No Time to Lose How to Build a World-Class Education System State by State AUGUST 2016 NCSL’S Study Group on International Comparisons in Education

NATIONAL CONFERENCE of STATE LEGISLATURES No Time to Lose How to Build a World-Class Education System State by State AUGUST 2016 NCSL’s Study Group on International Comparisons in Education

The National Conference of State Legislatures hosted a plenary session during its 2013 Fall Forum to discuss the results of the Organisation for Economic Co-operation and Development’s (OECD) most recent survey of what 15-year-olds in industrialized countries could demonstrate about their knowledge of reading, mathematics and science. This survey is known as the Programme for International Student Assessment (PISA). Upon hearing of the disappointing performance of students in the U.S., officers of NCSL’s Standing Committee on Education requested that NCSL launch a legislative study into international comparisons of high-performing education systems. They wanted to study other high-performing countries to learn which policies and practices were in place and what lessons the U.S. and individual states might learn from their success. They also wanted to learn about the consequences for our economy and quality of life if we failed to improve our standing. A bipartisan group of 28 veteran legislators and legislative staff, along with several partners from the private sector, began an 18-month study in 2014. They focused on the highest performing countries on PISA to discover commonalities across their policies and practices. They met with education leaders from these countries, along with national and international experts who study their systems. They also visited several countries to see the differences firsthand. This first report explains why there’s no time to lose in rebuilding state education systems. However NCSL’s study group still has questions—and surely the reader does too—about how to design and implement these systemic changes in the states. Where should legislators begin—teacher recruitment or preparation, standards, assessments, early learning? How should states realign their resources? Do some of these policies fit together better into an actionable package? There is still much to learn and discover. The study group members will continue to meet through 2017 to find the answers to these and other questions by continuing to study and learn from other successful countries, as well as districts and states here in the U.S. Upon completion of our study, the study group will produce a policy roadmap that states can use to guide their reforms, as well as provide support to states ready to embark on these efforts.

NATIONAL CONFERENCE OF STATE LEGISLATURES 2 EXECUTIVE SUMMARY

The bad news is most state education systems are falling dangerously behind the world in a We are discovering what number of international comparisons and on our own National Assessment of Educational seems to work. Common Progress, leaving the United States overwhelmingly underprepared to succeed in the elements are present in 21st century economy. The U.S. workforce, widely acknowledged to be the best educated nearly every world-class in the world half a century ago, is now among the least well-educated in the world, according to recent studies. At this pace, we will struggle education system, including to compete economically against even developing nations, and our children will struggle to a strong early education find jobs in the global economy.

States have found little success. Recent re- system, a reimagined forms have underperformed because of silver bullet strategies and piecemeal approaches. and professionalized Meanwhile, high-performing countries implement policies and practices and build compre- teacher workforce, robust hensive systems that look drastically different from ours, leading them to the success that career and technical has eluded states. Pockets of improvement in a few districts or states is not enough to retain our country’s global competitiveness. education programs, and The good news is, by studying these other a comprehensive, aligned high-performing systems, we are discovering what seems to work. Common elements are present in nearly every world-class education system of education. system, including a strong early education system, a reimagined and professionalized teacher workforce, robust career and technical • Benchmark Policies. education programs, and a comprehensive, aligned system of education. These elements • Get Started on One Piece. are not found in the U.S. in a consistent, well- • Work Through “Messiness.” designed manner as they are found in high performers. • Invest the Time.

We have the ability to turn things around. We must directly face these challenges and be- Much higher-performing, yet less-developed gin immediately to reimagine and re-engineer countries—such as Poland and Singapore— our own education system. We must imple- have made significant progress developing ment meaningful and comprehensive changes their education systems in just a decade or that will produce real results for our students. two because they felt a strong sense of ur- State legislators must lead this work. Educa- gency. State policymakers, too, can get start- tion is first and foremost a state responsibility. ed right away to turn around our education Each state can develop its own strategies for system by taking immediate steps to: building a modern education system that is • Build an Inclusive Team and Set Priorities. globally competitive, similar to the approach taken by other high-performing countries. • Study and Learn from Top Performers. But we must begin now. There’s no time to • Create a Shared Statewide Vision. lose.

3 NATIONAL CONFERENCE OF STATE LEGISLATURES NCSL STUDY GROUP REPORT

We cannot ignore the reality that most state education systems are falling dangerously behind the world, leaving the United States overwhelmingly underprepared to succeed in the 21st century economy.

The U.S. workforce, widely acknowledged But we must begin now. There’s no time to to be the best educated in the world half a lose. We must directly face these challenges century ago, is now among the least well- and begin immediately to reimagine and re- educated, according to recent studies. At this engineer our own education system. We must pace, we will struggle to compete economi- implement meaningful and comprehensive cally even against developing nations, and our changes that will produce real results for our children will struggle to find jobs in the global students. economy. Each state can develop its own strategies for Despite their efforts, states have found little building a modern education system that is success because recent reforms have un- globally competitive, similar to the approach taken by other high-performing countries. derperformed. Meanwhile, high-performing These countries did not copy each other; in- countries implement policies and practices stead they borrowed and adapted ideas, many and build comprehensive systems that look from the U.S., and customized their approach drastically different from ours, leading them for their own unique context. to the success that has eluded states. Pock- ets of improvement in a few districts or states State legislators must be at the center of this are not enough to retain our country’s global discussion. Education is first and foremost a competitiveness. state responsibility. State legislators represent and can bring together the diverse viewpoints The good news is that we have the ability to at the state and local levels that must be in- turn things around. Much higher-performing, cluded in setting a vision and priorities for re- yet less-developed countries—such as Poland forms. States must work together with local and Singapore—have made significant prog- entities to design efforts that are practical and ress developing their education systems in appropriate for each individual state. We will just a decade or two, and most of their inno- not be successful by allowing the federal gov- vations came from right here in the U.S. ernment to set agendas and priorities.

NATIONAL CONFERENCE OF STATE LEGISLATURES 4 The recent reauthorization of the Elementary and Secondary Education Act as the Every Student Succeeds Act (ESSA) moves federal Building education policy away from the top-down, pu- nitive approach that has been in place since 2002. States now have more flexibility to reimagine their accountability systems, design Consensus interventions to improve instruction, and use federal resources to support students and It is unrealistic to expect that every person, schools in more flexible ways. At the same time, states will continue to have the data group or interest will be 100 percent needed to monitor the performance of student subgroups, ensuring a focus on a high- in favor of every idea or strategy. So, it quality education for all children. might be wise to establish a threshold for ESSA provides an opportunity for states to ensure that all students have the knowledge, support to move forward. For example, skills, abilities and behaviors to succeed in college and the workplace so that jobs stay in the group might adopt a “70 percent rule”: our states rather than going overseas. These changes represent both an opportunity and a An idea or decision is approved if 70 challenge for states, and lessons from high- performing countries offer timely guidelines percent of the group is in favor. for states at this opportune time.

HERE ARE STEPS THAT STATES CAN would give up. In addition, it is unrealistic to TAKE IMMEDIATELY. expect that every person, group or interest will be 100 percent in favor of every idea or Build an Inclusive Team and Set Priori- strategy. So, it might be wise to establish a ties. State legislators cannot do this work threshold for support to move forward. For alone. They must assemble a broad and example, the group might adopt a “70 per- diverse group that brings state and local cent rule”: An idea or decision is approved if policymakers, teachers, principals, superin- 70 percent of the group is in favor. tendents, unions, business, parents and students into an inclusive process to set a vision Study and Learn From Top Performers. for reform and identify priorities. State legis- Every state should embark on a journey simi- lators know that it is very difficult to achieve lar to that of the NCSL study group—a jour- agreement on reimagining and building a ney to discover the policies and practices of 21st century education system. But every other high-performing countries. Reconsider person or group cannot get everything they much of what you think you know; abandon want, so we recommend a different approach many ideas to which you have long been com- to achieving a collective and realistic vision: mitted; and embrace new ideas, many which To build consensus, every stakeholder in the come from other countries but also those discussion is expected to put on the table a already implemented in many of our states. proposition giving them something they nev- Study innovations in the states. Look hard at er thought they could get, in exchange for statewide data and be unafraid to compare giving up something they never thought they your own state to other states and countries.

To build consensus, every stakeholder in the discussion is expected to put on the table a proposition giving them something they never thought they could get, in exchange for giving up something they never thought they would give up.

