13.1 Preamble

Governors are leaders in high school reform and higher education. Federal policy should support their authority, initiatives, and innovation. States are implementing and developing strategies to increase student participation in rigorous college preparatory courses, better align expectations between high school and postsecondary education, hold these systems accountable, and ensure students graduate from high school ready for college or the workplace in the global economy.

Governors recognize that education is a fundamental state responsibility. To ensure the proper federal-state-local partnership, federal education laws and regulations must be accompanied by broad flexibility. While states invest significant resources in education programs, governors also recognize and appreciate the federal government’s contribution to provide additional resources or assistance for those most in need.

High school and higher education reform require systemic change in federal education policies to break down barriers, align federal education laws, and allow for greater flexibility at state and local levels. Also critical to reform will be an increased focus on rigor and relevance of secondary and postsecondary school for all students. Federal education programs must be aligned to support state high school reform efforts in order to ensure that every student graduates prepared to succeed in and contribute to the global economy. Federal funding must be appropriated to meet new school improvement goals and current mandates.

In this new economy and era of education reform, now is the time to reform postsecondary education by increasing relevance and rigor, accountability, and linkages with kindergarten-12th grade (K-12) education and the workplace, and by expanding financial aid to students of all ages. Governors recognize the essential role the federal government plays in ensuring access to postsecondary education through student financial aid in the form of grants, work-study, and loans. Additionally, the federal government should reinforce its commitment to postsecondary education by focusing on need-based student aid.

13.2 Principles for High School Reform

Governors recommend the following principles for federal high school reform.

Support state efforts to reform high school, increase academic rigor for all students, utilize a state-determined common high school graduation rate, and enhance the value of the high school diploma to prepare students for college and the workforce.

Recognize governors’ responsibilities in early education, K-12, and postsecondary education, and strengthen their authority to coordinate statewide education policies across grades and education settings.

Provide capacity-building incentives to states to increase teacher supply and retention, as well as education research.

Better align federal program requirements across federal education laws from early education through college and the workforce, including career and technical education programs, and special education programs, as well as teacher education programs.

Authorize states to provide diverse learning options and assessment options, including the option for growth models, determined at the state level.

Provide support for new models of teacher and school leader compensation.

Support guidance and counseling services for students, including early college planning and preparation.

13.3 Recommendations for High School Reform

Governors support the following recommendations to increase state capacity to reform high school, align secondary school with postsecondary or college expectations, and promote lifelong learning.

13.3.1 Preschool-College (P-16) Alignment of Educational Standards, Systems, and Expectations. Governors have taken the lead in recognizing the fundamental state responsibility for a seamless progression from early childhood through lifelong learning opportunities. P-16 alignment is critical to ensure that students are prepared for and successful at each step within the education system. Federal high school and higher education laws and regulations should be aligned to encourage, fund, and provide technical assistance for capacity building towards education and workforce alignment. Congress should refrain from establishing any federal mandates to ensure maximum state and local flexibility to create aligned systems.

13.3.2 Diverse Learning Opportunities for Students of All Ages. A one-size-fits all approach to high school learning is outdated and does not support the diverse needs of students. Governors encourage Congress to support state and local policies and programs that expand the availability of learning opportunities for students of all ages including, but not limited to, virtual school options, service learning, internships, apprenticeships, programs addressing out-of-school-youth, alternative learning programs, and the availability of financial aid.

Diverse learning options can increase access to postsecondary education and lower costs. Governors urge Congress to afford students participating in state-accredited distance and on-line education programs full access to federal student financial assistance. The Higher Education Act (HEA) should provide the U.S. Secretary of Education with the authority to exercise discretion to allow states and institutions to appropriately experiment with new ideas and approaches to meet the financial aid needs of students enrolled in such programs.

13.3.3 K-12 Accountability. Governors support state efforts for rigorous testing and assessment of high school students. States have made considerable progress to institute standards-based testing and demand greater accountability in K-12 education. Governors urge Congress to closely consult with states on any federal expansion of testing and to continue to respect governors’ authority over education. Any costs associated with federally mandated testing or federal reporting on state exams must be completely covered by the federal government. Maximum flexibility in designing state accountability systems, including testing and other indicators of achievement, is critical to preserve the unique balance involving federal funding, local control of education, and state responsibility for system-wide reform. Maximum flexibility in state testing will help improve how students are assessed for academic proficiency and postsecondary readiness. Flexibility should include the option for states to utilize growth measures to assess student performance. Additionally, Congress and the Administration should provide support to low-performing high schools and high school students.

