Long after Covid-inspired shutdowns, schools remain chaotic according to recent surveys and umpteen stories of hallway brawls, bus fights, and general mayhem. Teachers have told me it’s a crisis, that we’re accepting as normal in schools behavior that would warrant public outcry or arrest outside their walls. It’s no wonder analysesin recent years have found that stress and behavior topped pay as the primary reasons that teachers were considering leaving, and that they prefer stricter discipline policies.
With disorderly school environments that are at times actively hostile towards the wellbeing of both students and staff, I have a simple question: Where are the unions?
The answer: Nowhere to be seen.
For reasons that I struggle to comprehend, the national teachers unions have fully embraced the weakest approaches to school discipline, the kind that entail few or no consequences for misbehavior. AFT President Randi Weingarten has written against consequences, going so far as to praise the Los Angeles Unified School District for banning suspensions of students who defy their teachers. Of course, another way to describe a prohibition on punishment for defiance is to say that LAUSD has told children that they do not actually need to listen to or respect the adults in the building. Meanwhile, the NEA has published extensive guides and resource lists advising schools to replace punitive discipline with restorative practices.
The NEA also held its annual conference last week, where president Becky Pringle gave a speech that whined about Donald Trump, demanded equitable funding, genuflected before various progressive causes, complained about parents who take umbrage over sexually explicit books in public school libraries, and praised the Portland teacher strike, which included property damage, vandalism, and the publication on the internet of the addresses and contact information of various board members as a pressure campaign for higher wages.
No mention was made of student behavior or learning loss or much of anything else that goes on in classrooms really. Ironically, she spoke about the “joy of teaching” and “educator respect” while glossing over the very issue that most saps the joy from teaching. And if the NEA does end up discussing discipline policies, as Pringle has suggested it might, it will almost certainly do so counterproductively. They have consistently denigrated discipline in the past.
One of the foremost reasons for even having unions in the first place is for them to defend the interests of their members. Given that surveys—even those that unions themselves carry out—consistently find that student behavior is a primary reason that educators list as they consider leaving the profession, the unions ought to be a leading voice of sanity on this issue. Unfortunately, I doubt any discussion of our behavioral debacle is coming. So far as I can tell, two threads have resulted in this abdication of duty.
First, there’s a reaction against the popularity of zero-tolerance policies in the 1990s and early 2000s. Weingarten herself confesses her former support of these (supposedly) anachronistic policies. They’re the bugaboo that justifies an overcorrection. I’ll concede that the no-excuses trend went too far—handing out demerits for glancing at the clock—but the reaction has advanced to an opposite and equally incorrect extreme.
Second, a concern for equity and racial injustice has led administrators, policymakers, and activists to embrace the excesses of the DEI-social-justice bandwagon and thereby sluff off any remaining commitment to sanity. The NEA has published numerous guides and resource pages that make copious mention of the so-called school-to-prison pipeline—a laudable concern, but acknowledging disparities is not itself a justification for any policy.
Indeed, solutions popular with unions may only worsen the problem. When schools abolish suspensions for defiance or move from punitive to restorative practices, they create the kinds of chaotic, ungovernable schools that create lasting disparities between them and students educated in more orderly classrooms. Numerous studies confirm that misbehaving students are detrimental to the learning of their peers, and so by refusing to hold students accountable for their actions, restorative justice advocates construct a whole new school-to-prison pipeline. What good does it do Johnny if we keep him from suspensions or expulsions, but his school is full of fights, clamor, and disorder?
Regardless of the reason, I’m waiting for unions to step up and defend teachers. Leading unions have bucked progressive excesses for the good of teachers and children before. For example, in 1967, the UFT went on strike to win teachers more power to manage unruly students in their classroom. More recently, the AFT published a controversial smackdown of the Howard Zinn–ification of American social studies. These unions went on strike over sensible policies and have taken stances to check the progressives in their ranks. They should do so again. If anyone has the proper incentives to pick this fight and the resources at their disposal to pressure real improvements, it’s them. If they don’t, they’ll continue to cede this issue to their opponents. Already, Republicans have overtaken Democrats as the trusted party on education according to polls.
And indeed, there are efforts to support teachers, but it’s from the right—the side that’s usually associated with antagonism to educators. Most recently, Louisiana State Superintendent Cade Brumley released his “Let Teachers Teach” set of policy recommendations with an entire section dedicated to student discipline. These include removing discipline rates from school accountability systems so that administrators can maintain order without taking a hit in the state accountability system, empowering principals and school leaders to remove disruptive students from the classroom, and no longer asking teachers to play-act mental health professionals. Other conservative-led localities and states such as Oklahoma, Florida, and Houston have done likewise.
Albert Shanker infamously (if apocryphally) once quipped that, “When schoolchildren start paying union dues, that’s when I’ll start representing the interests of school children.” Now there’s a convincing case to be made that they don’t even represent teachers anymore. If their membership continues to plummet, they’ll have only themselves to blame.
In my final college semester, I had the privilege of being a full-time student teacher at a Catholic middle school, teaching seventh and eigth grade history and theology. It was the highlight of my life. The students were curious, polite, and thoughtful, caring to one another and welcoming to me. The boys in particular took a liking to me, and staying after school for sports club and playing recess football with them was a blast. But in the classroom, nearly all of the top students were girls.
My experience is not merely anecdotal but part of larger educational trends. Boys are not faring as well as girls in school. Women outperform men in school in terms of school readiness in kindergarten, GPA, and increasingly in college enrollment and degree attainment. According to Richard Reeves, of the top 10 percent of students, two-thirds of them are girls. On the flip side, boys comprise nearly two-thirds of the bottom 10 percent of students. Though boys outperform girls overall on standardized tests such as the SAT and ACT, girls perform better on the written and verbal portions of the exams while boys outperform on STEM subjects.
Not only from a grades standpoint but also a disciplinary standpoint, boys are not faring as well. Boys are roughly 2.5 times more likely to be suspended or expelled from school than girls; of all expulsions from public school in the 2017–18 school year (the last year the National Center for Education Statistics has available data), 72 percent of all expulsions and 70 percent of suspensions were of boys.
Why do these disparities matter?
Men who lag behind in school are less likely to graduate high school than girls. More high school dropouts means more crime, more suicides (even after controlling for gender disparities in the suicide rate), greater poverty, and greater unemployment. Rather than producing productive, well-adjusted citizens, high-school dropouts threaten the social fabric and increase stresses on the tax base.
At a cultural level, marriage suffers. Charles Murray showed in Coming Apart that people in “Fishtown” who were non-college-educated were much more likely than the college-educated “Belmont” sample to never marry, be divorced, and have children living with a single parent, and less likely to report a “very happy” marriage. Those in “Belmont” suffered very little of these negative effects, and the single-motherhood rate for highly educated women was very low. We should try to arrest the deterioration of life outcomes for the lower and working classes that comprise the demographics of “Fishtown,” but absent that mighty task, reversing the decline in male college attendance is an important priority for helping build strong families with the necessary elements for success and stability. To do this, we must start earlier.
What drives these disparities?
It should be stated at the outset that no one intends these outcomes. America’s schools today intend to provide an equal playing field and give equal treatment to boys and girls. However, attempting to create a completely equal environment can lead to unequal outcomes because boys and girls react differently to the same sets of policies, and exhibit generally different behavior. For instance, if boys and men are more aggressive, competitive, and prone to antisocial behaviors (the vast disparities in the prison population show that this is true at the extreme), then it makes sense that they would be more likely to be suspended or expelled from school, given a “zero-tolerance” policy regarding playground fights.
