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This detailed document describes the Florida STW Evaluation Plan (1996), a model based on a continuous quality improvement approach.  It includes Introduction, Overview, Goals and Objectives, Characteristics, Continuous Quality Improvement, Evaluation Guide and System Components. The Appendix (.zip file) provides sample evaluation matrices.

The document is online below, without the Appendix. If you'd like a print version of the document (including Appendix), please contact us.

 

Evaluation Plan Contents:

Introduction

Florida School-to-Work Partnerships are forming to create a comprehensive educational system which focuses on the student as the center of the decision-making process for educational services and programs. Working closely with regional employers, labor and community organizations, Florida has just begun the process of planning for comprehensive School-to-Work activities accessible by all youth. This system will prepare them for high-skill, high-wage occupations, and will address the demand of regional employers in a highly competitive economy for workers possessing critical academic, analytical and technical skills.

The long range implementation of School-to-Work activities within Florida requires a method for determining the quality, effectiveness, and goal-attainment of the region's School-to-Work activities. In other words, it requires a dynamic evaluation process that can grow and adapt as School-to-Work activities move along the continuum from planning to development to implementation to institutionalization. The Florida School-to-Work Evaluation Plan is a description and guide to the overall vision and specific activities to be devoted to evaluating Florida School-to-Work Partnership's planning, development, implementation and continuous improvement of its activities related to the School-to-Work initiative and each of its components.

Overview of the Evaluation Plan

The Florida School-to-Work Evaluation Plan synthesizes two models. The overall process of the evaluation plan is that of a continuous quality improvement model and is adapted directly from Florida's proposed statewide School-to-Work evaluation process (Florida School-to-Work Implementation Grant, June 1995). The detailed implementation of the evaluation plan focuses on the preparation of an evaluation guide. Each of these models is briefly described below, a detailed discussion is provided in subsequent sections.

The continuous quality improvement model is a modified version of one proposed in Steeples (1992) and contains three major interconnected components:

  1. The first component is DOCUMENTATION; within this component one must determine how to document the quality improvement process. On-going goals and outcomes are established, and an evaluation is conducted to gather information on the established goals and outcomes and to collect data for indicators.
  2. The second component is ANALYSIS. At this time the goals and outcomes are quantified, an in-depth data review is conducted, trends found in the evaluation data are examined, best practices are identified, and an improvement plan with targets is recommended.
  3. The third component is IMPROVEMENT. At this stage, the recommended improvements are implemented, the results of the process are assessed and measured, and feedback is provided on the performance. The next step is to repeat and continue the process, formally and constantly addressing the improvement process.

The evaluation guide first identifies the system components needed to plan, develop, implement and institutionalize the School-to-Work initiative; Florida has identified eleven such system components. For each of these components, a matrix is developed to provide the evaluator with a blueprint in summary form of the decision factors needed to evaluate each system component. These decision factors are used to guide the documentation, analysis and improvement components of the evaluation process. There are six decision factors proposed for the School-to-Work evaluation. They are: GOALS, EVALUATION QUESTIONS, STANDARDS/BENCHMARKS, EVIDENCE AND DATA SOURCES, TIMELINE AND RESPONSIBILITY, and DECISION/REMARKS.

The Appendix of this document includes eleven evaluation matrixes, one for each of Florida's identified system components. These eleven matrixes comprise a preliminary "SAMPLE" evaluation guide for Florida's School-to-Work Evaluation Plan. These matrixes should be developed based on initial goals, evaluation questions, and standards/benchmarks identified by participants of each individual Florida School-to-Work Partnership via numerous sources, including: on-going programs and initiatives with goals complementary to those of School-to-Work, meetings held throughout the calender year with business partners, at planning retreats for business and industry partners, as well as other planning meetings involving other stakeholders.

An evaluation process and plan are dynamic undertakings and meant to evolve over the course of time as established goals are achieved and new ones are identified, systems and technology change, and new methods are introduced. This evaluation plan is a first step in Florida's School-to-Work continuous quality improvement process.

Goals and Objectives of the Evaluation Process

The overall goal of Florida's School-to-Work evaluation process is to develop a dynamic plan so that the quality, effectiveness, and goal-attainment within the region may be determined by the implementation of strategies and action plans developed to enhance this effort. An overview of the ancillary objectives of Florida's evaluation process is as follows:

Characteristics of the Evaluation Plan

The design of Florida's evaluation plan incorporates the following characteristics.

