COMPREHENSIVE NEEDS ASSESSMENT 

COMPREHENSIVE 

NEEDS 

ASSESSMENT 

Materials adapted from “Planning and 

Conducting Needs Assessments: A Practical 

Guide” (1995) 

Office of Migrant Education: 2001 New Directors Orientation 1

Archived Information
C O M P REHEN S I V E N E EDS ASSESSMENT 

Summary of Foundation Concepts 

• A “need” is a discrepancy or gap between “what 

is” and “what should be.” 

• A “needs assessment” is a systematic set of 

procedures that are used to determine needs, 

examine their nature and causes, and set priorities

for future action. 

• In the real world, there is never enough money to 

meet all needs. Needs assessments are conducted to 

help program planners identify and select the right

job before doing the job right. 

KEY TO P I CS 

In this session, we will answer the following: 

3⁄4 What is a needs assessment? 

3⁄4 What steps are involved in conducting a needs 

assessment? 

3⁄4 What aspects of a needs assessment are important

to its success? 

Office of Migrant Education: 2001 New Directors Orientation 2
C O M P REHEN S I V E N E EDS ASSESSMENT 

Why Conduct a Needs 

Assessment?

Why do program planners in education, business, industry, 

government, etc. conduct needs assessments?

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Office of Migrant Education: 2001 New Directors Orientation 3
C O M P REHEN S I V E N E EDS ASSESSMENT 

Legal Requirements 

The law requires States to submit applications that 

describe: 

 a comprehensive plan for needs assessment and 

service delivery that identifies the special 

educational needs of migrant children; 

 how the State’s priorities for the use of funds relate 

to the State’s needs assessment; and 

 how the State will award subgrants to reflect the 

results of the comprehensive needs assessment 

plan. 

[See Section 1304 - State Applications; Services & 

Section 1306 - Comprehensive Needs Assessment 

and Service-Delivery; Authorized Activities.]

Program Requirements 

Policy guidance issued by the Office of Migrant Education 

states that needs assessments: 

 are conducted annually; 

 use the best information available; 

 are a process by which each state 

determines how to integrate MEP-funded 

services into the state’s comprehensive 

education reform plan to best meet the 

identified needs of migrant children; 

 establish statewide priorities for local 

procedures; and 

 provide a basis for the allocation of funds. 

Office of Migrant Education: 2001 New Directors Orientation 4

t

rt

It is not possible to succeed 

with a brillian idea and superb 

execution of the wrong strategy... 

John O’Tool 

Author, Adve ising 
C O M P REHEN S I V E N E EDS ASSESSMENT 

Office of Migrant Education: 2001 New Directors Orientation 5

Definition of Key Terms “Knowing and not doing

are equal to not 

knowing at all.” 

Anonymous

 “Need” refers to the gap or discrepancy between a 

present state (what is) and a desired state (what should be). 

The need is neither the present nor the future state; it 

is the gap between them. 

Desired Results - Current results = Need 

(What should be) (What is) 

100% of third

grade migrant 

students meet

the state 

proficiency level 

in reading 

-

30% of third 

grade migrant 

students meet

the state 

proficiency level 

in reading 

= 

70% of third 

grade migrant 

children must 

reach the 

proficiency level 

in reading 

“Target Group” 

Needs Assessments are focused on particular target groups 

in a system. 

Common target groups in education settings include 

students, parents, teachers, administrators, and the 

community at-large. 

Ideally, needs assessments are initially conducted to 

determine the needs of the people (i.e., service 

receivers) for whom the organization or system exists 

(e.g., students). 

However, a “comprehensive” needs assessment often takes 

into account needs identified in other parts of a system. 

For example, a needs assessment might include the 

concerns of the “service providers” (e.g. teachers, 

guidance counselors, or school principals—the people who 

have a direct relationship with the service receivers) or 

“system issues” (e.g., availability of programs, services, 

and personnel; level of program coordination; and access 

to appropriate facilities). 
C O M P REHEN S I V E N E EDS ASSESSMENT 

Definition of Key Terms 

(continued) 

A “Needs Assessment” is a systematic approach 

that progresses through a defined series of phases. 

Needs Assessment focuses on the ends (i.e., outcomes) to 

be attained, rather than the means (i.e., process). For 

example, reading achievement is an outcome whereas 

reading instruction is a means toward that end. 

It gathers data by means of established procedures and 

methods designed for specific purposes. The kinds and 

scope of methods are selected to fit the purposes and 

context of the needs assessment. 

