City of Milwaukee and University of Wisconsin-Milwaukee School Chartering Processes: Academic Accountability Issues   by Alex Molnar   Center for Education Research, Analysis, and Innovation School of Education University of Wisconsin-Milwaukee PO Box 413 Milwaukee WI 53201 414-229-2716   May 3, 1999     CERAI-99-9

City of Milwaukee and University of Wisconsin-Milwaukee School Chartering Processes: Academic Accountability Issues* (CERAI-99-9) Alex Molnar Professor, Department of Curriculum and Instruction University of Wisconsin-Milwaukee 3 May 1999   Table of Contents Introduction Charter School Reform Overview Charter School Accountability Charter School Accountability Under Wisconsin Law University of Wisconsin - Milwaukee Charter School Accountability City of Milwaukee Charter School Accountability Discussion Conclusion Recommendations Endnotes Tables 1-5 Tables 6 and 7 Appendices   DISCUSSION The literature on charter school reform suggests six elements of accountability associated with academic outcomes. Framed as questions, these elements are used below to assess the chartering processes of UWM and the City of Milwaukee with respect to academic accountability. Academic Accountability Question 1 Do the academic accountability aspects of the chartering process focus on ends and not means? UWM Partially. UWM requires that applicants establish standards against which student achievement can be measured. Each step of the chartering process calls for some explanation on the part of the applicant of academic accountability measures to be used.39 The "Application for Charter School Status" explicitly details minimum requirements for academic accountability that must be met or documented.40 The two charter applications currently in Phase II specify that standards will be set and exceeded and that comparative performance data will be generated.41 However, the identification of some accountability measures may not take place until after a school is operational.42 The City of Milwaukee Somewhat. Neither the application nor the contract contains a requirement for performance standards to be specific. Applicants are required to describe how student progress will be measured at each step of the chartering process.43 However, the contract provides that academic accountability measures will be developed in conjunction with CSRC after a school is in operation. This language occurs in all the contracts thus far completed.44 There is variation in the degree to which approved charter schools have developed academic achievement standards and measures. In the case of the Khamit Institute and the Downtown Montessori Academy, descriptions of academic accountability are general.45 The Central City Cyberschool of Milwaukee and YW Community Education Center Charter School applications have academic achievement language that more precisely sets standards and establishes goals for academic performance.46 Academic Accountability Question 2 Do the academic accountability aspects of the chartering process define and make clear the role of the sponsor? UWM Partially. The role of the sponsor is defined in a limited way and with limited scope in the area of insuring student achievement outcomes.47 City of Milwaukee No. The question is not addressed in either the application or the contract. Academic Accountability Question 3 Do the academic accountability aspects of the chartering process result in accountability agreements between the charter school and the sponsor that are specific and precise? UWM Most likely. Specific and precise documentation is called for in the application. In addition the application calls for the applicant to work with UWM to develop an accountability agreement.48 Although the UWM contract form is not finalized, the draft version suggests a commitment to including specific and precise accountability language.49 City of Milwaukee Partially. Criteria for evaluation of an application call for unspecified "appropriate measures" of academic progress.50 The accountability measures in the Downtown Montessori Academy contract are neither precise nor specific.51 The accountability measures for the Khamit Institute are precise and specific in the contract.52 The charter school applications for the Central City Cyberschool and the YW Community Education Center Charter School contain precise and specific academic accountability measures. These may also appear in the contract.53 Academic Accountability Question 4 Do the academic accountability aspects of the chartering process identify the sponsorÕs responsibility for insuring the academic performance of the school and for sanctioning the school if it fails to meet agreed upon academic standards? UWM Partially. Sponsor responsibility for insuring academic performance is not addressed. Discussion of sanctions for failure to meet academic standards is confined to a reference to the law and to a review process used to determine renewal. The nature of the academic standards to be part of the review process are not specified.54 City of Milwaukee Minimally. Sponsor responsibility for academic performance is not addressed in the contract. Sanctions for school failure to meet academic standards rely on the language of the statute.55 Academic Accountability Question 5 Do the academic accountability aspects of the chartering process insure that data about school performance be publicly available from the sponsor and disseminated according to a plan? UWM Minimally. Neither the application nor the draft contract form addresses the availability or dissemination of school performance data to the public. The draft contract form does specify that records are subject to WisconsinÕs open records law (ss. 19.31).56 City of Milwaukee Minimally. The contract requires an "annual academic" report be given to the "CITY."57 No mention is made as to whether the report will be disseminated. Academic Accountability Question 6 Do the academic accountability aspects of the chartering process provide means by which a charter school can be used as a model for broader school reform? UWM Partially. No means are defined by which information about charter school organization or curriculum and instruction programs will be used to inform school reform more broadly. In the application guidelines UWM expresses an interest in programs that will "add to the mosaic" and improve the quality of education for children.58 The draft contract form provides that a school be available to researchers.59 City of Milwaukee No. Neither the application process nor the contracts signed thus far address how information about charter schools will be used to promote broader school reform. CONCLUSION A review of the accountability aspects of the chartering processes of UWM and the City of Milwaukee suggests that there are deficiencies in both. These deficiencies may be logical outcomes of the Wisconsin charter school law. For example, the law requires that charter schools administer state tests, but does not require that student performance standards be specified in charter school contracts. The statute also does not specify the responsibility of charter school sponsors to insure academic outcomes. The recommendations below are intended to strengthen the academic accountability aspects of WisconsinÕs charter school legislation. RECOMMENDATIONS To improve the academic accountability of charter schools, legislators may wish to consider modifying Wisconsin's charter school legislation by requiring: 1. That applicants detail academic ends to be achieved before a contract is signed. 2. That the duties of the sponsor in relation to the academic accountability of chartered schools be defined and made clear as part of the contract. 3. That academic accountability agreements in the contract be specific and precise. 4. That the charter contract identify mechanisms by which the sponsor will insure academic accountability. 5. That the sponsor make academic accountability data readily available and develop and implement a plan for disseminating the data. 6. That charter applicants and sponsors detail methods and means by which charter school models will be used to promote broader school reform. 7. That a third party conduct a state-funded evaluation of the performance of charter schools, and that sponsors and charter school operators participate in the evaluation. View Endnotes Table of Contents Introduction Charter School Reform Overview Charter School Accountability Charter School Accountability Under Wisconsin Law University of Wisconsin - Milwaukee Charter School Accountability City of Milwaukee Charter School Accountability Discussion Conclusion Recommendations Endnotes Tables 1-5 Tables 6 and 7 Appendices Return to Projects and Publications "City of Milwaukee and University of Wisconsin-Milwaukee School Chartering Processes: Academic Accountability Issues" (CERAI-99-9) was produced for the Institute for Excellence in Urban Education, UW-Milwaukee.