13.3.4 Training for New Teachers and Professional Development for Teachers and School Leaders. High school reform will require new investments in the capacity and expertise of teachers and school leaders. Governors support expanded flexibility and capacity to increase professional development opportunities for secondary school teachers and school leaders, in particular those individuals working in hard-to-serve schools or critical shortage areas, such as mathematics, science, reading, and special education. In addition, governors support federal efforts that build on and accelerate statewide strategies to expand and improve the human capital pipeline, including nontraditional strategies to recruit our nation’s most promising college graduates and professionals to teach in high-need schools. Teachers and school leaders must receive the professional support and training needed to provide students with the skills necessary to compete in a global society, particularly in science, technology, engineering, mathematics (STEM), literacy, and international and language studies.

13.3.5 Models for Teacher and School Leader Compensation. Governors understand that systemic improvement in high school achievement, as well as college and workplace readiness, may require additional support for teachers and school leadership. High schools must compete with other more highly compensated professions for teachers and school leaders, especially in the areas of mathematics and science. Congress should continue to support and expand state-administered pilot projects on performance pay, especially in critical shortage areas or hard-to-staff schools.

13.3.6 High School Rigor, Relevance, and Options. Governors are working to improve high school graduation rates and increase the percentage of high school graduates who are entering college prepared for the rigor of postsecondary education. Establishing curriculum and secondary school courses of study is a uniquely state and local function, and federal laws prohibit the federal government from establishing, directing, or controlling curricula. States must retain the authority to define high school rigor and rigorous secondary school courses of study for the Academic Competitiveness Grant program.

Dual Enrollment and Early College. Governors recognize the importance of promoting innovation and integration among secondary, postsecondary, and industry-recognized institutions. Federal policies should encourage—not discourage—promising state efforts in dual enrollment programs that permit students to obtain high quality college-level credits or provide the opportunity to earn an industry-recognized credential while still in secondary school. Specifically, Congress should encourage and support state dual enrollment or early college programs that provide accelerated educational opportunities and allow students to obtain both high school diplomas and significant college credit. Congress also should allow high school students participating in these programs to be eligible for federal financial aid.

Industry Certification, Advanced Placement, and International Baccalaureate Programs. Congress should provide financial incentives to states to support industry-recognized certification exams among high school and postsecondary school students. Congress also should support state efforts that encourage more students to enroll in Advanced Placement (AP) or International Baccalaureate (IB) coursework and pay for student AP testing.

13.3.7 Guidance and Counseling Services. Congress should maintain federal support for counseling services to secondary school students. Governors support federal programs, such as Gaining Early Awareness and Readiness for Undergraduate Programs (GEAR-UP), the Leveraging Educational Assistance Partnership (LEAP), and the Elementary and Secondary School Counseling Program (ESSCP). In all three programs, Congress should provide states and local school districts with greater flexibility. Under the ESSCP program, local school districts should be given flexibility to allocate resources between the elementary or secondary school level for key federal programs. Congress also should reauthorize GEAR-UP, and other federal programs that encourage college attendance, in an equitable way that allows students to benefit from these opportunities in all states that apply for grants.

Governors understand the importance of early college planning and preparation. Congress should help expand capacity and technical assistance for state strategies that promote early college awareness, including middle school programs that focus on the importance of high school to prepare for college and college admissions tests.

13.3.8 NGA Voluntary High School Graduation Rate. The 2005 NGA Graduation Counts: Compact on State High School Graduation Data (NGA Compact), which includes the NGA Graduation Rate, was endorsed by 50 governors and led to states beginning the difficult task of developing and building longitudinal data systems to calculate the new graduation rate. The voluntary state NGA Compact formulated a common high school graduation rate to ensure transparency, accountability, and comparability, and, ultimately, to improve our nation’s high schools. Governors remain committed to implementing longitudinal data systems, but some states face budget and policy hurdles to achieve this goal. However, when governors developed the NGA Compact, it was not for federal accountability purposes. The use of a high school graduation rate in any accountability framework must serve as an incentive to promote state and local innovation to better engage and educate every student, and count all students who graduate from high school. Congress and the Administration should work closely with governors to ensure the proper use and application of the NGA Voluntary High School Graduation Rate.

