principal evaluation programs prior to January 1, 2012.
2) SUPERSTAR PRINCIPALS
Strong alternative routes to certification for both teachers and principals are worth up to 21 points in the competition.
The Finalists
All 16 Race to the Top Round 1 finalists already have a policy or program creating an alternate route for principals. Frontrunner states paid particular attention to ensuring that their policies and programs met the characteristics specified in the Race to the Top application , including: selective admissions criteria, rigorous standards, intensive training and ongoing support. In fact, 75 percent of finalists meet at least 4 out of the 5 criteria for a strong alternative route. For example:
• Colorado and Florida are among a handful of states that have passed policies allowing local school districts to create alternative routes to principal licensure. Florida’s program allows school districts to create alternate educational leadership programs that take high-performing teachers or executives through an intensive, job-embedded fast-track program.
• Louisiana has worked with highly regarded organizations such as New Leaders for New Schools and has developed not one, but three, alternative paths for principals that include options such for qualified candidates, such as: pass the state’s School Leaders Licensure Exam, complete extensive (240+) hours of educational leadership experience, pass rigorous screening by approved provider, and complete an educational leader/practitioner residency program.
A few states, such as Delaware and Georgia, already had a policy in place that allowed for alternate paths, but recognized that improvements were needed. In Delaware, Innovative Schools, a state-based nonprofit, has signed a letter of intent with the New York City Leadership Academy (NYCLA) to establish a recruitment, training and selection program for school leaders called Leaders for Innovative Schools. This program will entail: a rigorous selection of potential principals (teachers and other leaders) from within Delaware and nationally; a 12-month intensive training program; placement assistance in high-need schools; and ongoing support, including coaching and mentorship during the first two years leading a school.
Georgia proposed new rules for alternate paths that will open the field to non-educators; eliminate master’s degrees as prerequisite for becoming a principal; allow a wide variety of high-quality, vetted alternative certification providers, including New Leaders for New Schools and school districts. Some Georgia districts, such as Gwinnett County already have strong principal alternative certification programs in place.
Where Connecticut Stands
While Connecticut has had a statute for alternative routes to certification for principals on the books since 2006, it has never been implemented. Nor is this existing but unused section of statute responsive to the five criteria laid out by the Race to the Top competition and to the essence of what a quality alternative route to certification should look like. This weakness will likely cost our state critical Race to the Top points.
Raised Bills that Make a Difference
The Education Committee is now considering a bill, H.B. No. 5421, that would significantly increase our chances of a successful Race to the Top application in Round 2. The proposed legislation would direct the Departments of Higher Education and Education to establish alternative certification pathways for principals that open the way for some of Connecticut’s most effective classroom teachers to accelerate their path to school leadership under the mentorship of experienced principals by:
• Using selective admissions standards based on a teachers’ track record in raising student achievement.
• Allowing providers operating independently from institutions of higher education to train principals.
• Not requiring applicants to have more than a bachelor’s degree.
• Allowing participants to demonstrate mastery of coursework by exams or experience.
• Providing supervised, school-based experiences through a district-funded one-year residency as an assistant principal under the guidance of a certified principal.
• Allowing at least two years of successful work experience involving management to substitute for the one- year residency.
• Including as a condition of program admission not more than 30 months of previous teaching experience.
At a hearing before the Committee on March 8, representatives from ConnCAN, Teach for America, and the Connecticut Association of Public School Superintendents (CAPSS) testified in support of this bill.
3) MONEY FOLLOWS THE CHILD
Race to the Top guidelines allot a full 40 points for states that ensure “successful conditions for high-performing charters and other innovative schools.”
The Finalists
Race to the Top frontrunner states have opened up access to charters, improved charter financing policies and raised or eliminated limits on the number of charter schools and/or charter school students. Half of the Round 1 finalists have no limits on the number of charter schools in the state , and one-third of the finalist states have taken action on charter schools within the last few months to improve their charter policies and chances in Race to the Top.
Some finalist states are long recognized leaders in helping create conditions needed for high achieving charter schools to thrive:
• Colorado has a strong charter school law with no cap on the number of schools and with funding for charter school facilities.
• Florida also has a strong charter school law that has enabled the state to open more than 400 charters serving almost 130,000 students, with no cap on the number of such schools.
Several finalists enacted critical policies at the last minute to boost their odds in Race to the Top. For example:
• Illinois’ state legislature lifted the state’s cap on charters and approved 60 new charter schools, boosting the number of charter school slots by 13,000.
• Louisiana no longer caps the number of charter schools allowed in the state, and has used charter schools as a central part of its strategy for rebuiding the public school system in New Orleans.