But are there policies that give girls a natural advantage in reading or social studies? As recently as 2023, a study by Emil Smith and David Reimer showed that girls spend more time reading outside of school than boys; starting in fourth grade, girls read 100,000 more words than boys, which adds up over time. However, Mike Petrilli has shown that this gap does not emerge sui generis in fourth grade, but develops roughly from parity starting in kindergarten and is driven by teacher perceptions of literacy ability being skewed by gender. Without anyone intending it, there are policies that affect this outcome, specifically in curricular decisions about reading: Schools overwhelmingly assign fiction books.
There is research on reading interest in school-age children that explains the problem of over-assigning fiction. A 2021 study by Chantal Lepper, Justine Stang, and Nele McElvany showed that girls were more interested in fiction than boys, and boys were more interested in non-fiction books than fiction (though both boys and girls were equally interested in non-fiction). Boys were more interested in war, comedy, sports, and science fiction and more excited about informational texts, whereas girls preferred narrative books and romantic stories. According to Deloitte, boys are also far less likely to read books by female authors or with female protagonists, but girls were willing to read books written by men and with male protagonists. Lepper, Stang, and McElveny’s findings showed the same pattern, and actually showed that girls had a higher interest in books with male protagonists than boys!
As for what is being read in schools today, it is overwhelmingly fiction. I used Renaissance’s What Kids are Reading: 2024 Report, which shows the top books for grades K–12 in every state, to analyze what is being read, looking at the breakdown between fiction and non-fiction works in the top ten for grades 5–12 in each state. Overwhelmingly, there was little to no non-fiction on offer. Only two grades in the entire country had five non-fiction books in the top ten. Six grades had four non-fiction books, seven grades had three, thirty-five had two, and ninety had one non-fiction book; 213 grades had only fiction in the top ten.[1] Of the non-fiction books, it was overwhelmingly memoirs, featuring a narrative structure more appealing to girls.
What can be done?
There is much to be said about possible interventions: the importance of recess, the need for more male teachers, and more hands-on activities such as labs—or even resurrecting shop classes. Petrilli’s research—in addition to pointing out the need for more male educators—suggested that teacher bias in literacy expectations drove disparities in literacy. But perhaps the bias in teacher perception is driven by real behaviors rather than the “good girls” stereotype, which is itself driven by student interest and effort because of selected reading materials. From my own experience, the boys did fine, but the girls in general were more engaged learners. More systematic research is needed on what drives teacher perceptions.
I propose a rebalancing of reading material in schools specifically targeted at boys. This is tricky, in part because English classes seek to introduce and immerse students in a literary canon. Everyone reading the same core texts gives stronger cohesion in terms of shared language, ideas, and referents. That said, improving male performance in the classroom is an important goal, and making appeals to boys in terms of reading material is a necessary means to do so.
History and science classes offer the most potential for introducing non-fiction books into the curriculum. If students love and can learn from the musical Hamilton, why not learn from reading Ron Chernow’s Hamilton? Similarly, books like Harry Jaffa’s Crisis of the House Divided lays out detailed arguments on each side of the “Lincoln-Douglas debates,” offering a potential launchpad for reworking those debates in the modern classroom. The Barnes & Noble science section offers a wide array of contemporary reads interesting to most boys. In English classes, making appeals to books with male protagonists would be worthwhile for helping engage male reading interest.[2]
After my first publication of this article at the Institute for Family Studies, Katya Sedgwick replied in The American Mind suggesting that history and science are subjects already covering non-fiction, instead arguing for the recovery of literary classics, poetry, and fantasy tales. Classic literature, which features many male protagonists, also gives romantic themes (such as that of Tom Sawyer and Becky Thatcher in Mark Twain’s classic The Adventures of Tom Sawyer) that appeal to women and reveal important teachings regarding gender roles. Rather than classics, modern literature with female leads promotes confusing “girl-boss” mantras, which kills romantic stories and inspires more radical political action—and in which most boys have no interest because it has nothing to say to them other than “step aside; the future is female.”
I strongly agree with her critiques and suggestions for the cultural and formative reasons she mentions, but I will add that more reading of books outside of textbooks—biographies, period histories, political histories, works of political philosophy—would be beneficial additions to science and history curricula. English should be left for poetry, fantasy, and the classics: Homer, Virgil, Beowulf, Arthur, Chaucer, Shakespeare, and the like.
“Equality” in schools can only go so far. Improving outcomes for boys means utilizing interventions that appeal to boys as boys. For teachers and librarians, preparations for next year can be as simple as restocking libraries with books that boys want to read. For administrators, moving towards subjects, disciplines, and skills that appeal to boys should be introduced back into the curriculum in future years, and recruiting and retaining more male teachers is an important and tangible goal. More generally in our culture, “letting boys be boys” must become a cri de couer for raising our future generation of boys into the successful men that we need.
[1] Taken together, a total of 215 books were in the top ten in my sample, out of a total of 3,530 books (for these calculations, I excluded grade levels in states where no data were available), which means that only 6.1 percent of the books sampled were non-fiction. If we want to know why boys are reading less than girls, this would be it: We aren’t appealing to their interests.
[2] As an aside, The Common Core State Standards call for a rebalancing of reading materials on a 70:30 non-fiction to fiction ratio. Any other issues with Common Core aside, the need for rebalancing on informational texts is a welcome development.
Between 1990 and 2013, the share of students nationally who enrolled in algebra or a similar advanced math course in eighth grade more than doubled to 46 percent. Since 2013, however, the trend has reversed, with just 36 percent of eighth graders enrolled in algebra as of 2022. Successful completion of algebra or related math courses in grade eight can put students on track for calculus and more in high school. Some research finds that, without that early boost, subsequent mathematics achievement shrinks. Yet otherstudies find that broad policies to increase enrollment in early algebra lead to test score declines. Which is it? A recent working paper aims to resolve these conflicting findings.
The research team uses test-score, demographic, course enrollment, and other data from the Oregon Department of Education that include eighth grade students enrolled in any math course during 2014–15 to 2016–17. They had to have seventh grade test scores and attend schools with fifty or more eighth graders. Statewide, around 31 percent of eighth graders took algebra or advanced algebra. Since there isn’t a formal cutoff score on the test that determines whether eighth graders are enrolled in algebra, the researchers take a number of analytical steps to identify one. In a nutshell, they find various discontinuities in enrollment patterns by each school and run multiple simulations to identify those that represent true cutoff points in terms of algebra enrollment (which sets up the analysis for a regression discontinuity design). They end up with forty-nine schools that enroll roughly 5,500 kids, and control for the fact that schools have varied cutoffs. As intended, they show that placement rates into eighth grade algebra increase by more than 40 percentage points at the respective threshold.
Key results reveal significant increases in eighth grade math test scores of 0.12 standard deviations (SD), and smaller increases in eighth grade English language arts test scores of 0.06 SD for students who score above the cutoff. They also find a decrease in absences that equates to nearly one day. All positive.
Then they look into the extent to which teacher and peer exposure account for the impacts. They find that being placed into eighth grade algebra has a significant impact on the education level, experience, and value added of a student’s eighth-grade math teacher. For example, scoring above the threshold results in the value added of a students’ eighth-grade math teacher increasing by 0.09 standard deviations; moreover, such students are significantly more likely to be exposed to a math teacher in the top quartile of value added. However, the same pattern is not seen in ELA, so they conclude that, while teacher characteristics might account for the math test score effects, they are unlikely to account for ELA test score effects.
