Future of Schools

Feds put Indiana on notice: NCLB waiver in doubt

State board member Brad Oliver and state Superintendent Glenda Ritz at a meeting in December. (Scott Elliott)

Indiana schools could face sanctions under the federal No Child Left Behind law if the state cannot satisfactorily answer U.S. Department of Education concerns in 60 days about its plans for instituting its new standards.

On Thursday, Indiana State Superintendent Glenda Ritz received a letter from Deb Delisle, assistant U.S. secretary of education, spelling out concerns about “significant issues” with Indiana’s adherence to an agreement it made in with the federal government in 2012 that released the state from some NCLB rules.

The agreement included a promise to have high standards for all students, and federal authorities want proof that the standards the state recently adopted are as challenging as the ones they replaced, known as the Common Core.

Indiana State Board of Education member Brad Oliver said he has not seen the letter but he is alarmed.

“Based on what I know right now I am very concerned that our waiver could be in jeopardy,” he said. “The repercussions of losing our waiver are more than just financial. It would immediately have an impact on local districts.”

But Ritz’s spokesman, Dan Altman, said the letter was not a big surprise given dramatic changes in Indiana’s approach to standards and testing driven by new laws from the legislature. Bills that first paused Indiana’s implementation of Common Core standards and then voided them altogether required quick work by state education officials to stay on schedule to have standards and new tests in place for next school year, he said.

“There’s been whole lot of work happening at the department to put ourselves in compliance, not the least of which was the standards review process the superintendent just led,” he said. “That is a very big step in making sure we stay in compliance.”

The letter constitutes a lower level of notice from the federal government than other states have received, meaning the state’s NCLB waiver is in no immediate danger. Four states have been notified they are at “high risk” of losing their waivers, but Indiana was not added to that group yet.

Indiana is one of several states that asked U.S. Secretary of Education Arne Duncan for a waiver from some NCLB sanctions. The waiver was given partly on condition that the state adopt “college and career ready” academic standards. Indiana said in its application that it had already done that when it adopted Common Core standards in 2010.

But this March, state lawmakers, wary of federal involvement in state decisions about education, voided Indiana’s adoption of Common Core, making it the first of 45 states that had agreed to follow those standards to later pull out. The Indiana Education Roundtable and state board adopted new standards last month.

Those standards must be approved by a “state network of institutions of higher education” who can assert that Indiana’s graduates will not need remedial work in college after the change, Delisle wrote.

Indiana must also submit a detailed outline for how it will create and administer new state tests in the 2014-15 school year to assess student progress toward college and career readiness.

The  NCLB waiver allows Indiana to be judged on different criteria other than the law’s escalating goals for student test performance. Without the waiver, NCLB could have forced tough choices for making changes in numerous schools across the state that fell short of its expectations for improved test scores, like firing principals and replacing most of the teachers. It also would restrict how some federal dollars are spent, setting aside money for outside tutoring, and require notice to parents that the schools are failing under the federal definition.

Last month, Washington became the first state to lose its NCLB waiver.

“I believe you will have several schools failing under the federal model,” Oliver said.

Last fall, the U.S. Department of Education found Indiana was falling short on its waiver commitments. Among concerns it raised was that the state did not:

  • ensure low scoring schools were making changes that would raise test scores for groups of students that had fallen behind
  • make sure those schools were using multiple strategies to turn the schools around
  • adequately monitor and support implementation of new standards or teacher and principal evaluation systems in local schools

Federal officials, in their fall report, outlined several steps Indiana had to take to rectify those concerns. If all the steps are not taken, the state’s waiver could be jeopardized, according to Delisle’s letter to Ritz.

Oliver said he was frustrated that the state appeared to have slipped since its 2012 evaluation, which gave it high marks for compliance, to the point where the waiver could be threatened.

He wants answers from Ritz, he said.

“How is it we are so out of compliance?” he asked. “In one year’s time what has happened? It looks as if we’ve dropped the ball. I know the board hasn’t dropped it. We’ve been asking and we’ve been told everything is OK. That’s not adding up now.”

Altman said the concerns raised by federal officials when it comes to monitoring schools were based on a visit that happened last August, as Ritz’s school support network was just being put in place, and the department has made several improvements since then.

“It’s disappointing to see finger pointing,” he said. “We will report back to U.S. Department of Education and we will make sure that we will comply with what’s in the letter.”

