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Unintended Consequences of Using Student Test Scores to Evaluate Teachers

There has been a powerful misconception driving policy in education. It’s a case where theory was inappropriately applied to practice. The misconception has had unintended consequences. It is helping to lead large numbers of parents to opt out of testing and could very well weaken the case in Congress for accountability as ESEA is reauthorized.

The idea that we can use student test scores as one of the measures in evaluating teachers came into vogue with Race to the Top. As a result of that and related federal policies, 38 states now include measures of student growth in teacher evaluations.

This was a conceptual advance over the NCLB definition of teacher quality in terms of preparation and experience. The focus on test scores was also a brilliant political move. The simple qualification for funding from Race to the Top—a linkage between teacher and student data—moved state legislatures to adopt policies calling for more rigorous teacher evaluations even without funding states to implement the policies. The simplicity of pointing to student achievement as the benchmark for evaluating teachers seemed incontrovertible.

It also had a scientific pedigree. Solid work had been accomplished by economists developing value-added modeling (VAM) to estimate a teacher’s contribution to student achievement. Hanushek et al.’s analysis is often cited as the basis for the now widely accepted view that teachers make the single largest contribution to student growth. The Bill and Melinda Gates Foundation invested heavily in its Measures of Effective Teaching (MET) project, which put the econometric calculation of teachers’ contribution to student achievement at the center of multiple measures.

The academic debates around VAM remain intense concerning the most productive statistical specification and evidence for causal inferences. Perhaps the most exciting area of research is in analyses of longitudinal datasets showing that students who have teachers with high VAM scores continue to benefit even into adulthood and career—not so much in their test scores as in their higher earnings, lower likelihood of having children as teenagers, and other results. With so much solid scientific work going on, what is the problem with applying theory to practice? While work on VAMs has provided important findings and productive research techniques, there are four important problems in applying these scientifically-based techniques to teacher evaluation.

First, and this is the thing that should have been obvious from the start, most teachers teach in grades or subjects where no standardized tests are given. If you’re conducting research, there is a wealth of data for math and reading in grades three through eight. However, if you’re a middle-school principal and there are standardized tests for only 20% of your teachers, you will have a problem using test scores for evaluation.

Nevertheless, federal policy required states—in order to receive a waiver from some of the requirements of NCLB—to institute teacher evaluation systems that use student growth as a major factor. To fill the gap in test scores, a few districts purchased or developed tests for every subject taught. A more wide-spread practice is the use of Student Learning Objectives (SLOs). Unfortunately, while they may provide an excellent process for reflection and goal setting between the principal and teacher, they lack the psychometric properties of VAMs, which allow administrators to objectively rank a teacher in relation to other teachers in the district. As the Mathematica team observed, “SLOs are designed to vary not only by grade and subject but also across teachers within a grade and subject.” By contrast, academic research on VAM gave educators and policy makers the impression that a single measure of student growth could be used for teacher evaluation across grades and subjects. It was a misconception unfortunately promoted by many VAM researchers who may have been unaware that the technique could only be applied to a small portion of teachers.

There are several additional reasons that test scores are not useful for teacher evaluation.

The second reason is that VAMs or other measures of student growth don’t provide any indication as to how a teacher can improve. If the purpose of teacher evaluation is to inform personnel decisions such as terminations, salary increases, or bonuses, then, at least for reading and math teachers, VAM scores would be useful. But we are seeing a widespread orientation toward using evaluations to inform professional development. Other kinds of measures, most obviously classroom observations conducted by a mentor or administrator—combined with feedback and guidance—provide a more direct mapping to where the teacher needs to improve. The observer-teacher interactions within an established framework also provide an appropriate managerial discretion in translating the evaluation into personnel decisions. Observation frameworks not only break the observation into specific aspects of practice but provide a rubric for scoring in four or five defined levels. A teacher can view the training materials used to calibrate evaluators to see what the next level looks like. VAM scores are opaque in contrast.

Third, test scores are associated with a narrow range of classroom practice. My colleague, Val Lazarev, and I found an interesting result from a factor analysis of the data collected in the MET project. MET collected classroom videos from thousands of teachers, which were then coded using a number of frameworks. The students were tested in reading and/or math using an assessment that was more focused on problem-solving and constructive items than is found in the usual state test. Our analysis showed that a teacher’s VAM score is more closely associated with the framework elements related to classroom and behavior management (i.e., keeping order in the classroom) than the more refined aspects of dialog with students. Keeping the classroom under control is a fundamental ability associated with good teaching but does not completely encompass what evaluators are looking for. Test scores, as the benchmark measure for effective teaching, may not be capturing many important elements.

