In Hearne ISD, a rural school district home to about 800 pupils northwest of College Station, students have scored poorly on the state’s standardized tests for years, and 2019 was no exception.

In the past, Hearne’s abysmal test scores resulted in “improvement required” or failing grades from the state, prompting a gradual increase in state oversight of the rural district. This year, however, Hearne received a B rating under Texas’ A-through-F accountability system, one of the largest improvements in the state.

The biggest reason for the spike: Hearne reported that nearly half of its 2018 Class of 51 graduates enlisted or intended to enlist in the military — a rate 11 times greater than the state average — even though federal data shows few of those students ultimately signed up for the armed forces. The district’s military enlistment total dramatically improved a key metric used to calculate Hearne’s 2019 accountability rating, allowing the district to overcome its test scores.

“They had to do something to indicate intent to enlist,” Hearne ISD Superintendent Adrain Johnson said. “We do not have, and I don’t know if the military receives, a list of how many actually enlisted.”

In dozens of districts across Texas, school administrators reported far-above-average rates of graduates joining the armed forces in 2018, allowing them to drive up state accountability ratings, mask poor standardized test performance and avoid failing grades from the Texas Education Agency, a Houston Chronicle analysis has found. Educators in those districts appear to have taken advantage of loose rules issued by the TEA for classifying students as “enlisted” or “intending to enlist,” calling into question the validity of some state accountability ratings.

According to data released in mid-August, 62 districts and 100 campuses reported that at least 15 percent of seniors enlisted or intended to enlist in the military following graduation in 2018, more than triple the state average of 4.2 percent. In several districts, the above-average enlistment rate helped boost accountability ratings by one or two letter grades.

At the same time, other Texas districts used stricter standards for classifying students as enlisted or intending to enlist, stunting their accountability ratings. In the most extreme case, Houston likely could have staved off state sanctions, including the expected replacement of the district’s school board, if long-failing Wheatley High School had claimed just two more students from its 160-member 2018 graduating class had enlisted or intended to join the military.

The wide disparities in reported military enlistments illustrate how Texas’ new academic accountability system remains susceptible to claims of unfairness, despite extensive efforts to craft an impartial, equitable framework.

The results also highlight potential pitfalls with accountability systems that delegate discretion to school district administrators, who have incentives to push the boundaries of rules.

“It highlights concerns we have with the current system,” said Michael Love, Houston ISD’s assistant superintendent of career readiness. “I think with that structure, there is some room for a variety of results. I think we’re seeing it right now when it comes to certain districts, when we see how it has impacted their overall accountability ratings.”

TEA officials did not grant an interview or respond directly to written questions for this story. In a statement, TEA spokesman Jake Kobersky said data reported by districts “is subject to validation verification” and follow-up investigation. The agency did not address whether it is auditing any districts or plans to change criteria for classifying graduates as enlisted.

“Intentional submission of false data is not tolerated,” Kobersky said. “Texas parents and students deserve transparent and accurate information about our public schools.”

Good intent?

Each year, Texas rates more than 1,000 districts and 1,800-plus high schools using complex formulas rooted in three data points: standardized test scores, graduation rates and “college, career and military readiness,” or CCMR. Districts receive CCMR accountability points for every graduating senior from the prior year’s class who meets one of 11 metrics, which include earning an associate’s degree, gaining an industry-based certification or planning to enlist in the military.

For some districts and high schools, the CCMR score can serve as a large percentage of final ratings. Even if a district or school performs woefully low on standardized tests, it can receive a B- or C-level grade with a high CCMR score.

Most metrics within the CCMR score are determined by test results or verifiable data. However, Texas educators are unable to confirm whether graduates joined the military, largely because the Department of Defense does not share enlistment data with the TEA.

As a result, the TEA gives districts significant discretion in determining whether students intend to enlist, including “a senior survey, contact with a local recruiter, or any other method.”

