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Running Head: Third Grade Literacy Proficiency

Ensuring Third Grade Literacy Proficiency in Michigan

Policy Research and Politics
Policy Report and Recommendations
Central Michigan University, EDL 775
Erin Lynne Eaton
April, 2017
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A Critical Milestone Not Being Met in Michigan

Third grade literacy proficiency is considered a critical milestone for all students as they

progress towards high school graduation. The Campaign for Grade Level Reading estimates that

74 percent of students who are not proficient readers by the end of third grade will not graduate

high school on time (2016). 83 percent of students that miss this literacy milestone are low-

income students.

Reading proficiency by the end of the third grade is an indicator of high school

graduation rates based on research that shows struggling readers are at a greater risk of dropping

out from high school when compared to their peers. The highest risk for not reading proficiently

by the end of third grade is those that are living in poverty (Lovejoy, Szekely & Wat, 2013).

Overview of Third Grade Reading Proficiency Nationwide

Nationwide, only 36 percent of students by the end of third grade are proficient readers

according to the Nations Report Card provided by the U.S. Department of Education based on

the (NAEP) National Assessment of Educational Progress (2015). This assessment is the most

widely referenced proficiency indicator that is obtained annually from a sample of students

across the state. The average score for white students is twenty-six points higher when compared

to black peers, and twenty-four points higher than their Hispanic peers according to the report

card (2015).

According to the Annie E. Casey Foundation (2014), across the U.S., the gap in

proficiency rates between low and high income students has widened by nearly 20 percent over

the past decade. Data shows that 80 percent of students from low income families are not

proficient readers by the end of third grade compared to 49 percent of students that are from
Third Grade Literacy Proficiency 3

higher income families (Annie E. Casey Foundation, 2014). In addition, the foundation reports

large disparities between ethnic groups. 83 percent of black, 81 percent of Latino, 78 percent of

American Indian, 55 percent of white, and 49 percent of Asian students are not proficient readers

by the end of third grade (2014).

3rd Grade Literacy Proficiency in Michigan

Looking specifically at literacy proficiency by the end of third grade in Michigan, the

data trends show declining proficiency. Michigan is the 41st ranked state in reading proficiency

by the end of third grade, and is only one of five states that have shown a decline in proficiency

over the last ten years as measured by NAEP according to the Michigan Department of

Education (2015). Only 29 percent of Michigans 4th graders demonstrated literacy proficiency

in 2015 according to the NAEP. The NAEP is the most widely used data tool when comparing

the 50 states. The results of proficiency on the 2016 MSTEP assessment show that 41 percent of

students entering the 4th grade are advanced/proficient readers (Michigan Department of

Education, 2015).

Other Contributing Factors Leading to Non-Proficient Literacy Skills

There are other factors that contribute to large numbers of non-proficient readers other

than ethnicity and poverty levels. Summer learning loss may happen because parents are ill

equipped to create learning materials over the summer or to understand what type of activities

they should be engaging in to maintain school year learning and resources may not be widely

available at to promote literacy skills during the summer months (Fister & Smith, 2010). Fister

and Smith (2010) also note that some children arent developing social and emotional skills in a
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structured environment prior to Kindergarten lack early interactions that foster linguistic

development, and also are plagued by food and housing insecurities.

Ensuring Success for All

How do we ensure all Michigan 3rd graders are proficient by the end of this crucial year in

education? Based on research, I will explore various options that include 3rd grade retention,

universal preschool within Michigan, and Michigans early literacy initiative to make a

recommendation on the best course of action to ensure literacy proficiency within Michigan.

Mandatory 3rd Grade Retention

There are several laws and policies across the nation that are designed to increase reading

proficiency among students entering the 4th grade, one being mandatory third grade retention for

readers that have not reached proficiency. Most states have adopted laws similar to Michigans

House Bill 4822 (2016). This bills adds 380.1280f to Act 451 of 1976 Revised School Code.

House Bill 4822 (2016) outlines what must be done to ensure an increased number of

students achieve a proficient score on the English Language Arts grade 3 assessments. This bill

states that the department must approve three or more assessments that can be used for screening,

monitoring, and as a diagnostic assessment, and mandates an early literacy coach is hired to

model effective instructional strategies to ensure professional development teaches teachers

differentiation in instruction and data analysis. Their role is to serve as a coach and mentor for

teachers.

