Saturday, September 28, 2019

Closing Academic Gaps in Middle and High Schools: When Students Enroll without Mastering Elementary Prerequisites (Part I)


The MTSS Dilemma—Differentiate at the Grade Level or Remediate at the Student Skill Level?

Dear Colleagues,

 

[CLICK HERE to Link to the Full Blog Message]

Introduction

   I do a great deal of consulting in middle schools and high schools across the country helping them to add value to their multi-tiered system of supports by aligning (a) curriculum and instruction with (b) assessment and intervention with (c) staff expertise and school resources directly to (d) students’ skill gaps and proficiency needs. 

   Sometimes the biggest initial change is to help schools realize that they have adopted approaches based on principles, practices, and decision rules that are not psychoeducationally, psychometrically, or scientifically sound—if though they came from “experts” who appear to be “expert.”

   Many times, sustained success with academically struggling and social, emotional, and behaviorally challenging students requires a comprehensive school psychological perspective versus one depending on leadership, teaching, counseling, or special education.

   This is not a competition among specializations.  All teams need dedicated professionals working together.

   This is about the “game plan.”  Without a good game plan, many talented teams do not accomplish—on the field—what they should accomplish given their talent. 

   Or, metaphorically:  While an effective hospital operating room requires a host of effective, coordinated, and talented professionals, the operation is successful based on the strengths of everyone understanding their roles in accomplishing the mechanics of the surgery.
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When Secondary Students Have Academic Skill Gaps

   A continuing theme, in my secondary-level consultations, is the instructional dilemma that occurs when students transition from elementary to middle school—or middle school to high school—and they haven’t mastered the prerequisite academic skills to succeed at the next grade level. 

   While this occurs most often in the areas of English, reading, and literacy, or mathematics, calculation, and numeracy, we sometimes forget the impact on students’ learning when they are also unprepared to effectively write or to communicate verbally at their grade levels.

   And then there are the “lateral effects” when students’ low literacy or mathematics skills negatively impact their learning and performance in science, the social sciences, or in other transdisciplinary areas.

   In Part I of this two-part Blog series, we will discuss (a) the options available to schools to address these students’ needs; (b) how to determine which options are needed; and (c) how to courageously recognize (and enact) the one option that schools most avoid.

   In Part II, we will review and apply the results of two national research studies, published this week, that address the impact of teaching secondary students—who are significantly behind in their foundational math skills—in grade-level courses or in skill-level courses.
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Students with Significant Academic Skills Gaps: Connecting Their Needs to Closing-the-Gap Options

   From a multi-tiered perspective, a data-based problem-solving process is needed to quantify, analyze, and hopefully close any academic gaps that occur at the secondary level.  Just like the diagnostic process that a doctor completes when you are sick—before prescribing the medicine and other facets of your medical intervention, data-based problem-solving is a necessity if we are going to implement effective, high-probability-of-success academic interventions.

   Unfortunately, many schools have some data, but it is descriptive and not diagnostic data.  And then they use these data to inadvertently play “intervention roulette”—throwing “interventions” at problems without really knowing the root causes as to why they exist.

   I am critiquing, not criticizing, these schools.  More often than not, they are doing what they were told to do by their “experts.”
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   But, critically, at the point of intervention, there still are times when schools hit the proverbial “fork in the road.” 

   This occurs, specifically, when students’ prerequisite academic skills are so low that everyone knows that they have virtually no chance of passing the next middle or high school course.

   Here, most schools use one of the following Options:
  • Option 1.  Schools schedule the “not-ready-for-prime-time” students into their existing course sequences, and teach them at their grade levels— hoping that effective differentiated instruction will close the existing achievement gaps at the same time that the students learn and master the new, course-related content and skills?
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  •  Option 2.  Schools use Option 1—scheduling the “not-ready-for-prime-time” students into their existing course sequences, and then they offer/provide tutors or tutoring (usually before or after school) to supplement the instruction and “close” the gaps.

This, unfortunately, rarely works because (a) the students are too far behind to benefit from tutoring—that is, there simply is not enough time available to close the long-standing gaps; (b) the tutoring is provided by paraprofessionals who do not have the expertise to implement the strategic interventions needed; (c) the tutoring is not coordinated with the general education teachers or aligned to the curricula being taught in the core classes; and/or (d) the student does not attend the tutoring (enough) due to transportation, studying for other classes, extracurricular activities, or simply fatigue, frustration, or resignation.
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  • Option 3.  Schools “double-block” the students—scheduling them into the existing course sequences while also giving them an additional academic period a day (or less) to remediate their skills gaps. 