13.4 Carl D. Perkins Career and Technical Education Act

The reauthorization of the Carl D. Perkins Career and Technical Education Act (Perkins) is an important component of high school reform. Career and technical education can bridge the transition between high school and postsecondary activities by providing students with real-world skills to better prepare for the 21st century workplace. Previously implemented as a separate track for students, career and technical education now holds the promise of providing students the relevance and applied practice, particularly in mathematics, science, and technology, that ensure that they stay in school and graduate prepared for college and the skilled workforce. In particular, the Perkins reauthorization should improve the academic rigor of career and technical education for students. To this end, governors support increased federal funding for Perkins’ programs.

13.4.1 State Leadership. Governors support the strong role for state leadership in Perkins. This role can only be maintained with adequate resources for administration, leadership, and innovation. Governors oppose any reduction in the federal commitment to fund and support this important state role.

13.4.2 Federal and State Alignment. The goals and objectives of career and technical education should align with other federal education and workforce development programs to promote lifelong learning opportunities, work readiness, and school readiness. Furthermore, governors believe that career and technical education programs must complement the academic mission of the No Child Left Behind (NCLB) Act. In recognizing the importance of coordination and alignment among different federal programs, governors support aligning Perkins with NCLB and eliminating duplicative reporting requirements fulfilled by NCLB.

13.4.3 Teacher Preparation. Governors believe that career and technical education programs and career and technical education teacher certification requirements should reflect the need to better integrate career and academic curriculum and integrate career professionals into the career and technical education teaching corps.

13.4.4 State Flexibility. Congress should maintain and enhance the flexibility to fashion career and technical education programs to meet each unique state situation. Governors support continuing and enhancing the flexibility currently allowed under Perkins, such as allowing states to determine the allocation of funds between secondary and postsecondary institutions. Congress also should continue to give states the authority to combine Tech Prep with Basic State Grants.

13.4.5 State Accountability. Federal policy should continue to recognize the critical state role of determining and setting performance standards and other measures to ensure student success in career and technical education programs. Governors support the use of state determined accountability measures.

13.4.6 Paperwork Reduction: State Plans. Governors recognize the important objectives sought by the different provisions within Perkins. However, governors believe that states should be able to file a single unified plan to substantially reduce the paperwork burden on state agencies and to increase collaboration between Perkins’ programs.

13.4.7 Data Collection and Maintenance. Governors recognize the importance of having reliable and useful data to measure student performance in career and technical education programs. Congress should allot additional federal resources to develop, maintain, or support state data systems to comply with Perkins. To this end, Congress must cover any increase in the cost of administering or implementing new federally mandated data requirements.

13.5 Higher Education Act of 1965

It is essential that postsecondary institutions keep pace with the ever-changing global economy and reforms implemented in elementary and secondary education. While the Higher Education Act of 1965 expanded opportunities for students, reform to the larger postsecondary system has been slow and graduation rates remain relatively stagnant. Governors urge Congress to strengthen the state-federal partnership in postsecondary education to serve the nation well into the 21st century.

13.5.1 Higher Education Act Principles. HEA provides the statutory framework for a wide range of student financial assistance that enables expanded access by all students to higher education institutions; ensures affordability for low- and moderate-income families; and provides for federal programs to strengthen graduate education, minority-serving institutions, and international education. Governors recommend the following principles for HEA reauthorization.

Support state strategies to improve enrollment and completion of postsecondary education.

Make college more affordable for students.

Simplify forms for the complex program of student financial assistance.

Build state capacity and provide technical assistance and flexibility to states to increase accountability in the system.

Recognize the growing need for services and supports for nontraditional students to be successful.

13.5.2 College Affordability for All Students. Maximum flexibility in the preparation and access to college for all students is essential to a fair, equitable, and successful American education system. Governors believe the federal government should focus its resources on ensuring access and equal opportunity for all students in HEA. Moreover, the nation’s governors recognize the vital importance of financial aid programs to make college education more affordable for students, including part-time and nontraditional students. In addition, governors support a strong federal commitment to ensure affordability through both federal grant aid and loan programs. Congress should work to ensure that federal higher education assistance substantially defrays education costs. Governors also appreciate that student loan consolidation provides students with another mechanism to address college affordability.

13.5.3 Mandates on State Spending. Governors strongly oppose any new federal mandates that would dictate state spending on higher education. While governors share concerns about the cost of higher education for students and their families, a federal mandate on state higher education spending is not the solution. New federal mandates actually will produce several serious consequences for other categories of spending or contribute to a rise in the cost of college or students and their families. States must balance their budgets and maintain the authority to make decisions in the best interest of their citizens, without federal intervention or punishment.