Beginning in the 2017/2018 school year according to House Bill 4822 (2016), all districts

must adopt one of the Michigan Department of Education approved assessment systems, ensure
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all students with a reading deficiency are on an individual reading improvement plan, provide

written notice of the reading deficiency to parents, and utilize early literacy coaches mentioned

above. An intervention program will be implemented for students with a reading deficiency that

provides intense development in phonemic awareness, phonics, vocabulary, fluency, and

comprehension, and monitors the progress a student is making. Parents will be provided with a

Read at Home plan to promote success outside the classroom. School districts are encouraged

to offer summer reading programs led by highly qualified teachers according to the states

teacher evaluation system.

Beginning in the 2019/2020 school year, a student will not be enrolled in grade 4 unless

one of the following has occurred according to House Bill 4822 (2016).

The student has received an English Language Arts score on the state assessment that is

less than one grade level behind.

Grade 3 reading proficiency is demonstrated through an alternative district approved

assessment.
The student demonstrates reading proficiency through a portfolio containing multiple

work samples.

After all scores are analyzed by June 1st, the Center for Educational Performance and

Information (CEIP) will notify parents and districts of students subject to retention in grade 3.

For all students not promoted to 3rd grade, one or more of the following must be provided.

A highly effective, or highest evaluated grade 3 teacher determined by the evaluation

system will be assigned to instruct the student.

Daily targeted reading instruction will be provided.
The student will be assigned to a reading specialist.
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There are exemptions to this bill 4822 (2016) that take diversity into account before retention

is implemented. Students with an Individual Education Plan (IEP), English as a Second

Language (ESL) learners with less than three years of English Instruction, students previously

retained in a different grade, or students that are new to the district may qualify as exempt from

this bill. By the year 2020, all districts must be submitting retention reports to the CEIP. This

solution allows the student retained to hone literacy skills and reach the critical milestone in their

educational journey.

High-Quality Preschool Access for All (Universal Preschool)

A second solution to increasing reading proficiency relates to high-quality preschool access

for all students. According to the National Governors Association (2013) governors can increase

the number of students proficient in reading by grade 3 by concentrating efforts on early

childhood education. The NGA (2013) promotes expanded access to high quality child care, pre-

kindergarten and full day kindergarten. Research by the NGA (2013) shows that participation in

high quality early education programs increases childrens language and literacy skills.

Language and literacy development begin at birth, and achievement gaps appear well before

Kindergarten. High-quality early learning experiences will help close this gap. State policy

however often does not support access to the type of early childhood programs needed to

promote early literacy development for low income and working families.

The National Early Literacy Panel found that intervening prior to age 3 has a greater

advantage than waiting until later years (2008). Despite the evidence that supports quality

learning experiences prior to Kindergarten, state policies and investments are often not sufficient

enough to provide wide access to high-quality early learning experiences according to the NGA
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(2013). The quality of preschool programs that are available varies. Often times standards in

these programs fall short leading to additional students falling through the cracks before

Kindergarten according to the NGA (2013).

The Cincinnati Preschool Promise (2017) is high quality preschool model being researched

by advocates of universal preschool in Michigan. The detailed resolution for preschool

expansion within the Cincinnati Public Schools as determined by the Board of Education is

detailed below.

All children must have access to high-quality programs by providing tuition assistance

starting with the most economically-disadvantaged, and improvement funding will be

made available to ensure all preschools are of high-quality.

The district will retain fiscal responsibility and will be disbursed transparently in

accordance with Ohio public records and meetings laws.

Common tuition funding will be applied across all preschool providers.
Private and public funding sources (such as Title I) will be disbursed prior to levy

funding to maximize the number of children benefited. Levy funds will be allocated on a

last dollar basis.

Preschool funding will ensure competitive wages with a rate of at least $15/hour for

teachers without four year degrees so schools can hire and retain quality teachers.

According to the Preschool Promise (2017), quality preschool is one of the best

strategies to help children have a strong start and a strong future. 90 percent of the brain is fully

developed by the age of five, before children start kindergarten. Children who have quality

preschool before entering kindergarten are more likely to enter school prepared, succeed in

school, graduate from high school and become productive citizens.