Here, they are hoping that the remediation period will “catch the students up,” while they simultaneously complete the grade-level courses so they can accrue their credits.  But many times, the teachers teaching these two separate courses do not communicate, the curricula and interventions are not coordinated, and the students still do not have the skills to pass the grade-level course.
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  • Option 4.  Here, schools “double-block” the students, but the students have the same teacher for both blocks.  This allows the teacher to follow the grade-level course’s syllabus, but s/he can spend time remediating students’ prerequisite skills gaps so they are prepared for and can learn and master the grade-level course material.

In addition, this also gives the teacher the time needed to adapt his or her instruction for students who require, for example, (a) more concrete and sequential instruction, (b) more positive practice repetition, or (c) assistive supports or accommodations to learn the material.

   In reality, based on their data-based student analyses, schools may be well-advised to have Options 1, 3, and 4 available in order to maximize the learning and mastery of different students with different learning histories and instructional needs. 

   [This is not to say that Option 2—Tutoring is not needed for students with more narrow skill gaps.  And, obviously, the teachers in Option 3 need to coordinate the curriculum, instruction, and interventions in order to attain the strongest student outcomes.]
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   But to determine the need for these different Options, and to fully prepare for their implementation, effective schools typically complete and pool the data-based student analyses by March or April before the next academic year.  This gives them the time to judiciously coordinate the services, supports, courses, instructors, and scheduling needed by same-grade groups of students. 

   While making the recommendation immediately above (even as March is still six months away), I understand that all schools have too many immediate and long-term needs already on their plates. . . and that some colleagues may dismiss this recommendation as either unrealistic or not (currently) a high priority. 

   But I would respectfully suggest that many of my colleagues’ immediate and long-term needs already center around the academic, behavioral, attendance, or graduation status of the students that we are discussing.

   Moreover, I know (because we have facilitated this in schools nationwide) that this recommendation can be accomplished when schools recognize the importance of personalizing their instruction and intervention, and evaluating and upgrading their multi-tiered systems of support.  

   But this all requires strategic planning, staff readiness and flexibility, and effective resource management.  And, this can be accomplished in the next six months.

   For small, budget-stressed, and/or staff-limited schools, I also understand the challenges embedded in the recommendation above.  But when the data-based problem-solving process is used, at least we know the cumulative student skill gaps that are present, and which groups of students need what approaches. 

   At this point, we realistically connect as many “dots” as we can—maximizing existing resources, and impacting as many students as possible.  We then plan for the additional dots that we will connect the next year.
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Middle Schools, High Schools, and Stark Realities

   Critically, in our experience, middle schools (if they choose to take it) have more flexibility to “schedule around” their students, staff, and courses than high schools—especially when the latter are not allowed (usually, by their state education codes) to give course credit for “remedial” courses.

   Indeed, if middle schools know the academic and behavioral status of their rising 6th graders in April or May, they can align their students, staff, and courses to flexibly meet the needs of different clusters of students—from those entering with significant academic skill gaps, to those whose academic skills already exceed the 6th grade courses they might “repeat.”

   With all due to respect, on behalf of the students with significant skills gaps, here is a stark reality:  Middle School credits don’t count.

   That is, if middle school students with significant academic skill gaps “pass” their courses, but do not master the “elementary” and “middle school” skills that they need, we have simply passed the “problem” on to the high school “to solve.”

   The recommendation, then, is to focus on foundational academic skills (in literacy, math, oral expression, and written expression), and students’ mastery of those skills.  And if—for students with significant skill gaps—we need to go “backwards to go forward,” or to go “slow in order to go fast,” then do it.

   The Mission: Prepare these students in middle school for high school.  Gaps in information and content can always be addressed as long as there are no gaps in foundational skills and mastery.
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   But there are comparable “stark realities” in high school when students with significant skills gaps are present there. . . leading up to an Option 5:
  • Just as many students do not complete their college programs in four years, perhaps some students need more than four years of high school in order to learn and master the skills and content needed to be college and/or career ready.

Indeed, for states and high schools that are moving to competency-based academic systems (e.g., New Hampshire), this is a natural outcome. 

