#SorryNotSorry

State board denies Sheridan Schools’ accreditation appeal

PHOTO: Nicholas Garcia
Sheridan Schools Superintendent Michael Clough, left, speaks with one of the district's board members, Sally Daigle before a State Board of Education hearing on the district's accreditation rating. The state board denied Sheridan's request to pump its rating. File photo

A struggling school district’s quest to become the first to successfully appeal its low state accountability rating ended today when the State Board of Education voted 6-1 to deny their request.

Despite evidence of a continued effort to improve academic performance of its students, members of the board said the statewide consequences would be too great if they agreed to lift Sheridan Schools’ accreditation rating.

Sheridan officials argued a bump in accreditation would more accurately capture the fruits of the intense turnaround efforts schools have undergone including lowering its dropout rate from 5 percent to 0.9 percent.

Officials from the Colorado Department of Education countered: If the board approved Sheridan’s appeal it would put the state’s accountability framework and processes of collecting and analyzing data into question.

The board agreed with the department.

“It’s clear you’re on the right track … In concept, I’m in support of you,” the board’s chairman, Paul Lundeen, told Sheridan officials. “But, in practicality, I can’t.”

State officials argued in order to bump Sheridan’s rating, the department would have had to allow the district to resubmit graduation rates after a statewide deadline for all schools. Allowing Sheridan to amend its data as it’s convenient to the district would create a precedent that would throw off careful timelines and procedures.

More importantly, state officials argued it would allow districts to retroactively manipulate their data if they weren’t happy with their school accountability rating.

“Sheridan is asking for CDE to create a unique framework that fits their needs,” said Keith Owen, the department’s deputy commissioner. “The state board has responsibility to safeguard the accountability measure.”

Debora Scheffel was the lone dissenting board member. She said she believes the district is supporting its students to the best of its ability.

“I feel [Sheridan] is doing a great job serving a very needy population,” Scheffel said. “The fact they could remove a service and increase their accreditation means they’re trying to serve their students.”

The crux of Sheridan’s argument was that it has more than a dozen students enrolled for a fifth, sixth or seventh year of high school who are concurrently enrolled at both its high school and Arapahoe Community College. Those students have met the qualifications for a standard diploma, but they are seeking an advanced “21st Century Diploma” that requires college courses.

Sheridan officials believes the state should not only track graduation rates, but should acknowledge the “success rate” of Sheridan students who are now taking college courses in pursuit of an advanced degree.

Districts, not the state, set the parameters for graduation requirements. It is also the local board of education and superintendent who certify those numbers to the state. Those numbers are then factored into the school’s annual rating. It is Sheridan’s policies, not the state’s, that have determined the district’s rating, department officials said.

The state board, at times, had trouble following the numbers and logic from both Sheridan and department officials. Questions during the two hour hearing ranged from exactly how many students Sheridan has concurrently enrolled — those numbers ranged from 19 to 24 — to the intricacies of school finance law.

“This is a case of ‘is or is-you-aint,'” said board member Angelika Schroeder. “And I think you’re saying they’re both.”

Sheridan Schools serves about 1,500 students, most of whom qualify for free- or reduced-lunch. The district earned a “priority improvement” ranking from the state’s department of education. The district believes it should be rated as an “improvement” district.

Since 2010, the state has linked its accreditation of districts to an annual review of student performance on state standardized tests and post-secondary preparedness. Districts that receive either a “turnaround” or “priority improvement” rating on the district performance framework have five years to improve or lose accreditation.

No school district has lost its accreditation — yet. But Sheridan Schools is one of 11 districts entering either year four or five of the accountability timeline. Sheridan will enter year four of the clock in July when state accreditation ratings take effect.

Sheridan Superintendent Michael Clough said while he’s disappointed, he understands the board’s decision.

“I guess that’s what happens when you have 178 districts — and not just one — to worry about,” Clough said after the hearing.

Sheridan’s failed appeal was the second of its kind. Mapleton Public Schools unsuccessfully pleaded with the state board to raise its accreditation rating last year.