5 NATIONAL CONFERENCE OF STATE LEGISLATURES n FROM THE STUDY GROUP ing system-wide reform is always difficult and “Many states have implemented messy. There is no one recipe for success. The individual education reforms top performers took at least one step backward for every two steps forward, but continued to but have not accomplished the keep their eye on the goal to stay the course. results hoped for. One of the most important lessons I have learned during Invest the Time. States embarking on this this study is the value of having a well thought process will find that they cannot tackle every- out and widely accepted vision that includes the thing at once and will need to prioritize their coordination of multiple reforms to produce a work. We urge states to define these priori- world-class education system.” ties as part of an inclusive process that first identifies a statewide vision and ensures that — State Senator John Ford, R-Okla. individual strategies are all needed parts for achieving statewide goals. States will begin this process at different places and will design Create a Shared Statewide Vision. Devel- different pathways. Achieving system-wide oping a shared long-term vision and setting change will take time and will begin and end goals to guide the work will be critical to the in different places in different states. success of the effort. The vision becomes a guide for policymaking that transcends the State policymakers can take these first action shifts in politics or personalities. The vision be- steps to quickly begin to move their states comes the North Star that continually guides from mediocrity to excellence. the work. The journey will not be a short one, but a good roadmap—knowing where to go But first policymakers must face and -under and developing the way there—means that stand the facts—the unfortunate state of our policymakers will ultimately arrive at the de- current education system. Then policymakers sired destination. must understand the common elements found in world-class education systems. Benchmark Policies. After establishing a shared vision, the state should consider benchmarking its education policies, practices Facing Facts: U.S. Students and outcomes against those of high-perform- and Workers Struggle ing countries and high-performing states. This helps to identify specific policies and implementation strategies for necessary shifts in POOR SCORES ON PISA policy and practice. An ongoing benchmark- In 2000, the Organisation for Economic Co- ing process also allows the state to continually operation and Development (OECD) em- monitor its results. barked on its first international comparative Get Started on One Piece. After creating a study of what a sample of 15-year-olds can comprehensive strategic plan, states should demonstrate about their knowledge in key 1 get started right away on a priority area of areas including math, reading and science. reform. Building a cohesive system does not This assessment is known as the Programme mean states should wait to implement all pieces together, but rather understand and emphasize the connectedness of policy piec- After all of the national, state and es. We urge states to move forward now to design and implement priority reform strate- district reform efforts during the gies, such as early literacy, teacher preparation, or college and career pathways. Identify decade following No Child Left Behind, an important early success that supports the state vision and the strategic plan, and use the U.S. was outperformed not only by the success as momentum for continuous im- a majority of the advanced industrial provement. Work Through “Messiness.” In both high- nations, but by a growing number of performing countries and in successful reform efforts here in the U.S., the process of design- less-developed nations as well.

NATIONAL CONFERENCE OF STATE LEGISLATURES 6 U.S. RANKING ON PISA about in the middle of the countries surveyed. The initial results emboldened some The Programme for International Student Assessment (PISA) is U.S. policymakers to call for reforms, such a comparative study of 15-year-old students’ knowledge in key as more testing and accountability and mini- areas including math, reading and science. mum qualifications for teachers. At the same time, the federal No Child Left Behind (NCLB) YEAR U.S. RANKING (COUNTRIES Act was enacted. TESTED) READING MATH SCIENCE When the fifth survey was administered in 2012, the number of countries in the survey had grown to 65, and included less-devel- 2000 (32) 15th 19th 14th oped countries. The news was worse for the U.S., which placed 24th in reading, 36th in mathematics and 28th in science. Again, our 2003 (41) 18th 28th 22nd standing was in the middle of the countries surveyed. After all of the national, state and district reform efforts during the decade fol- 2006 (57) NR 34th 28th lowing NCLB, the U.S. was outperformed not only by a majority of the advanced industrial nations, but by a growing number of less-de- 2009 (65) 17th 30th 22nd veloped nations as well. 2

POOR SCORES ON PIAAC 2012 (65) 24th 36th 28th The OECD also administers another survey called the Survey of Adult Skills, which is part of its Programme for the International Assess- SOURCE: NATIONAL CENTER ON EDUCATION AND THE ECONOMY, ment of Adult Competencies (PIAAC). It sur- CENTER ON INTERNATIONAL EDUCATION BENCHMARKING, 2013 veys adults ages 16 to 65 in numeracy, literacy and problem-solving. The results from the most recent survey, conducted in 33 nations, n FROM THE STUDY GROUP were released in 2013. “It’s easy to say that the U.S. isn’t The Educational Testing Service (ETS) did a Singapore or Finland so there’s special analysis of the 2013 PIAAC data on not much to learn from them. millennials—those in the workforce ranging Well, 30 years ago, even Finland in age from teens to early 30s. They argued wasn’t Finland. And some of the things they that this generation “will largely determine the did such as improving teacher preparation is shape of the American economic and social clearly something we can do irrespective of landscape of the future.” ETS found that only culture, homogeneity, diversity and so on.” the millennials in Spain and Italy scored lower on the PIAAC survey in reading than millenni- — State Representative Roy Takumi, D-Hawaii als in the U.S. In numeracy, U.S. millennials tied for last with Italy and Spain. In problem- solving, U.S. millennials again came in last for International Student Assessment (PISA). among the 33 nations. Research has proven that a strong education system contributes directly to a strong economy. Understanding how strong education sys- POOR PERFORMANCE ON OUR tems in industrialized countries are designed “NATION’S REPORT CARD” can help us uncover how they contribute to economic success and improve their citizens’ Not only are U.S. students struggling to compete globally, they also struggle to meet the quality of life. relatively low expectations set for students In the first study, 32 highly-industrialized through our own “Nation’s Report Card,” or member countries participated. The U.S. the National Assessment of Educational Prog- ranked a disappointing 15th in reading, 19th ress (NAEP). For the four decades this as- in mathematics and 14th in science—right sessment has been administered to students

7 NATIONAL CONFERENCE OF STATE LEGISLATURES LONG-TERM NATIONAL ASSESSMENT OF EDUCATIONAL PROGRESS (NAEP) SCORES Over the past four decades, high school students in the U.S. have made little progress according to the “Nation’s Report Card,” administered by the NAEP. READING

320

300 287 285

280

263 260 255

240

SCALE SCORE SCALE 221 220 208

200 73 78 82 86 90 92 94 96 99 04 08 12 YEAR MATHEMATICS Ages: • 17 • 13 • 9 320

304 306 300

281 280 266

260

243 240 SCALE SCORE SCALE 219 220

200 71 75 80 84 88 90 92 94 96 99 04 08 12 YEAR Source: National Center for Education Statistics (2012). Trends in Academic Progress

across the country, high school students have tems and drive economic development. They made little improvement. realized that they needed to turn their education systems around to compete in a global INTERNATIONAL COMPARISONS ARE VALID economy. Some in the U.S., however, explained away the results by criticizing the PISA When these survey results were first released and PIAAC methodology, denied that educa- in the 2000s, many countries enacted sweep- tion results in other countries could be com- ing changes to improve their education sys- pared to those in this country, or argued that

NATIONAL CONFERENCE OF STATE LEGISLATURES 8 UPPER SECONDARY GRADUATION RATES, 2013 The OECD reports that the U.S. graduation rate is 80 percent, lower than most other high-performing countries. This dispels the assertion that other high-performing countries educate only their elite. 2013 Over 25 years old Below 25 years old 100

40 PERCENT 30

Chile Italy Israel Latvia Spain Ireland Finland Austria Poland Canada Turkey Mexico Portugal Slovenia Hungary Norway Sweden Denmark Colombia Indonesia Switzerland New Zealand United States Luxembourg Slovak Republic Czech Republic OECD Average

Source: OECD (2015), Education at a Glance 2015: OECD Indicators, OECD Publishing. http://dx.doi.org/10.1787/eag-2015-en, p. 48

PERCENT OF STUDENTS WHO ARE IMMIGRANTS Europe and Asia have experienced an upsurge in immigration over the past several decades, and Asian countries have significant cultural, linguistic, ethnic and religious diversity.

