2024 State of Education in Tennessee

Building
A BRIGHTER FUTURE
2024 State Of Education In Tennessee
Building
A BRIGHTER FUTURE
2024 State Of Education In Tennessee
CONTENTS
03 A Letter From Senator Bill Frist And David Mansouri
05 The Next Frontier For Transforming Education In Tennessee
1414
2024 Priorities
Expand Student Opportunity By Strengthening Foundational Policies
24Build Effective Pathways Between Education And Careers
34Ensure K-12 Supports Meet Student Needs
44 2024 Advocacy Agenda
47 About SCORE
49 References
A Letter from
SENATOR BILL FRIST
AND DAVID MANSOURI
Dear Friends, But as we look to the next chapter, Tennessee must do
more. While student outcomes in Tennessee are trend-
2024 marks 15 years since the State Collaborative on ing in the right direction, far too many students are still
Reforming Education (SCORE) was founded with a mis- being left behind. Just over one-third of elementary stu-
sion to catalyze transformative change in Tennessee dents are proficient in English and math, and a closer
education so that all students can achieve success. look at the data suggests opportunity gaps by race and
socioeconomic status have widened. Higher educa-
Today, our commitment to Tennessee students and tion institutions are not graduating enough students to
their success remains stronger than ever. Grounded meet workforce demands overall and are even further
in our mission, strengthened by our partnerships, and behind in increasing postsecondary attainment for stu-
led by student-focused priorities, we continue to boldly dents from historically underserved groups.
support innovative policies and practices that align with
our overall goals that: Importantly, as the education landscape is evolving so is
the labor market. As new jobs emerge and Tennessee’s
» All students receive an excellent public K-12
economy grows, our state’s approach must evolve to
education.
ensure our education systems are preparing students
» All students earn a credential or postsecondary for jobs that will enable economic independence and
degree of value that prepares them for a career choice-filled lives. We must better understand what the
enabling economic independence. data tell us about how students are moving through
these pathways, and we must use that information
» Economically disadvantaged students, students
to support all students — particularly those with the
of color, and rural students see improved success
highest needs — on pathways to earn degrees and cre-
across all goals relative to their peers.
dentials of value.
Through the tireless work of so many educators, pol-

On the pages that follow, you’ll find SCORE’s specific
icymakers, advocates, and community leaders, the
recommendations on how, together, we can expand
past 15 years have laid a strong foundation for sus-
Tennessee’s vision for student success and enter the
tainable improvement for students and for educational
next chapter of education transformations. Our 2024
change in our state. Tennessee has been a trailblazer
priorities are:
by championing student-centered strategies, setting
high expectations for students and educators, holding » Expand student opportunity by strengthening
systems accountable for student outcomes, and invest- foundational policies.
ing in research-backed initiatives to improve student
» Build effective pathways between education and
learning and preparation for careers. Ultimately, these
careers.
efforts have led to progress for students from kinder-
garten to the workforce. » Ensure K-12 supports meet student needs.
2024 State Of Education In Tennessee:

03 Building A Brighter Future
Senator
Bill Frist, MD
The work to build a brighter future for Tennessee stu- Our state’s approach
dents will take all of us, and it will be a continuous
journey. We have no doubt that with our shared advo- must evolve to
cacy efforts and clear focus, Tennessee will shape an ensure our education
education system that is aligned to the new realities of
our state’s labor market and gives students the oppor- systems are preparing
tunities they need and deserve. students for jobs that
Join us as we roll up our sleeves for the next phase of will enable economic
education transformation in Tennessee. independence and
choice-filled lives."
Sincerely,
Senator Bill Frist, MD David Mansouri

SCORE Chairman SCORE President
and Founder and CEO
David Mansouri

Building A Brighter Future 04
TheNEXT FRONTIERFor
TRANSFORMING EDUCATION
IN TENNESSEE
Tennessee is a leader in piloting and scaling efforts to strengthen student success.
Foundational strategies have been grounded in high expectations for educators, schools,
and students – from the time students enter the classroom to the time they receive a
degree or credential. This work is yielding demonstrated results for students. However,
while progress has been made, it is clear more needs to be done. Tennessee’s next
challenge is to expand its vision for education so that each student not only has the
opportunity to succeed in school but also has the opportunity to be prepared for a career
that enables economic independence.

Laying The Foundation phonics instruction, and all teachers are prepared
to teach those skills through their educator prepa-
For Success ration provider (EPP) coursework.1
Tennessee began its journey leading the nation in » K-12 student-based funding: With the 2022 pas-
education transformation after recognizing a failure to sage of the Tennessee Investment in Student
meet student needs in the early 2000s. State leaders Achievement (TISA) Act, the state moved to a stu-
took bold action to improve student outcomes, creat- dent-weighted K-12 funding formula that funds
ing a foundation of student-centered policies across school districts based on the specific needs of each
K-12 and postsecondary education. Tennessee’s foun- student.2 This shift from the previous resource-
dational policies include: based model ensures that more state dollars
flow toward districts with greater need, such as
» High expectations: Rigorous state-specific K-12 those with higher proportions of students from
academic standards establish high expectations low-income families and students living in rural
for students. Together with a multiple-measure communities. The formula also includes per-stu-
teacher evaluation system to support continuous dent direct funding to support key priority areas
improvement for educators and a statewide district such as early literacy and career and technical edu-
and school accountability system, these policies all cation (CTE), as well as outcome bonuses to reward
contribute to holding Tennessee accountable to districts when students achieve certain outcomes.
high expectations.
» Summer learning and tutoring: With the Tennessee
» Data monitoring: Administering statewide K-12 Learning Loss Remediation and Student Accelera-
assessments aligned to Tennessee’s academic tion Act, Tennessee pioneered efforts in statewide
standards at least once a year and publicly report- summer learning and tutoring programs for stu-
ing that data allow for monitoring of student dents, directing sustained investments toward both
progress. Further, the state created a system that initiatives.3
links data across sectors to begin understanding
how students move between K-12, postsecondary » Dual enrollment expansion: The state significantly
education, and the workforce. This information pro- expanded access to the Dual Enrollment Grant by
vides the basis for data-driven decision-making. allowing the grant to cover up to five courses for
students who maintain eligibility, extending eligi-
» Postsecondary education outcomes-based fund- bility for dual enrollment at Tennessee Colleges of
ing: Funding Tennessee’s colleges and universities Applied Technology (TCATs) to ninth and 10th grad-
based primarily on student outcomes, includ- ers (in addition to juniors and seniors), and lowering
ing credit accumulation and graduation rates, the ongoing cumulative GPA requirement from
established the expectation that institutions are 2.75 to 2.0.4
rewarded for results rather than only for enrolling
students. » Momentum year postsecondary education goals:
In response to notable drops in the state’s col-
» Access to postsecondary education: The expan- lege-going rate, the Tennessee Higher Education
sive suite of state scholarships available to students Commission (THEC) announced a 2023 momen-
— including Tennessee Promise, Tennessee Recon- tum year initiative with three primary goals to
nect, and the Dual Enrollment Grant — offers motivate improved outcomes.5 These goals were
financial assistance to reduce the cost of pursuing increasing the college-going rate, increasing
education beyond high school. adult enrollment in postsecondary education, and
improving alignment in education and workforce
These foundational policies created a strong base training.6
that proved critical as the COVID-19 pandemic cre-
ated chaos for education systems across the United Tennessee’s leadership in supporting student suc-
States. Tennessee responded swiftly with additional cess and putting students first is clear. As we move
student-centered policies and practices. These efforts into 2024, it is essential to closely monitor student out-
included: comes to build on prior efforts and push for the next
phase of improvements.
» Foundational literacy skills: The state legislature
passed the Tennessee Literacy Success Act to
ensure all students receive foundational literacy
skills instruction in the classroom, including explicit

As A Result Of State Efforts, Tennessee students made large gains on state assess-
ments in both English language arts (ELA) and math in
Student Outcomes Are the two years since the 2021 lows. Tennessee is one
Improving of the few states exceeding prepandemic ELA profi-

ciency levels, with ELA proficiency rates for all students
in grades 3-8 almost 3 percentage points higher than
Bold initiatives to improve student learning placed Ten-
the 2019 rate.9 Promisingly, a closer look shows that
nessee on the national stage. Data show the state’s
third-grade ELA proficiency, which has been a primary
third to eighth graders made some of the most growth
focus of recent policy changes, reached record highs
in math and reading scores between 2009 and 2015,
for all students in 2023. The math proficiency rate for
according to the National Assessment of Educational
students in grades 3-8 is still shy of the prepandemic
Progress (NAEP).7 When COVID-19 disruptions signifi-
high but did improve by almost 10 percentage points
cantly impacted student learning and caused dramatic
between 2021 and 2023. The recent gains across sub-
declines in achievement, education leaders in Ten-
ject areas indicate positive momentum, but with fewer
nessee responded with a renewed commitment to
than 40 percent of our state’s third to eighth graders
advance student learning for pandemic recovery and
reading and writing on grade level today and profi-
beyond.8 That commitment to accelerating student
ciency rates disproportionately lower for students of
learning is starting to pay off.
color, there is still much more progress to be made.
TENNESSEE HAS SEEN LARGE GAINS ACROSS SUBJECTS SINCE 2021, NEARLY CATCHING UP TO OR
SURPASSING PREPANDEMIC RESULTS
ELA MATH Grades 3-8 ELA

TCAP proficiency
+9.7 PTS for ELA and math,
40% +8.2 PTS
40.8% 2018-2023
36.6% 36.5% 38.1%
30% 33.9% 33.7% 35.1% 34.1%
Proficiency Rate
28.4% 28.4%
20%
Data Note: Due to
school closures and
10% assessment waivers,
data are not available
for 2020.
0%
2018 2019 2021 2022 2023 2018 2019 2021 2022 2023 Source: TDOE state-
level assessment data
Previous record-high proficiency rate downloads, 2023
THIRD-GRADE ELA PROFICIENCY RATES REACHED RECORD HIGHS IN 2023
TCAP grade 3 ELA

50% 49% proficiency rates
44% 44% 43% by student group,
40% 41% 2018-2023
40%
37% 37% 36%
Proficiency Rate
32%
30% 27% 27%
23% 24%
21%
20% 23% 22% 24%
21%
16% Data Note: Due to
10% school closures and
assessment waivers,
data are not available
0%
2018 2019 2021 2022 2023 for 2020.
Source: TDOE state-

All Students Black Students Hispanic Students White Students level assessment data
downloads, 2023

Postsecondary outcomes are improving as well. The
state’s college-going rate is rebounding from a pan-
demic low, marking progress toward the state’s
momentum year goal with a 1.5 percentage point
increase since 2021.10 Beyond college-going, moni-
toring the number of Tennesseans with some kind of
postsecondary education (i.e. postsecondary attain-
ment) is critically important for understanding how
many are prepared for success in the workforce.
Around 60 percent of the state’s jobs require some
kind of postsecondary education.11 Though not at the
60 percent mark, the state’s postsecondary attainment
rate continues to trend upward and reached 47.3 per-
cent in 2021.
TENNESSEE'S ATTAINMENT RATE CONTINUES TO INCREASE BUT REMAINS SHORT OF MEETING

WORKFORCE NEEDS
Percent Of Jobs Requiring A Postsecondary Degree Or Credential Percentage of

Tennesseans ages
60%
25-64 holding a
50%
degree or credential,
40%
47.3% 2009-2021.
Attainment Rate
30% 31.8%
Data Note: In 2014,
20%
workforce-relevant
certificates were
10% included in calculations.
In 2018, industry-
0% recognized certifications
2009 2010 2011 2012 2013 2014* 2015 2016 2017 2018* 2019 2020 2021 were included in
calculations.
Tennessee Attainment Source: Lumina Foundation

Stronger Nation Report, 2022
Still, The Path Forward For

Students Remains Challenging
Progress should be celebrated and is helpful in identify-
ing policies and practices that are working for students.
However, maintaining the state’s commitment to
improved student outcomes and a prepared workforce
does not mean being content with the current set of
policies and practices, particularly when not all students
have the supports needed to achieve success.