Future of Schools

Eve Ewing explains why some communities just can’t get over school closings

If Chicago schools are so bad, why do people fight to keep them from closing?

Eve Ewing’s new book “Ghosts in the Schoolyard” explores that question. In doing so, she touches a wound still festering in Chicago communities five years after the massive 2013 school closings, which she calls a case study on the powerful role race and racism play in policy decisions.

“Like an electric current running through water, race has a way of filling space even as it remains invisible,” writes Ewing, an acclaimed sociologist and poet born in Chicago, and a rising cultural and intellectual force in the city.

“Ghosts,” scheduled to publish Oct. 22, is her second book, following a 2017 poetry collection.  A former Chicago Public Schools student and teacher, she dives into transcripts of public hearings where communities fought for their schools, explores the fraught relationship between black neighborhoods like Bronzeville and district leaders throughout history, and considers the emotional toll of losing a school. She also draws connections between school policy decisions past and present, Chicago’s long legacy of segregation, and the rapid gentrification reshaping the city today.

When Ewing started writing the book, she felt sad — about the loss of a school in which she had taught and about the children, community members, parents, and teachers who felt disempowered by the process.

“I’m still sad, but now with the distance of time and as we look at the city now and so many things we’re going through, it’s clear to me that the school closings were one very large piece of a much bigger pattern,” she said. “Now, I’m worried for the future of our city, which really feels like it’s at a crossroads about what it’s going to be, and if it’s going to be a place that’s habitable for poor people, if it’s going to be a place that’s habitable for black people, and for other people of color. I think the school closings played a huge part in the answer to those questions potentially being no.”

Chalkbeat Chicago interviewed Ewing about her book, the public discourse around “bad schools,” Mayor Rahm Emanuel’s political legacy, and more.

When you talk about school closings being part of this much bigger pattern, what specifically are you referring to?

A pattern of erosion of the institutions, services and resources that make a place a suitable home for vulnerable people. That includes mental health care, that includes a police force that doesn’t kill people with impunity, that includes a transportation system that is fair and affordable and equitable, that includes good jobs for people and training for those people to be qualified for those jobs. And that includes affordable housing. As I try to make clear in the book, there’s an intimate relationship between schools and housing.

Your book is titled “Ghosts In the School Yard.” What ghosts?

I think the title has multiple meanings. One, it’s referring to the many people whose experiences, specifically in Bronzeville and across the South Side and across Chicago, people who are no longer with us but whose struggles and experiences presage what we saw in 2013. It’s also referring to the ghosts of prior schools.

I sort of started thinking of the schools themselves as these entities that are no longer with us. Another thing is ghosts in terms of skeletons in the closet — the shadows and phantoms of the ugly parts of our history that we need to acknowledge to move forward with any kind of honesty.

You really dive into this idea of institutional mourning. Why was it important for you to address that, and how did you go about it?

Institutional mourning is the idea that people mourn institutions the way they also mourn people. The lost institution can be the church burned down in a fire, or the barber shop in your community where everybody used to gather that’s now replaced by an office building. Anywhere people gather that has social meaning. I argue this phenomenon is relevant especially in communities that are very vulnerable, where people often have a higher reliance on shared institutions because they have fewer individual resources. For example, some former residents are still mourning the demolition of public housing projects in Bronzeville, and that mourning is especially painful because these are often people without access to private property or home ownership.

I set out to interview people who had been directly impacted by school closings. I already had  hypothesized there was this relationship between race and racism and school closings. But in the public discourse there was this debate: Was it racist, was it not racist? I wanted to understand how the people who were most impacted understood that. I wanted to hear if they said, my school was closed because of racism or because we couldn’t cut it academically, or because our building was empty and we had too much space.

What I heard was just how often the metaphor of death and images of death was recurring in their responses. The way they used this intensely intimate and emotional language to talk about their own reaction to that perceived death is something that happened over and over, but was also a close fit with my own experiences as a teacher processing the school closures. So I said I’m making a name for it.

You also pay special attention to the nature of black grieving in describing how communities mourned their schools. Why?

