When New York State made its standardized English and math tests tougher to pass this year, causing proficiency rates to plummet, it said it was relying on a new analysis showing that the tests had become too easy and that score inflation was rampant.
But evidence had been mounting for some time that the state’s tests, which have formed the basis of almost every school reform effort of the past decade, had serious flaws.
The fast rise and even faster fall of New York’s passing rates resulted from the effect of policies, decisions and missed red flags that stretched back more than 10 years and were laid out in correspondence and in interviews with city and state education officials, administrators and testing experts.
The process involved direct warnings from experts that went unheeded by the state, and a city administration that trumpeted gains in student performance despite its own reservations about how reliably the test gauged future student success.
It involved the state’s decision to create short, predictable exams and to release them publicly soon after they were given, making coaching easy and depriving test creators of a key tool: the ability to insert in each test questions for future exams. Next year, for the first time, the tests will not be released publicly.
It involved a national push for numbers-based accountability, begun under President George W. Bush and reinforced by President Obama. And it involved a mayor’s full embrace of testing as he sought to make his mark on the city, and then to get re-elected.
“They just kept upping the stakes with the scores, putting more pressure on the schools but not really looking at what it all means,” said Pedro Noguera, an education professor at New York University who has worked with the city’s Department of Education to help improve struggling schools.
New York has been a national model for how to carry out education reform, so its sudden decline in passing rates may be seen as a cautionary tale. The turnaround has also been a blow to MayorMichael R. Bloomberg and his chancellor, Joel I. Klein, who despite warnings that a laserlike focus on raising scores could make them less and less reliable, lashed almost every aspect of its school system to them. Schools were graded on how much their scores rose and threatened with being closed if they did not. The scores dictated which students were promoted or left back, and which teachers and principals would receive bonuses.
Even now, the city believes that the way it uses the tests is valid. The mayor and the chancellor have forcefully defended their students’ performance, noting that even after the changes this year, student scores are still better than they were in 2002. They have argued that their students’ progress is more important than the change in the passing rate, and that years of gains cannot be washed away because of a decision in Albany to require more correct answers from every student this year.
The test scores were even used for a new purpose this year: to help determine which teachers should receive tenure.
*
“Then you have to wonder, and folks like me wonder, is that real learning or not?”
*
In 2003, Mr. Bloomberg ended the practice of “social promotion” in certain grades, requiring students performing at the lowest levels on the tests be held back unless they attended summer school and showed progress on a retest. That year, Mr. Klein released a list of 200 successful schools, the only places where teachers would not have to follow the citywide math and English curriculums. The list was primarily based on test scores.
More and more of the mayor’s educational initiatives were linked to the scores. They were used to help decide which schools should be closed and replaced with new, smaller schools. The new A-through-F grading system for schools was based primarily on how their students improved on the tests. Teachers and principals earned bonuses of up to $25,000 if their schools’ scores rose. Teachers’ annual evaluations and tenure decisions are partially dependent on test results.
Each new policy was met with denunciations from the teachers’ union or from education experts like Diane Ravitch. Ms. Ravitch, a supporter of standardized testing when she was an adviser to the Clinton and Bush administrations, became one of the biggest critics, arguing that schools were devoting too much time to the pursuit of high scores.
“If they are not learning social studies but their reading scores are going up, they are not getting an education,” Ms. Ravitch said in 2005, as the mayor coasted to re-election.
*
“Research has shown that when educators are pressured to raise scores on conventional achievement tests, some improve instruction, while others turn to inappropriate methods of test preparation that inflate scores,” they wrote in the Feb. 5, 2008, memo. “In some cases, the inflation of scores has been extreme.”
More.