In Tennessee, proficiency rates are not equal across student groups.
White and noneconomically disadvantaged (non-ED) students
were larger drivers of the overall grade 3-8 student growth in the
past two years, reflecting widening opportunity gaps for students
of color and economically disadvantaged (ED) students. In 2023,
the White-Black and White-Hispanic ELA proficiency gaps grew to
23 percentage points and 19 percentage points, respectively. The
ELA proficiency gap between non-ED and ED students reached
24 percentage points in 2023. This trend is the same for math.12
Widening opportunity gaps illustrate that Tennessee is not doing
enough to serve students with the greatest needs.
ELA PROFICIENCY RATES DIFFER BY RACE AND INCOME, AND THOSE GAPS CONTINUE TO WIDEN
50% Grades 3-8 ELA

equity gaps by
40% 44% 44% student group,
19 PT 2023
23 PT GAP 24 PT
Proficiency Rate
35% 36%
30% 16 PT GAP GAP
22 PT GAP 22 PT
GAP
20% GAP 25%
21% 20%
19%
10% 13% 14%
0%
2021 2023
Source: TDOE state-

Economically Noneconomically level assessment data
Black Hispanic White
Disadvantaged Disadvantaged downloads, 2023
Opportunity gaps for students also persist into post- gaps including lack of academic preparation in K-12 and
secondary education. Despite steady progress across financial pressures.14 To ensure every Tennessean has
groups, Black and Hispanic Tennesseans are far less the opportunity to be prepared for a career that enables
likely to hold a postsecondary degree than White Ten- economic independence and to fulfill economic needs,
nesseans.13 A variety of factors may contribute to these the state needs to better support students of color.
TO MEET WORKFORCE NEEDS, TENNESSEE MUST BETTER SUPPORT HISTORICALLY

UNDERSERVED POPULATIONS
50% Percentage of
Tennesseans ages
39.6% 41.9%
40% 34.5% 35.1% 36.0% 36.7% 37.2% 37.9% 38.5% 25-64 holding a
32.9% 33.4% 33.8% 40.3% degree by race/
37.0% 38.7%
Attainment Rate
33.8% 34.3% 34.7% 35.7% 36.7% ethnicity,

30%
31.8% 31.9% 32.1% 33.3% 2009-2021
29.2% 30.8%
25.2% 25.6% 26.0% 26.6% 27.7% 28.4% 28.4%
20% 22.6% 23.3% 24.5% 23.8%
20.7% 21.2%
17.9% 17.2% 18.5% 18.8%
10%
14.5% 15.3% 15.5% 16.6% 16.7% Data Note: Degrees
include graduate or
professional degrees,
0% bachelor's degrees,
2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2021 and associate degrees
Source: Lumina
Overall Black Hispanic White Foundation Stronger
Tennesseans Tennesseans Tennesseans
Nation Report, 2022

Tennessee’s current K-12 and postsecondary education more alarming. Only 15 percent of Black students and 16
systems create a leaky education pipeline for students, percent of Hispanic students who started high school
particularly those with the highest needs. Only 26 per- in 2012 went on to enroll in college and earn a postsec-
cent of Tennessee students who started high school in ondary degree or credential by the summer of 2022.
2012 went on to attend college and earn an award by The pipeline from K-12 through postsecondary edu-
the summer of 2022 (within six years of them graduat- cation — and ultimately to the job market — is broken,
ing high school). When conducting the same analysis losing too many Tennesseans along the way who want
for students of color in that cohort, the number is even and deserve better opportunities.
ONLY ONE-QUARTER OF HIGH SCHOOL STUDENTS SUCCESSFULLY NAVIGATE THE

POSTSECONDARY PIPELINE
Longitudinal trajectory
Started High School
100 for students starting ninth
In 2012
grade in 2012 through the
postsecondary education
Graduated High School
By August 2016
87 13 pipeline
Data Note: High school graduates

Enrolled In were identified using TDOE
Postsecondary Fall 2016 57 30 Accountability protocol: those who
received a regular or alternate
diploma before the end of Summer
Enrolled In 2016. Postsecondary enrollment
Postsecondary Fall 2017 45 12 and completion rates calculated
using THEC, TICUA, and NSC
data; awards data do not include
Earned Award By out-of-state NSC data, industry-
Summer 2022 26 19 recognized credentials, nondegree
credentials, or military enlistments,
0 100 so the true metric is likely higher
than that shown by available data.
Percent Of Initial Subsequent Enrollment Source: P20 Connect aggregate data request, 2023. Data
Cohort Data Not Available have been reviewed by THEC, TICUA, and TDOE.
STUDENT SUCCESS FROM HIGH SCHOOL ENTRY TO POSTSECONDARY GRADUATION VARIES

BY STUDENT GROUP
Percent Of Initial Cohort Successfully Earning Postsecondary Award Longitudinal trajectory

for students starting ninth
grade in 2012 through the
Overall 26% postsecondary education
pipeline by race/ethnicity
Other Students 37% Data Note: Race/ethnicity from TDOE

variable in P20 TN Connect. Overall
category is created combining all
subgroups including those listed
White Students 30% specifically. The "Other Student" group
includes race ethnicity categories
Asian, American Indian or Alaska Native,
Native Hawaiian or Other Pacific
Hispanic Students 16% Islander, and missing or unknown.
There were no missing or unknown
categorized students reported outside
of the initial cohort data.
Black Students 15%
Source: P20 Connect aggregate data
0% 10% 20% 30% 40% request, 2023. Data have been reviewed
by THEC, TICUA, and TDOE.
The transformative changes to the state’s education need to both strengthen existing systems and imple-
system up to this point are not yet fully supporting ment promising new initiatives to better meet the
achievement for all students. As Tennessee approaches needs of all students.
its next frontier of education transformation, there is a

» New businesses are flocking to Tennessee, and
The Education And Economic existing businesses are flourishing. At the begin-
Landscape Is Evolving ning of 2023, there were over 20,000 new business
filings in the state and almost 200,000 business
In evaluating areas for improvement in Tennessee’s renewals — both of which are at a record high.19
education system, it is critical to recognize the new
education and work landscapes. For example, post- » The significant economic growth Tennessee has
secondary education can offer students a path toward experienced since the pandemic may slow. The
a choice-filled life, but only if it’s connected to career state’s economic growth is expected to remain
opportunities. And Tennessee’s labor market is chang- positive, with an overall outlook more optimistic
ing. Consider the following: than national estimates.20 However, economists
project the growth will decelerate, suggesting
» Job opportunities are shifting. Between 2019 and that postsecondary degrees and credentials with
2022, 8.6 million workers changed jobs across the employer value will be even more important for
United States labor market — a 50 percent increase individuals navigating the job market.21
from the previous three years.15 Projections esti-
mate 12 million more occupational shifts through To prepare Tennesseans for jobs enabling economic
2030.16 independence, the education system must better
align and respond to the labor market. This alignment
» There are not enough educated Tennesseans to and ability to adapt to the workforce is essential for
meet employer needs. There are 56 available work- students. Tennesseans with postsecondary training
ers for every 100 jobs in the state.17 Further, almost valued by employers qualify for a larger portion of the
70 percent of Tennessee business leaders surveyed state’s jobs, show greater resilience in the job market
in 2023 indicated there are not enough appropri- during economic downturns, and experience greater
ately trained workers to meet their employment earnings throughout their lifetime.
needs.18
COLLEGE GRADUATES, ON AVERAGE, EARN 1.5 TIMES

MORE THAN HIGH SCHOOL GRADUATES
$60K
Median Salary Five Years After Completion
$50K
$51,757
$48,417
$40K $43,893
$30K $33,858
$20K
$10K
$0K
High School TCAT Community Four-Year
Graduates Graduates College Graduates
Graduates
Median full-time wages five years after completion

by degree type for 2015-16 graduates. High school
graduates reflects 2015-16 high school graduates
with no additional postsecondary enrollment. All
other categories reflect 2015-16 degree completers.
Source: P20 Connect, 2022

Recent innovations are starting to better connect
what students learn in the classroom to what
employers need in the workforce. K-12 innovative
school model grants were awarded by the state in 2021 With this context in mind, SCORE
and 2023 to build up programs that prepare students recommends three priorities to drive
for the jobs of today and tomorrow, and CTE direct the state’s efforts forward in 2024:
funding through TISA is meant to sustain the programs
most beneficial for students.22 In postsecondary edu-
cation, the state has greatly expanded access to the
Dual Enrollment Grant at TCATs, and community col-
1 Expand Student
Opportunity By
leges are piloting initiatives to increase student access
to career advising and workforce-relevant certificates Strengthening
in their first semester.23 In addition, employers are
partnering with high schools and universities to pio-
Foundational Policies
2
neer programs that lead to in-demand, high-wage job
opportunities.24 These innovations are essential in an
ever-changing labor market but are neither expansive
Build Effective
nor comprehensive enough to support all students. Pathways Between
A strategic alignment across education and the
Education And Careers
3
workforce is necessary to build a brighter future for
Tennessee students and prepare them for success in a
rapidly evolving economy. Systems must be intention-
Ensure K-12 Supports
ally designed around this connection. In Tennessee’s Meet Student Needs
next phase of education transformations, the end goal
cannot just be students earning a degree or creden-
tial but instead must be students earning a degree or
credential that specifically leads to economic indepen-
dence. Every Tennessean deserves the opportunity to
gain the education and skills needed to succeed in a
career and live a choice-filled life.

A BRIGHTER FUTURE
Building

2024 Priority
EXPAND STUDENT OPPORTUNITY
BY STRENGTHENING
FOUNDATIONAL POLICIES
A willingness to continuously improve characterizes nor is it effective, to rely on decades-old policy and
good leadership. As a national education policy leader, practice to serve students, particularly when we know
Tennessee must consistently work to meet the evolv- that efforts thus far have not yet advanced student out-
ing needs of the state and its students. It is not logical, comes to where they need to be.
QUESTIONS TO GUIDE MEANINGFUL IMPROVEMENT
When revisiting foundational policies, there are several key student-centered questions
state leaders should be asking to drive continued improvement:
 What student outcome did this policy intend to impact? Do data show that outcome
has changed since implementation of the policy? Is that outcome still the primary
outcome we hope to impact?
 How does this policy impact student success in education, career, and life? Are
students experiencing meaningful gains as a result of this policy? Do we have the
data needed to answer these questions?
 Were there any unintended consequences of this policy? If so, how could those
consequences be addressed?
 What do students, parents, and educators say about their experience with this
policy? Are any components of the policy creating barriers to student success?
 What has changed in our community, state, or country since the first implementation
of this policy? Is the policy meeting the need of today’s students?

While there are many areas where Tennessee’s edu- GREATER TOGETHER:
cation policy leadership is evident, three deserve A DATA-DRIVEN PARTNERSHIP
particular attention in the months ahead: longitudinal
data, Tennessee Promise, and outcomes-based fund-
Greater Together Clarksville is a data-driven
ing. The state can celebrate its success across data,
partnership aimed at supporting students as
postsecondary access, and postsecondary completion
they navigate the transition from K-12 to post-
while also embracing the opportunity to strengthen
secondary education. Working collaboratively,
these nationally recognized policies. We must commit
the Clarksville-Montgomery County School Sys-
to the important process of evaluating where these
tem (CMCSS) and its three local partner colleges
efforts are not meeting their full potential and making
and universities — Austin Peay State University
the necessary adjustments.
(APSU), Tennessee College of Applied Tech-
nology-Dickson (TCAT-Dickson), and Nashville
As a state dedicated to continuous student-centered
State Community College (NSCC) — along with
improvement, Tennessee should consider the following
tnAchieves, developed an innovative data-shar-
in its next wave of reforms:
ing agreement (also known as a memorandum of
understanding, or MOU) in October 2021. Each
1. Prioritize the use of longitudinal data to drive
partner put in substantial efforts to develop the
student outcomes.
MOU, and those efforts paid off. The agreement
enabled each of the five entities to securely share
2. Enhance the Tennessee Promise scholarship
student-level data, set goals, monitor key indica-
and the community college student experience.
tors of postsecondary success, and ultimately
remove barriers to student success.
3. Revise the postsecondary outcomes-based
funding formula to prioritize long-term student
tnAchieves manages a dashboard of informa-
success.
tion for each institution to monitor the progress
of Tennessee Promise-eligible students through
key milestones such as FAFSA completion,
submission of applications, and enrollment in
Tennessee’s longitudinal data summer bridge programs. The dashboard of
system holds a wealth of each postsecondary institution is populated

with data on CMCSS seniors who indicated an
information about students’ intention to attend that college on their Prom-
progress through classrooms ise applications. This information helps partners

quickly intervene to ensure that seniors success-
to careers but is not easily fully transition to postsecondary education and
accessible. also supports longer-term efforts to refine pro-

gramming and supports. For example, colleges
may reach out to students who have not com-
Data are foundational for good decision-making.25 Stu-
pleted parts of the application process, and any
dents and families deserve access to data in order to
student enrolled in a college but not signed up
understand which educational opportunities lead to
for a summer bridge program by the deadline
high-wage careers. School leaders need data to know
will get a personal phone call from their high
which K-12 opportunities jumpstart students on the
school’s college counselor.
path to postsecondary education and the workforce
and to see where opportunity gaps exist. Employers
At the crux of the initiative is meaningful data
require data to understand which education pro-
sharing. Regularly collaborating over real-time
grams can provide them with the talent they need.
and straightforward data access enables part-
And all groups need a line of sight into the connec-
ners to refine programming to strengthen
tion between educational opportunities and emerging
student readiness and postsecondary success.
careers to understand how to support students on
Greater Together Clarksville exemplifies the
their paths through school to the workplace. For the
promise of an MOU to bridge data gaps between
power of data to be fully realized, data must be acces-
K-12 and postsecondary education and plug
sible and presented in ways that are meaningful to and
holes of the often-leaky education pipeline. Facil-
actionable for key stakeholders. In meeting that need,
itating the development and approval of MOUs
Tennessee is behind.
would allow more innovative partnerships like
Greater Together to thrive.