Moving on to peers, the results show effects on peer test scores in both ELA and math classrooms, such that eighth-grade algebra course enrollment reduces the number of math class peers who have experienced school suspensions and leads students to be exposed to higher-achieving peers in math classrooms. For example, among students scoring above the cutoff, analysts see large increases (0.55 SD) in the mean seventh-grade math score of a student’s eighth-grade math class. The differences in eighth-grade ELA classes are substantially less.
Because the math courses that students take can shape their course schedules more broadly, they also examine the mean achievement of classmates with which focal students share three or more classes. They find that students in eighth-grade algebra courses move through their school day with significantly higher-achieving peers—and that the magnitude of those peer effects is so large that it could account for the majority of eighth-grade algebra’s observed effects on student achievement.
The bottom line is that students who are prepared for eighth grade algebra or related advanced math courses gain immediate benefits from taking those courses, beyond math learning itself. But whether students are ready to take a higher math course is obviously a pivotal decision, and one for which schools have set varying thresholds. In addition, the mechanisms behind the success of the policy—high-quality teachers and high-achieving peers—are fixed commodities in any given school, at least until we approach staffing and acceleration differently. So simply expanding advanced algebra policies won’t do the trick. If only we had a magic wand.
In the 2022–23 school year, an estimated 26 percent of public school students were chronically absent—a rate almost 10 percentage points higher than pre-pandemic. Though student attendance has rebounded slightly in some states from the Covid-driven absenteeism, it remains a serious issue in schools across the country.
Considering the negative associations between chronic absenteeism and a range of short- and long-term student outcomes (including test scores, graduation rates, and college enrollment), developing a stronger understanding of the factors that impact student attendance is essential. A recent study by researchers from the University of Pennsylvania, North Carolina State University, and Ohio State University contributes to this understanding by investigating the relationship between teacher experience levels and early elementary student attendance.
Using data from the Early Childhood Longitudinal Study, the researchers looked at the reported absenteeism of a nationally representative sample of approximately 18,170 students during their kindergarten (SY 2010-11) through second grade (SY 2012-13) years. (Yes, these data are quite old; more on that below.) The sample included 1,400 “novice” (less than three years of experience) teachers and 16,770 “experienced” (three or more years) teachers.
The authors used regression analysis to determine the relationship between teacher experience and student absenteeism, controlling for several factors, including student and classroom demographics as well as household characteristics. They created child-level fixed effects models to examine within-student variation, or differences in the absenteeism rates of the same students between school years, for students who switched from a novice to experienced teacher (or vice versa). This allowed the researchers to address the possibly of bias being introduced into the results if principals assigned students to novice and experienced teachers in a non-random way (e.g., intentionally assigning more chronically absent students to novice teachers). Each regression was run twice, once with the outcome measure being the number of days missed, and a second time with a binary outcome variable indicating whether a student was chronically absent, accounting for the teacher’s experience level.
Perhaps surprisingly, statistically significant results showed that K–2 students with novice teachers missed fewer days and were less likely to be chronically absent. In addition, the researchers found these effects to be consistent across students with various individual, family, and teacher characteristics, including student English learner status, family poverty level, and teacher race, among others. However, results were stronger for students on the cusp of being considered chronically absent. In addition, to check for robustness, the authors used actual years of experience in place of the “novice versus experienced” distinction as a measure of teacher experience and found that years of experience did not significantly predict student attendance like novice teacher status did.
The authors suggest possible reasons for these outcomes. First, novice teachers may be able to relate better to parents of early elementary students due to a higher likelihood that they are of similar ages. Considering the important role that parents play in early elementary attendance, this ability to build closer connections with parents may facilitate decreases in student absenteeism. Novice teachers may also have received training that focused on newer accountability structures that include indicators like attendance, and on culturally relevant practices that may better engage students.
Despite the inclusion of these possible mechanisms driving the study’s findings, the results remain surprising and should be interpreted with caution. Not only do the findings run counter to the intuitive notion that more experienced teachers are more capable of producing positive outcomes for students, but they also differ from the findings of an earlier study on teacher experience and student absenteeism, creating some grounds for skepticism. In addition, the current study’s data were collected nearly a decade before the pandemic's dramatic impact on student attendance; as such, the insights to be drawn from the study’s results may be less relevant to post-pandemic education.
Nonetheless, the study’s results have important implications for schools hoping to increase attendance rates among early elementary students. First and most importantly, the results suggest that teacher experience itself may not actually impact student attendance rates. However, certain teacher practices or classroom contexts may significantly impact student attendance. Due to the limitations of the data set’s time frame, this relationship should be reanalyzed using more current data to confirm or refute this conclusion. Further research, such as an investigation of the relationship between teacher age and student attendance, or a study focused on the impacts of specific teacher preparation courses or professional development programs attended by teachers on their students’ attendance rates, may also provide important context for the current study’s results and more actionable information for policymakers and school leaders.
The Greater Dayton School opened in Ohio to offer an excellent private option for low-income students. —The 74
England’s doubling down on knowledge-rich curricula, traditional instruction, and firm but fair discipline is gaining notice abroad. —The Economist
Jeers
New York Governor Kathy Hochul signed a bill repealing hard won school reforms, including merit pay and expedited firing processes. —Editorial Board, Wall Street Journal
In a disturbing new trend, students are impersonating teachers online and posting graphic, lewd, inappropriate content. —New York Times
Opponents of the Science of Reading are wrongly trying to convince people that it doesn’t work for English learners. —Alexander Russo, The Grade
With new curriculum, instructional approaches, and staffing models, Houston’s Mike Miles is implementing the most significant overhaul of a public-school system in modern history. —ABC13
Open enrollment is one of the most common forms of school choice, yet its impact goes largely unnoticed. —Jude Schwalbach, Education Next
Heather Peske
7.10.2024
Getty Images/Valeriy_G
The teaching profession may be in for a rough year ahead, but even without the looming layoffs as federal emergency funds come to an end, school districts are not focusing enough on keeping their best talent. And teachers themselves seem bearish on their profession.
A new Educators for Excellence (E4E) survey reports that teachers are less likely to see themselves staying in the teaching profession for their entire career (a nine percentage point drop from 2022). Only 16 percent say they would recommend the teaching profession to others. The new data raises concerns: The notion that teachers themselves would rarely recommend the next generation fill their shoes is foreboding when it comes to attracting, recruiting, and retaining a diverse and effective teacher workforce, especially for the highest-poverty schools.
The impending teacher layoffs, coupled with these survey results, offer an opportunity for school districts and states to focus more on attracting and retaining the teachers who serve students best. In other aspects of society, this is a no-brainer. If a baseball coach has to cut several players, he’s going to do everything he can to keep the highest performers. It should be the same in teaching. When making these painful staffing cuts, districts must prioritize teacher performance and the needs of students.
In the 2012 “Irreplaceables” report, TNTP described these highest-performing teachers as ignored and under-valued. Twelve years later, we have yet to make retention of these irreplaceable teachers a top priority. If states and districts were serious about keeping a diverse, effective teacher workforce, they would set goals and report progress toward those goals publicly. Yet NCTQ found that only twenty-eight states report on teacher effectiveness at the state level, and only twenty-two states do so at the school level—overlooking one of the most important aspects of promoting equity in student learning and leaving unanswered questions about which teachers are staying and which are leaving. When we looked at the state of the states in improving teacher diversity, we found only a handful have set public goals for increasing the diversity of their teacher workforce, and few states collect and publish data on teachers broken out by race and linguistic diversity, making it nearly impossible to assess their progress and challenges.
It’s no big mystery what will attract and retain teachers. Teachers themselves say higher salaries, better benefits, and opportunities to earn more for working in hard-to-staff schools or subject areas would be a good start. And it’s not just their opinions—plenty of research backs that up.
There is some good news here: In a new NCTQ analysis of compensation in large districts across the country, the percentage of large districts offering differentiated pay both for teachers working in hard-to-staff-subjects and high-need schools has more than doubled since 2017. However, the bad news is that only seventeen districts in our sample offer additional compensation that could reach the research-recommended threshold of $5,000. The upshot is that while more districts are putting differentiated compensation options into contracts, the financial increases may not be meaningful enough to matter to teachers.
Being strategic about teacher benefits could also help. For example, few districts offer paid parental leave. To keep strong teachers, we need to stop making them choose between their own families’ wellbeing and their students’ wellbeing. NCTQ found that less than a quarter of districts in our sample (27 of 148 districts) provide paid parental leave for teachers beyond their earned sick days. In districts that do offer paid leave, the amount varies widely, from one day to five months, with most districts offering less than thirty-one days (at varying levels of pay and differing eligibility). What has been surprising to me about this report is not the data; it’s the public response: Many people I have talked to have been surprised to learn that teachers rarely receive paid parental leave and surprised to learn the lengths many teachers go to stockpile their sick days or try to plan their pregnancies in the summer.
Ultimately, supporting and strengthening our teachers is how we support and strengthen our students. As districts face impending fiscal cuts and teacher layoffs, states and districts should take this opportunity to reexamine their approaches to attracting and retaining teachers—especially those who do the most good for students. They should use data and evidence to drive their decisions and redesign their compensation and incentives to better attract and retain the best teachers where they are needed most. They should pilot new models for structuring classrooms, defining teachers’ roles in ways that align to improved outcome goals for kids (more on that from NCTQ coming soon, so stay tuned). And they should consider how to structure benefits best aligned to what teachers say attracts—and keeps—them.
States and districts undoubtedly have a hard road ahead, but prioritizing attracting and retaining the best teachers, our most valuable in-school asset for students, will pay dividends. And then more teachers may encourage the next generation to join them.
News stories featured in Gadfly Bites may require a paid subscription to read in full. Just sayin’.
Only one clip to talk about today, but it’s a good one. Check it out: Kudos to the elected school board members at Elida Local who are attempting to remove their district from the voucher groucher lawsuit after three years of ponying up to pay expenses for other people’s lawyers. Among the insights leading to their bout of buyer’s remorse: “School tax dollars should not be used to fund lawsuits against the state,” “We’re giving more money away because we’re complaining we lost money,” “We’re being funded by people who don’t send their kids here” (as in, private school families still pay property taxes), and the realization that a successful court action “destroys a parent’s ability to choose unless they have money.” Congratulations on achieving enlightenment, your honors, and good luck in your effort. (LimaOhio.com, 7/9/24)
Did you know you can have every edition of Gadfly Bites sent directly to your Inbox? Subscribe by clicking here.
In July 2023, Governor DeWine and the General Assembly enacted bold literacy reforms that require Ohio elementary schools to follow the Science of Reading. These practices—well supported by research—emphasize phonics, background knowledge, and vocabulary—elements that have been shown to be critical for students’ reading development. Lawmakers also allocated $169 million over the current biennium to support scientifically-based reading instruction.
Passing these provisions was a necessary first step in improving literacy achievement in the Buckeye state. Yet strong implementation—at both the state and local level—is also crucial to the success of the initiative.
This report examines one of the key implementation steps: The creation of a state-approved list of high-quality literacy curricula and instructional materials. Read the report below for the findings, or download the full report (which includes appendices).
Glossary
DEW refers to the Ohio Department of Education and Workforce, formerly known as the Ohio Department of Education (ODE). This state agency implements most of Ohio’s K12 education laws.
Phonics refers to an instructional approach that involves teaching children to match sounds of spoken English with individual letters or groups of letters.[1]
Science of Reading refers to a body of research-based evidence that tells us how students learn to read, including phonological and phonemic awareness, phonics and word recognition, fluency, vocabulary, content knowledge development, and comprehension.[2] Ohio law contains a formal definition of the Science of Reading (see Appendix A.)
Three-cueing refers to an instructional approach that encourages students to rely on “cues”—e.g., a picture or the position of a word in a sentence—to read words. Three-cueing is not considered a scientifically based method of reading instruction and is often embedded in “balanced literacy” and “whole language” literacy programs.[3]
Executive summary
In January 2023, Governor Mike DeWine opened his annual state of the state address by proclaiming the “moral imperative” of providing a good education to all Ohio students. Then he turned to specifics about how to fulfill that obligation. After noting the large proportion of children struggling to read proficiently—two in five third graders—he declared a statewide goal of improving elementary-school literacy instruction:
Today, I am calling for a renewed focus on literacy—and on the way we teach reading in the state of Ohio. … Not all literacy curriculums are created equal, and sadly, many Ohio students do not have access to the most effective reading curriculum. In our budget, we are making sure that all Ohio children have access to curriculum that is aligned with the evidence-based approaches of the Science of Reading.[4]
True to his word, Governor DeWine shortly thereafter introduced sweeping literacy reforms via his budget plan (House Bill 33). These provisions, which lawmakers would approve that summer, require Ohio public schools to follow the Science of Reading starting in 2024–25. This approach to reading instruction emphasizes phonics to help students “decode” words, as well as knowledge- and vocabulary-rich content to help them comprehend what they’re reading. The bill also prohibits use of “three-cueing,” a widely used but discredited technique that prompts children to guess at words rather than sounding them out. Recognizing that extra resources were needed to transition schools successfully to the Science of Reading, lawmakers budgeted $169 million for better instructional materials, professional development, and literacy coaching.
To prepare schools for the transition, the Ohio Department of Education and Workforce (DEW) recently laid the groundwork for classroom-level implementation of scientifically based reading programs. This report focuses on three important steps the agency has taken since passage of HB 33 in July 2023:[5] (1) vetting and approving a list of high-quality instructional materials from which schools may choose; (2) collecting, via statewide survey, information about the English language arts (ELA) curricula used by Ohio schools prior to the recent reforms; and (3) allocating state funds to subsidize the purchase of new curricula and materials.
We offer four key takeaways based on analyses of these activities:
1. Ohio has wisely kept notoriously weak ELA curricula off of its state-approved list. DEW has curated an approved list of core elementary (grades K–5) curricula that includes highly respected programs such as Core Knowledge Language Arts, EL Education, and Wit & Wisdom, while excluding less effective curricula that promote three-cueing, such as Fountas & Pinnell’s Classroom and Lucy Calkins’ Units of Study. In total, DEW approved fifteen core ELA curricula for use starting next school year (the full list of approved programs, as of May 24, 2024, appears here).
2. Just one-third of Ohio districts have been using core ELA elementary curricula fully aligned to new state requirements. Based on results from its statewide survey of curricula used in 2022–23, DEW grouped districts and charter schools into three categories: aligned, partially aligned, or not aligned to the state-approved materials list. The figure below indicates that districts statewide were evenly split among the three categories. Urban districts were more likely to have aligned curricula (42 percent), while suburban districts and charters were least likely (23 and 28 percent, respectively).
Figure ES-1: Districts and charters’ alignment (2022–23) to the state’s approved curricula list for 2024–25
Moving forward, schools with aligned ELA curricula may continue to use their existing programs, but those with partially or nonaligned programs will need to implement new ones. As discussed here, schools needing to adopt new curricula should consider those containing both solid foundational skills—e.g., phonics—and strong knowledge-building elements.
3. More than half of Ohio’s lowest-performing districts, based on third-grade reading proficiency, will be undertaking curriculum changes. When focusing on the lowest ten percent of districts as gauged by their students’ reading proficiency in third grade (n=60), the survey found that thirty-four used nonaligned or partially aligned curricula in 2022–23. Of those districts, thirteen reported using either a district-developed program or only a supplemental program, while another twenty-one used non-approved core curricula.
4. Districts and charter schools that previously used nonaligned curricula received more state financial support for new materials. Based on survey findings, DEW allocated most of the state’s $64 million set aside for instructional materials to districts needing to make more extensive curricula changes. Districts reporting use of nonaligned curricula in 2022–23 received on average $121 per PK–5 student[6] to purchase new materials, while those using partially aligned curricula received $101 per PK–5 student. Districts previously using approved materials—and thus not required to make substantial updates—received $37 per PK–5 student.
* * *
To its credit, Ohio is moving full speed ahead in implementing its literacy reforms. To keep the push going, the report offers five policy recommendations. In brief, they are as follows (more detail starts here):
Maintain a high bar for inclusion on the state-approved ELA materials list. As the curriculum landscape continues to evolve, DEW should maintain a strong gatekeeping role by approving high-quality programs and keeping weak ones off the list.
Continue state investments that support the Science of Reading. The previous state budget set aside generous sums to support the immediate needs of schools transitioning to the Science of Reading. Implementation will continue into the next biennium (FYs 2026 and 2027) and lawmakers should continue to allocate funds to sustain these efforts.
Increase transparency about which ELA curricula districts and individual schools are using. Parents and communities should have easy access to information about the curricula used by their local schools. To this end, DEW should create a user-friendly dashboard that displays each district and school’s ELA curricula (core, supplemental, and intervention).
Push especially hard for rigorous implementation in low-performing schools. Struggling readers stand to benefit greatly from these reforms, but that promise won’t be realized if implementation is poor. To ensure the strongest possible alignment of instruction to the Science of Reading in low-performing schools, lawmakers should require DEW to comprehensively review their literacy programs on an annual or biennial basis.
Evaluate the impacts of the literacy-reform effort. The legislature should require studies that gauge which specific curricula and programs are most effective. Results would help support school leaders as they continue to make decisions about which materials to put into teachers’ hands, and how best to support their work in the classroom.
Under the leadership of the DeWine administration, Ohio’s literacy reforms are off and running. Now the long-term work of classroom implementation begins. If state and local leaders stay patient and resolute—keep their eye on the ball—more students will become skilled readers, will progress through the upper grades without falling behind, and will leave high school ready for their next steps.
Ohio’s ambitious literacy-reform efforts
Ohio policymakers have long understood the critical role of literacy in helping students reach their full potential. Within the past two decades, they have enacted policies aimed at lifting reading standards and increasing proficiency. For example, under former governor John Kasich, Ohio enacted the Third Grade Reading Guarantee in 2012. This legislation requires schools to annually screen students in grades K–3 for reading deficiencies and develop improvement plans for those identified as off track. Lawmakers also included a mandatory retention policy to ensure that students who fell short of a state-defined target on a third-grade reading assessment received extra time and supports.
The Guarantee has pushed Ohio schools to prioritize early intervention, and data suggest that the policy moved the achievement needle.[7] Regrettably, one component of the guarantee, the retention provision, was weakened via the most recent state budget bill (House Bill 33, enacted in July 2023).[8] Yet in that very same legislation, lawmakers gave literacy a significant boost by enacting provisions that push for more effective reading curricula and instruction. Those are issues that the Guarantee had not fully addressed but have become ripe for change, as literacy experts and advocates, often parents themselves, have pressed harder for scientifically based reading practices in elementary schools. They have rightly pointed to decades of research demonstrating the superiority of phonics-based instruction and the critical role of background knowledge for reading comprehension,[9] while also raising concerns about the continuing use of ineffective methods such as three-cueing.[10]
Ohio’s latest initiative aims to move schools toward the Science of Reading in three ways:
High-quality instructional materials: HB 33 requires DEW to establish a list of core ELA curricula and intervention programs that are “aligned with the Science of Reading and strategies for effective literacy instruction.” It further stipulates that all public schools must use materials from the state-approved list starting in 2024–25. With limited exceptions, these materials cannot include three-cueing to teach children to read.[11] DEW was also tasked with fielding a baseline survey of schools’ pre-HB 33 ELA curricula and collecting annual information about ELA curricula in future years.
Professional development (PD): To support effective implementation of new curricula, HB 33 requires educators to complete a PD course in the Science of Reading unless they’ve already completed similar training. Upon course completion, stipends of $400 or $1,200 are provided to teachers, depending on which grade and subject they teach. The course must be completed by June 30, 2025. HB 33 also calls for literacy coaches that support educators serving in the state’s lowest-performing schools as gauged by students’ reading proficiency. Roughly 100 coaches will be deployed to provide more intensive, hands-on PD for teachers in those schools.
Teacher preparation: State lawmakers also took steps to ensure that colleges of education adequately prepare prospective teachers in the Science of Reading. Per HB 33, the Ohio Department of Higher Education (ODHE) must implement an audit process that reviews preparation programs’ alignment to the Science of Reading. ODHE will begin these audits in January 2025. The bill also requires the chancellor of ODHE to revoke program approval if a review uncovers inadequate alignment to the Science of Reading and the deficiencies are not addressed within one year.
As shown in table 1, Ohio lawmakers set aside substantial funds to support these efforts. In total, the state will spend $169 million in FYs 2024 and 2025 to support the initiative, with the largest portion going toward teachers’ PD stipends ($86 million) and subsidies to purchase new curricula and materials ($64 million). Another $18 million will support literacy coaches, and $1 million is allotted to help teacher-preparation programs transition to the Science of Reading (of which $150,000 supports the ODHE audits).
Table 1: State funding set aside for literacy reforms, combined amounts for FY24 and FY25
While all elements of the literacy-reform package are crucial, this report focuses on the early implementation of the high-quality curricula requirement. Within the past year, DEW has completed key actions in this area, including the creation of an approved instructional materials list, release of its pre-reform curricula survey results, and the allocation of funds for instructional materials. DEW released the initial list of approved core ELA curricula and survey results on March 1, 2024. I cover the state-approved list first, as it helps interpret the survey findings. The allocation of materials funds is covered last, as it occurred several weeks later.
Identifying high-quality instructional materials
As discussed above, state lawmakers tasked DEW with creating a catalog of high-quality instructional materials that are aligned with the Science of Reading from which schools must select. Starting in 2024–25, all public schools must use “core” ELA curricula—programs designed for use in general education settings—in grades K–5 from this state-approved list. To meet this requirement, schools must use either a core comprehensive program or a coherent set of core and supplemental programs.[12] The box provides definitions that distinguish core comprehensive curricula from the hybrid—core plus supplement—option.
Curricula terminology
Elementary ELA curricula are typically categorized as: (1) core comprehensive; (2) core, no foundational skills; or (3) supplemental foundational skills.
Core comprehensive curricula cover all grade-level ELA standards.
Core, no foundational skills curricula cover most grade-level ELA standards such as comprehension and speaking and listening, but do not include foundational skills such as phonics and print concepts.
Supplemental foundational skills programs are designed to complement a core ELA curriculum that does not adequately cover foundational skills.
To develop state-approved lists of ELA curricula (both core and supplemental), DEW implemented a vetting process that took advantage of the widely used curricula ratings published by EdReports. Since 2015, this national, independent nonprofit has evaluated hundreds of ELA curricula to determine if they align with high-quality academic standards.[13] For each program, EdReports provides an “alignment” rating along three tiers:[14] Meets, Partially Meets, and Does Not Meet. These ratings, though sometimes debated by literacy experts,[15] often serve as an initial screening tool for states and local districts,[16] and DEW leveraged this system to approve, or not, both core and supplemental foundational skills curricula in the following way.[17]
Top-rated Meets curricula received a streamlined review, in which the publisher attested in writing to DEW that the program aligns to the Science of Reading.[18] Curricula approved through this pathway include Core Knowledge Language Arts (grades K–5) and Wit & Wisdom (grades 3–5).
Curricula receiving a Partially Meets rating underwent a more extensive review in which DEW examined materials and assessed their alignment with the Science of Reading. Programs approved through this process include Bookworms (K–5) and Open Court (K–5).
Poorly rated Does Not Meet curricula were not eligible for approval. This prohibited Fountas & Pinnell’s Classroom and Lucy Calkins’ Units of Study curricula from approval, along with several others.
This process yielded Ohio’s list of approved ELA curricula for grades K–5. The top part of Table 2 displays fifteen approved core comprehensive curricula, while the bottom panel shows two additional grades K–2 curricula in the category of “core, no foundational skills” that were state-approved but must be paired with a supplemental program to meet the statutory requirements.
Table 2: State-approved core ELA curricula, grades K–5
The vetting process removed ineffective and outdated curricula—a significant step forward in a state where many schools have used inferior programs, as detailed in the next section of this report. Yet even within the state-approved curriculum list, there likely remains some variation in quality. Going beyond Ohio’s state-approved (and EdReports-driven) list are several ELA curricula that the Knowledge Matters Campaign identifies as having especially strong vocabulary- and knowledge-building elements that support reading comprehension (see the importance of knowledge-building in the sidebar below). Those programs are in bold in Table 2. Meanwhile, though meeting Ohio’s baseline requirements, some literacy experts have questioned whether several of the non-bolded curricula—sometimes called “basal readers”—are too light on knowledge-building.[19] Nevertheless, despite ongoing discussion about what precisely constitutes a high-quality curriculum, DEW has given its stamp of approval to a relatively small number of core ELA programs, especially in light of the dozens of curricula options available.
Knowledge-rich curricula and reading comprehension
So far, phonics has dominated the discussions about the Science of Reading, perhaps because of its strong contrast with three-cueing (and the “balanced literacy” and “whole language” programs that promote it). Yet scholars have also long recognized the need to go beyond phonics to help students become proficient readers. In 2001, the National Reading Panel made vocabulary and comprehension two of its five “pillars” of effective reading (along with phonemic awareness, phonics, and fluency). Similarly, the “Scarborough Rope” model of literacy instruction emphasizes both word recognition and language comprehension skills, which are driven by vocabulary and background knowledge.[20] E.D. Hirsch, a prominent literacy scholar, has stressed the importance of vocabulary and background knowledge for reading comprehension.[21] A recent “gold standard” experimental study of the Core Knowledge Language Arts curriculum, which was developed under Hirsch’s leadership, demonstrated remarkable learning gains for students attending schools using the program.[22]
Launched in 2015, the Knowledge Matters Campaign, a national nonprofit group, has spearheaded an organized push for knowledge-rich literacy curricula. Guided by an impressive group of scholars, it has identified eight ELA curricula as having exemplary, content-rich material. In grades K–5, these programs include ARC Core, Bookworms, Core Knowledge Language Arts, EL Education, Fishtank ELA, and Wit & Wisdom, programs that are all bolded in Table 2 above.[23] To distinguish these curricula from other state-approved programs, the analyses that follow in the next section of this report also highlight those recommended by the Knowledge Matters Campaign.
Schools’ prereform curricula, and financial support for change
Ohio has not historically required schools to report their curricula publicly, so there’s not been much information about which programs schools have been using. Seeking a systemwide picture of existing literacy curricula, state lawmakers in HB 33 directed DEW to gather information via a statewide survey. In September 2023, DEW fielded the survey, which garnered near-universal response rates (99 percent of districts and charters). Schools were asked about the core ELA curricula (grades K–5) and intervention programs (grades K–12) that they used in 2022–23, just prior to enactment of the state’s literacy reforms. The department released results in spring 2024.[24]
Table 3 displays the most commonly used core ELA elementary programs among traditional school districts. We see a wide range of curricula in use as well as variation in their quality, as indicated by whether DEW has since approved the program and whether the Knowledge Matters Campaign has recommended it. The survey also revealed widespread use of ineffective and nonapproved curricula such as Classroom and Units of Study (they were the fourth and sixth most frequently cited programs). Other nonapproved curricula such as the 2017 edition of Reading Wonders[25] and Journeys were also common. At the bottom of the table, we see that another forty-nine districts reported use of only a district-developed program. (Under the new legislation, they will need to adopt an approved curriculum.)
More positively, we find signs that some districts have been using high-quality programs. The most-used core ELA program was the state-approved 2020 edition of Reading Wonders. The most common programs that are both state-approved and Knowledge Matters-recommended were Core Knowledge Language Arts and Wit & Wisdom. Districts using approved curricula in 2022–23 will be able to continue their use of these programs.
How to read the tables
This section displays results from DEW’s statewide survey of core ELA curricula used in 2022–23. To aid interpretation, the following color coding is used: Dark green indicates that the curriculum is on both DEW’s approved materials list and Knowledge Matters’ list of recommended curricula; light green indicates that the curriculum is only on DEW’s approved list; no shading indicates that the curriculum is on neither list.
Table 3: Most frequently used core ELA curricula (grades K-5) in 2022–23, Ohio districts (n=604)
Table 4 displays patterns by district typology, a way of grouping schools based on their geographic characteristics. It shows that urban districts were more likely to have implemented state-approved programs prior to the legislative reforms. Suburban districts, on the other hand, were more likely to cite use of nonapproved curricula, notably Units of Study and Classroom. Rural and small-town districts reported significant use of Reading Wonders (2017 and 2020 editions), which helps explain their appearance atop the statewide list in Table 3, as more districts are represented in those typologies.
Table 4: Most frequently used core ELA curricula (grades K–5) in 2022–23, Ohio districts by typology
The next table displays public charter schools’ most commonly used curricula. We again see a range of programs in use, with some less-frequently cited curricula among districts being more common among charters (e.g., Imagine It! and Reading Mastery). Two state-approved programs, Into Reading and Core Knowledge Language Arts, were the two most widely used by charters in 2022–23.
Table 5: Most frequently used core ELA curricula (grades K-5) in 2022–23, Ohio public charter elementary schools (n=222)
While all students will gain from the use of more effective ELA curricula, those struggling to read stand to benefit most. Table 6 displays the specific programs used by the districts with the lowest third-grade ELA proficiency rates in 2022–23. (The “Ohio Eight” urban districts are in bold.) Thirty of these sixty districts reported use of a state-approved core ELA curricula and eleven of them reported the use of a program that’s also recommended by the Knowledge Matters Campaign. The other half used non-approved published curricula, district-developed curricula, or did not report a core ELA curriculum on the survey.[26] As discussed in Appendix C, low-performing districts using a state-approved curriculum seem to slightly outperform those using nonapproved curricula on the state’s value-added growth measure. But for reasons discussed in that section, this conclusion is tentative, and further research is needed to rigorously evaluate the impacts of curricula decisions, both statewide and in struggling schools.