The last several years have forced all of us to think about black grief, and for black people to experience tremendous ways of grieving, as we always have throughout the history of this country, but in a way that has been very visible and very consuming.

And black death has been thrust upon us in these newly hyper visible ways. I’m talking to you in the wave of the Jason Van Dyke verdict. In order for us to get to that verdict, many black people were subjected over and over again to the trauma of seeing this child (Laquan McDonald)  brutally shot in the street over and over and over.

I decided it was important to think of the ways that black people mourn in public, whether that means the mothers of children who have been killed grieving on the television camera, or people who have lost someone putting up a vigil with teddy bears and candles and flowers, or whether that means airbrushing their relative’s name on a shirt. All of these are forms of public grieving and shared communal grieving, so it only made more sense for me to understand that and link it in to this idea of institutional mourning.

Eve Ewing

You talk a lot in this book about the language of failure, the discourse about so-called bad schools. How does that language set the stage for decision-making at CPS?

Language is everything. Since the origin of public schooling in this country there’s never been anything that’s an objective measure of school quality, because communities have always had divergent definitions of what they want their schools to do. As long as you have that, you’ll always have differing definitions of school quality. If you go to a school that’s super elite but all the black kids get suspended or tracked into lower-level classes or traumatized by racist things their teachers say, that to me isn’t a good school, even though on paper to many people it may be a good school.

When we start having conversations about failures and goodness, we have to be really analytical about what we’re using to define those things. What’s emerged across the country is so many schools have been deemed failures in ways that don’t account for the lived reality of the challenges they face. Some of these schools are the only places where kids are getting fed every day or where someone makes sure they have a warm coat or tells them they love them and they’re special, even as those schools “fail” to raise that child’s test score.

I think it’s fair to talk about the idea of failure, but we also need to talk about moral failure. I think in Chicago there are at least as many moral failures of political leadership, and of the people that are supposed to be running our schools as there are “school failures.” We talk a lot about one and not the other.

You also mention this language of growth, of change, that’s in a statement like “Building a New Chicago,” one of the slogans that started appearing on construction signs when Mayor Rahm Emanuel was elected. How does that connect with the school closings?

When we talk about growth it’s always a question of growth for who and at what costs. As we know, black Chicago is shrinking. It’s really hard to hear about growth when the city has lost so many black residents.

In school closings, the district cites enrollment declines and how much it costs to educate students and operate schools. How do you respond to that idea?

The argument about scale and educating fewer kids, I think is a complicated one because as of now there has not been any analysis showing we saved money from this. (A report by the University of Chicago Consortium said the district can’t point to any savings, yet). Unless I missed it, there has not actually been a final assessment on the part of CPS of how much money this cost and if we indeed saved any money.

Aside from that, this question of efficiency and how many kids you can fit in a building and how much it costs, those questions only seem to come up when it has to do with poor kids. If you send your kids to private school or any kind of elite school, small class sizes are touted as being beneficial. It’s only when you’re talking about poor black kids the question becomes how many can we jam into a building and if it’s not efficient we need to close it.

Eve Ewing
PHOTO: Hayveyah McGowan
An illustration of poet and scholar Eve Ewing.

Can the school district afford a policy that doesn’t close schools?

It’s not that school closings are always bad, that’s not the argument of the book. The question is:  Is it possible for us to do this in a way that is humane, that is caring, that provides full acknowledgment of the emotional aftermath it presents for people, and is it possible to do it in a way that includes the people most affected at the table with something to say about their own lives and own conditions?

The problem is at this point there’s such a long history of mistrust that even if we have to close schools tomorrow and CPS comes up with a process that was amazingly transparent and participatory, people would still not trust the district! There’s a long hard road that has to be walked in this city to rebuild trust in all these institutions. The question is are people in power willing to walk it with us.

What would a school closing process look like that wasn’t racist?

To answer that question you would need to begin by asking it of the people in the school you would want to close. Parents, teachers, students, community members. I’m talking about truly asking questions of what people need, being willing to listen even if it’s something you don’t want to hear, and being willing to take that wisdom and those needs into account.