Longitudinal data systems are key to effective state- Services (DHS).28 As a result, TN DATA includes a range
level data efforts. A statewide longitudinal data system of metrics such as state assessment results, demo-
(SLDS) connects data over time to offer insight into stu- graphics, wages, unemployment claims, and receipt of
dents’ education-to-work journeys and identify trends benefits. The securely linked data, housed by the state’s
that inform decision-making. As a state committed to Office of Evidence and Impact (OEI), can be used to
data collection and monitoring, Tennessee established evaluate the impact of state investments and better
its SLDS leadership in 2012 with the development of the understand the connections between education and
Tennessee Longitudinal Data System, known as P20 work in Tennessee.
Connect TN, to link student-level information across
education, workforce, and social services sectors.26 That Despite the existence of a wealth of information within
leadership continues today. In 2023, the state estab- TN DATA, that information is not easily accessible to
lished Tennessee’s Data Analytics for Transparency and those outside of state agencies, including those work-
Accountability system (TN DATA), a new cloud-based ing most closely with students. Of the 40 states with a
longitudinal data hub designed to better leverage the longitudinal data system in place, Tennessee is one of
data at scale.27 only three without a public-facing website for its sys-
tem.29 Instead, Tennessee’s system is leveraged mainly
Many partner agencies across the state contribute by internal state analysts and academic researchers
data to the longitudinal system, including the Tennes- who go through a months-long formal research request
see Department of Education (TDOE), the Tennessee process to access the data. Academic research is one
Higher Education Commission (THEC), the Tennessee important use for Tennessee’s longitudinal data system,
Department of Labor and Workforce Development but it does not reflect its full potential.
(TDLWD), and the Tennessee Department of Human
LONGITUDINAL DATA PROVIDE INSIGHT INTO STUDENTS’ PATHS FROM EDUCATION TO THE
LABOR MARKET
Demonstrate how
data can inform Determine key
policy and funding readiness indicators
that drive outcomes to support student
and support more success
Tennesseans K-12
to economic
independence
Goal: Support students

and families to make Higher
Policymakers
informed education Education
and life decisions
Leverage data to Demonstrate

create a feedback workforce outcomes
loop with education of graduates more
and strengthen the Employers
clearly
workforce

SCORE recommends prioritizing the use of longitudi-
nal data to drive student outcomes.
» Create public-facing dashboards. OEI should cre-

ate data dashboards that give the public a powerful
tool for understanding student progress through
K-12, postsecondary education, and careers. For
instance, these dashboards should include informa-
tion such as how many students who concentrate
in CTE go on to an aligned postsecondary program
or career, as well as wage outcomes for students
based on the degree or credential earned.
» Add career-relevant information to the TN DATA

system. Requiring TDLWD to collect Standard
Occupational Classification (SOC) codes, the rec-
ognized classification system for occupations in
data systems, and add them to the TN DATA hub
would facilitate connections between postsecond-
Tennessee has the basis for data-driven decision-mak- ary opportunities and particular jobs.
ing in place but needs to take the next steps to make
data more usable in ways that can support student » Bolster the state’s TN DATA efforts. Elevating
success. Without access to data that is linked across and expanding existing longitudinal data efforts
sectors, it is difficult for schools, districts, and post- through state law will help establish a shared vision
secondary institutions to develop supports that drive for data access and use and ensure that vision per-
lifelong student success and to know whether their sists over time. Further, THEC should launch a data
efforts are having the intended results. Likewise, it’s working group made up of OEI, the Tennessee
hard for employers to understand how to strengthen Board of Regents (TBR), TDOE, and the Tennessee
partnerships with education entities in order to provide Independent Colleges and Universities Association
students with opportunities to gain skills for rewarding (TICUA) to codevelop a model data-sharing MOU
career opportunities. The state can strategically share for high schools, postsecondary institutions, and
aggregate data with communities, institutions, and student support organizations to use as a template.
employers to drive decision-making, while maintain- A model agreement could streamline the develop-
ing all important privacy and security requirements. ment of data-driven partnerships across the state
and ensure longitudinal data are more consistently
What does it look like to make this kind of data acces- leveraged to support student success.
sible and effectively use it? To answer this question,
Tennesseans can look to two other states in our region:
Kentucky and Virginia. Kentucky’s Center for Statis-
tics (KYSTATS) creates a postsecondary feedback
report to monitor student employment outcomes by
postsecondary institution, major, credential type, and
demographics. The Virginia Office of Education Eco-
nomics (VOEE) offers an education and workforce
alignment dashboard that allows users to compare
education programs to workforce needs at the regional
level.30 Both of these examples are tools Tennessee
could and should create.
While highlighting critical data needs will be a through

line to this report, the following recommendations
focus specifically on strengthening the state’s longitu-
dinal data efforts. By facilitating secure data sharing and
creating public-facing dashboards that examine the
education-to-work pipeline, Tennessee could unlock
the power of longitudinal data in driving education
transformation to better serve students.

Tennessee Promise paved the JUST OVER ONE-THIRD OF TENNESSEE PROMISE
STUDENTS EARN AN AWARD BY THE END OF
way in expanding college access, SEMESTER SIX
but students still struggle
to successfully navigate the
Percentage Of Promise Recipients
postsecondary experience. 2015 35.5% 15.9% 48.6%
Cohort Fall Enrollment Year

Tennessee Promise is a last-dollar scholarship that cov- 2016 34.9% 15.7% 49.4%
ers the remaining cost of tuition and fees at community
and technical colleges for Tennessee high school
2017
graduates after other grant aid is applied. Tennessee 34.1% 15.2% 50.6%
became the first state to provide statewide tuition-free
access to community and technical colleges when the 2018 34.3% 13.3% 52.4%
General Assembly established Tennessee Promise in
2014.31 Since then, at least 19 other states have followed 2019 34.5% 12.9% 52.7%
Tennessee’s lead and launched similar programs.32
0% 100%
Tennessee Promise is a landmark policy for expanding
Award Still Enrolled, Dropped
postsecondary access and providing coaching support Earned No Award Out
for students. The introduction of Tennessee Promise
resulted in an initial surge of enrollment and an increase Tennessee Promise student outcomes by cohort
to the state’s college-going rate for high school grad- enrollment year by semester six of enrollment,
uates of almost 10 percent. 33 Further, Tennessee 2015-2019
Promise is not only a scholarship but also a mentor- Source: THEC Tennessee Promise Annual Report, 2023
ing program.34 The program’s partnering organizations,
tnAchieves and the Ayers Foundation Trust, are respon-
sible for assigning students to mentors who help them
through key milestones (like college applications and
the financial aid process) across K-12 to postsecond- Not only are the majority of Tennessee Promise stu-
ary education.35 Since 2018, partnering organizations dents not earning a degree or credential, the majority
also offer students more proactive coaching to support are also not transferring to four-year institutions. Fewer
retention and completion once they are enrolled in a than 20 percent of Promise students in the 2019 cohort
community or technical college.36 transferred to a university after enrolling in a commu-
nity college.39 Data show that students who complete
While Tennessee Promise increased postsecondary an associate degree designed for transfer but do not
access for Tennessee students, it has not gone far actually transfer experience lower median wages than
enough in supporting completion — suggesting its those who complete a traditional associate degree.40 As
return on investment is not what it could be. Only 34.5 such, Promise students who intend to transfer to earn
percent of Promise students in the 2019 cohort earned a bachelor’s degree but do not may be disadvantaged
a degree or credential within six semesters, by which when looking for jobs compared to those who intended
point students were past the five-semester eligibility to earn an associate degree.
limit for the scholarship.37 Moreover, with only 27 per-
cent of community college students overall, 12 percent Though completion and transfer rates are not where
of Black community college students, and 23 percent they should be, there is enormous potential for Ten-
of Hispanic community college students graduating nessee Promise to drive improved graduation rates.41
within three years, outcomes are not where they need Research finds that grant aid positively impacts per-
to be across the board.38 With even more career oppor- sistence and degree completion. 42 The value of
tunities today hinging on postsecondary education, it is monetary support is evident through the early results
essential that more community college students, Prom- of Promise completion grants, which can be accessed
ise students included, are able to successfully navigate by Tennessee Promise students who participate in the
their postsecondary experience. coaching program and experience financial need.43 The
completion grants pilot program serves to remove bar-
riers to postsecondary success by assisting students
with costs outside of tuition and fees.44 There are five

categories of costs covered by the completion grants enrolled following their first year than their peers not
pilot: food, housing, transportation, books/supplies, and involved in the coaching program.47 Black students who
class-specific fees.45 received a grant and coaching experienced an even
larger impact, being 41 percent more likely than their
In the Fall 2022 Promise cohort, 1,821 students received peers to stay enrolled.48 A relatively small per-student
one or more completion grants from tnAchieves, with investment through these grants is yielding a mean-
an average of $124 awarded per grant.46 An analysis ingful impact. However, when the pilot program ends
found that students who received the grant in addi- students will no longer benefit from these grants with-
tion to coaching were 34 percent more likely to remain out sustained support.
COMPLETE GRANTS AND COACHING SHOW LARGE PAYOFF FOR STUDENTS
First-To-Second Year Retention Rate First-to-second year

retention rates for Fall
2022 TN Promise eligible
67% students at community
All Students colleges based on 14th day
34% More Likely enrollment by COMPLETE
50% To Stay Enrolled grant and coaching status,
by student group
58%
Black Students
41% More Likely
41% To Stay Enrolled
Data Note: To receive a COMPLETE
0% 10% 20% 30% 40% 50% 60% 70% grant, students must be Pell-eligible;
all comparison groups depicted
represent Pell-eligible students.
COMPLETE Grant No COMPLETE
Recipient, Coached Grant, Not Coached
Source: tnAchieves data request, 2023
National research also reveals that community college

students often find the path to graduation unclear.49
A lack of clear information about what courses and
programs a student needs to reach their career goals
creates barriers to earning a degree or credential val-
ued by employers.50 Meta-majors, or career clusters of
related majors in a broad subject area, are one strategy
to outline a clear path toward graduation and a career.51
However, a 2023 report found that less than half of Ten-
nessee’s community colleges operate meta-majors at
scale.52 Students could more effectively navigate com-
munity college if all institutions outlined clear pathways
aligned with student interests and aspirations.53
The state has the opportunity to further improve

Tennessee Promise and the community college expe-
rience by prioritizing completion and grounding the
work in a goal of ensuring every student earns a post-
secondary degree or credential that prepares them
for a successful career. As the landmark scholarship
approaches its 10th year, Tennessee can be a national
leader again by reexamining the program to identify
ways to maximize its positive impact on the lives of
Tennesseans.

SCORE recommends enhancing the Tennessee Prom-
ise scholarship and the community college student
experience.
» Incentivize on-time completion and transfer for

Tennessee Promise students. The General Assem-
bly should update statute to allow Promise students
who earn an associate degree on time to continue
receiving their last-dollar scholarship for their first
semester pursuing a bachelor’s degree or pursu-
ing another stackable postsecondary opportunity
at a community or technical college. As Promise
students are eligible for the scholarship for five
semesters, this shift would ensure all students While the outcomes-based
can receive their fifth semester of the scholarship,
incentivize on-time associate degree completion,
postsecondary funding formula
and support transfer to four-year institutions for is a nationally recognized state
students hoping to earn a bachelor’s degree.
policy, it could go further to
» Make Tennessee Promise completion grants ensure student success.
permanent. Completion grants are having a big
impact on student outcomes. By making the pilot Tennessee was the first state to systemically incen-
program permanent, policymakers can make these tivize postsecondary outcomes through funding.54 In
supports a completion-focused pillar of the Tennes- 2010, Tennessee adopted an outcomes-based post-
see Promise program. secondary funding formula to award the majority of
state appropriations via outcomes — a model the state
» Scale meta-majors across the state’s community continues to use today.55 With over 80 percent of state
colleges. TBR should ensure every community dollars awarded based on outcomes, Tennessee is one
college is operating meta-majors at scale. Upon of only five states that awards more than 25 percent of
selecting a meta-major, students should be appropriations for colleges and universities based on
arranged into cohorts that include a first-year student outcomes.56 The outcomes-based funding for-
schedule that fulfills all their core requirements. mula was and remains an important model that goes
Each meta-major should also articulate its align- beyond postsecondary access to prioritize completion.
ment to K-12 CTE career clusters and dual
enrollment courses, as well as high-wage, in-de- Though outcomes-based funding is an innovative com-
mand degrees and credentials. pletion-focused policy, the model has had a limited
impact on student outcomes on the whole.57 Tennes-
» Publicly report data on the postsecondary pro- see-specific research found that the adoption of the
grams of study Tennessee Promise students formula did not significantly impact degree earning
choose to pursue. To better understand if students overall.58 There was some increase in the production
are pursuing paths aligned to high-wage, in-de- of shorter-term certificates at community colleges, and
mand career paths, the Tennessee Promise annual outcomes for full-time students at all postsecondary
report should include information on which post- institutions were more promising than those for part-
secondary opportunities students are pursuing. time students.59 While the research suggests an ability
THEC should also produce a Promise student dash- for the state’s outcomes-based funding formula to drive
board alongside the report to make key student improved student outcomes, it has not accomplished
experience and outcome data more accessible to those improvements across the board.
the public. These data can inform career-focused
mentoring and coaching efforts, as well as contin- Tennessee’s student outcomes clearly have room for
uous improvement to the program. improvement. Today, only one in every four first-time
full-time freshmen graduate from community college in
three years, and only three in every five graduate from
a university in six years.60 These outcomes also differ
greatly across student racial and gender groups. For
example, males enrolled in community college experi-
ence lower graduation rates than females across racial
groups, with the lowest rates for Black males.61

POSTSECONDARY GRADUATION RATES ACROSS SECTORS HAVE ROOM FOR IMPROVEMENT
Community College (Three-Year Rate) Four-Year Universities (Six-Year Rate) 150-percent time
80%
to completion
rate for first-
68% 70% 69% time, full-time
70% 66%
62% 65% freshman (FTFTF)
60% at community
58% 59% 60% 58% colleges and four-
50%
56% 56%
Completion Rate
year universities
47% 48% 47% 46% by student group,
40% 46%
41% Fall enrollment
30% 27% 2011-2016
26%
22% 23%
20% 17% 18%
20% 20% 23%
18%
10% 13%
11% 10% 12%
5% 6% 8%
0% 4%
2011 2016 2011 2016
Source: THEC Fact
Fall Enrollment Year Book, 2023. 150-percent
completion rates for
community colleges were
Black Students Hispanic Students White Students retrieved through a data
request to THEC.
BOTH GENDER AND RACIAL COMPLETION GAPS EXIST AT COMMUNITY COLLEGES, WITH ONLY ONE
IN 10 BLACK MALE STUDENTS GRADUATING IN 2022
40% 150-percent time to

completion rates for
community college
Three-Year Completion Rate
30.7%
30% students by race and
24.7% 26.3% 25.9%
gender, 2019 entering
19.3% 19.4% cohort
20%
14.0%
10.3% Data Note: The "Other
10%
Students" race category
includes American Indian
or Native Alaskan, Native
0% Hawaiian or Pacific Islander,
Black Students Hispanic Students Other Students White Students
and Two or More Races
Female Male Source: TBR student graduation

rates dashboard, 2023
Bold improvements to the outcomes-based funding colleges; and while universities have both a gradua-
formula could better align institutional incentives to stu- tion rate and degrees per 100 full-time equivalent
dent success. It is time for the state, THEC, and THEC’s (FTE) metric, there is no recognition for on-time uni-
formula review committee to look under the hood versity completion. Further, the premium that awards
to perform a more comprehensive evaluation of the more dollars based on the type of degree or creden-
formula’s components.62 For example, the dual enroll- tial earned only applies to high-need STEM fields,
ment metric remains focused on enrollment rather than excluding in-demand fields such as management and
outcomes; the credit accumulation metric represents architecture, which have some of the highest median
progress toward but not earning of a degree or creden- entry-level wages in the state.63 Finally, there is currently
tial; there is no graduation rate metric for community no explicit consideration for high-wage fields.

