Background
The academic achievement of students in California's elementary schools — and to a somewhat lesser extent our middle schools — is steadily increasing. This is the result of a diligent effort by the whole education community. In significant part, this effort has been aided by a comprehensive state strategy that has included:
- High academic expectations, particularly in the core subjects of English-language arts, mathematics, science, and history-social science
- Improvement in the preservice training and professional development of teachers and administrators
- A new generation of instructional materials that give teachers the tools necessary to deliver more rigorous content
- A statewide standardized testing and accountability system that promotes local examination of student data, ongoing assessment, and appropriate intervention programs and strategies
Unfortunately, California 's high schools are not following the general trend toward increased student achievement. Less than 10 percent of our high schools have reached the optimum level of 800 on the Academic Performance Index (API), and over the past five years high schools have met annual API growth targets only about 40 percent of the time on average. Currently, 210 of California 's 1,059 comprehensive high schools are state-monitored high schools, indicating unsatisfactory performance in reaching annual academic growth targets.
We simply must concentrate attention on our high schools — not to disparage the work of the thousands of teachers and administrators who educate our teens, but to give high schools the same types of focused, comprehensive assistance we have given our elementary and middle schools. We must turn the tide in a positive direction, putting our high schools on the path to higher achievement.
Recent findings from an Education Trust study show — shockingly — that the solid gains our nation's students are achieving during the kindergarten-through-grade-eight (K-8) experience actually tend to erode when these students enter high school.1 Additional evidence of lower-than-acceptable achievement in many of our high schools comes from the California High School Exit Examination (CAHSEE). Data from the administration of CAHSEE to students for the class of 2006 indicate that 25 percent of students have not passed the exam. Subgroups for the class of 2006 passed at alarmingly low rates: only 39 percent of English learners, 30 percent of special education students, and 60 percent of economically disadvantaged students passed the English-Language arts portion of the test. All of this stands as important testimony that business in our high schools cannot continue as usual. It is entirely possible for California 's high schools to match the API growth rates being realized by our elementary and middle schools, and high schools must be held to reaching that goal over the next three years.
As we focus attention on the achievement of our high school students, we must be both broad — looking at the whole of each school — and particular — ensuring that achievement goes up commensurately for all; female and male students, racial and ethnic subgroups, English learners, and students with disabilities. We must also use strategically the powerful leverage provided by the federal No Child Left Behind Act of 2001 (NCLB), with its emphasis on English-language arts, mathematics, and science at the high school level, and its call for annual measurable achievement objectives.
In aggregate these data, and other data presented in this paper, illustrate that the majority of California's 1,700,000 high school students simply are not reaching the academic levels needed to succeed in tomorrow's economy, in postsecondary education, or as effective citizens. Dozens of reports over the past decade have described the huge mismatch between the highly skilled technical jobs available throughout the economy and the lack of individuals emerging from the education system with the necessary academic and technical skills. The California Economic Strategy Panel describes this issue as a top concern of California business, and a serious impediment to future economic growth.2 Education has a central, basic purpose in developing responsible citizens and members of society, but it also plays a critical role in preparing people to be productive members of the workforce.3 With approximately half of high school graduates not pursuing postsecondary education, nearly two-thirds of high school students not adequately prepared to enter college, and approximately one-third of college entrants not completing a baccalaureate degree, it is clear that many students are not being equipped in high school with the skills necessary for success in the new economy.4
American high school students are not adequately prepared for their futures.5 The economy increasingly demands completion of postsecondary education and training. There is a serious disconnect between aspirations and preparation. More than 97 percent of youths say they aspire to participate in some sort of postsecondary education, and 63 percent actually enroll.6 Yet little more than half take a mix of academic classes in high school that will prepare them for success either in college or in today's marketplace. More than one-quarter of the freshmen at four-year colleges — and nearly half of those at two-year colleges — do not advance to their second year. In the meantime employers continue to bemoan the lack of essential academic skills among workers and the shortage of qualified applicants for jobs that require advanced education and training.7
California Education Code Section 51228 is very clear about the purpose of high school:
- Each school district maintaining any of grades 7 to 12, inclusive, shall offer to all otherwise qualified pupils in those grades a course of study fulfilling the requirements and prerequisites for admission to the California public institutions of postsecondary education. ...
- Each school district maintaining any of grades 7 to 12, inclusive, shall offer to all otherwise qualified pupils in those grades a course of study that provides an opportunity for those pupils to attain entry-level employment skills in business or industry upon graduation from high school. Districts are encouraged to provide all pupils with a rigorous academic curriculum that integrates academic and career skills, incorporates applied learning in all disciplines, and prepares all pupils for high school graduation and career entry.
