Every State Left Behind, NY TIMES, November 7, 2005
By DIANE RAVITCH

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WHILE in office, Presidents George H. W. Bush and Bill Clinton both called for national academic standards and national tests in the public schools. In both cases, the proposals were rejected by a Congress dominated by the opposing party. The current President Bush, with a friendly Congress in hand, did not pursue that goal because it is contrary to the Republican Party philosophy of localism. Instead he adopted a strategy of "50 states, 50 standards, 50 tests" - and the evidence is growing that this approach has not improved student achievement. Americans must recognize that we need national standards, national tests and a national curriculum.

The release last month of test results by the National Assessment of Educational Progress, which is part of the Department of Education, vividly demonstrated why varying state standards and tests are inadequate. Almost all states report that, based on their own tests, incredibly large proportions of their students meet high standards. Yet the scores on the federal test (which was given to a representative sample of fourth and eighth graders) were far lower. Basically, the states have embraced low standards and grade inflation.

Idaho claims that 90 percent of its fourth-grade students are proficient in mathematics, but on the federal test only 41 percent reached the Education Department's standard of proficiency. Similarly, New York reports that nearly 85 percent of its fourth graders meet state standards in mathematics, yet only 36 percent tested as proficient on the national assessment. North Carolina boasts an impressive 92 percent pass rate on the state test, but only 40 percent meet the federal standard.

In fourth-grade reading, the gaps between state and national reports are equally large. Georgia claims that 87 percent of its pupils are proficient in reading, but only 26 percent reached that level on the national exam. Alabama says that 83 percent of its students are proficient, but only 22 percent meet the federal standard.

The same discrepancies are found in the scores for eighth-grade reading, where Texas reports that 83 percent met the state standard, but the federal test finds that only 26 percent are proficient. Tennessee and North Carolina both claim that 88 percent are proficient readers, whereas 26 percent and 27 percent, respectively, met that mark on the federal test.

Why the discrepancies? The states function in a political environment. Educational leaders and elected officials want to assure the public that the schools are doing their jobs and making progress. The federal testing program, administered for the past 15 years by an independent, bipartisan governing board, has never been cowed by the demands of parents, school officials and taxpayers for good news.

In the No Child Left Behind law of 2001, Congress left it to each state to develop its own standards and tests, but added that the tests given by National Assessment of Educational Progress should serve as an external gauge of national and state-level achievement. The federal tests are considered the gold standard for good reason: they are the product of a long-term federal investment in research and development. Unlike the state tests, the federal program tries to align its performance standards with international education standards. Many states model their testing on the national program, but still cling to lower standards for fear of alienating the public and embarrassing public officials responsible for education.

The price of this local watering-down is clear. Our fourth-grade students generally do well when compared with their peers in other nations, but eighth-grade students are only average globally, and 12th graders score near the bottom in comparison with students in many European and Asian nations. Even our students who have taken advanced courses in mathematics and physics perform poorly relative to their peers on international tests.

Last month, the National Academy of Sciences released a report warning that our nation's "strategic and economic security," as well as our leadership in the development of new technologies, is at risk unless we invest heavily in our human capital; that is, the education of our people. The academy report made clear that many young Americans do not know enough about science, technology or mathematics to understand or contribute to the evolving knowledge-based society. The best way to compete in the global economy, the report maintained, is to ensure that American workers are "the best educated, the hardest-working, best trained, and most productive in the world."

It is fair to say that we will not reach that goal if we accept mediocre performance and label it "proficient." Nor will we reach that goal if we pretend that mathematics taught in Alaska or Iowa is profoundly different from the mathematics taught in Maine or Florida, or for that matter, in Japan and Hungary.

Unfortunately, the political calculations that resulted in the No Child Left Behind law adopting a strategy of letting the states choose their own standards and tests remain the reality. In general, Republicans are wary of national standards and a national curriculum, while Democrats are wary of testing in general. Both parties must come to understand that the states are not competing with each other to ratchet up student achievement. Instead, they are maintaining standards that meet the public's comfort level.

