Ultimately, State Superintendent of Public Instruction Patti Harrington affirmed the law gives local school districts control over appeals, which only could be made for data errors or extreme circumstances. But she told superintendents they could broadly define those terms and told the Deseret Morning News that a data error could be a reason to use three-year averaging.

But the U.S. Department of Education told the State Office of Education last month that averaging is not in the workbook and therefore could not be used. But it did invite the state to apply to include it in the workbook if seen fit.

But state associate superintendent Judy Park afterward simply reaffirmed districts' legal right to determine appeals — leading some to fear more than $100 million in federal funding could be jeopardized.

Thursday, the state board acted.

"Many of us have felt the wrath of the public out there saying some are (using averaging) and some aren't," board member Dixie Allen said. "It's critical to make this as even and equitable as possible."

"We do need to follow what our workbook says now," board vice president Mark Cluff said.

The board's stand was praised by Salt Lake City Superintendent McKell Withers. "It's really important to support the accountability system that is in place and work to change that in a thoughtful way. It's not a PR (public relations) game to play; it's a need to focus on the best way to serve kids."

Park early Thursday afternoon revealed the board action in a meeting of district superintendents.

Ronnenkamp requested the action in writing, so he could discuss it with his staff and take the next step. "My guess is as soon as I get that, we'll do the appropriate thing," he said. "We'll comply."

But, he added, he is frustrated. He said district officials three times asked if averaging was appropriate, and state officials including Harrington said it was.

"We did what we were given permission to do, and now we've been told that, 'Whoops, we made a mistake,' and we can't do it," Ronnenkamp said. "That's OK. I just feel bad we're jerking our schools and communities around."

Both Jordan District and Alpine districts looked at, but never did use, three-year averaging, and have no plans to do so, officials said Thursday.

"However, we did comment that we felt it's an appropriate thing, and we've asked for it to be included in next year's workbook," Alpine District assessment director John Jesse said.

The State Office of Education is drafting a proposal to use non-uniform averaging when test results come in this spring. Park says nonuniform averaging is where schools can average test scores over three years "only when it's helpful." She said some states have been allowed to do this.

Formal proposals will come to the board Feb. 1, Park said.

Averaging was allowed in Utah in the 2003 workbook for determining safe harbor (or whether a school improved enough to meet the mark), but the rules were steep and didn't push many schools over the hurdle, Park said.

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E-mail: jtcook@desnews.com