 

Cut off

Michigan’s third-grade reading law could penalize bilingual programs

PHOTO: Koby Levin
Elementary schoolers in an English class at Academy of the Americas in Southwest Detroit. More than 70 percent of third-graders at the school could be held back starting in 2020.

The grocery store down the street from Academy of Americas blasts Mexican pop music over the radio. A few blocks away, a taco truck takes orders in English and Spanish. On the Academy’s playground, third-graders go about the business of play using whichever language happens to land on their tongues.

Back in the classroom, kindergartners learn to add, subtract, and find the United States on a map using Spanish. Third-graders sit through English class, then walk across the hall for science class with a teacher who addresses them only in Spanish.  The school, like the Southwest Detroit neighborhood that surrounds it, is truly bilingual, and it has the support of parents and experts who argue that “language immersion” at an early age helps English- and Spanish-speakers effectively learn two languages for the price of one.

But dual-language immersion programs like this one are about to run smack into a controversial state law. Beginning in 2020, third-graders at Academy of the Americas won’t be able to move on to the fourth grade until they pass a state reading exam — in English.

Critics have raised a wide range of questions about the 2016 law, which would have caused nearly half of Michigan students to be held back a grade if the law took effect last year.

But perhaps most puzzling is that a law designed to improve literacy in Michigan could penalize the small handful of programs with a track record of teaching students  — especially English learners — to read in not one, but two languages.

When 89 third-graders at the Academy took the test in 2016, only a single student met state standards. If the law had been in effect, almost every one would have repeated the third grade.

While the school is among the most highly sought programs in the district, the low reading scores were not terribly surprising. Kindergarten classes at the academy are conducted in Spanish for 90 percent of the school day. By the third grade, students hear  Spanish for 60 percent of the day. Experts in bilingual education say students in such programs typically fall behind their English-only peers in reading, then catch up around middle school.

But under state law, third-graders in Michigan’s roughly 10 bilingual programs could be held back anyway.

“I can’t wrap my head around it,” said Norma Hernandez, the district’s former director of the Office of Bilingual Education. “Our kids are going to be left behind.”

Academy of the Americas was founded by Hispanic parents determined to help their children hold on to their native language. Learning English, they knew, was both inevitable and necessary in the United States. But why couldn’t a school also help children master the language spoken at the family dinner table?

As it turns out, dual-immersion schools like the Academy are backed by solid research showing that students who learn more than one language from an early age tend to catch up to their monolingual peers in English reading. This holds true even for students who speak Spanish at home, and it also helps them maintain their native language. More than 1,000 similar programs are in place across the country.

“They’re learning to read and write in both languages,” said Cecilia Jungo, a parent at the school, speaking in Spanish. “They’re totally bilingual,” she added.

Earlier this month, folders were propped up on every desk in a third-grade social studies classroom at the Academy, forming a barrier in case students felt tempted to scan their neighbors’ tests. As some began to fidget, the teacher slipped in a vocabulary lesson.

“If you are already finished with the test,” she said, speaking in Spanish, “just put your head on the — what?”

“The table!” the students shouted — also in Spanish.

In the hallway outside, Principal Nicholas Brown said that this minilesson will eventually improve the students’ performance on language tests, in English as well as Spanish.

“We’re teaching kids to read and write,” he said. “When they learn to read in Spanish, they are able to transfer those skills to English, so that when English is introduced they’re able to attack it.”

He admits that this approach won’t pay dividends on English reading tests right away, but says they will catch up by middle school.

But this model of reading is “not the same theory that the lawmakers were adhering to when they developed the law,” said Paula Winke, a professor at Michigan State who studies bilingual education. Legislators pointed to a different body of research — studies showing that students who don’t learn to read English well by the third grade are less likely to graduate high school.

Both models may hold some truth, Winke said, but the law only makes room for one. The learning patterns of bilingual students, well-established by researchers, were apparently “not considered,” she added.  

Researchers at Michigan State are studying how the law will affect all students in immersion programs, including native English speakers. But they have already concluded that third-graders who speak English as a second language could be held back at disproportionate rates. According to Winke’s analysis of previous years’ test data, some 70 percent could be flunked.

Those projections are forcing dual-language programs to make tough decisions, especially when most of their students arrive in kindergarten speaking a language other than English.