SIMPLE, UNDERSTANDABLE AND USABLE: Due to the critical need to involve many players in the School-to-Work process (i.e. leaders of business, industry, labor, and government; parents; students; school personnel - administrators and teachers, both general education and vocational; and, counselors) the plan is void of techno-talk and educational jargon so that everyone involved has an understanding of what Florida's School-to-Work initiative is trying to accomplish. The plan is "usable" in the context that the regional leadership will be able to use the plan to assess the quality, effectiveness, and goal-attainment of their School-to-Work activities.

DYNAMIC: The plan is dynamic so as to allow the examination of additional evaluation system components as they are identified, while allowing for input and feedback from the initiative participants (stakeholders). Furthermore, it includes the flexibility to grow as School-to-Work activities expand and become integrated throughout Florida's public education, labor, workforce development structure.

PRO-ACTIVE: The plan identifies Florida School-to-Work Partnership's expected outcomes, goals, and standards and establishes a method to report the status of these expectations, providing a "visible" reporting system that yields the "truth about our School-to-Work effort." If Florida falls short in meeting its goals and expectations, this plan provides a means with which to identify and implement improvement strategies to strengthen those areas.

COST EFFECTIVE: The plan is cost-effective in both time and money. Generally, the responsibility of data collection and documentation of a School-to-Work region's activities rests with the initiative and/or regional coordinators. In order for the data collection to take place the system designed to collect the information must be time efficient. To decrease the amount of time required for data collection, linkages between School-to-Work and the existing public education data requirements from local, state, and national agencies are being explored so that duplication of data collection efforts will be eliminated. Additionally, to reduce cost, existing evaluation instruments utilized in both secondary and postsecondary educational settings by other School-to-Work regions are being identified and modified for use in this region's data collection efforts. Because of the cost effective design of this model, it is sustainable beyond federal funding.

QUANTIFIABLE: Whenever possible, "hard" data (numbers) will be produced denoting the region's development, implementation, and progress. Pragmatically, Florida School-to-Work Partnership must convince a great number of audiences including all of its stakeholders and federal, state, and local legislators to personally and monetarily invest in this educational reform initiative. Therefore, every effort is made to infuse quantitative as well as qualitative data collection techniques so they may provide the data required to these audiences that document the quality, effectiveness, and goal-attainment of the region's activities.

TRANSFERABLE: First, this regional evaluation plan complements and augments existing federal and state requirements and keeps additional evaluation activities to a minimum. Secondly, because this regional evaluation plan is based on the proposed statewide evaluation plan, it provides for transferability among the statewide School-to- Work regions so that this region may draw upon the expertise of those who are having success in certain areas as well as provide support to other regions. In order for a School- to-Work region to become competitive, comparative techniques must be used in the context of finding out what other School-to-Work regions are doing so that one's own operation may be strengthened. Sharing experiences with others allows everyone to grow and enhance regional School-to-Work efforts, making winners out of all the players : students, parents, businesses, industries, the schools and the communities.

FORMATIVE AND SUMMATIVE: In the evaluation vernacular, formative is the on- going evaluation process, and summative evaluation is conducted at the conclusion of a initiative to determine the initiative's worth. The bottom line is that every evaluation deals with results intended or unintended, and these results must be collected in a timely manner so that decisions may be made when necessary to insure the quality, effectiveness, and goal-attainment of Florida's School-to-Work activities.

Continuous Quality Improvement Process

The intent of the School-to-Work educational reform initiative is to permanently embed School-to-Work activities as part of the existing educational structure. With this in mind, School-to-Work must be a "Total Quality Effort" and focus on obtaining continuous, high quality in a results-driven model. As is true for any successful business, industry, or public educational institution, each must operate on the premise of day-to-day as well as long-term improvement. Public education programs can achieve this type of improvement by emulating the most successful businesses through the implementation and utilization of a systematic process to ensure quality. Therefore, the evaluation model to be used is one that is well-recognized by business and industry and has a proven track record for success in creating a continuum of quality.