These objectives envision high schools as high-quality educational experiences leading to postsecondary education and productive careers. These two dimensions provide clarity and direction. To achieve these ends we must focus on meeting the legislated mission of the high school by strengthening instruction, improving achievement for all students, and minimizing the many distractions to achievement that have become the norm. This inside-out change must focus on improving classroom instruction first and then organizing all aspects of the school to support instruction. Further, it is critical that measurably effective practices and strategies are identified and promoted statewide.
This white paper is written to confront the challenge of improving high school performance and begin a process of fundamental change based on a rigorous and relevant curriculum. California's Master Plan for Education states, "California has a long-standing commitment to providing a quality education at all levels." Additionally, "Californians have always sought to be the best and have built a state like no other in the world." It is time for state and local policymakers to band together to continue those traditions and refocus and redesign high schools into high performance institutions preparing all students to reach the highest possible levels. In return, individuals will be able to reach their highest potential, and California will remain the economic and civic world leader throughout the twenty-first century.
- California's high schools must be the gateway to opportunity for all children.
- High schools are where children go each day to learn about this country's past, present, and possibilities for the future.
- High schools are where dreams are born, knowledge and skills learned, and lifelong habits forged.
The Initiative
The High Performing High Schools (HPHS) Initiative proposes critical state and local policy actions to guide high schools toward their primary role as educational institutions. The initiative focuses on five critical components that are necessary for boosting high school achievement for all students. The initiative recognizes that individual high schools have varying levels of performance and readiness for change. This variation will be accommodated by asking participating high schools to examine their data, determine the areas of highest need, and then implement significant changes in the five critical component areas that will have the highest potential impact of improving performance. In addition, state lawmakers, the California State Board of Education, and the State Superintendent of Public Instruction must collaborate in seeking legislation, enacting policy and regulatory changes, and aligning all efforts singularly on the goal of improving student achievement.
The initiative components are as follows:
- Implementing High Expectations for ALL Students.
- Fostering the Development of World-Class Teachers and Site Administrators.
- Developing World-Class Instructional Materials.
- Creating and Supporting Successful Transitions to Postsecondary Education.
- Nurturing and Developing a Community of Support for High Achieving Students.
Implementing High Expectations for ALL Students
High expectations lead to higher achievement. It is no longer acceptable to focus high expectations only on the college-bound students.8 High expectations must become the norm within high school. Twenty years ago, the report A Nation at Risk called for more academic courses to be taken by high school students. Yet in our high schools, only about one-third of students complete the academic courses necessary for success in postsecondary education or the workplace.9 A rigorous curriculum built on high standards is the key to increasing expectations for all students. Students of all abilities learn more in academically rigorous courses. There are several documented benefits for students who take challenging academic classes in high school, especially for those students considered at risk of failing10:
- Those who enter high school with test scores in the lowest quartile learn more in academically rigorous courses than they do in either the low-level vocational or general courses in which they are traditionally enrolled.11
- Students are more likely to pass high-level courses than low-level courses. Thus, the research suggests that increasing access by all students to advanced academic course work will improve student academic achievement.12
- Students expected to master more demanding curricula are more likely to persist in school, achieve at higher levels, and be better prepared for the workforce after their formal education ends.13
Too few students are taking academically rigorous courses. Postsecondary education and training is a necessity for everyone in the information and knowledge economy.14 Certainly not all students will attend a traditional four-year college. However, virtually every youth will need some sort of postsecondary education and training. The majority of high school students are academically unprepared for postsecondary-level course work.15 The challenge we face is to ensure that every student is adequately prepared with an academic foundation to take advantage of whatever future education he or she chooses.
A rich and deep curriculum is extremely important. It also requires increasing numbers of students to be enrolled in Advanced Placement or International Baccalaureate programs. Career academies and specialized high schools can also provide a method to develop a rigorous college preparatory curriculum. All of the necessary safety nets and access to supportive programs must be made available to students so that they can be prepared to meet these challenges. Intervention programs in mathematics and reading are essential for struggling students. Advancement Via Individual Determination (AVID), for example, has successfully prepared many students for postsecondary education and training who would have otherwise dropped out of high school. Many of these programs and approaches are more successfully implemented through the smaller learning communities model.