Escuela Avancemos!, a charter school that stands only a few blocks from the Academy, offers some of its students a similar dual-language program. Kindergartners – most of whom speak Spanish at home — hear and speak Spanish for 90 percent of the school day. The proportion of English rises in each subsequent year.

But thanks to the reading law, that could change. “We’ve had to play around with those percentages,” Principal Sean Townsin told Chalkbeat during a school visit last month. “We’ve had to tweak it a little bit, especially in anticipation of the third-grade reading law.”

Townsin acknowledges that an extra hour or two of English instruction per day might not be enough to save his students from repeating the third grade. Last year, 39 of the 47 students tested in reading would have flunked. He also plans to assemble samples of students’ work, taking advantage of a section of the law that allows students to prove their reading ability to the state by submitting a portfolio instead of taking a test.

Brown, principal at the Academy, also plans to send portfolios to the state, but he won’t reduce the amount of Spanish students hear in class. He thinks the bilingual program is largely responsible for the school’s enrollment growth of 50 percent in the last two decades, no small accomplishment in a city where schools compete fiercely for students.

What’s more, he says parents would revolt if  he watered down the immersion program.

“At the end of the day, our parents are very clear” in their support for the program,” he explained. “The school was created as a direct response to a community need.”

The Academy was founded in 1992 by a group of Hispanic parents who wanted a school that wouldn’t alienate the children of Southwest Detroit from the language of their grandparents. They believed that hearing teachers and classmates speak Spanish would help students stay connected to their culture and make them more employable.

Brown, the son of a Venezuelan and a Louisianan, knew first-hand that in traditional schools, English can replace a student’s native language rather than complement it. He says he rejected Spanish as a teenager and refused to speak it for seven years, relenting only after a visit to Venezuela made clear that the language was a link to his family.

These days, when students say “hello” in the halls, he responds in Spanish.

But he knows that these students could soon pay a price for their bilingualism. Flunking a grade can have severe emotional consequences, and there is little evidence that repeating a grade is beneficial to a child’s learning in the long-run.

“If students are retained because they didn’t pass a reading test, that’s going to hinder their education,” said Diane Rodriguez, a professor at Fordham University who specializes in bilingual education. “If those legislators went to another country, and they were given three years to pass an exam in a second language, I’m wondering if they’d be able to pass it.”

Brown, for his part, is waiting for clarification about the law before it goes into effect in the 2019-2020 school year.

“I have more questions than answers,” he said, adding that he would like to see the law changed: “I hope the program will speak for  itself.”

Barring a change in course from the Legislature, his hopes rest with parents and with Superintendent Nikolai Vitti. Under the law, parents can request an exemption if their child fails the third-grade reading test, but the request must be approved by the superintendent for the child to move on to the next grade.

deysi martinez
PHOTO: Koby Levin
Deysi Martinez, president of the PTA at Academy of the Americas, says the state should test third-graders there in Spanish.

Parents at the Academy, however, argue that the state shouldn’t use its resources to grade student portfolios and process exemptions to the law.

Deysi Martinez, PTA president, noted that some states, like California and Colorado, allow students in immersion programs to prove their reading skills by taking additional reading tests in Spanish.

“In third grade, they’re reading mostly in Spanish,” she said of students at the Academy. “It doesn’t make sense for the test to be in English.”

Indiana's 2018 legislative session

What’s so hard about teaching ‘soft skills’? More than Indiana policymakers might think

PHOTO: Shaina Cavazos
Students at Robey Elementary School in Wayne Township.

Indiana schools have a long list of specific topics students must learn about before they graduate that are enshrined in state law — the U.S. Constitution, the Holocaust, the effects of alcohol and drugs. Soon, “employability skills” will join them.

Also known as “soft skills” and “21st Century Skills,” these are the intangible abilities that students might be expected to have once they graduate from high schools, and they have been part of the school experience for decades. Sometimes the skills in question focus more on character or morality, while other times — especially in high schools — they focus on job-readiness. But they all boil down to figuring out how to teach students skills that are academics-adjacent and, often, hard to measure.

While schools have been trying to teach these skills for years, they have been highlighted recently by policymakers and employers as critical for post-high school success. But, education researchers and advocates worry, legislating these programs can be a challenge — and might not lead to noticeable changes.