Needs assessment sets priorities and determines criteria 

for solutions so that planners and managers can make 

sound decisions. 

Needs assessment sets criteria for determining how best to 

allocate available money, people, facilities, and other 

resources. 

Needs assessment leads to action that will improve

programs, services, organizational structure and 

operations, or a combination of these elements. 

t

t

A system is a set of regularly

interacting elements that form a

unified whole and organized for a

common purpose.

An important characteristic of a

system is tha all parts are

interdependent. Anything tha

affects one part of the system has

consequences for the whole.

Office of Migrant Education: 2001 New Directors Orientation 6
C O M P REHEN S I V E N E EDS ASSESSMENT 

A Three-Phase Model of Needs Assessment 

...a systematic approach that progresses through a defined series of phases 

 Prepare a Management 

Plan

 Identify Concerns

 Determine Measurable 

Indicators

 Consider Data Sources

 Decide Preliminary 

Priorities

 Determine Target 

Groups

 Gather Data to Define 

Needs

 Prioritize Needs

 Identify & Analyze 

Causes

 Summarize Findings

 Set Priority Needs

 Identify Possible 

Solutions

 Select Solution 

Strategies

 Propose Action Plan

 Prepare Report

III 

Make

Decisions

II 

Gather & 

Analyze Data

I 

Explore 

“What Is” 

Office of Migrant Education: 2001 New Directors Orientation 7
C O M P REHEN S I V E N E EDS ASSESSMENT 

Office of Migrant Education: 2001 New Directors Orientation 8

III 

Make

Decisions

II 

Gather & 

Analyze Data

I 

Explore 

“What Is” 

Decide 

Preliminary 

Priorities

Identify 

Major 

Concerns

Consider 

Data 

Sources

Determine 

Need 

Indicators

The purpose of Phase I is to 

investigate what is already known 

about the needs of the target group; to 

determine the focus and scope of the 

needs assessment; and to gain 

commitment for all stages of the 

assessment; including the use of the 

findings for program planning and 

implementation. 

Prepare 

Management 

Plan
C O M P REHEN S I V E N E EDS ASSESSMENT 

Phase I: Explore “What Is” 

 Two major objectives of the exploration phase are gaining: 1) a sense of 

commitment to the needs assessment at all levels in the organization; and 2) an 

assurance that decision makers will follow-up (i.e., use) the findings with 

appropriate and timely action. 

STEP 1: Prepare Management Plan

3⁄4 Successful projects have leadership. A key person 

in planning and managing a needs assessment is 

the project manager. 

“Who is important to have

as a member of your 

Needs Assessment 

Committee?” 

3⁄4 Form a Needs Assessment Committee. 

The members of a Needs Assessment Committee 

should represent those organizations and 

individuals that are critical to ensuring

commitment and follow-up. 

3⁄4 Determine a reporting schedule. 

Timely reports to top management and other 

important stakeholders, with opportunities for 

interaction on major issues, also are critical. 

STEP 2: Identify Major Concerns

3⁄4 Reach consensus on the goals (desired outcomes) 

of greatest importance to the target group. 

3⁄4 Refine the list of goals to the top 3 – 5 goals. 

3⁄4 Brainstorm a list of concerns/factors for each of the 

goals. 

3⁄4 Decide on the major concerns for each goal. 

Office of Migrant Education: 2001 New Directors Orientation 9
C O M P REHEN S I V E N E EDS ASSESSMENT 

Phase I: Explore “What Is” 

(continued) 

STEP 3: Determine Need Indicators 

3⁄4 Identify indicators that could verify that the 

concern/issue exist. 

[An indicator is data that can verify that a concern 

exists.]

STEP 4: Consider Data Sources 

3⁄4 Determine what kinds of information would be 

helpful to more clearly define the need and where 

to get the data. 

STEP 5: Decide on Preliminary Priorities 

3⁄4 Set the priorities of each concern as a focus in the 

gathering of data. 

Office of Migrant Education: 2001 New Directors Orientation 10
C O M P REHEN S I V E N E EDS ASSESSMENT 

Group Activity: Exploring “What Is” 

Indicator

Concern

Goal

Project Mapping can be used 

to provide a visual map of all 

of the concerns and indicators 

related to a goal. 