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This solution allows all students equal access to quality preschool programs despite

income levels or ethnic backgrounds. A barrier to this lies within proper allocation of funds

across the nation to ensure all students have access to high-quality education and resources prior

to beginning elementary school.

Michigans Early Literacy Initiative

Another proposed solution to ensuring reading proficiency in all third graders is the Early

Literacy Initiative proposed by the Third-Grade Reading Workshop Group (Broman, Guerrant,

Keesler, Sass, & Forward, 2015). The advocates and supporters of this initiative strive to ensure

Michigan is the most improved state in early reading literacy by 2020 ranking in the top 10, and

have the highest national reading proficiency by 2025. This initiative is based on other states

that have proven themselves successful and what they tend to incorporate into their programs to

improve proficiency. Literacy instruction is based on the five building blocks or reading that

include phonics, phonemic awareness, fluency, vocabulary, and comprehension according to the

group (2015). States that have shown improvement implement a multi-tiered system of supports

that include screening tools, diagnostic instruction and interventions, teachers with strong

content knowledge and training in early literacy, and targeted literacy interventions (Broman,

Guerrant, Keesler, Sass, & Forward, 2015).

Based on the Third-Grade Reading Workgroup research (2015), the following was

recommended to the State Board of Education.

All students will be screened, and provided with literacy instruction and interventions

needed for success

All educators will be trained to use diagnostic-driven methods with knowledge
Home support will be provided for all parents
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K-3 smart promotion will be implemented to ensure struggling students succeed

Michigan will be provided with adequate data about how our schools are performing

compared to other states.

Based on these recommendations provided by the workgroup, the Michigan Department of

Education developed the Early Literacy Initiative in 2015. The goal of this initiative is to drive

progress of 85 % of all students to reach literacy proficiency by the end of grade 3 by

implementing the recommendations of The Third Grade Reading Workgroup Report. $35.5

million in funding for 2016 was allocated to fund this initiative, but adoption policies have not

been mandated by the state.

Early childhood literacy development under this initiative will include home visits to ensure

home environments support literacy development before Kindergarten. Kindergarten through

grade 3 literacy development will include the selection of research supported screening

instruments, provide targeted literacy instruction and interventions, and literacy coaches will be

provided to train all teachers (Broman, Guerrant, Keesler, Sass, & Forward, 2015) (Broman,

Guerrant, Keesler, Sass, & Forward, 2015). In addition, educators will be supported by being

provided professional development opportunities to learn supports around best practice, use of

screening instruments, and implementation of multi-tiered systems of support. Changes in

teacher certification tests to measure literacy skills, an increase in credit hours in early literacy

instruction, and the exploration of professional learning requirements for early literacy will be

tied to re-certification; however, most of this will be unfunded (Broman, Guerrant, Keesler, Sass,

& Forward, 2015).

Model State
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So, how do we increase literacy proficiency in 3rd grade in Michigan? The Nations Report

Card (2015) reports that Massachusetts leads the nation in literacy proficiency by grade 4 scoring

15 percent higher than the national average with 50 percent of 3rd graders reading proficiently.

Massachusetts has developed a Pre K-12 literacy plan that was rolled out and implemented over

a five year period. Specific actions, resources, timetables and deadlines were outlined in the

plan. Some of the solutions mentioned above were incorporated into their literacy plan. Given

that they lead the nation in literacy proficiency, this might need to be considered as the model

that states adopt to improve literacy proficiency by the third grade. The most notable difference

comparing the Michigan initiative and the Massachusetts plan is the detailed timetables and

deadlines in which specific action goals will be met over a period of 5 years.

Politics

Major actors advocating for mandatory 3rd grade reading retention include Michigan

Governor Rick Snyder and members of the state legislation. Republican Representative Amanda

Price, Chairwoman of the House Education Committee sponsored House Bill 4822 in 2013 and

is encouraged by Rick Snyders attention to reading proficiency (Eggert, 2015). Another

sponsor of this bill Democratic Representative Thomas Stallworth, is a strong advocate that this

is part of the approach needed to improve Michigan literacy.