Fourth, achievement test scores (and associated VAMs) are calculated based on what teachers can accomplish with respect to improving test scores from the time students appear in their classes in the fall to when they take the standardized test in the spring. If you ask people about their most influential teacher, they talk about being inspired to take up a particular career or about keeping them in school. These are results that are revealed in following years or even decades. A teacher who gets a student to start seeing math in a new way may not get immediate results on the spring test but may get the student to enroll in a more challenging course the next year. A teacher who makes a student feel at home in class may be an important part of the student not dropping out two years later. Whether or not teachers can cause these results is speculative. But the characteristics of warm, engaging, and inspiring teaching can be observed. We now have analytic tools and longitudinal datasets that can begin to reveal the association between being in a teacher’s class and the probability of a student graduating, getting into college, and pursuing a productive career. With records of systematic classroom observations, we may be able, in the future, to associate teaching practices with benchmarks that are more meaningful than the spring test score.

The policy-makers’ dream of an algorithm for translating test scores into teacher salary levels is a fallacy. Even the weaker provisions such as the vague requirement that student growth must be an important element among multiple measures in teacher evaluations has led to a profusion of methods of questionable utility for setting individual goals for teachers. But the insistence on using annual student achievement as the benchmark has led to more serious, perhaps unintended, consequences.

Teacher unions have had good reason to object to using test scores for evaluations. Teacher opposition to this misuse of test scores has reinforced a negative perception of tests as something that teachers oppose in general. The introduction of the new Common Core tests might have been welcomed by the teaching profession as a stronger alignment of the test with the widely shared belief about what is important for students to learn. But the change was opposed by the profession largely because it would be unfair to evaluate teachers on the basis of a test they had no experience preparing students for. Reducing the teaching profession’s opposition to testing may help reduce the clamor of the opt-out movement and keep the schools on the path of continuous improvement of student assessment.

We can return to recognizing that testing has value for teachers as formative assessment. And for the larger community it has value as assurance that schools and districts are maintaining standards, and most importantly, in considering the reauthorization of NCLB, not failing to educate subgroups of students who have the most need.

A final note. For purposes of program and policy evaluation, for understanding the elements of effective teaching, and for longitudinal tracking of the effect on students of school experiences, standardized testing is essential. Research on value-added modeling must continue and expand beyond tests to measure the effect of teachers on preparing students for “college and career”. Removing individual teacher evaluation from the equation will be a positive step toward having the data needed for evidence-based decisions.

An abbreviated version of this blog post can be found on Real Clear Education.

Factor Analysis Shows Facets of Teaching

The Empirical team has illustrated quantitatively what a lot of people have suspected. Basic classroom management, keeping things moving along, and the sense that the teacher is in control are most closely associated with achievement gains. We used teacher evaluation data collected by the Measures of Effective Teaching project to develop a three-factor model and found that only one factor was associated with VAM scores. Two other factors—one associated with constructivist pedagogy and the other with positive attitudes—were unrelated to short-term student outcomes. Val Lazarev and Denis Newman presented this work at the Association for Education Finance and Policy Annual Conference on March 13, 2014. And on May 7, Denis Newman and Kristen Koue conducted a workshop on the topic at the CCSSO’s SCEE Summit. The workshop emphasized the way that factors not directly associated with spring test scores can be very important in personnel decisions. The validation of these other factors may require connections to student achievements such as staying in school, getting into college, or pursuing a STEM career in years after the teacher’s direct contact.

Does 1 teacher = 1 number? Some Questions About the Research on Composite Measures of Teacher Effectiveness

We are all familiar with approaches to combining student growth metrics and other measures to generate a single measure that can be used to rate teachers for the purpose of personnel decisions. For example, as an alternative to using seniority as the basis for reducing the workforce, a school system may want to base such decisions—at least in part—on a ranking based on a number of measures of teacher effectiveness. One of the reports released January 8 by the Measures of Effective Teaching (MET) addressed approaches to creating a composite (i.e., a single number that averages various aspects of teacher performance) from multiple measures such as value-added modeling (VAM) scores, student surveys, and classroom observations. Working with the thousands of data points in the MET longitudinal database, the researchers were able to try out multiple statistical approaches to combining measures. The important recommendation from this research for practitioners is that, while there is no single best way to weight the various measures that are combined in the composite, balancing the weights more evenly tends to increase reliability.

While acknowledging the value of these analyses, we want to take a step back in this commentary. Here we ask whether agencies may sometimes be jumping to the conclusion that a composite is necessary when the individual measures (and even the components of these measures) may have greater utility than the composite for many purposes.