[Parenthetically:  These systems also produce “three-year graduates” who are ready for dual-enrollment courses or college because they have demonstrated their comprehensive high school proficiency by their junior years.]

[Also, parenthetically:  The reason why some college students need more than four years to graduate is because they are taking remedial courses during their freshmen years to make up for their high school deficiencies.]

[Finally, parenthetically:  Why is it that some states have no problem retaining students in Grade 3—when they have not mastered their reading skills, and yet they “penalize” high schools when they do not graduate their students in four years?]

   In the final analysis, as in Middle School, “passing” courses and “graduating” from high school is irrelevant if students do not have the summative academic and related skills to truly succeed at the “college and/or career level.”
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So . . .  Secondary Schools Need to Consider Option 5

   Given the discussion above, middle and high schools need to consider (and the U.S. Department of Education, and the respective State Departments of Education, need to allow) an Option 5.

   Option 5 is for students who have no chance of passing their next middle or high school course even using Options 1, 3, or 4 above—because their prerequisite academic skills are so low.  This appraisal is based (see below) on objective, multi-instrument, diagnostic skill gap analyses of each struggling student—conducted at the relevant secondary school level.

   Thus, the school’s multi-tiered system must include (a) a data-based problem-solving process to determine the root cause(s) of the students’ learning and/or skill gaps; and (b) an Option 5 configuration where the instructional and intervention approaches needed to close the respective students’ skill gaps can be delivered with integrity and intensity.

   Critically, for students who do not have a disability and, therefore, who do not qualify for services through an Individualized Education Plan (IEP; IDEA) or a 504 Plan (Section 504 of the Rehabilitation Act), Option 5 may be the best option.

   What is Option 5?
  • Option 5 involves scheduling students into a course (or a double-blocked course) in their academic area(s) of deficiency that targets its focus and instruction on the students’ functional, instructional skill level.  That is, the course takes students from their lowest points of skill mastery (regardless of level), and moves them flexibly through the each grade level’s scope and sequence as quickly as they can master and apply the material. 

   This should be an instructional—not a credit recovery or computer/software-dependent—course with a teacher qualified both in instruction and intervention. 

   Moreover, this is the students’ only course in the targeted academic area, and the course instructors are responsible for making the content and materials relevant to the grade level of the student, even as they are teaching specific academic skills at the students’ current functional skill levels.

   Thus, students are not concurrently taking a grade-level course in the same academic area (as in Options 1 through 4 above).  In addition, the teachers in these students’ science, social science, or other courses also know the students’ current functional skill levels—differentiating their instruction as needed, while providing additional supports, so that the students’ areas of academic weakness do not negatively impact their learning in these “lateral” courses.
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   For example, if a group of rising 9th grade students have mastered their math skills only at the beginning fourth grade level, their Option 5 math class for that quarter, semester, or year would begin its instruction at the fourth grade level of the state or district’s preschool through high school math scope and sequence, and progress accordingly as a function of their learning and mastery.

   The students would not concurrently take a 9th grade math course, and the Option 5 teachers would be responsible for making the math content and materials relevant to a 9th grade learner, even as the mathematical skills are being taught at a 4th grade level.

   In reading, the Option 5 teachers would use, for example, high-interest (9th grade content and focus)/low vocabulary (4th grade) books, stories, or materials so that the students can build their vocabulary and comprehension skills in a sequential and progressive way.
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A Deeper Dive on Which Students Would Benefit from Option 5

   There are a number of possible (combinations of) reasons why rising-secondary students transition from elementary to middle school—or middle school to high school—without the prerequisite academic skills to succeed at the next grade level.  These reasons are identified through the data-based root cause analysis process that begins by collecting information that chronicles each individual student’s current status and past educational services, supports, programs, interventions, accomplishments and experiences.

  Indeed, at the beginning of a root cause analysis for an individual student, the initial information-gathering activities are called the “First Things First.”

[CLICK HERE to Link to the Full Blog Message that Fully Describes these Important Initial Information-Gathering Activities]
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   The information from the First Things First help to identify a student’s (a) strengths, skills, assets, and existing supports; (b) weaknesses, skill gaps, limitations, and negative life events and circumstances; and (c) educational history and experiences, including the quality of past teachers and instruction, the presence of sound curricula and interventions (when needed), and the engagement and motivation of the student when present in school.
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   Focused then on determining why a student’s specific skill gaps exist, the root cause analysis typically continues by completing diagnostic assessments on how the student best learns, and functional assessments targeted to confirming (or rejecting) hypotheses that similarly relate to past, and that now relate to predicting present, student learning.

