Education:
Recovering from COVID Chaos

​​Patrick M. Shields, PhDExecutive Director
Learning Policy Institute​Penny Schwinn, PhDCommissioner of Education
Tennessee

​With thanks to our guest speakers, all slides presented at the live Forum are available on request. If you would like a copy, please contact us.

​Summer 2022 Forum in Review​Introduction​State Budgets: A Half-Year Check-In​Real Solutions for Ending Homelessness​The Crisis in Ukraine​Education: Recovering from COVID Chaos

As every state has seen, the past two years have wreaked havoc on learning in America. But the pandemic has also revealed opportunities to address longstanding issues. With dual insights from the Learning Policy Institute and the state of Tennessee, this session focused on the approach and implementation of strategies to address teacher shortages and other challenges facing the states today.

Assess and Address the Challenges

COVID’s impact on school attendance and learning loss was equivalent to that seen during  World War II and with natural disasters such as Hurricane Katrina, Dr. Patrick Shields reported to the Forum. Dr. Shields is Executive Director of the Learning Policy Institute, which works with federal, state, and school organizations to address the challenges facing schools as they cope with deteriorating mental and physical well-being of traumatized students and overwhelmed teachers and school leaders. More than 3% of kindergarten-age children did not start school and many students in upper grades did not return to school. Learning loss across grades showed a 0.2 standard deviation from the norm, with a widening of the equality gap.

COVID’s Impact on the Educator

For the 2021-2022 school year, schools everywhere faced teacher shortages. More than 40 states reported shortages in special education, math, and science teachers, according to Learning Policy Institute analyses. The U.S. had 300,000 fewer educators in May 2022 than February 2020, and 55% plan to leave the profession earlier than planned. Twice as many educators reported job-related stress compared to other working adults. Districts report higher burnout and mental health challenges as teachers’ resilience has been severely tested every day.

​How much of a problem are staffing shortages at
your school/district this school year?

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Strategies to Support the Educator Workforce

Boosting Salaries

Teacher salaries are still only 80% of what similar college graduates earn as the state-by-state map of salaries indicates; therefore, increasing salaries is a key recommendation from the Learning Policy Institute.

​Average Annual Starting Salary by State (2019-20)

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Beyond salaries, Dr. Shields stressed the value of innovative programs designed to bring more people into the teaching profession through non-traditional routes; for example, via residencies modeled on medical residencies, a strategy being employed in several states.

Other states have evolved successful “Grow Your Own” programs, which engage local community people who know the local culture and mores, and provide supports for teacher training. Service-scholarship and loan forgiveness programs are active in some states to facilitate people entering the profession.

Stemming Attrition

Even when improved salaries and support pathways effectively engage people in the profession, the next hurdle is to retain them. Almost 90% of new teacher hires are to replace someone who has left the profession. Unfortunately, poorer educational outcomes are associated with having new, less experienced teachers.

Some of the strategies to stem teacher attrition and improve retention include mentoring programs and induction training to assist new educators. Educators, like other professionals, need opportunities to learn, grow, and collaborate; they need a career path. And whether they are veterans or beginners, all teachers stress the key value of supportive and inclusive school leadership.

Funding Effective Programs

Most states have access to billions of dollars that, when appropriately allocated, can produce significant, measureable outcomes improvements, Dr. Shields reminded the Forum. Such programs include:

• Elementary and Secondary School Emergency Relief Fund (ESSER):
$189 Billion

• Governor’s Emergency Education Relief Fund (GEER): $4.3 Billion

• Higher Education Emergency Relief Fund (HEERF): $75.5 Billion

• State and Local Fiscal Relief Fund (SLFRF): $350 Billion

Best for All: Tennessee’s Big Bold Education Policy

Dr. Penny Schwinn, who serves as Commissioner of Tennessee’s Department of Education, introduced the state’s “Big Bold Education” policy. She acknowledged that the challenge is translating this mission into the classroom at a time when 4% of the lowest performing children are not even attending school. She noted that billions of dollars from federal COVID funding have been allocated to education and she stressed the critical need to demonstrate measureable outcomes from these expenditures.