Office of Migrant Education: 2001 New Directors Orientation 11
C O M P REHEN S I V E N E EDS ASSESSMENT 

Group Activity: Exploring “What Is” (continued) 

GOAL: 

CONCERN (FACTORS): 

INDICATORS: SOURCES OF DATA: 

Office of Migrant Education: 2001 New Directors Orientation 12
C O M P REHEN S I V E N E EDS ASSESSMENT 

Office of Migrant Education: 2001 New Directors Orientation 13

III 

Make

Decisions

II 

Gather & 

Analyze Data

I 

Explore 

“What Is” 

Summarize

Findings

Identify & 

Analyze 

Causes

Prioritize 

Needs 

The task of the Phase II is to 

document the status, the “what is” of 

the concerns/issues, to compare the 

status with the vision of “what should 

be,” and to determine the magnitude of 

the needs and their causes. The major 

output from this phase is a set of needs 

statements in tentative order of

priority, based on the criticality of the 

need, and its causes. 

Gather Data

To Define 

Needs

Determine 

Target 

Groups
C O M P REHEN S I V E N E EDS ASSESSMENT 

Phase II: Data Gathering & Analysis 

,

.

A Need Statement

describes the gap, or 

discrepancy between “what 

is” and “what should be”

 

STEP 1: Determine Target Groups

3⁄4 Determine the scope of the needs 

assessment—e.g., all districts with eligible 

migrant children. 

3⁄4 Determine target groups—e.g., migrant 

students, parents, teachers, etc. 

STEP 2: Gather Data to Define Needs

3⁄4 Specify a desired outcome based on the 

program’s goals. 

3⁄4 Collect data to determine the current state 

of the target group in relation to the desired 

outcome. 

3⁄4 Formulate need statements based on 

discrepancies between current and desired 

outcomes. 

STEP 3: Prioritize Needs—Based on Data 

3⁄4 List concerns (need areas) in rank order of 

importance (e.g., School affliation, English 

Language, Course Completion). 

3⁄4 Within each area of concern, separately 

rank the identified needs (e.g., Within 

School affliation—Counselor-student 

contact, peer network, extra curricula 

activities). 

Office of Migrant Education: 2001 New Directors Orientation 14
C O M P REHEN S I V E N E EDS ASSESSMENT 

Phase II: Data Gathering & Analysis 

(continued) 

STEP 4: Identify & Analyze Causes 

3⁄4 Determine general and specific causes of 

high priority needs. 

In general, try to answer question “Why 

does this need persist?”

3⁄4 Identify the factors that are amenable to 

intervention with control of your program. 

STEP 5: Summarize Findings 

3⁄4 Summarize and document findings by need 

with an explanation of the major causes. 

3⁄4 Share the results with the Needs 

Assessment Committee, managers, and 

other key stakeholders. 

Office of Migrant Education: 2001 New Directors Orientation 15
C O M P REHEN S I V E N E EDS ASSESSMENT 

Tool: Identifying & Analyzing Causes 

(Cause and Consequence Analysis)

 To determine the priority of each need, examine both the difficulty to correct the need

and the degree of criticality. 

 Review the ratings in light of the magnitude of the discrepancy between the present 

and desired states. 

 Use results to provide data for consideration in setting priorities and moving to 

solution strategies. 

NEED CAUSES CONSEQUENCES

DIFFICULTY TO 

CORRECT 

[low, medium, high] 

CRITICALITY

1 2 3 4 5 

In column 1: List needs that were previously identified in the needs assessment. 

In column 2: List all possible “treatable” causes of each need (concern), itemized separately for 

each need. A given need may have more than one cause.

In column 3: List consequences if the cause is not removed and the need is not meet, also itemize 

separately for each need. There may be more than one consequence for each need. 

In column 4: Enter a rating (low, medium, high) of the difficulty of correcting the problem once it 

has occurred. 

In column 5: Enter a rating, on a scale of 1 to 5, of the degree of c iticality of the need if it is not 

met, with 5 being the most critical. 

r

Office of Migrant Education: 2001 New Directors Orientation 16
C O M P REHEN S I V E N E EDS ASSESSMENT 

Office of Migrant Education: 2001 New Directors Orientation 17

II 

Gathering & 

Analyze Data

III 

Make

Decisions

I 

Explore 

“What Is” 

It cannot be emphasized too strongly—

that a needs assessment is not complete 

unless plans are made to use the 

information in a practical way. 

Phase III is the bridge from the 

analysis to action—to use needs 

assessment findings. It answers 

important questions: What needs are 

the most critical? What are some

possible solutions? Which solutions 

are best? 