   For students with significant academic skill and mastery gaps at the secondary level, the most common root causes include the following.

[CLICK HERE to Link to the Full Blog Message Describing these Common Causes in Detail]
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   The vast majority of these root causes point to the fact that students who will most benefit from an Option 5 approach are students who did not have the opportunity to originally learn and master the academic skills that are now embedded in their significant skill gap.

   At the same time, many of these student will need additional social, emotional, or behavioral services and supports so that the academic interventions can be successful.

   Even more critically, the student’s motivation and positive, active engagement in the Option 5 course(s) and classroom will be a key factor in determining success.  This will be especially true at the high school level, when students are confronted with the reality of a four-plus year high school career (which may look worse than dropping out, or going for a GED).

   All of this is to say that not all students who could potentially benefit from an Option 5 approach should or will choose it.  For Middle School students, the Option involves less student choice, and more “pressure” on the school to keep the students well-integrated with their peers and in other grade-level classes.  For High School students, they need to see realistic ways that they can pass their high school courses after or as their skill deficits are remediated.
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A Continuum of Academic Supports and Interventions

   From both a prevention and a strategic intervention perspective, schools need to recognize the services, supports, strategies, and interventions available along a multi-tiered continuum.

   In a past Blog, we differentiated among services, supports, strategies, and interventions.  Relative to the latter, we identified the following key elements of interventions:
  •  Interventions are intentional and focused on changing an academic or social-emotional skill or behavior.
  • Interventions involve a specific program or set of formalized steps required for implementation and proven to effect change.
  • Interventions are specific and formalized.  An intervention lasts a certain number of weeks or months, is reviewed at set intervals, and has demonstrable short- and long-term outcomes.
  • Interventions are implemented with formal evaluation approaches that track and measure students’ progress.

    We also provided some examples:
  • Tutoring is a service; the specific academic interventions used by a trained and skilled tutor is the intervention.
  • Counseling or psychotherapy is a service; the therapy that a psychologist uses (e.g., cognitive-behavior therapy) is the intervention.
  • A sensory “time-out” for a student experiencing trauma is a support; the strategies or therapies that a student received to eliminate the need for future time-outs is the intervention.
[CLICK HERE to Link to Blog:

February 16, 2019  Redesigning Multi-Tiered Services in Schools:  Redefining the Tiers and the Difference between Services and Interventions
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   The point here is that Option 5 will only succeed if the best services, supports, strategies, and interventions are matched to the root causes that explain why secondary students have such significant academic skill gaps.

   To expand this discussion, below are the key components of our Positive Academic Supports and Services (PASS) continuum. . . a science-to-practice blueprint that, in the context of the current discussion, is tailored to each individual student’s needs (see the Figure below).


 Overview.  The foundation to the PASS blueprint is effective and differentiated classroom instruction where teachers use and continuously evaluate (or progress monitor) evidence-based curricular materials and approaches that are matched to students’ learning styles and needs.  When students are not consistently learning and mastering academic skills after a reasonable period of effective instruction, practice, and support, the data-based, functional assessment, problem-solving process is used to determine the root causes of the problem. 

   Results then are linked to different instructional or intervention approaches that are organized along the following PASS continuum.

[CLICK HERE to Link to the Full Blog Message for a Detailed Description of the PASS Components]
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   While there is a sequential nature to the components within the PASS continuum, it is a strategic and fluid—not a lock-step—blueprint.  That is, the supports and services are utilized based on students’ needs and the intensity of these needs.  For example, if reliable and valid assessments indicate that a student needs immediate accommodations to be successful in the classroom, then there is no need to implement remediations or modifications just to “prove” that they were not successful.  In addition, there are times when students will receive different supports or services on the continuum simultaneously.  For example, some students will need both modifications and assistive supports in order to be successful.  Thus, the supports and services within the PASS are strategically applied to individual students. 

   Beyond this, while it is most advantageous to deliver needed supports and services within the general education classroom (i.e., the least restrictive environment), other instructional options could include co-teaching (e.g., by general and special education teachers in a general education classroom), pull-in services (e.g., by instructional support or special education teachers in a general education classroom), short-term pull-out services (e.g., by instructional support teachers focusing on specific academic skills and outcomes), or more intensive pull-out services (e.g., by instructional support or special education teachers). 

