The problem is not that it's hard to measure. The people is that teachers actually have very little ability to make a marginal impact on their students though their performance, except at the very tail ends of the distribution.
In other words, structural factors that teachers can't directly control, like family support or district curriculum standards, have a much larger impact on student performance than teaching quality does. (Except, of course, for the exceptionally bad teachers, but that's better addressed by firing them than by adjusting the compensation strategy).