34.7 30 29.5

20 PERCENT 21 18.3

OECD average: 11.2% 10

8.2 3.3

Upper secondary graduation rates (2013) 0.9 0.5 0.3 0.2 0 0

Source: OECD. Table A2.1. and EAG database. See Japan Korea Canada Estonia Finland Taiwan Poland Annex 3 for notes (www.oecd.org/edu/eag.htm)Singapore United States Source: OECD PISA 2012 Shanghai - China Hong Kong - China

9 NATIONAL CONFERENCE OF STATE LEGISLATURES ELEMENTS OF A WORLD-CLASS international comparisons are irrelevant. This criticism continues even today as the United EDUCATION SYSTEM States falls further and further behind. Children come to school ready to learn, and extra The NCSL study group’s conclusions were very different. They found that U.S. students’ support is given to struggling students so that all poor performance cannot easily be explained have the opportunity to achieve high standards. away. For example, critics assert that the U.S. educates all students while the other high- n Necessary resources ensure that all children enter the first grade with the performing countries educate only their elite. cognitive and non-cognitive skills needed to master a first-grade curriculum But graduation rates dispel this assertion. The set to high standards. OECD reports that the U.S. graduation rate is n Once students are in school, resources are distributed so that students 80 percent, lower than most other high-per- who may find it harder to meet high standards will be given the extra forming countries. resources—especially highly effective teachers—they need to succeed. Critics also assert that the U.S. is more diverse than other countries and, as a result, faces A world-class teaching profession supports a challenges that others do not. This may have world-class instructional system, where every been true in the past, but it is not the case today. Both Europe and Asia have experienced student has access to highly effective teachers and an upsurge in immigration over the past sev- is expected to succeed. eral decades. The same is true of Canada. A greater proportion of Canadian students was n The highly professional teaching force is well-prepared, well- born outside Canada than the proportion of compensated and well-supported throughout their careers. U.S. students born outside the U.S. Further- n Teachers support a well-designed instruction system that includes more, Asian countries have significantly more high standards for learning, a core curriculum created by world-class cultural, linguistic, ethnic and religious diver- teachers, and high-quality assessments designed to measure complex skills sity than many Americans often suppose. For demanded by the standards and curriculum. example, Singapore has three main ethnic groups (Chinese, Malay and Indian), four na- n All students are expected to be ready for college and career, and all tional languages (Mandarin, Malay, Tamil and educators are expected to get them there. English) and a host of major religions, including Buddhism, Islam, Christianity, Hinduism, A highly effective, intellectually rigorous system Sikhism, Taoism and Confucianism. of career and technical education is available to those preferring an applied education. Facing Facts: n A powerful, hands-on applied curriculum is built, requiring strong U.S. Policymakers academic skills. Struggle to Find n The system has no “dead ends,” and pathways to university are clear and Silver Bullet always available. Over the past several decades, policymakers n Schools partner with employers to ensure that high standards are set for in the U.S. have worried about flat test scores the students and provide on-the-job training and learning opportunities to and fledgling international competitiveness. enable them to reach those standards. In an effort to boost achievement for all students, policymakers have tried a number of Individual reforms are connected and aligned as approaches and passed a number of state and federal laws. These have included increas- parts of a clearly planned and carefully designed ing funding, reducing class size, enhancing comprehensive system. school choice, improving school technology and teacher quality, more testing and tougher n All policies and practices are developed to support the larger education test-based accountability. While some policies system. have had marginal success in some states or n The coherent system of education is designed to ensure that every districts, success has not been as widespread student meets the same goal of college and career readiness. as policymakers had hoped.

NATIONAL CONFERENCE OF STATE LEGISLATURES 10 n FROM THE STUDY GROUP funds from unproven strategies

“Every championship team, no • Decreasing class size without first restruc- matter what sport, knows the turing staffing and time fundamentals of the game and practices those relentlessly. I • Using test scores in teacher evaluations believe we have identified the fundamentals without ensuring that all teachers are re- of education that are necessary to succeed in ceiving job-embedded, high-quality, ongoing learning preparing our children to be internationally competitive in today’s changing economy. It This “silver bullet” approach is not what the is imperative that we acknowledge and adopt study group found in high-performing coun- those fundamentals if we are to be champions tries. They do not look to single policy shifts in education again.” to improve student outcomes. Instead, they have created a coherent system of education — State Senator Luther Olsen, R-Wisc. within which all policies and practices are designed to lead to high performance. The only policy approach developed by both U.S. states and top-performing countries is TOP PERFORMERS: HOW THEY BECAME high academic standards. But all of the top- THE BEST IN THE WORLD performing countries have coupled developing such standards with a curriculum framework, As NCSL’s study group talked with experts from specific curriculum and well-aligned, high- around the world and visited several top-per- quality, essay-based assessments in seamless forming countries, they confirmed what others instructional systems. Most states have yet to had found—there are common elements that move in this direction, and implementation make up the design of world-class education of rigorous standards has been haphazard at systems. These elements are widely credited best. for their rapid rise in student achievement.

In retrospect, the NCSL study group con- Element #1: Children come to school cludes that states have tried to find individual ready to learn, and extra support is “silver bullets” without setting decisive goals given to struggling students so that all and creating a thoughtful, systemic approach have the opportunity to achieve high to building a coherent system with an appro- standards. priate timeline for implementation, as did the The top-performing countries ensure that other high-performing countries. Examples of children arrive at school ready to learn. The states’ piecemeal approaches include: responsibility for this varies among the coun- • Increasing teacher pay without demand- tries. For example, in high-performing coun- ing better preparation tries with a large proportion of women in the workforce, the government typically provides • Improving early education without con- support to families with young children. In tinuing supports for struggling students other countries, however, the responsibility in K-12 falls on families—often extended families— • Increasing funding without first shifting and the community.

Once students in top-performing countries are in school, those who struggle receive extra help ... More teachers are typically allocated to such schools, with the best teachers serving in the most challenged ones. Inversely, American students from the wealthiest communities are most likely to get the best teachers and the finest facilities.

11 NATIONAL CONFERENCE OF STATE LEGISLATURES 3 1 2 5 7

THE TEN REGIONS STUDIED 1 Alberta, Canada 2 Estonia 3 Finland 4 Hong Kong, China 5 Ontario, Canada 6 Japan 7 Poland 8 Shanghai, China 9 Singapore 10 Taiwan

In both situations, society places a high prior- that may overwhelm the school’s capacity ity on making sure that children are in good to provide an adequate education. Because health and prepared to learn. In most cases, high-performing countries provide supports if the families cannot or will not provide these to ensure that children are ready for school, supports to children, then society steps in. their schools typically do not face similar These supports often continue after children challenges.5 begin school. Once students in top-performing countries are In the United States, children in poverty now in school, those who struggle receive extra account for about a quarter of all children in help to reach the same high standards oth- public schools. Large numbers of American er students will reach more easily. Providing children enter first grade with disadvantages additional resources to schools serving dis-

NATIONAL CONFERENCE OF STATE LEGISLATURES 12 Once teachers exit a preparation program in top-performing countries, they are expected to be the best in the world and experts in their craft. American programs typically have lower standards for entrance and exit, overproduce elementary education teachers, and struggle to produce 6 teachers in high-demand fields, such 8 as special education and science, 4 10 technology, engineering and math.

Element #2: A world-class teach- 9 ing profession supports a world-class instructional system, where every student has access to highly effective teachers and is expected to succeed. When the top performers committed to bring- ing all students to achievement levels for- merly reached only by their elites, they also committed to providing all students with access to high-quality teachers. They raised the rigor, expectations, structure and status of the teaching profession and compensated those who were willing to meet the challenge of this reimagined career path. These goals led the top-performing countries to adopt a different set of tightly linked policies and practices than those enacted in the U.S. While some of these approaches have advantaged, struggling students is a priority. been tried here, no comprehensive set of poli- More teachers are typically allocated to such cies and practices that raise the teaching pro- schools, with the best teachers serving in the fession to the heights seen in high-performing most challenged ones. Resources are also re- countries has been adopted across any state. allocated within schools to reach those most in need of extra support. These countries n Selective Recruitment. The top-perform- demonstrate that, with added support, strug- ing countries have a rigorous set of criteria for gling students can meet high expectations. In- determining a candidate’s eligibility for teacher versely, American students from the wealthi- preparation, including an entrance exam that est communities are most likely to get the few pass. Often teacher candidates are recruit- best teachers and the finest facilities because ed from the top quarter of high school gradu- of the way we structure our finance systems. ates. This is not a typical practice in the U.S.

