SB116, Chapter 160:1, Laws of 2003

Establishing a committee to study methods to prevent or reduce the high school dropout rate.

November 1, 2003

FINAL REPORT

Committee members:

Sen. Bob Odell, Chair Rep. Sharon Carson, Vice Chair

Sen. Jane O’Hearn Rep. Debra Naro

Sen. Andrew Peterson Rep. Nancy Scovner

DUTIES

The above-named committee was charged with consulting with the various experts, including the Commissioner of the Department of Education, to identify why students drop out of high school and the underlying causes of the high school drop out problem. The committee was also charged with studying methods and approaches taken in other states regarding the dropout problem and most importantly is responsible for developing a plan to remedy these causes to reduce the high school dropout rate statewide.

FINDINGS

1. The dropout rate in New Hampshire is currently an unacceptable rate. According to a report published by Doug Hall, Executive Director of the New Hampshire Center for Public Policy Studies, entitled one in Four approximately 25% of students in New Hampshire drop out of high school. The Department of Education, however, calculates the dropout rate in a different manner and has a different drop out rate of approximately 15%. Which ever is most accurate, either is unacceptable. Based on research presented by Doug Hall, through current reporting procedures there is much room for error, conflicting numbers and “leakage” where students disappear from the reporting system. The reporting aspect must be improved and tightened if New Hampshire is to be serious about combating school dropouts.

2. It is a fundamental responsibility of statewide education to ensure New Hampshire’s students are well educated and prepared as much as possible for successful lives. While dropouts often experience a lack of academic success, nationwide more than 30% of students who drop out have a grade of a “B” or better, according to a study done by Hill Watch. Students who dorpout not only have low incomes but are also associated with social problems and can often be costly to society. For example, 70% of those incarcerated do not have a diploma. With a high rate of dropouts there is also the likelihood of a loss of economic output due to the unprepared workforce.

The more education a person has the more likely the chances are of earning a higher income. Average earnings for people 25 and older who have a Bachelor’s Degree or higher, on average, earn approximately $46,000.00 per year. The average income for persons with an Associate’s Degree is approximately $32,000.00 per year. Persons with a high school diploma on average earn $25,000.00 per year while students that have less than a 9^th grade education earn, on average, approximately $17,000.00 per year.

3. This committee recognizes the importance of family for children to experience education success. In a study involving over 25,000 children who lived with one parent the children experienced lower grade point averages, lower college aspirations, poorer attendance records and higher dropout rates than students living with both parents.

Historically, students who drop out come from families in which members have lower levels of educational achievement. A Jobs for New Hampshire’s Graduates (JNHG) administrator testified that all of the students in the program had parents who had similar educational experiences. These socioeconomic issues often require the student to work full time contributing to the family income at the expense of that student’s education. This issue also shows that current child labor laws are not being fully enforced.

4. Students drop out of school for many reasons. The most prominent include: a feeling of isloation from the school culture, lack of academic success, harassment from peers, socioeconomic issues, language barriers, drug and alcohol problems, pregnancy and lack of individual attention. The committee learned that truancy, harassment and a feeling of “disconnectedness” from school were the three major reasons for students dropping out. Students felt disconnected when they experienced a lack of academic success or when the educational curriculum did not meet their learning needs. Students are often truant because of disciplinary issues or when work conflicts with school. The committee hear firsthand from several students that the reason they dropped out from school was due to harassment by their fellow students. These students believe that teachers were too tolerant of bullying behavior and harassment and they perceived that they were of no assistance to the students.

5. Information provided by the Department of Education reported that data consistently shows twice the drop out rate for students with disabilities, three times the rate for students of color and certain ethnicities and four times the rate for students with certain emotional and other disorders.

6. In a survey of over 100 school guidance counselors Jobs for New Hampshire’s Graduates (JNHG) was noted as being the most effective dropout prevention program. At risk students who have turned around their attitudes toward school as a result of the JNHG program testified before this committee that they felt connected and involved with the rest of the school through this program. This program contains a leadership component, which all participants are members of, that elects officer. Students in the program also cite the real world skills offered as being instrumental in their success. It is also noteworthy that these students experienced more confidence and little to no harassment in the program because of the JNHG program’s zero-tolerance bullying policy.

A JNHG administrator said the single most important tool the program is able to provide that schools are not always able to is individual attention. Students have also cited this as a factor of their success. Principals, administrators and students have testified that the single most helpful technique in addressing dropouts is smaller class size.