The proposed Florida School-to-Work evaluation process is the same as that proposed for the Florida statewide evaluation plan. It incorporates a modified version of a business and industry-based Total Quality Management (TQM) continuous quality improvement model (Steeples, 1992). This model's format (please refer to Figure 1) is derived from a suggested example that may be utilized when applying for the Malcolm Baldridge National Quality Award. It should be noted that educational agencies (including public schools) are now eligible to compete for receipt of this prestigious national quality award.

The Florida School-to-Work evaluation model is a dynamic systems design consisting of three major operational components which stimulate the on-going process for continuous quality improvement. The three components are titled: Documentation, Analysis, and Improvement. Each component shares equal importance; however, the amount of focus and energy expended on each will be dependent upon where the region is in its development and implementation processes. A brief discussion of each component follows.

The first component is DOCUMENTATION, which is the formal process of gathering vital information on the implementation and continuation of School-to-Work activities. Documentation will include, but not be limited to the following outcomes:

The next component of the model consists of the ANALYSIS of the information and data collected during the Documentation process. This component provides for the development of quantifiable goals and benchmarks for the region's School-to-Work activities; requires the development of improvement plans and trends analysis derived from the completed regional impact evaluation process; supports an in-depth analysis of the region's system components; and identifies best School-to-Work practices within the region so they may be shared, disseminated, and modeled by other School-to-Work regions. The last major operational component for this model is the IMPROVEMENT process which commences as actual recommended improvement plans are implemented . The results obtained from the improvement plans are measured and monitored with feedback on performance provided to ensure positive change and impact. The last step in the Improvement component is to begin the process again, building off the assessed results and data gathered from the Improvement process. The goal of Florida's School-to-Work evaluation plan's continuous quality improvement process is to achieve superiority in each of the region's School-to-Work system component areas, and this model provides for a continuous, systematic process in determining the quality, effectiveness, and goal-attainment of Florida's School-to-Work activities.

Evaluation Guide

The continuous quality improvement process provides the vision and overall concept underlying Florida's evaluation plan. The evaluation guide focuses on the detailed implementation of the evaluation plan. This section reviews the specific tasks to be addressed by the School-to-Work evaluation plan and provides an illustration showing how an evaluation guide can be prepared and used.

The guide is presented in a matrix format (see the matrixes in the Appendix of this document) which depicts a systems approach to School-to-Work evaluation. The matrix format provides the evaluator with a blueprint of the evaluation scheme so that all of the essential facets of the evaluation plan can be seen in summary form. The matrix format consists of two major parts, system components and decision factors. System components are broadly identified as the processes needed to plan, develop, implement and institutionalize the School-to-Work initiative. For each of the system components, a separate matrix is developed to provide the evaluator with a blueprint in summary form of the decision factors needed to evaluate each system component. These decision factors, forming the columns of the matrix, are used to guide the documentation, analysis and improvement components of the evaluation process. Six facets make up the decision factors, they are: goals, evaluation questions, standards/benchmarks, evidence and data sources, timeline and responsibility, and decisions/remarks.

Definitions for each of these terms are given below and will be described in greater detail later in the discussion.

System Components: The system areas of the educational initiative that are to be evaluated. Dependent upon the nature of the initiative, they necessarily vary from one evaluation to another. The School-to-Work system components used by Florida are: Governance, Public and Community Awareness, Professional Development, Career Guidance and Counseling, Support Services, School-Based Activities, Work-Based Activities, Work-site Development, Students/Clients, Placement and Follow-up, and Evaluation and Outcomes.

Decision Factors: Elements used to evaluate each system component. The decision factors are used to guide the documentation, analysis and improvement components of the evaluation process. They are goals, evaluation questions, standards/benchmarks, evidence and data source, timeline and responsibility, and decisions/remarks.

Goals: A series of statements determined to be the outcomes (goals) sought for each system component. They are used to comprehensively measure the quality, effectiveness, and goal attainment of an educational initiative.

Evaluation Questions: Answerable questions related to a proposed goal or outcome with responses that are objectively measurable. An evaluation question is asked in a manner such that clues are provided as to how information and evidence concerning the status of the goal (or outcome) shall be gathered.

Standards/Benchmarks: Criteria used for determining whether a particular goal or outcome has been attained and/or evaluation question effectively answered. Evidence and Data Source: How and from where the data will be collected, i.e., the method/instrument to be used for gathering data, to determine whether the goal or outcome has been attained. The analytical techniques for data treatment and analysis may also be specified.