“We kind of assume good first intent and that people are going to do right by the rules of the system, and, hopefully, that if the agency decided to go to a particular district and audit their records, they would be able to justify it,” said Keith Haffey, the executive director for assessment and compliance at Spring Branch ISD and a member of two state advisory groups overseeing academic accountability development.

On HoustonChronicle.com: Houston-area schools fare better than state average on A-F grading system

Without clear standards for classifying students as enlisted or intending to enlist, Texas school districts used various standards in 2018, producing huge disparities in results.

In Kingsville ISD, home to 3,300 students near Corpus Christi, administrators counted students as intending to enlist if they put their names on a sign-in sheet when a military recruiter spoke at the high school, a practice the district’s new superintendent called “a red flag.” Kingsville received failings grades for standardized test performance and growth this year, but its claimed 46 percent enlistment rate helped boost the district’s overall grade to a B.

“At the time, they would have recruiters go into the history class and the recruiter would talk about enlisting in the Army, and so all of those students were given credit as ‘intent to enlist,’” said Kingsville Superintendent Elida Bera, who took over as the district’s leader in November 2018. “Are we changing our practice? Yes, we are. Will that have an impact on our scores next year? Probably.”

In 2,800-student Pecos-Barstow-Toyah ISD, located in the Permian Basin, Superintendent Jose Cervantes chalked up the district’s 34 percent enlistment rate to improved recordkeeping. The district received an overall B grade despite D-grade scores on standardized tests.

“We’re tracking where every student is going after they graduate or before they graduate,” Cervantes said. “We, as a district, weren’t tracking that. We got hardly any CCMR points for accountability.”

However, federal data suggests few students from those districts joined the armed forces before or shortly after graduation. Combined, Kingsville and Pecos-Barstow-Toyah reported that 157 graduates from their classes of 2018 enlisted or planned to enlist. Department of Defense data shows only 27 people from Kleberg and Reeves counties, home to Kingsville and Pecos-Barstow-Toyah, respectively, joined the armed forces between October 2017 and September 2018..

Locals within range

A large majority of Texas districts reported fewer than 8 percent of graduates enlisting or intending to enlist, including nearly all of the large Houston-area districts. Still, local districts used various methods for classifying students as intending to enlist.

In Deer Park ISD, which declared an enlistment rate of 20 percent, administrators relied on student surveys to identify intent, district spokesman Matt Lucas said. Deer Park’s well-above-average rate did not significantly contribute to the district’s A accountability rating, largely because students scored well on standardized tests and met multiple criteria for post-secondary readiness.

High school administrators in Houston ISD relied on multiple tactics to find students planning to enlist, including conversations with seniors and documented contacts with recruiters. The district’s 5 percent enlistment rate narrowly exceeded state averages and had little impact on its B-grade accountability rating.

However, three of Houston ISD’s 40-plus high schools reported far-above-average enlistment rates, helping them earn C grades despite mediocre-to-poor test scores. They were Wisdom High School at 34 percent, Waltrip High School at 17 percent and Houston Math, Science and Technology Center at 17 percent.

Love, the district’s assistant superintendent of career readiness, said Houston ISD administrators will be reviewing enlistment rates in some schools and instituting a district-wide form for documenting students who plan to join the armed forces.

“I do think there’s a certain range that we want to stay in, for the most part, that would closely mirror the state averages over the past five years,” Love said.

Haffey, the Spring Branch executive director, said his district awards credit for enlistment once military officials contact administrators to request a student’s transcript, one of the region’s strictest thresholds. About 1 percent of Spring Branch seniors enlisted or planned to enlist in 2018.

TEA officials have the authority to audit districts suspected of reporting manipulated or false data, and issue harsh sanctions against those found guilty of misconduct. As a result, Haffey cautioned against eliminating or dismissing the state’s accountability system due to outlier results.

“We can’t dwell on the small numbers of entities that may look to play the system and game the system, because that could cause you never to get anywhere,” Haffey said. “If you write policy to cover every single possibility that could occur, your policy is going to be lengthy and long-winded, if you ever get it completed.”

jacob.carpenter@chron.com