rather treat it as a grade on a standard grading scale. School districts can determine what kind of scores are considered poor, below average, average, above average, great, etc.
In theory every teacher could be getting A’s and B’s, it doesn’t have to be on a curve and make it a competition against each other. But when there’s a teacher or two get a few consecutive years of C’s or D’s in final test scores, you know there’s a problem.