When we look back at Rahm Emanuel’s political legacy in Chicago, where will the school closings fit in?

I think that his political career did and has done a great deal of harm in many areas of the city. The school closings are a very large tip of a very large iceberg. I think for a lot of people it was a very definitive moment. He did something that Mayor [Richard] Daley, his predecessor, had already done, but had done it more slowly over time in a way that didn’t galvanize people’s reactions in the same way. The school closures were loud, they were visible, they were hurtful, and we are still feeling the aftereffects. I think for a lot of people that will be the definitive decision of his mayoral run.

Eve Ewing
Eve Ewing reading from her first book, a collection of poetry titled “Electric Arches.”

working toward proficiency

Maine went all in on ‘proficiency-based learning’ — then rolled it back. What does that mean for the rest of the country?

PHOTO: Shaina Cavazos
Students work on English and math skills. Hawthorne Elementary School, in Warren Township, Indiana has adopted a "competency-based" learning model where kids can move on to other material once they've shown they have mastered a skill or concept.

When Ted Finn first heard about the new way of running a high school, he was excited.

Forget students squeaking by with Cs and moving on without truly understanding math or biology. Throw out the idea that a student has to pass a collection of classes to earn a diploma — instead, tell them what essential skills they need. Instead of letting a bad test grade derail a student, give them multiple chances to demonstrate what they know.

“The idea of having an identified set of standards and expectations that would be put out there, so that … everybody would know that if you had earned credit in, say, an Algebra I class, you did in fact meet specific identified standards — at first I was thinking, this is great,” said Finn, a longtime Maine educator and the principal of Gray-New Gloucester High School, about 20 miles from Portland.

For the last several years, he has been part of an ambitious experiment to take that approach, known as proficiency-based education, statewide. In 2012, Maine passed a law changing how high school diplomas were awarded. To earn one, students would have to demonstrate that they had mastered material in eight subjects. This advocates said, would better prepare students to compete in the future economy.

But the latest developments suggest that Maine may become a cautionary tale rather than the successful proof point advocates had hoped for.

Across the state, districts struggled to define what “proficiency” meant and teachers struggled to explain to students how they would be graded. Those challenges, plus strong backlash from parents, caused the state to scrap the experiment earlier this year, allowing districts the choice to return to traditional diplomas.

“If you don’t have the buy-in of your community, you’re in for a world of hurt,” Finn explained.

Maine’s meltdown matters because the ideas at the core of the state’s efforts are influencing states and school districts across the country. Forty-eight states have adopted policies to promote “competency-based” education to varying degrees, often at the urging of a constellation of influential philanthropies, including the Nellie Mae Foundation, which poured at least $13 million into Maine’s effort.

Meanwhile, new research documents the challenges that beset the effort seemingly from day one. And there remains little evidence that proficiency-based education has boosted student learning, in Maine or elsewhere.

“A lot of folks are looking closely at what’s happened in Maine and trying to draw lessons from it,” said Charlie Toulmin, the policy director of the Nellie Mae Foundation.

Maine schools quickly faced hurdles

Earlier in 2012, the Massachusetts-based Nellie Mae Foundation awarded nearly $9 million to two of Maine’s largest school districts, Portland and Sanford. The money was meant to help them adopt what the organization calls “student-centered” approaches. That includes what’s called mastery, competency, or proficiency-based learning, which means that students progress at their own pace, moving on only when they demonstrate they’ve learned a certain topic.

Those districts quickly got to work. “Parents may ultimately stop seeing report cards with A, B, or C grades on it and instead start seeing what it is that their student can do,” the Sanford superintendent said.

Those district’s moves made what came next seem less radical than it might otherwise have. With bipartisan support, Maine lawmakers passed the bill revamping graduation requirements statewide, titled “An Act To Prepare Maine People for the Future Economy.” It required all districts to begin awarding diplomas based on student proficiency in several years.

Then it fell to districts and schools to make sense of the new rules — a complicated endeavor that sometimes meant scrapping key elements of how high school traditionally worked.