   These staff and setting decisions are based on the intensity of students’ skill-specific needs, their response to previous instructional or intervention supports and services, and the level of instructional or intervention expertise needed.  Ultimately, the goal of this effective school and schooling component, and the PASS model, is to provide students with early, intensive, and successful supports and services that are identified through the problem-solving process, and implemented with integrity and needed intensity.
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Summary

   This Blog focused on the instructional dilemma that occurs when students transition from elementary to middle school—or middle school to high school—and their academic skill levels are so low that (a) they have no hope of learning or succeeding in the courses at the next grade level, and (b) their skill gaps are so significant that the different remedial options that most schools use will not close the gaps. 

   During the discussion, the four Options that most middle or high schools use to address this dilemma were described—noting their differential strengths and weaknesses, and how schools miss (or ignore) the fact that these options will not address these students’ significant needs.

   We then detailed a number “stark realities” that we summarized in the following ways:
  •  If middle school students with significant academic skill gaps “pass” their courses, but do not master the “elementary” and “middle school” skills that they need, we have simply passed the “problem” on to the high school “to solve.”
  • Moreover, if these students “pass” courses and “graduate” from their high schools without mastering the academic and related skills needed to truly succeed at the “college and/or career level,” the schools have not accomplished their educational mission and a disservice has been done to the students.

   From a multi-tiered perspective, then, the goal is to complete (a) a data-based problem-solving process that links the results of a root cause analysis to strategic or intensive services, supports, strategies, and interventions; and (b) to consider a fifth option where students are taught at their functional skill and mastery levels, and where they receive the interventions and supports needed to learn, master, and progress through the academic skills needed to ultimately be successful at their true grade levels. 

   More specifically, this Option involves scheduling students into a course (or a double-blocked course) in their academic area(s) of deficiency that targets its focus and instruction on the students’ functional, instructional skill level.  That is, the course takes students from their lowest points of skill mastery (regardless of level), and moves them flexibly through the each grade level’s scope and sequence as quickly as they can master and apply the material. 

   This course is the students’ only course in the targeted academic area, and the course instructors are responsible for making the content and materials relevant to the grade level of the student, even as they are teaching specific academic skills at the students’ current functional skill levels.

   Thus, students are not concurrently taking a grade-level course in the same academic area.  In addition, the teachers in these students’ science, social science, or other courses also know the students’ current functional skill levels— differentiating their instruction as needed, while providing additional supports, so that the students’ areas of academic weakness do not negatively impact their learning in these “lateral” courses.
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   Complementing the discussion above, the Blog next described the initial information-gathering steps of the data-based problem-solving process, and then the primary reasons why students would enter their secondary school careers with significant academic skill deficits.  The Blog finished by outlining the components of the multi-tiered Positive Academic Supports and Services (PASS) system—a science-to-practice continuum of services, supports, strategies, and interventions for academically struggling students.

   The ultimate goal for students with significant skill deficiencies is to close their skill gaps with mastery-based learning as quickly as possible, so that they can then learn and master the skills in their grade-level courses and, ultimately, graduate success-ready for college and/or their careers.

   While the recommended approaches for these students may be controversial or challenging, with good strategic planning—completed in March or April of the school year before implementation—they can be accomplished. 

   Indeed, once the data-based problem-solving process is used to analyze these students, at least we then know the depth and breadth of the skill gaps that are present, and which groups of students need what approaches. 

   At this point, schools can realistically connect as many “dots” as possible— maximizing their existing resources, and impacting the greatest number of students.  They, then, can connect the next series of dots the next year . . . and so on.
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   In Part II of this Blog series, we will review and apply the results of two national research studies, published this past week, that address the impact of teaching secondary students—who are significantly behind in their foundational math skills—in grade-level courses or in skill-level courses. This research will reinforce the recommeseider.

   Meanwhile, I appreciate your ongoing support in reading this Blog.  As always, if you have comments or questions, please contact me at your convenience. 

   And please feel free to take advantage of my standing offer for a free, one-hour conference call consultation with you and your team at any time.