Michigan House Representative Darrin Camilleri is an advocate for expanding access of two

years of high-quality preschool instruction for all. Governor Rick Snyder of Michigan has

allocated $130 million more a year to help low-income kids attend preschool and improve their

school readiness, however his focus remain on assisting children identified as at-risk (Eggert,

2015). According to a new plan the Michigan Department of Education has put forth, The Top
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10 in 10 Years, (2017) access to expand quality, publicly funded pre-school to all 4 years olds

will take place by 2020, and to all 3 year olds by 2025. Camilleri is closely studying the

Cincinnati Preschool Promise structure as a model to possibly develop in Michigan which

supports the expansion of access to quality preschool as a critical investment in children with the

allocated funds. This program, advocated for by the United Way, provides tuition credits to

offset the cost of quality preschool. This plan is a community driven plan funded by Issue 44

voted upon by taxpayers. This program will cost approximately $15 million each year for the

next five years for pre-school expansion in Cincinnati and funded by a recently passed tax levy.

K-3 literacy director Carolyn Guthrie of the North Carolina Department of Education is an

advocate for universal preschool for all children in all states. She advocates for universal

preschool with consistent standards because studies out of Duke University have shown lasting

effects of preschool well into the elementary years,

Advocates of the Michigan Early Literacy Initiative include members Senator Hoon-Yung

Hopgood, Senator Phil Pavlov, Representative Tim Kelly, Representative Amanda Price, and

Representative Adam Zemke. Their recommendations were made to the Michigan Department

of Education deputy superintendent of the Office of Great Start, School and Support Services,

Accountability Services, as well as Education Services and Governor Rick Snyder.

Equity and Diversity

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Opportunities for all children, regardless of family status, income, disability, gender,

national origin, ethnicity, religion, or race to attend high quality programs to ensure literacy

proficiency need to be afforded to all across the state. Children have the right to equal access to

high-quality education starting in preschool to ensure a successful start to their educational

journey. According to the Michigan Department of Education, 23% of African American

students were proficient on the 2015 3rd grade English Language Arts MSTEP compared to 58%

of white students tested. This achievement gap is evidence that high-quality educational

opportunities are not available to all. Offering a high-quality preschool experience for all will

close this achievement gap and provide a more equitable opportunity for all learners across the

state.

Policy Report and Recommendations

Based on my research and findings, my recommendation is for the State of Michigan to

implement voluntary 4 year old universal preschool at no cost to all eligible students. Universal

preschool is the idea that preschool is publicly funded for all 4 year old children. According to

the Michigan Early Childhood Business Plan, one out of three kindergarteners is not prepared to

begin Kindergarten (2012). Michigan in recent years has had space for only about half of the

eligible at-risk 4 year olds. There are seats for 37,500 to attend preschool in the Great Start

Readiness Program with 73% of districts offering the program, leaving approximately 38,000 at-

risk 4 year olds no opportunity to attend preschool (Childrens Leadership Council, 2012).

Preschool not only leads to Kindergarten readiness, but also leads to grade level reading

proficiency and builds the globally competitive talent Michigan needs now and in the future

(Heckman & Masterov, 2004).

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Education in Michigan would look differently if this plan is adopted in Michigan. All 4

year old students would have access to a high quality early learning experience prior to

beginning Kindergarten. The hope would be to see more children reaching literacy proficiency

by the 3rd grade, and fewer children needing interventions in grades K-3. Funds could be taken

from intervention programs implemented in grade school if fewer children need support, and re-

allocated to a universal pre-school program.

Why Universal Preschool in Michigan May Be the Answer

A study from the National Institute for Early Education Research (NIEER) showed that

Michigan preschool students had higher proficiency pass rates on state tests than their non-

participating peers (Gilliam & Zigler 2004). Michigan currently funds preschool for students

that are identified as potentially at-risk of educational failure through Michigans Great Start

Readiness Program (GSRP). Children are considered at-risk of educational failure if they are

below poverty level, have a disability, are exposed to an environmental risk factor, have been a

victim of abuse or neglect, or are English language learners. A rigorous evaluation using

Regression Discontinuity Design showed that children who participated in GSRP scored

significantly higher on early literacy assessments (4th Grade) than children in the comparison

group (Xiang & Wakabayashi, 2014). The GSRP has also undergone a rigorous 19-year

evaluation (which started in 1994) with compelling long-term effects. GSRP participants are

more likely to be ready for kindergarten and proficient in reading, and they are less likely to

repeat a grade. They are also more likely to graduate on time from high school (Schweinhart,