13 NATIONAL CONFERENCE OF STATE LEGISLATURES In high-performing countries, teachers n FROM THE STUDY GROUP “In several of the countries are compensated more generously studied, teaching is regarded as an honorable and respected than American teachers, typically profession, comparable to earning pay similar to that of senior medicine and law, and not a burden on the local property tax.” civil servants and professionals such as — State Representative Mary Stuart Gile, D-N.H. engineers and accountants. They are expected to be the best in the world n Career Ladders or Lattices. High-performing countries create a variety of roles for and are compensated accordingly. teachers in the schools so they can use their expertise to improve teaching and learning n Rigorous Preparation and Licensure. and, at the same time, offer an exciting career Most teacher preparation programs in top- in education. These may include leadership performing countries are based in prestigious roles that offer experienced teachers incen- research universities that are more selective tives to remain in the profession, hone and and rigorous than U.S. programs. Teaching receive rewards for their unique skills, and programs know and produce the number better support students and colleagues. and types of teachers needed to fill vacancies n Professional Work Environment. High- each year, so admission is quite competitive. performing countries have redesigned their Programs require mastery of subjects to be schools and the overall work environment taught and often include clinical practice that to maximize the success of teachers and can take significantly longer to complete than students. For example, teachers are given a teacher induction programs in the U.S. There lighter teaching load and more time for their are no approved alternative routes to licen- own—and their colleagues’—development. sure like those in the states, which enable pro- In some of these countries, 30 percent to 35 fessionals to become teachers with only a few percent of a teacher’s time is spent teaching weeks or months of training. students, while the rest is spent on activities Once teachers exit a preparation program in such as working in teams with other teachers top-performing countries, they are expected to develop and improve lessons, observing and to be the best in the world and experts in their critiquing classes, and working with struggling craft. American programs typically have lower students.6 Teacher evaluation, promotion and standards for entrance and exit, overproduce pay takes into consideration teachers’ perfor- elementary education teachers, and struggle mance in teams and their progress as they to produce teachers in high-demand fields, become experts in their craft. such as special education and science, tech- Schools and classrooms are organized differ- nology, engineering and math (STEM). ently so that several teachers, perhaps even n Thorough Induction. Either during a group, have responsibility for a classroom. preparation or upon entering the teaching When not working directly with students, workforce, new teachers in high-performing teachers are rewriting curriculum and assess- countries are expected to serve apprentice- ments to meet the needs of their students ships with officially designated, well-trained and to meet high student performance ex- master teachers. During the first year of this pectations. Teachers also counsel and train induction, beginning teachers typically have each other, constantly observing, evaluating a greatly reduced workload. Teachers must and improving their practices. Because they complete the induction before they receive are trained to be experts at their craft, teach- what we would call “tenure.” While induction ers push themselves, their colleagues and and mentoring policies have been enacted in their students to be the best in the world. many states, these programs often lack qual- This highly professional work environment is ity, rigor and authenticity in implementation. uncommon in the U.S.

NATIONAL CONFERENCE OF STATE LEGISLATURES 14 NCSL study group menbers watch students work together during a math lesson in a Shanghai elementary school.

n High-Quality Professional School Lead- n FROM THE STUDY GROUP ers. In high-performing countries, the school “High-performing countries have leader is highly trained and carefully selected. consciously decided to prioritize In Singapore, for example, only teachers who education over testing.” have been trained in its highly rigorous system and have already served in a variety of school — State Senator Joyce Elliott, D-Ark. settings can become principals. Principals receive training in curriculum, instruction and school administration. School leaders interact countries have managed to increase pay by regularly and in great depth with their teach- reallocating resources from policies and prac- ers. In the U.S., although it is understood that tices they found to be less effective. great schools require great leaders, recruit- n World-Class Instructional Systems. ment, selection and training systems that fos- To guide and support effective teaching and ter such leadership have not been uniformly learning, all of the top-performing countries developed. have developed internationally benchmarked n Higher Compensation. In high-perform- standards that specify what students should ing countries, teachers are compensated more know and be able to do in language arts, generously than American teachers, typically mathematics, science and all required sub- earning pay similar to that of senior civil ser- jects in the curriculum. Increasingly, these vants and professionals such as engineers and include both high-level complex cognitive accountants. They are expected to be the best skills and non-cognitive skills, such as ethi- in the world and are compensated according- cal behavior, framing and completing tasks, ly. Many nations view their teachers as “nation teamwork and leadership. Top performers de- builders,” preparing the country’s next genera- velop curriculum frameworks based on these tion. Some countries have variable pay scales high standards and specify the order in which tied to career ladders or lattices that acknowl- concepts should be taught, either by grade or edge the various teaching roles, leadership grade span, thereby creating a clear path to responsibilities and subject mastery. These student mastery. Corresponding course syl-

15 NATIONAL CONFERENCE OF STATE LEGISLATURES labi specify learning objectives, topics to be countries as a strategy to boost the na- covered, materials to be used, appropriate tional economy and offer a high standard assessments, and papers and projects to be of living and attractive careers to a broader completed. They do not include lesson plans constituency. Singapore and Switzerland, in because teachers are expected to develop particular, have built strong systems of CTE them guided by the syllabi and curriculum with close ties to industry. Singapore uses a framework. Policymakers in these countries school-based model and Switzerland uses an assume that if the teachers know the desired employer-based model.7 In these countries, outcomes, they are skilled enough to prepare CTE is not perceived as a route for students lessons that will enable their students to mas- lacking strong academic skills, but as an- ter that material. other approach to education, skills development and good jobs. CTE is well funded, aca- The top performers also prepare assessments demically challenging and aligned with real that are designed to find out whether students workforce needs. It is hands-on, attractive to have mastered material in the syllabi. Because students and parents, and can lead to university for students who may seek professional and managerial positions later. For other Career and technical education (CTE) students, CTE is a pathway to good jobs, by building technical skills that can be achieved is not perceived as a route for students much earlier than the traditional academic experience. lacking strong academic skills, but as On the other hand, the U.S. has experienced another approach to education, skills a steady decline in CTE over the last few decades. This has become a challenge for development and good jobs. CTE is American employers struggling to find skilled workers and for students desiring an applied well-funded, academically challenging education or a streamlined entrance into the workforce. Although a number of states have and aligned with real workforce needs. impressive CTE schools or particular programs, very few have an entire CTE system that provides the kind and quality of opportunities available to students in top-performing the syllabi specify high-level complex skills, the systems. Community colleges are particularly assessments typically contain few multiple- well positioned in the states to link workforce choice, computer-scored prompts, since that needs to credentials and certificates. type of assessment does not effectively measure high-level skills. These assessments are Element #4: Individual reforms are typically essay-based and scored by humans, connected and aligned as parts of a so the high-performing countries spend more clearly planned and carefully designed than states on assessments. They are not ad- comprehensive system. ministered annually, however, but instead at Top performing countries have adopted a key transition points in a student’s academic comprehensive, systemic approach to building career. Similar to teacher pay, these countries world-class education systems. They under- prioritize this investment as a small fraction stand that success is not achieved by adopting of the total cost of their education system, only one or two “silver bullet” policies; instead, knowing that cheaper, less effective, less rig- these countries have reimagined and re-engi- orous assessments will not lead to world-class neered their entire systems. Typically, this vi- teaching or high student achievement. sion is established at the national level with the Element #3: A highly effective, intel- ministry of education, while states or provinces lectually rigorous system of career and are charged with implementation. This is not technical education is available to those dissimilar to how states can enact reform: with preferring an applied education. a clear vision at the state level, while local entities are responsible for implementation. Interest in career and technical education (CTE) is emerging in many top-performing For example, the top-performing countries

NATIONAL CONFERENCE OF STATE LEGISLATURES 16 Success is not achieved by adopting only one or two “silver bullet” policies ... Top-performing countries understand that schools will struggle without high- quality early childhood education and that high-quality early childhood education will not be a wise investment unless followed by high-quality instruction in the schools. They also understand that increasing teacher pay without rethinking the pool of teaching applicants may be unwise unless preparation programs are more rigorous. Likewise, they realize that a more rigorous program is pointless without creating a more attractive teaching profession.

understand that schools will struggle without States are well-positioned to instead create high-quality early childhood education and that the kind of clear vision and systemic reform high-quality early childhood education will not that high-performing countries do. State sys- be a wise investment unless followed by high- tems more closely resemble education gover- quality instruction in the schools. They also nance in the high-performing countries. With understand that increasing teacher pay with- input from stakeholders, state legislatures, out rethinking the pool of teaching applicants state boards of education, governors and state may be unwise unless preparation programs education agencies can agree to a clear vision are more rigorous. Likewise, they realize that for the state and allow local entities to imple- a more rigorous program is pointless without ment specific strategies. creating a more attractive teaching profession.

Unlike top-performing countries, states com- monly take a piecemeal approach, where An Urgent Call to Action: policymakers fail to set overarching goals for It’s Up To States the education system and instead experi- ment with individual strategies that can some- As state legislators, it is our responsibility to times change from year to year. States have provide our citizens with a world-class educa- designed and implemented many different tion. We cannot let another generation settle education reform policies that are not always for anything less. Our future workforce, na- connected and consequently do not have the tional defense, economic vitality and demo- desired impact. cratic foundation depend on our ability and Clearly, a decentralized system of educa- willingness to get this done. tion governance exists and is traditionally preferred in the U.S., where state and local If we assemble the best minds in policy and boards, agencies, governors and legislatures practice, implement what we know works, and all control and often set differing priorities for commit ourselves to the time, effort and re- their own systems. Parents, teachers and stu- sources needed to make monumental changes, dents are frustrated with reform efforts that we can once again be among the best educa- come and go, leaving them with a system tion systems in the world. If they can do it, so built on an ever-shifting foundation. can we. But there’s no time to lose.

