In 2015, Congress passed the Every Student Succeeds Act (ESSA), which opened a new chapter in education reform. Under ESSA state education agencies (SEAs) are required to identify schools that are performing in the bottom 5 percent and provide support with developing and implementing school improvement plans. In theory, it makes sense to move away from federally prescribed interventions to those grounded in the local context and honoring the knowledge and needs of the local community. Indeed, ESSA provides states with flexibility, but this often means that State Education Agencies (SEAs) must develop their own strategies to help these schools, which can be quite challenging.

Many CSI schools have been through multiple rounds of school improvement reforms, yet still struggle to meet performance standards. This situation underscores the need for effective, evidence-based strategies and adequate resources including leadership to support sustained improvement.

Approximately 2.5 million, or 5 percent, of all U.S. public school students attend CSI schools. This is both an equity issue and a literacy issue, as many of these CSI schools are identified due to low literacy achievement and are populated by our most vulnerable students. According to a recent report by the Government Accountability Office (GAO), “CSI schools much more commonly have predominantly low-income and Black student populations and very low rates of student proficiency on state math and reading assessments, compared to all Title I schools and all public schools.” Furthermore, “almost 60 percent of CSI schools are predominantly composed of students qualifying for free or reduced-priced lunch. This rate is 1.5 times greater than for all Title I schools, and more than twice that found in all public schools.”

Fewer than half of district plans for improving the bottom 5 percent of schools in each state ... high schools where fewer than two-thirds of students graduate—meet bare minimum federal requirements, even though they received their state’s seal of approval.

ESSA requires these CSI schools to craft school improvement plans that include evidence-backed strategies to increase student achievement. Too often, these improvement plans are an exercise in compliance, with those completing them unclear about what’s being asked. Without adequate support from states and districts, many CSI school leaders produce incomplete, incorrect, and ineffective plans, which are often still approved despite these glaring flaws. According to EdWeek, “fewer than half of district plans for improving the bottom 5 percent of schools in each state ... high schools where fewer than two-thirds of students graduate—meet bare minimum federal requirements, even though they received their state’s seal of approval.”

Leadership Is Key

Many districts don’t know how or where to find evidence-backed strategies. According to the GAO report, 20 percent of approved plans include strategies that have been declared ineffective by the Education Department’s What Works Clearinghouse. Furthermore, when the GAO conducted interviews of CSI school leaders, they found that none of them were even aware of the What Works Clearinghouse, instead relying on word-of-mouth or social media for strategy recommendations.

Scholars indicate that people are often resistant to change for a variety of reasons including fear, lack of information, and lack of appropriate skills.

Even with a school improvement plan developed and the necessary knowledge to select evidence-based strategies, leading, supporting, and monitoring implementation isn’t easy. Decades of research on organizational change indicates that people are inherently resistant to change and are often more comfortable with the status quo, even when it’s flawed or ineffective. According to the Journal of Educational Leadership and Policy Studies, “scholars indicate that people are often resistant to change for a variety of reasons including fear, lack of information, and lack of appropriate skills. Nevertheless, one of the chief responsibilities of school leaders is to facilitate change strategies that will improve organizational output.”

The success of school improvement efforts often hinges on the leadership in place. According to a 2021 report by the Wallace Foundation, replacing a below-average elementary school principal with an above-average principal would translate into an increase of 2.7 months of reading per student, per year. Effective leaders are crucial for setting the vision, mobilizing efforts, and sustaining improvement over time. They play a pivotal role in fostering a culture of continuous improvement, guiding the use of evidence-based strategies, and ensuring that resources are allocated strategically to support the goals of the School Improvement Plan.

The unique challenges faced by these schools require leaders who not only have a vision for improvement but also the specific competencies to turn that vision into reality. As the Wallace Foundation report highlights, effective school leadership can have a significant impact on student learning, particularly in schools that need it the most.

