An Examination of the Louisiana Testing Accountability System: Recommendations for Equitable Changes that Impact Traditionally Marginalized Students and Schools John W. Hatcher III, Southeastern Louisiana University Joseph Brown

An Examination of the Louisiana Testing Accountability System: Recommendations for Equitable Changes that Impact Traditionally Marginalized Students and Schools

John W. Hatcher III Southeastern Louisiana University

Joseph Brown

Abstract

State mandated tests are a critical component of the Louisiana Testing Accountability System for all public schools and students in grades K-12. In this study, our research team examined the Louisiana Testing Accountability system to identify disparities in academic achievement that exist among traditionally marginalized student groups, as well as, the impact of grading on School Performance Scores (SPS). An integrative literature review has been employed to examine representative literature on state mandated tests to include the Louisiana Educational Assessment Program (LEAP) 2025, English Language Proficiency Test (ELPT), and the American College Test (ACT). Our research team then recommends equitable changes to the Louisiana Testing Accountability system. Keywords: State mandated tests, academic achievement, accountability, school performance scores, marginalized student groups, educational equity.

Introduction

Are there equitable changes that can be recommended to the Louisiana Testing Accountability System? This research is an examination of the Louisiana State Accountability system as it relates to academic achievement among traditionally marginalized student populations and the assignment of school performance scores for the schools that serve this population of students. Minority students, students who come from families with low socio-

economic status, and students who are being taught English as a second language are all among the traditionally marginalized student population. In 2018, the Council of Chief State School Officers (CCSSO) released the following statement, "Educational equity means that every student has access to the educational resources and rigor they need at the right moment in their education across race, gender, ethnicity, language, disability, sexual orientation, family background and/or family income" (p. 5). Provisions set forth by ESSA support the success of all students and schools, while promoting equity and calling for essential safeguards for our nation’s traditionally marginalized students (USDOE, n.d.). Louisiana schools are assigned School Performance Scores (SPS) largely based on factors that include academic achievement results on state mandated tests, such as, LEAP 2025, ELPT, and the ACT. The problem is that there are reported disparities in academic achievement among students who are traditionally marginalized within the Louisiana Testing Accountability System that lead to further disparities among the SPS for schools that serve this population of students. The purpose of this study is to examine the Louisiana Testing Accountability System by identifying, analyzing, discussing, and making recommendations for equitable changes that will have a positive impact on the disparities experienced by traditionally marginalized student populations who take and schools that administer the Louisiana state mandated tests. This study focuses on the following research questions. R1. What are the identifiable disparities in academic achievement that exist among traditionally marginalized student groups in the Louisiana Testing Accountability System?

R2. What are the identifiable disparities in the assignment of school performance scores among schools serving traditionally marginalized students’ groups in the Louisiana Testing Accountability System?

R3. What are some researched based recommendations for equitable changes to the Louisiana Testing Accountability system?

This study examines published reports from the Louisiana Department of Education that highlight relevant data about student’s academic achievement levels, as well as School Performance Scores (SPS). A review of the literature more specifically examined the academic achievement of traditionally marginalized students, as well as, SPS of schools that are directly related to the LEAP 2025, ELPT, and the ACT.

Literature Review

Standardized testing has played a significant role in influencing the way Americans think about education, starting with the use of IQ tests as a form of standardized testing during the beginning of the 20th century, which was originally used for military recruits. The data generated from the tests encouraged the replication for public use. Once the 1965 authorization of the Elementary and Secondary Education Act (ESEA) passed, it emphasized the use of tests for making key decisions about assessing students, schools, and school systems (Nichols & Berliner, n.d.). Subsequently, standardized testing became a widely used instrument for education and largely recognized in 1983 when The National Commission on Excellence in Education released A Nation at Risk: The Imperative for Educational Reform, which served as a catalyst for school reform. Policymakers relied on testing as a vital tool for the management and governance of education (Manno, 2018; Nichols & Berliner, n.d.; The National Commission on Excellence in Education, 1983). As a result, the advancement of the modern-day school reform movement began and standardized testing became widespread (Au, 2013; Natriello, & Pallas, 1999). High-stakes standardized testing gained more support in the U.S. when the Bush administration passed the No Child Left Behind Act (NCLB) in 2002. High stakes testing in the United States is now more pervasive than ever and are tied to making critical decisions about students and schools. Marginalized student groups continue to fall through the cracks, as high-stakes tests can demonstrate an innate bias and are intended to obtain student's understanding of fundamental concepts (Choi, 2020; Crosnoe, R. & Cooper, 2010). As a result, the academic achievement gap among student groups remain. The lifealtering consequences related to low test results are significant as these students are often not