Best,

Howie

Saturday, September 14, 2019

Inequities in the Distribution of School Funds to Individual Students Revisited: Required Transparency, ESEA/IDEA Funding Flexibility, and Multi-Tiered Efficacy

Reminding Schools of their Responsibilities and Possibilities


 [CLICK HERE for the Full Blog Message]

 Dear Colleagues,


Introduction

   Earlier this Spring, near the 65th anniversary of the landmark Brown v. Board of Education case, I wrote two Blog messages addressing the national issue and reality of how students and schools are inequitably funded relative to their students’ psychoeducational and multi-tiered academic and behavioral needs. 

   One of the “bottom lines” discussed was that:

While segregated educational facilities were deemed by the Supreme Court to be inherently unequal, the quality of instruction and the availability of resources and money in today’s schools—for many students from poverty and students of color—is unequal.

[CLICK HERE for Part I of this Series:

Solving Student Crises in the Context of School Inequity: The Case for “Core-Plus District Funding” (Part I). When Schools Struggle with Struggling Students: “We Didn’t Start the Fire.”]
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[CLICK HERE for Part II of this Series:

The Journey toward Real School Equity: Students’ Needs Should Drive Student Services … and Funding (Part II). The Beginning of the Next School Year Starts Now: The “Get-Go Process”

   In this new Blog message, we will summarize the two previous Blog messages above.  Then, we will review two critical parts of the Elementary and Secondary Education Act (ESEA):  (a) the requirement that districts and schools annually report how they are using their federal funds relative to administration, personnel, and—most importantly—to directly address students’ multi-tiered needs; and (b) the flexibility within ESEA specific to equitable per pupil funding. 

   In this latter section, we will include the flexibility within the Individuals with Disabilities Education Act (IDEA, 2004) that allows districts to spend up to 15% of their federal special education funds on preventative services and supports to students not identified with disabilities.
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Summarizing the Recent Inequitable School Funding Series

   In Part I of this Series, we provided data from a number of sources showing that high-poverty non-white schools in this country receive significantly less money per pupil each year than high-poverty white schools and middle or upper class dominated schools, respectfully.  While this involves approximately 12.8 million students—many of them attending schools in urban settings—this is a nationwide problem.

   Because of the financial inequity, these high-poverty schools have fewer resources than middle or upper class-dominant schools, and they are typically staffed by less experienced teachers who have more skill gaps, and who resign from their schools more often and after fewer years in-rank.  In addition, the students in these schools typically have less access to high level science, math, and advanced placement courses, and less access to needed multi-tiered academic and social, emotional, and behavioral services, supports, programs, and interventions.  

   Correlated with the poverty, many of these students exhibit health, mental health, academic, and social, emotional, and behavioral challenges, that also triangulate with stress and trauma—including the impact of hunger and poor nutrition, parental incarceration and loss, abuse and neglect, and the exposure to violence and drugs.

   From a school perspective, all of this translates into lower numbers of academically-proficient students, and schools that are either in their state’s ESEA-driven school improvement programs or that are rated at the low end of their state’s school report card scale.

   From a student perspective, all of this translates into negative effects on students’ school attendance and expectations, classroom engagement and motivation, academic readiness and proficiency, emotional self-control and prosocial interactions and, ultimately, their high school graduation and readiness for the workforce. 

   Part I ended with a plea for systemic changes relative to federal, state, and district funding policies, principles, and practices.  We recommended a  “Core-Plus Funding” process whereby all schools in a district receive the core funding needed for student success, but where the schools with additional or significant student needs receive, annually, the additional funds and resources needed for their success.
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   In Part II of this Series, we discussed a new report showing the impact of poverty and the importance of inequitable school funding.

   Because this Blog message was published at the end of the 2018-2019 school year, we also described the “Get-Go” process as an effective way for districts to identify the “Plus” part of their funding by functionally reviewing the status and needs of all the students in their respective schools. 

   In addition to its contribution to strategic and differential budgeting, we have also used the Get-Go process across the country to help districts and schools identify and prepare for their diverse, multi-tiered student needs for the first day of the new school year. 

   Finally, we described how the Get-Go process helps districts know how to best deploy and align existing staff, services, and support—or determine what new staff to hire and assign—to meet as many student needs as possible.

[CLICK HERE for the Full Blog Message with More Complete Descriptions and Citations of these two Earlier Blogs]
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Revisiting the Importance of Equitable School Funding

  On May 15, 2019, Georgetown University’s Center on Education and the Workforce published a study, Born to Win, Schooled to Lose: Why Equally Talented Students Don’t Get Equal Chances to Be All They Can Be.

