I have not yet met a person who does not have an opinion on
the length of a school year. By and
large, most people who are not students, parents of students, in the business
of school or reliant upon child labor don’t care and “I don’t care” is an
opinion. The remainder, a minority of
our community – parents, grandparents, employers and others whose daily life is
touched by school – form their opinion from their personal experience, their
self-interest, and an uninformed concept of schooling. Normally, this blog sets a proposition,
examines what we know and think about the topic, and creates an action or To Do
with a rationale. Today, I will start
with the conclusion.
The Big Duh
A school year must be the length of time necessary to teach
and cause children to become competent in an annual curriculum. It need not be longer nor shorter than that,
but it must be long enough to teach an annual curriculum.
What Do We Know?
Over time educators have packaged learning into grade levels
and content courses and courses of study and each package is an annual
curriculum. Elementary school is parsed
into 4K or pre-kindergarten, Kindergarten, and 1st grade through the
last grade of your school’s organization, typically 5th or 6th
grade. Each grade level is a step on a curricular
scaffold building a child’s knowledge, skills and dispositions about learning
school year by school year. Secondary
school is parsed into content courses of English/language arts, math, science and
socials studies and perhaps a world language.
These are stacked or sequenced, as in English 7 through English 12 and
Algebra through Calculus. Some content
courses seem to be stand alone courses, like Marketing or Personal Finance, but
have underlying content and skill structure in English, social studies, and
math. Also, secondary school instruction
provides continuous courses of study in music, the arts, and technical
education. Year after year of
instruction in choir, band and orchestra or in painting and ceramics or
technical training refines and improves student performance.
The packaging in terms of time began when our communities
were agriculture-based and children could attend school when not needed during
the planting, growing, and harvesting seasons.
Packaging was reconsidered when child labor laws were implemented and regular
schooling replaced daily work. A school
day mirrored a work day and a school week mirrored a world week and school
calendaring filled the community need for day care for millions of children
nationwide.
Curricular packaging has been refined and fit into grade
level and course competencies. A child’s
progress through the 3 R’s was a pathway up the scaffold of reading, writing
and arithmetic. At one time, a 6th
grade education or the ability to read, write and cipher at the 6th
grade level was an adequate adult competency.
Later, the level of competency advanced to 8th grade and
children could stop attending school after completion of 8th grade
or the age of 16. That was good
enough. Today, high school is the
completion of 13 or 14 years of schooling and a generalized competency of 10th
grade or better.
Our contemporary school scaffold is a child’s annual
demonstrated competence on annual curricula that validates promotion to the
next annual curricula and eventually graduation. The time required to complete each step of
the scaffold or each packaged curriculum is approximately 180 school days or 36
weeks of school.
There are no prizes or awards for schools that have shorter
or longer school years. There is no
economic incentive to add days to a school year. School revenues and contracts for all school
employees are a set amount in a school’s annual budget and decreasing or
extending a school year does not alter these major expenses.
Why Is This Thus?
Why is 180 days the seemingly standard for a school year? The question was asked and answered more than
100 years ago. The world’s richest man
of his time, Andrew Carnegie, was committed to the role of education as the
essential strategy for improving life in the early 1900s. In 1906, he funded the Carnegie Foundation
led by Harvard President Charles Elliot to study and recommend standards for a
college education. At the time, the
national college graduation rate was less than 10% and the quality of a college
education was dependent upon the college.
There were no national standards for education. The Carnegie Foundation literally defined
college and university education in the United States for the next century.
The Foundation also recommended changes in public education. For our purposes, the Foundation defined a high
school Carnegie Unit as a (one) credit awarded for completion of 120 hours of
instruction over the length of a school year.
A school year, then, is the length of time to required to achieve 120
hours of instruction plus assessments plus other school requirements. According to the Carnegie plan, a high school
student could earn six to seven credits per year and 24 to 28 credits over four
years and high school graduation became the completion of 24-28 credits.
Using the 120 hours of instruction as the standard for an
annual curriculum and allowing for reteaching and make-up lessons for students
absent from school and for the additional legislative mandates that must be
accomplished in a school year, 180 days became the normal length of a school
year in US public schools. Ninety days
was a semester and 45 days was a quarter or grading period.