Fostering the Development of World-Class Teachers and Site Administrators
Research clearly indicates that improving student achievement is a function of increasing the skills of educators.16 This focus also requires attracting the best and brightest to the field of education. There is an emerging consensus among researchers, policymakers, and the public that one key to boosting student achievement is to ensure that a committed and highly skilled teacher is in every classroom. Though we still have much to learn about the specific attributes, experiences, and training that make a teacher an effective instructor, there is evidence that a teacher's subject-matter expertise is linked to gains in student achievement.17 The NCLB makes improving the expertise of America 's teachers in the subjects they teach a central priority. Using an approximation of the NCLB definitions, the analysis conducted by the U.S. Department of Education found that only 54 percent of the nation's secondary teachers were highly qualified during the 1999-2000 school year. The percentage of highly qualified teachers ranged from 47 percent of mathematics teachers to 55 percent of science and social science teachers.18
California has made great strides in the preparation, support, and professional development of its teachers. We must stay the course with our support of teachers. Our efforts must continue to focus in four areas: (1) recruitment; (2) preservice; (3) support of new educators; and (4) continued support of the experienced teachers. Recruitment of talented college graduates and second-career individuals who reflect both gender and ethnic diversity is essential. Preservice programs must continue to improve. Partnerships between school districts and universities are essential. California has developed an excellent program for new teacher support entitled the Marian Bergeson Beginning Teacher Support and Assessment System (BTSA). It is necessary to continue to support this model of professional development and coaching. Assembly Bill 466 has done an excellent job of providing ongoing professional learning for teachers in reading/language arts and mathematics and English. This model must be continued, and similar types of high school models must be created.
Equally alarming is the "graying" of our site administration population. Many of our highly qualified administrators will retire within the next five to ten years. The education community is also growing concerned that many of the principal openings do not have an adequate pool of applicants. This is particularly true in our large urban high schools. In a similar manner to teachers, our efforts must be focused in the same four areas. Recruitment of talented educators is necessary, but perhaps we also need to examine the possibility of including the recruitment of some of our talented business leaders to the field of school administration.
Support of site administrators is a critical component to the success of our schools. One program that shows great promise is the Principal Training Program (AB 75, Chapter 697, Statutes of 2001). The goal of the Principal Training Program is to develop principals who are able to establish sound and clear instructional goals, who collaboratively create data-driven instructional strategies, and who can lead a school through powerful instructional change. Curriculum approved for this program focuses on improving student achievement through increased accountability, standards-based instruction, curriculum frameworks, instructional materials, and use of pupil assessment instruments.
Legislation sponsored by the Superintendent of Public Instruction and signed by the Governor in September 2004, Assembly Bill 164 (Wolk and Wyland), authorizes training plans for high schools to include professional development activities that incorporate coaching, mentorship, assistance, and intensive support customized to meet the individual needs of high school administrators. Revisions to module one of the Principal Training Program are currently under way to add these professional development activities.
In addition, NCLB provides important resources for this work:
- Improving Teacher Quality state grants.
- Transition to Teaching grants.
- The Mathematics and Science Partnership.
- The Teaching of America's History grants.
- At least 5 percent of a district's Title I funds.
Developing World-Class Instructional Materials
Although there is a structured state adoption process for K-8 instructional materials, there is no statewide review or endorsement of high school-level instructional materials. Districts are left on their own to adopt incredibly large and varied numbers of high school-level materials. Elementary principals and district administrators attribute much of the recent academic progress to structured, focused, standards-aligned materials that provide the appropriate amount of support for both the novice and the experienced teacher.
This component of the HPHS Initiative proposes to develop a state-level process to review instructional materials for standards alignment in each of the four core subject areas. This process would utilize classroom teachers and content experts to determine alignment with the high school standards. Aligning instructional materials with the state standards would ensure students are prepared for success in college and other postsecondary endeavors. By providing a state-level standards review process, the state would also remove some of the burden from districts that presently must conduct their own reviews in order to ensure standards alignment.
Creating and Supporting Successful Transitions to Postsecondary Education
High schools must exist in partnership with the institutions that send students to them and the institutions to which their students are delivered. Careful assessment and planning with middle schools will enable high schools to properly place students in the correct courses and identify, early on, those students needing targeted interventions. It is important that curricula seamlessly connect between high schools and middle schools and that content area teachers from both levels are regularly connected to build understanding and lessons that help students advance.
