What's Happening in North Carolina Literacy?

Literacy seems to be a universal bipartisan issue that everyone can agree is of utmost importance. In 1965 the Elementary and Secondary Education Act (ESSA) was signed into law by President Lyndon B Johnson with the purpose “to provide all children significant opportunity to receive a fair, equitable, and high-quality education, and to close educational achievement gaps.” President Johnson believed this law to be a civil rights law at its heart. However, fourth grade reading proficiency data from the National Assessment of Educational Progress shows that gaps continue to persist between our African American, 18% proficient, and Hispanic, 23% proficient, students when compared to their white peers, 45% proficient (NAEP 2019). Significant gaps are also found when comparing Students with Disabilities, 12% proficient, to their non-disabled peers, 39% proficient, and when comparing students of poverty, 21% proficient, to their more affluent peers, 51% proficient. The ESSA defines comprehensive literacy instruction as including “ 2201 (b)(1)(B)age-appropriate, explicit, systematic, and intentional instruction in phonological awareness, phonic decoding, vocabulary, language structure, reading fluency, and reading comprehension.” The most recent revision of the ESSA mandates that the percentage of non-proficient students in every subgroup is reduced by half in 6 years, by 2022 (NC SBOE 2016b). Based on the NAEP 2019 results, the goals of ESSA are clearly not being achieved, nor is the nation making progress towards achieving these goals. Our most at-risk populations are certainly not receiving an equitable education.

North Carolina’s attempt to address the concerns over literacy resulted in the creation of the state’s Read to Achieve law in 2012. Since the initial implementation of North Carolina’s Read to Achieve legislation, a comprehensive reading plan was developed for the state with a focus on grades K-5. The plan was revised in 2016 based on feedback from regional focus groups to the K-3 Literacy Division at the North Carolina Department of Public Instruction (NC SBOE & NCDPI 2016). Each year a report is presented to the state legislature on the impact of Read to Achieve on student performance along with recommendations for changes to the state’s comprehensive plan reading as well as any needed changes to the current legislation. The current plan focuses on six key pillars: standards, assessment, instruction, professional development, leadership, and communication and partnerships.

Recognizing the importance of establishing a foundation for literacy from birth to grade 3, all state agencies involved with early childhood education were tasked with developing a statewide vision and comprehensive approach to early childhood education from birth to grade 3 under Session Law 2016-94, Section 12B.5.(a) and (b), titled State Agency Collaboration on Early Childhood Education/Transition from Preschool to Kindergarten (NC SBOE & NC DPI 2018). The North Carolina Pathways to Grade Level Reading, grounded in developmental research, is the result of this collaboration of agencies which is led by the non-profit organization North Carolina Early Childhood Foundation. Their vision is focused on creating greater outcomes together than can be achieved alone, and the focus is on achieving grade level reading proficiency by third grade as this is the greatest predictor of future academic and professional success. The first eight years of life are an essential period of brain development that significantly impacts later outcomes, and the framework developed by the interagency collaboration can be seen below. North Carolina currently has three interagency councils examining and making recommendations on how to best implement this framework.

North Carolina State Board of Education and Department of Public Instruction. (2018) State Agency Continued Collaboration on Early Childhood Education. Report to the North Carolina General Assembly. Retrieved from https://simbli.eboardsolutions.com/Meetings/Attachment.aspx?S=10399&AID=119590&MID=3928.

During the 2017-2018 school year the UNC system president established the UNC System Educator Preparation Advisory Group to review the curriculum and practices of the 14 UNC schools in their teacher preparation programs for elementary and middle grades teachers with a specific focus on how teachers are prepared to teach literacy. Their goals were: to explore the challenges of Educator Preparation Programs, to focus on how faculty incorporate the latest research and best practices into their programs, to explore the integration of evidence-based approaches to reading, and to assess the alignment of instructional approaches to state content standards (NC SBOE 2019a). At the January 2019 State Board of Education Meeting Dr. Anthony Graham, a member of the advisory group, presented the groups eleven recommendations found below based on their work.

The final report, entitled Leading on Literacy: Challenges and Opportunities in Teacher Preparation Across the University of North Carolina System, noted several areas for improvement, particularly in effective literacy instruction. The report was created based on interviews with Educator Preparation Programs' (EPPs) faculty and students, syllabi review, and a review of course materials and assignments. They found that some EPPs reported great partnerships with the surrounding school communities, whereas others found their graduates were sent into schools that then asked teachers to implement curricula and approaches different from that which was taught in the EPPs. The expectations for field experiences varied from school to school, but many teacher candidates clearly indicated the desire for far more clinical experiences starting as early as possible. Each EPP varied in the course work required to attain a degree, particularly in relation to literacy. Literacy course content varied across the state with some courses teaching the concepts of explicit instruction while others utilized methodology using the three cueing systems. Some EPP courses asked teachers to write their own philosophies of teaching reading and to reflect on how they had learned to read as valid forms of teaching reading rather than relying on research based instructional practices. Assignments were not always inclusive of research-based best practices and were not necessarily relevant to literacy skill instruction. Most courses required outside reading, but no guidance was given on how to select appropriate articles supported by research. There was little to no focus on instructional strategies grounded in research, and a focus on explicit, systematic instruction grounded in evidence was typically found only in special education courses. The majority of syllabi focused on balanced literacy with no clear guidance on the definition or any understanding that many of the philosophical underpinnings of the balanced literacy approach are not supported by rigorous research. There was very little reference to data-based decision making or the role of the teacher in MTSS in course work or syllabi, and very little time was spent on how to instruct struggling readers.