• Massachusetts recently passed a bill to increase management flexibility for low-performing schools and raise the spending cap on charter schools. This new law strengthened what was already a strong charter school policy, ranked 6 out of 40 state charter laws by the National Alliance for Public Charter Schools.
• Tennessee’s state legislature passed legislation last June loosening restrictions on public charter schools to allow for more schools and more funding.
Where Connecticut Stands
The Race to the Top guidelines clearly favor states that have taken specific steps to ensure “successful conditions for high-performing charters and other innovative schools.” Although our state is home to several high-performing charter schools , the growth of these schools is limited by Connecticut’s antiquated school finance system—a system that has become fiscally unsustainable and is an obstacle to innovation. Connecticut remains one of just three states where charter schools rely on a separate line-item appropriation in the state budget every year. Under this system, charter schools in Connecticut receive only about 75 percent as much per-pupil funding as traditional public schools, and enrollment caps limit access to these free schools, which serve mostly low-income children. Our existing charter laws significantly undermine our competitiveness in Race to the Top.
Raised Bills that Make a Difference
The State Education Committee is now considering a bill, H.B. 5493, that directly addresses the weakest aspect of our state’s charter policies: the way charter schools are funded. The proposed legislation would:
• Eliminate the use of the annual state appropriation process to fund charter schools, and adopt a “money follows the child” funding mechanism.
• Base funding for charter schools on the average amount spent to educate students in their school district if they attended a traditional public school, calculated on an “apples to apples” basis by correcting for transportation and other costs which charter schools do not incur, and not including federal funding for which charter schools are eligible for on their own.
• Reduce state equalization aid grant payments to cities or towns based on this calculation, allowing funding to flow from the state to the public charter schools.
• Provide “impact aid” to cities and towns if equalization aid grants are negatively impacted, phased over a three-year period.
Recognizing the extraordinarily challenging financial circumstances facing both school districts and the state, this transition would be deferred until the state’s next two-year budget cycle, and would be phased in with transitional aid to districts over multiple years. The proposed legislation also provides each charter school with a per-pupil facilities allowance, based on the statewide average of district expenditures and debt service per pupil for the construction, renovation, purchase, acquisition and improvement of land, buildings and equipment.
The proposed legislation would also make charter schools responsible for providing special education services to their students on substantially the same basis as boards of education. Responsibility for out-of-district special education placements would remain with the school district. Charter schools are already eligible to receive special education grants under the current law. The proposed legislation preserves this right, and would also make charter schools eligible to the same extent as boards of education to receive any other state grant.
SUMMARY
ConnCAN’s analysis of Round 1 finalist applications showed that the competition is tough. It is clear that Connecticut must go after every single point to earn a spot at the finish line. To ensure success in Round 2, Connecticut must align itself with the frontrunner states by taking action in these three critical areas: measuring effectiveness, superstar principals, and money follows the child. With the largest achievement gap in the country and an enormous budget deficit, no state needs to win this Race to the Top more than we do.
NOTES
1. Delaware, Florida, Georgia, Kentucky, Louisiana, North Carolina, Ohio, Pennsylvania, Rhode Island, South Carolina and Tennessee.
2. Colorado, the District of Columbia, Florida, Georgia (for currently tested subjects and grades), Illinois, Louisiana, Rhode Island, Tennessee. Two additional states (Kentucky and New York) committed to making student growth account for 30-50% of teacher evaluation.
3. Delaware and North Carolina. Note: Delaware also states that teachers whose students meet these expectations cannot receive the lowest evaluation rating.
4. Source: http://educationnext.org/evaluating-the-rtt-finalists/
5. Only 6 of 16 finalists (Delaware, Florida, Georgia, Kentucky, Louisiana and Tennessee) have all 10 of the Data Quality Campaign’s “10 Essential Elements” of a longitudinal data system. Source: www.dataqualitycampaign.org
6. The Race to the Top guidelines define alternate certification programs as those that can: (a) can be provided by various types of qualified providers, including both institutions of higher education and other providers operating independently from institutions of higher education; (b) are selective in accepting candidates; (c) provide supervised, school-based experiences and ongoing support such as effective mentoring and coaching; (d) significantly limit the amount of coursework required or have options to test out of courses; and (e) upon completion, award the same level of certification that traditional preparation programs award upon completion.
7. Colorado, Delaware, District of Columbia, Florida, Georgia, Louisiana, Pennsylvania, South Carolina. Source: National Alliance for Public Charter Schools: http://www.publiccharters.org/charterlaws/component/1
8. Five finalists recently lifted caps on charters in response to Race to the Top: Illinois, Delaware, Louisiana, Massachusetts, and Tennessee. National Alliance for Public Charter Schools, www.publiccharters.org/node/2454.
9. For more information, see: http://www.conncan.org/sites/default/files/research/CTCharterLaw-RTTT2010-Web-2.pdf