“Best for All. We will set all students on a path to success.” The state’s Big Bold Education Policy is captured in this title and mission. It relies on 3 pillars with aspirational mission statements to bring its motto to life: student readiness, academics, and educators.

​We will set all students on a path to success.

Student Readiness

Tennessee public schools will be equipped to serve the academic and non-academic needs of all students in their career pathways.

Academics

All Tennessee students will have access to a high-quality education, no matter where they live.

Educators

Tennessee will set a new path for the education profession and be the top state in which to become and remain a teacher and leader for all.

Constant engagement is key to driving the program forward, Dr. Schwinn reported. There are eight engagement teams that have made 500 in-person school visits this year across 147 districts. All superintendents review progress with their districts once a month. Every district and state agency is held accountable for results.

​Constant engagement is key to driving the program forward.

5 Programs that Deliver Results

Under Dr. Schwinn’s leadership, and with committed participation from all stakeholders, the state has implemented a five-pronged approach to improving educational outcomes that is delivering dramatic results.

1. TISA: Tennessee Investment in Student Achievement

The Tennessee Investment in Student Achievement, or TISA, ensures universal access and implementation of high-quality education. The goals of the program are: to prepare each high school graduate to succeed in the post-secondary program or career of the graduate’s choice; to provide each student with the resources needed to succeed, regardless of the student’s individual circumstances; and to empower each student to read proficiently by third grade.

The law sets a base funding rate of $6,860 per pupil, then distributes additional funding for students who are from economically disadvantaged families, have unique learning needs, or live in rural or impoverished communities. The state’s 2022-23 budget includes $125 million more for teacher pay — equivalent to a 3% raise — and $500 million in one-time funding for career and technical education for students in middle and high school, plus money for early literacy programs, summer camps, and charter school facilities.

2. Reading 360

Under this $125 million early literacy program, every teacher is drilled on phonetics-based reading and strategies to support literacy. The program has had the greatest impact, Dr. Schwinn reported, with student achievement data three points higher than pre-COVID. The program also engages families; 125 families have signed up for text messaging about reading performance and regularly receive books. Participating parents report 90%+ satisfaction with the program.

3. TN ALL Corps

The Tennessee Accelerating Literacy and Learning Corps brings high-dosage tutoring to 150 students. Strong, experienced tutors such as retired teachers or highly trained current teachers tutor small three-student groups. The program not only increased English Language Arts (ELA) outcomes by 6-11 points, but also helped reduced teacher shortages as this became a pathway for teacher engagement.

Innovative programming such as a micro grant using COVID funds provided one-on-one tutoring for 15,000 students who are most at need of intervention. Currently, 36.4% of Tennessee students are meeting grade level expectations in English language arts, proficiency gains were reflected in all tested grades, and overall proficiency has largely returned to pre-pandemic levels.

4. Innovative High School Models

The state invested $30 million in the Innovative High School Models program to encourage school districts to reimagine the possible and create innovative, high-impact high school experiences for all students. The program develops strategic partnerships with local business and industry in local communities that will boost student readiness and prepare high schoolers for jobs and careers in their local communities.

5. Grow Your Own

The state’s Grow Your Own program is an apprenticeship program that uses Department of Labor funds to provide innovative, no-cost pathways to the teaching profession. As a federally recognized apprentice program, federal funding provides participants a living wage and free college through a partnership with the University of Tennessee. The apprenticeship program also can pay for childcare, car repairs that are essential for getting to school, and other supports.

The Grow Your Own initiative supports hundreds of individuals to become teachers for free. The school districts identify people employed in various non-teaching positions who wish to become qualified teachers. The objective is to remove barriers to the teaching profession and increase access to and success in teaching.

​The Grow Your Own initiative supports hundreds
of individuals to become teachers for free.

