Professional Documents
Culture Documents
Expectations Gap
2006
An Annual 50-State Progress Report on
the Alignment of High School Policies
with the Demands of College and Work
Executive Summary
—3—
Introduction
—5—
Conclusion
— 28 —
Endnotes
— 31 —
Acknowledgments
— 32 —
While states have made progress over the past year aligning Growing Number of States Have Policies To Ensure That
Students Graduate College and Work Ready
high school standards and course requirements with college
and work, less progress has been made with high school
Aligned standards 5 30
assessments. Very few states have high school tests in place
Rigorous graduation
that are rigorous enough to signal whether students are ready requirements
8 12
for college-level work. As a result, colleges largely ignore the High school tests 6 8
used by colleges
results of those tests and instead administer their own admis-
P–16 longitudinal
sions and placement tests. This sends a mixed set of messages data system 3 31
dents in high school are used for college admissions Source: Achieve Survey/Research, 2006.
For an overview of the policies in place in each state, see page 29.
and/or placement decisions. EIGHT ADDITIONAL STATES
plan to do so.
• THIRTY-ONE ADDITIONAL STATES report that they are in the
process of creating a P–16 data system or linking their
• EIGHT STATES have tied college scholarships or financial aid
existing K–12 and higher education data systems.
to student performance on high school assessments, and
FOUR OTHERS plan to establish such financial incentives.
• FOUR STATES (Indiana, New York, North Carolina and
Data and Accountability Systems Oklahoma) hold high schools accountable for improving
the college and work readiness of their students. NINE
At the Summit last year, governors and other education offi-
MORE plan to do so.
cials agreed that the overriding goal for high schools should
be increasing the percentage of incoming 9th graders who
Once states have longitudinal data systems and more rigorous
graduate ready for college and work. No state has yet made
high school assessments in place, they will be in a position to
this the centerpiece of its high school accountability system,
make college and work readiness a key factor in high school
although a number are moving in this direction.
accountability systems.
The ability of states to hold high schools accountable for Moving Forward
improving student transitions to college and work depends
Over the past year, states have made progress closing the
first on the quality of their assessments and data systems.
expectations gap. Overall, however, much work remains. In
States need P–16 longitudinal data systems with the capacity
the year ahead, we expect the states that are most committed
to track student progress from high school through postsec-
to this agenda will continue to move forward aggressively. We
ondary education.
also hope that the example these states are setting will spur
other states into action.
• THREE STATES (Florida, Louisiana and Texas) report having
a P–16 longitudinal data system in place today.
4 Achieve, Inc.
Introduction
In February 2005, Achieve and the National Governors The Summit helped focus the nation’s attention on how our
Association (NGA) sponsored a National Education Summit schools, our students and our economy intersect. The U.S.
on High Schools at which governors from 45 states, business economy can no longer absorb employees with inadequate
leaders and education officials addressed a critical and growing educations into low-skill jobs, as it has in past decades. Those
problem in the American education system: High schools are
not preparing all students for success at postsecondary institu-
tions and in the more demanding workplace. Too many stu- Too Many U.S. Students Drop Out of Education Pipeline
dents drop out of the education pipeline, leaving high school Out of every 100 9th graders, the number who …
100
without earning a diploma, failing to enroll in college or a post-
secondary training program, or never earning a postsecondary 80
degree or other credential.1 A disturbingly high number of
60 68
U.S. high school students — some 30 percent nationally —
never even graduate. For black and Latino students, those 40
40
dropout rates rise to 50 percent.2 Without at least a high
20 27
school diploma, their prospects for meaningful employment 18
are slim and getting slimmer. Even if they do earn a diploma 0
Graduate Immediately Are still enrolled Graduate
and enroll in college or enter the workforce, many high school high school enroll in sophomore college on
on time college year time
graduates lack the knowledge and skills necessary to succeed.
Source: National Center for Public Policy and Higher Education, Policy Alert,
April 2004. Data are estimates of pipeline progress rather than actual cohort.
More Than Two-Thirds of New Jobs Require Some jobs no longer exist or are fast disappearing. Jobs that pay
Postsecondary Education well and support a middle-class lifestyle require higher-level
No high school mathematics and communications skills than ever before.
10% diploma
Even those students who attain a high school diploma will
Bachelor’s
degree 31% High school
have a hard time achieving career success without college
22% diploma experience or postsecondary training. At least some postsec-
ondary education is needed for about 67 percent of new jobs
in today’s market, and that percentage is expected to rise in
Some
postsecondary 36%
coming years.3 If U.S. workers cannot meet the demand,
highly skilled jobs will go to other countries such as India and
China — a move that will diminish U.S. competitiveness and
affect the living standards of millions of citizens.
Source: Carnevale, Anthony P., and Donna M. Desrochers, Standards for What?
The Economic Roots of K–16 Reform, Educational Testing Service, 2003.
