Research Note 85-40/

Job Skills Education Program:

o Plan For High School Diploma

N Louis W. Bender

CD Florida State University

for

Contracting Officer's Representative

Beatrice J. Farr

Instructional Technology Systems Technical Area

Zita M. Simutis, Chief

Training Research Laboratory

Harold F. OWNelk Jr., DirectorDT r

DEC 26 19%

__ U. S. ArmyA

~ Research Institute for the Behavioral and Social Sciences

March 1985

Approved for Public rulen*; distributiofi unlimited.

8 5 12 ~
U. S. ARMY RESEARCH INSTITUTE

FOR THE BEHAVIORAL AND SOCIAL SCIENCES

A Field Operating Agency under the Jurisdiction of the

Deputy Chief of Staff for Personnel

L. NEALE COSBY

4EDGAR M. JOHNSON Colonci, IN

Technical Director Commander

This report, as submitted by the contractor, has been cleared for release to Defense Technical Information Center (DTIC) to comply wvith regulatory requirements. It has been gliven no primary distribution other than to DTIC

and will be available only through DTIC or other reference services such as the National Technical Information

Service (NTIS). The views. opinions, and/or findings contained in this report are those of the author(s) and

should not be construed as an official Depaitmenw of the Army position, policy, or decision, unless so designated by other official documentation.

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REPORT DOCUMENTATION PAGE READ INSTRUCTIONS __ BEFORE COMPLETING FORM

I. REPORT NUMBER 12. GOVT ACCESSION NO. 2. RECIPIENT'S CATALOG NUMBER

ARI Research Note 85-40 . .

4. TITLE (and 5. TYPE OF REPORT & PERIOD COVERED

Job Skills Education Program: Interim Report

Plan for High School Diploma Sept. 1983 - Sept. 1984 6. PERFORMING ORG. REPORT NUMBER

7. AUTHOR(&) 8. CONTRACT OR GRANT NUMBER(S)

Louis W. Bender, Florida State University MDA 903-82C-0532

Beatrice J. Farr, U.S. Army Research Institute

9. PERFORMING ORGANIZATION NAME AND ADDRESS 10. PROGRAM ELEMENT. PROJECT, TASK

Florida State University AREA & WORK UNIT NUMBERS

Center for Educational Technology 2Q263743A794

I> rTallahassee, Florida 32306

II. CONTROLLING OFFICE NAME AND ADDRESS 12. REPORT DATE

U.S. Army Research Institute for the Behavioral March 1985

and Social Sciences, 5001 Eisenhower Avenue, 13. NUMBER OF PAGES

Alexandria, VA 22333-5600 19 pages 14. MONITORING AGENCY NAME & ADORESS(if different from Controlling Office) IS. SECURITY CLASS. (of this report)

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''I

1. SUPPLEMENTARY NOTES

Beatrice J. Farr, contracting officer's representative. This report, together

with RNs 85-22, 85-37, 85-41, 85-42, 85-43, 85-44, 85-45, 85-46, and 85-47,

forms part of a series on the Amy's Job Skills Education Program (JSEP).

19 KEY WORDS (Continue on reverse side if neceessay end identify by block number)

Competency based adult education

Adult education',

Credential ing)

AGES

High school credential. ,-

20. AUSTRACr rCawh u Z reverse ei If neceey md Idnitify by block number)

.,The Job Skills Education Program (JSEP) is designed to provide soldiers with

the prerequisite knowledge and skills required for successfully learning their

Military Occupational Specialties (MOS). When the JSEP is put into effect, it

will replace the Amy's current Basic Skills Education Program (BSEP) with a

sophisticated, computer-based system.

This report details the issues involved in awarding a high school diploma

for instruction received in the JSEP. A plan was developed to approach state-

(over)

DD IJ U473 wi EDIiO. OF INOV SIS OBSOLETE UNCLASSIFIED , SECUITY CLASSIFICATION OF THIS PA:-E (WINPn Dae Entered)

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UNCLASSIFIED

SECURITY CLASSIFICATION OF THIS PAGE(fhe Data Rntered)

* (continued)

- school offices with the curriculum tb solicit their approval to apply JSEP

instruction toward a high school credential. Wok

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i UNCLASS IFI ED

i i ~ ~SCURlTY CL.A.SSIFICATION OF"

THIS PAGEO:'Wh. r ar's F~nffr-d)
FOREWORD

The Job Skills Education Program (JSEP) is a multi-phase program begun in

Fiscal Year 1982, and designed to enhance enlisted career potential by

improving soldier job performance. The sponsor, the Education Division,

Office of the Deputy Chief of Staff for Personnel, expects JSEP to replace

the Army's current Basic Skills Education Program when it is implemented.

The JSEP program, being developed by Florida State University (FSU) will

result in a standardized curriculum for soldiers who demonstrate deficiencies

in the knowledge and skills required to successfully learn their Military

Occupational Specialty (MOS).

In accordance with current policy, JSEP will be an on-duty program. It will

also use a computer-based management system to facilitate an open entry/open

exit approach. At present, most of the lessons being developed will be

computer delivered; however, the plan calls for using existing materials, and

incorporating materials developed as part of other ARI efforts, whenever

appropriate.

A unique aspect of JSEP is that it builds upon a very detailed front-end

analysis of MOS Baseline Skills. The analysis covered tasks performed by

soldiers in the 94 highest density MOSs, in addition to Common Tasks (the

skills that all soldiers, regardless of their MOS, need to know). Although the

Army has over 300 MOSs, the 94 covered in the analysis represent about 80% of

all soldiers. Perhaps the most useful product developed for the analysis was

a taxonomy listing more than 200 prerequisite competencies.(P.C.) for these

MOSs. The competencies were derived from detailed reviews of Soldier Manuals,

and from extensive interviews with subject-matter experts at Army schools.

This effort produced a series of tests intended to diagnose deficiencies in

the P.C.s. Modified versions of these tests will be used in JSEP.

The JSEP program will include a front-end learning strategies module

designed to improve soldier skills in reading, studying, test taking, and

problem solving. The curriculum will consist of this strategies-training, plus

180 diagnostic review lessons, and 120 skill development lessons, which are

being developed for the PLATO and MicroTICCIT computer systems. The program is

being tried out at two TRADOC sites and two FORSCOM sites, prior to an Army-wide

phased implementation.

'-I.I
JOB SKILLS EDUCATION PROGRAM: PLAN FOR HIGH SCHOOL DIPLOMA

EXECUTIVE SUMMARY

Requirement:

To develop standards and a plan for the civilian

academic community to award a high school diploma

based on completion of the Job Skills Education

Program (JSEP).

The Florida State University (FSU) response called for the team to confer

with state officials, identify state high school credentials requirements,

review existing US Army high school diploma programs, analyze JSEP materials,

confer with regional accreditation officials, and maintain communication with

appropriate US Army officials.

The team has complied with all of the prescribed actions above including

visits to Fort Bliss, Fort Carson, Fort Lewis, Fort Monroe, Fort Riley, Fort

Campbell, Fort Bragg, Fort Polk, Fort Rucker, and Fort McPherson as well as the

Adjutant General's Office (TAGO) in Alexandria. Visits have also been carried

out to selected school districts and state departments of education. Other

visits were made to Middle States and Southern Associations of Colleges and

Schools' Commissions on Higher Education.

The purpose of the Task 10 report is to identify considerations or issues

to be answered before the Task 10 plan can be implemented during Task 19 in

Phase III. Following the identification of issues, a list of concerns will be

given. Then, a plan will be provided in order to comply with the Statement of

Work (SOW) product delivery requirements.

Procedures:

During the third year of the Contract, the FSU team will formulate the

Basic Skills Profile (BSP) that will then be circulated to federal, regional,

state, and local education officials directly or indirectly associated with the

Army installations and the twenty-two (22) states identified. The procedure to

be followed in each of these states will be:

1. Complete the JSEP Locator Test.

2. Receive results which include identification of (a) deficiencies

related to (Military Occupational Specialties (MOS) against which

the JSEP diagnostic test would be administered, and (b) the nonMOS related deficiencies which would become the basis for the

Education Services Officer to prescribe off-duty study.

3. The student would follow the learning strategies of JSEP as

outlined in the Implementation and Management Plan.
4. Upon completion of the JSEP process and demonstration of

competencies for MOS related areas, covered during duty hours

(and satisfactory completion of off-duty work), certification

would be made by the Education Services Officer for recognition

at the school district or State Department of Education level.

5. School district or state awarded high school diploma will be

awarded on the basis of the asic Skills Profile or state

prescribed competency test associated with step 4 above.

Findings:

We have found that transfer of credit between accredited postsecondary

institutions may not be the same as acceptance and credit recognition between

secondary (high schools) and postsecondary institutions. Therefore, it is

important to distinguish between a Competency-Based Adult Education (CBAE)

high school credential, a high school vocational education credential, or an

academic high school credential.

CBAE programs offered by state certified or accredited high schools have

as their purpose and focus adult educational literacy. All of the twenty-two

(22) states identified in the Task 10 SOW report that establishing the actual

requirements for the CBAE high school credential is the authority of each

local school district. The desired outcome, however, is demonstrated

competency in the basic skills. Telephone interviews with the officials at

the twenty-two (22) states revealed a strong consensus that the grade level

proficiency of CBAE high school graduates approximates eighth grade level.

Therefore, the literacy skill achievement level of JSEP should meet or exceed

that of the typical school district CBAE high school graduate.

Those two-year and four-year postsecondary institutions having an opendoor admissions policy will find the CBAE high school diploma acceptable for

admissions whether it is a local school district program or the JSEP related

credential. Selective admissions postsecondary institutions will not honor

the CBAE diploma for admissions purposes.

The diploma unique courses range from such courses as "Texas History" in

Texas to a course on "Communism and Americanism" in Florida, where the

military training itself is acceptable to Florida to meet that course

requirement.

Present policies of the US Army make it possible for each installation to

provide an opportunity to a soldier to receive a high school diploma through

the combined on-duty and off-duty studies program. The high school diploma

programs are offered through a contract with a secondary or post-secondary

institution and this policy will be as viable and appropriate with JSEP as it

has been to date.

The specific requirements of each state are presently being accommodated

through the obligation of the contracting high school program institution at each post to have state authorization for the high school credential.

Vi
Additional content will be necessary through off-duty work if the goal

were for blanket award of high school diplomas for all personnel completing

the JSEP programs. It is apparent that great variation in the high school

diploma programs now exists. At Fort Bliss, the program is truly a CBAE

program and therefore consistent with the JSEP Project.

At Fort Carson, the actual program is an academic high school curriculum.

In that case, present Army personnel as well as those in the future would find

it obligatory to complete the required Carnegie units of academic subject

matter regardless of completing the JSEP or their scores on the Test of Adult

Basic Education (TABE).

At Fort Lewis, the contract is with a postsecondary institution that also

has authority to award the high school diploma. An analysis of their program

of studies reveals a general education curriculum and officials of that

contracting agency indicated credit would be given for completion of JSEP.

Utilization of Findings:

There are important assumptions basic to the proposed plan. The first is

that the present Army educational services policies will continue whereby a

contract for off-duty course work will be made with an institution awarding a

high school diploma.

With few exceptions, the state officials interviewed saw the JSEP program

as offering an identifiable basic skills program that could be used as a model

or prototype for Competency-Based Adult Education (CBAE) diploma programs.

The JSEP Locator Test has been designed to identify mastery and deficiencies of verbal and quantitative competencies. Since the instrument must deal

with the total spectrum of military occupations, it is comprehensive.

Therefore, a person taking the Locator Test will have demonstrated verbal and

quantitative mastery or deficiency for a broad range of military occupations.

The on-duty participation in JSEP will be limited to the MOS of that

individual. Any remaining deficiencies will need to be considered as part of

.4 the off-duty requirements of that individual for meeting the high school

diploma requirement.

We believe that this plan will result in the beginning of a dialogue

between representatives of the Army and local officials to adjust the needs of

the program to the realistic possibilities in each of the states. When the

draft curriculum is ready, it can be circulated in suitable form to

*. appropriate state agencies. This mechanism will begin the dialogue.

Nothing in our conversations with any of the state officials indicated

that they were opposed to or were unwilling to consider the approach we

outlined to them.

vii

p*.** * 
JOB SKILLS EDUCATION PROGRAM: PLAN FOR HIGH SCHOOL DIPLOMA

CONTENTS

Page

OVERVIEW .................... ..... 1

Operational Problem ................................................. 1

Research Objective .................................................... 1

Scope ................................................................. 2

PART I: TASK 10 SOW ITEM RESPONSES ...................................... 2

PART II: SUMMARY OF ISSUES .............................................. 5

PART III: PLAN FOR CREDENTIALING ........................................ 7

Assumptions ................................................... 7

Design ......................................... ... 7

Procedures. . .. .................... ......... ....... . .. ........ 8

Three State Plans ................................................... 8

CONCLUSIONS ............................................................. 10

APPENDIX ................................................................. 11

ix
JOB SKILLS EDUCATION PROGRAM: PLAN FOR HIGH SCHOOL DIPLOMA

OVERVIEW

Operational Problem

It is not news that soldiers must be trained to do their jobs. They must

be trained so that each Army job is performed competently--regardless of

differences in ability and background in newly entering soldiers. To accept

less would cause many mission elements to fail.

Moreover, many Army jobs are increasingly dependent upon the soldier's

ability to use high technology and the ability to learn new technology as it

develops. Soldiers, therefore, need more than training. They need enough

education to be able to learn subsequent jobs, to become eligible for

promotion, and ultimately, to provide leadership for tomorrow's Army.

The Job Skills Education Program (JSEP) is designed to provide soldiers

with job-related basic skills instruction that is prerequisite to learning

their skill level 1 and 2 job tasks during their first duty assignment. Based

on an extensive job analysis of 94 of the largest Military Occupational

Specialties (MOS) which contain the largest proportion of soldiers and tasks

contained in the Soldier's Manual of Common Tasks, JSEP provides functional

basic skills instruction on MOS specific requirements.

As it is conceptualized, the JSEP curriculum recognizes that the vast

majority of soldiers will have been exposed to similar basic skills

instruction before entering the Army. Many entering soldiers, however, will

not have learned those basic skills well enough, or will not remember what

they learned. To help soldiers learn better and remember rrore, JSEP

incorporates straightforward training in research-based learning strategies

that are directly aimed at improving learning and retention.

Research Objective

The requirement of Task 10 was to:

Develop standards and a plan for the civilian

academic community to award a high school diploma

based on completion of JSEP.

The Florida State University (FSU) response called for the team to confer

with state officials, identify state high school credentials requirements, review existing US Army high school diploma programs, analyze JSEP materials,

confer with regional accreditation officials, and maintain communication with

appropriate US Army officials.

m 1
Scope

The team has complied with all of the prescribed actions above, including

visits to Fort Bliss, Fort Carson, Fort Lewis, Fort Monroe, Fort Riley, Fort

Campbell, Fort Bragg, Fort Polk, Fort Rucker, and Fort McPherson, as well as

The Adjutant General's Office (TAGO) in Alexandria. Visits have also been

carried out to selected school districts and state departments of education.

Other visits were carried out with selected colleges and universities, as well

as the Middle States and Southern Associations of Colleges and Schools'

Commissions on Higher Education.

The purpose of the Task 10 report is to identify considerations or issues

to be answered before the Task 10 plan can be implemented during Task 19 in

Phase III. To identify those issues or concerns, the format of this report

will follow the sequence and address each item listed under the Task 10

requirements in the Statement of Work (SOW). Following that discussion, a

list of concerns and issues will be given. Then, a plan will be provided in

order to comply with the SOW product delivery requirements.

PART I: TASK 10 SOW ITEM RESPONSES

SOW Item 1. The Servicemember's Opportunity Colleges Associate Degree

(SOCAD) Program has demonstrated that regionally accredited educational institutions can agree to the ready transfer of

academic credit among member institutions. These colleges and

universities provide mutual support for student agreements made

between member institutions and soldiers. A successful

networking of civilian educational institutions with other than

regional accreditation has not been demonstrated.

Response: As reported in the FSU Proposal, transfer of credit among

accredited postsecondary institutions may not be the same as acceptance and

credit recognition among secondary (high schools) and postsecondary

institutions. Most open-door community colleges and baccalaureate

institutions will admit a student who has a high school diploma or its

equivalent. The actual academic course requirements for acceptance at

selective postsecondary institutions may vary, however, even among regionally

accredited institutions. Therefore, it is important to distinguish among a

CBAE high school credential, a high school vocational education credential,

and an academic high school credential. Each will be discussed in more detail

later in the report.

SOW Item 2. Part of the value of the JSEP effort will be to gain wide

acceptance, within the civilian academic community, for the

Competency-Based Adult Education (CBAE) high school credential

to be awarded through successful completion of this proposed Army program. Accordingly, the credential should meet the following criteria:

SOW Item 2-a. Be academically comparable with requirements for high school

credentials earned through CBAE programs offered by state

certified or accredited high schools and by regionally

2
accredited postsecondary institutions throughout the United

States.

Response: CBAE programs offered by state certified or accredited high

schools have as their purpose and focus adult educational literacy. All of

the twenty-two (22) states identified in the Task 10 SOW report that

establishing the actual requirements for the CBAE high school credential is

the authority of each local school district. As a result, requirements vary

in scope and content, with some built around academic and general education

requirements, whereas others are built around "life skill" requirements. The

desired outcome, however, is demonstrated competency in the basic skills.

Telephone interviews with the officials at the twenty-two (22) states revealed

a strong consensus that the grade level proficiency of CBAE high school

graduates approximates eighth grade level. Therefore, the literacy skill

achievement level of JSEP should meet or exceed that of the typical school

district CBAE high school graduate.

SOW Item 2-b. Be academically comparable or superior to the worth of

the high school General Educational Development (GED)

certificate.

Response: The GED high school equivalency certificate provides a profile

of scores in a series of academic areas. JSEP, on the other hand, is aimed at

basic skills proficiency and MOS. It is probably not reasonable, therefore, to

expect "academically comparable" worth since the purposes and content are

clearly different.

SOW Item 2-c. Provide transferable credit for successful course completion

among credential-granting secondary and postsecondary

institutions servicing Army communities and installations

worldwide (e.g., course work completed at one installation need

not be duplicated at another for credit toward a credential).

Response: This requirement may evidence confusion over postsecondary

policies and practices of course credit transfer from institution to

institution and secondary schools where the credential essentially certifies

achievement of basic education foundations. Postsecondary institutions do not

"transfer" course credits from secondary schools except where advanced

academic standing is involved.

The gist of this SOW item appears to be the goal that an enlistee would

not be required to repeat JSEP training should that person be transferred to

another installation. Since JSEP is a competency-based program, there would

be no reason for requiring personnel to "repeat the training" merely because

they were reassigned to another installation.

The concept behind JSEP required an assessment of the soldier's performance level as the basis for determining where that individual would begin

JSEP instruction.

It is possible within the JSEP design specifications to retain records of

work completed within JSEP and to see that these records are transferred from

the US Training and Doctrine Command (TRADOC) school environment to the

Education Center at the first duty station.

3
SOW Item 2-d. Meet the competency and knowledge-domain requirements essential

for promotion to Staff Sergeant (E-6) (Army policy required a

high school diploma or equivalency for promotion to E-6).

Response: As observed earlier, JSEP will equal or exceed the grade level

expectation of the Basic Adult Education High School Diploma according to

officials interviewed in the twenty-two (22) states covered by this contract.

Assuming that the Army accepts the high school diploma awarded at Fort Bliss

for promotion to E-6, then it can be assumed the JSEP will satisfy this

requirement.

SOW Item 2-e. Be acceptable to postsecondary institutions currently serving

Army installations for entry into college level programs.

Response: As previously observed, those two-year and four-year postsecondary institutions having an open-door admissions policy will find the

CBAE high school diploma acceptable for admissions, whether it originates from

a local school district program or from JSEP. Selective admissions postsecondary institutions will not honor the CBAE diploma for admissions

purposes.

Where individuals aspire to such selective institutions, it will be

necessary for them to complete the academic high school diploma program

through off-duty supplemental course work and achieve acceptable scores on

admissions tests required by the selected institutions. Such academic

programs now exist in the Army Continuing Education System (ACES). An example

is found at Fort Carson where St. Mary's High School is under contract for the

off-duty high school completion program.

SOW Item 3. The Army does not intend to rely upon a single credentialing

institution but rather will use appropriately accredited and

state certified institutions to offer the program and provide

the credential.

Response: It is assumed that this item related to policy associated with

contracting for off-duty education and the FSU team would agree that such

contractors should be appropriately accredited and state certified.

SOW Item 4. As indicated previously, the military related portion of the

curriculum will be taught on-duty. The nonmilitary diplomaunique courses will be taught off-duty. Diploma unique courses

are specific courses which are required for high school

graduation in individual states.

Response: The diploma unique courses range from such courses as "Texas

History" in Texas to a course on "Communism and Americanism" in Florida, where

the military training itself is acceptable to Florida to meet that course

requirement. The Adult Basic Education Programs typically do not have many

*i unique courses but rather require evidence of basic skills achievement and

competency to a given level.

SOW Item 5. Currently, Department of Defense Directive 1322.8, "Education

Policy Guidance," and Army Regulation 621-5, "Army Continuing

Education System," require institutions which offer basic

4
skills programs to have either regional or national

accreditation. Contracts for secondary programs must be with

diploma-granting institutions which are state approved and

accredited by a regional accrediting association. Since the

work required under this SOW calls for curriculum development

and delivery of a combined Basic Skills Education Program and

High School Completion Program, with a secondary level

credential awarded for success in this competency-based

program, the prime contractor must have regional accreditation.

This should ensure acceptance of the developed curriculum while

affording soldiers within the academic community the

opportunity to apply for and receive credit for all courses at

the majority of colleges which are regionally accredited.

Credit transfer will alleviate the necessity for soldiers

taking all courses through fully funded off-duty high school

completion programs. This opportunity for credit toward a

degree, plus the possibility of transferring credit, should

also encourage diligent participation in on-duty military

related basic skills courses.

Response: The contracting institution serving each Education Center

should be regionally accredited.

SOW Item 6. The contractor shall develop a strategy through cooperation and

coordination with US Army Forces Command (FORSCOM) and US Army

Training and Doctrine Command (TRADOC) installations, and

civilian educational institutions so that successful completion

of JSEP will result in the award of a high school diploma. The

contractor must devise an integrated plan to obtain agreement

for granting high school diplomas for JSEP students in the

following states: California, Texas, Virginia, North Carolina,

Florida, Georgia, Hawaii, South Carolina, Kentucky, Washington,

Colorado, Illinois, Missouri, Oklahoma, Arkansas, Kansas,

Louisiana, Alaska, New Mexico, Mississippi, New York, and the

District of Columbia. For the purposes of the proposal, the

offeror must submit a plan for three of the above states. In

those states that have minimum testing as a prerequisite for the

high school diploma, the offeror must indicate how this

requirement will integrate the JSEP.

Response: Present policies of the US Army make it possible for each

installation to provide an opportunity to a soldier to receive a high school

diploma through the combined on-duty and off-duty studies program. The high

school diploma programs are offered through a contract with a secondary or

postsecondary institution and this policy will be as viable and appropriate

with JSEP as it has been to date. However, in the spirit of the SOW, the FSU

team has conferred with the twenty-two (22) states identified, and any

specific requirements are identified in Appendix A. Appendix B identifies the

minimum testing prerequisites where equivalency recognition is involved.

SOW Item 7. The product of Task 10 shall be a plan delineating standards

for acceptance of JSEP curricula to satisfy prerequisite

requirements for award of high school diplomas in the states

noted above. This plan shall be submitted to the Contracting

5
Officer's Representative (COR) not later than eight (8) months

after contract award. Subject to approval of COR, the plan will

be incorporated into the PHASE I report.

Response: See Part III, Tentative Plan.

PART II: SUMMARY OF ISSUES

The CBAE high school credential is typically awarded to recognize a literacy competency or achievement level. It is not an academic or college

preparatory credential and therefore, discussion of transfer of credit, or

acceptance by colleges and universities is misleading. Both two-year and four-

* year 'olleges having the open-door admissions policy will accept the CBAE high

school diploma for admissions purposes. These institutions, however, would

also accept the GED certificate in the same manner.

Every state already has GED certificate programs and most Army installations actually serve as testing centers for GED certificate programs. The

Army already has in place the appropriate vehicle for GED recognition that

would accommodate the Task 10 goal, and the existing Army Regulations provide

* for contracting with high school diploma program institutions where the

diploma route can be followed. The issue is whether the Army wishes to

restrict future high school diplomas to CBAE rather than offering the options

for vocational, academic, and adult basic programs as available at Forts

Bliss, Carson, and Lewis.

The nature and level of JSEP at ninth grade level represents another

concern or issue when examining the content comparability expectations of Task

10. SOW items 2-c through 2-e imply a level of subject matter above the ninth

grade level. This appears to make Task 10 inconsistent with other requirements of the JSEP project. Since the individual school districts have the

responsibility and authority for determining the content requirements of the

various diploma programs, what is being sought beyond a CBAE diploma program?

The MOS related content would suggest that a vocational high school diploma

program would be the natural alternative, yet the SOW expectations seem to be

on an academic college preparatory diploma.

The specific requirements of each state are presently being accommodated

* through the obligation of the contracting high school program institution at

each post to have state authorization for the high school credential. Some of

these contracting institutions, however, are actually offering programs in

many states, since they have sought contracts at many installations. In such

cases, the COR specific requirements of the state of charter are followed for

all states. Therefore, soldiers may be completing COR specific requirements

which are not those of the state in which that installation is located but

rather of the state where the contracting institution's main headquarters are

located.

According to Army Regulation 621-5 Section III, the BSEP I is aimed at

fifth grade level literacy and basic skills education while Section V of AR

621-5 identifies the ninth grade level for JSEP. Additional content will be

necessary through off-duty work if the goal were for blanket award of high

6

4~~~~ -- 5 -- ,
school diplomas for all personnel completing the JSEP programs. As originally

suggested in the FSU Proposal, the most appropriate, economical, and efficient

approach for determining academic comparability will be through use of the

Test of Adult Basic Education (TABE) and GED test mechanisms. Scores have

been established whereby equivalency recognition is given.

The alternative high school credential can be realized through the

existing Army policies providing for the Education Services Office to contract

with secondary and postsecondary institutions for high school completion

programs.

It is apparent that great variation in the high school diploma programs

now exists at Army installations. At Fort Bliss, the program is truly a CBAE

program and therefore consistent with the JSEP Project. Officials from the

contracting school district enthusiastically agreed that they would accept

completion of JSEP as a part of their diploma requirements. Texas history as

well as the Adult Performance Level (APL) curriculum would be the resultant

package at that installation.

At Fort Carson, however, the contract for the high school diploma program

is with St. Mary's High School and the actual program is an academic high

school curriculum. In that case, present Army personnel as well as those in

the future, would find it obligatory to complete the required Carnegie units

of academic subject matter completing the JSEP or their scores on TABE. At

Fort Lewis, on the other hand, the contract is with a postsecondary

institution that also has authority to award the high school diploma. An

analysis of their program of studies reveals a general education curriculum,

and officials of that contracting agency indicated credit would be given for

completion of JSEP.

The FSU team notes the apparent confusion reflected in types of high

school programs presently being offered as part of the off-duty education at

Army Installations.

PART III: PLAN FOR CREDENTIALING

Assumptions

There are a number of important assumptions basic to the proposed plan.

The first assumption is that the Army's present educational services policies

will continue in the future whereby a contract for off-duty course work will

be made with a school district or postsecondary institution having jurisdiction over a high school diploma program. The FSU team, therefore,

envisions the outcome competencies of the JSEP to be identifiable and therefore recognized by all contracting agencies for basic skills proficiency.

Obviously, where such contracts involve academic college preparatory high

school diploma programs, greater amounts of off-duty course work will be

required than where a vocational high school diploma or an adult education

diploma is involved.

A second assumption pertinent to the plan is that the existent locus of

authority for Basic Adult Education Diploma Programs will reside with the

local school district. Although the state has ultimate approval and

certification powers, local jurisdiction is envisioned in the future.

7
The third assumption grows out of statements made by education officials

of the twenty-two (22) states identified in the JSEP SOW. With few exceptions,

the state officials expressed concern with the wide variation in scope and

content of Adult Basic Education (ABE) high school programs in their state and

indicated a strong desire for bringing about a more consistent or standard

program, whether through voluntary or mandatory means. They saw the JSEP

program as offering an identifiable basic skills program that could be used as

a model or prototype for Competency Based Adult Education (CBAE) diploma

programs.

Design

The Task 10 design calls for the development of a profile of basic skill

competencies which would be the product or outcome of successful completion of

JSEP. The JSEP Locator Test has been designed to identify mastery and

deficiencies of verbal and quantitative competencies. It is comprehensive in

nature and will yield a profile against which MOS specific deficiencies will

be addressed by the JSEP programming. Since the instrument must deal with the

total spectrum of military occupations, it is comprehensive. Therefore, a

person taking the Locator Test will have demonstrated verbal and quantitative

mastery or deficiency for a broad range of military occupations. The on-duty

participation in JSEP will be limited to the MOS of that individual. Any

remaining deficiencies will need to be considered as part of the off-duty

requirements of that individual for meeting the high school diploma

requirement.

A continuum strategy is envisioned whereby the Basic Skills Profile (BSP)

will be promulgated among the twenty-two (22) states where school districts

would be encouraged to use BSP to voluntarily adopt the skills requirement for

their Basic Adult Education Diploma requirements. A few states may use the

BSP as a basis for creating a new state-authorized high school diploma

comparable to the New York Regents Diploma which would be awarded directly

from the state to successful completers of JSEP. The BSP would also be

helpful to contracting agencies on the military installations where a

vocational education or an academic college preparatory high school diploma

program is involved. The BSP could be accepted as meeting the minimum basic

skills level against which off-duty vocational or academic course work would

be given.

Procedures

At the end of year two of the JSEP Contract, the FSU team will develop a

position paper and explanation of the Basic Skills Profile to be produced in

year three of the Contract. The position paper will be used with the state

officials, with regional accrediting associations, with Army officials, and

with selected postsecondary institutions in order for implementation

strategies, issues, and concerns to be identified.

During the third year of the Contract, the FSU team will formulate the

BSP based upon the JSEP Basic Skills competencies and the JSEP Locator Test.

A Review Panel made up of accreditation, Adult Education, state, and GED

experts will analyze and review the profile and render a judgment of the grade

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. ~ .~~\\~,:k A~.~ZC r X-~ ~ .
V

level of each category and its worth toward the high school diploma. The

product of the Review Panel will then be refined into the Basic Skill Profile

(BSP) which will be promulgated to federal, regional, state, and local education officials directly or indirectly associated with the Army installations

and the twenty-two (22) states identified. Should year three activities

suggest, an invitational conference will be held in conjunction with promoting

the continuum strategy, as well as the profile itself.

Three State Plans

Florida. The State of Florida is committed to outcomes assessment

testing and requires completion of the Florida State Student Assessment Test

II (FSSAT II) in order for any student to qualify for the high school diploma.

Furthermore, Florida has been ranked as third highest in its requirements

associated with GED test requirements.

State Education officials affirm that the ninth grade level basic skills

proficiencies envisioned for JSEP would qualify an individual to successfully

complete the FSSAT II. Officials indicated that the Basic Skills Profile

envisioned for JSEP together with a satisfactory score on FSSAT II would be

acceptable to most school districts for a Basic Adult Education Diploma.

Where the Army person would aspire to a vocational or an academic high school

diploma, the district would recognize the JSEP BSP and then would evaluate

that person's MOS or academic course experience individually. The State

officials have expressed willingness to cooperate in the future with this

project.

During the 1983 Legislative session, broad educational reforms were

enacted in a package intended to raise achievement in secondary education

(RAISE). This legislation calls for all high school diplomas by 1985 to be

reflective of up to twenty-four credits of course work in English,

Mathematics, Science, and Social Studies. In the words of one state official,

Florida by 1985 may have the only GED high school equivalency alternative to

an academic high school diploma. The same official expressed the opinion that

the ambiguity associated with the Adult Basic Education High School Diploma

created by the RAISE bill should be clarified during the next legislative

session.

North Carolina. State officials in North Carolina acknowledge the wide

range of content and approaches to adult basic high school programs in that

state. They were aware of the importance of the Army installations and were

sympathetic to the goal of the JSEP Contract. Since the State Board for

Community Colleges has authority to establish appropriate high school diplomas

relevant to adult education, the state official interviewed expressed the

belief that the proposed JSEP Profile would enable the state to bring about a

more consistent and uniform adult education program.

It is envisioned that a regents high school diploma type of credential

might be created by the State Board for Community College should it appear

that the wide variation and range in adult high school programs were to

continue. According to the State official, this variation has become a matter

of concern to the legislature itself.

9

rV
It is envisioned, therefore, that the BSP growing out of this plan would

be used in North Carolina either for encouraging conformity to a more common

or standard program or that a new state high school credential would be

established.

North Carolina has specific requirements in reading, writing, computational, and citizenship skills. These will be used as criteria against which

.- the basic skills profile identified in this plan will be directed. State

officials report that such documentation of comparability will be acceptable

for either authorizing school district award of high school diplomas or for

pone to be awarded directly from the state level.

Kentucky. State Education officials in Kentucky were originally canvassed as part of the preparation of the FSU Proposal for JSEP. They continue to

be supportive of a plan to create a separate state high school diploma that

could be issued to military personnel. In fact, they see the BSP as proposed

here as helpful in working with other professional organizations where an

organized program is being followed to raise the education level of their

personnel. For example, they again mentioned several industries where adult

basic education efforts are taking place. They expressed the belief that the

JSEP project would provide a model as well as a minimum standard against which

such adult basic education programs could be directed.

The procedure to be followed in each of these states during year three of

the project will be for direct communications with state officials in

comparing or otherwise analyzing the competencies covered under JSEP and their

comparability to the adult basic education program requirements of that state.

If there are differences or variations in the two, either by level or content

area, negotiation for appropriate coverage through the off-duty program will

be made. Under that circumstance, an individual would follow the following

steps:

1. Complete the JSEP Locator Test.

2. Receive results which include identification of (a) deficiencies

related to MOS against which the JSEP diagnostic test would be

administered, and (b) the non-MOS related deficiencies which would

become the basis for the Education Services Officer to prescribe offduty study.

3. The student would follow the learning strategies of JSEP as outlined

in the Implementation and Management Plan submitted on August 23,

1983.

4. Upon completion of the JSEP process and demonstration of competencies

for MOS related areas, covered during duty hours (and satisfactory

completion of off-duty work), certification would be made by the

Education Services Officer for recognition at the school district or

State Department of Education level.

5. School district or state awarded high school diploma will be awarded

on the basis of the Basic Skills Profile or state-prescribed

competency test associated with step 4 above.

10

moh"&
CONCLUSIONS

We believe that this plan will result in the beginning of a dialogue

between representatives of the Army and local officials to adjust the needs of

the program to the realistic possibilities in each of the states. When the

draft curriculum is ready, it can be circulated in suitable form to

appropriate state agencies. This mechanism will begin the dialogue.

Nothing in our conversations with any of the state officials indicated

that they were opposed to or were unwilling to consider the approach we

outlined to them. It should be pointed out, though, that if the JSEP design

objectives are met, many soldiers will spend only a limited number of hours in

JSEP. Consequently, if hours of attendance are a requirement for credentialing,

the majority of the work will have to be off-duty instruction. While many

states will accept the tests as evidence of competency and will be willing to

award the credential on that basis, many soldiers would have passed the GED

without the instruction. Both the GED and the CBAE should be offered as

options.
APPENDIX

LIST OF ACRONYMS

ABE Adult Basic Education

APL Adult Performance Level

BSEP Basic Skills Education Program

BSP Basic Skills Profile

CBAE Competency-Based Adult Education

COR Contracting Officer's Representative

FORSCOM United States Army Forces Command

FSSAT II Florida State Student Assessment Test II

FSU The Florida State University

GED General Education Development

IET Initial Entry Training

JSEP Job Skills Education Program

MOS Military Occupational Specialty

PLATO Control Data Corporation computer based instruction system

SOCAD Servicemember's Opportunity Colleges Associate Degree

TABE Test of Adult Basic Education

TAGO The Adjutant General's Office, US Army

* TICCIT Hazeltine Corporation computer based instruction system

TRADOC United States Army Training and Doctrine Command

VEAP Veterans Educational Assistance Program

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