States Try Harder, But Gaps Persist: High School Exit Exams 2005, Impacts on English Language Learners

A Congressional Brefing  — November 3, 2005

Background

Half of all states now use or plan to implement exit exams which students must pass in order to graduate. Achievement gaps on these exams remain largely unchanged according to a study by the Washington, D.C.-based Center on Education Policy (CEP). Exit exams are typically required in about three subjects and measure 10th grade level skills and knowledge. By 2012, 72% of all American public school students will be required to take these exams. Due to a heavy concentration of Latino students in states with exit exams, a disproportionate number of minority students (82%) and English Language Learners (87%) will be taking them. The pass rate of ELL students continues to fall 30 to 40 points below the pass rate of other students.

It is increasingly important to identify strategies that will help these young people master the skills required for high school graduation. Early intervention programs can help some younger students, but those who arrive in the United States during high school years may need more intensive support, including in-depth assessment of literacy and language skills, extra instructional time, and efforts to teach literacy across the curriculum.

Dramatic Growth in English Language Learning (ELL) Students

Patricia Sullivan, Director of the Center on Education Policy, drew attention to the increasing importance of this issue when she noted that the Center’s study of 2005 exit exams has been downloaded 100,000 times from the CEP website.  This year’s study focused on ELL students in part because of the dramatic growth in this population: a 500% increase in North Carolina, for example, where students must pass five end-of-course exams.  The growth in ELL students is a nationwide phenomenon. While the general student body has grown 11%, the percentage of ELL students has grown by 84%.

The gaps in test scores are huge, said Sullivan: “Thirty to forty percent lower than the general student body. What are we testing? Are we testing a student’s ability to read English or do math?”

There are other problems as well.  Sullivan said that in Alabama 98 percent of ELL students pass the exit exam the first time, but this suggested the test is a minimum competency exam that is too easy. Sullivan cited an unnamed Midwestern state in which the number of ELL students passing statewide assessments suddenly skyrocketed. In the push for data to meet No Child Left Behind (NCLB) requirements, an administrator acknowledged to Sullivan that the “hard questions were being taken off the tests taken by ELL students.”  Sullivan further noted that some states are using one set of scores for graduation requirements and another higher level of scores for NCLB proficiency reporting. Essentially, Sullivan said, “You can graduate, but not be proficient.”

Accountability for ELL Students

Sullivan said the good news is that ELL students are not being exempted from the exams, so school systems are being held accountable for these students. She also said that when students move beyond ELL status, they have a higher success rate on exit exams than the average student population. Nonetheless, she said, “we need to figure out what these tests mean for these students and whether the exams have become a gateway to higher education.”  Another issue is the impact of the exams on drop-out or “push-out” rates (students who are encouraged to leave school). Sullivan suggested that ELL students may be forced to seek GEDs.

Although the ELL population is increasingly on people’s radar screens, Sullivan said there remains a lack of consistent graduation rate information, a common definition of “ELL Student,” or longitudinal reporting that would show how these students are performing over time. CEP is trying to fill in some of the information gaps. Interviews are being conducted with students and parents in districts with a high percentage of ELL students. CEP is also trying to determine how many ELL students never even take the exit exams. Most states allow students to take the exams repeatedly until they pass, but no one tracks students who return after their expected graduation year. Sullivan said she believes ELL students are generally not coming back to take an exit exam if they left school in 10th or 12th grade.

Strategies that Work

ELL students are themselves a mixed group. Some speak no English, others speak English, but not well enough to meet academic demands. More than half the elementary school children identified as ELL were born in the United States, but do not speak English. Strategies to deal with this population are not well-developed.  Although some school districts offer remedial programs, there is no remediation designed specifically for ELL students.  Some states are offering content earlier (such as algebra courses in 8th grade) and others are offering ELL students the kinds of accommodations available to students in special education (extended time, changing the testing location, etc.). Other states have created glossaries in the students’ native language, but Sullivan said that this requires these students spend more time translating or interpreting questions rather than answering them.  Other states assign a bilingual educator to grade open-ended questions written by ELL students so that the grader can better understand what the student is trying to communicate. Some school systems are re-orienting staff to work with families, not just students.

There is anecdotal evidence that students who use online assessment review programs do better on standardized assessments. However, Sullivan said these online tools become another form of teaching to the test. Students become familiar with the test format and the style of questioning, and as a result, they tend to do better, but they may not be learning more.

The International Middle College High School at LaGuardia Community College is an example of a school that offers an intensive curriculum with content in the students’ native language.  After approximately six months of intensive language support, students are prepared and ready to transition to classes in English.

Federal Policy Implications

Sullivan said the U.S. Department of Education is not paying sufficient attention to the growing numbers of ELL students. “There is a federal role in supporting work at the state level in this area,” said Sullivan.  The strongest advocates for this population right now are teachers and community organizations focused on immigrant populations. Faith-based organizations are also helping families adapt to living in the United States and are taking a leadership role in focusing on ELL students.

Other Resources

The full CEP report is available online at:
http://cep-dc.org/highschoolexit/reportAug2005/hseeAug2005.pdf

Reading to Achieve: A Governor’s Guide to Adolescent Literacy. National Governors Association Center for Best Practices. http://www.nga.org/Files/pdf/0510GOVGUIDELITERACY.PDF

Creating a Culture of Literacy: A Guide for Middle and High School Principals. National Association of Secondary School Principals.
http://www.principals.org/s_nassp/bin.asp?CID=62&DID=52747&DOC=FILE.PDF

Presenter

Patricia Sullivan, Director, Center on Education Policy, joined CEP’s staff in January 2005. She currently serves as the Director under the leadership of President and CEO Jack Jennings. Sullivan is responsible for working with the new Administration staff, Capitol Hill, and the education policy community on providing objective information on the effects of the No Child Left Behind Act. She will also broaden the work of the Center with the states to provide assistance as they carry out the implementation of NCLB.

Prior to joining the Center, Patty served as the Deputy Director for Advocacy and Strategic Planning at the Council for Chief State School Officers. From 1992 to 2002, Ms. Sullivan served numerous roles at the senior education staff person at the National Governors Association (NGA).

Sullivan also supported the nation’s governors during the National Education Summits that occurred during the 1990’s and has served as the founding Executive Director of Achieve, Inc. Prior to joining NGA, Ms. Sullivan served on the House Subcommittee on Postsecondary Education. She has worked for two Washington-based higher education associations.

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