Since 1906, much as changed in the field of teaching and
learning, yet the basics of a Carnegie Unit and the standards for a school year
have remained largely unchanged. A
discussion of a school year begins with 180 days.
We must always be aware of the influences of money and
politics in public, as these are constantly at play in public education. By rule of the US Constitution, the
responsibility for public education is delegated to the states. Hence, the funding and rules related to
public education are legislated by state government.
It is honest to state that state funding for public
education is allocated according to money available not by money needed. This basic understanding tells us that legislatures
with a need to fund many state programs that compete for a limited annual state
budget are always looking for ways to reduce or contain costs. Public education, prisons and highways are
the three largest expenses in state budgets.
The school year is an example of such manipulation. For decades, a school year was 180 days of
instruction. First, start with this as
the number of interest: 180 times the
salaries and benefits of school employees is the largest cost of a school
year. More than 80% of school costs are
paid in salary and benefits to employees.
If school funding is considered on a per day basis not a per year basis
and a school year is defined by hours instead of days, then the total sum of
money spent for salaries and benefits can be changed. Second, change the number of interest to: hours of instruction times the salaries and
benefits of school employees is the cost of a school year. The total remains the same as long as the hours
of instruction equal 180 days of instruction.
In Wisconsin, 437 hours of instruction are required for
Kindergarten students, 1,050 hours for grades 1 through 6, and 1,137 for grades
7 through 12.
Third, allow schools to determine the length of class
periods and the number of hours in a school day so that each grade level meets
the legislated number of instruction hours.
Now, a school year can be less than 180 days. More importantly, the cost of school is
reduced by each day of salary and benefit that is removed from the annual
school calendar.
Politics and economics not student learning drive the contemporary
defining of a school year. Today, a
school year can be reduced to the bare minimum of days required to complete
mandated hours of instruction, a number in the 170s.
Yes but! If we add
the concept of educational accountability to the definition of a school year,
how much teaching and learning is required for a child to competently complete
an annual grade level, a content course or a course of study? There is no magic in the Carnegie Unit. Critics of the Unit have harped for decades
on its arbitrariness. Yet, the idea that
the completion of a rigorous course of instruction should be the basis of how
we “package” a year of school keeps us returning to the idea of the Unit. A school year must be accountable for
learning not just time in class.
To Do
Accountability for learning matters and competency is the
metric of measure. The number of hours
in a school day or in a school year is just the vehicle for achieving competent
learning. School Boards approve and
adopt annual curricula for all children in all grade levels and courses with
the intention that children will successfully and competently complete each. We must honor this element of local school
control of public education.
We have a national problem with proficiency. A majority of children do not meet
proficiency standards on local, state and national assessments. This is an instructional challenge. We must improve the instructional tool box
used by all teachers to more effectively cause every child to learn. This is a commitment challenge. We must hold to the goals of annual student
achievement and invoke what we know about the science and art of explicit
teaching and the necessity for instructional interventions when initial
instruction is not successful. Proficiency
is created when a child is competent in each curricular unit of instruction so
that at the end of a school year there is a sequence of proficient learning. We must intervene at the point of mislearning
or non-learning not at the end of school year.
And, to point, reducing the number of days in a school year contradicts
what we know about student proficiency. Teachers
need all the time they can have with children not less.
Take Away
As a School Board member, I hear from parents who want to reduce
the length of our school year. I return
to the first paragraph. Most who have an
opinion about the length of a school year base their opinion upon personal
experience, self-interest, and an uninformed concept of schooling. A Board member’s responsibility includes
educating the public about education and local education, in particular. As an educator who is a Board member, my
first accountability is to causing every child to become a proficient learner
and to learn. In the business of causing
learning, instructional time is our most valuable resource. We can improve teaching skills and refine
curriculum. However, without adequate
time for all of the layers of instruction, initial through necessary
interventions, to be successfully deployed, teacher skill and engaging curricula
will not cause the educational outcomes children need. A school year may be an arbitrary number of
hours and days, yet there is a substantial rationale connecting instructional
time with learning accountability. At
the end of conversation, we get what we settle for and less time will result in
less learning.