America will not begin to meet the challenge of developing the potential of our students until we have accurate reporting about their educational progress. We will not have accurate reporting until that function is removed from the constraints of state and local politics. We will be stuck with piecemeal and ineffective reforms until we agree as a nation that education - not only in reading and mathematics, but also science, history, literature, foreign languages and the arts - must be our highest domestic priority.

Diane Ravitch, a research professor at New York University and fellow at the Brookings Institution, was on the governing board of the National Assessment of Educational Progress from 1997 to 2004.


November 26, 2005
Students Ace State Tests, but Earn D's From U.S.
By SAM DILLON, NY TIMES

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After Tennessee tested its eighth-grade students in math this year, state officials at a jubilant news conference called the results a "cause for celebration." Eighty-seven percent of students performed at or above the proficiency level.

But when the federal government made public the findings of its own tests last month, the results were startlingly different: only 21 percent of Tennessee's eighth graders were considered proficient in math.

Such discrepancies have intensified the national debate over testing and accountability, with some educators saying that numerous states have created easy exams to avoid the sanctions that President Bush's centerpiece education law, No Child Left Behind, imposes on consistently low-scoring schools.

A comparison of state test results against the latest National Assessment of Educational Progress, a federal test mandated by the No Child Left Behind law, shows that wide discrepancies between the state and federal findings were commonplace.

In Mississippi, 89 percent of fourth graders performed at or above proficiency on state reading tests, while only 18 percent of fourth graders demonstrated proficiency on the federal test. Oklahoma, North Carolina, Alabama, Georgia, Alaska, Texas and more than a dozen other states all showed students doing far better on their own reading and math tests than on the federal one.

The chasm is significant because of the compromises behind the No Child Left Behind law. The law requires states to participate in the National Assessment - known to educators as NAEP (pronounced nape) - the most important federal measure of student proficiency.

But in a bow to states' rights, states are allowed to use their own tests in meeting the law's central mandate - that schools increase the percentage of students demonstrating proficiency each year. The law requires 100 percent of the nation's students to reach proficiency - as each state defines it - by 2014.

States set the stringency of their own tests as well as the number of questions students must answer correctly to be labeled proficient. And because states that fail to raise scores over time face serious sanctions, there is little incentive to make the exams difficult, some educators say.

"Under No Child Left Behind, the states get to set the proficiency bar wherever they like, and unfortunately most are setting it quite low," said Michael J. Petrilli, a vice president of the Thomas B. Fordham Foundation, which generally supports the federal law.

"They're telling the public in their states that huge numbers of students are proficient, but the NAEP results show that's not the case," Mr. Petrilli said.

Other educators and experts give different reasons for the discrepancy between state and federal test results. A Standard & Poor's report this fall listed many reasons for such differences, among them that the National Assessment is a no-stakes test, while low scores on state tests lead to sanctions against schools.

The report noted that the National Assessment is given to a sampling of students, whereas schools administer state tests to nearly all students. The tests serve different purposes, with the federal one giving policy makers a snapshot of student performance across the nation, while state tests provide data about individual performance. Because of these differences, some state officials say it is unfair to compare the test results.

But the report by Standard & Poor's, which has a division that analyzes educational data, also noted some states' tests are just easier.

G. Gage Kingsbury, director of research at the Northwest Evaluation Association, a nonprofit group that administers tests in 1,500 districts nationwide, said states that set their proficiency standards before No Child Left Behind became law had tended to set them high.

"The idea back then was that we needed to be competitive with nations like Hong Kong and Singapore," he said. "But our research shows that since N.C.L.B. took effect, states have set lower standards."

Not all have a low bar. In South Carolina, Missouri, Wyoming and Maine, state results tracked closely with the federal exam.