Tennessee must take steps to shift the formula metrics to reflect the outcomes
of highest importance for the state and its students and to incentivize paths
toward careers that enable economic independence.
OUTCOMES-BASED FUNDING FORMULA METRICS
Community Colleges Universities

Students Accumulating 12 Hrs. Students Accumulating 30 Hrs.
Associate Degrees Bachelor’s And Associate Degrees
Long-Term Certificates Masters/Ed. Specialist Degrees
Short-Term Certificates Doctoral/Law Degrees
Dual Enrollment Research, Service, And
Sponsored Programs
Job Placements
Six-Year Graduation Rate
Transfers Out With 12 Hrs.
Degrees Per 100 FTE
Workforce Training/Contact Hours
Awards Per 100 FTE
As the first state to adopt outcomes-based funding, streamlined, such as metrics for credit accumula-
Tennessee can set an example of stepping back to tion and degrees per 100 FTE. If certain metrics are
evaluate opportunities for significant improvement removed, it may create space for the addition of
and boldly moving forward with new approaches. other metrics, such as three-year graduation rates
Success will require setting an updated vision for the for community colleges.
formula that is in line with state priorities, holds insti-
tutions accountable for outcomes most beneficial for » Ensure all formula metrics are based on student
students, and prioritizes workforce alignment. The state outcomes. The dual enrollment metric is currently
should not pass up this opportunity to build on its prior the only formula metric based solely on enrollment.
work to craft a formula that reflects the importance of The bar should be raised to only reward dual enroll-
a future where all students earn a degree or credential ment when students take at least 12 credits that
that enables economic independence. apply toward program-of-study requirements, the
equivalent to one full-time semester.
SCORE recommends revising the postsecondary out-
comes-based funding formula to prioritize long-term » Ensure the outcomes-based funding premium
student success. structure is aligned to student opportunity.
To start, the outcomes-based funding formula
» Refine the focus of the formula metrics. The out- review committee should discuss expanding the
comes in the funding formula should accurately high-need premium beyond solely STEM fields
reflect the most important state priorities for stu- and adding a high-wage premium. In the future,
dent success. As the state takes the first steps to THEC should explore how to continue aligning the
revise the formula, the statutorily required out- formula to career paths that enable economic inde-
comes-based funding review committee should pendence for students.
consider which metrics could be removed or

A BRIGHTER FUTURE
Building

2024 Priority
BUILD EFFECTIVE PATHWAYS
BETWEEN EDUCATION
AND CAREERS
Education is the foundation for preparing students for The new future of student success hinges on improved
careers. More than half of jobs in Tennessee require alignment across education and careers. To improve
education beyond high school.64 But with postsec- alignment and build effective pathways between edu-
ondary attainment rates currently at 47.3 percent, the cation and careers, Tennessee should:
state is not fully meeting economic needs.65 Further, the
need for an educated and well-prepared workforce is 1. Give Tennesseans clear information on which
only intensifying in Tennessee. Jobs that enable eco- degrees and credentials lead to careers.
nomic independence are increasingly shifting toward
individuals with more education and skill, and rapid 2. Identify and incentivize quality early postsec-
increases in job openings in the past three years have ondary and career experiences for students.
resulted in a severe shortage of qualified workers.66
3. Develop strong partnerships across education
For Tennesseans, a high school diploma alone will not and industry to increase alignment.
secure a job that leads to long-term economic inde-
pendence.67 Students need some kind of education
beyond high school, which can range from an indus-
try credential to a degree. A 2023 study estimated that
Tennessee students experienced a 14.5 percent return
In a growing landscape of degree
on investment for the time and money spent on earn- and credential opportunities,
ing a bachelor’s degree and a 9.5 percent return for
earning an associate degree.68 Nondegree creden-
there is limited available
tials, such as certificates and certifications, can also information to understand which
lead to higher rates of employment and higher median
incomes for adults.69 On a whole, postsecondary edu-
opportunities are of highest value.
cation leads to increased earnings and sets students
The credential marketplace in the United States is
up for a choice-filled life, but degrees and credentials
growing. There are now more than one million unique
must be connected to career paths with high-demand,
degree and credential opportunities available for stu-
high-wage jobs.
dents, an increase of 46 percent since 2019.70 These
opportunities include degrees, licenses, badges, cer-
Education and work are becoming increasingly inter-
tificates, and microcredentials, among others, and can
connected. However, the paths between educational
sometimes stack upon one another to help students
opportunities and careers are murky, and not all
progress through their careers.
opportunities offered across the state effectively help
students progress toward economic independence.
The entities offering credential opportunities vary
from traditional colleges and universities to nonaca-
demic providers (including employers themselves) to

massive open online course (MOOC) providers, with Colleges of Applied Technology (TCATs) do report non-
data collection and reporting varying across these enti- credit program data and community colleges report
ties. Postsecondary institutions generally report more some noncredit workforce training information to the
data on participation and outcomes than other provid- Tennessee Higher Education Commission (THEC), this
ers. However, they still do not report comprehensive reporting does not capture all programs and not all
data on courses that do not count for college credit, data are publicly available. With so many options and
even though estimates suggest that over 40 percent varying levels of data availability, it is not always clear to
of community college students are enrolled in non- employers and students which opportunities lead to a
credit programs and many noncredit programs offer career that enables economic independence.
targeted training for employers.71 Though Tennessee’s
STUDENTS NAVIGATE A COMPLEX MAZE OF DEGREES AND CREDENTIALS WITH CURRENTLY OVER
ONE MILLION UNIQUE OPPORTUNITIES AVAILABLE
700,000 Number of
degrees and
656,505
600,000
549,712 credentials offered
Number Of Credentials Offered
by providers,
500,000 2019-2022
Postsecondary
Data Note: MOOC
400,000 370,020 refers to massive
359,713 350,412 Education
Institutions open online courses.
300,000 Secondary school
315,067 counts include high
MOOC
Providers school diplomas,
200,000 alternative certificates
Nonacademic from secondary
100,000 Providers schools, and high
46,202 48,919 56,179 school equivalency
7,132 9,390 13,014 Secondary credentials.
0 Schools
2018 2021 2022 Source: Credential
Engine, 2023
Availability of postsecondary opportunities is important, associate degree holders earn the same or less than
but not all opportunities yield meaningful economic some individuals with only a high school diploma. To
returns. The lifetime earnings of individuals vary largely, ensure students are investing their time and money
and there is overlap in the salary ranges by level of effectively, they need information on which degrees
education.72 For instance, this overlap means some and credentials lead to economic independence.
DUE TO WIDE VARIATION IN EARNINGS BY EDUCATION LEVEL, IT IS CRITICAL FOR STUDENTS TO HAVE
INFORMATION ON QUALITY DEGREES AND CREDENTIALS
$1,288,968
Less than high school Lifetime
$1,586,328 Median Lifetime Earnings
earning
High school diploma / GED ranges for
$1,862,353 Tennesseans
Some college
by highest
$2,121,888
Associate degree
educational
$2,696,176 attainment
Bachelor's degree
$2,858,522
Master's degree
$3,882,126
Doctoral degree
Source:
$4,741,620 Georgetown Center
Professional degree
on Education and
$0 $2,000,000 $4,000,000 $6,000,000 $8,000,000 $10,000,000 $12,000,000 the Workforce, 2023

Further, evaluating the economic returns of a post- prospective student that an opportunity is worth pur-
secondary degree or credential is not a simple task. suing when the largest benefit is experienced 10, 20, or
Research shows that the return on investment of a even 30 years in the future — especially when the data
postsecondary degree widens at midcareer. As such, we have are limited to start with. Additionally, students
evaluating earnings immediately after graduation may do not always earn just one credential. Many students
not be the best time to understand the full scope of stack credentials, earning multiple throughout their life-
postsecondary education’s impact on an individual’s time to impact their earnings and career opportunities
economic standing. It is difficult to communicate to a at multiple career stages.
COLLEGE-EDUCATED WORKERS IN TENNESSEE EARN MORE THAN HIGH SCHOOL-EDUCATED WORKERS,

AND THAT GAP GROWS THROUGH MID-CAREER
$50,000
Annual Income Relative To A High School
$40,000
Graduate (2022$)
$30,000 Earn $40K more

with a bachelor’s
than a HS diploma
Earns almost at age 44
$20,000 $10K more with a
bachelor’s than a HS
diploma at age 22
$10,000
$0
18 20 22 24 26 28 30 32 34 36 38 40 42 44 46 48 50 52 54 56 58 60 62 64
Some college, no degree Associate degree Bachelor's degree
Estimates of additional earnings with a college education in Tennessee, relative to

high school-educated workers, by age (2022$)
Source: Carruthers,
Data Note: Author's calculations using 2011-2021 American Community Survey (ACS) samples, Celeste K. The
limited to 18-to-64 year-old high school graduates in the labor force, not attending school, and Value of a College
excluding workers with graduate degrees. Tennessee statistics additionally exclude individuals Education in
who have lived in the state less than one year. Tennessee, 2023
Understanding these paths between postsecondary

education and careers is particularly important for the
state’s low-income students, as education beyond high
school is a potential catalyst for economic mobility.
Currently, Tennessee children are less likely to out-earn
their parents in adulthood when compared to similar
children across the nation.73 Even more concerning,
when looking at Black and White students in similar
neighborhoods, White students experience higher
rates of economic mobility than Black students.74 These
trends need to change, and postsecondary education
could be the tool to improve economic mobility for the
state’s low-income students and students of color if
there is understanding about which opportunities are
of highest value. Much is at stake for students from
historically underserved groups as they choose which
opportunities to pursue.

We know postsecondary education matters but do
not always know which opportunities lead to a thriv-
Early postsecondary and career
ing future. Students deserve access to information experiences can be valuable
that allows them to trust the programs they pursue
will translate to quality career opportunities. Counselors
opportunities for students, but
and advisors play an important role in supporting stu- quality is often unknown, and
dents, but they also need data to guide students toward
fruitful paths. The new vision for Tennessee students
access is not equitable.
should not be earning degrees or credentials for the
Early postsecondary and career experiences can kick-
sake of it but earning those that allow for a choice-filled
start a student’s trajectory toward postsecondary
life. To accomplish this vision, Tennessee must collect
education and a career. Unfortunately, limited data
data on educational offerings and workforce needs and
make it difficult to get a good picture of the quality of
determine which degrees and credentials lead to eco-
Tennessee’s early postsecondary and career opportu-
nomic independence.
nities and the outcomes for students who participate.
SCORE recommends giving Tennesseans clear infor-

Tennessee offers various early postsecondary oppor-
mation on which degrees and credentials lead to
tunities (EPSOs) that allow students to earn college
careers.
credits and valuable workforce training while still in
high school. EPSOs include dual enrollment (DE),
» Create a statewide definition for quality postsec-
Advanced Placement (AP), dual credit, International
ondary degrees and credentials. State agencies, in
Baccalaureate (IB), College Level Examination Program
partnership with employers and nongovernmental
(CLEP), Cambridge International Examinations, and
education partners, should create a framework to
industry certifications.75 Starting in the 2018-19 school
define the elements of quality degrees and creden-
year, the General Assembly required each school dis-
tials. A definition for quality degrees and credentials
trict to give its students the opportunity to participate
should include indicators such as alignment to
in at least four EPSOs.76 Currently, Tennessee students
careers that are high-wage, in-demand, and/or
participate in DE and AP at the highest rates, and earn-
offer societal value. Once the definition is identi-
ing postsecondary credit through an EPSO is one factor
fied, the state should align policy and programs
of whether or not the state considers a student college
to the definition of quality and share information
and career ready.77
about where those credentials are offered across
the state.
Available data show that student groups participate
in EPSOs at different rates. For almost all EPSOs, pub-
» Collect and report noncredit program data. The
licly available information on participation rates by race
state should require and appropriate funding for
and socioeconomic group does not exist. Dual enroll-
the Tennessee Board of Regents (TBR) to collect
ment is the exception, with detailed information on
data on noncredit programs and capture a com-
DE at community colleges uniquely available through
plete picture of educational offerings and their
TBR dashboards. These data show that both Black and
alignment with the labor market. Additionally, TBR
Hispanic students are underrepresented in dual enroll-
should launch an alignment taskforce to improve
ment compared to overall K-12 demographics.78
alignment across noncredit and credit programs,
creating more pathways for students to continue
education.
» Conduct an analysis of future skills needed for suc-

cess in the workforce. The Tennessee Department
of Labor and Workforce Development (TDLWD)
should work with employers to determine the
durable and technical skills that are most essential
to create economic opportunity for Tennesseans.
These identified skills should inform the intentional
design and revision of postsecondary opportunities
to prepare students for the state’s future of work.