At the January 2019 State Board of Education meeting Dr. Tara Galloway, the Director of K-3 Literacy, presented Read To Achieve data from the 2018-2019 school year and found that reading is an area consistently showing no progress (NC SBOE 2019a). Over the next few months the plan is to examine what other states have done that was successful and present the findings at monthly meetings in order to guide the work of the department and the board. Dr. Galloway stated that the focus needs to be on early literacy and teaching foundational literacy skills to students. Additionally, the Friday Institute research group presented on implications and next steps based on their research. Based on current data they found no long range benefit from Read To Achieve interventions on impacted students, and summer camp participation had no impact on fourth grade performance. They discovered that what Read To Achieve implementation looks like in each district is different even though they are all operating under a few common parameters. The team identified gaps between policy and implementation: there is no support provided for the provision of interventions from Prek-3rd grade in policy, the current policy provides for multiple and varied definitions of proficiency, and the policy assumes that each district has the same capacity for implementation to include capital and human resources. Therefore, camp implementation looks different in every district. Their recommendations included: collect more data, focus on implementation fidelity, and extend and expand PreK-3rd literacy development.

During the February 2019 State Board of Education Meeting at the Special Issues session, the board heard presentations from three different agencies: Wolfpack Works, North Carolina Education Foundation, and ExcelinED (NC SBOE 2019b). Wolfpack Works is a collaboration between North Carolina State University’s College of Education literacy faculty and the North Carolina Department of Public Instruction with an emphasis on K-2 early literacy instruction. The program works with 16 low performing districts based on historical 3rd grade EOG performance in ELA located primarily in the Northeast region of the state. This support focuses on providing blended models of professional development, providing resources, and providing coaching to beginning teachers in grades K-2. The North Carolina Education Foundation presented on the North Carolina Pathways to Grade Level Reading framework. ExcelinED shared information regarding states that have had successful comprehensive reforms in literacy legislation. Currently, 36 states have comprehensive K-3 reading policy legislation, and Mississippi and Florida’s policies have had the greatest impact on student achievement since their policies were enacted.

At the March 2019 SBOE meeting, NCDPI created a 9 point framework for action on early learning to be used in subsequent meetings to guide State Board of Education policies and practices (NC SBOE 2019c). The framework was unanimously adopted by the board, and NCDPI was tasked with developing action steps and timelines for each point with an emphasis on supporting teachers. The first goal of the framework is to create a statewide definition of what high quality reading instruction is that would be used to guide future policies and practices in literacy. The second point focuses on improving literacy instruction in Educator Preparation Programs in order to produce teachers better prepared to teach reading to all students utilizing evidence-based practices. Additional points focus on: providing more support to beginning teachers, improving summer reading camp quality across the state, providing reading coaches trained in the Science of Reading to the lowest performing schools in the state, ensuring the use of high quality curriculums aligned to the Science of Reading, providing training in the Science of Reading to all current educators, and ensuring access to early childhood education programs.

            At the April board meeting an update on the Framework for Action on Early Reading was presented for review that included action steps for accomplishing the nine points on the framework (NC SBOE 2019d). The plan includes the development of a statewide literacy plan from birth to 12th grade that will be presented to the State Board of Education for approval in the spring of 2020 to be implemented in the 20-21 school year.

            At the September 2019 SBOE meeting Dr. Tara Galloway shared updates to the framework action to address the goal of creating a definition of high quality reading instruction (NC SBOE 2019e). To achieve this goal NC DPI convened a team of stakeholders to conduct a literature review regarding the definition and elements of high quality literacy instruction, and they held multiple stakeholder meetings throughout the state to gather input and feedback to develop a definition of high quality instruction that can be used from birth to 12th grade. A review of the literature revealed that high quality reading instruction should be explicit, systematic, direct, and structured while providing opportunities for practice and application. High quality instruction should also include direct instruction in the five components of reading, orthographic mapping, and the use of decodable texts. However, the literature does NOT support the use of the three cueing systems: meaning, syntax, and visual. Dr. Galloway stated that instead of giving students compensating strategies to get over hurdles, we should simply remove the hurdles to allow students to get to proficient reading. Board member, Mr. Buxton, shared that a $2.8 million contract is currently being drafted to provide Science in Reading Training to districts.