“Good schools have always done this,” said Andrew Rotherham, co-founder of Bellwether Education Partners, a national nonprofit that advocates for school choice. “But what often happens is it’s just one more thing that people have to do, and they end up checking that box.”

Under a law that passed this past spring with broad bipartisan support, all schools will have to incorporate these skills into their lessons beginning in 2019. The law comes as Indiana policymakers have made a big push to encourage “college- and career-readiness,” an education buzzword that has permeated conversations about recently adopted graduation requirements and city-led college access projects.

The bill itself is vague and says schools have to teach these skills across all subjects and occasionally create activities or special events on career awareness and development. The topics to be taught are specific to grade levels, spanning “basic employment concepts,” choosing careers based on interests and skills, job or higher education counseling, hands-on experiences, and workplace visits.

There is no method laid out for measuring schools’ performance or assessing the material.

The idea for the bill came from Indiana State Board of Education member David Freitas, who has long lobbied for such policies. The message could be as broad as encouraging conscientiousness and punctuality or as specific as teachers greeting each student in the morning with a firm handshake.

“These are core foundational skills that every person should have,” Freitas said. “It’s relevant today, it was relevant yesterday, and it’s going to be relevant tomorrow.”

The model that Indiana schools will have to eventually follow first requires the Indiana Department of Education to create employability skill standards, which the state board will eventually have to approve.

State officials won’t necessarily be starting from scratch — The U.S. Department of Education has developed an outline for teaching these skills and resources for schools, such as a checklist of academic and critical thinking skills that can be used to build lessons.

Indiana’s biggest challenges likely will be rolling the policy out in a way that ensures these skills are actually taught, taught well, and don’t become an “unfunded mandate.”

Jonathan Plucker, a professor and researcher at Johns Hopkins University who studies education policy and talent development, whose work has centered on designing assessments to measure topics like creativity and collaboration, said requiring schools to teach the skills can be a bigger obstacle than states realize.

“We don’t have great assessments for a lot of these things, so it is difficult to gauge whether you are doing a good job teaching students,” Plucker said. “There’s nothing in here about accountability, reporting, monitoring or assessment, and that’s how we ensure policies get enacted. You would never write a tax bill without any of those things.”oh

Plucker also thinks schools need to think long-term about what skills students may need in the future, not preparing them for the current job market.

“It would be much more powerful to take the longer-haul view of how are we educating them for the jobs of tomorrow, like where are we working in creativity and communication skills, collaboration skills?” Plucker said. “How are we helping them prepare for the jobs that we know are going to be the vast majority of career opportunities when they get out?”

Some schools already have programs in place. At Robey Elementary School in Wayne Township, their version of a soft skills program has focused on positive behavior. As the Robey Rockets, their motto is “BLAST” — Be Respectful, Lifelong learning, Active listening, Safety, Taking responsibility.

Most schools in the district have something similar, Principal Ben Markley said. The Garden City Gators have the three Gs, while the Bridgeport Knights have an “ARMOR” shield. In other districts, such as Franklin Township, South Creek Elementary School uses “GREAT” to encourage Generosity, Respect, Effort, positive Attitude, and Trustworthiness. It might seem simple, but Markley said he’s noticed its effects.

“You’ve got to have a common language,” Markley said. “When students go to physical education class or to art or to music … having a framework that they can count on, that they can improve upon over time, it is something that makes a difference for our kids.”

It’s unclear how much implementing the program will cost. Fiscal analysts from the Legislative Services Agency said the provisions in Senate Bill 297 would increase work for state education department employees, as well as districts carrying out another piece of the legislation — the Work Ethic Certificate program. The program is currently being tried out in 18 districts, and it partners districts and local employers together to create a credential students can earn if they demonstrate employability skills while in high school.

The Department of Workforce Development has issued grants to districts to support their work, but this year’s bill didn’t include any additional funding to expand the work ethic certificate program. It’s possible that could come next year, when lawmakers meet to craft the state’s next two-year budget.

Freitas said he’s really excited to see the plans take shape, and he knows some schools might already be working on these skills without the state requiring it. He said it’s not necessary that they hire any special teachers — it’s about focusing on the lessons and working soft skills into what’s already being taught.

“I see it embedded within the curriculum,” Freitas said. “Ten years from now, I think it’s important for everyone to be respectful to each other, civil to each other. So it has nothing to do with, ‘are they skills for the future’ — yeah, they are skills for the future. They are not going to change.”