STUDENTS OF COLOR ARE UNDERREPRESENTED IN DUAL ENROLLMENT COMPARED TO THE OVERALL
K-12 POPULATION
Percentage Of Students Dual enrollment student

demographics across
community and technical
All Students
colleges compared to K-12
60% 24% 13% 3% overall demographics
Data Note: The "Other

Students" race category
Dual Enrollment
68% 13% 10% 8% 2% includes American Indian
Students or Native Alaskan, Native
Hawaiian or Pacific Islander,
and Two or More Races
0% 100%
Data Note: Undocumented
students do not have access
White Black Other Hispanic Asian to the Dual Enrollment Grant,
Students Students Students Students Students
which has implications for dual
enrollment access
Source: TDOE enrollment data downloads and TBR dual enrollment dashboard, 2023
EPSOs offer benefits to students, though not all are Still, the vast majority of data around early career experi-
equally valuable or used to their full potential. National ences, particularly for WBL and industry credentials, are
research finds that dual enrollment and early college not publicly available. While the state does have a list of
models are associated with improved high school grad- promoted industry credentials aligned with employer
uation, college enrollment, credit accumulation, and need, there is no information on which students are
degree attainment outcomes.79 But despite Tennes- earning those credentials and if they experience any
see’s Dual Enrollment Grant fully covering up to five economic return.86 This lack of information is partic-
courses and the state spending on that grant totaling ularly concerning as national research finds that only
more than $48 million (higher than spending on Ten- some industry-recognized credentials have a positive
nessee Promise and Tennessee Reconnect combined), impact on postsecondary success.87 For WBL, the pub-
more than half of community college DE students earn lic has no consistent insight into the state’s offerings
six credits or less – the equivalent of only two courses.80 and whether they offer value for students. Today, there
Beyond dual enrollment, Tennessee’s dual credit exam are few mechanisms to ensure that a student’s early
pass rates are only 6 percent, meaning that fewer than career experiences are preparing them for a career
one in 10 students participating in that EPSO receive enabling economic independence in the future.
college credit.81 Further, research shows, for example,
that the state’s math dual credit course has no signifi-
cant impact on postsecondary enrollment rates.82 The
state and districts need data on the efficacy of EPSOs
and their alignment to the labor market in order to
evaluate the impact of investments, understand which
are positively serving students, and prioritize the ones
that are working well.
Tennessee is also committed to providing students

with early career opportunities like career and techni-
cal education (CTE), work-based learning (WBL), and
industry credentials.83 Currently, 55 percent of Tennes-
see students concentrate in CTE (students taking two
or more CTE courses in a program of study) and 40,000
are enrolled in an approved WBL course.84 These expe-
riences can contribute to improved student outcomes,
with research showing that CTE concentrators are
more likely to pursue postsecondary education and
experience larger future earnings when compared to
non-CTE concentrators.85

» Support access to National Student Clearing-
house (NSC) data. The state should dedicate funds
to a statewide NSC data contract that covers dis-
tricts, postsecondary institutions, and their partner
Evaluate organizations. Stakeholders should leverage this
Define
Outcomes Quality data access to identify areas where they need to
improve equitable access, expand supports for pro-
grams that are serving students well, and sunset
QUALITY programs that do not align well with postsecondary
CYCLE opportunities. Further, TBR should start submitting
TCAT data to NSC to make it a more comprehen-
sive accounting of Tennessee’s postsecondary
Measure options.
Expand Experiences
Access
Partnerships between education

and industry are a promising,
The next phase of policy improvements must go
beyond simply offering opportunities and instead
though often underutilized,
focus on quality. Early postsecondary and career expe- model to create clear pathways
riences should not be offered to check a box. Each
experience should be high-quality, positively impact-
toward careers.
ing a students’ ability to earn a degree or credential that
Clear and effective pathways between education
prepares them for a career. Tennessee needs robust
and careers are characterized by strong partnerships.
data to evaluate the quality of these experiences so the
Partnerships facilitate employer involvement with edu-
state can target investments to what is working and
cation to ensure educational offerings prepare students
focus efforts on increasing equitable access to oppor-
with the durable and technical skills needed to fill the
tunities that are most beneficial for students.
jobs of today and tomorrow. Simultaneously, partner-
ships give students a more direct path toward career
SCORE recommends identifying and incentivizing
opportunities.
quality early postsecondary and career experiences
for students.
» Identify and invest in quality EPSOs. The Tennes-

see Department of Education (TDOE) should audit
all EPSOs, publicly release the associated data, and
create a promoted list based on which experiences
result in improved college and career outcomes
for students and are aligned to postsecondary
program requirements. Districts should prioritize
courses on that list for investments and student
access, focusing on equitable access and prepa-
ration across racial and socioeconomic student
groups and phasing out those not working for
students.
» Implement a rubric for evaluating quality of WBL

opportunities. TDOE, in partnership with TDLWD,
should develop an evaluation rubric that identifies
the detailed characteristics of high-quality WBL
programs. The rubric should be completed for
any WBL offering across the state, and these data
should be reported publicly.

RHODE ISLAND NURSES INSTITUTE:
AN INNOVATIVE CAREER-CONNECTED
SCHOOL MODEL
The Rhode Island Nurses Institute (RINI) Mid-

dle College Charter High School in Providence,
Rhode Island, trains its students to become
nurses through rigorous curriculum and intern-
ships at local medical institutions. RINI was
founded in 2011 as the first charter school in the RINI serves students from across the state of
country dedicated to the healthcare profession Rhode Island, with 94 percent of RINI students
in response to a critical nursing shortage, espe- qualifying for free or reduced-price lunch and
cially for nurses of color. The model stands out over 80 percent identifying as students of
for supporting its students to graduate with up color. Additionally, many RINI students enter
to 20 college credits toward healthcare majors ninth grade below grade level. RINI’s posi-
as well as a Certified Nursing Assistant (CNA) tive impact on students is clear: 75 percent of
license. graduates enrolled in college immediately after
high school graduation and 76 percent of those
RINI infuses college preparation and health enrollees returned for a second year. Addition-
knowledge across both nursing and gen- ally, every student who graduated in the Class
eral education courses. All RINI students take of 2022 from RINI earned an industry credential
college-level courses through institutional part- and participated in work-based learning or an
nerships with the University of Rhode Island, internship. Given this considerable success, RINI
the Community College of Rhode Island, and is planning to expand the model to other states,
Nurses Middle College. Earning college credits including Tennessee.
while at RINI lessens the financial burden of a
college degree and creates multiple pathways As Tennessee continues to invest in innovative
for students to choose from as they advance school models, Rhode Island Nurses Institute
in the healthcare profession. To ensure learn- Middle College is a clear example of how we
ing is aligned to the skills currently needed in can reimagine traditional education models to
the healthcare profession, skilled nurses act as ensure more students are prepared for careers
content experts that guide all teachers to inte- through rigorous coursework, workforce-aligned
grate healthcare knowledge into all core content early college and career experiences, and stu-
classes. Nurses from the industry also take on dent-focused partnerships with postsecondary
leadership and teaching roles within the school. institutions and industry.
For partnerships to be most impactful, they must start East Tennessee State University (ETSU), and Hamil-
with data. Employers must quantify their talent needs ton County Schools emerged when BCBST identified
and analyze data to uncover their employment barriers. that only about 1,000 qualified Tennessee graduates
Educational institutions must have a clear understand- were available for 4,100 of the company’s IT job open-
ing not only of students and their career aspirations ings, and Hamilton County Schools identified a diverse
but also of program design requirements and staffing cohort of interested students. The resulting BlueSky
capacity. The information should not be considered in Institute offers an accelerated bachelor’s degree
silos, and both parties must be engaged throughout program in computing and guarantees students a
the process. job upon successful completion of the program.88
Ultimately, data can be leveraged to inform a variety of
When used together, shared information across edu- partnership opportunities that meet urgent employer
cation and employers allows partnerships to maximize needs, ranging from postsecondary degrees to intern-
their impact for students. As an example, a partnership ships and apprenticeships.
between BlueCross BlueShield of Tennessee (BCBST),

HTL UNIVERSITY:
A WORKFORCE-ALIGNED PARTNERSHIP
Ford Motor Company’s $5.6 billion investment in
BlueOval City, a sustainable vehicle manufacturing
megacampus located in West Tennessee, presented
local education leaders with a once-in-a-genera-
tion opportunity to transform the region’s economic
future. To prepare for the 3,600-acre megacampus
(set to open in 2025), superintendents Amie Marsh of
Haywood County, Dr. John Combs of Tipton County,
and Shawn Kimble of Lauderdale County engaged in
a collaborative strategic planning process to create
HTL University. The districts sought to better equip
students with the foundational and specialized sci-
ence, technology, engineering, and math (STEM) skills
needed to thrive in technical fields like those that will
be in demand at BlueOval City. By forming a tridistrict
collaborative, HTL University harnesses economies of
scale to share expertise and maximize the efficiency
of workforce-aligned investments in the educational
community of the region.
To prepare for the projected 5,800 jobs that Blue-

Apprenticeships are an education-employer
Oval City will bring to the region, HTL University takes
partnership model that provide students with
a multipronged approach. For students, it expands
credentials aligned to workforce need. These
in-demand pathways such as engineering and mecha-
are paid work-based learning programs that
tronics, designs career exposure opportunities like
prepare apprentices with skills that lead to full-
preapprenticeships and work-based learning, and
time employment, closing the work experience
creates skills-based STEM learning experiences. To
gap students often face.89 There are also preap-
strengthen STEM teaching capacity, HTL University
prenticeships, which integrate academic and
hopes to support robust educator training and invest in
technical training for students as early as high
STEM teacher fellowships and stipends. HTL University
school.90 Through these valuable opportunities,
also plans to embed family and student advising into
students are exposed to the world of work with
its programming to improve access to postsecondary
a direct path to a career. Research shows that
and industry opportunities at all levels. Lastly, industry
employers retain 94 percent of apprentices and
partners will have a seat at the table through an advi-
receive an estimated return of $1.46 for every $1
sory committee, keeping business voices central to key
invested in apprenticeships.91 Apprenticeships
decision-making.
are so impactful, in part, because they are char-
acterized by extensive employer involvement,
HTL University is unique in that it is a rural district collab-
from start to finish, that ensures the experience
orative designed to proactively respond to a large-scale
is highly relevant and valuable.
regional industry investment. This innovative partner-
ship repositions the employer as a catalyst for change
Despite these benefits, apprenticeship programs
in the education system to prepare students for future
are not common in the United States, although
labor market needs. By investing in the students, teach-
they are starting to grow in popularity.92 There
ers, and families of West Tennessee, HTL University is
are 7,231 active apprentices in Tennessee — up 6
preparing its community to meet the needs of BlueOval
percent from the previous year and 65 percent
City. HTL University creates a roadmap for future rural
from 10 years ago.93 Integrating the apprentice-
district collaboratives that hope to proactively take
ship model in Tennessee’s education system
advantage of industry investment to create effective
creates opportunities for students to gain dura-
pathways toward careers for Tennessee students.
ble, portable skills that set them up for long-term
career success and to earn a valuable degree or
credential through paid training.

Partnerships are also a tool to offer students early career SCORE recommends developing strong partnerships
exposure. In a 2023 Gallup and Walton Family Founda- across education and industry to increase alignment.
tion survey of students in grades 5-12, students gave
their schools a C+ for teaching them about potential » Incubate data-driven partnerships. Employers and
careers, suggesting low levels of career connective- educational institutions across the state should
ness in K-12.94 Bringing experienced industry leaders commit to using data to drive partnerships. Fur-
into the classroom is one way to prioritize career con- ther, data should be leveraged to monitor progress
nectiveness. However, challenges with recruitment toward goals and evaluate partnerships. To sup-
and retention can pose barriers to bringing profes- port one form of data-driven partnership, the state
sionals into the classroom.95 Schools can also commit should launch a state-funded grant for institutions
to exploring partnership opportunities through CTE to engage employers and redesign postsecondary
programs, preapprenticeships, and employer visits. academic programs to better align with labor mar-
Partnerships that start early on and prioritize employer ket need.
engagement can provide valuable early workforce
exposure for students, helping them recognize their » Incentivize apprenticeship programs that lead to
passions and preparing them for a long-term career degrees or credentials. TDLWD should launch a
and choice-filled life. state-funded grant for businesses to partner with
colleges, universities, and other intermediaries to
Partnerships between industry and education bene- develop data-driven apprenticeship programs that
fit both students and employers and should, therefore, offer students a job-embedded pathway toward a
be a pillar of education and work systems. Bringing postsecondary degree or credential.
together systems of education and work must be of
central importance as the state responds to evolving » Identify opportunities for career partnerships
workforce needs. By prioritizing data-driven partner- in K-12 to increase early career exposure. TDOE
ships between employers and education providers, should support avenues for industry profession-
Tennessee can create a vision of student success that als to deliver instructional content, either through
spans education and industry to move the needle for partnership with a licensed teacher or other flex-
employers and students alike. ible staffing approaches. For example, updating
state law to allow maximum class size waivers for
classrooms where industry experts are coteaching
could encourage the use of career-focused innova-
tive staffing models. Further, TDOE should identify
additional opportunities for early career experi-
ences such as preapprenticeships.

