unlocking nycs high school progress report corcoran pai 32813

7/29/2019 Unlocking NYCs High School Progress Report Corcoran Pai 32813

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Sean P. Corcoran

Grace Pai

Unlocking New York Citys

A report commissioned by

High School Progress Report


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In a pioneering effort to improve school accountability and move it beyond a simple recitation of

high-stakes test scores, New York City developed the Progress Report (PR), a set of metrics that

includes the overall A through F letter grade that the DOE began issuing annually to most

public schools beginning in 2007.

In 2011, in an effort to gain a better understanding of New York Citys accountability system,

New Visions for Public Schools commissioned New York University economist Sean Corcoran

and his colleague, Grace Pai, to assess various components of the high school PR. The result,

Unlocking New York Citys High School Progress Report, represents the most comprehensive

analysis of the PR to date.

The study attempts to explore how the PRs methodology can more accurately assess the impact

that each of New York Citys more than 400 high schools has on the diverse student population

it serves. Our goal is to contribute to the rich and ongoing conversations that the DOE has wel-

comed since the PRs first iteration and which have been critical to its significant improvements

over time.

By their very nature, accountability systems have many goals and, as a result, are challenging to

understand and to interpret. Such systems, the authors write, focus attention onand delineate

expectations fordesired student outcomes. They provide metrics that the district and its stake-

holders can use to monitor school performance. They serve as a learning tool for educators,

highlighting success areas or areas in need of improvement. They draw attention to schools that

are performing well relative to their peers, providing models of good practice, and provide a basis

for intervention or closure when a school is performing poorly.

One of the central challenges of the PR grade is to fairly account for the differences that schools

confront as they serve the citys famously diverse student population. The DOEs EducatorsGuide to the Progress Report reflects this concern: The overall Progress Report Grade is de-

signed to reflect each schools contribution to student achievement, no matter where each child

begins his or her journey to career and college readiness. The methods are designed to control

for demographic characteristics of students so that the final score for each school has as little

correlation as possible with incoming student characteristics such as poverty, ethnicity, disabili-

ties, and English learner status.

Foreword

Among the reform strategies adopted by the New York City Department of

Education during the administration of Mayor Michael R. Bloomberg, the push

towards school accountability has been the most wide-ranging, influential and,

at times, controversial.


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The New York City high school PR evaluates schools on a range of metrics including attendance,

credit accumulation, graduation rates, and scores on standardized assessments. Schools are

compared to every other school in the city as well as to a group of forty peer schools whose

incoming students share certain characteristics. In order to account for variation in incoming

student populations, the comparison to peer schools is weighted three times as heavily as the

citywide comparison.

Using data from the 2010-2011 school year, Corcoran and Pai elaborate on the key features of the

PR methodology. Among their findings:

A schools performance in each subcategory depends on how it performed relative

to the range of outcomes of its peers. Peer groupings are formed using an index

that is based on average proficiency of a schools incoming students, with adjust-

ments for the percent of students who receive special education or are over-age.

Importantly, peers only affect a schools score to the extent they affect the range

of outcomes to which its performance is benchmarked.

While the use of peers moderates the correlation between incoming student char-acteristics and scores, schools overall PR scores remain associated with many pre-

existing risk factors, suggesting that a schools score can be influenced by factors

outside of its control. Since schools in peer groups vary by size, location, admission

method, poverty rate, and percent of students with disabilities, a wide range of

outcomes is likely to be observed with a more diverse peer group. The wider the

range, the less a peer group represents a sharp comparison of similar schools.

The Peer Index has only a modest effect on the overall grade assigned to high

schools in large part because of the diversity of peer groups. When the authors cal-

culated PR scores using a formula that ignored peers entirely in favor of a citywide

comparison, about two-thirds of high schools received the same grade.

The weighted Regents passing ratea subcategory that accounts for a sizable por-

tion of a schools overall scoreis treated differently from other categories, such as

high school graduation rate. It is benchmarked, first, against expectations (based on

8th grade test scores) and second, against the peer group and citywide average. The

implication of this double benchmarking is that schools with high-achieving students

may be penalized for failing to achieve mathematically impossible growth targets.

Despite its limitations, the PR takes important steps toward an accountability system which recog-

nizes schools that substantially improve the performance of highly challenged student populations.