Parents have higher educational aspirations for their children than ever before. Eighty-six percent of parents want their children to pursue some postsecondary education.19 The National Education Longitudinal Study, which followed a nationally representative sample of eighth-grade students beginning in 1988, found that 88 percent of eighth graders expected to participate in some form of postsecondary education right after high school.20 Twelve years later, the study found that 77 percent of these students had attended some type of postsecondary institution following high school, 47 percent had earned some college credits, and 30 percent had completed a bachelor's degree or higher.21 Making matters worse is our current system of advising students about college. K-12 educators cite a number of problems with our preparation system, including inequitable college advice by counselors and teachers and a general lack of teacher knowledge of college preparation issues.22
Additionally, there is a strong need to develop state-endorsed high school intervention programs in English-language arts and mathematics for students performing at the below basic or far below basic level on California Standards Tests and for students who are failing the CAHSEE. For the state to ensure the instructional gains, it must make certain that instructional materials promote ambitious student outcomes for all students and also align practices and actions within schools, districts, and the state to promote such outcomes.23
Data also indicate that minority students graduate from high school, enroll in college, and complete college at much lower rates than do other students.24 In 2001, 55 percent of African American and 52 percent of Hispanic high school graduates enrolled immediately in college compared with 64 percent of white graduates.25
The connection with postsecondary education systems is also important. The initiative proposes expanding the use of a wide variety of successful strategies to prepare students for postsecondary education. These programs (including AVID, college outreach, and partnership academies) help students to reach higher achievement levels and to formulate solid transition plans. Implementing the California State University Early Assessment Programs, Early College High Schools, and written articulation agreements or compacts will also provide systemic connections to increase student access to the postsecondary level.
High schools must also assist students in preparing to enter their careers whether following high school, community college, or the baccalaureate degree. Expanded career academies, integrated career pathways, and regional occupational programs will provide students with high-level career exploration, training, and work experience. Expanding schools' business partnerships, preapprenticeship programs, and Tech Prep programs with the California community colleges will open more advanced career options for students.
American business leaders have been among the strongest advocates for school improvement. They understand that their long-term success is tightly linked to the quality of the individuals that leave our schools. A recent survey highlights this concern about workforce quality.26 Eighty percent of responding businesses said that they had a "moderate to serious" shortage of qualified candidates. They cited poor reading, writing, math, verbal communication, and English-language skills as issues. Programs such as ROC/Ps (regional occupational centers and programs) and career and partnership academies provide an opportunity to develop these skills in the context of a career interest. Academies are also recognized among the viable strategies available for application of the small learning communities model.
Nurturing and Developing a Community of Support for High Achieving Students
Every school must be a community of learning. High schools are likewise a critical component of successful communities. High schools will be successful only if all stakeholders are involved in their improvement. No one can afford to sit on the sidelines when it comes to improving student achievement. Critical stakeholders, of course, are parents and guardians, and they must be made full partners in the high school experience. Small and large businesses, higher education, teachers, administrative and support staff associations, community-based organizations, and public agencies have a vested interest in the improvement of all schools, but especially of high schools. Youths are perhaps the most important stakeholders in helping to develop meaningful programs and strategies that engage them in their learning and that will persist over time.
Stakeholders must be engaged at deeper levels of involvement, helping to develop improvement plans and build understanding and commitment within the community for redesigning high schools.27 This component of the HPHS Initiative promotes stakeholders assisting high schools in implementing innovative programs and approaches, such as smaller learning communities, thematic and magnet schools, flexible scheduling, and expanded service-learning and community service programs. It will take the entire community's commitment to transform the tradition and structure of the past into designs for new high performing high schools.
Why We Must Act Now
Over the past five years, California 's public high school enrollment has increased by 14 percent and is projected to increase a like amount over the next five years. It is time for every stakeholder, including educational leaders, businesses, and foundations, to focus on transforming California high schools into places where all students can master rigorous academic content standards and have the ability to choose from solid postsecondary education and career-technical options. This effort will require a consistent and committed partnership of parents, guardians, students, teachers, principals, and leaders at the local level and state level.
More than ever, education is the dividing line between the "haves" and "have-nots" in our society.28 If we are to advance economically and as a democracy, it is essential that we prepare all of our students to succeed.
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Footnotes:
1 Haycock, Kati, Achievement in America [http://www2.edtrust.org/EdTrust/achievement+in+America.htm] (Outside Source), Education Trust, Washington, DC 2003.
2 Collaborating to compete in the New Economy (1996) and Findings from the Regional Economic Development Survey (2000) [http://www.labor.ca.gov/panel/espreports.htm] (Outside Source). The California Economic Strategy Panel, California Labor and Workforce Development Agency, Sacramento CA.