A BRIGHTER FUTURE
Building

2024 Priority
ENSURE K-12 SUPPORTS
MEET STUDENT NEEDS
K-12 schools and school districts experienced several To ensure K-12 supports are meeting student needs,
major changes over the last three years. The COVID- Tennessee should:
19 pandemic created an unexpected need for remote
instruction, exacerbated existing challenges of recruit- 1. Support teachers at each stage of their
ing licensed educators, and disrupted student learning career to further student access to excellent
at all levels. The landmark Tennessee Literacy Success educators.
Act changed the way educator preparation provid-
ers (EPPs) and educators teach literacy by centering 2. Adopt a plan for instructional coherence to
instruction around foundational literacy skills and stan- maximize learning for the state’s lowest-
dards. Schools launched nationally leading high-dosage performing students.
tutoring (HDT) and summer learning programs to accel-
erate student learning. And the state comprehensively 3. Solve Tennessee’s charter school facilities
modernized the way Tennessee school districts are challenge.
funded by passing the Tennessee Investment in Stu-
dent Achievement (TISA) Act, which ensures that state
dollars are allocated according to student need. K-12
leaders are still navigating the implications of the pan-
demic and the implementation of these new important
With teachers as the leading
initiatives. contributor to student success,
As the state adjusts to these shifts, it is important to
inequitable access to highly
maintain momentum on the path to improved student effective teachers is of greatest
outcomes. Moving forward requires identifying the
most impactful ways to prioritize student learning in
concern.
the context of recent changes and supporting the most
Teachers are the most important in-school factor
effective approaches. Educators, instruction, and learn-
impacting student achievement.96 However, many
ing environments are three levers the state can explore
school districts and charter management organiza-
to support all students to achieve and mark the next
tions struggle to find qualified teachers. In Fall 2022,
frontier for its education system.
there were over 1,000 vacant positions across the state
(defined as unfilled teaching positions that result in the
lack of course availability), with vacancies concentrated
in middle grades, English as a Second Language (ESL),
world language, and special education.97 Importantly,
shortages in Tennessee are highly localized and depen-
dent on factors such as subject area, distance from
EPPs, size of district salary increases, and working con-
ditions.98 Relatedly, there is an inequitable distribution
of effective teachers across the state; research shows
that Tennessee’s low-income students and students of

color were between 5 and 15 percentage points less strategies as they are in the early stages of implemen-
likely to be exposed to highly effective teachers.99 tation, operate on a small scale, and/or have minimal
reporting to monitor progress. We do know that over-
There are many strategies in place in Tennessee to all, the total number of teacher vacancies across the
address these teacher pipeline challenges; these state changed very little over the last two reporting
include the statewide Grow Your Own teacher appren- periods.101 In the coming years, continuously innovating
ticeship program, local residency models, and teaching and improving pipeline strategies and expanding their
as a profession programs of study for high school stu- reach to the regions and subject areas most impacted
dents.100 But it is difficult to gauge the impact of these by vacancies is imperative to maximize their impact.
INNOVATING TO SUPPORT TALENT PIPELINES:

NASHVILLE CLASSICAL CHARTER SCHOOL
Nashville Classical Charter School (NCCS) is » Accelerating leadership development by
one of the top-performing elementary and offering LMTs robust professional develop-
middle schools in the state, serving a racially, ment and on-the-job training opportunities
economically, and geographically diverse group to equip them for future leadership roles
of students in grades K-8. NCCS is in the pro-
cess of opening two new schools by 2030, while » Improving teacher retention of new and
already facing staffing challenges exacerbated veteran educators by providing mentoring
by the COVID-19 pandemic. To help meet its for new teachers and increased compen-
staffing demands, NCCS created the Lead Men- sation, flexibility, and sense of purpose for
tor Teacher program in 2022. LMTs
The NCCS Lead Mentor Teacher program » Building and sustaining a diverse school
intends to strengthen the school’s existing community by creating new teaching and
resident teacher program and support highly leadership pathways with a goal of ensuring
effective teachers to stay in the classroom long the school’s staff match the diversity of the
term or to assume school-level leadership posi- student body
tions in the future. Lead mentor teachers (LMTs)
receive a $10,000 annual stipend and partic- These programs have potential to prepare new
ipate in biweekly cohort meetings and school teachers to be highly effective, retain highly
culture walkthroughs. Teacher residents receive effective veteran teachers who want to stay in
weekly professional development and mentor- the classroom long term, and develop a pipe-
ship from LMTs and are given the opportunity to line of future leaders. Looking forward, NCCS
teach full-length classes once a week to advance will focus on refining professional develop-
their skills. ment, adjusting supports for teacher residents,
and identifying sustainable funding in order to
Together, the programs advance several key improve and scale the LMT and resident teacher
priorities: programs and maximize their positive impact on
educators and students.
» Increasing student achievement by bolster-
ing staff capacity to provide students with
support

In addition to Grow Your Own and teacher residen- the three-year time frame that permits are active, and
cies, school districts are increasingly using permits to less than one-fifth of permits issued in the 2021-22
address pipeline challenges. Permits are emergency school year were converted to full licensure after one
credentials used when districts cannot find a licensed year.104 While many factors may contribute to this low
educator to fill a position. Recent policy changes have conversion rate, financial considerations may be one of
allowed districts more flexibility in the awarding of them. A study of Tennessee EPPs found that financial
permits.102 These flexibilities have contributed to the burdens of education costs are the primary concern for
number of initial permits issued more than tripling current and prospective educators — a concern which
between the 2020-21 and 2021-22 school years.103 could reasonably apply for permit holders as well,
alongside other factors.105 Supporting permit holders
While permit holders have expressed an interest in to complete their licensure affords those staffing hard-
teaching, barriers to them obtaining full licensure to-fill positions the foundational training to be a highly
remain. Less than half of permits awarded during the effective teacher and is a strategy to retain interested
2018-19 school year were converted to licensure within talent in the educator workforce.
TENNESSEE MUST ENSURE TEACHING PERMITS ARE CONVERTING TO LICENSED EDUCATORS
Number of permits
2018-19 2019-20* 2020-21* 2021-22* issued and converted
over time (to date)
Initial Permits
447 528 462 1465
Issued
Data Note: Permit holders

Permits Converted have three years to convert
To Licensure 190 193 156 290 their permit to a teaching
(to date) license. 2019-20 permits
expired in 2022-23, 2020-21
permits expire in 2023-24,
Conversation Rate and 2021-22 permits expire
43% 37% 34% 20% in 2024-25. Permit holders
(to date)
have until permit expiration
to convert to licensure, and
therefore the conversion rate
in this table (shaded cells) will
Source: TDOE teacher vacancy data presentation for SBE, 2023 require continued updates.

There is also a need to better support and leverage leadership functions to maximize the impact of the
experienced educators. In Tennessee, teachers are most effective teachers while creating a system of
viewed by their peers as leaders in the classroom and support for other teachers.107 An example of advanced
school. For instance, 90 percent of respondents to the teacher roles is the multiclassroom leader (MCL), a
state’s 2023 educator survey believe that teachers feel highly effective teacher who receives additional com-
responsible for helping each other do their best, and pensation for maintaining their own class roster while
88 percent agree that teachers take responsibility for assuming mentorship and coaching responsibilities for
improving their school.106 However, these leadership a team of two to six teachers.108 Research shows that
roles are often not formalized or rewarded. Modifying in schools implementing MCLs, student achievement
the structure of teaching roles with a strategy known improves and the involved teachers become more
as advanced teaching roles introduces formalized effective.109
TEACHERS TRUST ONE ANOTHER AS LEADERS
Percentage Of Respondents Tennessee educator

Teachers are survey results. Full
encouraged to
3% 13% 53% 31% question: “Please
participate in school
leadership roles. indicate the extent
to which you
Teachers at my school
feel responsible when 1% 16% 61% 21% agree or disagree
students fail. with the following
statements."
feel responsible to help 1% 9% 57% 33%
each other do their best.
take responsibility for 2% 10% 60% 28%
improving their school.
0% 100%
Strongly Disagree Disagree Agree Strongly Agree Source: Tennessee

Educator Survey, 2022
Data access is essential to successfully implement their understanding of the educator workforce and
strategies to increase student access to highly effec- make data-driven decisions about future changes to
tive educators. State and district leaders do not educator policy.
currently have the necessary human capital insights
to make decisions related to educator effectiveness, Building a brighter future for Tennessee students
preparation, recruitment, retention, and development starts with support for an expanded educator pipeline
— decisions that are even more important to tackle and better supported educators. As the state ensures
strategically in order to maximize the impact of the the necessary educator supports exist, better data will
new TISA funding formula.110 For example, information allow for the evaluation of new strategies to bolster
on aggregate educator level of effectiveness is not the teacher pipeline as well as the implementation of
publicly available, making it difficult for state leaders innovative strategies to further student access to highly
to know which communities struggle with access to effective educators.
highly effective teachers and to evaluate how recent
pipeline strategies impact student access to excellent SCORE recommends supporting teachers at each
educators. Additionally, district leaders could bene- stage of their career to further student access to excel-
fit from reports that identify and compare state and lent educators.
district trends in educator retention by race, level of
effectiveness, and experience level. These actionable » Innovate to bolster the teacher pipeline. The Ten-
insights would help districts develop targeted retention nessee Department of Education (TDOE) should
strategies, use investments strategically, and monitor evaluate teacher pipeline initiatives, such as Grow
progress to solve educator workforce challenges. It Your Own, to understand their reach and efficacy,
is imperative that stakeholders have data to improve using those data to both continuously improve

programs and to replicate what works in communi-
ties with the greatest need. Further, staffing models
Tennessee has shown a
that leverage advanced teacher roles — such as consistent commitment to
the multiclassroom leader — should be piloted so
that teachers have compensated opportunities for
improving K-12 instruction, but
career advancement in the classroom and more not all recent efforts seamlessly
students have access to highly effective teachers.
Findings of the pilot should be publicly reported in
integrate into existing practice.
an effort to scale effective practices.
In 2021, the state passed and invested in two land-
mark policies impacting K-12 instruction. First, the
» Remove barriers to licensure for permit holders.
Tennessee Literacy Success Act required systematic
The state should invest in a grant fund for permit-
foundational literacy skills instruction in the classroom
holding teachers to offset the cost of completing
and mandated adoption and purchase of high-quality
EPP coursework toward licensure.
instructional materials (HQIM) in English language arts
(ELA).111 Second, the Tennessee Learning Loss Remedia-
» Commit to data collection and public reporting.
tion and Student Acceleration Act launched the TN ALL
TDOE should publish updated educator labor mar-
Corps to deliver HDT, created summer learning camps
ket reports that include disaggregated teacher
to accelerate student learning, and required tutoring
effectiveness data. The data should be used to
and/or summer learning camps for third graders not yet
identify areas experiencing the largest shortages,
proficient in ELA before they could move on to fourth
inform implementation of long-term strategies
grade.112 These steps reflect the state’s strong commit-
to address pipeline challenges, and make strate-
ment to improving early literacy instruction, though
gic decisions to increase student access to highly
there was not a comprehensive discussion about how
effective teachers.
these efforts functioned alongside existing practices.
BEST PRACTICES FOR HIGH-DOSAGE TUTORING
High-dosage tutoring is an instructional structure through which

student supports are provided. The following design principles are
characteristic of high-quality high-dosage tutoring programs.113
Design Principle Best Practice
Three or more sessions per week, with each

Frequency
lasting 30-60 minutes
Tutor ratios of 1:3 in grades K-5 and of 1:4 in

Group Size
grades 6-12
Scheduling Sessions integrated into the school day
Use of high-quality instructional materials

Materials
(HQIM) aligned to classroom content
Targeting lower-performing students who can

Prioritization
benefit from additional instruction

The recent policy introductions and investments are two tiers of small-group intervention based on student
not the state’s first time focusing on improving instruc- need (Tier 2 and Tier 3) for between 30 and 60 min-
tion. In 2014, the state introduced the Response to utes each day. Tier 2 and Tier 3 supports are offered for
Instruction and Intervention (RTI2) Framework to sup- students working below grade level outside of the Tier
port students performing below grade level in ELA and 1 core instructional time, and districts are encouraged
math.114 RTI2 was intended to identify individual student to use different materials than those used in the class-
needs as early as possible and provide tiered interven- room. Tier 3 supports are reserved for students who are
tion before evaluation for special education services, furthest behind.115 The RTI2 system was further improved
working to meet the instructional needs of students in 2016 when a revised framework reemphasized the
who needed additional supports but not necessar- importance of Tier 1 core instruction for all students
ily special education. Additionally, a goal of RTI2 was in addition to the Tier 2 and 3 interventions, but rec-
to prevent overidentification of learning disabilities. ommendations around use of different materials and
With RTI2, schools are required to schedule and staff assessments during intervention blocks remained intact.
EARLY LITERACY CONTEXT IN TENNESSEE
Over the last decade, Tennessee has worked hard to improve early literacy instruction.
Revised ELA Revised the RTI2 Passed the Tennessee Literacy

standards and Framework to Success Act and the Tennessee
adopted the RTI2 emphasize a focus Learning Loss Remediation &
Framework on core instruction Student Acceleration Act
2014 2016 2021
TN decided what it would TN created a clear focus on TN required adoption of HQIM for core
teach across grade levels strong core instruction for literacy instruction, instruction grounded
and how it would remediate all students alongside tiered in foundational skills, and provided
students who were behind support that was different from funding for HDT as another setting for
through tiered support. core instruction. student academic support.
Source: SCORE Early Literacy Success For All Students, 2023
While RTI2, the Tennessee Literacy Success Act, and

the Tennessee Learning Loss Remediation and Stu-
dent Acceleration Act were all critical steps toward
improving student learning, they do not yet seamlessly
fit together. For instance, the lowest-performing stu-
dents on the state’s third-grade ELA assessment are
statutorily required to receive HDT to be promoted
to fourth grade. In the RTI2 framework, those same
students would likely be identified for Tier 3 instruc-
tion. Schools are left with the difficult question of how
to fit both HDT and Tier 3 into a student’s day. This
confusion may result in students receiving tutoring
misaligned to research-backed best practices in order
to overcome logistical hurdles. For example, schools
may provide tutoring outside of the school day, in less
intensive environments (e.g. not in small groups), or at
a lower frequency. When districts must dedicate lim-
ited resources to navigating logistics and compliance,
it threatens the quality of student supports and takes
the focus away from student needs.