13.5.4 Financial Aid for Students

13.5.4.1 Pell Grants and Need-Based Financial Aid for Students. Governors recognize the value of need-based financial aid programs, such as Pell Grants. Governors are concerned with the historical inadequate funding of Pell Grants to provide the maximum allowable awards to eligible students and believe that Congress should consider raising the Pell Grant maximum. Governors believe that the federal government should review the Pell Grant program to ensure that the purchasing value of this grant has not diminished over time. Congress also should fund an enhanced Pell Grant for those students graduating in the top 10 percent of their high school class for the first two years of college, as long as there is no reduction in the total number or size of grants awarded to other Pell Grant recipients.

The Pell Grant program should be modernized to reflect the varied needs of today’s high school and postsecondary school students, including independent students and those attending less than half time. Governors also support extension of Pell Grants for students whose educational pursuits extend beyond the typical calendar year. Pell Grant eligibility should extend to summer classes and mid-term classes to allow these students to pursue their studies throughout the year.

13.5.4.2 Access for Nontraditional Students. Governors recognize the diversity of today’s postsecondary students. Governors support the removal of barriers within the financial aid systems that make it difficult for part-time, financially independent, or nontraditional students to qualify for financial aid.

13.5.5 Form and Program Simplification. Governors believe that the current federal, state, and private student financial assistance programs have provided unprecedented opportunities for students in America. However, the array of federal, state, and private scholarships, grants, loans, tax breaks, and work-study programs presents a complex and often confusing set of choices for students. The reauthorization of HEA should require coordination and collaboration between federal agencies to simplify the application process and forms, to utilize information technologies to facilitate navigation among the many choices and opportunities, and to strengthen the role of state-based guarantee agencies in the financial aid process. Additional transparency and education about the Pell Grant award process, as well as other programs of financial aid, should be encouraged.

Moreover, governors believe that the administrative burdens and excessive regulations associated with the federal student financial aid process must be substantially improved for students, institutions of higher education, and states.

13.5.6 Postsecondary Accountability. Accountability of higher education institutions is an important issue for governors, and the federal government should defer to the states’ leadership in this area. Governors are working with postsecondary institutions to improve postsecondary student completion, to increase alignment between secondary and postsecondary education, and to ensure that students graduate prepared for the 21st century workforce. For this reason, any HEA accountability system should be defined by the state.

13.5.7 Accountability for Teacher and School Leader Preparation Programs. HEA reauthorization should support state-led reforms in the preparation, training, and professional development of the next generation of the nation’s teachers and school leaders. Governors have taken the lead in their states advocating stricter standards for teacher preparation and performance. Governors urge the federal government to defer setting national standards, and instead allow states to give their own teacher preparation programs an opportunity to demonstrate their effectiveness. However, Congress should support and build on state reforms to expand accountability for teacher preparation programs and to align NCLB standards with HEA Title II programs.

13.5.8 Coordination with Workforce Programs. An educated workforce is an essential element of a state’s success in the new economy, and effective postsecondary education is a key factor for a successful economic development program today. Congress should strengthen the ties between postsecondary institutions and workforce programs by coordinating programs at the U.S. Department of Labor and the U.S. Department of Education that address workforce training and preparation.

13.5.9 Loan Forgiveness for Teachers. Governors support congressional efforts to expand student loan forgiveness for teachers, specifically those teachers working in hard-to-staff schools, including schools identified as in need of improvement, or those teachers working in critical shortage areas, such as special education, mathematics, reading, and science.

13.5.10 Encouraging Families to Save for Their Children’s Higher Education. Governors have taken the initiative in establishing college savings plans in their states that increase affordability of a postsecondary education for middle-income families. These programs should be supported and encouraged in the reauthorization of HEA according to the following principles of a federal-state partnership.

College savings incentives at the federal level should be designed to simulate and complement, rather than preempt, similar policy initiatives by states and public and private higher education institutions.

Congress should strive to simplify the tax code as it relates to college savings and tax credits wherever possible. An overly complex system can dissuade those most in need of financial aid from pursuing it.

Reduced revenue resulting from tax incentives for savings for higher education should not lead to reductions in other vital federal higher education programs.

Related Policy: ECW-15, Principles of Federal Preschool-College (P-16) Alignment

Time limited (effective Winter Meeting 2009–Winter Meeting 2011).
Adopted Winter Meeting 1998; reaffirmed Winter Meeting 2000; revised Winter Meeting 2001, Winter Meeting 2003, Winter Meeting 2005, Winter Meeting 2006, Annual Meeting 2006, Winter Meeting 2007, and Winter Meeting 2009 (formerly Policy HR-44).