17 NATIONAL CONFERENCE OF STATE LEGISLATURES Profiles: A Closer Look at Three High-Performing Education Systems

FINLAND

People everywhere have heard about Finland— an emphasis on using research-based, this Scandinavian country of 5.3 million is a state-of-the-art practices and includ- world leader in education. It is easy to suggest ing clinical experiences in a school that any small country can achieve outstanding associated with a university over the results, but the Finland story and experience five year program. All teachers hold a are much more than that. Finland’s strong sys- master’s degrees in education with a tem was built from the ground up in the 1970s minor in two content areas in which as leaders viewed outstanding education as the they will teach. Schools provide time ticket to a strong economy and international for regular collaboration among teach- competitiveness. ers—at least one afternoon each week— and opportunities for ongoing professional Visitors to Finland often talk about the beauti- development. ful school buildings. Inside the classroom, you rarely find teachers lecturing to students in rows There is a national core curriculum in Finland, of desks. Rather, Finland prides itself on self- but no national test or other method for moni- directed students. Students take charge of their toring school performance. There is a national learning activities—by consulting with teachers matriculation exam at the end of upper second- and developing a specific lesson plan that may ary school, but the function is to assess what involve individual work and group work. Fin- the student knows, not the quality of the school. land’s schools are devoted to being full service, Teachers have much autonomy in their every- meaning they offer student and family health day work. Finnish scholar Pasi Sahlberg refers services, counseling, transportation and meals. to this as “balanced centralization and decen- The three-tiered system features early educa- tralization.” The Finns suggest that this system tion (ages 1-7), comprehensive schools (ages provides for maximum innovation and creativity 7-16) and senior secondary schools (ages 16- at the school level and allows for teachers to 19). At that point students move either to the be accountable for overall school performance. university or to vocational schools and appren- There is no mechanism for using student tests ticeship training. to measure individual school performance; however, Finland does have a schools’ “inspec- Schools are small with small classes (about 20 torate” who regularly visits schools and pro- students per class). There is a national core vides feedback to help them improve. curriculum that lays out what students are expected to learn and be able to do and the topics Over the years, Finland has become a more that should be taught at each grade level, but diverse country as immigration has increased. teachers have wide flexibility to design lessons More than 99 percent of students success- and assessments. fully complete compulsory basic education and about 90 percent complete upper secondary The hallmark of Finland’s system is its excep- school. tional teachers. Many scholars look to the investment in teacher education as the MOST Finland prides itself on providing equity of op- important factor in Finland’s success. Only portunity to learn and inclusion. Resources are 10 percent of those who apply are admitted directed to the most high-need students and into teacher education. The preparation pro- schools. Students with special needs are of- gram is a five-year, combined bachelor’s and ten mainstreamed in regular classrooms but master’s degree program and is free with a receive significant additional support. Ninety- stipend for living expenses. Students learn eight percent of the cost of education is cov- both teaching and research skills. There is ered by government.

NATIONAL CONFERENCE OF STATE LEGISLATURES 18 ONTARIO

Canada has been a strong performer in the world education arena since 2000, and On- tario in particular is known for its educational gains. Ontario is Canada’s second largest province—larger than France and Spain combined—with a very large system, educating about 40 percent of the country’s 5 million students. Ontario has nearly 5,000 schools, with an average size of about 415 students. Average class size is 22. Ontario has a very with a standard 20 minutes of moderate to diverse student population as Canada’s immi- vigorous physical activity each day. It also pro- gration rate is among the highest in the world. motes safe schools. A continuum of interven- About one-fourth of Ontario students were tions, support and consequences work to re- born outside Canada. As a result, Ontario’s inforce positive behavior for students to make hallmark is its strong appreciation of the diver- good choices. sity of its students and devotion to and value Ontario provides full-day kindergarten for of immigrant children. Students learn about 4-year-olds and 5-year-olds to establish a diverse histories, cultures and perspectives in strong foundation and a smooth transition to order to build tolerance. the first grade. Students begin in grade seven In addition, a centerpiece of Ontario’s strat- to think about career development and path- egy has been capacity. Regional teams of ways. education leaders with significant experience There is no federal education ministry. Each in teaching, leadership and coaching work in of the provinces (and three territorial gov- partnership with schools and districts to sup- ernments) is responsible for developing cur- port improvement within diverse contexts. riculum and determining major education Under-performing schools and students are policies and initiatives. Teacher certification constantly targeted for additional supports. is governed by the Ontario College of Teach- There is a strategy for identifying potential ers. Teachers must have completed at least a dropouts early and providing them with ad- three-year postsecondary degree in a content ditional support to succeed. Teams of teachers area and then apply to and complete one year and counselors work together to provide initial of a teacher education program to be certi- support and track progress. Special attention fied to teach. There is a culture at the school devoted to at-risk students and specialized level of teachers as innovators. Ontario values teachers helped raise the high school gradua- teachers being risk takers to identify new and tion rate from 68 percent to 82 percent. promising practices and foster creativity and Ontario also promotes parent engagement by responsibility. Teachers also use evidence at actively seeking parents to help and advise all levels to inform strategies and actions and schools. Ontario promotes healthy schools participate in collaborative learning teams.

19 NATIONAL CONFERENCE OF STATE LEGISLATURES SINGAPORE

Singapore is a very young country and had the advantage of designing an education system from scratch 50 years ago. Singapore split from the United Kingdom in 1963 and became part of Malaysia, and two years later became its own sovereign city-state. Singapore’s found- ing leaders saw people as its most important resource and understood that education was the answer to political and economic survival. Visitors to Singapore remark about its cleanli- moted through teacher networks and profes- ness and the beautiful gardens—all strategi- sional learning communities. cally planned to make people happy. Although Teacher performance is appraised annually it is a city-state with a population of 5.4 mil- against 16 competencies, which include con- lion, it is comparable in size to several of our tribution to students’ academic and character own states. development, collaboration with parents and The center of Singapore’s education success community groups, and contribution to col- is its high-quality educators. Teachers are val- leagues and the school as a whole. After three ued at a level on par with doctors and law- years of teaching, they are assessed annually yers. There is only one teacher preparation to see which of three career paths—master institute—the National Institute of Education teacher, curriculum or research specialist, or (NIE)—which is housed at a research univer- school leader—would best suit them. sity. The NIE works closely with the Ministry Schools are large, but teachers are regularly of Education so that state policy and practice engaged with each other through classroom are tightly linked. Prospective teachers are re- observations, collaborative professional de- cruited from the top 30 percent of the sec- velopment, and group lesson planning. The ondary school graduating class by panels that principal, who is always a former teacher, is include current principals. The NIE receives an actively engaged in both school management average of eight applications for every open- and teaching. ing. Students accepted receive free tuition and a monthly allowance. New teachers are ob- In addition to a Primary School Leaving Exam served and coached and given ongoing profes- that must be passed before a student moves sional development as part of a required and into lower secondary school, students take heavily structured induction program. a high-stakes test at the end of secondary school. Students and parents are well aware Once teachers begin their career, they are al- of the importance of the test, which tracks stu- lotted 100 hours of professional development dents into the career/technical pathway or the (largely school-based) per year so they can university pathway. Career/technical students constantly improve their practice. Every school in Singapore are not viewed as second-class has a fund to support teacher growth that may citizens; rather, the schools are highly modern include opportunities to study abroad to learn and advanced with a devoted faculty and work about various aspects of education in other closely with industry in designing specific high- countries. Peer-to-peer learning also is pro- quality programs.

NATIONAL CONFERENCE OF STATE LEGISLATURES 20 FINLAND: ONTARIO: SINGAPORE: The hallmark of Ontario has a very Career/technical Finland’s system is its diverse student students in Singapore exceptional teachers. population as Canada’s are not viewed as Many scholars look immigration rate is second-class citizens; to the investment in among the highest in rather, the schools teacher education as the world. As a result, are highly modern the MOST important Ontario’s hallmark is and advanced with a factor in Finland’s its strong appreciation devoted faculty and success. Only 10 of the diversity of its work closely with percent of those who students ... Students industry in designing apply are admitted into learn about diverse specific high-quality teacher education. histories, cultures and programs. perspectives in order to build tolerance.