   This study used data from a number of national longitudinal databases to investigate the impact of the socio-economic status of 21,260 kindergarten and over 15,000 10th grade students on their college and career outcomes. 

   This study is important to our discussion of inequity because it (a) demonstrates that socio-economic inequity for students in kindergarten has dire, long-term effects; and (b) that schools with large numbers of poor students (many of whom are students of color) need more (not fewer—as shown in Part I of this Blog series) resources and funding to address these students’ needs.

[CLICK HERE for the Full Blog Message that describes the Key Findings from this Study]
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ESEA Requirement: Reporting School Funding on Each State and District Annual Report Cards

   According to a 2018 report by the Aspen Institute, Ensuring Equitable Funding, ESEA requires:
  • States and school districts to produce report cards that include information about per-pupil expenditures, including actual personnel and non-personnel expenditures disaggregated by source of funds at the district and school levels.
  • Districts are required to conduct resource reviews for schools that are identified for comprehensive support and improvement and additional targeted support and improvement.

   Given these requirements, this document suggests that Districts have an opportunity “to drive bigger conversations around equitable funding, expanding the equity conversation beyond funding to include other dimensions affected by funding like teaching, school design, instructional support, and central services.”

   This Report goes on to encourage District leaders to meet the requirements above by reporting the financial information in the most meaningful and parent/community-friendly ways by:
  • Using comparative data to understand relative differences—not just absolute values.
  • Sharing school resource data in context of school need and school performance.
  • Including explanatory data that show what drives differences in spending levels across schools.
  •  Integrating other dimensions of resource equity to show the ways in which financial resources are (or are not) invested in strategies and structures that drive student achievement.
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   Comment.  For some districts and schools across the country, the reporting of the now-ESEA-required financial data will be the first time that the public will truly know (if reported—as above—in functional, user-friendly ways) how public funds are being used to “run” the school district and to educate its students.  Consistent with the Aspen recommendations above, this will hopefully fuel a discussion—for both district personnel and the different constituencies within the community—as to how to best use the available funds as most-directed toward all students’ academic and social, emotional, and behavioral progress and proficiency.

   Hopefully, from a “Core-Plus Funding” perspective, districts and schools will provide information on how much “Core” money each school needs to run an effective educational program, and how much money is needed to support each school relative to district administration.  “District administration,” however, should include not just district personnel—but also, for example, the physical plant and infrastructure costs of maintaining the school buildings themselves, professional development and technology, and transportation, safety, and security.

   On the “Plus” side, hopefully districts will provide detailed (but confidential) information on the different “multi-tiered intensities of student needs” in each of its schools.  This information should look beyond (but include) information on poverty to also include other student variable organized by gender and race.

[CLICK HERE for the Full Blog Message with these Specific Variables]

   The Plus information will help both district and community folk to discuss “equity and excellence” issues from a data-based perspective—describing and personalizing the needs of different students—rather than just from a philosophical or conceptual perspective.

   All of this helps to add depth and breadth to the financial information that must be reported.  All of this helps to move beyond reporting the information for compliance purposes, to using the information for strategic planning and student-centered decision-making.
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ESEA and IDEA Flexibility: How Funds Can Be Used to Enhance Equity

   ESEA allows districts to use their federal funds in flexible ways to enhance equity.  The Aspen Institute report cites some possible examples.

[CLICK HERE for the Full Blog Message for this Overview]

   Beyond the Aspen recommendations, there are at least two additional ways available to districts such that they can use their federal funds in more flexible ways to enhance the equitable needs of their students.

   The first way involves ESEA’s Part E—Flexibility for Equitable Per Pupil Funding (Section 1501).  According to ESEA, “The purpose of the program under this section is to provide local educational agencies (i.e., school districts) with flexibility to consolidate eligible Federal funds and State and local education funding in order to create a single school funding system based on weighted per-pupil allocations for low-income and otherwise disadvantaged students.

   While this is a demonstration program that will involve no more than 50 districts nationwide, this option is available to districts who want to address the needs of low-income and “otherwise disadvantaged students.”
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   The second way has been available to all districts nationwide since the passage of IDEA in 2004.  In Section  613(f)(2)(A), IDEA—according to the U.S. Department of Education—allows the following:

LEAs may use up to 15% of their IDEA Part B funds for coordinated early intervening services (CEIS) to assist students in grades K through 12 (with an emphasis on K through 3) who are not currently identified as needing special education and related services but who need additional academic and behavioral support to succeed in a general education environment.