To better understand the complex intersection of instructional sup- BRISTOL TENNESSEE CITY SCHOOLS:
ports, SCORE conducted a case study with four districts to monitor AN INSTRUCTIONALLY COHERENT
student growth when participating in different support structures
according to the districts’ reading screeners. The case study found
VISION FOR EARLY LITERACY
that students who started the furthest behind grew the most in an
HDT structure that leveraged HQIM aligned with the content of core Throughout the 2022-23 school year,
instruction. Moreover, placement in RTI2 Tier 3 instruction, where Bristol Tennessee City Schools (BTCS)
high-quality instructional materials from the classroom were not uti- engaged in a pilot to enhance their
lized, resulted in a decline in performance for most students. Placing high-dosage tutoring (HDT) programs
students in two different settings with different materials — when by developing and implementing a new
they were already struggling — was not an effective literacy support vision for K-3 early literacy support. This
strategy. Ultimately, the instructionally coherent HDT structure (with new vision aims to systematically support
aligned HQIM) was more effective at improving ELA performance students in meeting grade-level expec-
for students who started out further behind when compared to plac- tations by ensuring the students working
ing them in Tier 2 and Tier 3 structures. The case study results align below grade level receive additional
with numerous studies that show HDT meaningfully increases stu- instruction aligned with the high-quality
dent achievement.116 instructional materials and assessments
used for core instruction — rather than a
different suite of materials used specifi-
cally for intervention.
HIGH-DOSAGE TUTORING EFFECTIVELY DRIVES GROWTH FOR
STUDENTS THE FURTHEST BEHIND Once this instructionally coherent vision
for early literacy support was established,
the district was able to break down silos
Students Without IEPs: Average Composite Score Percentile
between core instruction and interven-
Growth From Beginning To End Of Year
tion, enabling a more strategic use of staff
Beginning-Of- Core Literacy RTI2 Tier RTI2 Tier
and time. BTCS leadership reimagined
HDT + Core
Year Percentile Instruction
Instruction
2 + Core 3 + Core the RTI2 block with interventionists push-
Performance Range Only Instruction Instruction
ing into the classroom after core reading
1st-10th Percentile 8.6 19.3* 11.0 5.7 instruction, providing a second lesson a
day for the students working below grade
11th-25th Percentile 11.5 11.7 7.8* -1.2* level. They also identified an opportunity
26th-40th Percentile 6.5 5.7 1.6* -1.6* to increase total staffing while minimizing
costs by utilizing part-time educational
41st-99th Percentile -0.5 -1.6 0.8* -5.9* assistant (EA) roles, which are paid on
the district’s hourly wage scale instead of
Average percentile growth on the composite score of Tennessee's the teacher salary scale. Lastly, the district
universal literacy screeners between the beginning and end of year used the curriculum-embedded assess-
administration for 15,937 1st-3rd grade students without IEPs ment from the Tennessee Foundational
Skills Curriculum Supplement to track
Data Note: Statistically significant results are displayed with an asterisk using student progress and tailor instruction
a .05 level of significance. The trends above were also consistent when
analyzing growth between the beginning and midyear administrations across staff and settings.
of universal literacy screeners as well as midyear and end-of-year
administrations, separately.
With the new model, the district was able
Data Note: Results in this table are for students without individualized
education plans (IEPs). The participation rate for students with IEPs in HDT to serve more students by the end of the
was too low for analysis. year, and students in the pilot showed
Source: SCORE Early Literacy Success For All Students, 2023 significant growth in reading. BTCS now
plans to implement this instruction-
ally coherent model across all first- and
second-grade classrooms. The BTCS
As this case study was limited to four districts and only inclusive of example demonstrates that by strategi-
ELA, there remains more to learn. There are remaining questions cally using existing resources aligned to a
about how the data look statewide, the role of summer learning, and coherent academic vision, the path for all
which instructional supports are most effective at improving math students to read on grade level is achiev-
instruction. Conducting additional analysis to learn which strategies able, sustainable, and scalable.
best support students, and aligning funding to those strategies, is an
essential next step.

Early skills in reading and math set up students for
long-term success, and all students deserve a strong
start in elementary school that prepares them for suc-
cess in education and the workforce.117 Using data to
determine which instructional practices have the great-
est potential to positively impact student achievement
and then prioritizing those practices is critical as the
state takes the next steps in effecting transformative
change for students. The data that are available suggest
a need to adopt an instructionally coherent approach
by intentionally aligning Tennessee’s RTI2 system with
the best practices of HDT structures.
SCORE recommends adopting a plan for instructional

coherence to maximize learning for the state’s low-
est-performing students.
» Revise the RTI2 framework. TDOE should revise the

framework to establish and define the elements of
high-quality high-dosage tutoring as the research-
based structure for small-group support beyond
core instruction and RTI2 as the process that guides
decision-making. The State Board of Education
should update its academic rules to reflect the
new framework and emphasize the importance of
instructional coherence.
» Improve reporting to better understand the full

suite of academic supports students are receiving.
Students may be receiving high-dosage tutoring, Public charter schools contribute
summer learning, Tier 2 or Tier 3 supports, or any
mixture of the three. It is important for TDOE to
to improved student outcomes
improve reporting on the services students are in Tennessee, particularly for
receiving so the state can evaluate its recent invest-
ments and illuminate which supports are driving
students with the highest needs,
positive impacts for students in both literacy and but these schools lack access
math.
to affordable facilities where
» Align funding to the strategies working for stu- students can learn.
dents. Currently, districts are using a variety of state
and federal funds for student learning supports. As There are 114 public charter schools in Tennessee serv-
TISA is implemented and Elementary and Second- ing more than 43,000 students and operating under six
ary School Emergency Relief (ESSER) funds wind different authorizers.118 The state’s charter schools are
down, TDOE should prioritize allocating resources public schools, free to attend, operated by nonprofit
to support the most effective strategies for improv- organizations, and must enroll any student who applies
ing literacy and math performance for students. regardless of special needs or prior academic perfor-
mance.119 Research suggests that charter schools are
an effective strategy to support students from histor-
ically underserved groups — a finding that resonates
with evidence from Tennessee.120 Tennessee’s public
charter schools serve, on average, a higher percentage
of students of color and economically disadvantaged
students than their district counterparts.121 In the 2022-
23 school year, 80 percent of public charter schools
met or exceeded student growth expectations (scored
a TVAAS Level 3 or higher) compared to 60 percent of
noncharters in the same districts.122

80 PERCENT OF PUBLIC CHARTER SCHOOLS MET OR EXCEEDED GROWTH EXPECTATIONS
100%
Tennessee Value-
exceeded expectations
Added Assessment
60% of schools met or

28.8% 30.6% System (TVAAS) ratings
exceeded expectations
80% of schools met or
80%
Percentage Of Schools
distribution by school
61.3% 7.1% type compared to the
9.2%
60% state, 2023
24.3% 21.5%
40%
9.7% 11.8% 11.0%
8.6% Data Note: Charter and
20%
noncharter data are not
11.8% 28.1% 27.8% inclusive of the Achievement
8.6% School District (ASD).
0% Noncharter data reflect
Charters Noncharters State of TN performance of noncharter
schools in districts with
Level 5 - Significantly Level 4 - Exceeds Level 3 - Met public charter options
Exceeds Expectations Expectations Expectations
Source: TDOE TVAAS composites
Level 2 - Below Level 1 - Significantly
Expectations Below Expectations data downloads, 2023
Though public charter schools are one important SCORE recommends solving Tennessee’s charter school
way to advance student achievement, they do not facilities challenge.
do so without challenges. Tennessee’s public char-
ter schools do not have the same ability as traditional » Recommit to the state’s charter facilities fund. The
public schools to support building costs through previously existing charter facilities fund is no longer
bonds and tax revenues, creating an obstacle to in operation. By reviving the fund with at least $22
get students in a physical building for learning.123 million in recurring funding, its previous balance, the
Tennessee has made progress in addressing this state could provide public charter schools a sustainable
challenge with the inclusion of a charter direct allo- source of financial support for ongoing facilities costs.
cation in TISA; however, despite that improvement,
charters still face a notable gap between the funds » Create a revolving loan fund with philanthropic sup-
available to cover facilities costs and the actual cost port. A one-time $10 million state investment could
of facilities.124 An analysis of the “facility gap” for be matched by philanthropic dollars to create a fully
Tennessee charter schools found an unmet need sustainable revolving low-interest loan fund to reduce
of more than $700 per student — the equivalent of the initial cost of facilities financing. This initial invest-
hiring around six additional teachers per school.125 ment could be leveraged to create an overall fund of
This gap requires charter schools to make significant hundreds of millions of dollars that recycles itself every
tradeoffs. For example, schools may have to divert several years. This revolving fund could be a solution for
funds from other sources to cover facilities costs, the upfront hurdle of facility purchase, construction, or
taking money away from resources to support stu- renovation, paving the way for the opening of additional
dent instruction, or may have to delay opening due high-quality public charter schools.
to inability to secure a facility.
» Increase access to existing publicly funded facilities.
Tennessee’s public charter school students, who The legislature should update state law to establish
are primarily economically disadvantaged and clear definitions for underutilized and vacant district
students of color, deserve access to high-qual- facilities and procedures for charter schools to have
ity school buildings. All students should be able to priority for accessing those facilities at a fair price. While
attend school in a building conducive to learning these facilities have already been financed with taxpay-
without funds being diverted from student instruc- ers’ money, there is not currently a complete picture
tion. And no student should have to wait to access of how many exist and how public charter schools can
a high-quality public charter school because of the access them. Facilitating access to properties already
lack of a facility. As the next priority for advancing designed as schools that would otherwise sit empty is
the state’s high-quality charter sector, Tennessee good stewardship of taxpayer dollars, helps remove a
should remove this obstacle to improving student large burden for charter schools, and allows for more
achievement by comprehensively meeting the focus on what matters most — student learning.
facilities needs of its public charter schools.

A BRIGHTER FUTURE
Building

2024ADVOCACY AGENDA
Expand Student Opportunity By Strengthening Foundational Policies
As a state dedicated to continuous student-centered improvement, Tennessee should consider the following in its
next wave of reforms:
PRIORITIZE THE USE OF LONGITUDINAL DATA TO DRIVE STUDENT OUTCOMES.

Recommendation Key Actor(s)
Create public-facing dashboards. Office of Evidence and Impact (OEI)
Tennessee Department of Labor and Workforce

Add career-relevant Standard Occupational Classification (SOC)
Development (TDLWD)
codes to the TN DATA system.
OEI
General Assembly
OEI
Tennessee Higher Education Commission (THEC)
Bolster the state’s TN DATA system by elevating efforts through state
Tennessee Board of Regents (TBR)
law and developing a model data-sharing agreement.
Tennessee Department of Education (TDOE)
Tennessee Independent Colleges and Universities
Association (TICUA)
ENHANCE THE TENNESSEE PROMISE SCHOLARSHIP AND THE COMMUNITY COLLEGE STUDENT EXPERIENCE.
Incentivize on-time completion and transfer by allowing Tennessee

Promise students who earn an associate degree on time to continue
General Assembly
receiving their last-dollar scholarship for one semester of continued
education.
Fund Tennessee Promise completion grants permanently. General Assembly
Scale meta-majors across the state’s community colleges. TBR
Publicly report data on the postsecondary programs of study

THEC
Tennessee Promise students choose to pursue.
REVISE THE POSTSECONDARY OUTCOMES-BASED FUNDING FORMULA TO PRIORITIZE LONG-TERM STUDENT SUCCESS.
Refine the focus of the outcomes-based funding formula metrics.
Ensure all outcomes-based funding formula metrics are based on

THEC
student outcomes.
Formula review committee
Ensure the outcomes-based funding premium structure is aligned to
student opportunity.
Review the full priority and recommendation information starting on page 14 of the report.

Build Effective Pathways Between Education And Careers
The new future of student success hinges on improved alignment across education and careers. To improve align-
ment and build effective pathways between education and careers, Tennessee should:
GIVE TENNESSEANS CLEAR INFORMATION ON WHICH DEGREES AND CREDENTIALS LEAD TO CAREERS.
THEC
TBR
Create a statewide definition for quality postsecondary degrees and TDOE
credentials. TDLWD
Employers
Nongovernment education partners
TBR
Collect and report noncredit program data.
General Assembly
Conduct an analysis of future skills needed for success in the TDLWD

workforce. Employers
IDENTIFY AND INCENTIVIZE QUALITY EARLY POSTSECONDARY AND CAREER EXPERIENCES FOR STUDENTS.
Identify and invest in quality early postsecondary opportunities TDOE

(EPSOs). Districts
TDOE
Implement a rubric for evaluating quality of work-based learning
TDLWD
opportunities.
Districts
Support access to National Student Clearinghouse (NSC) data with a

General Assembly
statewide contract.
DEVELOP STRONG PARTNERSHIPS ACROSS EDUCATION AND INDUSTRY TO INCREASE ALIGNMENT.