Profile Sources

• National Center on Education and the Education Benchmarking (2016). Economy: Center on International Singapore. http://www.ncee.org/programs- Education Benchmarking (2016). Finland. affiliates/center-on-international-education- http://www.ncee.org/programs-affiliates/ benchmarking/top-performing-countries/ center-on-international-education- singapore-overview/ benchmarking/top-performing-countries/ • Center on International Education finland-overview/ Benchmarking (2014). Background • National Center on Education and the Reading for the 3rd Meeting of the NCSL Economy: Center on International International Education Study Group Education Benchmarking (2016). Canada. Education, Washington, D.C., December http://www.ncee.org/programs-affiliates/ 12-13, 2014. center-on-international-education- • Darling-Hammond, L., et al. International benchmarking/top-performing-countries/ Comparative Study of Teaching Quality canada-overview/ Systems in High-Performing Countries. • National Center on Education and the Forthcoming 2016 Economy: Center on International

21 NATIONAL CONFERENCE OF STATE LEGISLATURES NCSL International Education Study Group Meetings

Study Group Members Overview of International Education Comparisons September 3-6, 2014 | Boston, MA State Legislators Representative Robert Behning, IN Introduction to PISA and Researching International Edu- Representative Harry Brooks, TN cation Systems Representative Tom Dickson, GA October 2, 2014 | Webinar Representative Ken Dunkin, IL Preliminary Findings and Reflections From Members’ Own Senator Joyce Elliott, AR Benchmarking Research Senator John Ford, OK December 12-13, 2014 | Washington, DC Representative Eric Fresen, FL Accountability Systems of High Performing Countries Representative Lynn Gattis, AK February 23, 2015 | Webinar Representative Mary Stuart Gile, NH Getting the Right Incentives: Designing a Coherent, Representative Wendy Horman, ID Highly Functioning Education System Representative Betty Komp, OR April 17-19, 2015 | Chicago, IL Senator Peggy Lehner, OH Senator Rich Madaleno, MD Evaluating State Policies on the 9 Building Blocks Senator Luther Olsen, WI of a World-Class State Education System Representative Alice Peisch, MA May 29, 2015 | Webinar Senator Robert Plymale, WV Implementing and Communicating System-Wide Reform Representative Sharon Tomiko Santos, WA in Top Performing Jurisdictions Representative Jacqueline Sly, SD July 8-9, 2015 | Park City, UT Senator David Sokola, DE Current State Examples of System-Wide Reform: Ken- Senator Howard Stephenson, UT tucky and Delaware Representative Roy Takumi, HI August 2-3, 2015 | Seattle, WA Senator Joyce Woodhouse, NV A Teacher’s View on International Comparisons State Legislative Staff and Communications Strategies for Study Group Ben Boggs, Legislative Analyst, KY Legislature Recommendation Todd Butterworth, Senior Research Analyst, NV Legislature December 11-12, 2015 | Washington, D.C. Rachel Hise, Lead Principal Analyst, MD Legislature Julie Pelegrin, Assistant Director of the Office of Legislative Legal Experts Consulted Services, CO Legislature Cathy Boehme, Teacher, Florida Phil McCarthy, Senior Analyst, ME Legislature Barnett Barry, CEO and Founder, Center for Teaching Quality, Anita Thomas, Legal Counsel, ND Legislature North Carolina NCSL Education Staff Yuri Belfali, Head of Division, Directorate for Education and Julie Davis Bell, Group Director Skills, Organisation for Economic Co-operation and Development Michelle Exstrom, Program Director (OECD), Paris Lee Posey, Federal Affairs Counsel Andy Coons, Senior Director, Center for Great Public Schools, Madeleine Webster, Policy Associate National Education Association (NEA) Barbara Houlik, Staff Coordinator Linda Darling-Hammond, Charles E. Ducommun professor Project Partners of Education, Stanford University and President, Learning Policy Daaiyah Bilal-Threats, National Education Association Institute Dane Linn, Business Roundtable Michael Davidson, Head of Division, Early Education and Scott S. Montgomery, ACT Schools, Organisation for Economic Co-operation and Develop- Chris Runge, American Federation of Teachers ment (OECD), Paris Adrian Wilson, Microsoft Corporation David Driscoll, Former Commissioner of Education, Massachusetts

National Center on Education and the Economy Nathan Driskell, Policy Analyst, National Center on Education and Center on International Education Benchmarking Staff: and the Economy (NCEE) Marc Tucker, President Charles Glenn, Professor of Educational Leadership and De- Betsy Brown Ruzzi, Vice President and Director of CIEB velopment and Former Dean of the School of Education, Boston Nathan Driskell, Policy Analyst University

NATIONAL CONFERENCE OF STATE LEGISLATURES 22 Representative Derrick Graham, Kentucky well as a guide to key legislation, regulation and policies governing Alberta schools. This includes teacher policy, re- Ben Jensen, CEO, Learning First, Australia source allocation policies, school leader policy and qualifica- Helen Ladd, Distinguished Professor of Public Policy and Profes- tion requirements. sor of Economics, Sanford School of Public Policy, Duke University • Mandate Letter from the Premier of Alberta to Minister of Sing Kong Lee, Managing Director, National Institute of Educa- Education Gordon Dirks (2014). This short mandate letter tion International and Vice President, Nanyang Technological outlines the current priorities of the Albertan government for University, Singapore the Ministry of Education, including funding stability, curricu- Anthony Mackay, CEO, Center for Strategic Education, Mel- lum reform and higher standards for student performance. bourne, Australia • OECD (2014). Education at a Glance 2014– Canada Country Donna Quan, Superintendent, Toronto District Schools Note. The OECD released this brief on Canada’s performance Mary Cathryn Riker, Executive Vice President, American Federa- on a range of education indicators, including attainment, tion of Teachers (AFT) mobility and proficiency. Betsy Brown Ruzzi, Vice President, National Center on Edu- • Ontario Ministry of Education (2010). New Teacher Induction cation and the Economy and Director, Center on International Program: Induction Elements Manual. This manual provides Education Benchmarks an in-depth look at policy for teacher induction, including the Pasi Sahlberg, Finnish Education Expert, Finland funding mechanisms for the teacher induction program.

Andreas Schleicher, Director for Education and Skills, Organisa- • Ontario Ministry of Education (2014). Equity and Inclusive tion for Economic Co-operation and Development (OECD), Paris Education in Ontario Schools: Guidelines for Policy Develop- William Schmidt, University Distinguished Professor, Center for ment and Implementation. This policy manual lays out guid- the Study of Curriculum, Michigan State University ing principles for policy development and implementation and accountability systems for special education. It also includes Vivien Stewart, Vice President, Asia Society sample policy memoranda and classroom tools. Marc Tucker, President and CEO, National Center on Education and the Economy (NCEE) • Ontario Ministry of Education (2014). Achieving Excellence: A Renewed Vision for Education in Ontario. This strategic plan John White, Superintendent, Louisiana Department of Education presents the Ministry’s proposed action steps for fostering Ali Wright, Mathematics High School Teacher, Kentucky excellence, equity, public confidence and student well-being Minxuan Zhang, Professor and Director of Research, Institute of in the education system. Comparative Education, Shanghai Normal University • Riveros (2013). From Teachers to Teacher Leaders – A Case Study. This case study looks at teacher leadership develop- Readings and Data Sources ment in Alberta from 1997-2007. Alberta’s teacher leadership programs have been cited as among the strongest in the OVERVIEW OF INTERNATIONAL COMPARISONS world. • OECD (2011). Lessons from PISA for the United States: • Task Force for Teaching Excellence (2014). Report to the Min- Strong Performers and Successful Reformers in Education. ister of Education, Government of Alberta (2014). This report OECD Publishing, http://www.oecd.org/pisa/46623978.pdf. presents the findings of a 16-member task force convened in Combining a description of the practices and policies of the 2013 to define Albertan expectations for teaching excellence, top performing countries with a quantitative analysis of PISA enable teachers to grow professionally, define the role of data, this report presents lessons for U.S. policy makers. teacher leaders and, ultimately, ensure an excellent teacher • Tucker, ed. (2011). Surpassing Shanghai: An Agenda for for every child. American Education Built on the World’s Leading Education ESTONIA Systems. Harvard Education Press. This book explores five high-performing education systems, including Shanghai, • Archimedes (2006). Factsheet, Vocational Education and Japan, Singapore, Canada and Hong Kong, and presents Training, Estonia – This factsheet briefly summarizes the recommendations for U.S. policymakers. vocational education and training system, and the qualifica- CANADA tions and diplomas awarded students, in Estonia.

• Alberta Ministry of Education (2014). Guide to Educa- • Basic Schools and Upper Secondary Schools Act of 2010 tion – ECS-Grade 12 (2014-2015). The first part of a guide – This legislation defines school governance, compulsory released annually by the Alberta Ministry of Education, this education, public right to education, national curriculum, document provides an overview of the Ministry’s mission, accountability and evaluation, and teachers’ rights and guiding principles, key indicators that measure success, as required qualifications.