College Professors and Employers Report Significant High school graduates themselves report that they were not
Percentage of High School Graduates Unprepared
well prepared for their next steps. Thirty-nine percent now
100%
enrolled in college and 46 percent in the workforce believe
Percentage of recent high
Knowing What They Know Today, Many Graduates Report At the 2005 Summit, governors and business and education
They Would Have Worked Harder in High School leaders agreed to an action agenda for revitalizing America’s
100% high schools. The agenda called on states to raise academic
standards and graduation requirements, build stronger data
Percentage of recent high
80%
and measurement systems, better prepare teachers, redesign
school graduates
77%
60%
65% high schools, and hold both the K–12 and postsecondary sys-
tems accountable for improved performance. The Summit
40%
sparked several multistate initiatives that reinforce each other:
20%
0%
• TWENTY-TWO STATES are working with Achieve in the
Graduates who Graduates who American Diploma Project (ADP) Network to address
went to college did not go to
college the expectations gap in high schools. Achieve launched
this Network at the Summit at the urging of the gover-
Source: Peter D. Hart Research Associates/Public Opinion Strategies, Rising to
nors in 13 states. Since then, nine additional states have
the Challenge: Are High School Graduates Prepared for College and Work?
prepared for Achieve, Inc., 2005. joined. These states are working to strengthen high
6 Achieve, Inc.
school standards, curricula, assessments, and data and December 2005 on a key subset of the policies from the
accountability systems so that more students graduate Summit action agenda — those focused on academic standards,
ready for college and 21st-century jobs. curricula, assessments, and data and accountability systems.
The Summit agenda also focused on other important areas,
• TWENTY-SIX STATES are participating in NGA’s High such as redesigning high schools and improving teacher qual-
School Honor States Grant Program, which is providing ity, but these were not part of Achieve’s survey.
$23.6 million in grants to support governor-led initia-
tives to reform high schools and improve college-ready Achieve sent the online survey to K–12 education chiefs and
graduation rates. Recipients of these grants will follow governors’ education policy advisers in all 50 states. The survey
the blueprint of the Summit action agenda to implement asked specifically about the progress states have made aligning
both comprehensive high school reforms and more focused standards with postsecondary and workplace expectations,
efforts designed to increase rigor in
high schools, raise participation in
Advanced Placement courses and
exams, and improve low-performing American Diploma Project Network
high schools. The 2005 National Education Summit on High Schools brought the importance
of a solid high school education to the forefront of the nation’s education and
• TEN NATIONAL ORGANIZATIONS economic agenda. As a result, 22 states — which educate a total of 48 percent
launched the Data Quality of the nation’s high school students — now have signed on to the American
Campaign to provide better infor- Diploma Project (ADP) Network. In these states, governors, state education offi-
mation to state leaders on building cials, business executives and higher education leaders are working together to
high-quality data systems — a key raise high school standards, strengthen assessments and curriculum, and better
component of the Summit action align expectations with the demands of postsecondary education and future
agenda. The U.S. Department of employment. The ADP Network’s ambitious agenda promises to improve the
Education’s Institute of Education preparation of all students for success in college and the workplace.
• Give high school students the excellent teachers and principals they need by
The policy agenda that emerged from
ensuring teachers and principals have the necessary knowledge and skills
the Summit was substantial, and it will
and by offering incentives to attract and retain the best and brightest to the
take states several years to implement.
neediest schools and subjects.
Achieve plans to conduct this survey
• Hold high schools and colleges accountable for student success by setting annually, reporting on states’ progress
meaningful benchmarks, intervening in low-performing schools and toward implementing a fully integrated
demanding increased accountability of postsecondary institutions. set of policies that prepare students for
• Streamline educational governance so that the K–12 and postsecondary
success in college and the workplace.
systems work more closely together.
Achieve also will include relevant stu-
dent performance data in future reports.
8 Achieve, Inc.
Align High School Standards with Real-World Expectations
For more than a decade, states have been developing and revis- Recognizing that anchoring standards in this way is a rela-
ing academic standards intended to articulate the core knowl- tively new approach, Achieve also asked states that have not
edge and skills that students should learn from kindergarten completed this work whether the groundwork for such an
through grade 12. These standards play an important role in alignment has been laid. We wanted to know whether state
our education system: They provide a foundation for decisions postsecondary systems or institutions have clearly defined the
on curriculum, instruction and assessment, and they communi- skills required for entry into credit-bearing college courses in
cate core learning goals to teachers, parents and students. mathematics and English and whether leading employers or
business organizations have defined the mathematics, reading
At the Summit one year ago, governors and education leaders and writing skills necessary for success in good jobs.
acknowledged that their work on setting academic standards
was not yet complete. Although every state had already set Achieve was limited in our ability to confirm state claims of
standards, very few had based those expectations on a careful alignment. We did not review the standards in each of these
analysis of the skills students need to be successful in fresh- states to judge their rigor, nor did we poll postsecondary and
man courses in college and in the 21st-century workplace. business leaders to confirm that the standards meet their
Without a strong connection between high school standards needs. Both steps should be undertaken in a state to ensure
and the expectations of both postsecondary institutions and that the high school standards are aligned with business and
employers, the high school diploma will remain a credential postsecondary expectations. We also chose not to apply too
of little value. narrow a set of criteria to the alignment processes states used.
States have taken very different approaches, and although we
Aligning high school standards with college and workplace think some have been more thorough than others, we recognize
expectations can be accomplished only with the formal multiple pathways to this common goal. There were a few
involvement of the postsecondary and business communities. cases, however, in which the states’ explanations for how they
Postsecondary institutions must clearly define the skills that aligned their standards did not meet Achieve’s criteria, and so
high school graduates need to be ready to take credit-bearing, we did not report those states as having achieved alignment.
non-remedial courses, and business leaders likewise must
articulate the skills that graduates need to be successful and What Achieve Found
advance in their careers. High school standards then need to
At last year’s Summit, the issue of alignment was just emerg-
be anchored in these real-world expectations.
ing as an important topic — very few states had taken serious
steps to align their K–12 and postsecondary expectations.