Each district was tasked with determining what it meant for a student to be “proficient” in the subjects Maine required. Officials knew that if they set standards too high, an unprecedented number of students could fail to graduate. Too low, and it would defeat the purpose of the whole exercise.

Those questions reverberated in schools, too. Schools weren’t required to change their grading systems, and some held onto their A-Fs. Teachers in many others starting awarding students scores of 1 through 4, with 3 equalling proficient, for each of the key standards.

The law required that students be able to demonstrate that proficiency in a variety of ways, whether through a traditional exam, a portfolio of work, a project, or a performance. But what that meant varied widely between classrooms, creating headaches for students.

Many let students take and retake tests to prove they were proficient, and some stopped grading homework or classwork altogether.

“Each teacher has their own system,” Ellie Roy, a senior at Gray-New Gloucester High School, told the Hechinger Report last year.

Evan Cyr, a high school teacher in Auburn, Maine, said the changes forced him to get “really explicit with students” about the connection between the work they were doing in class and the standards that they would actually be tested on.

At the same time, teachers began evaluating students on things like being a critical thinker or an informed citizen — qualities that were included in the new graduation requirements.

The shifts left plenty of students and parents confused and frustrated. Proficiency was the goal, but doesn’t 3 out of 4 equate to a C? Would out-of-state colleges be able to make sense of the new and confusing transcripts? And how did any of these scores translate into the information that undergirds many of the traditional trappings of high school, like sports eligibility, class rankings, and a valedictorian?

Research, including a series of papers released by the University of Southern Maine and a  study funded by Nellie Mae released this month, has examined how a number of districts responded to those challenges.

They found that most teachers continued using traditional exams, not portfolios or performances. Some teachers remained overwhelmed by the prospect of helping struggling students clear the bar without more guidance.

“We’re only till the end of quarter one, and they’re already not able to meet the standards from quarter one of that class, so it’s very concerning,” one special education teacher told researchers. “How is this going to work? And to be honest, nobody really … has a good answer for us.”

Others remained concerned that allowing students to demonstrate proficiency whenever they wanted could have unintended consequences. Cyr said this was the most controversial aspects with parents in his district. “Some of our students have developed some bad habits that are really going to plague them about deadlines,” said one teacher.

A few students agreed. “I just feel like I’m not getting challenged enough because I know if I don’t pass it, I can just do it again and do it again,” one 10th-grader told researchers.

Concerns began mounting among district leaders, too, about how the changes might affect their graduation rates. Since 2011, Maine, like virtually every other state in the country, has seen its graduation rate climb.

“We heard school administrators indicate that their graduation rate wasn’t going to plummet — because they would just change their definition of proficiency,” said Erika Stump, one of the researchers.

Then there was the issue of funding. Districts got a 0.1 percent boost in state funding to implement the law, which in most cases amounted to just a few thousand dollars. This ran headlong into some of the ramped-up graduation requirements, like proficiency in a foreign language. One Maine district resorted to purchasing the Rosetta Stone program after being unable to find French or Spanish teachers.

Nellie Mae tried to fill in some of that funding gap. The foundation has given nearly $9 million since 2010 to the nonprofit Great Schools Partnership to help schools implement the law and to build support for the policy. The state department of education was also supposed to provide support; it created a help website, including a best practices page also funded by Nellie Mae.

But the foundation’s outsize role has drawn criticism. “The proficiency-based diploma law has created a niche market for a special group of education ‘consultants’ with financial backing, mostly from the Nellie Mae Foundation, to dictate to policymakers what a diploma should mean,” one skeptical Republican state legislator wrote in March.

Toulmin of Nellie Mae said the philanthropy wasn’t the driving force some made it out to be. “There was already some energy in different places of the state to do this before any of our support came along,” he said.

It’s unclear whether Maine’s new approach led to better results

Did all of that change help students?

The patchwork of local policies mean it’s difficult to measure just how much instruction in Maine high schools changed. The recent Nellie Mae-funded report found that across 11 high schools, most students still weren’t experiencing much “personalized” instruction.

It did find that students who were exposed to more of the approach had slightly lower SAT scores but a higher feeling of engagement in school, though the study couldn’t show whether the proficiency-based approach was the cause of either one.