Employers
Incubate data-driven partnerships. Postsecondary institutions
General Assembly
TDLWD
Incentivize apprenticeship programs that lead to degrees or General Assembly
credentials. Employers
Postsecondary institutions
Identify opportunities for career partnerships in K-12 that support

TDOE
industry professionals to deliver instructional content to increase
General Assembly
early career exposure.

Ensure K-12 Supports Meet Student Needs
Educators, instruction, and learning environments are three levers the state can explore to support all students to
achieve and mark the next frontier for its education system. To ensure K-12 supports are meeting student needs,
Tennessee should:
SUPPORT TEACHERS AT EACH STAGE OF THEIR CAREER TO FURTHER STUDENT ACCESS TO EXCELLENT EDUCATORS.
Innovate to bolster the teacher pipeline by evaluating the impact

of current initiatives and piloting new initiatives such as advanced TDOE
teacher roles.
Remove barriers to licensure for permit holders by investing in a

grant fund to offset the cost of completing educator preparation General Assembly
provider (EPP) coursework.
Commit to educator labor market data collection and public

TDOE
reporting.
ADOPT A PLAN FOR INSTRUCTIONAL COHERENCE TO MAXIMIZE LEARNING FOR THE STATE’S LOWEST-PERFORMING STUDENTS.
Revise the RTI2 framework to establish and define the elements of

high-quality high-dosage tutoring as the research-based structure for TDOE
small-group support beyond core instruction and RTI2 as the process State Board of Education (SBE)
that guides decision-making.
Improve reporting to better understand the full suite of academic

supports students are receiving and which are driving positive TDOE
impacts for students in both literacy and math.
Align funding to the instructional strategies working for students. TDOE
SOLVE TENNESSEE’S CHARTER SCHOOL FACILITIES CHALLENGE.

Recommit to the state’s charter facilities fund. General Assembly
General Assembly
Create a revolving loan fund with philanthropic support.
Philanthropy
Increase access to existing publicly funded facilities. General Assembly

About SCORE
The State Collaborative on Reforming Education (SCORE) is a nonpartisan
nonprofit education policy and advocacy organization based in Nashville,
Tennessee. SCORE was founded in 2009 by Senator Bill Frist, MD, former US
Senate majority leader, with a mission to catalyze transformative change in
Tennessee education so all students can achieve success.

SCORE Board of Directors
Senator Bill Frist, MD Dee Haslam Joelle Phillips
Chairman and Founder, SCORE CEO, Haslam Sports Group President, AT&T Tennessee
Janet Ayers JD Hickey, MD Christine Richards

President, Ayers Foundation Trust President and CEO, BlueCross Retired, FedEx Corporation
BlueShield of Tennessee
Charles W. (Chuck) Cagle Tara Scarlett
Shareholder, Lewis Thomason J.R. “Pitt” Hyde III President and CEO, Scarlett Family
Trustee and Cofounder, Hyde Family Foundation
Kevin Clayton Foundation
CEO, Clayton Dr. Russ Wigginton
Orrin Ingram President, National Civil Rights
David Golden President and CEO, Ingram Industries Museum
CEO, ETSU Research Corporation Inc.
David Mansouri
Honorable Alberto Gonzales Alan Levine President and CEO, SCORE
Dean and Doyle Rogers Professor of Chairman, President, and CEO of (ex officio)
Law, Belmont University Ballad Health
Carolyn Hardy Scott M. Niswonger

CEO, Hardy Beverages Chairman and Founder, Niswonger
Foundation
SCORE Team
Cynthia Yeldell Anderson, Director of Carolyn Hanesworth, Executive Alexis Parker, Director of Data
Communications Assistant
Madeline Price, Director of Policy
Kristina Bachman, Director of Grants Emily Hawthorne, Director of Talent
Management Dr. Sharon Roberts, Chief K-12 Impact
Diane Hughes, Communications Officer
Dr. Richard Bailey, Director of Manager
Strategic Practice Dr. Shelby Rogers, Senior Director of
Zachary Hyder, Graduate Fellow Postsecondary Innovation
Courtney Bell, Vice President of
Strategic Practice Jack Jue, Graduate Fellow Henry Savich, Education and
Workforce Data Specialist
Donata Blobaum, Administrative Ellie Lasarow, Graduate Fellow
Coordinator Nicole Floyd Smith, Vice President of
Mara Laverentz, Executive Assistant Advocacy
Dr. Shawn Boyd, Director of
Postsecondary Program Engagement Karen Lawrence, Senior Director of Dr. Jamia Stokes, Vice President of
Networks and Partnerships Postsecondary Programs
Janelle Brown, K-12 Program Director
David Mansouri, President and CEO Peter Tang, Senior Director of
Arshia Saiyed Freeman, Senior Research
Director of Impact Emma McWeeney, Director of
Charter Initiatives Bryce Warden, Director of Education-
Leigh George, Director of Events to-Work Initiatives
Mary Cypress Metz, Senior Vice
Amrit Ghimire, Director of Finance President of Strategy Ashley Warrington, Director of
Advocacy
Amanda Glover, Senior Policy Analyst Ëric Olmstead, Director of Operations
Rick Zadd, Vice President of Finance
Aleah Guthrie, Vice President of Rachel Patrick, Graduate Fellow and Operations
Policy and Government Relations

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94. Willcoxon, Nicole, and Stephanie Marken. K-12 2023).
74. Ibid. Schools Struggle to Prepare, Excite Gen Z About
115. SCORE Report: Early Literacy Success For All
Learning. Gallup Blog. (June 2023).
75. Early Postsecondary Opportunities. Tennessee Students: A Coherent Path Forward. Tennessee
Department of Education. 95. Gewertz, Catherine. How Can Schools Get More SCORE. (August 2023).
Industry Experts Into Career-Tech Programs?
76. Tennessee Public Chapter 450, 110th General 116. Robinson, Carly, Matt Kraft, Susanna Loeb, and
EducationWeek. (December 2016).
Assembly (2017). Beth Schueler. Design Principles for Accelerating
96. Opper, Isaac M. Teachers Matter: Understand- Student Learning with High-Impact Tutoring.
77. Graduation Rate and Ready Graduate Indicator ing Teachers' Impact on Student Achievement. Annenberg Institute and Results for America.
Report. Tennessee Department of Education. RAND Corporation. (2019). (February 2021).
(January 2022); Tennessee’s Calculation for
School Letter Grades. Tennessee Department of 97. Amos, Brooke. 2022-23 Vacancy Data Collection. 117. Early Warning! Why Reading by the End of Third
Education. (November 2023). Tennessee Department of Education. (May Grade Matters. Annie E. Casey Foundation. (Jan-
2023). uary 2010); ten Braak, Dieuwer, Ragnhild Lenes,
78. SCORE Report: Building a Vision for Early Post- David J. Purpura, Sara A. Schmitt, and Ingunn
secondary Opportunities. Tennessee SCORE. 98. Edwards, Danielle Sanderson, Matthew A. Kraft, Størksen. “Why do early mathematics skills
(May 2023). Alvin Christian, and Christopher A. Candelaria. predict later mathematics and reading achieve-
“Teacher Shortages: A Unifying Framework for ment? The role of executive function.” Journal of
79. What Works Clearing House Intervention Report: Understanding and Predicting Vacancies.” An- Experimental Child Psychology. (October 2021).
Dual Enrollment Programs. U.S. Department of nenberg Institute at Brown University. (Septem-
Education. (February 2017); Song, Mengli, Kristina 118. SCORE Report: Tennessee Charter School Quick
ber 2023); Amos, Brooke. 2022-23 Vacancy Data
Zeiser, Drew Atchison, and Iliana Brodziak de los Collection. Tennessee Department of Education. Facts. Tennessee SCORE. (2023).
Reyes. “Early College, Continued Success: Lon- (May 2023).
ger-Term Impact of Early College High Schools.” 119. SCORE Report: Who Can Enroll In A Tennessee
Journal of Research on Educational Effective- 99. Rodriguez, Luis, Tuan D. Nguyen, and Matthew G. Public Charter School? Tennessee SCORE.
ness. (April 2021). Springer. “Revisiting Teaching Quality Gaps: Ur- (2023).
banicity and Disparities in Access to High-Quality
80. TELS and Grants & Scholarships Summary. 120. Cohodes, Sarah R., and Katharine S. Parham.
Teachers Across Tennessee.” Urban Education.
Tennessee Student Assistance Corporation. “Charter Schools’ Effectiveness, Mechanisms,
(2023).
(September 2023); SCORE Report: Building a and Competitive Influence.” National Bureau of
Vision for Early Postsecondary Opportunities. 100. Grow Your Own. Tennessee Department of Ed- Economic Research. (May 2021).
Tennessee SCORE. (May 2023). ucation; Nashville Teacher Residency. Nashville
121. SCORE Report: Tennessee Charter School Quick
Teacher Residency.; Memphis Teacher Residen-
81. SCORE Report: Building a Vision for Early Post- Facts. Tennessee SCORE. (2023).
cy. Memphis Teacher Residency; 2023-24 CTE
secondary Opportunities. Tennessee SCORE. Programs of Study. Tennessee Department of 122. Data Downloads & Requests, TVAAS Composites.
(May 2023). Education. (January 2023). Tennessee Department of Education. (2023).
82. Giani, Matt. How Attaining Industry-Recognized 101. Amos, Brooke. 2022-23 Vacancy Data Collection. 123. Fund. Charter School Facility Center.
Credentials in High School Shapes Education Tennessee Department of Education. (May
and Employment Outcomes. Thomas B. Ford- 124. Building for Success in Tennessee. ExcelinEd.
2023).
ham Institute. (August 2022); Hemelt, Steven W., (2022).
Nathaniel L. Schwartz, and Susan M. Dynarski. 102. Tennessee Public Chapter 1141, 112th General
“Dual-Credit Courses and the Road to College: Assembly (2022); Tennessee Public Chapter 284, 125. ibid
Experimental Evidence from Tennessee.” Journal 113th General Assembly (2023); Tennessee Public
of Policy Analysis and Management. (2020). Chapter 1093, 112th General Assembly (2022).

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2024 State of Education in Tennessee

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Building

05 The Next Frontier For Transforming Education In Tennessee

Through the tireless work of so many educators, pol-

2024 State Of Education In Tennessee:

Senator Bill Frist, MD David Mansouri

2024 State Of Education In Tennessee:

2024 State Of Education In Tennessee:

2024 State Of Education In Tennessee:

Improving of the few states exceeding prepandemic ELA profi-

ELA MATH Grades 3-8 ELA

THIRD-GRADE ELA PROFICIENCY RATES REACHED RECORD HIGHS IN 2023

TCAP grade 3 ELA

Source: TDOE state-

2024 State Of Education In Tennessee:

TENNESSEE'S ATTAINMENT RATE CONTINUES TO INCREASE BUT REMAINS SHORT OF MEETING

Percent Of Jobs Requiring A Postsecondary Degree Or Credential Percentage of

Tennessee Attainment Source: Lumina Foundation

Still, The Path Forward For

2024 State Of Education In Tennessee:

50% Grades 3-8 ELA

Source: TDOE state-

TO MEET WORKFORCE NEEDS, TENNESSEE MUST BETTER SUPPORT HISTORICALLY

33.8% 34.3% 34.7% 35.7% 36.7% ethnicity,

2024 State Of Education In Tennessee:

ONLY ONE-QUARTER OF HIGH SCHOOL STUDENTS SUCCESSFULLY NAVIGATE THE

Data Note: High school graduates

STUDENT SUCCESS FROM HIGH SCHOOL ENTRY TO POSTSECONDARY GRADUATION VARIES

Percent Of Initial Cohort Successfully Earning Postsecondary Award Longitudinal trajectory

Other Students 37% Data Note: Race/ethnicity from TDOE

2024 State Of Education In Tennessee:

COLLEGE GRADUATES, ON AVERAGE, EARN 1.5 TIMES

Median full-time wages five years after completion

Source: P20 Connect, 2022

2024 State Of Education In Tennessee:

2024 State Of Education In Tennessee:

2024 State Of Education In Tennessee:

QUESTIONS TO GUIDE MEANINGFUL IMPROVEMENT

2024 State Of Education In Tennessee:

system holds a wealth of each postsecondary institution is populated

progress through classrooms ise applications. This information helps partners

accessible. also supports longer-term efforts to refine pro-

2024 State Of Education In Tennessee:

Goal: Support students

Leverage data to Demonstrate

2024 State Of Education In Tennessee:

» Create public-facing dashboards. OEI should cre-

» Add career-relevant information to the TN DATA

While highlighting critical data needs will be a through

2024 State Of Education In Tennessee:

postsecondary experience. 2015 35.5% 15.9% 48.6%

Cohort Fall Enrollment Year

2024 State Of Education In Tennessee:

COMPLETE GRANTS AND COACHING SHOW LARGE PAYOFF FOR STUDENTS

First-To-Second Year Retention Rate First-to-second year

National research also reveals that community college

The state has the opportunity to further improve

2024 State Of Education In Tennessee:

» Incentivize on-time completion and transfer for

2024 State Of Education In Tennessee: