The Effects of Changing Test‐Based Policies for Reclassifying English Learners

When students labeled English Learners (ELs) are reclassified as Fluent English Proficient, changes often occur in services and settings (e.g., changes in teachers, peers, and ancillary services). Policymakers play an important role in the reclassification process because they establish test‐based criteria that an EL must attain in order to become reclassified. If the criteria established by policymakers are incongruent with the instructional changes that result from reclassification, then services and settings may be denied to students who would otherwise benefit from them. In response to teachers’ and administrators’ concerns that some ELs who were reclassified were not succeeding without additional supports, California policymakers in 2006 to 2007 changed the reclassification criteria. In this paper, we examine the effects of changing these criteria using data on Latino/a students from the Los Angeles Unified School District, the U.S. district serving the largest number of ELs. Using “difference‐in‐regression‐discontinuities” approaches, we find consistent evidence that this policy change, which increased the difficulty of attaining the test‐based criteria for EL reclassification eligibility, had significant effects on high‐school students’ subsequent English language arts achievement (0.18 SDs) and graduation outcomes (11 percentage points). Specifically, when the criteria for reclassification were lower, students experienced negative effects of reclassification; but when the criteria were raised, students no longer experienced these negative effects. Highlighting the complex interplay between assessments, instruction, and policy, these findings demonstrate the important role policymakers play in the academic success of ELs and speak to policymaker considerations when implementing assessment and accountability systems.     

High School Exit Exams and Dropout in an Era of Increased Accountability

A key form of student‐level accountability is the requirement for students to pass high school exit exams (HSEEs) in order to receive a diploma. In this paper, we examine the impact of HSEEs on dropout during a period when these exams became more common and rigorous. Further, we study whether offering alternate pathways to graduation for students who cannot pass HSEEs moderates any dropout effects. Using a district‐grade‐level panel assembled from the Common Core of Data, we exploit the fact that new exit exam policies first affect a particular graduating class, so we can isolate the impact of exposure to HSEEs for students in one grade in a district separate from other unaffected grades in the same district. We estimate dropout effects by grade for all students, and by race, sex, and urbanicity. We find that HSEEs increase dropout rates for students in the 12th grade, with especially large effects for African‐American students. Dropout effects are uniformly larger in states that do not provide alternate pathways to receive a diploma or alternative credentials for students that cannot pass exit exams. We estimate that 1.25 percent of 12th graders in these states do not graduate with their high school class, likely due to having a diploma withheld because of inability to pass the requisite HSEE. © 2013 by the Association for Public Policy Analysis and Management.     

The Unexpected Effects of No Pass,No Drive Policies on High School Education

Since 1988, 27 states have introduced No Pass, No Drive laws, which tie a teenager's ability to receive and maintain a driver's license to various school-related outcomes—most commonly, enrollment and attendance. Enrollment-Based No Pass, No Drive policies, in 21 states, target both enrollment and attendance, and have negligible effects on dropout rates. However, these policies decrease the Averaged Freshman Graduation Rate (AFGR) by between 1 and 1.7 percentage points. This lower graduation rate stems from students delaying their dropout decision by up to two years. As a result, these students are retained in the ninth and tenth grades, increasing 9th-grade enrollment by 3.6 percent relative to 8th-grade enrollment the year prior; this causes an artificial reduction in the graduation rate, rather than a reduction in the true likelihood that a student will graduate. Truancy-Based No Pass, No Drive policies, in five states, target only attendance—teens that fail to meet a minimum attendance requirement lose their driver's license. However, these policies allow students to drop out of school without facing this penalty. These policies increase the annual dropout rate by between 23 and 34 percent (1 to 1.6 percentage points).     

The effect of attending full‐day kindergarten on English learner students

A significant and growing English learner (EL) population attends public schools in the United States. Evidence suggests they are at a disadvantage when entering school and their achievement lags behind non‐EL students. Some educators have promoted full‐day kindergarten programs as especially helpful for EL students. We take advantage of the large EL population and variation in full‐day kindergarten implementation in the Los Angeles Unified School District to examine the impact of full‐day kindergarten on academic achievement, retention, and English language fluency using difference‐in‐differences models. We do not find signficant effects of full‐day kindergarten on most academic outcomes and English fluency through second grade. However, we find that EL students attending full‐day kindergarten were 5 percentage points less likely to be retained before second grade and there are differential effects for several outcomes by student and school characteristics. © 2011 by the Association for Public Policy Analysis and Management.     