promoted to the next grade level, may drop out of school due to the pressures of testing, lack confidence, as well as, are denied scholarship awards, which further exacerbate academic achievement gaps and ultimately affecting future life opportunities (Choi, 2020; Crosnoe, R. & Cooper, 2010; Long, 2014; Nichols & Berliner, n.d.). The Louisiana Testing Accountability System assigns SPS based, in part, on factors that include academic achievement results on state mandated tests, such as, LEAP 2025, ELPT, and ACT. There are disparities in academic achievement among traditionally marginalized student groups within the Louisiana Testing Accountability System, which lead to further disparities among the schools SPS. Standardized testing is essential within national educational reforms to measure and influence academic achievement. By examining the Louisiana Testing Accountability System and facets of the LEAP 2025, ELPT and ACT, our research team will recommend equitable changes to be considered for the future. In doing so, students and schools within the Louisiana Testing Accountability System will have access to a more equitable educational opportunity. The Louisiana Testing Accountability system was developed in partnership with educational and business leaders to inform educators of transparent expectations for student outcomes, while providing accurate data on school quality to educational stakeholders and parents (CCSSO, 2018; LDOE, 2020b). The Louisiana Department of Education (LDOE) has annually issued SPS to schools since 1999. Louisiana public schools receive a SPS and a school letter grade ranging from A to F that evaluates how well they are preparing all their students for the next grade-level or post-secondary education. The SPS is measured by how well schools perform on a scale of zero to 150 (see Table 1). The SPS contains the points given to academic achievement levels earned by students for all subjects tested in elementary, middle, and high school. Table 1 displays the state's current grading scale, including the transition scales for the near future, followed by a depiction of each school level's SPS categories in Table 1. The configuration of the school performance scores vary at each school level are calculated based on a combination following: (a) The Assessment Index, which measures mastery of key skills and comprised of student performance on the LEAP 2025 to include improvements to English language ability of English language learner students (ELL) as measured by student performance on the ELPT; (b) Growth Index, which evaluates how much students have learned

throughout the school year towards Mastery irrespective of where they were at the beginning of the school year; (c) Interests and Opportunities, which measures whether schools are providing students with access to well-rounded education, exposing them to diverse areas of learning in which they can develop their skills and talents; (d) Middle School Dropout Credit Accumulation Index, which is a measure put in place to encourage access to high school credits in middle school, as well as, a successful transition to high school; (e) ACT/Work Keys, in which students must earn an 18 on the ACT or equivalent silver level on the Work Keys exam; (f) Strength of the Diploma, is based on how well schools are preparing students for success in college or the workforce by looking at the rate in which students acquire college credit or Industry-Based Certifications (IBC's); (g) Graduation Rate, measures how many students graduate on time within four years (this is adjusted for students who transfer in or out). In order for any elementary, middle, or high school to earn a letter grade of an A in the state of Louisiana, schools are expected to meet the following criteria that pertains to their respective school level: (a) have students who are achieving Mastery or above on LEAP 2025 state test; (b) demonstrate student growth throughout the school year that dictates students are on the pathway to 'Mastery'; (c) ninth grade students must earn six or more credits by the end of the school year; (d) high school students earn an average of a 21 composite score on the ACT; (e) high school students graduate within 4 years and earn additional points by enrolling and passing dual enrollment or AP classes or industry-based credentials (IBC's); (f) 90 % of students from each high school cohort graduate in 4 years (LDOE, 2020b). Schools that are in decline or have failing grades are required to submit a deliberate plan for improvement and apply for funds to support the enactment. The schools are labeled as an intervention school on their report card (LDOE, 2018b, 2020b). Figure 1 displays the School Performance Score (SPS) breakdown at each school level.