This system allows such schools to be judged successful regardless of whether they match the

absolute performance of schools where students arrive better prepared. The PRs current methods

take into account the starting point of incoming students, not just through the use of peer groups, but

also through quasi-growth metrics such as the weighted Regents passing rate and the ability to earn

extra credit for gains with struggling student populations.

We believe that, its limitations aside, the PR has been made progressively stronger with each

iteration and can further be improved upon. As Corcoran and Pai point out, even an imperfect

accountability tool can incentivize changes in behavior and improve school performance.

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This study clarifies not only the impact of the current version of the PR, but also points to several

key revisions that can improve the PR (specifically, the Peer Indexs methodology) to increase its

accuracy. Most significantly, the authors suggest that the peer group approach should be either

significantly modified or abandoned altogether. Among the options they propose is comparing

actual student performance to predicted performance based on a broad range of student and

school characteristics. If the peer group approach is maintained, they suggest that the calculation

of peer index should be based on a wider range of incoming student characteristics.

Improving the PRs effectiveness is important because an accurate assessment helps educators

target school improvement efforts. Moreover, New Visions recognizes from years of experience

working with a diverse set of high schools that those schools that use the tool most effectively

disregard the overall letter grade. Educators instead look closely at performance in each component

of the PR to understand where there is need for improvement and how to prioritize and manage

change. For this reason, New Visions recommends the department consider emphasizing grades

of component parts of the report, such as the environmental survey, student academic growth,

and student graduation rates, and attendance. The department should de-emphasize use of a

single grade as an indicator of the schools overall success or failure.

We believe that Corcoran and Pais report contributes important insights into the broader conver-

sation about how to improve New York Citys accountability system. In the end, the fundamental

premise of New York Citys accountability systemthat we must continue to hold ourselves

accountable to rigorous, measurable outcomesis critical to serving this citys diverse student

population effectively. With thoughtful modification, the Progress Report can do a better job of

measuring school impact.

New Visions for Public Schools

March 28, 2013

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About the Authors

Sean P. Corcoran, Ph.D. is an associate professor of educational economics at New York

Universitys Steinhardt School of Culture, Education and Human Development, and an affiliated

faculty of NYUs Robert F. Wagner Graduate School of Public Service. He has been a research

associate of the Economic Policy Institute in Washington, D.C. since 2004, and was a visiting

scholar in residence at the Russell Sage Foundation in 2005-06. His research includes long-

run trends in the quality of teachers, the impact of income inequality and court-ordered school

finance reform on the level and equity of education funding in the United States, the properties

of value-added measures of teacher effectiveness, and the political economy of school choice

reforms. In 2009, he led the first evaluation of the Aspiring Principals alternative certification

program in New York. He is currently a visiting scholar at the Center for Education Policy Analysis

at Stanford University, where he is completing several studies on the high school choice behavior of

middle school students in New York City.

Grace Pai, B.S., M.Ed., is a former Peace Corps volunteer and high school math teacher withNew York Citys Teaching Fellows program. A current Ph.D. student in international education at

NYUs Steinhardt School of Culture, Education and Human Development, she researches teacher

development, education and the labor market, marginalized youth populations, and education policy,

both domestically and in developing countries.

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About New Visions for Public Schools

Since 1989, New Visions for Public Schools has been a leader in fostering innovation and reform to

improve the quality of education children receive in New York Citys public schools. Our work has

reached tens of thousands of students, parents, educators, and community members across

the city. Working with the public and private sectors, New Visions develops programs, solutions

and strategies to energize teaching and learning and to raise the level of student achievement.

Partnering with the New York City Department of Education, New Visions is accountable for

improving student achievement in 73 New York City public schools serving more than 40,000

students. As a charter network, New Visions is opening up to 18 charter high schools with the

first four now running in the Bronx, and two to open in Brooklyn in fall 2013. As a laboratory,

New Visions is researching and developing novel solutions for the needs of schools, teachers, and

students. Our goal is to graduate all students ready and successful for college, career, and life.

NewVisionsforPublicSchools

@NewVisionsNYC

320 West 13th Street, 6th Floor

New York, NY 10014

Phone: 212 645 5110

www.newvisions.org


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20

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20 30 40 50 60 70 80 90 100

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25/57

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