The length of the training depends on the individual’s prior experience. They are assigned a mentor or Master Teacher for three years and receive free tutoring to pass credentialing exams. Participants are paid while they receive training. In the course of two years, the program filled 650 of the 2000 open teaching positions, and currently, only 300 remain open.  Formerly, 90% of districts reported vacancies; today that is down to 40%.

Dr. Schwinn: concluded her remarks, noting that “We have to recover quickly. We cannot think that it will take five years to recover from COVID learning loss. We have set a target to get back to pre-pandemic levels withinin 18 months.”

Discussion

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Moderated by

Tom Finneran

Sen. Hanna Gallo
Senate President Pro Tempore, Rhode Island
Rhode Island has a shortage of teachers across the board, so the Grow Your Own Program is very attractive. How is the apprenticeship program different from regular student teaching? Are the Master Teachers also compensated?

Dr. Schwinn
Commissioner of Education, Tennessee
By creating a formal apprenticeship program under the Department of Labor (USDoL), you have access to sustainable funding. The pathways to become a certified teacher are facilitated by pairing experienced professionals with apprentices. To create such a program requires that candidates register with the USDoL and that an educational preparation program is provided. So we partner with the universities and colleges in our state that offer teacher preparation courses, with the added support of expert mentors. The mentors receive compensation from USDoL and also a stipend. It is one way of rewarding and retaining good teachers, and fills the pipeline with future teachers.

Sen. Larry Taylor
Chair, Senate Education Committee, Texas
What strategies have you used to retain teachers? How does Grow Your Own contribute to retention? Do you see a role for technology?

Dr. Schwinn: Teacher salary is a key component. In 2019, the starting salary was $34,000, and, by 2021, it reached $40,000. But the most important factor for teacher retention is the quality of the school leadership. We are also developing the Grow Your Own administration program.

Dr. Shields
Executive Director, Learning Policy Institute
Technology is a tool, but only a tool, and its effectiveness depends on how skillfully it is used and whether it is integrated into a comprehensive research-based scientific approach. Rather than just giving teachers tools, we need to train all the teachers on the tools and provide the materials to support their efforts.

Dr. Schwinn: In-person training is the most effective. We don’t make the adoption of technology an imposed policy, but rather the districts engage voluntarily. The state is seen as a supportive partner, not punitive. New technology can cause a lot of anxiety but an incremental inclusion keeps teachers more comfortable.

Tom Finneran (Moderator): What issues should Senate leaders be aware of when considering rural students who may not have broadband access?

Dr. Schwinn: Broadband access should be as guaranteed as water and electricity. We want to get students comfortable with the right devices from a young age.

Sen. Mo Denis
Senate President Pro Tempore, Nevada
Investing strategically makes a difference. Often new teachers end up at the most challenging schools. How do you allocate teachers to avoid this?

Dr. Schwinn: The apprenticeship program means that a “new” teacher has three years of mentorship behind her and is more competent. For teachers in a high-need school, additional compensation and additional time for preparation are important.

Every program we invest in is analyzed based on dollars invested per student, and measured against student achievement outcomes to determine return on investment.

Sen. Matthew Huffman
President of the Senate, Ohio
During COVID, many religious schools stayed open. What about school choice and simply giving vouchers or scholarships and letting parents decide?

Dr. Shields: The data on charter schools indicate that 25% outperform, 25% underperform compared to public schools, while 50% are equivalent. There is no research data that show that choice improves educational outcomes.

Our responsibility as educators is to ensure that every family has a choice to send their children to a high quality school. That every child has access to resources and a great education.  And that every school is high quality and could be chosen.

Tom Finneran (Moderator): Given teacher shortages and the big challenges of learning loss and socialization loss, what are the best strategies for catching up?

Dr. Shields: Data show that “time on task” makes a difference; therefore, high dosage tutoring, after school and summer camp programs that extend learning time—with well-prepared and effective tutors—will address learning loss and facilitate catching up.

Dr. Schwinn: The Tennessee Legislature funded 6 weeks of summer camp targeted for students with behavioral or academic challenges. 22% of students attended and met in classes of 10, with a tutor and a counselor for peer socializing. Afterwards, academic outcomes were better for summer camp attendees; they attended school more often, and were more confident.

Sen. Ann Millner
Chair, Senate Ethics Committee, Utah
How do you sustain programs that you started with federal funds?

Dr. Schwinn: 65% of our students are low-income and qualify for support. The Tennessee ALL Corps program is evidence-based, with demonstrated outcomes for improved literacy. The state codified that every student must be able to read at a third grade level or they qualify for tutoring and summer camps. The state recalculated the funding formula so that it is student-based; every student from kindergarten through third grade is allocated $500 for tutoring and early literacy.

Dr. Shields: While the states have excess funds, it is important to build infrastructure and also to integrate with other entities whose mission involves young people, such as Boys and Girls Clubs.

Sen. Chuck Winder
Senate President Pro Tempore, Idaho
Teachers are leaving the field often because of discipline problems and a lack of parental engagement and support. What programs help make the students more responsible and accountable for their own behavior?

Dr. Schwinn: The governor of Tennessee allocated $250 million for mental health funding and focused this on student mental health and teaching autonomy, helping students manage their own success. County-based and school-based mental health and behavior programs evaluate students and decide what support they need. Not everything is provided by the school, but needs are met through coordinating community resources.

Presenter Biographies

Patrick M. Shields, PhD

Executive Director
Learning Policy Institute

Patrick M. Shields is the Executive Director of Learning Policy Institute. He is a member of LPI’s Early Childhood Learning Team, and is one of the co-authors of The Road to High-Quality Early Learning: Lessons from the States. Shields also works on Educator Quality and co-authored LPI’s report, Addressing California’s Emerging Teacher Shortage.

Shields brings to LPI more than 25 years of experience managing large-scale social science research projects. Prior to joining LPI, he was the Executive Director of SRI Education, where he also served as Research Director for Teaching and California’s Future, a 15-year initiative to track the quality of the teacher workforce that contributed to legislation to ensure high-quality teaching for all of California’s students. Shields has also overseen many NSF- and foundation-supported studies of STEM opportunities for disadvantaged children, including serving as the co-principal investigator of the Science Activation Lab, a national research and design effort to dramatically strengthen learning.

Shields received a Ph.D. and an M.A. in Educational Policy from Stanford University, an M.A. in Educational Administration from Columbia University, and a B.A. in Romance Languages from Amherst College. He recently served on the National Academy of Sciences Committee on Strengthening Science Education through a Teacher Learning Continuum.

Full bio

Penny Schwinn, PhD

Commissioner of Education
Tennessee

Patrick M. Shields is the Executive Director of Learning Policy Institute. He is a member of LPI’s Early Childhood Learning Team, and is one of the co-authors of The Road to High-Quality Early Learning: Lessons from the States. Shields also works on Educator Quality and co-authored LPI’s report, Addressing California’s Emerging Teacher Shortage.

Shields brings to LPI more than 25 years of experience managing large-scale social science research projects. Prior to joining LPI, he was the Executive Director of SRI Education, where he also served as Research Director for Teaching and California’s Future, a 15-year initiative to track the quality of the teacher workforce that contributed to legislation to ensure high-quality teaching for all of California’s students. Shields has also overseen many NSF- and foundation-supported studies of STEM opportunities for disadvantaged children, including serving as the co-principal investigator of the Science Activation Lab, a national research and design effort to dramatically strengthen learning.

Shields received a Ph.D. and an M.A. in Educational Policy from Stanford University, an M.A. in Educational Administration from Columbia University, and a B.A. in Romance Languages from Amherst College. He recently served on the National Academy of Sciences Committee on Strengthening Science Education through a Teacher Learning Continuum.

Full bio

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