The LEAP 2025 state exams are administered annually to students in Grades 3 through 11. The exams measure proficiency in each subject area and preparedness for the following level of study. LEAP 2025 results are used to measure how well schools and school systems are serving the needs of their students and helping students achieve high expectations (LDOE, 2020c; ULL, 2019). In 2015 the Louisiana Department of Education (LDOE) aligned the LEAP 2025 standards with the National Assessment of Educational Progress (NAEP) to better reflect

national standards. As a result, student expectation standards moved from 'Basic' to 'Mastery' (ULL, 2019). Student test results are reported according to the five academic achievement levels of Advanced, Mastery, Basic, Approaching Basic, and Unsatisfactory with scale scores ranging from 650 to 850.

The English Language Proficiency Test (ELPT) was created to assess the level at which students in grades K-12 identified as English Language Learners (ELLs) are progressing toward English Language Proficiency (LDOE, 2019e). According to the Louisiana Department of Education (2019e), students who meet the following criteria are required to participate in the ELPT: (a) he/she is not a United State native and their first language is not English, (b) the student is Native American or Alaska Native or resides in an area where a language other than English is spoken and his/her English Language Proficiency is significantly impacted as a result, (c) the student is migratory and their first language is not English; and/or (d) the student is from an environment where English is not the dominant language. The LDOE requires that schools send home a letter requesting permission to place the student in the ELL program; however, the student must take the ELPT even if the parent refuses ELL services. The ELPT is a computer-based test designed to mirror classroom and real-life situations in four domains (LDOE, 2019e). The four domains are as follows: (a) Listening, (b) Reading, (c) Speaking, and (d) Writing. The ELPT measures proficiency using five performance levels and three proficiency determinations. In order to achieve proficiency and be exited from the ELL program, students are expected to achieve a minimum performance level score of four in each domain.

National educational reform requires states to administer annual tests aligned with state standards. In high schools, a state may allow districts to administer a locally or nationally recognized high school test in place of the statewide test in math, reading/language arts, or science, including the ACT or SAT (USDOE, 2018). In Louisiana, high school students are required to take the ACT exam during their junior year. The ACT test is a curriculum-based education and career planning test that assesses students for college readiness (ACT, 2020a). Louisiana students may be eligible to take the Work Keys test, which is similar to the ACT. Work Keys is a workforce readiness test that measures a range of skills applicable to various levels of professions and industries (LDOE, 2019c).

The Academic Achievement Gap is the observed or continuing disparities in measures of educational performance among ESEA subgroups of students in the United States (USDOE, 2020). The gap between groups can be perceived by, grade point averages, dropout rates, graduation rates, college enrollment, and more. One primary way the gap is measured is through standardized test scores. The academic achievement gap can have a lifetime effect on individuals unless it is addressed early. Academic achievement gaps appear before children enter kindergarten and if not addressed appropriately can be a standard deviation behind by the time marginalized students are in second grade. Interventions to close academic achievement gaps must start early (Daniel, 2018; Hanushek, et al., 2019; Jesuit Social Research Institute [JSRI], 2019; Kotok, 2017; Garcia & Weiss, 2017, 2019). Eighth-grade is another pivotal academic time for students as this level is a strong predictor of post-secondary success. The academic achievement level that students reach by eighth grade has a more substantial effect on their postsecondary readiness by the time they graduate. Change theory or change knowledge is an informing education reform that includes strategies to yield results from committed and action-oriented individuals (Fullan, 2006). There are seven core principles that underpin change theory: (a) a focus on motivation; (b) capacity building, with a focus on results; (c) learning in context; (d) changing context; (e) a bias for reflective action; (f) tri-level engagement; and (g) persistence and flexibility in staying the course (Fullan, 2006). This literature review covered the scope of the relevant information pertinent to this study. An examination of Louisiana Testing Accountability System via the LDOE website supported the collection and analysis of the state mandated LEAP 2025, the ELPT, as well as, the ACT. The persistent gaps in academic achievement between traditionally marginalized students and their peers require equitable change. The methodology used in this study has proven to be appropriate for the examination of the Louisiana Testing Accountability System. The remainder of this article articulates the methodology, the findings, a discussion with recommendations, and a conclusion.

Methodology

Our research team has employed an integrative literature review to examine the Louisiana Testing Accountability System to identify disparities between traditionally marginalized student groups and their peers. Torraco (2005) described this methodology stating, “The integrative literature review is a form of research that reviews, critiques, and synthesizes representative literature on a topic in an integrated way such that new frameworks and perspectives on the topic are generated” (p. 1). It is for this reason that the researchers have employed the integrative literature review as the methodology for this research. The integrative literature review is being used to examine available data from the Louisiana Testing Accountability System that identifies disparities related to academic achievement, as well as, school performance scores. Our team initiated an internet search of Louisiana's Department of Education’s (LDOE) Accountability Policy followed by a number of searches focused around key terms on the LDOE’s official website (https://www.louisianabelieves.com/). The key terms used to collect and analyze data related to the state assessments engaged by public school students and administered by public schools in the state of Louisiana were: accountability, LEAP 2025, ELPT, ACT, economically disadvantaged students, English Language Learners (ELL), and minority students. Our research team examined the reports to identify disparities related to academic achievement and School Performance Scores (SPS). In addition, data on the overall academic achievement gaps among student groups were also collected by searching other key terms, such as academic achievement gaps and inequities. Academic achievement data reports were categorized and sorted by student demographic groups. The sample size used in this study represents the 71 public school districts across the state of Louisiana. LEAP 2025 data reported on 373,440 public school students from third grade through eleventh grade during the fall of 2018 and the spring of 2019. The ELPT data was gathered using the “ELPT accountability” and resulted in a June 2019 report that contained statistics referenced in the findings. Relevant data for the ELPT was analyzed from a June 2019 report that researchers carefully considered to support the research questions. The ACT data examined represents 43,696 public high school students from the 71 public school districts throughout the state of Louisiana. Results from the search yielded

pertinent data from published reports provided by the Louisiana Department of Education, The Urban League of Louisiana and The Jesuit Social Research Institute. The researchers examined the mean scores of the ACT for students statewide, then compared these scores with the mean score of traditionally students. Finally, to analyze LEAP 2025 data, the researchers examined 2018-2019 high school performance scores by mastery subgroup performance. The disparities highlighted in the data collection and data analysis related to traditionally marginalized student population and the schools that serve them are reported in the findings section of this manuscript. The integrative literature review and examination of several data reports is being used in this research to examine available data from the Louisiana Testing Accountability System that identifies disparities related to academic achievement, as well as school performance scores. A search of reports related to traditionally marginalized student populations, LEAP 2025, ELPT, ACT, and School Performance Scores (SPS) were included in the data collection and analysis. Our research team examined the reports to identify disparities related to academic achievement and SPS. The next step in the process was to utilize the data that supports the research topic and research questions through the standardized assessment results of marginalized students in the state of Louisiana.

Results/Findings

The findings from our examination of the Louisiana Testing Accountability System are presented in this section based on the three research questions for this study. The research questions, followed by brief narratives of the data, and concluding with representative figures are used to share research findings. RQ 1. What are the identifiable disparities in academic achievement that exist among traditionally marginalized student groups in the Louisiana Testing Accountability System? LEAP 2025 scores at the mastery level indicate that students have met the expectations for the current grade level and are prepared for the next level of studies in the content area. Of the 2018 and 2019 statewide mastery results, students scored 34% and 35% respectively; of the marginalized student groups in Grades 3-11 during those same years, only 26 % scored a mastery or above on the LEAP 2025 (LDOE, 2019a). The LEAP 2025 data that determines academic achievement level at which traditionally marginalized students compare to their peers shows

