High School Graduates Should Be Expected to Pass Exit Exams Given English, Math They Measure

State Graduation Tests Lack Some Content Vital to Success in College and Good Jobs, Achieve Finds

Washington, June 10, 2004 - The graduation tests taken by a growing number of high school students predominantly measure math taught in most other countries in middle school and English that falls well below college admissions standards, the first in-depth analysis of the exams' content and rigor found.

Achieve, Inc., studied the exit tests from six states that volunteered to allow the extensive, independent review Florida, Maryland, Massachusetts, New Jersey, Ohio and Texas. The six states enroll roughly a quarter of all high school students in the United States and about half of the students who currently must pass a graduation exam. The report, Do Graduation Tests Measure Up?: A Closer Look at State High School Exit Exams, is available at www.achieve.org.

In math, students can pass the tests by answering questions that on average fall between the middle of 7th grade and the end of 3th grade when compared to a composite of math curricula worldwide developed through the Third International Mathematics and Science Study (TIMSS). (TIMSS determined that U.S. schools generally teach math content a year or more later than most countries.)

In English, students must correctly answer questions that on average fall two grade levels below what ACT emphasizes on its college admissions test. Reading questions as challenging as the most difficult ACT items - which make up as much as 30 percent of the college admissions test are virtually absent from the state tests. The graduation tests most closely resemble ACT' s EXPLORE test given to 3th and 9th graders.

"Though these tests are less rigorous than most parents and taxpayers might expect, the states that give them are doing the right thing," said Achieve President Michael Cohen. "They are using the exams to stretch their students and schools beyond previous performance levels. Initially low passing rates are yielding to improved performance. Yet our research shows that, over time, states must expect even more in order to prepare their students for college and work after high school."

The six states that took part in Achieve' s study each have moved over time to improve their graduation tests. In Ohio, for example, the new math test places greater emphasis on algebra than the previous proficiency test. In Maryland, students could take the earlier "functional literacy" tests as early as 7th grade, and most passed before entering high school.

Across the states, Achieve found strengths in the current tests. The majority of math items measure algebra and geometry. Data analysis - a skill particularly important to employers - is well measured. In English, most reading passages feature high quality Across the states, Achieve found strengths in the current tests. The majority of math items measure algebra and geometry. Data analysis - a skill particularly important to employers - is well measured. In English, most reading passages feature high quality texts appropriate for high school readers. Across both subjects, the tests include more than multiple­choice items, which means students must explain or justify some of their answers.

The tests can be improved, however, both in what content they measure and in what they ask students to do with what they know, Achieve found.

In math, more than half of the algebra points came from questions measuring prealgebra, with only 30 percent of points going to items that measured Algebra I content and 15 percent measuring Algebra II content. Similarly, nearly half of the geometry points are awarded from items measuring two-dimensional concepts. The questions that account for more than half the points on the math tests ask students only to use routine procedures or simply to recall facts. Items that require students to formulate a problem, develop the right strategy to solve a problem or use other, more advanced reasoning skills account for less than a quarter of the possible points.

In English, half of the points across the six states' tests are awarded for basic reading comprehension - vocabulary, general comprehension and main idea or theme. Only 3 percent of the points can be earned on critical reading items - differentiating fact and opinion or weighing faulty and sound reasoning, for example. More than two-thirds of the reading points across the states are awarded for items that require only literal recall (13 percent) or inference (55 percent).

Measuring What Matters to Colleges, Employers

Achieve found that the exit exams measure some staples in English and math, but they cover only a fraction of the knowledge and skills deemed essential for postsecondary success by two- and four-year colleges and by employers in high-growth, high-performance industries.

In February, Achieve's American Diploma Project released a set of college- and workplace readiness benchmarks that define concretely the English and math that graduates must know to succeed in credit­bearing college courses or in "good" jobs - those that pay enough to support a family well above poverty and offer benefits and career advancement. The benchmarks were the result of two years of research involving more than 300 front-line managers and faculty from two- and four-year colleges.

When stacked up against these benchmarks, the six tests measure basic, but essential, knowledge and skills. But they fall well short of the fol] range of demands graduates face in college or on the job.

In English, for example, only Florida and Ohio emphasize informational topics in reading - knowledge and ski1ls graduates need to interpret and judge the quality of texts from academic journal articles to newspaper editorials.

In math, the tests assess number concepts such as fractions, decimals and percents thoroughly. Only 2 percent of the points, though, target ratio and proportionality - concepts that are critical to making sense of fractions and variables and to interpreting maps, blueprints and schematic drawings.

"Now is a time for state leaders to show resolve," said Achieve Executive Vice President Matthew Gandal, who directed the study. "Given where the bar on these tests is currently set and compared to the expectations colleges and employers have for high school graduates, it is perfectly reasonable to require students to pass these exams. States cannot afford to back away from these requirements or they risk leaving another generation of young people unprepared." 

Improving the High School Assessment System

Achieve's analysis of the states' current tests - given in 2002, 2003 or 2004 depending on the state points to steps states should begin to take to improve their assessment systems further: 

• Stress more challenging content. States can increase the rigor of their assessments over time by adding questions that measure higher-level content. For example, only 5 percent of the points students can earn involve three-dimensional geometry concepts such as volume and surface area that are vital to jobs from construction to manufacturing. In English language arts, only 3 percent of the points can be earned on critical reading items - differentiating fact and opinion or weighing faulty and sound reasoning, for example that measure knowledge employers and college instructors consider crucial. Graduation tests should include more actual writing to measure writing skills.

• Ask more challenging questions. The test items that account for a majority of points awarded assess lower level cognitive skills. Over time, these tests should include more items that demand more of students.

• Raise the passing scores. States should consider raising their passing scores over time. Texas is using this approach with its new graduation exam, and some officials in Massachusetts have raised it as a possibility as well. In order for this approach to work, however, the exams must have enough range in what they measure to permit a higher score to reflect more advanced knowledge and skills. If a higher cut score simply means that students can answer more of the same kinds of relatively easy questions correctly, raising the passing mark will not ensure graduates are better prepared.

Beyond Graduation Tests

From the standpoint of fairness, graduation tests must be given no later than 11 th grade to give students several opportunities to pass them. In addition, some important skills in the Diploma Project's benchmarks conceiving and carrying out a research project, for example - are vital to postsecondary success but not easily measured on standardized tests.

For these reasons, Achieve recommended that states expand their high school assessments beyond a single exit exam. One set of enhancements could build other tests to ensure 1th graders can do 1th grade work, rather than simply pass a graduation test given in 10th grade. These could include end-of-course tests for junior- and senior-year courses or an end-of-high-school assessment to better inform colleges and employers of graduates' achievement. In addition, states working with local school systems should pursue ways to assess skills and knowledge beyond paper-and-pencil tests.

Created by the nation's governors and business leaders, Achieve, Inc. (www.achieve.org), is a bipartisan, non-profit organization that helps states raise academic standards, improve assessments and strengthen accountability to prepare all young people for postsecondary education, work and citizenship. Achieve has helped nearly half the states benchmark their standards and tests against the best examples in this country and abroad and work in partnership to improve teaching and learning. Achieve serves as a significant national voice for quality in standards-based reform and regularly convenes governors, CEOs and other influential leaders at National Education Summits and other gatherings to sustain support for higher standards and achievement for all of America's schoolchildren.

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