What Achieve Asked Over the past year, support for this work has crystallized and
In our survey, Achieve asked the states whether their high tremendous progress has been made. Thirty-five states report
school English and mathematics standards have been aligned that they have aligned, are in the process of aligning or plan to
with postsecondary and workplace expectations and whether align their K–12 standards to postsecondary and business
the business and postsecondary communities have confirmed expectations (see map, page 10). For an issue that only recently
that the high school standards are in alignment. This second emerged, such widespread action represents a significant step
step is important because it signifies that business and higher forward in standards-based reform.
education are willing to stand behind the standards and ver-
ify that the standards reflect their expectations.
10 Achieve, Inc.
postsecondary and business leaders to define the skills high school. For this to occur, postsecondary and business
young people need to be successful after high school, and leaders must step forward and define their needs, and these
they are filling any gaps in their high school standards to real-world expectations must then become the anchor for the
ensure alignment. These states expect to have the align- state’s K–12 standards.
ment process complete within the next six to 12 months.
In each one, Achieve will conduct an external review of Providing a Clear Target for College Readiness
their standards in comparison with the ADP benchmarks. A growing number of states are giving postsecondary institu-
tions and business a formal role in establishing an anchor for
• An additional NINE STATES report that they plan to begin their K–12 standards. In Kentucky, for example, postsecondary
an alignment process in the future, bringing the total to institutions across the state — including public and private
35 states that have taken or will soon take this vital step. four-year institutions, the Community and Technical College
System, and the Adult Education system — worked together
• FIFTEEN STATES have not adequately aligned their high to create a common set of college readiness standards in
school standards with postsecondary and workplace English and mathematics, using the ADP research as a guide.
expectations nor do they report plans to do so in the The state’s K–12 officials then used those college-ready
future. Of those states, a few may have the building benchmarks to revise the high school standards. Achieve
blocks to initiate this process if they choose to take reviewed a draft of the new high school mathematics stan-
advantage of them. For example, Iowa and New Mexico dards and found them to be relatively well aligned with our
report that their postsecondary systems have defined the own ADP college- and work-ready benchmarks, suggesting
knowledge and skills first-year college students need for that the Kentucky alignment process has been successful.
entry into credit-bearing courses in mathematics and
English. Iowa and Missouri have likewise collected infor- In Ohio, a statewide committee of higher education faculty
mation from employers about the fundamental reading, and campus leaders from public and private postsecondary
writing and mathematics skills that new employees need institutions as well as K–12 representatives and state
for success in entry-level high-skilled jobs. education staff is establishing mathematics and English
expectations for college readiness — the knowledge and skills
Challenges States Face students need to be ready for credit-bearing courses.
Coordinated by the Ohio Board of Regents, this initiative will
Engaging Postsecondary and Business Leaders in align Ohio’s P–12 academic content standards with college-
Defining Expectations entry expectations. Once completed, this should provide Ohio
For states that are moving through the alignment process to high school students with clear targets for college entry and
be successful, it is critical that they formally engage their post- success.
secondary and business communities. The K–12 academic
standards that most states have developed over the past decade Formal involvement of the postsecondary community in set-
generally reflect a consensus among K–12 teachers in each dis- ting K–12 standards can be particularly difficult to accom-
cipline about what is desirable for students to learn, but not plish in states with decentralized postsecondary systems or
necessarily what is essential for them to know to be prepared multiple systems. Institutions and systems in these states
for further learning, work or citizenship after completing remain autonomous. They set their own standards for admis-
12 Achieve, Inc.
Align High School Graduation Requirements with College
and Workplace Expectations
At last year’s Summit, governors and state education leaders What Achieve Asked
discussed the importance of raising graduation course require-
In this year’s survey, Achieve asked states whether they had
ments to increase curricular rigor and improve the prepara-
made any changes in their graduation requirements since the
tion of students for postsecondary education and work. The
Summit or whether they have plans to do so in the future. We
most commonly used criterion for awarding a high school
were particularly interested in determining whether states
diploma in the United States today is course-taking require-
plan to align their course requirements with college- and
ments. Nearly every state requires students to study specific sub-
work-ready standards. Because course content matters more
jects for a certain number of years or to take specific courses
than a course title, Achieve also asked states about the meth-
to graduate.
ods they use to ensure the quality, rigor and consistency of
high school courses across schools and districts.
Prior to the Summit, Achieve conducted a review of high
school course requirements in all 50 states and concluded that
Our focus in this report is on course requirements in English
very few states set their requirements at a level that will
and mathematics because there is clear research that all stu-
ensure graduates are prepared for success in college and the
dents need a core set of skills in those subjects to be success-
workplace. Achieve’s research into the mathematics and
ful — whatever path they choose after high school. Achieve
English skills that students need suggests that for high school
recognizes that a strong high school curriculum also will
graduates to be adequately prepared, they need to have taken
include challenging courses in science, social studies, the arts
four years of challenging mathematics, including a course
and foreign languages. However, in this report we focus only
beyond Algebra II, and four years of rigorous English. Only
on English and mathematics.
two states’ graduation requirements approached this standard
one year ago.