The basic premise behind creating a composite measure is the idea that there is an underlying characteristic that the composite can more or less accurately reflect. The criterion for a good composite is the extent to which the result accurately identifies a stable characteristic of the teacher’s effectiveness.

A problem with this basic premise is that in focusing on the common factor, the aspects of each measure that are unrelated to the common factor get left out—treated as noise in the statistical equation. But, what if observations and student surveys measure things that are unrelated to what the teacher’s students are able to achieve in a single year under her tutelage (the basis for a VAM score)? What if there are distinct domains of teacher expertise that have little relation to VAM scores? By definition, the multifaceted nature of teaching gets reduced to a single value in the composite.

This single value does have a use in decisions that require an unequivocal ranking of teachers, such as some personnel decisions. For most purposes, however, a multifaceted set of measures would be more useful. The single measure has little value for directing professional development, whereas the detailed output of the observation protocols are designed for just that. Consider a principal deciding which teachers to assign as mentors, or a district administrator deciding which teachers to move toward a principalship. Might it be useful, in such cases, to have several characteristics to represent different dimensions of abilities relevant to success in the particular roles?

Instead of collapsing the multitude of data points from achievement, surveys, and observations, consider an approach that makes maximum use of the data points to identify several distinct characteristics. In the usual method for constructing a composite (and in the MET research), the results for each measure (e.g., the survey or observation protocol) are first collapsed into a single number, and then these values are combined into the composite. This approach already obscures a large amount of information. The Tripod student survey provides scores on the seven Cs; an observation framework may have a dozen characteristics; and even VAM scores, usually thought of as a summary number, can be broken down (with some statistical limitations) into success with low-scoring vs. with high-scoring students (or any other demographic category of interest). Analyzing dozens of these data points for each teacher can potentially identify several distinct facets of a teacher’s overall ability. Not all facets will be strongly correlated with VAM scores but may be related to the teacher’s ability to inspire students in subsequent years to take more challenging courses, stay in school, and engage parents in ways that show up years later.

Creating a single composite measure of teaching has value for a range of administrative decisions. However, the mass of teacher data now being collected are only beginning to be tapped for improving teaching and developing schools as learning organizations.

Recognizing Success

When the Obama-Duncan administration approaches teacher evaluation, the emphasis is on recognizing success. We heard that clearly in Arne Duncan’s comments on the release of teacher value-added modeling (VAM) data for LA Unified by the LA Times. He’s quoted as saying, “What’s there to hide? In education, we’ve been scared to talk about success.” Since VAM is often thought of as a method for weeding out low performing teachers, Duncan’s statement referencing success casts the use of VAM in a more positive light. Therefore we want to raise the issue here: how do you know when you’ve found success? The general belief is that you’ll recognize it when you see it. But sorting through a multitude of variables is not a straightforward process, and that’s where research methods and statistical techniques can be useful. Below we illustrate how this plays out in teacher and in program evaluation.

As we report in our news story, Empirical is participating in the Gates Foundation project called Measures of Effective Teaching (MET). This project is known for its focus on value-added modeling (VAM) of teacher effectiveness. It is also known for having collected over 10,000 videos from over 2,500 teachers’ classrooms—an astounding accomplishment. Research partners from many top institutions hope to be able to identify the observable correlates for teachers whose students perform at high levels as well as for teachers whose students do not. (The MET project tested all the students with an “alternative assessment” in addition to using the conventional state achievement tests.) With this massive sample that includes both data about the students and videos of teachers, researchers can identify classroom practices that are consistently associated with student success. Empirical’s role in MET is to build a web-based tool that enables school system decision-makers to make use of the data to improve their own teacher evaluation processes. Thus they will be able to build on what’s been learned when conducting their own mini-studies aimed at improving their local observational evaluation methods.

When the MET project recently had its “leads” meeting in Washington DC, the assembled group of researchers, developers, school administrators, and union leaders were treated to an after-dinner speech and Q&A by Joanne Weiss. Joanne is now Arne Duncan’s chief of staff, after having directed the Race to the Top program (and before that was involved in many Silicon Valley educational innovations). The approach of the current administration to teacher evaluation—emphasizing that it is about recognizing success—carries over into program evaluation. This attitude was clear in Joanne’s presentation, in which she declared an intention to “shine a light on what is working.” The approach is part of their thinking about the reauthorization of ESEA, where more flexibility is given to local decision- makers to develop solutions, while the federal legislation is more about establishing achievement goals such as being the leader in college graduation.