Propose 

Action Plan

Prepare 

Report

Select 

Solutions

Identify 

Possible 

Solutions 

Set Priority 

of Needs
C O M P REHEN S I V E N E EDS ASSESSMENT 

Phase III: Decision-making 

STEP 1: Set Priority of Needs

Criteria for assigning priorities among needs are based on several 

factors: 

 

3⁄4 The magnitude of discrepancies between current and target 

states; 

3⁄4 Causes and contributing factors to the needs; 

3⁄4 The degree of difficulty in addressing the needs; 

3⁄4 Risk assessment—the consequences of ignoring the needs; 

3⁄4 The effect on other parts of the system or other needs if a 

specific need is or is not met; 

3⁄4 The cost of implementing solutions; and 

3⁄4 Other factors that might affect efforts to solve the need. 

Set priorities in two stages: (a) broad areas, such as goals, concerns 

(needs) or target groups; and (b) critical needs within each area. 

STEP 2: Identify Possible Solutions 

3⁄4 Set criteria (or standards) for judging the merits of alternative 

solution strategies. 

At a minimum, proposed solutions should meet the criteria of

effect on causes, acceptability, and feasibility (includes 

resources). 

3⁄4 Generate and examine potential solutions. In examining 

possible solutions—review and document research and 

evaluation data that supports the merits of each alternative. 

What Is Possible 

Solutions 

What Should 

Be 

Office of Migrant Education: 2001 New Directors Orientation 18
C O M P REHEN S I V E N E EDS ASSESSMENT 

Phase III: Decision-making 

(continued) 

STEP 3: Select Solutions 

3⁄4 Evaluate and rate each solution separately against the 

evaluation criteria. 

3⁄4 Consider whether each of the high-ranking solutions will drive 

toward the contemplated change or whether they will push in 

the opposite direction, preventing change. 

3⁄4 On the basis of all the information, select one or more solutions 

for each need area. 

STEP 4: Propose Action Plan 

3⁄4 The plan should include descriptions of the solutions, rationale, 

proposed timelines, and resource requirements. 

STEP 5: Prepare Report 

At the end of this phase, a written report should be prepared to 

communicate the methods and results of the needs assessment to 

decision-makers, policymakers, and key stakeholders. 

The report should include: 

3⁄4 Description of the needs assessment process; 

3⁄4 Major outcomes (identified needs); 

3⁄4 Priority Needs (and criteria used to determine such priorities);

3⁄4 Action Plan (with the data and criteria used to arrive at the 

solution strategies); and 

3⁄4 Recommendations for future needs assessments. 

Office of Migrant Education: 2001 New Directors Orientation 19
C O M P REHEN S I V E N E EDS ASSESSMENT 

Review of the Three-Phases of Needs Assessment 

Set up management plan for 

needs assessment 

Select target group(s) Prioritize needs 

Conduct preliminary 

investigation of “what is” 

Gather data on need indicators 

to formulate need statements 

(describing the discrepancy

between “what is” and “what 

should be”) 

Identify potential solution 

strategies to meet the needs 

Identify major concerns or 

factors 

Prioritize needs Evaluate alternative solutions 

Determine indicators of need 

in each area of concern 

Perform causal analyses Select one or more solutions 

Identify the best potential 

sources of data to fully define 

each need indicator 

Identify factors within 

program control 

Propose an action plan to

implement the solutions 

Set preliminary priorities for 

each need indicator (by level) 

to focus data gathering 

Analyze and interpret all data, 

summarize findings 

Prepare written reports and 

oral briefings 

Outcome:

Preliminary plan for data 

collection in Phase 2 

Outcome:

Criteria for action based on

high-priority needs 

Outcome:

Action plan(s), written and 

oral briefings, and final report 

II 

Gather & 

Analyze Data

III 

Make

Decisions

I 

Explore 

“What Is” 

Office of Migrant Education: 2001 New Directors Orientation 20
C O M P REHEN S I V E N E EDS ASSESSMENT 

Needs Assessment in a Continuous 

Improvement Cycle 

Implement

Consider placing a focus on 

service providers or system

resources in updating the basic 

student needs assessment. 

Improve

Evaluate 

Evaluate

Implement 

Plan Implement 

Evaluate 

Improve 

Improve

Plan

Update

Needs

Assessment

Update 

Needs 

Assessment

Conduct 

Needs 

Assessment

Plan

Office of Migrant Education: 2001 New Directors Orientation 21
C O M P REHEN S I V E N E EDS ASSESSMENT 

Summary 

 There is no one correct needs assessment model or 

procedure. 

