**Archived Information**

**Preparing America's Future**

**The High School Symposium**

**April 4, 2002---Washington, D.C.**

**- Excerpted -**

**2003**

**U.S. Department of Education**

**Office of Vocational and Adult Education**

This report was produced under U.S. Department of Education Contract No.
ED-99-CO-0163 with DTI Associates, Inc. Scott Hess served as the
contracting officer's technical representative. The views expressed
herein do not necessarily represent the positions or policies of the
U.S. Department of Education. No official endorsement by the U.S.
Department of Education of any product, commodity, service or enterprise
mentioned in this publication is intended or should be inferred.

U.S. Department of Education

Rod Paige

Secretary

Office of Vocational and Adult Education

Carol D'Amico

Assistant Secretary

February 2003

This report is in the public domain. Authorization to reproduce it in
whole or in part is granted. While permission to reprint this
publication is not necessary, the citation should be: U.S. Department of
Education, Office of Vocational and Adult Education, Preparing America's
Future, Washington, D.C., 2002.

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For a full text of each commissioned paper, visit OVAE's Web site at
www.ed.gov/about/offices/list/ovae/pi/hs/commisspap.html. To view a
webcast of the symposium, visit www.nccte.org and select the link
"Professional Development Speaker Series." To learn more about OVAE's
Preparing America's Future initiative, visit
www.ed.gov/offices/OVAE/paf.html.

# CONTENTS

Message From Secretary Rod Paige [4](#message-from-secretary-rod-paige)

MESSAGE FROM ASSISTANT SECRETARY CAROL D'AMICO
[5](#message-from-assistant-secretary-carol-damico)

EXECUTIVE SUMMARY [6](#executive-summary)

CHALLENGES FACING TODAY'S AMERICAN HIGH SCHOOL
[9](#challenges-facing-todays-american-high-school)

What Ails High Schools? How Should They Be Reformed? Is There a Federal
Role?

Chester E. Finn Jr., Thomas B. Fordham Foundation
[9](#thomas-b.-fordham-foundation)

Achievement: High Schools in America 2001

Jan Somerville, National Association of System Heads and the Education
Trust
[11](#jan-somerville-national-association-of-system-heads-and-the-education-trust)

The Missing Middle: Aligning Education and the Knowledge Economy

Anthony P. Carnevale and Donna M. Desrochers, Educational Testing
Service
[13](#anthony-p.-carnevale-and-donna-m.-desrochers-educational-testing-service)

PREPARING STUDENTS FOR HIGH ACHIEVEMENT AND POSTSECONDARY TRANSITIONS
[16](#preparing-students-for-high-achievement-and-postsecondary-transitions)

What Should Be the Federal Role in Supporting and Shaping Development of
State Accountability Systems for Secondary School Achievement?

John H. Bishop, New York State School of Industrial, and Labor
Relations, Cornell University
[16](#john-h.-bishop-new-york-state-school-of-industrial-and-labor-relations-cornell-university)

Reconceptualizing Extra Help for High School Students in a High
Standards Era

Robert Balfanz, James McPartland and Alta Shaw, Johns Hopkins University
[18](#robert-balfanz-james-mcpartland-and-alta-shaw-johns-hopkins-university)

What Role Can Dual Enrollment Programs Play in Easing the Transition
between High School and Postsecondary Education?

Thomas R. Bailey, Katherine L. Hughes, and Melinda Mechur Karp, Teachers
College, Columbia University
[19](#thomas-r.-bailey-katherine-l.-hughes-and-melinda-mechur-karp-teachers-college-columbia-university)

Beyond Empty Promises: Policies to Improve Transitions into College and
Jobs

James E. Rosenbaum, Northwestern University
[21](#james-e.-rosenbaum-northwestern-university)

THE ROLE OF CAREER AND TECHNICAL EDUCATION IN HIGH SCHOOLS
[24](#the-role-of-career-and-technical-education-in-high-schools)

Raising the Achievement of Low-Performing Students: What Can High
Schools Do?

Gene Bottoms, Southern Regional Education Board
[24](#gene-bottoms-southern-regional-education-board)

The Role of Career and Technical Education in the American High School:
A Student-Centered Analysis

Kenneth Gray, College of Education, Penn State University
[26](#kenneth-gray-college-of-education-penn-state-university)

RECOMMENDATIONS [29](#recommendations)

ENDNOTES [31](#endnotes)

ACKNOWLEDGMENTS [32](#acknowledgments)

# MESSAGE FROM SECRETARY ROD PAIGE

"We plan to apply 'No Child Left Behind' all the way up and down the
line, to high schools and to postsecondary education. Accountability for
student achievement, flexibility and local control, expanded parental
support, and doing what works...the president's plan will require us to
leave behind some of the old ideas and ways and think anew."

-Rod Paige, U.S. Secretary of Education

# MESSAGE FROM ASSISTANT SECRETARY CAROL D'AMICO

February 2003

Dear Reader,

It has been said that America's interest in its high schools is tied to
the fact that they are a microcosm of our society. High school is such a
right of passage in America that we have dedicated television shows,
movies and books to the state of high school education, from The
Blackboard Jungle to "Boston Public."

Yet for all of the attention and concern we focus on our high schools,
they still face considerable challenges. Test scores for American high
school students lag behind those of other industrialized, and even some
developing, nations. While close to 90 percent of high school graduates
plan to obtain a four-year college degree, only about one in four
actually do so. Probably most disconcerting of all is the fact that for
all the effort our nation puts into educating our children, many still
lack the most essential skills when they reach adulthood. As our
population ages and more qualified individuals leave the workforce, our
nation faces the possibility of a critical workforce shortage in the
next 10 to 20 years. This could have long-term ramifications for our
economy and for our security.

For the Office of Vocational and Adult Education (OVAE), it is essential
to explore the roles that career and technical education in high schools
may play in solving these problems. In doing so we must address the
relationship between academic and vocational education and, using the
principles of "No Child Left Behind," determine how we can contribute to
the renewal of an outdated high school system. Also we must connect our
high schools more seamlessly to our two-year and four-year colleges.

To assess the challenges facing today's high schools and take into
consideration every possible action that could be used to address them,
OVAE has launched the Preparing America's Future initiative. Through
this effort the Department of Education is reaching out to high schools,
community colleges and adult education programs for guidance in helping
us to "think anew."

At the OVAE-sponsored Preparing America's Future: The High School
Symposium, held in Washington, D.C., April 4, 2002, we were privileged
to hear more than a dozen experts on high school education speak on the
role of career and technical education, and high school, in readying our
youths for success in life. We do not necessarily endorse all the
conclusions presented by the authors in their papers. Our intent in
presenting these excerpts is to help start an important national
discussion. I invite you to read the full length versions on our Web
site and to work with us in this critical task of helping America's high
schools prepare her future.

Carol D'Amico

Assistant Secretary for Vocational and Adult Education

# EXECUTIVE SUMMARY

Several national and international assessments have demonstrated that
there has been little improvement in the performance of American high
school students in recent decades. The Third International Mathematics
and Science Study (TIMSS) ranks U.S. high school students 17th in the
world in math and science proficiency. Similarly, the National
Assessment of Educational Progress (NAEP) from the National Center for
Education Statistics, shows U.S. students' performance in reading, math
and science has been flat, or in the case of science only marginally
improved, over the past three decades at the high school level. This
lack of progress has occurred despite pronounced improvement at the
elementary school level and modest improvement at the middle school
level.

The challenges facing high schools are many, from mission confusion to
outdated buildings and methods of teaching, to student perceptions that
high school doesn't really count. Such were the opinions, among others,
expressed at the Preparing America's Future: The High School Symposium,
on April 4, 2002. Sponsored by the U.S. Department of Education, Office
of Vocational and Adult Education (OVAE), the forum offered presenters
and respondents the opportunity to make recommendations for federal
involvement in three topics: Challenges Facing Today's American High
School, Preparing Students for High Achievement and Postsecondary
Transition, and the Role of Career and Technical Education in High
Schools.

Challenges Facing Today's American High School

During the first panel discussion, while the presenters had differing
views on how the institution of high school could be changed to be more
effective, they all agreed students were not being challenged enough,
regardless of their backgrounds. They also agreed that, because it is
introducing more academic rigor and pushing students to try harder, the
standards-based reform movement is a step in the right direction.
Additionally, they noted that teachers need the training and skills to
become more effective in helping students to reach those standards.

Panelists and respondents alike criticized today's high schools for
being the same as high schools 40 or 50 years ago in so far as their
curriculum mix, structure of the day and layout of the facilities. They
pointed to the mixed results high schools have had adapting to societal
changes, such as the Internet revolution.

Recommendations for the federal government's role in high schools
included refining high school assessment to support "No Child Left
Behind" and taking the bully pulpit to encourage experimentation with
various high school models, curricula, teacher development programs and
delivery systems.

Preparing Students for High Achievement and Postsecondary Transition

The second panel focused on the disconnect that can exist between high
school, postsecondary education and success in the workplace. One point
made was that while a majority of high school students intend to pursue
college, about one-third actually go on to receive a four-year degree.
The panel discussed the notion of "college for all," noting that not
every student who enters college is really prepared to do so. There was
some agreement that high school could be more effective at educating
students about various postsecondary options and showing them what
skills are needed for a variety of careers.

The biggest challenge raised with the "college for all" approach was
that there are no clear directions or options for those students who
fail to pursue a four-year degree. Panelists agreed that by encouraging
high school students to pursue higher education without providing them
the academic preparation to do college-level work, America has given
students the "will" but not the "way" to succeed in college. As a
result, they are left less prepared for the world of work.

Additionally, panelists noted that high school does not really prepare
students for the level of academic effort they need to demonstrate in
college. This is also true regarding preparation for the marketplace,
which demands ever-increasing high levels of skill and knowledge in the
most basic skills. The marketplace challenge is compounded by falling
attendance in costly vocational programs. The high school experience
many times does not provide students with the cognitive, decision-making
and problem-solving skills they need to succeed in life. Panelists said
that this leaves high schools with the challenge of undertaking reforms
that promote academic improvement while addressing the issue of
workforce preparedness. At the same time, high schools face myriad
challenges, which range from teacher compensation to student
remediation.

Panelists recommended external assessments to promote academic rigor and
extra help to offset potential rises in the dropout rate for students
who find it difficult to succeed. They also noted repeatedly that
schools tend to respond to students after they fail, when it is more
difficult to help them.

Suggestions for the federal government's role in better linking
secondary education to postsecondary options included promoting
experimentation with external assessment models as part of an extension
of "No Child Left Behind," as well as conducting research with regard to
the role of extra-help initiatives in context of the standards movement.

The Role of Career and Technical Education in High Schools

During the third and final discussion, presenters and respondents noted
that one-third of high school students go to work following graduation.
The panel explored the notion that Career and Technical Education (CTE)
students are predominantly academically challenged. The group noted that
one in four students are involved in some form of CTE concentration and
that these students reflect the demographics of the general population.
They also said that while CTE students enter high school with low
scores, they graduate with test scores equal to those of academic
students. They called CTE one possible way of dealing with dropout rates
and cited the challenge it faces to increase its academic impact and
better clarify its role with the standards movement.

Panelists suggested expanding the academic component of more traditional
CTE programs. They also said that there is evidence to suggest that
adding a career and technical focus to schools' academic tracks tends to
provide students the focus they need to pursue the more difficult
courses necessary to succeed in college and in their future careers.
States that have an effective tie-in between colleges and CTE programs,
they said, tend to have more successful high schools.

Panelists believe the federal government has played a constructive role
in CTE and should continue to do so by pushing for improved academic and
technical skills rigor.

Conclusion

This publication offers a collection of excerpts from each of the papers
commissioned from some of the leading thinkers in the field of high
school education policy and responses to those papers.

# CHALLENGES FACING TODAY'S AMERICAN HIGH SCHOOL

## What Ails High Schools? 

## How Should They Be Reformed?

## Is There a Federal Role?

## Chester E. Finn Jr.

## Thomas B. Fordham Foundation

**The presentations have been edited for length. For full papers, with
citations, please visit**
http://www.ed.gov/about/offices/list/ovae/pi/hs/commisspap.html**.**

It's nothing new to remark upon the troubled performance and ill-focused
mission of American high schools....These ailments include seven
elements:

First, mission confusion. Writing for the National Commission on the
High School Senior Year, Michael C. Rubenstein put it well:

"\[H\]igh schools have periodically reacted to three major
visions....The first vision....views schools as social agents whose
mission is to produce well-rounded, literate citizens able and ready to
advance the cause of democracy and civilization.... The second
vision....views schools first and foremost as academic institutions
whose mission is to prepare students for advanced learning in college
and beyond.... The third vision....views schools primarily as economic
institutions, whose mission is to prepare students for employment in an
expanded economy."

Second, remediation. If the three R's and a decent ration of fundamental
knowledge don't get solidly implanted during a student's first nine
years of formal schooling, it becomes the high school's job.

Third is scale. Most U.S. high schools are simply too big, making them
impersonal, anonymous places where it's easy for timid students to
disappear, for troublemakers to elude responsibility, and for adults to
view their youthful charges as numbers rather than individuals.

Fourth is pupil motivation. For many young people, high school is deeply
boring---and how one does there doesn't much matter. So long as one puts
in the time and accumulates the credits for that diploma, one's grades,
class rank and extracurricular participation do not count for a lot in
the real world, except for that small fraction of students aiming for
highly selective colleges.

Fifth is obsolete notions of teaching and learning. One reason that high
school \[may not engage some students\] is that its instructional modes
and technologies haven't changed in a century, though everything else in
the world has changed.

Sixth, changing lives and career patterns. Our high schools were
designed for a world that no longer exists for many American
adolescents. When one cumulates the effects on them of popular
culture---its basic institutional arrangements are sadly out of whack
with the world these young people actually inhabit.

Seventh and finally is the proliferation of rival providers. Even
without explicitly embracing a policy of school choice, America has
begun to provide teenagers and young adults with many ways of
getting---and showing that they have---an education.

High schools are a stepchild of federal policy....marooned between
Washington's focus on the early and middle grades and the major
attention that Uncle Sam pays to college.

The soundest way to think of high schooling is preparation for
adulthood....What does America want from its young adults? Three things
above all:

First, that they possess the skills and knowledge that will make them
independent, self-sufficient and productive members of our society, no
matter what educational and vocational paths they later follow. Call it
economic readiness.

Second, that they be ready to take their places as citizens, with decent
knowledge of their government and community, some grounding in the
history, governance, geography and culture of their nation, and a desire
(and the requisite know-how) to participate constructively in adult
society. Call it civic readiness.

Third, that they be good people, self-disciplined and ethical, honest
and law-abiding, cooperative, confident, caring and optimistic. Call it
personal readiness.

Is American society ready to give its regular high schools much stronger
leverage over the civic formation of adolescents? Pay the dollar price?
And risk the marginalizing of other institutions---from church to family
to YMCA---that could result from an enlarged high school mission? No,
American society is probably not ready to do so. It is, however, a
suitable area for experimentation, and this may suggest a fruitful field
for federal (and philanthropic) activity.

\[T\]he clear trend of state policy is to set exit requirements for
academic and technical skills (economic readiness) that students must
meet before receiving diplomas, and to enforce these via high-stakes
tests.

There is early evidence from some states that these hopes are not
fantasies, that after much grousing about "teaching to the test,"
"narrowing the curriculum" and "turning floors into ceilings," actual
gains do result from this regimen, rich-poor achievement gaps do narrow
and minority youngsters do better.

How might federal policies further the cause of standards-based,
academics-centered renewal at the high school level?

First, set academic requirements for federal student aid. Second, better
12th-Grade NAEP scores. There is discouraging evidence that high school
seniors don't take \[this test\] seriously because, once again, it
doesn't "count" in their lives. Third, \[develop\] research and pilot
programs geared to making high school more engaging for young people.
Fourth, extend the logic of "no student left behind" to place greater
attention on the high school years. Fifth, promote school choice, not
just for the familiar reasons set forth on behalf of charter schools,
vouchers and the like, but also as a promising form of dropout
prevention and recovery.

Returning to the "macro" conception of high schools, i.e., as
institutions that attend to personal and civic as well as academic and
economic readiness, it's important for Washington to tread lightly....
But that does not mean Uncle Sam must be inert.

-   \[We must\] explore more experimentation, research and evaluation,
    not just with government-sponsored programs but also the privately
    conceived sort.

-   This kind of innovation---preparing young people for life, including
    but not limited to economic readiness---might become the focus of
    the next generation of the Perkins Act and other traditional venues
    for federal vocational education policy.

-   Washington should engage in orderly, creative thinking about its own
    civic and character-shaping programs outside of formal education.

-   \[We must\] explore more choice policies. Given the strong views of
    families and communities on these matters, Washington is wiser to
    help create options rather than to impose mandates.

-   \[We must\] examine the bully pulpit. Reengineering the high school
    needs changed attitudes and expectations at least as much as it
    calls for new structural arrangements. National leaders can do a
    great deal here: calling attention to problems, giving airtime to
    ideas, saying things that get journalists to write about them,
    rewarding innovators, fostering debate about options, creating
    "summits" to focus the minds of others on these issues.

This brief overview has argued that policy incoherence in the nation's
capital with respect to high schools is representative of a broader
national confusion about them. The latter is the real problem.
Washington could contribute in various ways to its solution.

## Achievement: High Schools in America 2001

## Jan Somerville, National Association of System Heads and the Education Trust

Since the Nation at Risk report in the mid-1980s, there has been a
flurry of activity at all levels, and some of that also in high schools.
The achievement result, however, particularly if you look at our
national barometer, the National Assessment of Educational Progress
(NAEP), shows us that, in fact, achievement in American high schools has
remained downright flat. A little bit up in math and science, and at the
same time, heading down in reading and probably writing. But the
question arises, "How much of that learning in a child\'s career has
happened in high school?"

The message that we are seeing is perhaps because of the focus on the
elementary schools in recent years, indeed, the learning growth in
elementary and middle schools outpaces that of high schools,
particularly if we look at reading and mathematics. Science is the one
exception we see so far. But let\'s take a closer look.

The learning gains that are happening in high school have actually
started to shrink in the 1990s. The nice thing about NAEP is that you
can track learning over time and over the career of students. What this
shows us is that we have actually made improvement at the elementary and
middle grades in terms of learning gains. However, those are more than
offset by the decline in reading gains in high school.

In the Third International Mathematics and Science Study (TIMSS) data,
if you look at the United States and other countries that are getting
similar results, we rank in the middle. Counter to the folklore, we
start out quite well in the early grades. We are middlin\' by the middle
and low by the end.

Take mathematics and you see a somewhat similar picture. For many, many
decades we discounted this data on the basis that we were "open
access"....\[W\]e educated far more than any of the other countries, so
they had a very selective slice. This is no longer true. The pace of
progress of other nations of educating more students to high levels is
accelerating as ours is declining.

Indeed, we have slipped, even in our graduation ranks. As you know, in
the Education Trust we focus particularly on raising achievement for all
groups, and closing the gaps among them. Fortunately at the state level
the Elementary and Secondary Education Act reauthorization has said that
how we do by the least of our students is the measure of a school's
success.

Let\'s look again at NAEP.

What happened in the 1970s and the mid-1980s was that we were actually,
in the case of reading, able to close the gap by almost half. Since that
time, NAEP scores have been flat or actually declining a bit. When we
look at mathematics we see a similar pattern, closing gaps by about a
third, then staying flat.

\[A\]s we look at what happens to students two years after they left
high school, the vast majority of them are in college. While we are
still having policy debates about who should go, the students and their
parents have determined it is essential that they participate in
postsecondary training. They are, however, not well prepared. Many of
them have not even completed the recommended high school curriculum to
have a chance to succeed in college.

## The Missing Middle: Aligning Education and the Knowledge Economy

## Anthony P. Carnevale and Donna M. Desrochers, Educational Testing Service

As we begin the 21st century, our ability to produce and disseminate
education will increasingly determine our nation's economic
competitiveness as we shift from an industrial to an information
economy. Education facilitates the current transition in two ways:
First, the initial stock of education in individual nations determines
growth potential in the new information economy.^1^ Second, increases in
a country's overall level of educational attainment causes corresponding
increases in their overall rate of economic growth.^2,3^

Economic and demographic changes already underway will increase the need
to align curricula with work requirements and to create stronger
relationships between high schools and colleges, communities and
employers. The U.S. workforce, whose size has increased by almost 40
percent over the past 20 years, will slow its growth by one-half over
the next several decades in response to demographic changes. As the baby
boomers with postsecondary education retire over the next 20 years, we
will be hard pressed to produce a sufficient number of Americans with
postsecondary education or training to meet our needs. Shortages of
workers with some college-level skills could increase to more than 12
million by 2020, creating a growing need for youths with postsecondary
education or training to replace college-educated retirees.^4^

The realities of economic change have been in evidence for the past half
century, as new job creation has been concentrated in "knowledge jobs"
rather than production jobs or extraction jobs like farming and mining.
Tracking the share of total employment shows that jobs in hospitals and
classrooms have grown substantially, but white-collar office employment
has grown the most---accounting for almost 40 percent of all jobs in
2000. The overall number and share of technology jobs also has grown,
but they still do not represent a large share of all jobs.

Wage trends also suggest an increase in demand for skilled labor. Among
prime-age women, earnings at all levels of education attainment have
risen, but the earnings of those at the top of the education ladder have
risen the most. The earnings of prime-age men with at least a bachelor's
degree also have increased, but at a slightly slower rate.

In contrast, the earnings of men with some college or less have declined
as adjusted for inflation.

The increasing divide between those with skills at the "some college"
level and those with skills typical of people with high school diplomas
or less education has increased income dispersion in the United States
to the point where we have surpassed Great Britain as the nation with
the widest income differences among the world\'s advanced economies.

To meet our growing skill needs, the relationship between education and
work requirements must be strengthened, beginning with a stronger focus
on the "missing middle" in education policy: the years when academic and
applied learning overlap between the completion of occupational or
professional training.

The demand for specific vocational skills has been augmented by a
growing need for general skills including reasoning abilities, general
problem-solving skills and behavioral skills. Cognitive styles, such as
how workers handle success and failure on the job, also are important in
determining success on the job. And while general skills are becoming
increasingly important, occupational and professional competencies are
still needed to complement these more general skills.

The missing middle in American education and training policy has
gradually come to light in response to the diverse needs that have
emerged among adolescents and young adults over the past 20 years. In
general, these needs tend to arise in different ways among the most and
least educationally advantaged and among the majority of students caught
in the middle of their high school class.

Our ability to move the majority of high school students into the most
rigorous curriculum is a remarkable achievement. But part of what's
missing, starting in the middle years of the K-16 pipeline, is a
curriculum that matches up with the diverse educational and career needs
of young adults. In particular, we are still hard at work trying to
develop curricula that: (1) integrate academic competencies into applied
and vocational pedagogies, especially in high schools; (2) align the
content of the core academic curriculum that now dominates in secondary
schools with the more applied curricula that now dominate postsecondary
education and training; and (3) align academic curricula more closely to
the competencies people actually use on the job once they finish their
initial education, including cognitive reasoning abilities and "soft
skills" such as problem solving, interpersonal skills and positive
cognitive styles that are important in career success.

RESPONSES

Respondents were asked to comment on the panelists' presentations. The
following are summaries of those responses.

Susan Sclafani, U.S. Department of Education

Sclafani noted that wonderful programs and alternatives to high school
are often available to students only after they have failed and not
before. She also agreed with the panelists that high schools do not have
a clear mission. She noted that it is essential in this multimedia age
that high schools go beyond traditional methods of teaching and embrace
new ways of reaching students. Ways to affect change include promoting
research and experimentation, identifying community-based examples that
work and sharing what has been learned.

Beth Buehlmann, Center for Workforce Preparation, U.S. Chamber of
Commerce

Buehlmann noted that in the age of the Internet and MTV, schools need to
adapt to the way today's students learn if the United States is to
compete globally. She observed that schools should have incentives to
keep students connected. She added that teacher quality is important
from the business perspective. And, most notably, teachers across the
board need to be better prepared.

Bill East, National Association of State Directors of Special Education

East noted that the reports paid very little attention to students with
disabilities. He underscored the need to help all students, including
those with disabilities and minorities who have different ways of
learning. He agreed that technology is underutilized in schools and
attributed it to the fact that people do not know how to use it. He
added that the federal government should take a leadership role in
promoting experimentation, and that schools do not need hundreds of
promising practices but instead research-based, proven practices.

# PREPARING STUDENTS FOR HIGH ACHIEVEMENT AND POSTSECONDARY TRANSITIONS

## What Should Be the Federal Role in Supporting and Shaping Development of State Accountability Systems for Secondary School Achievement?

## John H. Bishop, New York State School of Industrial, and Labor Relations, Cornell University

In the 1960s, U.S. participation rates in secondary education were the
highest in the world. This is no longer true. According to the OECD
data\...enrollment rates of 16- and 17-year-olds in Australia, Belgium,
Canada, Denmark, Finland, France, Germany, Japan, Korea, the
Netherlands, Norway and Sweden all exceed U.S enrollment rates by 10
percentage points or more. Graduation rates are also higher in these
countries.

The rate at which U.S. students learn new skills clearly decelerates
during secondary school. Gains on the TIMSS math and science assessments
from fourth to eighth grade are smaller for the United States than any
other country. How do students who lead the world in fourth grade get
transformed into cellar dwellers at the end of upper secondary school?

Systems that hold high schools accountable for student learning are
particularly difficult to design for five reasons. First, high schools
have multiple goals. Second, measuring achievement in core academic
subjects is more difficult for high school students than for elementary
school students. The third difficulty is that high school tests measure
the cumulative result of ten to twelve years of schooling not just what
has been learned since the student entered high school. The fourth
difficulty is that when a test is not part of a course's grade or
important to the student in some other way, many high school students
fail to put much effort into answering all the questions correctly and
completely. The fifth problem in holding schools accountable is the low
quality and low standards of many of the high school tests used in
accountability systems.

"No Child Left Behind" tries to prevent this problem from arising by
adding a provision to the Elementary and Secondary Education Act rules
on state standards and assessment. The law requires that a state's
academic standards include challenging student academic achievement
standards that are aligned with the state's academic content standards.

Minimum competency exam (MCE) high school graduation requirements are
the most common way that states make students accountable for learning.
Studies of the effect of MCEs have found that they increase college
attendance and post high school earnings but have little effect on test
score gains during high school and lower the probability that low GPA
students get a high school diploma. A number of states appear to be
following a strategy of driving their educational systems to higher
standards by periodically revising their MCE in order to set
progressively higher minimum standards.

MCEs create a "high stakes for a few" students system": state tests
determine or influence receipt of diplomas or promotion to the next
grade, but only a small minority of students are really at risk of being
retained or being denied diplomas. One benefit of "high stakes for a
few" is that it focuses school efforts on helping the most poorly
prepared students.

"Moderate stakes for everyone" should be the objective not high stakes
for a few. A number of ideas for generating moderate rewards for
learning are described below. While states with no MCE have the greatest
need to implement these approaches, these proposals can improve
motivation and student culture in MCE states as well.

1)  Make the consequences of doing poorly on state tests less draconian.
    Retention should be reserved for only the most egregious cases and
    only after extra time remediation efforts have been tried and
    failed.

2)  The administration should push for a big expansion in the number of
    students taking advanced placement (AP) and international
    baccalaureate (IB) courses and examinations.

3)  Graduated rewards for doing well on state tests should be offered.
    The rewards should not be large amounts of money for exceeding a
    cutoff \[score\]. They should be graduated and based on absolute
    performance not performance relative to the other students in the
    school. All of these ideas have already been implemented by a few
    states. Additional states should implement these policies.

4)  America's premier high stakes tests, the SAT I and ACT, are not
    comprehensive measures of learning during high school. The energy
    that students devote to cracking them would be better spent reading
    widely and learning to write coherently, to think scientifically, to
    analyze and appreciate great literature and to develop fluency in a
    foreign language.

5)  End-of-course exams (EOCEs) should be the core of accountability for
    high school students. The regression analysis of state NAEP test
    scores and dropout rates summarized in section three of this paper
    found that end-of-course exams had more positive effects on learning
    and retention than high stakes MCEs and the no or low stakes
    end-of-grade exams.

## Reconceptualizing Extra Help for High School Students in a High Standards Era

## Robert Balfanz, James McPartland and Alta Shaw, Johns Hopkins University

One of the aims of the standards and accountability movement is to make
intellectually demanding course work in high school the norm.^5,6^
Significant progress has been made toward this goal.

Expecting all students to engage in and succeed with challenging work in
high school, however, places on high schools demands they have not been
historically organized to face.

The notion that large numbers of students, at least in some high
schools, might be in need of organized and sustained extra help and
support to develop the reading and mathematical skills assumed by
challenging high school level work is not part of the mission,
organizational structure or culture of high schools. High school English
teachers, for example, do not see themselves as reading teachers.

As the push for higher standards becomes institutionalized through
raised promotion and graduation requirements, providing extra help to
high school students moves from a need to a necessity.^7^ In a growing
number of districts, for example, passing algebra is becoming a
requirement for promotion into the 10th grade.

All of these benefits, however, will be mitigated if requiring the
passing of algebra in ninth grade or other efforts to raise standards
leads to an increase in the dropout rate or makes the existing rate less
likely to decline. Thus without substantial extra help, students who
enter ninth grade multiple grade levels behind will face a high-risk
proposition.

The extra help demands faced by high schools with high standards for all
students, however, are not limited to entry-level courses or inner city
students. The fact that, by some estimates, up to a quarter of entering
college students need to take remedial math or reading classes,^8^ and
that a number of states have had to scale back or delay their proposed
graduation exams because of high initial failure rates, indicates that a
large gulf exists between current and desired levels of high school
achievement nationwide.^9,10^

Accordingly, there is a strong imperative to understand the extent and
type of extra help high school students will need to thrive in a
high-standards environment and to examine the current state of knowledge
about the provision of effective extra help.

The specific types of skills and strategies most high school students in
need of extra help lack vary by domain but share several features in
common: they involve intermediate level skills (abilities that are the
focus of a good middle school education) and more advanced reasoning
strategies.

Overall, then, the majority of high school students in need of extra
help with reading need support and direction to make the transition from
beginning to expert readers.

A recent synthesis of existing research on mathematical learning by the
National Research Council (NRC), as well as interviews with high school
teachers, indicate that operating with rational numbers (fractions,
decimals and percents) and integers (positive and negative numbers) are
the two intermediate skill areas where entering high school students are
most in need of extra help.^11^

Schools will need support to fund comprehensive extra help programs.
This could, in part, be accomplished by directing a greater share of
Title I funds to high schools or by having separate grant competitions
for the development and implementation of effective extra help programs
in reading and mathematics. The federal government also needs to be an
advocate for providing extra help to high school students. Too often it
is assumed that students cannot recover from poor elementary schooling
and hence all reform efforts should be located in the early years. As
the body of knowledge about providing effective extra help to high
school students increases it needs to be widely disseminated to
policymakers and the public.

What is needed now is a sustained research, development and evaluation
effort which builds upon the emerging knowledge base to create a
comprehensive and multifaceted approach to providing extra help in high
school which ensures that all students can get the support they need to
master standards-based course work.

## What Role Can Dual Enrollment Programs Play in Easing the Transition between High School and Postsecondary Education?

## Thomas R. Bailey, Katherine L. Hughes, and Melinda Mechur Karp, Teachers College, Columbia University

Research demonstrates clear economic benefits from continuing education
beyond high school. Earning an associate's or particularly a bachelor's
degree has large economic returns.

However, far fewer young people graduate from postsecondary school than
those who state that they intend to do so. In 2000, 66 percent of high
school graduates aged 25 to 29 had completed some college, but only 33
percent of graduates held a bachelor's degree.^12^

This slippage results from a variety of causes. Students may be unsure
of how to apply for college or how to pay for it; they could be
academically unprepared for higher education; or they may face what can
be a frustrating task of balancing school and work while searching for a
course of study that will place them in a meaningful career path.

Dual enrollment programs allow high school students to enroll in a
college course prior to high school graduation, giving them first-hand
exposure to the requirements of college-level work while gaining high
school and college credits simultaneously. Traditionally, these programs
have been reserved for high-achieving students.

Recently, however, some educators have argued that middle and even
low-achieving students can benefit from dual enrollment programs. Some
believe that underachieving students can actually perform at a much
higher level; these students are just not motivated to do so because
they are bored in class or see little relationship between their
achievement in high school and their future success.^13^ Offering these
students dual enrollment opportunities---academically rigorous and
engaging courses---might promote hard work and high achievement. Thus
the presumed challenge of dual enrollment courses is viewed as a way to
motivate students to work harder than they would in a regular high
school class. This is consistent with the popular view that a wide range
of students responds well to high expectations.

These benefits are particularly important for vocational students. The
increased emphasis on academics and standards has led to a de-emphasis
on vocational course work in the high school. Such courses, particularly
those that are lab-intensive and in need of regular updating, such as
automotive technology, printing or welding, are being phased out in many
high schools in favor of academic course work.^14^

The presence of well-developed vocational courses and labs at community
and technical colleges means that dual enrollment can provide such
options for students who may not have access to vocational education in
their high school. The community college's traditional role as a
provider of technical education makes such a partnership with high
schools an ideal endeavor---students are able to take vocational
courses, high schools can focus on creating curricula that enable all
students to meet high academic standards, and two-year institutions are
able to fill their technical classes and create a "pipeline" of future
students.

In addition to encouraging the transition to college, dual enrollment
can help students make the psychological transition. Frequently,
students who do not persist in college cite nonacademic factors as
reasons for dropping out: they are overwhelmed by the new institution,
they are unfocused, or they had unrealistic expectations of the college
experience.^15^ Because many, though not all, dual enrollment programs
include time on campus and exposure to the nonacademic side of college,
it can serve as a demystifying experience for students, allowing them to
acclimate to the college environment earlier.

As many dual enrollment programs are free to participating students,
they serve as an inexpensive way for young people to earn college
credits, thus lowering the long-term cost of a college degree.^16^ The
ability of students to accumulate college credits, in some cases up to
almost a full year's worth, prior to entering college allows them to
both shorten the time it takes to earn their degree and save
significantly on the overall cost of their education.

Although community college and high school faculty and administrators
are enthusiastic about dual enrollment, some state- and district-level
officials and legislators are more skeptical. Much of the concern is
focused around financing.

The minimal research available certainly indicates that participants and
educators, both in high schools and community colleges, are enthusiastic
about the strategy. Students do proceed on to college and have more
success there than typical high school students, although this may
reflect the characteristics of the dual enrollment students rather than
the effects of the program. What we know so far is positive enough to
warrant further experimentation and assessment.

## Beyond Empty Promises: Policies to Improve Transitions into College and Jobs

## James E. Rosenbaum, Northwestern University

In the past two decades, jobs and colleges have dramatically changed
their requirements, but these changes are often poorly understood, and
the resulting misconceptions have led to misguided educational
practices. Reviewing research evidence, we conclude that
well-intentioned educators have encouraged misguided "college for all"
policies which prevent students from: 1) getting crucial information
about how they are doing; 2) seeing the full range of their desirable
options;

3\) assessing the appropriateness of these options and their likely
outcomes; and 4) seeing what actions they can take to improve their
career outcomes.

Without any public decision, American high schools have quietly adopted
a new informal policy, what I\'ve called the "college-for-all"
policy.^17^ The following sections present 12 misconceptions and
research evidence about these misconceptions.

-   Misconception 1: Counselors should advise all students to attend
    college.

-   Misconception 2: All students should plan to get college degrees.

-   Misconception 3: Students with college plans do not need to prepare
    for work.

-   Misconception 4: Open admissions allow all students to enter college
    classes.

-   Misconception 5: College plans lead to increased school effort.

-   Misconception 6: High schools should focus on academic preparation,
    instead of warning students about their college prospects or
    providing other career options.

-   Misconception 7: All good jobs require a college degree.

-   Misconception 8: High school achievement is irrelevant to job
    outcomes.

-   Misconception 9: Noncognitive behaviors in high school are
    irrelevant to job outcomes.

-   Misconception 10: Vocational education is irrelevant to job
    outcomes.

-   Misconception 11: High school teachers cannot help students get
    better jobs.

-   Misconception 12: Society can wait to address students'
    employability until after high school.

There are rules that students and educators should know, but they
probably don't. The new rules of college and the labor market can be
summarized succinctly:

1)  All students can attend college, but low-achieving students should
    be warned about remedial courses and their own likely prospects.

2)  All students can plan to get a college degree, but, if they are
    unprepared, they must be willing to repeat high school courses in
    college, taking the extra time and effort in noncredit remedial
    courses, with higher risks of failure.

3)  Even if students have college plans, they must still prepare for
    work. All career plans should include multiple options, particularly
    for students who have poor likelihood of completing college.

4)  Open admissions policies allow all students to enter college but not
    necessarily college credit classes.

5)  College plans require increased school effort. If students delay
    their effort until they get to college, the delay will make degree
    completion take longer and be less likely.

6)  Policies to improve college preparation do not remove the need to
    provide information about students' college prospects or to provide
    multiple options.

7)  Many good jobs do not require a college degree, and high school
    graduates actually get such jobs.

Students can improve their chances of getting good jobs by:

1)  Having better academic achievement.

2)  Having better noncognitive behaviors.

3)  Taking vocational courses.

4)  Getting job placement help from teachers.

Additionally, students' employment prospects can best be improved before
they leave high school.

This review indicates an urgent need for policy action. Effective policy
proposals should provide three components.

1)  Provide guidelines---information about college and the labor
    market---which tells students about desirable options and steps they
    can take to set clearer goals.

2)  Provide useful evaluations---tests and ratings that provide usable
    information to students, employers and colleges about students\'
    strengths on diverse valued dimensions.

3)  Provide trusted communication channels---channels that provide
    authoritative information about students' positive qualities to
    employers and colleges and provide authoritative information about
    college and labor market demands to students.

As the last societal institution attended by all youths, high schools
must prepare all young people for adulthood.

The real goal should not be the unrealistic vision of everyone being a
doctor, but the goal of eliminating the all-too-common outcome of having
youths face fast-food jobs and unemployment as their only options. Many
other good jobs are available.

Reform efforts require a prior realization that additional efforts are
needed and a willingness to exert such efforts. The first step is to
provide compelling reasons for why additional efforts are needed, and
then some guidance about what those efforts might be.

RESPONSES

Betsy Brand, American Youth Policy Forum

Brand observed that we should provide students more personalized
attention when it comes to their college and career plans. She observed
that the message "college for all" should evolve to "postsecondary
education for all, at some point in our lives." She stated that "No
Child Left Behind" sends the correct message by not assuming low
achieving students will always be low achieving students. Additionally,
Brand noted that the benefits and issues surrounding dual enrollment
need to be further explored.

John Ferrandino, National Academy Foundation

Ferrandino emphasized the importance of federal investment in
assessments that go beyond traditional curriculum structure toward
interdisciplinary testing. He also suggested exploring various ways of
licensing teachers as a means to effect change in school structures.
Additionally, Ferrandino recommended more intervention at the elementary
and middle school levels to offset problems in high school. Finally, he
encouraged the administration to bring secondary education reform to the
forefront, especially as it relates to urban high schools.

# THE ROLE OF CAREER AND TECHNICAL EDUCATION IN HIGH SCHOOLS

## Raising the Achievement of Low-Performing Students: What Can High Schools Do?

## Gene Bottoms, Southern Regional Education Board

Since 1987 the Southern Regional Education Board, in partnership with
states, has used a comprehensive school reform design to improve the
achievement of career-oriented high school students. At the outset of
the High Schools That Work (HSTW) initiative, almost all career-oriented
young people in the high schools we served were low performing. In many
instances, the schools themselves could be considered low performing.

High Schools That Work has amassed information about the impact of
certain school and classroom practices on the achievement of
career-oriented students through its biennial assessment of graduating
seniors at HSTW schools. National Assessment of Educational
Progress-like exams in reading, mathematics and science and student
surveys about their experiences in high school, conducted every two
years since 1988, have enabled us to document the impact of recommended
course-taking patterns and other practices on student achievement.

Our experiences with these schools over the past three years have
allowed us to learn additional lessons about what is necessary to help
our nation's most challenged high schools improve for all students.
These lessons are:

-   Achieving better alignment of federal and state initiatives for
    low-performing schools. Future federal legislation directed toward
    school improvement should require a common state and federal
    definition of "low performing" as a condition for receiving federal
    funds.

-   Encouraging tougher graduation policies. The states that are making
    the most progress in raising student achievement and changing
    beliefs about students' capacity to learn are those that have
    adopted tougher graduation policies

-   Encouraging an academic or career focus. Encouraging tougher
    graduation policies that get more students to finish a challenging
    academic core is certainly one step to improve the achievement of
    career-oriented students and the achievement of students in
    low-performing high schools.

-   Requiring districts to align resources to support a reform design.
    Unless all resources---federal, state and local---are aligned toward
    the achievement of the improvement goals, schools will continue to
    grapple with how they can fund needed improvements.

-   Building curriculum and instructional leadership capacity at the
    school level. Make support for leadership development programs a
    priority.

-   Designating federal resources to support extra help and successful
    transition. Students can meet higher expectations if they are
    provided extra time and help to meet the demands of a challenging
    high school curriculum.

-   Placing major emphasis on professional development as the key to
    school improvement. The success of any school-improvement effort is
    heavily dependent upon providing educators the professional
    development they need to implement new programs and practices.

-   Making teacher preparation a high federal priority. Federal
    investment is needed to: 1) upgrade the academic foundation of
    career or technical teachers and 2) prepare and certify a new
    generation of teachers who know how to integrate academic standards
    into their curriculum and develop and use classroom assessments to
    evaluate students' academic and technical achievement.

-   Investing in assessing student learning through career and technical
    courses. Completing a quality high school career and technical
    program can add value to academic achievement by advancing the
    technical literacy achievement of students.

-   Supporting the creation of new career or technical schools with a
    priority on urban areas. Regardless of their setting, these schools
    must be adequately funded, held accountable for results, and have a
    site-based governing structure.

What are the conditions that improve the chances for success?

-   Adopting graduation and accountability policies.

-   Aligning district leadership, policies and resources to the chosen
    design.

-   Focusing on curriculum, instruction and student achievement.

-   Getting outside assistance.

-   Assuring quality teachers and instruction.

What practices work in raising student achievement?

-   Realizing a functional school mission.

-   Having students complete a rigorous academic core and a
    concentration.

-   Setting high expectations.

-   Helping students meet the challenge.

-   Rethinking the purpose of career or technical studies.

-   Offering high quality structured work-site learning.

-   Adopting a flexible schedule.

-   Changing how teachers teach.

-   Emphasizing literacy and mathematics across the curriculum.

-   Providing guidance and advisement.

-   Increasing parent involvement.

-   Strengthening transitions.

-   Using assessments to gather data and measure progress.

The effort to improve our nation's public high schools is our most
challenging task. For 45 years, I have anticipated that high schools
would get better as a result of reform efforts taking place in the early
years of education. High schools, now, often undo the good work that was
done in earlier grades. You fix high schools by focusing on high
schools.

## The Role of Career and Technical Education in the American High School: 

## A Student-Centered Analysis

## Kenneth Gray, College of Education, Penn State University

Career and technical education (CTE) is an elective program. Students
can take a single course or a sequence of related courses. Students who
take a sequence of three or more such courses in one occupational area
are classified as CTE concentrators. Most (83 percent) CTE concentrators
also complete an academic concentration as well.^18^ Approximately 20
percent of all high school course work is in CTE.

Various points of view regarding the best role for high school CTE can
be condensed into four main schools of thought or options. One is the
role outlined by federal legislation, namely to provide an occupational
sequence of courses that is integrated with rigorous academic course
work as preparation for postsecondary pre-baccalaureate technical
education or full-time employment. Another is the traditional CTE role
of providing an occupational sequence of courses designed solely to
prepare students for the transition from high school to full-time
employment. Yet another is to retain CTE, not as a sequential
occupational program of study but as unique courses or a strategy that
provides an applied context for teaching academics.^19,20,21^ The final
school of thought is the option of eliminating high school CTE
altogether in favor of a common academic program for all students.

The integrated career and technical education model ensures that no
child will be left behind by, first, providing a sequence of
occupational courses that keeps at-risk children in school and so that
they make a successful transition from high school to work. Second, the
model provides a relevant and effective education to students whose
postsecondary goal is pre-baccalaureate technical education (60 percent
go on to college; of these, 60 percent enroll in pre-baccalaureate
programs). Finally, the occupational course sequence of the integrated
model provides elective skill-building courses for the four-year
college-bound high school students, particularly in the areas of
telecommunications and business software manipulation.

CTE alone, without an integrated academic concentration, is effective as
a dropout prevention and transition to full-time employment for at-risk
youths, many of whom are also special education students. This benefit,
however, is also achieved via the integrated model. At present it is
common practice, for example, to have special needs students mainstream
into integrated CTE occupational classes.

The applied CTE model was judged to be relevant and effective only for
students whose goal is postsecondary technical education. Faced with
taking the traditional academic program only or applied CTE, it is
likely that some of these students would elect the applied program. But
lacking a sequence of occupational courses and thus concrete educational
experiences, it is unlikely this model would be either relevant or
effective with at-risk youths.

Eliminating career and technical education altogether in favor of a
common academic program for all students that can be best described as
"college prep" for everyone. It is by far the least expensive option.
Whereas college prep is the curriculum completed by about 70 percent of
high school students, most teens and parents perceive it as relevant and
effective.

If no student is to be left behind, then the needs of all students must
be addressed. CTE is to some students what AP and honors courses are to
others, namely an alternative to college prep that better address their
post high school plans.

Without federal funds to leverage state and local funds, high-cost CTE
programs will gradually disappear in the face of fiscal restraints at
the local level. Thus, the first federal role in career and technical
education is to provide funds that leverage state and local dollars to
ensure career and technical education is available to those students who
need it.

The second federal role is to use federal funds to leverage CTE program
reform and improvement. Such efforts include broad-based clustered
programs of study, mandatory work-based learning experiences, and review
of CTE teacher licensure requirements and stronger articulation with
postsecondary technical education, etc.

Finally, when considering high school CTE, it is important to observe
that virtually every state that has a good postsecondary technical
college system or community college system that endorses the technical
education role also has viable high school systems. One does not prosper
without the other. Thus, the real issue is not whether high school or
postsecondary technical education is the priority but how the two can be
combined into an improved seamless system.

# 

#  

RESPONSES

Milt Goldberg, National Alliance of Business

Goldberg emphasized the importance of utilizing data to determine
direction and effectiveness. However, he noted that state systems are
often organized in ways that make it difficult to produce changes. He
observed that it is not what states require in curriculum, so much as
how they are governed to administer elementary and secondary education
and how that relates to higher education and community colleges.

Phyllis Eisen, National Association of Manufacturers

Eisen said that businesses spend close to \$100 billion a year on
education and training, with about 50 percent of that going toward
remedial education for workers. She pointed out that there have been
discussions for a decade about how to prepare students with basic
advanced skills, such as problem solving and interpersonal
communication. She concluded that while research is always important,
America already knows enough about these problems to begin doing
something about them right now.

# RECOMMENDATIONS

During the course of the High School Symposium, the panelists and
respondents discussed the following as possible next steps for helping
America's high schools prepare for the future.

Better Define the High School Mission:

-   The mission of high school is ill defined.

-   Today's high school is too large, too broad in scope and caters to
    too many masters.

-   The federal government can work with constituent groups to begin to
    define the mission of today's high school.

-   While the federal government cannot mandate change in the structure
    of high school, it can use the bully pulpit to begin to effect
    change.

-   The federal government can encourage experimentation with high
    school models, curricula, assessment, teacher training, etc. and
    provide funding to support those reforms that seem the most
    promising.

Create Better Links between Secondary and Postsecondary World:

-   High school needs to "count" in the mind of students. It is not a
    place for students to bide their time until they can go to college
    to learn about an occupation.

-   "College for all" (four-year programs) is not a realistic goal. More
    than two-thirds of high school graduates will eventually enter the
    job market without a four-year degree. Students need to learn
    cognitive, decision-making and problem-solving skills in high school
    in order to take advantages of academic and nonacademic
    opportunities in the postsecondary world.

-   High schools and colleges should work to align their curriculum for
    logical transitions. Dual enrollment programs can help in this area

-   Adding a career-focus to high school curricula appears to lead to
    greater interest and success in postsecondary education.
    Experimentation in this area is suggested.

-   There should be more efforts in high school to introduce students to
    the college environment early to learn what is expected of them in a
    postsecondary educational setting.

Better Define the Role of Assessment in High School:

-   Assessment should be challenging and rigorous. It should push
    students to succeed. At the same time, there should be structures in
    place to help those students who need it, or drop out rates may
    rise.

-   Assessment should be perceived as "counting." Failure to take
    assessment seriously should have ramifications for students.

-   External assessment, like those used in other industrialized
    nations, should be looked at and experimented with in the United
    States.

# ENDNOTES

1.  Romer, Paul M. "Endogenous Technological Change." Journal of
    Political Economy 5, Part 2 (1990): 98.

2.  Topel, Robert H. "Labor Markets and Economic Growth." Forthcoming in
    Orley Ashefelter and David Card, eds., Handbook of Labor Economics.
    Amsterdam, The Netherlands: Elsevier Science B.V., 1998.

3.  Krueger, Alan B. and Mikael Lindahl. "Education for Growth in Sweden
    and the World." NBER Working Paper 7190. Cambridge, Mass. National
    Bureau of Economic Research, 1999.

4.  Ellwood, David T. "The Sputtering Labor Force of the 21st Century:
    Can Social Policy Help?" In Alan B. Krueger and Robert Solow, eds.,
    The Roaring Nineties: Can Full Employment Be Sustained? New York:
    The Russell Sage Foundation and the Century Foundation, 2001.

5.  Achieve, Inc. "Standards: How High Is Enough?" Achieve Policy Brief,
    No. 3. 2001. Washington, D.C.: Author.

6.  Committee for Economic Development. Measuring What Matters: Using
    Assessment and Accountability to Improve Student Learning. New York,
    N.Y.: Author.

7.  Jacob, Brian A. 2001. "Getting Tough? The Impact of High School
    Graduation Exams." Educational Evaluation and Policy Analysis, No.
    23: 99-121.

8.  "A Closer Look at Remediation." Community College Week, 10 (1997):
    8.

9.  Jacob, Brian A. 2001. Op. cit., 99-121.

10. Olson, Lynn. "A Quiet Crisis: Unprepared for High Stakes." Education
    Week, Vol. 20 (2001): 1, 12, 14, 16-17.

11. Findell, Bradford, et al. Adding It Up: Helping Children Learn
    Mathematics. Washington, D.C.: National Academy Press, 2001.

12. U.S. Department of Education. National Center for Education
    Statistics (NCES). 2001. The Condition of Education. Washington,
    D.C.

13. Lords, Erik. "New Efforts at Community Colleges Focus on
    Underachieving Teens," The Chronicle of Higher Education (June 30,
    2000): A45.

14. Rafn, Jeffrey H. 2002. "Dual Enrollments: The Northeast Wisconsin
    Technical College Experience." Presentation to the Community College
    Research Center, Teachers College, Columbia University.

15. Levitz, Randi, et al. Increasing Student Retention. San Francisco:
    Jossey Bass, 1985.

16. Orr, Margaret T. 2002. "Dual Enrollment: Developments, Trends and
    Impacts." Presentation to the Community College Research Center,
    Teachers College, Columbia University.

17. Jones, Stephanie A. and James E. Rosenbaum. "Interactions between
    High Schools and Labor Markets." Handbook of the Sociology of
    Education. New York: Plenum, 2000.

18. National Center for Education Statistics. (2001) The 1998 High
    School Transcript Study Tabulations. NCES 2001-498.

19. Bragg, Debra. (1997). "Grubb's Case for Compromise: Can 'Education
    through Occupation' Be More?" Journal of Vocational Education
    Research, 22(2), 115-122.

20. Grubb, Norton. (1997) "Not There Yet: Prospects and Problems for
    Education through Employment." Journal of Vocational Education
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21. Techniques. (Nov.-Dec. 1996). "Where Is Vocational Education
    Headed?" Washington, D.C.: American Vocational Association, 24-29.

# ACKNOWLEDGMENTS

The U.S. Department of Education, Office of Vocational and Adult
Education, wishes to thank the High School Symposium presenters and
respondents for the time and deep consideration involved in preparing
their papers.

Presenters

Thomas R. Bailey is the George and Abby O\'Neill professor of economics
and education in the Department of International and Transcultural
Studies at Teachers College, Columbia University. He is also the
director of both the Community College Research Center and the Institute
on Education and the Economy. Bailey holds a Ph.D. in labor economics
from MIT.

Robert Balfanz is an associate research scientist at the Center for
Social Organization of Schools, Johns Hopkins University, and an
associate director of the Talent Development High School program.
Balfanz has 15 years of experience in the research, development, design
and implementation of curricular and instructional reforms. Balfanz
received his Ph.D. in education from the University of Chicago.

John H. Bishop is a member of the Department of Human Resource Studies
at the New York State School of Industrial and Labor Relations, Cornell
University. He is also executive director of the Educational Excellence
Alliance, a consortium of more than 400 high schools studying ways to
improve the way we educate our young people. Bishop earned his Ph.D. in
economics at the University of Michigan.

James E. (Gene) Bottoms has served as director of the Southern Regional
Education Board\'s High Schools That Work initiative to improve high
schools for career-bound students since 1987. Previously, he served as
executive director of the American Vocational Association and as
director of educational improvement for the Georgia Department of
Education.

Anthony P. Carnevale, vice president for public leadership at the
Educational Testing Service, is an internationally recognized authority
on education, training and employment. Previously, he served as vice
president and director of human resource studies at the Committee for
Economic Development. Carnevale received his Ph.D., with a concentration
in public finance economics, from the Maxwell School at Syracuse
University.

Chester E. Finn Jr. is a John M. Olin fellow at the Manhattan Institute
and president of the Thomas B. Fordham Foundation. Finn is a fellow of
the International Academy of Education, a distinguished visiting fellow
at Stanford's Hoover Institution, and an adjunct fellow at the Hudson
Institute. He holds a Ph.D in education policy from Harvard University.

Kenneth C. Gray is professor-in-charge of the Workforce Education and
Development Program in the College of Education at Penn State
University. Prior to joining the faculty at Penn State, he was the
superintendent of the Vocational Technical High School System in
Connecticut. Gray holds a Ph.D. in vocational technical education from
Virginia Tech.

James E. Rosenbaum is professor of sociology, education and social
policy at Northwestern University. He has researched the high school to
work transition in the United States and Japan, and he is now conducting
foundation-funded studies of the community college to work transition.
Rosenbaum earned his Ph.D. at Harvard University.

Janis Somerville is the director of the State K-16 Initiative for the
National Association of System Heads (NASH)-Education Trust. She founded
the Philadelphia Schools Collaborative, a joint venture of area
foundations and the Philadelphia School District to restructure high
schools and improve college access. Somerville holds an M.B.A. from
Harvard.

Respondents

Betsy Brand is co-director of the American Youth Policy Forum, a
nonprofit organization providing professional development to
policymakers in the fields of education, career preparation and youth
development. Prior to joining AYPF, Brand was president of Workforce
Futures, Inc. and served as assistant secretary for vocational and adult
education, U.S. Department of Education, for five years.

Beth B. Buehlmann is executive director of the Center for Workforce
Preparation (CWP), a nonprofit affiliate of the U.S. Chamber of Commerce
that helps member chambers develop strategies to remain competitive in
the global economy. Buehlmann received her Ph.D. in higher education
administration and M.S. from Illinois State University and her B.S. from
Chicago State University.

Bill East is executive director of the National Association of State
Directors of Special Education, which represents the directors from all
50 states and the federal jurisdictions. East served as state director
of special education in Alabama from 1990 -- 1998. East earned a
doctorate in education from the University of Alabama.

Phyllis Eisen is vice president of the Manufacturing Institute of the
National Association of Manufacturers and executive director of the
Center for Workforce Success. Eisen earned her undergraduate degree at
the University of Maryland and pursued graduate work at George
Washington University and the University of Maryland.

John J. Ferrandino is president of the National Academy Foundation,
which has expanded from 290 programs in 33 states to 528 programs in 40
states during his tenure. Before joining NAF, Ferrandino served as
supervising superintendent of the K-12 division in New York City. He
holds a Ph.D. from Fordham University.

Milton Goldberg is senior advisor at the National Alliance of Business
as well as a distinguished senior fellow at the Education Commission of
the States. He previously served as director of the Office of Research
in the U.S. Department of Education. While Goldberg was executive
director, the National Commission on Excellence in Education published A
Nation at Risk.

Susan Sclafani is counselor to the U.S. secretary of education.
Previously she was chief of staff for educational services in the
Houston Independent School District as well as associate superintendent
for district administration. Sclafani received her Ph.D. in educational
administration from the University of Texas at Austin.

**This publication is one in a series of briefs addressing topics and
issues related to high school improvement and closing achievement gaps
among students. For additional information on the Department\'s high
school efforts under its Preparing America\'s Future Initiative, please
visit http://www.ed.gov/offices/OVAE.**