Accountability,Test Prep Incentives,and the Design of Math and English Exams

We examine how incentives for test prep varied between math and English language arts (ELA) on U.S. state accountability exams. We collected data on exam structure for grade 3 to 8 tests in six states that are the setting for most U.S. research in literatures where accountability matters. We show that math exams typically measured ability more precisely for students on the margin of achieving proficiency. This gave educators an incentive to spend more time preparing students for math tests than for ELA tests, consistent with the common finding of larger math effects in the literature.     

Status versus growth: The distributional effects of school accountability policies

Although the federal No Child Left Behind program judges the effectiveness of schools based on their students' achievement status, many policy analysts argue that schools should be measured, instead, by their students' achievement growth. Using a 10‐year student‐level panel data set from North Carolina, we examine how school‐specific pressure associated with status and growth approaches to school accountability affect student achievement at different points in the prior‐year achievement distribution. Achievement gains for students below the proficiency cut point emerge in schools failing either type of accountability standard, with the effects clearer for math than for reading. In contrast to prior research highlighting the possibility of educational triage, we find little or no evidence that failing schools in North Carolina ignore the students far below proficiency under either approach. Importantly, we find that the status, but not the growth, approach reduces the reading achievement of higher performing students. Our analysis suggests that the distributional effects of accountability pressure depend not only on the type of pressure for which schools are held accountable (status or growth), but also the tested subject. © 2010 by the Association for Public Policy Analysis and Management.     

School Vouchers and Student Outcomes: Experimental Evidence from Washington,DC

School vouchers are the most contentious form of parental school choice. Vouchers provide government funds that parents can use to send their children to private schools of their choice. Here we examine the empirical question of whether or not a school voucher program in Washington, DC, affected achievement or the rate of high school graduation for participating students. The District of Columbia Opportunity Scholarship Program (OSP) has operated in the nation's capital since 2004, funded by a federal government appropriation. Because the program was oversubscribed in its early years of operation, and vouchers were awarded by lottery, we were able to use the “gold standard” evaluation method of a randomized experiment to determine what impacts the OSP had on student outcomes. Our analysis revealed compelling evidence that the DC voucher program had a positive impact on high school graduation rates, suggestive evidence that the program increased reading achievement, and no evidence that it affected math achievement. We discuss the implications of these findings in light of recent policy developments including the reauthorization of the OSP and the enactment or expansion of more than a dozen school voucher or voucher‐type programs throughout the United States in 2011 and 2012.     

Student Age and the Collegiate Pathway

Using a rich data set of all SAT test takers from the 2004 through 2008 high school graduation cohorts, we investigate the impact of state‐specific school age‐of‐entry laws on students’ pathways into and through college. We document that these laws do not impact the probability that a student takes the SAT; however, we find strong evidence that students who are expected to be the oldest in their school cohorts based on their state residency and birthdays have a greater probability of taking an Advanced Placement (AP) exam and tend to take more AP exams. We also find that relatively younger students are more likely to attend two‐year colleges before attending four‐year colleges and are less likely to have earned bachelor's degrees four years beyond high school graduation, but eventually catch up to their older peers six years beyond high school graduation.     

Educational vouchers: Effectiveness,choice, and costs

Most of the policy discussion on the effects of educational vouchers has been premised on theoretical or ideological positions rather than evidence. This article analyzes a substantial body of recent empirical evidence on achievement differences between public and private schools; on who chooses and its probable impact on educational equity; and on the comparative costs of public and private schools and an overall voucher system. The findings indicate that: (1) results among numerous studies suggest no difference or only a slight advantage for private schools over public schools in student achievement for a given student, but evidence of substantially higher rates of graduation, college attendance, and college graduation for Catholic high school students; (2) evidence is consistent that educational choice leads to greater socioeconomic (SES) and racial segregation of students; and (3) evidence does not support the contention that costs of private schools are considerably lower than those of public schools, but the costs of an overall voucher infrastructure appear to exceed those of the present system.     

Policy Implications of Limiting Immigrant Concentration in Danish Public Schools

Immigrant students in Denmark on average perform worse in lower secondary school than native Danish students. Part of the effect may not stem from the immigrant students themselves, but from the student composition at the school. From a policy perspective, the latter aspect is quite interesting since it is more feasible to change student composition in schools than the socioeconomic status of the individual students. This article describes theoretically the circumstances under which total student achievement can be increased by reallocating certain groups of students. Empirical analyses of Danish register data of more than 40,000 students suggest that the gain in total student achievement by reallocating immigrant students is minor. The educational outcome of immigrant students can however, ceteris paribus, be increased, at minimal expense to the majority of native Danish students' educational outcome, by limiting the share of immigrant students at grade level at any one school to less than 50 percent. The policy implications of this finding are discussed.     

Do Housing Vouchers Improve Academic Performance? Evidence from New York City

The Housing Choice Voucher program is currently the largest federally funded housing assistance program. Although the program aims to provide housing assistance, it also could affect children's educational outcomes by stabilizing their families, enabling them to move to better homes, neighborhoods, and schools, and increasing their disposable incomes. Using data from New York City, the nation's largest school district, we examine whether—and to what extent—housing vouchers improve educational outcomes for students whose families receive them. We match over 88,000 school-age voucher recipients to longitudinal public school records and estimate the impact of vouchers on academic performance through a comparison of students’ performance on standardized tests after voucher receipt to their pre-voucher performance. We exploit the conditionally random timing of voucher receipt to estimate a causal model. Results indicate that students in voucher households perform 0.05 standard deviations better in both English Language Arts and Mathematics in the years after they receive a voucher. We see significant racial differences in impacts, with small or no gains for black students but significant gains for Hispanic, Asian, and white students. Impacts appear to be driven largely by reduced rent burdens, increased disposable income, or a greater sense of residential security.     

Charter High Schools’ Effects on Long‐Term Attainment and Earnings

Since their inception in 1992, the number of charter schools has grown to more than 6,800 nationally, serving nearly three million students. Various studies have examined charter schools’ impacts on test scores, and a few have begun to examine longer‐term outcomes including graduation and college attendance. This paper is the first to estimate charter schools’ effects on earnings in adulthood, alongside effects on educational attainment. Using data from Florida, we first confirm previous research (Booker et al., 2011 ) that students attending charter high schools are more likely to graduate from high school and enroll in college. We then examine two longer‐term outcomes not previously studied in research on charter schools—college persistence and earnings. We find that students attending charter high schools are more likely to persist in college, and that in their mid‐20s they experience higher earnings.     

School Starting Age and Cognitive Development

We present evidence of a positive relationship between school starting age and children's cognitive development from ages 6 to 18 using a fuzzy regression discontinuity design and large‐scale population‐level birth and school data from the state of Florida. We estimate effects of being old for grade (being born in September vs. August) that are remarkably stable—always around 0.2 SD difference in test scores—across a wide range of heterogeneous groups, based on maternal education, poverty at birth, race/ethnicity, birth weight, gestational age, and school quality. While the September‐August difference in kindergarten readiness is dramatically different by subgroup, by the time students take their first exams, the heterogeneity in estimated effects on test scores effectively disappears. We do, however, find significant heterogeneity in other outcome measures such as disability status and middle and high school course selections. We also document substantial variation in compensatory behaviors targeted towards young‐for‐grade children. While the more affluent families tend to redshirt their children, young‐for‐grade children from less affluent families are more likely to be retained in grades prior to testing. School district practices regarding retention and redshirting are correlated with improved outcomes for the groups less likely to use those remediation approaches (i.e., retention in the case of more affluent families and redshirting in the case of less affluent families.) Finally, we find that very few school policies or practices mitigate the test score advantage of September‐born children.     

College Enrollment and Completion Among Nationally Recognized High‐Achieving Hispanic Students

Hispanic high school graduates have lower college completion rates than academically similar white students. As Hispanic students have been theorized to be more constrained in the college search and selection process, one potential policy lever is to increase the set of colleges to which these students apply and attend. In this paper, we investigate the impacts of the College Board's National Hispanic Recognition Program (NHRP), which recognizes the highest‐scoring 11th‐grade Hispanic students on the PSAT/NMSQT, as a mechanism of improving college choice and completion. The program not only informs students about their relative ability, but it also enables colleges to identify, recruit, and offer enrollment incentives. Overall, we find that the program has strong effects on college attendance patterns, shifting students from two‐year to four‐year institutions, as well as to colleges that are out‐of‐state and public flagships, all areas where Hispanic attendance has lagged. NHRP shifts the geographic distribution of where students earn their degree, and increases overall bachelor's completion among Hispanic students who traditionally have had lower rates of success. These results demonstrate that college outreach can have significant impacts on the enrollment choices of Hispanic students and can serve as a policy lever for colleges looking to draw academically talented students.     

The Effects of Tulsa's Pre‐K Program on Middle School Student Performance

As states have upgraded their commitment to pre‐K education over the past two decades, questions have arisen. Critics argue that program effects are likely to fade out or disappear over time, while supporters contend that program effects are likely to persist under certain conditions. Using data from Tulsa Public Schools, three neighboring school districts, and the state of Oklahoma, and propensity score weighting, we estimate the effects of Tulsa's universal, school‐based pre‐K program on multiple measures of academic progress for middle school students. We find enduring effects on math achievement test scores, enrollment in honors courses, and grade retention for students as a whole, and similar effects for certain subgroups. We conclude that some positive effects of a high‐quality pre‐K program are discernible as late as middle school.     

Can Small High Schools of Choice Improve Educational Prospects for Disadvantaged Students?

This paper provides rigorous evidence (for 12,130 participants in a series of naturally occurring randomized lotteries) that a large‐scale high school reform initiative (New York City's creation of 100+ small high schools of choice between 2002 and 2008) can markedly and consistently increase high school graduation rates (by 9.5 percentage points overall and for many different student subgroups) for a large population of educationally and economically disadvantaged students of color without increasing annual school operating costs. These findings are directly relevant to current debates by policymakers and practitioners about how to improve the educational prospects of disadvantaged students in the United States.     

Dynamic selection effects in means‐tested,urban school voucher programs

Much of the controversy surrounding school vouchers, and privatization schemes generally, stems from concerns about social stratification. This paper identifies the form and magnitude of selection effects in a means‐tested New York City voucher program. It compares students who applied for vouchers, with the eligible population of public‐school students; those who initially used vouchers, with those who declined them; and those who remained in private schools, with those who eventually returned to public schools. Differences along the lines of ethnicity, residential mobility, mother's education, and income are observed. In addition, specific aspects of a child's education—parental satisfaction, school uniform requirements, and larger class sizes—all increased the length of time voucher students remained in private schools. Throughout the program's life span, however, the largest and most consistent effects revolved around families' religious identity and practices. © 2004 by the Association for Public Policy Analysis and Management.     

Patrolling Public Schools: The Impact of Funding for School Police on Student Discipline and Long‐term Education Outcomes

As police officers have become increasingly common in U.S. public schools, their role in school discipline has often expanded. While there is growing public debate about the consequences of police presence in schools, there is scant evidence of the impact of police on student discipline and academic outcomes. This paper provides the first quasi‐experimental estimate of funding for school police on student outcomes, leveraging variation in federal Community Oriented Policing Services (COPS) grants. Exploiting detailed data on over 2.5 million students in Texas, I find that federal grants for police in schools increase middle school discipline rates by 6 percent. The rise in discipline is driven by sanctions for low‐level offenses or school code of conduct violations. Further, I find that Black students experience the largest increases in discipline. I also find that exposure to a three‐year federal grant for school police is associated with a 2.5 percent decrease in high school graduation rates and a 4 percent decrease in college enrollment rates.     

Improving the Community College Transfer Pathway to the Baccalaureate: The Effect of California's Associate Degree for Transfer

The transfer between two-year and four-year colleges is a critical path to baccalaureate attainment. Yet students face a number of barriers in transfer pathways, including a lack of coherent coordination and articulation between their community colleges and four-year institutions, resulting in excess units and increased time to degree. In this paper we evaluate the impact of California's Student Transfer Achievement Reform Act, which aimed to create a more seamless pathway between the California Community Colleges and the California State University. We investigate whether the reform effort met its intended goal of improving baccalaureate receipt, and greater efficiency in earning these degrees, among community college transfer students. We tease out plausibly causal effects of the policy by leveraging the exogenous variation in the timing of the implementation of the reform in different campuses and fields of study. We find an overall positive effect on bachelor's degree attainment. This increase is driven entirely by increased transfer rather than an increased probability of earning a BA/BS conditional on transfer. We find only suggestive evidence that the policy led to greater efficiency (i.e., fewer units at graduation) in BA/BS receipt for transfer students. These findings are broadly consistent across student subgroups.