Table 6: Core ELA curricula (grades K–5) used in 2022–23 among the lowest 10 percent of Ohio districts in third-grade reading proficiency
Survey results confirm both the heavy lift the state is undertaking to transition schools away from weaker curricula and the wisdom of investing significant dollars to support new ELA programs. As noted earlier, one of the largest funding elements for the initiative is $64 million to subsidize the purchase of instructional materials. For the purposes of allocating funds to districts and charter schools, DEW divided them into three categories based on their survey responses about which programs they used in 2022–23. The categories are as follows:
Aligned: Reported use of a state-approved core ELA curricula.[27]
Partially aligned: Reported use of only a state-approved supplemental foundational skills program.
Not aligned: Did not report use of a state-approved core or supplemental program.
Figure 1 shows the breakdown of districts and charters by these three categories. Statewide, districts were split evenly among the three categories, with urban districts—perhaps sensing a greater urgency to upgrade curricula—being more likely to be in the aligned category (39 percent), while suburban districts and charters were less likely to be aligned (23 and 28 percent, respectively). Table 7 displays the corresponding number of districts and charters in each of the categories.
Figure 1: District and charters’ alignment (2022–23) to the state’s approved curricula list for 2024–25
Table 7: Number of districts and charters by their alignment (2022–23) to the state’s approved curricula list for 2024–25
Based on this grouping methodology, DEW then steered more dollars to nonaligned schools. Table 8 shows that nonaligned districts and charter schools received just under half of the total allocation—$31 million of the $64 million set aside—while those deemed partially aligned and aligned received $23 and $10 million, respectively. On a per-pupil basis (grades PK–5), these sums amount to $121, $100, and $37 for nonaligned, partially aligned, and aligned districts and charters, respectively. Dollars must be used to purchase state-approved instructional materials,[28] whether core ELA curricula, supplemental materials, or intervention programs.
Table 8: Funding allocations to districts and charter schools for instructional materials, by alignment category
Conclusion and recommendations
With literacy reforms solidly on the books and implementation off the ground, Ohio is moving smartly toward more effective reading instruction. But to achieve the intended results of the initiative—higher reading proficiency statewide—Ohio policymakers will need to keep the pedal to the floor, while also exercising patience and resolve when the going gets tough. They must keep in mind that transitioning hundreds of schools to new curricula and instructional practices won’t happen overnight. As literacy expert Robert Pondiscio has noted, learning to read “is the long game,” requiring time and persistence from both teachers and students.[29] To maintain a strong and sustained push toward better literacy instruction, we conclude with five recommendations for Ohio leaders:
Maintain a high bar for inclusion on the state-approved ELA materials list. Publishers will inevitably update existing curricula and bring new programs to market. Some will be high-quality and adhere to the Science of Reading, while others will not be as strong. As the curriculum landscape evolves, DEW should maintain a strong gatekeeping role and approve only high-quality materials. In future review cycles, the agency should take into account any new evidence about the effectiveness of specific programs as well as developments in third-party curricula reviews, including at EdReports.[30]
Continue state investments that support the Science of Reading. Implementation that yields results for students will require time, commitment, and resources. To their credit, lawmakers made a significant down payment on these literacy reforms in the previous biennial budget. The next General Assembly should follow their lead and preserve set-asides for literacy in the upcoming state budget. While the precise uses of dollars should evolve to match the changing needs of schools, additional investments in professional development, literacy coaching, and high-quality materials can help solidify and sustain implementation.[31]
Increase transparency about which ELA curricula districts and individual schools are using. In addition to the baseline survey of curricula described in this report, state lawmakers directed DEW to collect annual information about ELA curricula moving forward. Yet they did not explicitly require the agency to report this information publicly. In the coming years, DEW should make this information available to the public in a user-friendly format. Akin to Colorado’s “curriculum transparency dashboard,”[32] Ohio should create a centralized site that displays core, supplemental, and intervention programs used by each school. Information at an individual building level is important for parents seeking to understand their local schools’ curricula (which could vary within a larger district).
Push especially hard for rigorous implementation in low-performing schools. To ensure that struggling readers receive the best possible instruction, state leaders should press for rigorous implementation of high-quality core instruction and interventions in the lowest-performing schools. In addition to maintaining extra support for teachers via literacy coaches, DEW should also begin to conduct, with the support of literacy experts, on-site reviews of the literacy programs in low-performing elementary schools.[33] These more in-depth reviews would go beyond basic compliance checks and also gauge the quality of implementation, provide feedback and suggestions for improvement, and identify additional supports that may be needed.
Evaluate the impacts of the literacy-reform effort. As implementation moves forward, research will be critical to identify strengths and weaknesses. State policymakers should commission studies that examine success of the reform package as a whole as well as various aspects of it, such as which specific state-approved curricula are most effective and what types of teacher PD provide the biggest boost. Analyses like these would support school leaders as they continue to make decisions about which materials to put into teachers’ hands and how best to support instruction. They would also help guide state leaders as they steer the initiative forward.
Literacy is job number one for Ohio’s elementary schools. State leaders are right to insist that all classroom teachers have the curricula, materials, and training needed to do the job right. A wealth of evidence demonstrates that programs aligned with the Science of Reading are most effective at helping children become strong readers—the more so when those programs are also rich in knowledge. With strong implementation in the years ahead, Ohio will have more proficient readers in schools today and a more literate citizenry tomorrow.
Acknowledgments
I wish to thank my Fordham Institute colleagues Michael J. Petrilli, Chester E. Finn, Jr., Chad L. Aldis, Jessica Poiner, and Jeff Murray for their thoughtful feedback during the drafting process. Special thanks to Kathi Kizirnis, who copy edited the manuscript, and Andy Kittles who created the design. Funding for this report comes from the Charles and Lynn Schusterman Family Philanthropies and our sister organization, the Thomas B. Fordham Foundation.
— Aaron Churchill
Ohio Research Director, Thomas B. Fordham Institute
The Thomas B. Fordham Institute promotes educational excellence for every child in America via quality research, analysis, and commentary, as well as advocacy and charter school authorizing in Ohio. It is affiliated with the Thomas B. Fordham Foundation, and this publication is a joint project of the Foundation and the Institute. The Institute is neither connected with nor sponsored by Fordham University.
[5] Teacher professional development, literacy coaching, and teacher-preparation reform are also crucial elements of the overall literacy reform package and will be reviewed in future analyses.
[6] Though not the focus of this report, the state will also require district- or charter-operated preschools to use state-approved reading curricula; this is why the amounts are reported on a PK–5 enrollment basis.
[9] National Reading Panel, Teaching Children to Read: An Evidence-Based Assessment of the Scientific Research Literature on Reading and Its Implications for Reading Instruction (April 2000): https://www.nichd.nih.gov/publications/pubs/nrp/smallbook and Anne Castles, Kathleen Rastle, and Kate Nation, “Ending the Reading Wars: Reading Acquisition from Novice to Expert,” Psychological Science in the Public Interest vol. 19, no. 1 (June 2018): https://journals.sagepub.com/doi/10.1177/1529100618772271.
[11] Three-cueing may be allowed if it appears in a special-education student’s IEP, or if DEW approves a school’s request to use three-cueing with a particular student (provided he or she is not on a reading improvement plan).
[14] For core ELA programs that achieve a Meets “alignment” rating, EdReports also includes a “usability” rating. DEW, however, relied strictly on the “alignment” ratings to develop its approved materials list. For more about its ratings and review process, see EdReports, “Our Process” (webpage, last accessed May 21, 2024): https://edreports.org/process#intro.