RECOMMENDATIONS

I. Early Learning

The committee supports the right of students to have universal access to approved kindergarten programs in New Hampshire. The legislature should enact legislation that supports early learning initiatives, such as Parents as Teachers or other not-for-profit programs that place an emphasis on reading as well as mentoring and tutoring programs.

II. Flexibility in Schools

Schools should be given flexibility in curriculum, the length of the school day, school year, credits and course scheduling that allows for alternatives such as early or delayed start for school days, block scheduling and more intensive summer school. This gives students the opportunity, for example, to receive physical education credit for being a member of the gymnastics team. There is also a need for students to access vocational education centers earlier than grade eleven. Certain students excel more in non-traditional learning settings and gives them confidence in their abilities at school.

III. Dropout Prevention Programs

This committee recommends that the legislature support fully either through financial means of other the Jobs for New Hampshire’s Graduates (JNHG) program, as it was surveyed by over 100 guidance counselors that this program is the most effective at dropout prevention. The committee urges JNHG administrators to not only seek state and federal funding but to establish partnerships with the business community for monetary donations and create opportunities for participants in this program in internships and job opportunities. It is also recommended that JNHG look to JMG (Job’s for Maine Graduates) as they have diverse funding and have successfully expanded into middle schools.

It is recommended that a targeted dropout prevention strategy be enacted.

IV. Zero Tolerance for Bullying

A policy of zero tolerance for bullying and hazing in the classroom should be adopted, similar to Jobs for New Hampshire’s Graduates. Several young persons testified before this committee that harassment and bullying was a common reason that students dropout. Upon observation of any bullying or harassment this committee recommends that teachers, aides and administrators take immediate necessary action that signifies such behavior is unacceptable.

V. Teacher Preparation

Teacher education and preparation programs should address identifying special needs at an earlier age as well as the issue of dropouts or at-risk behavior through course offerings and instruction.

VI. Individualized Teaching

Teachers, counselors and administrators should develop an IEP (Individualized Education Plan) for not only those students with special needs but for all students in order to help direct students in their educational paths with the goal of decreasing the dropout rate. A model for this recommendation is Project Renew and Manchester Central High School, which provides extensive counseling to help students with job placement and career development. Counselors are also encouraged to follow up with students once they have dropped out of high school since contact alone has proven to bring students back into school.

Teachers or guidance counselors should offer real world skills such as techniques necessary to secure a job, putting a resume together, etc. At-risk-students testified before this committee that such skills led to greater understanding of the working environment and contributed to their academic success in school.

On numerous occasions testimony before this committee stated that smaller class size is the single most significant measure schools can take to address dropouts. Individual attention paid to an at-risk student makes all the difference in a child’s educational life.

VII. Reporting Methods

Information presented by the New Hampshire Center for Public Policy Studies demonstrated the current reporting methods allows for too many sources of inaccuracy, conflicts and “leakage,” referring to students that disappear from the reporting system. Reporting on the various forms, including students transferring into alternative programs, whould be done in a consistent and uniform manner pursuant to the guidelines set by the Department of Education.

The committee strongly recommends that home schooled students be required to file a simple report stating whether or not the home schooled student completed a 12^th grade equivalency.

Disabled students should be included in the dropout rate to give a complete and accurate measurement of dropouts. Schools should not be allowed to manipulate the dropout rates by identifying a student as a truant when, in fact, they are a student that has dropped out.

The committee recommends that school boards be required to develop a policy on how they best see fit to locally address the dropout problem.

A statewide identifying system of student using a unique identifier will greatly help in making the dropout reports verifiable. Such a system solves the problem of dropout reporting through one single mechanism. This committee strongly urges the creation and implementation for an identifying system.

VIII. Truancy

Since truancy is a major contributor to a lack of academic success, the committee recommends that the current laws on truancy be fully enforced. The committee is recommending using internal suspension versus out of school suspension as a disciplinary method. Internal school suspension requires students to keep up to date with their coursework.

Incentives for the business community to work with schools are beneficial in enforcing child labor laws as well as providing work opportunities for students who need them.

Respectfully submitted on behalf of the committee,

(signed) (signed)

Senator Bob Odell, Chair Representative Sharon Carson, Vice-Chair

(signed) (signed)

Senator Jane O’Hearn Representative Debra Naro

(signed) (signed)

Senator Andrew Peterson Representative Nancy Scovner