evidence of obvious disparity between the traditionally marginalized student groups and their peers who score at the mastery level. The percentage of English Learners (EL) in Louisiana public schools has steadily increased from 1.66 % during the 2011-2012 school year to 3.59 % during the 2017-2018 school year. Likewise, the percentage of marginalized student groups has increased by 3% during the last seven years (LDOE, 2018a). Although the percentage of EL students increased, the percentage of EL students scoring proficient declined from 14% in 2018 to 12% in 2019 (LDOE 2019b). Additionally, in 2019, the total number of ELPT testers increased by 6%; however, only 12% exited EL status by scoring proficient, which was a 2% decrease (LDOE 2019b). This data identifies the disparities that exist between the state-mandated ELPT and the disproportionate rate at which EL students are achieving proficiency. In addition to a decrease in proficiency on the ELPT, EL students who achieved mastery and above have also declined by 2% on LEAP 2025 last year. The data above further highlights the disparity in academic achievement that exists between traditionally marginalized students and the peers not only on the LEAP 2025 assessment, but the ELPT as well. According to ACT (2020b), the national composite score average during the 2019-2020 reporting year is 20.8. The average ACT composite score for Louisiana students statewide is 18.9 as reported by Louisiana Believes (2019). The Louisiana Department of Education (2019d) reports that the average ACT composite scores for traditionally marginalized students' have hovered around 17. After comparing the mean score of students across the state to the traditionally marginalized students, the disparities between the target population and their statewide counterparts as it relates to academic achievement, as well as, post-secondary funding opportunities. Again, traditionally marginalized student populations remain in the lower academic achievement categories. RQ 2. What are the identifiable disparities in the assignment of school performance scores among schools serving traditionally marginalized students groups in the Louisiana Testing Accountability System? The disparities listed above in regard to the LEAP 2025, ELPT, and ACT ultimately lead to disparities in the letter grade distribution among schools that serve larger populations of

traditionally marginalized students. Because 95% of the SPS for elementary schools, 90% of the SPS for middle schools, and 50% of SPS for high school depend on individual student performance on the LEAP 2025, ELPT, and ACT, disparities in the school letter grade distribution are inevitable.

The implications of access to early childhood education, as well as, the disparities identified above are contributing factors to elementary and middle school SPS. The criteria for obtaining an "A" letter grade in high school requires an average ACT score of 21 and the average score of traditionally marginalized students is 17; consequently, high schools that serve a majority of the target population of students find it virtually impossible to obtain an "A" letter grade. As a result, the disparity among school letter grades in Louisiana Schools is largely due to the heavy emphasis placed on state mandated assessments resulting in negative stigmas placed on schools serving a majority of traditionally marginalized students. The disparities identified by our research team, which are related to the focus of these findings are addressed further in the discussion section.

RQ 3. What are some researched-based recommendations for equitable changes to the Louisiana system of education? In response to the disparities listed above, our research team recommends three changes that are aimed to promote equity and allow for marginalized students to gain access to a quality educational experience. The first is the implementation of universal early childhood education. The second is differentiated professional development opportunities for teachers. Finally, the third recommendation is to redirect school funds at the state and federal level to provide wraparound services.

Discussion

Standardized testing is essential to educational reforms, in order to measure academic achievement. By examining the Louisiana Testing Accountability System and specifically facets of the LEAP 2025, ELPT, and ACT mandated tests, our research team has recommended three equitable changes for consideration. By implementing these proposed changes, students and schools within the Louisiana Testing Accountability System will have access to more equitable educational opportunities.

Academic development begins long before children are 5 years old and can enter the kindergarten classroom. Disparities in word count, vocabulary, letter, and number recognition, as well as, counting have already developed between traditionally marginalized students and their peers by the time children are legally designated as school age. Friedman-Krauss et al. (2016) stated, “Math and reading abilities at kindergarten entry are powerful predictors of later school success.” It is for this reason that our research team first recommends universal early childhood education in order to mitigate the disparities that develop during the primary years and persist as students move through their elementary, middle, and high school years taking the LEAP 2025.

Our second recommendation is to provide differentiated professional development that increases teacher’s self-efficacy when engaging all students including traditionally marginalized populations. Mohtar et al. (2017) posits that students are empowered by a teacher's sense of selfefficacy, thus positively impacting instructional outcomes. Conversely, Villegas and Lucas (2007) states that many teachers serving students with diverse backgrounds see those students as socially subordinate and lacking the abilities to engage in higher order thinking tasks. This results in teachers lowering expectations and replacing rigorous, engaging work with drill, practice and rote-learning activities (Villegas & Lucas, 2007). When teachers are educated and empowered to differentiate instruction appropriately to meet the needs of diverse learners, schools can respond effectively to the challenges associated with their growing populations of diverse students (Villegas & Lucas, 2007). Thus, the researchers recommend designating resources aimed at equipping teachers to meet the unique challenges associated with teaching in schools that serve large populations of marginalized students.