[17] Provided it receives a satisfactory review from by another state, a curriculum not rated by EdReports could apply for DEW approval as well. Description of the review process and rubric is available at Ohio Department of Education and Workforce, High-Quality Instructional Materials in English Language Arts: PreK-Grade 5 Core Curriculum and Instructional Materials Approved List: Vendor Guidance and Request for Applications (2023-24):https://education.ohio.gov/getattachment/Topics/Learning-in-Ohio/Englis….
[18] If a core, no-foundational-skills curricula had a Meets rating, it was automatically approved by DEW. There were two such programs that met this criterion (Wit & Wisdom, grades K-2, and Fishtank ELA, grades K-2).
[21] E. D. Hirsch, “The Case for Bringing Content into the Language Arts Block and for a Knowledge-Rich Curriculum Core for all Children,” American Educator (Spring 2006): https://www.aft.org/ae/spring2006/hirsch.
[25]Wonders was one of only a few curricula for which DEW reported a particular publication year.
[26] The districts marked as “none reported” reported only supplemental or intervention materials in the survey question about core ELA curricula.
[27] This could either be a core comprehensive or a combination of state-approved core, no foundational skills curricula and state-approved supplemental foundational skills curricula.
[28] A district or charter school may apply these funds to a previous purchase of state-approved curricula, provided it occurred after July 1, 2023.
[31] For more about how lawmakers could support the literacy initiative in the next budget, see Aaron Churchill, “Education priorities for Ohio’s next biennial budget, part 1: Sustained investment for literacy reform,” Thomas B. Fordham Institute (blog, April 17, 2024): https://fordhaminstitute.org/ohio/commentary/education-priorities-ohios….
[33] Such schools could be those that have been assigned a literacy coach (they serve in the lowest-performing schools in statewide proficiency in ELA), or elementary schools that are formally identified for “comprehensive support and improvement” under federal law.
For the past six months, Columbus City Schools leadership has mulled the closure of multiple school buildings. In February, district superintendent Angela Chapman convened a task force that explored school closures, and—after much discussion—the group released in late June its final report, which includes a recommendation to close nine schools and one administrative building.
The need to evaluate its facilities footprint comes as the district has experienced enrollment declines in recent years—it’s lost 10 percent of enrollment since 2015—leaving some schools severely underenrolled. An analysis by Ohio State University professor Vlad Kogan found that the district now has more facilities (118) than other similarly-sized districts nationally. According to projections, the district would save some $90 million over the next decade if the task force plan goes into effect. These dollars could shore up district finances and perhaps help avert yet another ballot issue to raise local taxes. (Even after recent passage of a massive $100 million per-year levy, one school board member said last month, “We are going to be coming back for more money.”)
In light of the district’s enrollment woes and fiscal situation, the task force report should be taken seriously. But shortly after the report was released, the Columbus school board—the entity with authority to close schools—declined to take action. In defense, board members cited a desire for more “conversations” and “authentic engagement” with the community. While dialogue is undoubtedly important, this could easily turn into a delay tactic that kicks the closure can down the road. The board might bide its time and allow the recommendations to be ignored and forgotten—which is exactly what occurred the last time a task force examined facility usage in Columbus.
Why might the Columbus board be shy to close schools? The politics of closure—whether in Columbus or elsewhere—are indeed tough to overcome. Employee unions are almost sure to oppose them (this has been true in Columbus), and school boards, whose electoral fortunes often hinge on union endorsements, are loathe to resist their interests. Community members may also push back on proposals to close a school in their neighborhood. On the other side, few people are likely to rally in favor of shutting schools, even though researchindicates that students benefit when low-performing schools are closed and they transfer to more effective ones.
Given these headwinds, it’s worth considering how state policymakers can move a closure process ahead when it becomes necessary. To be clear, the final decision about shutting a school should remain in the hands of district boards. It is a complicated process that requires sensitivity to local circumstances. That said, the State of Ohio still has an obligation to promote an efficient public-school system. In fact, advocates often remind lawmakers of the constitutional admonition of a having a “thorough and efficient system” of schools. One aspect of this mandate is to ensure that districts responsibly steward taxpayer dollars, which includes closing under-enrolled buildings that are costly to operate and draw resources away from schools more in need of them.
Of course, Columbus isn’t the only district that may need to pursue building closures in the months and years ahead. Enrollment has slipped statewide, and demographic trends are working against schools. In May, the U.S. Department of Education released projections that Ohio’s public school enrollment will fall another 7 percent by 2031. The question then is how exactly state policymakers can create a policy environment that increases the likelihood that local boards take action without setting rigid, ham-handed closure rules. The following offers six possibilities.
Provide short-term grants that help districts close buildings and transition students to new schools. State lawmakers could create a grant program that eases the transition costs of closing schools. The funds could be used to provide supports that help students transition to another school (e.g., services to help new students fit in or address transportation issues). This could help alleviate one of the primary concerns related to closures, which is their impact on displaced students.
Create a state committee that periodically reviews school utilization and performance data and recommends schools for closure. This committee would dig into school capacity, enrollment, demographic, and performance data and then release a report containing recommendations about which district schools should be closed. While local boards wouldn’t be required to follow these recommendations, the report could provide some political cover for school boards that need to close schools. It could also offer valuable data—e.g., how a district’s facility footprint compares to other districts or demographic trends—that help drive fact-driven community discussions around closures. The reports might also identify underutilized schools that should be offered under provisions discussed in point five below.
Eliminate school funding guarantees that allow shrinking districts to avoid rightsizing their budgets.As discussed in this piece, Ohio’s funding formula includes “guarantees”—excess dollars that protect districts from funding losses tied to enrollment declines. In effect, guarantees let district boards off the hook for making tough decisions—such as closing schools—that keep their budgets in line with enrollments. State legislators should encourage more efficient district operations by removing guarantees from the formula.
Require districts to certify that they are not operating under-enrolled buildings before putting a local tax issue on the ballot or receiving state aid for school construction. School boards often seek additional funding by putting a local tax measure on the ballot. Before they ask voters for more dollars, state lawmakers could require districts to certify that they are not operating any under-enrolled school buildings. They could also require districts to certify this as a condition for receiving state funding for school construction projects. This would ensure that districts have exhausted at least one cost-savings option before they can tap additional revenues.
More strictly enforce the state’s right-of-first-refusal law for public charter schools.Districts with vacant or severely underutilized school buildings are required under current law to offer such facilities to local public charter and independent STEM schools for sale or lease. This is an important provision, as it helps to ensure districts are not operating under-enrolled buildings and supports non-traditional public schools’ facility needs. Unfortunately, the law seems to be weakly enforced and hasn’t had its intended impacts. As discussed in this piece, state legislators should revamp these “right-of-first-refusal” provisions to ensure they are being carefully followed.
Ensure that the district-school “restructuring” law is implemented. Current law requires a chronically low-performing district school to contract with an outside operator, replace its entire teaching staff, reopen as a charter school, or permanently close.[1] Enforcement of this law was suspended during Covid, but as the state reboots its accountability system, this provision should return. The restructuring options may not result in the closure option being selected, but enforcement would push tough decisions about school turnaround or closure to the forefront. In the interest of students, districts should not turn a blind eye to extremely low-performing schools. State policymakers should make sure this isn’t happening.
Ohio policymakers can and should nudge along districts such as Columbus’s that need to downsize their facility portfolios. Considering the ideas above could help local school boards more effectively navigate the challenging and politically fraught process of closing schools.
[1] Such district-operated schools must for three straight years be ranked in the bottom 5 percent statewide in the performance index and either have a (1) one-star value-added rating or (2) a one- or one-and-half-star overall rating (ORC 3302.12).