23 NATIONAL CONFERENCE OF STATE LEGISLATURES • Center on International Education Benchmarking (2016). • OECD (2007). School Leadership for Systemic Improvement Estonia Overview. http://www.ncee.org/programs-affiliates/ in Finland – This OECD case study explores how Finland center-on-international-education-benchmarking/top- conceives of the role of the principal, and how other players, performing-countries/estonia-overview/. This case study including teachers and students, exercise leadership within a explores the development of the Estonian education and school setting. provides resources for policymakers interested in learning • OECD (2014). Education at a Glance 2014: Country Note: more. Finland – This OECD brief summarizes relevant trends in • The Economist (2013). How did Estonia become a world demographic, attainment, and performance indicators, using leader in technology? – This article traces Estonia’s booming PISA 2012 data. tech industry, including its early investments in school tech. • Sahlberg (2014). Finnish Lessons 2.0. This book by Pasi Sahl- • Ministry of Education and Research (2014). The Estonian berg focuses on how Finland recruits, prepares and retains Lifelong Learning Strategy 2020. This five-year strategic its teachers and builds a system that above all values teacher plan, a major current initiative of the Ministry, lays out the professionalism. goals and strategies for expanding access and equity in life- • UNESCO (2013). World TVET Database – Finland. This entry long learning. It provides a glimpse into where the Ministry’s summarizes the structure of Finland’s vocational education priorities currently stand. and training system. • OECD (2014). Education at a Glance Country Note: Estonia HONG KONG – This OECD brief summarizes relevant trends in demographic, attainment, and performance indicators, using PISA • Hong Kong Department of Information Services (2014). Edu- 2012 data. cation Fact Sheet. This short government publication provides information on funding allocations, system structure, teacher • OECD (2013). TALIS Country Profile: Estonia – This brief qualification policy and vocational education, among other summarizes the results of the 2013 TALIS survey of teacher things. attitudes, beliefs, behaviors, and qualifications. • Education Commission Working Group (2011). Report on the • Statistics Estonia (2014). The Statistical Yearbook of Esto- Development of Education Services in Hong Kong. This study nia: Education – This chapter provides relevant statistics on group report, the result of a year of focus groups, discussion demographics, skills, and attainment of Estonia’s students, forums, and research, presents 17 recommendations to the for those who want to understand the scope and outputs of Education Bureau. These range from undertaking interna- the system. tional education benchmarking, to rebranding the education system for an international audience, to attracting more non- • UNESCO (2011). World Data on Education: Estonia – This local students. UNESCO brief provides an overview of the education system in Estonia, major pathways, governance, early childhood • Lai (2010). Qualifications of the Teaching Force in Hong Kong education, funding, teacher and assessment policy, and Special Administrative Region, China: This chapter from the relevant legislation. 2007 report A Comparative Study of Teacher Preparation FINLAND and Qualifications Programs in Six Nations looks at what institutions offer teacher training, what courses and practical • Abrams (2011). “The Children Must Play”: The New Re- experiences are required, and how teachers receive ongoing public. In this New Republic piece, researcher Sam Abrams professional development in Hong Kong. compares Finnish demographics and approach to instruction to the United States, and concludes that teacher profes- • Quong (2011). An Analysis of Educational Reform at the sionalization and enriching curriculum are key to Finland’s School Level in Hong Kong. This paper examines how 2009- success. 2010 curriculum reforms in Hong Kong translated into corresponding changes to teacher practice. • Finnish National Board of Education (2011). International JAPAN Comparisons of Some Features of Finnish Education and Training – This brief analyzes data on the system structure, • Arani, Keisuke, and Lassegard (2010). Lesson Study as Profes- attainment, employment, finance and instruction for an sional Culture in Japanese Schools – Combining historical re- international audience. search with a modern case study approach, this study looks at how Japanese teachers have long used collaborative research • Ministry of Education (2012). Education and Research: a as a form of professional development. Development Plan 2011-2016 – This five-year strategic plan provides an overview of the system to date, as well • Fujita, Hidenori (2007). The Qualifications of the Teaching as a look at planned reforms. Its strategies include teacher Force in Japan. This chapter from the 2007 report A Compara- preparation, fostering more equitable access, and reforms to tive Study of Teacher Preparation and Qualifications Programs vocational education. in Six Nations looks at what institutions offer teacher training,

NATIONAL CONFERENCE OF STATE LEGISLATURES 24 what courses and practical experiences are required, and how • The World Bank (2010). Knowledge Brief: Successful teachers receive ongoing professional development in Japan. Education Reform: Lessons from Poland. This World Bank brief looks at 1999 reforms to Poland’s secondary school • MEXT (2011). The Revisions of the Course of Study for structure and curriculum, in order to explain the country’s Elementary and Secondary Schools. This short Ministry pre- improvements on PISA league tables. sentation outlines the major elements of curriculum reform that took place from 2008-2013. SHANGHAI, CHINA

• MEXT (2012). White Paper: Toward Implementation of Edu- • Gang & Meilu (2010). Qualifications of the Teaching Force cation Rebuilding. This white paper presents the Ministry’s in China. This chapter from the 2007 report A Comparative most recent strategic plan for education reform. Study of Teacher Preparation and Qualifications Programs in Six Nations looks at what institutions offer teacher training, • National Institute for Education Research (2011). Educa- what courses and practical experiences are required, and tion in Japan: Past and Present – This brief from a research how teachers receive ongoing professional development in program of the Ministry of Education, Culture, Science, China. Sports, and Technology (MEXT) succinctly traces the history of education in Japan from the 1600s to 2010. • OECD (2010). Shanghai and Hong Kong: Two Distinct Ex- amples of Education Reform in China. This chapter from the • National Institute for Education Research (2011). Distinctive OECD’s 2010 publication Strong Performers and Successful Features of the Japanese Education System – This NIER brief Reformers in Education compares the education reform explains the most unique elements of the education system strategies of both Shanghai and Hong Kong. Particularly for an international audience. useful for its historical lens; it also deals with equity and access, teacher policy, and classroom instruction. • OECD (2014). Education at a Glance 2014 – Country Note: Japan. This short OECD brief pulls out Japanese data on a • Outline of China’s National Plan for Medium and Long-term range of indicators using 2012 PISA data. Education Reform and Development (2010-2014). This ten-year education strategic plan lays out goals and strate- • OECD (2010). Japan: A Story of Sustained Excellence. This gies for early childhood education, compulsory education OECD report explores several causes of Japan’s success on reform, equity, special education, teacher and administrator the PISA league tables: the teaching force, families supports, preparation and professional development, and manage- a well-structured academic program and systemic incentives ment across China. that drive students to challenge themselves. POLAND • The World Bank (2013). China 2030: Building a Modern, Harmonious, and Creative Society – Part One of this World • Center on International Education Benchmarking (2016). Bank report lays out a history of the Chinese economic sys- Poland Overview. http://www.ncee.org/programs-affiliates/ tem and technology industry, and recommends strategies center-on-international-education-benchmarking/top-perform- for future equitable economic growth. ing-countries/poland-overview/. This case study explores the development of the Polish education and provides resources • Stewart (2015). Made in China: Challenge and Innovation in for policymakers interested in learning more. China’s Vocational Education and Training System. National Center on Education and the Economy. http://www.ncee. • European Centre for the Development of Vocational Training org/wp-content/uploads/2015/03/CHINAVETFINAL1.pdf. (2011). Vocational Education and Training in Poland – Short This report explores the progress the Chinese have made in Description. This report focuses on the policy and legisla- revamping vocational education and documents their efforts tive frameworks, teacher policies and funding formulas for a to address the challenges that remain. major 2010 overhaul of Poland’s VET system. • Tucker, ed. (2014). Chinese Lessons: Shanghai’s Rise to the • Eurydice (2012). The System of Education in Poland. This Top of the PISA League Tables. National Center on Educa- comprehensive report includes a wealth of information on tion and the Economy. http://www.ncee.org/wp-content/ funding, curriculum, assessment, teacher policy, and special uploads/2013/10/ChineseLessonsWeb.pdf. This series of education and equity. interviews with experts on Shanghai’s education system • OECD (2014). Education at a Glance 2014 – Country Note: explores what accounts for their high performance on inter- Poland. This short OECD brief pulls out Poland’s data on a national comparative assessments. range of indicators using 2012 PISA data. • Zhang & Jinjie (2011). Toward China’s Modern TVET • OECD (2013). Results from TALIS 2013 – Country Note: Po- System: Take Shanghai as Special Experience: This article land. This OECD brief looks at Poland’s data from the 2013 goes in-depth into the structure and scale of Shanghai’s Teaching and Learning International Survey, including the vocational education system, and looks at how the recent background, qualifications, attitudes, morale and behaviors ten-year education reform plan promises to further improve of the nation’s teachers. this system.