Additional updates to the framework were presented at the December 2019 State Board of Education Meeting. The purpose of the framework is to utilize evidence to guide practices to reach the goal of 95% proficiency for all students in reading, which research has shown is an achievable goal when given the right supports and instruction (NC SBOE 2019f). Dr. Tara Galloway defined the Science of Reading as “research-based literacy instructional practices based on cognitive science and neuroscience”. To require the desired proficiency goals requires explicit, systematic, sequential instruction in each of the five pillars of reading. The ultimate goal of the work is to develop a comprehensive literacy plan that can guide the practices of teachers, administrators, and district leaders as well as serving as the impetus for local changes, and district shifts in instructional practices and supports. The work needs to empower others to make the instructional changes necessary for educational equity to be achieved. NC DPI will evaluate district needs and provide supports based on the Science of Reading (SOR) best practices. Budget priorities would focus on providing SOR training at all levels to include state, local, and higher ed, B12 literacy plan development, and the provision of SOR trained reading coaches in the lowest performing schools. SOR will now be the statewide approach to teaching reading. This work connects to Read to Achieve because Read to Achieve serves as the ultimate goal of having all students on grade level in reading by 3rd grade. Currently, work is underway to review previous versions of the state’s comprehensive reading plan as well as reading plans from other states that have shown success in order to draft a B12 literacy plan.

The National Reading Panel (NRP) presented its findings to the nation in 2000 emphasizing the importance of explicit, systematic instruction in the five key pillars of reading: phonemic awareness, phonics, fluency, vocabulary, and comprehension. In response to the findings the national dialogue on literacy increased, and states began providing trainings to teachers in these areas based on the findings from the NRP. However, there are still many districts across the state clinging to inadequate instructional practices in literacy that are not in line with advances in research that have identified instructional practices that are effective for all students. Third grade literacy proficiency scores have not changed significantly in the past five years in North Carolina, nor have gaps between subgroups begun to close. I have been a trainer for the state’s Reading Research to Classroom Practice training for the past ten years, and many of the evidence-based strategies we teach are not found in many districts across the state. North Carolina has recognized the need for something to change, and I am encouraged to see the dialogue that has been happening at the state level. However, I am curious to see how these conversations will translate into changes in practice in districts across the state that are still using outdated practices.

Works Cited

Bryan, B.A., Hougen, M., and Nelson, K. (2018, Feb 14). Leading on Literacy: Challenges and Opportunities in Teacher Preparation Across the University of North Carolina System. The University of North Carolina System. Retrieved from https://www.northcarolina.edu/sites/default/files/documents/unc_teacher_preparation_report_final_021418.pdf.

National Assessment for Educational Progress. (2019). The Nation’s Report Card. National Center for Education Statistics. Retrieved from https://www.nationsreportcard.gov/reading/nation/groups?grade=4.

North Carolina State Board of Education. (2016, October 31). North Carolina State Board of Education Monthly Meeting [Meeting Minutes] Retrieved from https://simbli.eboardsolutions.com/Meetings/Attachment.aspx?S=10399&AID=65771&MID=2789

North Carolina State Board of Education. (2019a, January 9). North Carolina State Board of Education Monthly Meeting [Meeting Minutes] Retrieved from https://simbli.eboardsolutions.com/SB_Meetings/ViewMeeting.aspx?S=10399&MID=4980

North Carolina State Board of Education. (2019b, February 6). North Carolina State Board of Education Monthly Meeting [Meeting Minutes] Retrieved from https://simbli.eboardsolutions.com/SB_Meetings/ViewMeeting.aspx?S=10399&MID=5052.

North Carolina State Board of Education. (2019c, March 6). North Carolina State Board of Education Monthly Meeting [Meeting Minutes] Retrieved from https://simbli.eboardsolutions.com/SB_Meetings/ViewMeeting.aspx?S=10399&MID=5133

North Carolina State Board of Education. (2019d, April 3). North Carolina State Board of Education Monthly Meeting [Meeting Minutes] Retrieved from https://simbli.eboardsolutions.com/SB_Meetings/ViewMeeting.aspx?S=10399&MID=5223.

North Carolina State Board of Education. (2019e, September 4). North Carolina State Board of Education Monthly Meeting [Meeting Minutes] Retrieved from https://simbli.eboardsolutions.com/SB_Meetings/ViewMeeting.aspx?S=10399&MID=6100.

North Carolina State Board of Education. (2019f, December 4). North Carolina State Board of Education Monthly Meeting [Meeting Minutes] Retrieved from https://simbli.eboardsolutions.com/SB_Meetings/ViewMeeting.aspx?S=10399&MID=6298.

North Carolina State Board of Education and Department of Public Instruction. (2018) State Agency Continued Collaboration on Early Childhood Education. Report to the North Carolina General Assembly. Retrieved from https://simbli.eboardsolutions.com/Meetings/Attachment.aspx?S=10399&AID=119590&MID=3928.