CEIS funds can be used to provide professional development to educators who are responsible for helping children who need additional academic and behavioral support succeed in a general education environment or to provide direct interventions to children who need academic and behavioral support.

CEIS funds may be used in coordination with ESEA funds but must supplement, and not supplant, ESEA funds for those activities. Title I schoolwide school may use, to carry out the schoolwide project, an amount of IDEA funds that is the same proportion of the total cost of the project as the number of children with disabilities benefiting from the program is to the total school population participating in the program.

In a Title I schoolwide school that consolidates Federal funds (e.g., ESEA, IDEA, etc.), a school may use those funds for any activity in its schoolwide plan without accounting separately for the funds. The schoolwide school needs to ensure that children with disabilities continue to receive FAPE, but would not need to show that IDEA funds were spent only on allowable special education and related services expenditures.

   While I understand that the Federal government has under-funded special education services since the beginning of IDEA (Public Law 94-142 passed in 1975), this provision means that, for example, special education teachers who are funded exclusively with IDEA funds and who are co-teaching in a general education classroom or even teaching in their own self-contained classroom can still provide instructional or intervention services to general education (especially at-risk) students.

   This similarly means that related service professionals like school psychologists, social workers, speech pathologists, and occupational or physical therapists—who, once again, are fully funded by IDEA money—also can provide some services to non-disabled students.

   These professionals, for example, might be most useful as instructional or intervention consultants to general education teachers—helping them (a) to better understand academically struggling or behaviorally challenging students, and/or (b) to design and implement classroom-based interventions that will address these students’ needs.

   The bottom line here is that there is flexibility within both ESEA and IDEA to allow personnel and funds to more flexibly and equitably address students who need more multi-tiered strategic or intensive services, supports, strategies, or programs.  Even if districts and schools do not adopt Core-Plus Funding approaches, they still can tap into these (and other) flexibilities.
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Summary

   In this Blog message, we briefly summarized two previous Blog messages—written this past Spring addressing the importance of using educational funds, resources, and personnel in more equitable and student-centered ways.  We then reviewed two critical parts of the Elementary and Secondary Education Act (ESEA):  (a) the requirement that districts and schools annually report how they are using their federal funds relative to administration, personnel, and—most importantly—to directly address students’ multi-tiered needs; and (b) the flexibility within ESEA specific to equitable per pupil funding. 

   In this latter section, we highlighted the flexibility within the Individuals with Disabilities Education Act (IDEA, 2004) that allows districts to spend up to 15% of their federal special education funds on preventative services and supports to students not identified with disabilities.

   Throughout the entire discussion, the bottom line has been:

While there are still challenges at the federal and state levels, districts and schools may have more permission and flexibility to distribute their funds to differentially address different student needs than they actually take.

   A corollary message has been that:

When parents and community leaders realize how funds in their district and schools are being used (if they are being used inequitably, wastefully, or in ways that do not largely or directly impact students), districts and schools may have to change their funding processes anyways—due to the public pressure.
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   High-poverty non-white schools in this country receive significantly less money per pupil each year than high-poverty white schools and middle or upper class dominated schools, respectfully.  This involves approximately 12.8 million students.

   Because of the financial inequity, these high-poverty schools have fewer resources than middle or upper class-dominant schools, and they are typically staffed by less experienced teachers who have more skill gaps, and who resign from their schools more often and after fewer years in-rank.  In addition, the students in these schools typically have less access to high level science, math, and advanced placement courses, and less access to needed multi-tiered academic and social, emotional, and behavioral services, supports, programs, and interventions.  

   This Blog has argued that there are ways to address these circumstances.  Not to take our federal and state governments off the hook, but this ultimately will be a local decision enacted by individual districts and their schools.  In the end, districts need to consider the implementation and funding of multi-tiered services, supports, and interventions that are based on student need and that follow the students regardless of the schools that they attend. 

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   I understand the challenges.  But I consult weekly with schools across the country that are taking on these challenges.

   As always, I appreciate those of you reading these thoughts.  If you have comments or questions, please contact me as desired.  And please feel free to take advantage of my standing offer for a free, one-hour conference call consultation with you and your team at any time.

Best,

Howie