What Achieve Found
There is clear and compelling evidence that the level of the Since Achieve published the findings of its first course-
courses students take in high school is one of the best predic- requirements survey prior to the 2005 Summit, there has
tors of their success in college and the workplace. This is been significant progress in the number of states moving
particularly true in mathematics, where data show a strong toward requiring all students to complete a college- and
correlation between taking higher-level mathematics courses work-ready curriculum. A number of states have raised grad-
in high school and achieving success in college and employ- uation requirements since the Summit, with six of those states
ment in high-growth, high-performance jobs.7 Rigorous raising them to the college- and work-ready level.
course taking matters for all students, but it is particularly
important for students from disadvantaged backgrounds. • EIGHT STATES have enacted college- and work-ready grad-
Taking a challenging high school curriculum, including but uation requirements. One year ago, only Arkansas and
not limited to Algebra II, cuts in half the gap in college com- Texas had enacted graduation requirements for all stu-
pletion rates between white students and African American dents at the level of rigor that Achieve considers college
and Latino students.8 and work ready — four years of rigorous English and
Most of these states have taken a similar approach to the • TWELVE STATES have plans to raise graduation course
new diploma requirements, following the Texas example. requirements to a college- and work-ready level in the
First, there is a phase-in period of one to two years, with future. If all succeed, 20 states will have aligned diploma
the requirements first taking effect for the graduating requirements with college and work expectations.
class of 2010, 2011 or 2012.10 Second, there are provi-
sions that allow parents to opt their children out of the • Since last year’s Summit, SEVEN ADDITIONAL STATES
college- and work-ready courses of study, provided they report having raised their graduation requirements.
sign a waiver acknowledging the risks of allowing their Although their new requirements are not yet at the
children to study a less rigorous curriculum.11 Although college- and work-ready level, these states took action
technically not a requirement for all students, this after recognizing that their minimum course require-
approach has a number of virtues. It sets and communi- ments were too low.
14 Achieve, Inc.
• TWELVE STATES have developed and EIGHT plan to develop accuracy and sophistication of their data systems to provide
end-of-course tests for at least some core subject courses accurate measures of student progress while also providing
to measure whether students have mastered the essential early warning indicators of students at risk of dropping out.
knowledge and skills.
Ensuring Capacity To Teach More Rigorous
Courses
More States with College- and Work-Ready Diploma As states raise their graduation course requirements, they will
Requirements Since the 2005 High School Summit
need to plan for and address significant capacity challenges.
Prior to 1st anniversary Plan to raise
Summit of Summit requirements Perhaps the most daunting challenge is ensuring there is a
sufficient number of teachers who are prepared to teach more
rigorous courses. Students cannot meet higher standards
2 8 20
Number of states without dedicated, well-prepared teachers. Nationally, 25
Source: Achieve Survey/Research, 2006. percent of secondary school classes in core academic subjects
are taught by teachers lacking even a college minor in the
Challenges States Face subject.12 The situation is worse in mathematics and science
States that have raised or are considering raising graduation and in high-poverty urban and rural schools; unfortunately,
requirements will have to address a series of issues to be suc- the schools and students who most need well-prepared and
cessful, from academic supports for students to capacity dedicated teachers are the least likely to get them. Further,
building for teachers. States with strong traditions of local more than half of entering high school students in the largest
control also will need to work through the political challenges urban districts are reading at the 6th grade level or below, yet
associated with moving to a set of statewide requirements. few high school teachers have been trained to teach struggling
readers in their subject areas.13
Simultaneously Raising Graduation
Requirements and Graduation Rates
Tackling this challenge will take investments in, and changes
Although there is significant evidence that taking more chal- to, teacher preparation, compensation, recruitment, reten-
lenging courses in high school gives students a major advan- tion and assignment policies and practices. Teacher licensure
tage in college and the workplace, states need to ensure that as requirements must reflect the more rigorous content teachers
they raise graduation requirements, they simultaneously raise will be asked to teach, and teacher preparation programs
graduation rates. There are a number of strategies states can should be redefined to reflect new teacher standards.
and should use to reach this goal. These include, for example, Alternative certification programs must provide pathways
strengthening middle school programs to better prepare stu- into the profession for mid-career professionals with subject
dents for a rigorous high school curriculum, providing acceler- matter expertise who are prepared to enter the teaching force.
ated programs and support services for 9th graders who are States and districts must work together to create the incen-
struggling academically, and financing extended learning time tives and policy environment that will enable school districts
to provide extra help to students who need it throughout high to attract or assign and retain the best teachers in the schools
school. States and districts also need to create curricula that are where they are needed most. States and local districts also
more engaging to students who may not respond to traditional need to reconsider how they use existing professional devel-
courses without sacrificing increased rigor. As states and dis- opment dollars to ensure they are focused appropriately and
tricts move forward, their success, in part, will depend on the used effectively.
16 Achieve, Inc.
high school students would need to be ready to compete Pennsylvania school districts participate in Project 720,
for high-skilled, well-paying jobs in the 21st-century including some of the largest districts in the state. The
workplace. Their research indicated that all of Michigan’s governor has appointed a commission to study a range of
students need to complete a curriculum consistent with additional policy options for improving performance in
the recommendations of the ADP, and few school districts high schools, including how to address high school gradu-
in the state required that of their students. At the encour- ation requirements. The commission is expected to make
agement of the governor and with the support of the its recommendations in December 2006.
business community, the State Board of Education passed
a resolution calling for the establishment of the state’s • In 2003, the Colorado Commission on Higher Education
first set of graduation course requirements — the established minimum admission requirements to enter
Michigan Merit Core — to go into effect for the 9th all public four-year institutions. This has caused local
graders entering high school in fall 2006. The Merit Core school boards to revisit their high school graduation poli-
curriculum includes four years of grade-level English lan- cies. The governor recently appointed an Education
guage arts and four years of mathematics through at least Alignment Council to make recommendations on align-
Algebra II. The state board’s action now awaits final ing high school standards with college and workplace
approval in the Michigan Legislature. demands. Statewide graduation requirements are among
the policy levers the council is considering.