Timeline and Responsibility: When and how frequently will the data be collected and examined as well as who or what entity is responsible for its collection. Decision/Remarks: The judgement, favorable or unfavorable, summative or formative, and comments about the system component's goals.

System Components

The Florida School-to-Work Systems Model (Florida School-to-Work Implementation Grant, 1995, pp. 5-6) identifies nine School-to- Work system components as being important to the success of a region's School-to-Work initiative: Public and Community Awareness, Professional Development, Career Guidance and Counseling, Support Services, School-Based Activities, Work-Based Activities, Work-site Development, Placement and Follow-up, and Evaluation and Outcomes. In addition to these system components, Florida has identified two other components: Governance and Students/Clients. These eleven system components form the basis of the development of the evaluation guide.

It has been argued that it is not critical for all evaluation plans to conform to set procedures; furthermore, it is unimportant that an initiative's goals be the same for all regions. A consideration that is at least as vital as goals, and one that is often slighted when evaluating initiatives, is the conditions by which the system components to be evaluated for the initiative are decided. While it is beyond the scope of this plan to elaborate on methods of selection of system components, it must be mentioned that the evaluation plan should be responsive to the needs of the system and meaningful and useful to those who are in charge of the initiative. In making the decision as to what system components should be evaluated, provision for input by a variety of sources should be made. Included among these sources are educational administrators, teachers, counselors, students, parents, advisory councils, community representatives, business/industry, and others.

Decision Factors

The first of the decision factors, shown as a column heading in the evaluation matrix, is that of goals. Goals refer to a series of outcome statements which serve as the evaluation indicators in determining the quality, effectiveness, and attainment of outcomes for a given system component. Stated in laymen's terminology, the goals give guidance to the evaluator in deciding what answers are desired by persons mandating the evaluation. From these performance indicator statements are developed the evaluation questions in column two of the matrix.

An evaluation question is a behavioral or objectively measurable question of an initiative's goals. The language used when stating the goals may be so broad that it is difficult to gather evidence, pro or con, directly from the stated goal. Unless the goals can be stated in such a fashion that clues are provided as to where such information may be located, the goals are of little use. For example, it may be completely reasonable to speak about effectiveness of the student retention program when formulating goals. Indeed, the desire that an educational initiative be effective is shared by all. However, problems arise when an attempt is made to measure effectiveness -- because of the abstract nature of the term "effectiveness." It is only after one redefines the term that data can be gathered to make the judgement. Terms like "quality, effectiveness, and goal attainment" need to be operationalized into measurable language, or questions, such as:

How to redefine goal statements into operational evaluation questions is a matter of choice for those responsible for developing the evaluation guide. Due to the dynamics of this particular evaluation document, it should be emphasized that the choice is not one that belongs solely to an evaluation expert. Input from School-to-Work administrators, students, parents, teachers, counselors, advisory councils, school administrators, and business/industry should be elicited.

Standards/Benchmarks are criteria for judging the worth of a process or product. The establishment of valid standards/benchmarks is a critical part of the evaluation design. Each of the system components, goals, or, more properly, the evaluation questions, have to be scrutinized and rated as to whether it has merit. Once the standards/benchmarks have been established, the judgmental part of the evaluator's role is exceedingly simple. The decision becomes a straightforward one if the standards/benchmarks phase has received proper attention. The critical part of this phase of evaluation is the credibility of the standards/benchmarks used.

Procedures for establishing standards/benchmarks are complex and will vary from one evaluation scheme to another. There are, however, certain guidelines with which those responsible for evaluation should be familiar. Among the important points to check are:

A brief discussion of the above guidelines should improve clarity. The first two points on the establishment of standards/benchmarks concern input by appropriate parties and are apparent. Personnel who are involved in setting standards for their own programs are apt to accept judgement findings which result from the evaluation. This does not mean that input from outside sources is excluded. To the contrary, frequently, people outside a system are in a better position to establish standards/benchmarks than those who are a part of it because of two reasons: (1) they may be more objective since they are detached from the initiative and have no personal involvement; or (2) they may have expertise essential to the establishment of standards/benchmarks not possessed by other members of the team. When voice in the establishment of standards/benchmarks by concerned individuals is allowed, some assurance is provided that important considerations have not been overlooked.