2012). In 2012, only 16 percent of Michigans preschool students were enrolled in GSRP, down

from 19 percent ten years prior (Childrens Leadership Council, 2012). Across the state of

Michigan in 2015, 73 percent of districts offered GSRP with an enrollment number of 37, 112
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according to NIEER in 2015. If literacy proficiency is higher in 4th graders that attended GSRP,

funding should be made available to ensure all 4 year olds have the opportunity to receive this

high quality preschool education to ensure more learners are proficient readers by the end of

grade 3.

Progress Being Made in Michigan

According to the Alliance for Greater Success (2013) in 2014-2015, the Forgotten

30,000 as referred to by Michigans Bridge Magazine expanded access to at-risk preschool

students in an effort to provide spots for eligible 4 year olds. In addition, funding was increased

from $3,400 to $3,625 annually per student. This expansion included investments in

transportation and marketing, as well as evaluation tools to track long-term effects on student

achievement. Though this is a start, this expansion does not demonstrate equity in assuring all

children regardless of income or risk-factors are afforded the opportunity of 4 year old pre-

school. Equity will be demonstrated when all 4 year olds have access to the same high-quality

education prior to Kindergarten.

How This Can Be Accomplished

Currently most of the investment made for preschool children is paid for with private

dollars. The availability of universal preschool within Michigan is directly linked to available

funding. According to the Michigan Department of Education Michigan taxpayers spend

roughly $100 million per year to provide publicly funded preschool for at-risk four-year-olds

(2011). The Childrens Leadership Council (2012) estimates that an addition $130 million is

needed to ensure seats in preschool for all 4 year olds based on the cost of $3,400 per child.
Third Grade Literacy Proficiency 15

Childrens Leadership Council of Michigan (2012) makes suggestions to some of the

choices policymakers have to fund preschool for all 4 year olds. These include the following.

o Dedicate future state tax revenue growth to preschool/early childhood initiatives.

o Find efficiencies in other programs and re-allocate savings to preschool/early childhood.
o Commit one percent of statewide K-12 funding to preschool/early childhood expansion.
o Enable regional enhancement millage votes on local preschool/early childhood initiatives.

Implementation (Mobilize)

Once a method of funding is established, several steps must be taken to ensure high

quality preschool is available to all Michigan 4 year olds. Capacity building needs to take place

within the state of Michigan aiming to strengthen states ability to work with local districts for

their mutual benefit by providing them with the skills and tools they need to define problems

and issues and formulate solutions. Steps developed by the GSRP Plan for Early Learning and

Development in Michigan (2013) can be revised and implemented in a similar fashion to state-

wide universal preschool.

1. Analyze and research preschool models that are high-quality models that have been

proven successful
2. Review and revise Michigans early childhood standards as needed to develop a

curriculum to ensure basic literacy pre-requisites are in place before Kindergarten.

3. Develop a data tracking system that will track growth of students from preschool until

grade 3 to determine the quality of instruction being provided in preschool settings and

determine whether or not the achievement gap is closing.

4. Conduct a needs assessment across Michigan to determine the number of seats and

resources needed to implement this across each district and determine district funding.
5. Develop guidelines for recruiting and retaining highly qualified teachers and providing

professional development to ensure high quality literacy instruction is taking place in the

classroom.
6. Develop a plan to educate parents on the importance of enrolling students in the

voluntary 4 year old pre-school programs.

Third Grade Literacy Proficiency 16

Implementation (Adoption) Putting the Plan into Action

Below, specific actions steps within a timeframe are outlined. These recommendations

need to be adopted to ensure the process of implementation is very carefully planned to ensure a

successful transition. We often see plans that are not well thought through and therefore fail.

Below, action steps and responsible parties are suggested in order to ensure successful

implementation.