• Officials in Rhode Island likewise recognized that the state
must play more of a leadership role in setting graduation In these and other states grappling with local control issues,
requirements, and they passed statewide requirements policymakers and education officials have an important deci-
that include four years of English and four years of mathe- sion to make: Can school districts be relied on to raise expec-
matics. These requirements provide some local flexibility tations on their own? How long will it take for each district
by not specifying which courses students should take; dis- to do this, and can the state afford to wait that long? In
tricts, however, are required to ensure that the course Michigan, the governor and education leaders decided that the
selections align with the state standards. state could not afford to wait. They concluded that too many
students are ill prepared for their futures and that the impact it
• Pennsylvania, another state with a strong tradition of local is having on both their lives and the state’s economy requires
control, has so far chosen to challenge districts to adopt the state-level action. All students will need to take courses
more rigorous graduation requirements rather than man- traditionally reserved for the college bound if they are going
date them. Through an initiative called Project 720, the to have a chance at a good job that pays well and allows for
state is helping a set of districts voluntarily implement career advancement.
more rigorous curricula and graduation requirements,
hoping they will serve as models for the rest of the state. The remaining local control states and the states that have set
Project 720 districts will require all students to complete minimum course requirements at a level below college and
a rigorous college- and career-prep core curriculum that work readiness will need to decide whether leaving such
includes four years of English and four years of mathe- crucial decisions to the judgment of local school boards is a
matics that include Algebra I, Geometry, Algebra II and sufficient strategy for preparing all students for success in the
a fourth higher-level course. Nearly 20 percent of new economy.
States should give all high school students an assessment The good news is that a growing number of states are plan-
before their senior year that is capable of measuring readiness ning to build a college- and work-ready assessment into their
for credit-bearing postsecondary courses and 21st-century high school testing systems. The 22 states that make up the
jobs so that high schools will be able to help fill in any learn- ADP Network have committed to do this over the next sev-
ing gaps before students graduate. Such interventions will eral years. Some are considering a series of end-of-course tests,
reduce the need for remediation and increase the likelihood of including tests in upper-level courses, such as Algebra II, that
success in postsecondary education and the workplace. In are prerequisites for college. Other states are considering
18 Achieve, Inc.
adapting existing 11th grade assessments to include more High School Regents exams for course placement in state
rigorous content. Still others are incorporating college community and technical colleges. The City University
admissions tests such as the ACT and SAT into their of New York is already using the Regents exams in math-
statewide testing system because these are measures that ematics and English for this purpose. To be admitted into
already have credibility in the postsecondary community. credit-bearing courses, applicants for freshman and trans-
fer admission must demonstrate minimum proficiency in
Whichever approach states take, it is important that they reading, writing and mathematics by meeting threshold
complete their standards alignment work before they build scores on the SAT, ACT or New York State Regents
new college- and work-ready assessments. With new stan- examinations.
dards in hand, they will be better positioned to develop new
assessments — or modify existing assessments — to measure • EIGHT STATES (Arizona, Arkansas, Georgia, Maine,
student mastery of the knowledge and skills valued by post- Massachusetts, Michigan, Missouri and Nevada) have tied
secondary institutions and employers. Just as important, the scholarships or financial aid to student performance on
standards can help states ensure that their curriculum is high school assessments, and FOUR OTHERS (Mississippi,
aligned with these expectations. New York, North Carolina and Washington) plan to estab-
lish such financial incentives. Because of the substantial
Aligning High School Tests with Postsecondary unmet needs of low-income students, it is important that
Expectations
states target merit-based incentives to students with the
Although Achieve did not review the content of each state’s greatest financial needs, as part of broader state efforts to
assessments, we did ask whether postsecondary institutions increase college affordability.
use the results of the high school tests for important decisions
such as admissions, course placement, financial aid or
scholarships. This is one of our best proxies for determining Few States Use High School Tests for Postsecondary Purposes
Use results Plan to use results
whether high school tests measure what matters to colleges
16
and universities.
8
12
Number of states
4
• Only HALF THE STATES report student high school test
results on high school transcripts. Providing colleges and 8
8
employers access to assessment results is the first step in
6
encouraging them to make use of those results as a factor 4
and Texas) report that statewide assessments given to stu- Source: Achieve Survey/Research, 2006.
dents in high school are used for college admissions
and/or placement decisions, and EIGHT ADDITIONAL Grade Levels States Are Testing In
STATES (Connecticut, Indiana, Michigan, Mississippi, New In 2004, Achieve analyzed high school graduation exams in
York, North Carolina, Pennsylvania and Rhode Island) plan six states to determine how well they measure college- and
to do so. New York state is considering using the state work-ready skills. We found that in their present forms these
For the results of high school assessments to be useful to post- The results of Achieve’s survey indicate that 21 STATES admin-
secondary institutions and employers, states must administer ister an 11th or 12th grade assessment in reading, 15 in writ-
ing and 23 in math or at the end of math courses such as
Algebra II. Only 11 STATES (California, Georgia, Indiana,
High School Graduation Tests Have Gone from Emphasizing Maine, Nebraska, North Dakota, Pennsylvania, Texas, Utah,
Arithmetic to Emphasizing Algebra and Geometry …
Virginia and Wyoming) administer upper-level high school
40% assessments in all three areas.
Percentage of total points on tests
38%
30% 31% States with 11th or 12th grade mathematics, reading or writ-
ing assessments — or Algebra II and higher end-of-course
20%
19% mathematics tests — have the potential of aligning these
10% 12%
assessments with the expectations of postsecondary institu-
tions and employers. States without assessments in the upper
0% high school grades should consider additional measures to
Number Algebra Geometry and Data
Measurement assess the college and work readiness of their 11th and 12th
graders.
… But the Tests Are Tilted Heavily Toward Low-Level Skills,
Not What Is Required in College and Work
75%
Challenges States Face
Percentage of total points on tests
20 Achieve, Inc.
nity uses for placement and admissions and how they differ SAT statewide in spring 2006. The idea is to give every stu-
from the existing state high school exams. The goal should be dent in the state these college admissions exams as part of the
to streamline these exams and incorporate into the high regular state assessment. The message to students is that the
school assessment system a reliable measure of college and option of attending a two- or four-year college is open to all.
work readiness. Because these assessments already have credibility in the post-
secondary community, the results can be used for placement
College and work readiness assessments do not need to have and admissions. The challenge with this strategy is to ensure
high stakes attached to be useful to students. They do, how- that the exam is aligned with the state high school standards
ever, need to be recognized and valued by the postsecondary and fits into the broader high school assessment system. This
community, which is why state K–12 leaders need to involve first requires an alignment study and may lead states to aug-
postsecondary leaders in the assessment development process. ment the ACT and SAT with additional questions.
States are taking several different approaches to better align- A growing number of states are pursuing end-of-course tests
ing their high school assessment systems with postsecondary as a strategy for measuring college- and work-ready knowl-
expectations. Some are considering adding questions to exist- edge and skills. The benefit of this approach is that these tests
ing high school assessments to round out those tests and make can be tied closely to the curriculum, providing helpful infor-
them adequate measures of college readiness. California’s edu- mation to schools and parents about student performance in
cation department took this approach working with the key courses. End-of-course tests also provide a way to ensure
California State University (CSU) system, adding questions to consistency of course content and rigor across the state — a
the 11th grade standards-based tests in English and mathe- big concern in states that are raising course requirements for
matics to more accurately measure the skills CSU faculty say graduation.
incoming freshmen need to be successful in entry-level courses.
Students who score well on that 11th grade test and continue Going Beyond Large-Scale Assessment
to take challenging courses in their senior year of high school As critical as they are, large-scale assessments cannot measure
are exempt from the CSU-required mathematics and English everything that high school graduates need to know and be
placement tests. The modified 11th grade exams also serve to able to do. Readiness for work and postsecondary education
alert students whether they need additional preparation for requires the ability to make effective oral presentations and
college in time to adjust their senior-year coursework. to carry out research projects, but these cannot be assessed on
a paper-and-pencil test. States should work with local dis-
Incorporating Traditional College Admissions
tricts to incorporate research projects, oral exams and other
Tests
performance assessments into district assessment and instruc-
Other states are incorporating traditional college-entrance tional programs.
exams into their high school assessment system. Colorado and
Illinois have done this with the ACT; Michigan will begin
doing so in spring 2007. Maine will begin administering the
The ability of states to hold high schools accountable for • Are high schools held accountable for increasing the per-
improving student transitions to college and work depends centage of students who graduate with a college- and
first on the quality of their assessments and data systems. work-ready diploma?
States need more reliable measures of college and work readi-
ness, including more robust high school assessments as • Are high schools held accountable for improving the col-
discussed earlier. They also need a longitudinal data system lege enrollment rates of their graduates and decreasing
with the capacity to track student progress from high school the percentage of graduates who go to college and enroll
through postsecondary education so they can trace student in remedial courses?
success (or failure) back to their high school experience and
use that information to strengthen the experience for the next What Achieve Found
class of students.
Since the Summit, there has been significant progress in the
number of states that have committed to building P–16 lon-
What Achieve Asked gitudinal data systems. Three states already have such a sys-
Achieve asked all 50 states whether they have in place now or tem in place, and 31 others report that they are planning to
plan to develop a longitudinal data system that enables them create one. In addition, as a result of the NGA Compact on
to follow students from elementary school through middle State High School Graduation Data, every state also is mov-
and high school and ultimately into and through the postsec- ing toward a common method of calculating high school
ondary level. This is a prerequisite for a strong high school graduation rates that promises to accurately portray how
and postsecondary accountability system. For states that have many 9th graders remain in school and graduate with a regu-
separate K–12 and postsecondary longitudinal data systems, lar diploma four years later (see sidebar, page 25). The
we asked whether they have plans to link the systems. momentum on data systems and accuracy is welcome news. It
is a critical first step toward building a more robust account-
To better understand whether college and work readiness is a ability system focused on preparing students for success after
key driver in state high school accountability systems, high school.
22 Achieve, Inc.
Given the work that still must be done to build college- and the new formula when factoring graduation rates into high
work-ready assessments and longitudinal data systems, it is school accountability systems.
not surprising that most states have
not yet taken steps to hold high
schools accountable for graduating stu- States Are Building P–16 Longitudinal Data Systems
dents who are ready for college and
VT ME
work. A few states, however, are mov- WA
MT ND NH
MN
ing to make college and work readiness OR NY MA
ID SD WI
MI CT RI
WY PA
a factor in high school accountability. NE
IA OH
NJ
IL IN DE
NV WV VA MD
These states provide an early glimpse of UT
CO MO KY
CA KS NC
what all states will need to do to pro- TN Data system
OK AR SC in place
AZ NM
vide high schools and high school stu- GA
MS AL
Has plan to
dents with the right targets to aim for. TX LA develop data
AK FL system
link existing K–12 data systems with existing post- Mississippi, Oklahoma and Pennsylvania) plan to do so.
secondary data systems that currently operate independ-
ently of one another. Fifteen states will extend their K–12 • ONE STATE (Oklahoma) reports holding its high schools
data systems to include the postsecondary level. accountable for the percentage of graduates who require
remediation at a postsecondary institution. FOUR ADDI-
• FORTY-THREE STATES report having a unique student iden- TIONAL STATES (Georgia, Maine, New Jersey and Texas) plan
tifier to follow student progress from prekindergarten to build college remediation into their high school
through 12th grade. accountability formulas as well.
Status of High School Accountability Systems • Only ONE STATE (Georgia) reports that its high schools
• FORTY-ONE STATES include graduation rates in their state will soon be held accountable for not only their high
high school accountability formula or plan to do so in the school graduation rates but also whether those graduates
next year or two. All 50 states have signed the NGA com- are college and work ready; whether they go on to college;
pact that will require states to report graduation rates and whether they are placed into credit-bearing, non-
using a common formula. It will be critical that states use remedial courses.
24 Achieve, Inc.
ment — but states and districts have shown a limited ability school assessments so they better reflect those college-ready
to intervene and turn these schools around.15 It is a matter of skills and can send early signals to students about their readi-
capacity, resources and, in some cases, will. ness, and they need to work with K–12 leaders to create
better data systems that allow for the sharing of information
Once low-performing high schools have been identified, between high schools and colleges.
states and districts then must assess the strengths and weak-
nesses of each one before determining the right assistance. The governors and business and education leaders who
Some schools may have weaknesses in specific subjects, or attended the Summit also reviewed data on the performance
with particular subgroups of students, while otherwise per- of postsecondary institutions. Although the United States has
forming at acceptable levels. Targeted assistance, such as one of the highest college enrollment rates in the world, our
upgraded curricula, teacher training
and changes in how students are
assigned to courses of study, may be suf-
ficient to improve their performance. Developing an Improved Measure of Graduation Rates
schools. Realizing that an accurate and detailed measure of high school graduation
and dropout rates is a key factor in assessing the effects of high school reform
Strengthening Postsecondary efforts, the National Governors Association convened a task force after the
Accountability 2005 National Education Summit on High Schools to create a more valid,
In the Summit action agenda, Achieve reliable and consistent measure of the graduation and dropout rate. The result
and the NGA called on postsecondary was a compact signed by all 50 governors to develop a standard, four-year,
improving the transition of students This landmark agreement is a step in the right direction, but many states
from high school to college. As dis- have a long way to go before they can begin using these improved data.
cussed earlier in this report, postsec- Calculating the rate agreed upon in the compact means that states will need
ondary institutions need to be clearer to be able to collect longitudinal data that track individual students over
and more transparent about the aca- time. Yet a recent analysis of state data systems by the National Center for
demic skills young people need for Educational Accountability found that only 14 states have the data in place
to make accurate calculations.16
success in credit-bearing courses. They
also must get involved in shaping high
26 Achieve, Inc.
the indicators are student based and include performance on requires public institutions to provide these data annually to
general education, licensure and subject field exams, while the the National Center for Education Statistics. It is not clear
remaining indicators are program or institution based and how widely that information is disseminated, how it is com-
include retention and graduation rates, as well as employer municated within states or how high schools use available
satisfaction. The financial rewards to institutions for high per- information to improve the preparation of their students for
formance can reach up to 5.45 percent of state funding. success in college.
FEWER THAN HALF THE STATES told us that college remediation Setting Goals for Improving Postsecondary
Access and Success
rates are publicly reported. This information is a critical
indicator of how well high schools are preparing students for Jobs for the Future recently released a report examining how
college. In Texas, for example, the governor recently called for many states have set numerical targets for improving college
the creation of a system to report higher education remedia- enrollment and completion and comparing those goals on a
tion rates on public high school report cards and a system to number of important dimensions. According to the report,
facilitate the transfer of high school transcripts between fewer than half the states have set measurable goals for
school districts and institutions of higher education. increasing the proportion of their population with a postsec-
ondary education. Twenty states have goals to improve college
A LARGER NUMBER OF STATES reported to Achieve that post- enrollment rates, 10 states have set second-year retention
secondary persistence and completion rates are publicly goals and 19 states have set degree completion goals. Only
reported. This is largely due to the fact that federal law nine states have set goals in all three areas.18
28 Achieve, Inc.
Policy in place ADP Network state
Plans to implement NGA Honor Grant state
Appendix A: Overview of Key Survey Results for Each State In process of aligning standards
South Dakota
Tennessee
Texas
Utah
Vermont Vermont did not answer Achieve’s survey.
Virginia
Washington
West Virginia
Wisconsin
Wyoming
TOTAL 5 30 8 12 6 8 3 31 4 9
29
Appendix B: State Education Pipeline Data
Of every 100 high school freshmen, the number who …
Graduate from High Immediately Are Still Enrolled Graduate from
State School on Time Enter College Sophomore Year College on Time
Massachusetts 76 52 40 29
Iowa 83 54 37 28
Pennsylvania 77 47 37 28
New Hampshire 75 46 35 27
Connecticut 75 47 37 26
New Jersey 90 60 44 25
North Dakota 83 57 41 25
Minnesota 82 54 38 25
Wisconsin 79 47 34 25
Rhode Island 72 40 33 23
Nebraska 78 47 33 22
Maine 76 41 31 22
Virginia 74 41 31 22
South Dakota 78 44 30 21
Vermont 77 36 28 21
Indiana 68 41 31 21
Delaware 64 38 30 21
Illinois 72 43 30 20
Colorado 70 42 29 20
Missouri 73 40 27 20
Wyoming 73 38 23 20
Maryland 75 45 32 19
Kansas 75 43 27 19
Ohio 70 40 29 19
California 70 37 25 19
North Carolina 60 41 29 19
New York 57 41 31 19
Michigan 70 41 29 18
NATION 68 40 27 18
Montana 77 41 27 17
Source: National Center for Public Policy and Higher Education, Policy Alert, April 2004.
Utah 83 36 24 17
Arizona 69 35 22 17
Tennessee 61 38 26 16
Arkansas 74 42 27 15
Kentucky 65 39 26 15
Oregon 69 33 23 15
Washington 68 30 22 15
Idaho 77 34 22 14
West Virginia 71 34 24 14
Florida 53 32 24 14
Oklahoma 73 36 23 13
Texas 64 35 22 13
Mississippi 58 37 23 13
Louisiana 59 33 23 13
Georgia 56 34 24 13
South Carolina 49 29 20 13
Hawaii 65 34 22 12
Alabama 59 32 22 12
Alaska 61 30 12
New Mexico 60 34 22 10
30 Nevada 62 27 18 10
Note: States are listed in descending order by number of students who graduate college on time. Data are estimates of pipeline progress rather than actual cohort.
Endnotes
1
National Center for Public Policy and Higher Education, tional math courses aligned to the new state math stan-
Policy Alert, April 2004. Data are estimates of pipeline dards. Students must take and pass at least one New York
progress rather than actual cohort. Regents math exam to graduate from high school. The
2 Michigan Merit Core and new Kentucky requirements
Greene, Public High School Graduation and College Readiness
have received state board approval and are pending leg-
Rates: 1991–2002, Manhattan Institute, 2005.
islative approval.
3
Carnevale and Desrochers, Standards for What? The 10
The Texas requirement that all students complete the
Economic Roots of K–16 Reform, Educational Testing
Recommended High School Program took effect starting
Service, 2003.
with the graduating class of 2008. The new requirements
4
Greene, The Cost of Remedial Education: How Much in Arkansas, Michigan, Oklahoma and South Dakota will
Michigan Pays When Students Fail to Learn Basic Skills, take effect starting with the graduating class of 2010; in
Mackinac Center for Public Policy, 2000. Indiana and New York, with the graduating class of 2011;
5
National Center for Education Statistics, Condition of and in Kentucky, with the graduating class of 2012.
Education 2004, Indicator 18. 11
The state board resolution creating Kentucky’s new
6
Peter D. Hart Research Associates/Public Opinion requirements does not include opt-out provisions.
Strategies, Rising to the Challenge: Are High School 12
Ingersoll and Jerald, All Talk, No Action: Putting an End
Graduates Prepared for College and Work? A Study of Recent to Out-of-Field Teaching, The Education Trust, 2002.
High School Graduates, College Instructors, and Employers, 13
de León, The Urban High School’s Challenge: Ensuring
Achieve, Inc., February 2005.
Literacy for Every Child, Carnegie Corporation of New
7
Adelman, et al., Postsecondary Attainment, Attendance, York, 2002.
Curriculum, and Performance: Selected Results From the 14
Hall, Getting Honest About Grad Rates: How States Play the
NELS:88/2000 Postsecondary Education Transcript Study
Numbers and Students Lose, The Education Trust, 2005.
(PETS), 2000, September 2003, Table 11. Carnevale and
15
Desrochers, Educational Testing Service, Connecting Alliance for Excellent Education, Progress Report on
Education Standards and Employment: Course-Taking Patterns American High Schools 2003–04, 2003.
of Young Workers, American Diploma Project: Workplace 16
For a PDF of the report from the NGA Task Force
Study, 2002. ACT, Crisis at the Core: Preparing All Students on State High School Graduation Data, see
for College and Work, October 2004. www.nga.org/Files/pdf/0507GRAD.PDF. For
8
Adelman, Answers in the Tool Box: Academic Intensity, information on the National Center for Educational
Attendance Patterns, and Bachelor’s Degree Attainment, Accountability’s analysis of state data systems, see
Office of Educational Research and Improvement, U.S. www.DataQualityCampaign.org.
Department of Education, June 1999. 17
Data Quality Campaign, 2005 NCEA State Data Collection
9
According to New York State Commissioner of Education Survey Results: The 10 Essential Elements in Detail for 2005–06,
Richard Mills, starting in fall 2007, all students in New www.dataqualitycampaign.org/activities/elements.cfm, 2005.
York must take three years of math, including Integrated 18
Collins, By the Numbers: State Goals for Increasing Postsecondary
Algebra, which combines Algebra I and II, and two addi- Attainment, Jobs for the Future, 2006.
32 Achieve, Inc.
Achieve Board of Directors
CO-CHAIRS BOARD MEMBERS CHAIR EMERITUS
Jerry Jurgensen
CEO
Nationwide