Furthermore, the implementation of ongoing professional development opportunities focused on ESL instruction and multiculturalism in the classroom is strongly suggested. Doing so aligns with change theory, as it promotes capacity building among educators and allows for reflective opportunities for teachers. By equipping educators on how to become culturally responsive educators and providing them with necessary resources via continued professional development, teacher self-efficacy is likely to increase, resulting in increased academic

achievement. Increase academic achievement will have a positive impact on School Performance Scores.

Our final recommendation is an equitable redirecting of school funds at the federal and state levels to provide wraparound services for traditionally marginalized student populations. State funding is the main mechanism for targeting districts that serve marginalized students. Low-income schools generally lack adequate funding, which can have a tremendous negative impact on marginalized students. Due to underfunding, schools serving marginalized students frequently have less experienced and underpaid teachers, which ultimately leads to higher turnover rates and instability in the teaching and learning process, further exacerbating the gap (Garcia & Weiss, 2019; USDOE, 2011; Urban Institute, 2017). Research indicates that marginalized students need additional support and resources to be successful; however, policies for allocating the resources often prevent this from occurring, making current state policy an issue. Transparency on resource allocation within school districts is critical to ensuring every child has access to equivalent educational opportunities. TOPS is a financial award system that has three levels that increase the financial award based on a student’s ACT composite score. TOPS contribute to student tuition costs at Louisiana public universities, which in turn increases students' admissions opportunities into colleges and universities. Redistribution of funds that support wraparound services, which in turn will help to eliminate disparities and promote a more equitable educational system. It is for this reason that our team recommends the equitable redistribution of funds toward high need schools with a larger population of traditionally marginalized students (Choi, 2020; Crosnoe, R. & Cooper, 2010; Long, 2014; Nichols & Berliner, n.d.). The redistribution of funding will also reduce the disparities of subsequent earning potential for traditionally marginalized students. A review of the Louisiana Testing Accountability System revealed some disparities among the LEAP 2025, ELPT, and ACT mandates. Our research team examined these disparities and in turn made recommendations for a more equitable system of education that employs greater fairness in the assignment of School Performance Scores, as well as, academic achievement levels. The educational reform recommended by our research team is based on our collective engagement of Fullan’s (2016) change theory. Consideration of the proposed

recommendations will, “advance(s) equity by upholding critical protections for America's disadvantaged and high-need students” (ESSA, 2015).

Author Biographies

Dr. Hatcher has been in the field of Education for over 28 years. He has educated students from pre-K through the doctoral levels of education. John has served educational communities from New Jersey, to Virginia, and now in the state of Louisiana. He received his doctorate in Educational Leadership from Regent University in 2011. He is a licensed teacher and school administration and has led schools in both the public and private sectors. John has published research on African American male identity development and student achievement. His most recent study focused on mentoring academic success in the digital age. Joseph Brown has over 12 years of experience as an educator. His career began in 2007 working with students who qualified for Hospital/Homebound services. This led to him pursuing a certification in Special Education. Joseph worked as a certified special educator for seven years and during this time he received his Masters of Education in Educational Leadership. Since graduation, he has served in various leadership roles. He is currently the Director of Academic Programs at a K-5 Charter School and is enrolled in the doctoral program at Southeastern Louisiana University pursuing a Doctorate of Education in Educational Leadership.

Table 1

SPS Grading Scale Results

Letter Grade 2018-2021 2022-2024 2025 and beyond

A 90-150 95.0-150.0 100.0-150.0

B 75-89.9 80.0-94.9 85.0-99.9

C 60-74.9 65.0-79.9 70.0-84.9

D 50-59.9 50.0-64.9 50.0-69.9

F 0-49.9 0.0-49.9 0.0-49.9

*Over time, this scale will become more rigorous to ensure that an "A" school in Louisiana is the same as any in the country (LDOE, 2018; 2020 K-12 Accountability).

Figure 1 displays the School Performance Score (SPS) breakdown at each school level.

Figure 1.

Elementary School Performance Scores

5%

25%

70%

Assessment Index

Growth Index

Interests & Opportunities

Middle School Performance Score

5%5%

25%

65% Assessment Index

Growth Index

Interests & Opportunities

Dropout Credit Accumulation Index

High School Performance Scores

5% 20% 25%

25% 25%

Assessment Index

ACT/WorkKeys

Strenght of the Diploma

Cohort Graduation Rate

Interests & Opportunities

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