The need to include the individual(s) responsible for ultimately making a decision is functional. Unless the authority figure agrees that a standard is appropriate, the evaluator will be unable to make a decision, or any decision made may be incompatible, in which case the evaluation may provide little valuable information.

The third guideline for establishment of standards/benchmarks relates to the temporal nature of the standards/benchmarks, i.e., whether the standard is one that shall be abided by temporarily or permanently. Evaluation standards/benchmarks that are tentative, subject to change as one moves through the evaluation process, may be called formative. Formative standards/benchmarks are of a "cut and try" character. Sometimes when "logical" standards/benchmarks are established they prove to be unrealistic because they lack the basis for framing the standards/benchmarks. Therefore, evaluators need to alter the standards/benchmarks after an initial point has been instituted. Standards/benchmarks that are reasonably permanent may be referred to as summative. Such standards/benchmarks are derived from scientific and/or logical bases and are more or less unalterable. Summative standards/benchmarks should be used when the purpose is to finalize decisions about an educational program and in instances where the decisions may effect their implementation.

Some of the standards/benchmarks that are established will be based on logical arguments. Other standards/benchmarks will be based on empirical evidence. It appears that the validity of logical standards/benchmarks is less rigorous than that which is empirical in nature. Conditions under which the evaluation occurs often times necessitate the use of logical standards/benchmarks. Time and cost, for example, may prevent the gathering of the data needed to establish empirical standards/benchmarks; to the contrary, a logical standard may not necessarily mean a sacrifice of rigor. An example of a logical standard might be the evaluation of teacher attitudes toward the School-to-Work curriculum, and the standard is established that more than half of the teachers should favor the curriculum. From a logical point of view, it may appear that more than half the teachers should favor the curriculum. Thus, the standard that 50% of the teachers must respond with a "yes" seems appropriate. One should realize, however, that research on attitudes might show that another percentage is appropriate. If, for example, a study showed that the Hawthorne effect was a factor in the adoption of new educational methods to the extent that 80% of the teachers favored this method, the 80% figure would be more valid than the 50% figure. On the other hand, another study might show teachers are conservative and resistant to change and only 30% favored the new method. In the latter instance, a 30% figure would have been appropriate. Another facet to be considered when establishing standards/benchmarks is the matter of cost. If the initiative is massive in scope and size the costs of having experts evaluate all items in the initiative are usually prohibitive. Therefore, a compromise method is used, such as sampling of items and objectives for examination by experts. In such an instance "congruence" of an evaluation question with its standard/benchmark would be most appropriate.

Considerations of practicability, other than cost, are similarly important when establishing standards/benchmarks. Time factors may preclude the gathering of information with which to establish standards or certain information essential to the establishment of standards/benchmarks may not be available at the time the standard has to be established.

A final guideline for specifying standards/benchmarks is that they be operationally defined so that the standards/benchmarks are explicit to the evaluators. A standard phrased in vague terminology lends itself to variable interpretations and is suspect. If, for example, a standard for a goal of a School-to-Work initiative is "administrative approval" the evaluator does not know if this means approval by a coordinator, high school principal, school district administrative staff member, community college administrator, or the superintendent. All may give different judgement about the value of the initiative. A decision about the worth of an initiative may rest on who was asked.

The construction of evaluation questions provides clues for determining the evidence and data source, the fourth column heading of the matrix. For example, a goal may be "to improve the effectiveness of the student retention program," if we have decided that the percent of students who are retained in the program is an operational measure of that goal, how shall we proceed to collect data that will help us reach a decision? In other words, how can the evidence be collected (in what format) and what are the sources of that evidence/data?

The method of data collection will depend on what is being evaluated. For example, if the concern is with the attitudes of students or teachers, a teacher or student questionnaire may be appropriate. The critical consideration is that the procedures for reporting information be accurate and efficient.

The fifth column in the matrix is the decision factor timeline and responsibility. These factors are relatively straight forward and refer to when and how frequently the data is to be collected and examined as well as the individual or individuals who are responsible for its collection.