Time Frame Action Steps Responsible Parties

2017 - 2019
2019/2020 School Year
2020/2021 School Year
o Allocate funds through defined source Various committees must be formed to
o Form research committee to analyze ensure action steps are properly
high quality preschool models, present implemented.
findings o Funding Committee
o Michigan State Board of Education will o Research Committee
revise Early Childhood Standards of o Curriculum Committee
Quality (2013) o Recruitment Committee
o Based on standards, develop curriculum o Data Analysis Committee
goals
o Conduct a needs assessment across local All committees should include; teachers,
districts to determine funding for educational research experts, policy
resources, expansion of seats, etc. advocates, legislatures, state board of
o Develop a plan to determine ways to education representatives, early
recruit and retain highly qualified childhood committee representatives.
teachers All stakeholder groups should be equally
o Identify data tracking system to use for represented.
pre/post assessments during preschool
year
o Develop data tracking system to track
proficiency data through grade 3
o With support, begin implementation of Literacy coaches should be made
preschool for all in districts with highest available to provide support as
need for preschool access, proficiency implementation occurs
growth
o Support teachers in districts with PD
training opportunities
o Assist schools with implementation of
curriculum and purchasing instructional
materials
o Analyze data using results of developed
pre/post assessments to determine gains
o Determine program
strengths/weaknesses to prepare for next
year
o Fund schools ready for implementation
and follow steps above

2021/2022 o All public school districts statewide must

offer 4 year old preschool and follow
steps above per mandate
2022/2023 o Continue providing funding for
resources and professional development
as needed by districts
2023/2024 o Analyze results of gains made by the
initial class to participate in state-wide
Third Grade Literacy Proficiency 17

universal preschool from P-3

o Analyze the achievement gap
o Determine strengths and weaknesses
o Review and revise standards and
curriculum to ensure continuous
improvement within the 4 year old
preschool program.

Implementation (Institutionalization) Assuring Quality

In order to ensure all pre-school children are receiving high quality pre-school

instruction, the state must develop a mandate that requires all local districts to provide pre-

school in a similar fashion to the way K-12 public education is provided. Within this

mandate, a time frame, requirements, and how requirements shall be fulfilled regarding

implementation steps outlined above must be specifically addressed. According to the

National Center on Early Childhood Quality Assurance (2016) assuring quality involves

supporting the development and enhancement of state quality initiatives, including quality

rating and improvement systems and enhancing quality assurance systems must be done

through the use of technology, data analysis, and research that promote continuous quality

improvement, efficiency, and innovation. The process for ensuring quality and

sustainability must be addressed in the mandate to ensure success. The mandate will ensure

equity in preschool education for all 4 year old students.

This quality assurance system will rely on annual data analysis and review of the

program to ensure gains are being made. Program weaknesses identified through the data

analysis will be used to guide improvement. The data analysis committee established in the

planning stages will use the tools and assessments to analyze each school districts 4 year

old program.

Barriers to Implementation
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There is concern that cookie-cutter preschool programs across the state would not

reach the diverse needs of learners according to Brooks (2016). I would argue that the

entire educational system is designed this way, but as a teacher, I am always doing what I

have been trained to do, which is differentiate instruction to meet the needs of diverse

learners. There are also concerns that private pre-schools would be driven out of business if

public preschool is offered in the state. This is not any different than a parent sending their

child to a private school rather than a public school. The competing factor of free public

preschool will likely lead to higher quality private school programs as they revamp their

standards and practices to remain competitive. Brooks (2016) also notes that some feel

mandating public preschool for 4 year olds has more to do with controlling the education

system and expanding state power. This barrier could easily be debated however, with data

and research that shows how preschool promotes literacy proficiency by grade 3.

High Return Investment

Investing in the future of our children is priceless. According to Mathis (2012, p. 2)

high-quality, intensive preschool education for at least two years can, by itself, close as

much as half the achievement gap and improve test scores from the 30th to 50th percentile.

Mathis also notes that perhaps more important than higher test scores is that children

provided with preschool programs demonstrate more positive adult social indicators, across

the board (2012, p. 2). This means fewer arrests, fewer grade retentions, higher graduation

and college attendance rates, higher employment rates and wages, and less welfare

dependency which can lead to up to a $17 return for each taxpayer dollar invested in

preschool according to Mathis (2012, p. 2).

Third Grade Literacy Proficiency 19

The bottom line is that too many 3rd graders are not proficient readers and

investment in high quality preschool for all as an early intervention may be the key to

making turning this around. The system is broken, so why not invest in the direction

research points us to ensure literacy proficiency by the end of grade 3.

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