As for educators, a survey found that only 18 percent of high school teachers believed that the new graduation requirements “increase academic rigor.” But some did say it pushed them to focus more intensely on struggling students. In a number of places, schools added tutoring and after-school programs to help kids who were behind.

“I want them to meet the standard, and the only way to meet some of those kids is to sit down one-on-one,” one math teacher told researchers. “I’ve done a lot more conferencing, and a lot more walking around the room, and a lot more helping them than I have before.”

Any educational successes, though, weren’t enough to keep the experiment from becoming a political failure.

Earlier this year, talk of changing the law attracted hundreds of comments from parents and teachers, sometimes spurring fierce protest.

The state legislature soon conceded. Lawmakers repealed the requirement that districts issue proficiency-based diplomas in June — before a single class of students statewide was required to earn them. Maine Governor Paul LePage, who backed the 2012 law, signed off on the changes in July.

A few districts quickly jumped at the chance to scrap the proficiency-based diplomas.

“Student achievement will be recognized as it has historically been recognized with honor roll, with valedictorian, salutatorian, top 10 percent of the class, some of the historical things that we’re familiar with will be in place,” explained a principal in York, Maine.

Other districts have announced they’re going to keep going. The state department of education says it doesn’t have a count on how many districts have moved back to the traditional system.

Finn, the principal at Gray-New Gloucester High, is still optimistic. He wants his district to continue working to get proficiency-based education right, particularly after the time and money that’s already been invested.

“Can you imagine shifting gears?” he said. “We’ve got kids right now, members of the class of 2020, who are under the new graduation requirements.”

Advocates push forward

Proponents of proficiency-based learning argue that none of this reflects flaws in the concept. Maine struggled, they say, because they didn’t introduce the concept thoughtfully enough, moving too quickly and requiring change rather than encouraging it.

“When there was poor implementation — and there was poor implementation — then of course the parents and the community members start saying, hey, we don’t like this competency-based education,” said Chris Sturgis, co-founder of CompetencyWorks. “But it wasn’t really competency-based education.”

“It is a lesson on the perils of putting a mandate in place and not having organized for the necessary clarity and guidance for the field,” said Toulmin, Nellie Mae’s policy director.

Those lessons matter far beyond Maine. Competency-based education and other related approaches, like “personalized learning,” are spreading across the country, catalyzed by prominent advocates and influential funders. They include the U.S. Secretary of Education Betsy DeVos, as well as philanthropies like the Chan Zuckerberg Initiative, Laurene Powell Jobs’ Emerson Collective, and the Bill and Melinda Gates Foundation. (Chalkbeat is funded by CZI, Emerson via the Silicon Valley Community Foundation, and Gates.)

Many have made arguments strikingly similar to the ones Maine lawmakers used to push for the new graduation requirements — that schools haven’t changed in many years and they need to in order to prepare students for a rapidly changing economy.

Neither of those claims is nearly as clear-cut as advocates contend, and there remains limited research on whether competency-based or personalized approaches boost students’ success in school. Existing studies have often focused on schools that are best poised to implement such changes and have generally found small to moderate learning gains.

“A lot of it says: The reality is that there is some initial early results, and that we don’t know enough,” said Eve Goldberg, the director of research at Nellie Mae.

Today, almost every state support proficiency-based education in some way — a number that has increased dramatically since 2012, according to CompetencyWorks. Fifteen districts in Illinois are participating in a competency-based high school graduation pilot program. In Arizona, students can opt to earn a proficiency-based diploma. Examples of schools and districts trying the approach also exist in Indiana and Colorado, among others.

The concept has particularly taken hold in the Northeast, often with funding from Nellie Mae, which focuses on the region. New Hampshire now requires districts to base academic credits on mastery of content.

Most similar to Maine is Vermont, which is set to require students to earn proficiency-based diplomas in 2020. That’s causing pushback there too.

“We are leapfrogging everyone,” one resident said at a Vermont house committee hearing in April. “We are running an educational experiment on our kids based on theory, not proof that this has worked in another state.”