After having weighed all the evidence, the ultimate goal of an evaluation is to reach a proper decision. Sometimes reaching the proper decision is viewed as the most difficult part of the total evaluation, especially in instances where the decision is adverse. In instances where negative findings are reported, personnel involved in the program being evaluated sometimes are unable to accept realities. This nonacceptance is minimized when the evaluation plan is well-conceived and well-developed. Two of the most important considerations in reaching decisions are authority and finality. Authority refers to the individual or agency who has the power to make the decision. Finality refers to whether the decision is either tentative or permanent. Both of these characteristics can play havoc with educational evaluation. The authority problem can be circumvented by providing for input from all sources likely to be affected by the evaluation. These sources would include instructional staff, administrative staff, parents, pupils, business/industry, and local, state, and federal agencies.

The finality problem is somewhat more difficult to resolve because of its relationship to the nature of evidence upon which a decision is reached. The type of data that is collected to scrutinize a particular system component is dependent on several factors. Among the important ones are the time within which the decisions have to be made, the money available for gathering the data, and the personnel and technological expertise at the disposal of those directing the project. If these types of resources are in short supply, it may be that the validity of the decision will be limited, in which case the decision may be formative in character. If resources are plentiful and care is taken to establish sound data collection and analysis methodologies, the nature of the decision may be summative.

Conclusion

Eleven evaluation matrixes, one for each of Florida's identified system components, are included in the Appendix to this document. These eleven matrixes comprise a preliminary "SAMPLE" evaluation guide for Florida's School-to-Work Evaluation Plan. They should be developed based on initial goals, evaluation questions, and standards/benchmarks identified by participants of Florida School-to-Work Partnership via numerous sources, including: on-going programs and initiatives with goals complementary to those of School-to-Work, meetings held throughout the calendar year with business partners, and at planning retreats for business and industry partners, as well as other planning meetings involving other stakeholders.

An evaluation process and plan are dynamic undertakings and meant to evolve over the course of time as established goals are achieved and new ones are identified, systems and technology change, and new methods are introduced. This evaluation plan is a first step in Florida's School-to-Work continuous quality improvement process.


References

Florida School-to-Work Implementation Grant. (June 19, 1995). Florida Department of Education: Tallahassee, FL.

Hammons, F. T. (1995). Florida Tech Prep Education Evaluation Model. Florida Department of Education: Tallahassee, FL. (Document GE 334 BK 94).

Steeples, M. M. (1992). The corporate guide to the Malcolm Baldridge National Quality Award: Proven strategies for building quality into your organization. ASQC Quality Press: Milwaukee, WI.


Title Page and Acknowledgements

Florida School-to-Work
Evaluation Plan (August 1996)

Developed for:

The State of Florida School-to-Work Partnerships
School-to-Work Joint Services Division
325 W. Gaines Street
Tallahassee, Florida 32399

Developed by:

The State of Florida School-to-Work Evaluation Liaison Office
Frank T. Hammons, Ed.D., Director/Assistant Professor
Florida International University
College of Education
Miami, Florida 33199
(305) 348-3391 FAX (305) 348-1551
E-Mail: hammonsf@fiu.edu

Acknowledgments

A state-wide endeavor of this magnitude could not have been accomplished without the encouragement, idea-sharing, research, contributions, and review of a significant number of individuals. This is especially true in the development of the sample evaluation matrixes provided in the appendix. They evolved as part of an on-going process to refine the primary areas identified as the key components for the planning, development, implementation, and institutionalization of the School-to-Work initiative within the State of Florida. This process included input from sources almost too numerous to mention, but some of the groups and individuals involved with the development and review of the matrixes need special mention. These include among others: the Volusia-Flagler School-to-Work Partnership, Mary Bruno, Mary Thompson, Michael Brawer, C.E. Pittman, F. Marion Asche, Sharon Woodcock, Regnier Jurado, and Genevieve Maignan.

This document is intended to positively assist Florida in the development, implementation, and continuance of the School-to-Work educational initiative. It is my intent that this document be viewed as not the end but the beginning of a systemic process that assists all School-to-Work Partnerships to objectively review and positively improve upon the activities and services they provide to their clients.

Frank T. Hammons, Ed.D.
Miami, Florida

Send comments to IWC at xiwc@fiu.edu
Copyright © 1999 by Institute for Workforce Competitiveness.
Revised: July 27, 1999.