 The active use of a Needs Assessment Committee

is one important method for obtaining expert 

advice and gaining commitment to the process and 

using the results. 

 Make sure needs focus on desired outcomes and 

are listed as the gaps between “what is” and “what 

should be.” 

 Before you gather data, spend the time to 

investigate what is known about the needs of the 

target group—to identify all of the concerns. 

 Develop measurable need indicators to guide your 

data collection process. 

 Perform a causal analysis—Ask “why” does this 

need still exist? To solve a problem, planners must 

understand it first. 

 Share information with decision makers, 

policymakers, and stakeholders throughout the 

needs assessment process. Frequent 

communication with these groups is important for 

the “buy in” needed to use the needs assessment 

results. 

 Document the research base for potential solutions. 

 Prepare a written report that describes the methods 

and results of the needs assessment.

Office of Migrant Education: 2001 New Directors Orientation 22
C O M P REHEN S I V E N E EDS ASSESSMENT 

Reflection

What are three of the top challenges you face as you 

prepare to plan and manage a statewide needs assessment 

for your program?

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Office of Migrant Education: 2001 New Directors Orientation 23
C O M P R E H E NSI V E NEE D S A S SES S MEN T - - APPE NDIX 

TYPES OF NEEDS ASSESSMENT DATA 

TYPES OF “STUDENT” DATA ELEMENTS COLLECTED FOR 

MEP NEEDS ASSESSMENT PURPOSES 

(SAMPLE OF 13 STATES )

TEST SCORES SCHOOL INVOLVEMENT FAMILY BACKGROUND

State Assessment Scores Affiliation with teacher(s) Residency Data

Standardized Tests Scores Special Education (IEP) Homebase State/District 

Norm-Reference Test Scores Free Lunch Participation Educational Attainment of Parents 

Criterion Reference Test Scores Discipline Record Educational Attainment of Siblings 

Cognitive Ability Test Score Personal Relationships (i.e., 

friends) 

Language Spoken in the Home 

Language Proficiency Ratings 

(English & Primary Language Other 

than English) 

Enrollment/Placement in Other 

Programs (Title I, ESL, Bilingual, 

Even Start, Preschool, etc.) 

Language Proficiency of Parent

Portfolio Assessment Ratings Gifted & Talented Access to Transportation 

Teacher Survey of Basic Skill Needs Interest in Adult Basic Education Level of Parental Involvement

Early Childhood Development Test Interest in GED Mobility (Number of Moves) 

Early Childhood Development

Survey 

Interest in Enrollment in Public 

School System 

Family Income 

Computer/Technology Literacy 

Skills 

Interest in Job Training Shelter/Food/Clothing 

Abuse/Neglect

ACADEMIC PROGRESS

PERSONAL 

CHARACTERISTICS

Family Conditions (e.g., foster care, 

married teen, guardian, etc.) 

Age-Grade Discrepancy Self Concept Rating 

Grade Retention Self Esteem Rating HEALTH INDICATORS

Attendance Record Special Talents/Strengths 

Number of Interruptions to 

Education During Regular School

Year 

Social Behavior Assessment 

Inventory Score 

Medical Screening Result 

Number of TASS Objectives 

Mastered 

Feeling, Attitudes, Behavior Scale 

Index 

Dental Screening Result 

Last Grade Completed Education Goals Visual Screening Result 

Grades Career Goals Auditory Screening Result 

Credits Accrued for Graduation Hours of Employment Immunizations

Number of Failed Courses Library Card & Use Primary Health Care Access 

Dropout Status Legal problem TB Test 

Recommendation for Counseling Most Recent Physical Exam 

Office of Migrant Education: 2001 New Directors Orientation 24
C O M P R E H E NSI V E NEE D S A S SES S MEN T - - APPE NDIX 

RESOURCES 

SUGGESTE D READINGS 

MCKILLIP, Jack. Needs Analysis: Tools for the Human Services and Education. 1987. 

KAUFMAN, Roger., and Fenwick W. English. Needs Assessment—Concept and Application. 

1979

KAUFMAN, Roger. Strategic Planning Plus: An Organizational Guide. 1992. 

WITKIN, Bell, R., and James W. Altschuld. Planning and Conducting Needs Assessments: 

A Practical Guide. 1995. 

Office of Migrant Education: 2001 New Directors Orientation 25