South Carolina is a state that set world-class standards, Mr. Kingsbury said. The math tests there are so difficult that only 23 percent of eighth graders scored at or above the proficiency level this year, compared with 30 percent on the federal math test. South Carolina officials now fear that such rigor is coming back to haunt them.

"We set very high standards for our tests, and unfortunately it's put us at a great disadvantage," said Inez M. Tenenbaum, the state superintendent of education. "We thought other states would be high-minded too, but we were mistaken."

South Carolina's tough exams make it harder for schools there to show the annual testing gains demanded by the federal law.

This year less than half of the state's 1,109 schools met the federal law's benchmark for the percentage of students showing proficiency, a challenge that will get tougher each year. As a result, legislators are pushing to lower the state's proficiency standard, Ms. Tenenbaum said, an idea she opposes.

Because of the discrepancies, several prominent educators are now calling for a system of national testing that counts, like those at the heart of educational systems in England, France and Japan.

"We need national standards and national tests," said Diane Ravitch, a professor at New York University who is a former member of the National Assessment's board. "I conclude that states are just looking to make everybody feel good."

Ms. Tenenbaum too says the differences among states have convinced her of the need for a national test. "I think we should all just take the NAEP," she said. "Get it out of the states' hands."

But Representative John A. Boehner, chairman of the House Committee on Education and the Work Force, defended states' rights to define proficiency as they see fit and said that over time comparisons with the federal test would force them to draw up better tests.

"The bright lights of accountability are going to shine on the states who are kidding themselves," said Mr. Boehner, Republican of Ohio.

The battle lines have long been sharp in the testing debate. Most corporate leaders favor national testing, said Susan Traiman, a director at the Business Roundtable, a group that represents corporate executives.

Opponents include liberal groups that dislike all standardized testing; the testing industry itself, which has found lucrative profits in writing new exams for all 50 states; and political conservatives who fiercely resist any intrusion on states' rights to control curricula and tests.

Margaret Spellings, the secretary of education, says that the comparison of state and federal tests provides useful information. "It allows us to shine a light," she said. "This is a truth-in-advertising type deal."

But Ms. Spellings has declined to criticize states whose tests appear to overstate the percentage of their students who are proficient. The law leaves it to states to calibrate their accountability systems, including how difficult they make their exams, she said. "We're not going to sit up in Washington and look at all those moving parts," Ms. Spellings said.

The National Assessment uses three performance levels to classify student results: advanced, which denotes superior performance; proficient, which indicates that students have "demonstrated competency" and basic, which indicates students have attained only "partial mastery of prerequisite knowledge and skills." Many students also score below basic, which the National Assessment's governing board does not classify as an achievement level.

On Oct. 19, the day the federal results were released, Ms. Spellings urged reporters to compare the percentage of students performing at the proficiency level on state tests with the percentage of students performing at the basic level on the federal test.

Many state officials said they also preferred that comparison, which greatly softens the discrepancies. In Tennessee, for instance, the 66-point gap between the federal and state results in eighth-grade math shrinks to just 26 points if the state results are compared with the federal measure of basic skills.

"NAEP's basic is comparable to our proficient," said Kim Karesh, a spokeswoman for the Tennessee Department of Education. "Now whether Tennessee's test is stringent enough is something that we're reviewing constantly. Nobody here would say we have a perfect test."

Officials in many other states whose scores differed sharply from those of the National Assessment cried foul over the very idea of comparing the results.

"The comparison to NAEP is not fair," said Mitch Edwards, a spokesman for the Department of Education in Alabama, where 83 percent of fourth-grade students scored at or above proficient on the state's reading test while only 22 percent demonstrated proficiency on the federal reading test. "Making comparisons to the NAEP becomes very difficult without giving the impression that some states are not measuring up to others or to the nation."

In Georgia, 83 percent of eighth graders scored at or above proficient on state reading tests, compared with just 24 percent on the federal test. "Kids know the federal test doesn't really count," said Dana Tofig, a spokesman for the State Department of Education. "So it's not a fair comparison; it's not apples to apples."

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