3 C. Benner, R. Brownstein, and A. Dean, Walking the Lifelong Tightrope: Negotiating Work in the New Economy. San Jose : Working Partnerships USA, 1999.
4 California School Boards Association, 1999.
5 Ticket to Nowhere, The Gap Between Leaving High School and Entering College and High Performance Jobs [http://www2.edtrust.org/NR/rdonlyres/1196FBF0-FB01-4B75-B363-B1D525869F29/0/k16_fall99.pdf] (Outside Source; PDF; 425KB; 32pp.). Education Trust, Washington, DC 2003. .
6 S. J. Ingels, T. R. Curtin, P. Kaufman, M. N. Alt, and X. Chen, "Coming of Age in the 1990s: The Eighth-Grade Class of 1988 12 Years Later," Education Statistics Quarterly, Vol. 4, Issue 2 (2002).
7 Learning for the 21st Century [http://www.21stcenturyskills.org] (Outside Source). Partnership for 21 st Century Learning (2003).
8 Bottoms, Presson, and Han. High School Reform Works-When Implemented, A Comparative Study of High- and Low-implementation Schools, Southern Region Education Board, Atlanta, GA. 2004.
9 Green, J.P, and Foster, G, Public High School Graduation and College Readiness Rates in the United States, Manhattan Institute for Policy Research, New York, NY. 2003.
10 Clifford Adelman, Answers in the Tool Box: Academic Intensity, Attendance Patterns, and Bachelor's Degree Attainment. Washington, D.C.: U.S. Department of Education, 1999.
11 K. Lovesque, et al., Vocational Education in the United States: Toward the Year 2000 [http://nces.ed.gov/pubs2000/2000029.pdf] (Outside Source; PDF; 2,131KB; 424pp.). Washington, D.C.: U.S. Department of Education, National Center for Education Statistics, 2000.
12 Maureen T. Hallinen, "Ability Grouping and Student Learning." Prepared for Brookings Papers on Education Policy Conference, "The American High School Today," The Brookings Institution, Washington, D.C., May 14-15, 2002.
13 Clifford Adelman, Answers in the Tool Box: Academic Intensity, Attendance Patterns, and Bachelor's Degree Attainment. Washington, D.C.: U.S. Department of Education, 1999.
14 Ready or Not, Creating a High School Diploma that Counts, American Diploma Project, Achieve, Inc., Washington, DC . 2004.
15 Crisis at the Core, Preparing All Students for College and Work, ACT, Iowa City, Iowa . 2004.
16 Telling the Whole Truth (or Not) About Highly Qualified Teachers [http://www2.edtrust.org/NR/rdonlyres/C638111D-04E3-4C0D-9F68-20E7009498A6/0/tellingthetruthteachers.pdf] (Outside Source; PDF; 77KB; 12pp.). Education Trust, Washington, DC 2003.
17 Meeting the Highly Qualified Teacher Challenge: The Secretary's Second Annual Report on Teacher Quality. Washington, D.C.: U.S. Department of Education, Office of Policy Planning and Innovation, 2003.
19 "Survey of Income and Program Participation 1996 Panel, Wave 6." Washington, D.C.: U.S. Census Bureau, 2003.
20 "National Education Longitudinal Study: 1988-1994, Descriptive Summary Report" [http://nces.ed.gov/pubsearch] (Outside Source). Washington, D.C.: U.S. Department of Education, National Center for Education Statistics, 1996.
21 The Condition of Education 2003. Washington, D.C.: U.S. Department of Education, National Center for Education Statistics, 2003.
22 A. Venezia, M. W. Kirst, and A. L. Antonio, Betraying the College Dream: How Disconnected K-12 and Postsecondary Education Systems Undermine Student Aspirations. Bridge Project 2003.
23 M. Visher, D. Emanuel, and P. Teitelbaum, " Key High School Reform Strategies: An Overview of Research Findings," in U. S. Department of Education. Washington, D.C.: Office of Vocational and Adult Education, 1999.
24 Double the Numbers: Increasing Postsecondary Credentials for Underrepresented Youth .
25 The Condition of Education 2003.
26 The Skill Gap 2001. Washington, D.C.: National Association of Manufacturers, Anderson, and Center for Workforce Success, 2001.
27 Breaking Ranks II, Strategies for Leading High School Reform. National Association of School Principals, Reston, VA. 200428 State of Change, California 1994-2004. Public Policy Institute of California, San Francisco, CA. 2004.
28 State of Change, California 1994-2004. Public Policy Institute of California, San Francisco, CA. 2004.