Hand in hand with providing flexibility to find solutions, Joanne also spoke of the need to build “local capacity to identify and scale up effective programs.” We welcome the idea that school districts will be free to try out good ideas and identify those that work. This kind of cycle of continuous improvement is very different from the idea, incorporated in NCLB, that researchers will determine what works and disseminate these facts to the practitioners. Joanne spoke about continuous improvement, in the context of teachers and principals, where on a small scale it may be possible to recognize successful teachers and programs without research methodologies. While a teacher’s perception of student progress in the classroom may be aided by regular assessments, the determination of success seldom calls for research design. We advocate for a broader scope, and maintain that a cycle of continuous improvement is just as much needed at the district and state levels. At those levels, we are talking about identifying successful schools or successful programs where research and statistical techniques are needed to direct the light onto what is working. Building research capacity at the district and state level will be a necessary accompaniment to any plan to highlight successes. And, of course, research can’t be motivated purely by the desire to document the success of a program. We have to be equally willing to recognize failure. The administration will have to take seriously the local capacity building to achieve the hoped-for identification and scaling up of successful programs.

2010-2011: The Year of the VAM

If you haven’t heard about Value-Added Modeling (VAM) in relation to the controversial teacher ratings in Los Angeles and subsequent brouhaha in the world of education, chances are that you’ll hear about it in the coming year.

VAM is a family of statistical techniques for estimating the contribution of a teacher or of a school to the academic growth of students. Recently, the LA Times obtained the longitudinal test score records for all the elementary school teachers and students in LA Unified and had a RAND economist (working as an independent consultant) run the calculations. The result was a “score” for all LAUSD elementary school teachers.

Reactions to the idea that a teacher could be evaluated using a set of test scores—in this case from the California Standards Test—were swift and divisive. The concept was denounced by the teachers’ union, with the local leader calling for a boycott. Meanwhile, the US Secretary of Education, Arne Duncan, made headlines by commenting favorably on the idea. The LA Times quotes him as saying “What’s there to hide? In education, we’ve been scared to talk about success.”

There is a tangle of issues here, along with exaggerations, misunderstandings, and confusion between research techniques and policy decisions. This column will address some of the issues over the coming year. We also plan to announce some of our own contributions to the VAM field in the form of project news.

The major hot-button issues include appropriate usage (e.g., for part or all of the input to merit pay decisions) and technical failings (e.g., biases in the calculations). Of course, these two issues are often linked; for example, many argue that biases may make VAM unfair for individual merit pay. The recent Brief from the Economic Policy Institute, authored by an impressive team of researchers (several our friends/mentors from neighboring Stanford), makes a well reasoned case for not using VAM as the only input to high-stakes decisions. While their arguments are persuasive with respect to VAM as the lone criterion for awarding merit pay or firing individual teachers, we still see a broad range of uses for the technique, along with the considerable challenges.

For today, let’s look at one issue that we find particularly interesting: How to handle teacher collaboration in a VAM framework. In a recent Education Week commentary, Kim Marshall argues that any use of test scores for merit pay is a losing proposition. One of the many reasons he cites is its potentially negative impact on collaboration.

A problem with an exercise like that conducted by the LA Times is that there are organizational arrangements that do not come into the calculations. For example, we find that team teaching within a grade at a school is very common. A teacher with an aptitude for teaching math may take another teacher’s students for a math period, while sending her own kids to the other teacher for reading. These informal arrangements are not part of the official school district roster. They can be recorded (with some effort) during the current year but are lost for prior years. Mentoring is a similar situation, wherein the value provided to the kids is distributed among members of their team of teachers. We don’t know how much difference collaborative or mentoring arrangements make to individual VAM scores, but one fear in using VAM in setting teacher salaries is that it will militate against productive collaborations and reduce overall achievement.

Some argue that, because VAM calculations do not properly measure or include important elements, VAM should be disqualified from playing any role in evaluation. We would argue that, although they are imperfect, VAM calculations can still be used as a component of an evaluation process. Moreover, continued improvements can be made in testing, in professional development, and in the VAM calculations themselves. In the case of collaboration, what is needed are ways that a principal can record and evaluate the collaborations and mentoring so that the information can be worked into the overall evaluation and even into the VAM calculation. In such an instance, it would be the principal at the school, not an administrator at the district central office, who can make the most productive use of the VAM calculations. With knowledge of the local conditions and potential for bias, the building leader may be in the best position to make personnel decisions.

VAM can also be an important research tool—using consistently high and/or low scores as a guide for observing classroom practices that are likely to be worth promoting through professional development or program implementations. We’ve seen VAM used this way, for example, by the research team at Wake County Public Schools in North Carolina in identifying strong and weak practices in several content areas. This is clearly a rich area for continued research.

The LA Times has helped to catapult the issue of VAM onto the national radar. It has also sparked a discussion of how school data can be used to support local decisions, which can’t be a bad thing.