25 NATIONAL CONFERENCE OF STATE LEGISLATURES SINGAPORE ernance, curriculum, and enrollment of Taiwan’s vocational education system. • Low and Joseph (2011). Paving the Fourth Way: The Singa- pore Story – This report covers a roundtable discussion in- • Ministry of Education (2008). Administrative Plan – Intelligent cluding many distinguished scholars of Singapore’s education Taiwan Manpower Cultivation Project. This administrative plan system. Professors look at the history of education policy in outlines implementation of a substantial five-year allocation Singapore, current reforms and strategic planning initiatives, to education and employment initiatives, including a multimil- and especially, hone in on issues of teacher preparation. lion-dollar investment in new reading programs.

• Ministry of Education (2014). Education in Singapore. This • Ministry of Education (2013). Matters including teacher evalu- Ministry brochure provides a useful overview, including a look ation, teacher qualifications, certification exams, teacher in- at curriculum requirements. service education and normal education university engineering. This policy overview lays out recent initiatives to improve • Ministry of Education (2014). Annual Report: The Education teacher preparation, recruitment, and training, including Endowment and Savings Scheme. This financial report pro- efforts to substantially increase the expectations of teacher vides an overview of how Singapore provides public funding preparation programs. for student incentives and scholarships. • Pan & Chen (2011). Teacher Evaluation as a Catalyst for • Ministry of Education (2014). Better Choices, Deeper Skills, Organizational Learning. This article shows how Taiwan uses Multiple Paths: Government Accepts ASPIRE Committee’s teacher evaluation as a tool for continuous improvement and Recommendations [press release, August 25, 2014]. This the basis for regular professional learning community meet- recent press release announces substantial upcoming reforms ings among school staff. to Singapore’s vocational and technical education funding, policy, and structure.

• Ministry of Education (2014). Growing our Teachers, Building Notes our Nation [press release, September 23, 2014] – This recent 1 For more information about the OECD PISA exam, includ- press release summarizes upcoming reforms to Singapore ing who participates and how the test is administered and teacher mentoring and preparation programs, as well as to scored, visit www.oecd.org/pisa/aboutpisa/. the structure of teacher career ladders. 2 For OECD’s summary of findings and implications for the • OECD (2011). Singapore: Rapid Improvement Followed by U.S., see http://www.oecd.org/unitedstates/PISA-2012-re- Strong Performance – This chapter from the OECD publica- sults-US.pdf. tion Strong Performers and Successful Reformers in Education presents a history of Singapore, a look at the structure of the 3 ETS Center for Research on Human Capital in Education education system, and several arguments for the country’s (2015). America’s Skills Challenge: Millennials and the success on PISA, including focus on mathematics and techni- Future. Retrieved from, p. 11. cal education, commitment to equity, and strong human 4 Retrieved from nces.ed.gov/nationsreportcard/subject/pub- resources and continuous improvement systems. lications/main2012/pdf/2013456.pdf, p. 1.

• Tan & Wong (2010). Qualifications of the Teaching Force: 5 OECD (2011), Starting Strong III: A Quality Toolbox for Data from Singapore - This chapter from the 2007 report Early Childhood Education and Care, OECD Publishing, Paris. A Comparative Study of Teacher Preparation and Qualifica- Retrieved from dx.doi.org/10.1787/9789264123564-en. tions Programs in Six Nations looks at what institutions offer teacher training, what courses and practicum are required, 6 Jensen, B., Sonnemann, J., Roberts-Hull, K., & Hunter, A. and how teachers receive ongoing professional development. (2016). “Beyond PD: Teacher Professional Learning in High- Performing Systems.” Washington, DC: National Center on • The Phoenix: Vocational Education and Training in Singapore. Education and the Economy, p. 28. Retrieved from www. National Center on Education and the Economy, 2012. http:// ncee.org/wp-content/uploads/2015/08/BeyondPDWeb. www.ncee.org/wp-content/uploads/2014/01/The-Phoenix1-7. pdf; and Darling-Hammond, L., Chung Wei, R., Andree, pdf. In this report, a team of researchers traces the evolu- A. (2010). “How High-Achieving Countries Develop Great tion of Singapore’s vocational education system and analyzes Teachers.” Stanford: Stanford Center for Opportunity Policy what accounts for its success. in Education, p. 3. Retrieved from edpolicy.stanford.edu/ TAIWAN sites/default/files/publications/how-high-achieving-countries-develop-great-teachers.pdf • Ministry of Education (2013). Education in Taiwan 2013-2014. This brochure from the Ministry provides an overview of the 7 Gold Standard: The Swiss Vocational Education and Train- system structure, governance, upcoming reforms, teacher ing System, March 2015, National Center on Education and education, and vocational education and training. the Economy The Phoenix: Vocational Education and Training in Singa- • Ministry of Education (2011). Technical and Vocational Educa- pore, October 2012, National Center on Education and the tion in Taiwan, ROC. This brief dives into the structure, gov- Economy

NATIONAL CONFERENCE OF STATE LEGISLATURES 26 What People are Saying

“We invested in this “This diverse and “The NCSL report makes a working group because bipartisan Study Group of compelling case for state we believe having a world state legislators discovered legislators to act now on view on education systems that top-performing improving the outcomes can give policy makers a countries have built their their education system clearer perspective on the successful education is producing today. The central role education can system around a strong ability of U.S. students to and should play in civil society. This work teaching profession. This includes compete on a global stage requires state has also proved to us something we’ve recruitment of top students, rigorous legislators to use data as the backbone believed for a long time, when teaching preparation, meaningful professional of their agenda for improving outcomes. is treated as a revered profession, great development and empowerment of The NCSL report provides a roadmap things are possible.” teachers to guide their own profession. for addressing the key elements of a This is THE cornerstone of their reforms state policy agenda that are essential to Daaiyah Bilal-Threats, and their success, and this should be a ensuring every student is college and National Education Association huge lesson for the states.” career ready.” Linda Darling Hammond, Charles John Engler, E. Ducommun Professor of Education; President, Business Roundtable Stanford Graduate School of Education and President and CEO, Learning Policy Institute

“The National Conference “Our students deserve the “This hard-hitting, of State Legislature’s best and we must pursue refreshingly honest report No Time to Lose the best educational is a bipartisan clarion presents timely and practices whether they are call for a very different valuable analyses and found in the United States definition of ‘education recommendations for or around the world. This reform’ than the one transforming American report is chock full of the that has dominated the education and training. The report best lessons of what works from other American political landscape for years. stresses the importance of world-class countries. We should use this research The country will ignore it at its peril.” learning systems for maintaining and to inform our work. In that way we can improving economic, social, and political provide our students with the greatest welfare in a much more competitive possible chance at success.” Marc Tucker, and knowledge-intensive world. Several President and CEO, National Center on features make No Time to Lose a Education and the Economy valuable and timely report: Christianne Y. Runge, Director, Public Employees Division, American Federation • It is not only based on solid of Teachers academic research but, following the example of almost all successful American institutions, benchmarks international best practice. • The report is addressed primarily to states, currently the most important level of government for transforming schools and other learning systems, though all public and private institutions have important roles to play in this important enterprise.”

Ray Marshall, Professor Emeritus of the Audre and Bernard Rapoport Centennial Chair in Economics and Public Affairs at the University of Texas at Austin and former U.S. Secretary of Labor

27 NATIONAL CONFERENCE OF STATE LEGISLATURES Acknowledgments

NCSL is grateful to the state legislators and legislative staff of the International Education Study Group, whose hard work and abundant energy helped create a fascinating journey that opened all of our eyes to new possibilities. We thank our partners for helping to support this work and for the perspectives they brought to our conversations. We are grateful to Marc Tucker and the staff of the National Center on Education and the Economy and its Center on International Education Benchmarking. Marc, Betsy Brown Ruzzi and Nathan Driskell helped us understand what high-performing countries have done and how those lessons can be translated to the states. They understood the importance of state legislators to the conversation and the urgency of this work. We are especially grateful to all of the national and international experts who took the time from their busy schedules to attend our meetings. They were an integral source of our learning about how and why top-performing countries organized and implemented their reforms.

NCSL staff involved in this work include Julie Davis Bell, Michelle Exstrom, Lee Posey and Madeleine Webster.

NCSL Contacts

Julie Davis Bell Michelle Exstrom Lee Posey Madeleine Webster Group Director Program Director Federal Affairs Counsel Policy Associate 303-856-1351 303-856-1564 202-624-8196 303-856-1465 [email protected] [email protected] [email protected] [email protected]

William T. Pound, Executive Director 7700 East First Place, Denver, Colorado 80230, 303-364-7700 | 444 North Capitol Street, N.W., Suite 515, Washington, D.C. 20001, 202-624-5400 www.ncsl.org © 2016 by the National Conference of State Legislatures. All rights reserved. ISBN 978-1-58024-854-9