A Formula for Successful Leadership

States can build the capacity of leaders by focusing on a strategic formula for fostering leadership in the context of school improvement.

1. Building Content Knowledge

Ensuring leaders have a deep understanding of the curriculum and the pedagogical approaches that are most effective in their schools.

2. Developing Organizational Change Competencies

Equipping leaders with the skills to manage change, including understanding the change process, communicating effectively, and engaging stakeholders.

3. Applying Implementation/De-implementation

Training leaders to not only implement new strategies but also to phase out practices that are no longer effective.

When combined, these elements can lead to increased teacher investment and commitment to school improvement.

Building Content Knowledge

To be effective, principals must be instructional leaders, meaning they need to develop the necessary content knowledge to support their teachers. While they don’t need to be experts in every subject, they must be able to recognize good practice and provide actionable, constructive feedback. Furthermore, they must use their power and position to create space for their staff to implement new programs and initiatives. Researcher Anette Forssten Seiser explains, “Pedagogical leading is about arranging the conditions for teachers so that they are given the opportunity to improve their teaching. Pedagogical leaders do not only talk about changes but also call for concrete actions in schools' internal work. Principals' pedagogical leading involves orchestrating the surrounding arrangements in such a way that they enable school's learning and collaborative practices.”

Organizational Change Competencies

In the realm of organizational dynamics, a competency transcends the basic qualifications listed on a resume, such as degrees or years of experience. It is a pattern of behavior—thinking, feeling, acting, or speaking—that enables an individual to excel in their role. Within an organization, each job has a unique set of competencies that, when performed at a high level, lead to consistent success. These competencies are the unseen skills that determine how a person will perform under specific circumstances and can be developed and enhanced through coaching. For leaders spearheading organizational change or school improvement initiatives, there are four critical competencies:

• Driving for Results
• Influencing for Results
• Problem Solving
• Personal Effectiveness

Leaders who excel in driving for results establish systems for making data-informed decisions about student outcomes. Similarly, those who are adept at influencing results create a culture of shared leadership among teachers. Schools where leaders demonstrate these competencies often experience rapid and sustained improvement.

Implementation/de-implementation

If you ask any school leader to list the new initiatives they’ve seen come and go over their careers, you’re likely to be in for a long conversation. Education is a field rife with new ideas, innovations, and imperatives that schools are expected to implement, often on top of a slew of initiatives in various stages of implementation from previous years. Unfortunately, given the multitudinous demands placed on schools, few programs are given the time, attention, and support needed to be effective.

In his book, De-Implementation: Creating the Space to Focus on What Works, Peter M. Dewitt encourages educators to declutter. He asks that we step back and evaluate what is worth holding on to, and what we need to let go of so that we can focus on the things that actually impact student learning. Too often, educators and leaders fall prey to the next big thing, the program in the shiny new package that claims to be based on brain science, and the things that we’re emotionally attached to, without any evidence that these things are worth our time and energy—two precious and scarce resources in education. To improve, leaders must first de-implement practices that are not serving their staff and students.

This equation represents the synergy needed to drive meaningful and lasting change in schools. Professional development programs and leadership academies can be designed with a curriculum that integrates these components, providing leaders with practical, hands-on experience in driving improvement efforts. By doing so, states can ensure that leaders are prepared to foster an environment where teachers are deeply invested in the school’s mission and committed to the continuous improvement of their practice and student outcomes. It’s a comprehensive approach that addresses the multifaceted nature of school leadership and improvement.

To connect across support services and design effective school leadership support for leaders of CSI/TSI schools, SEAs can consider the following strategies:

1. Integrated Planning and Collaboration

Encourage cross-departmental teams within the SEA to collaborate on planning and implementing leadership support services. This can help break down silos and ensure a cohesive school improvement approach.

2. Leadership Academies

Design and offer targeted professional development for leaders of CSI/TSI schools to develop and enhance their skills in areas such as organizational change, implementation science, support and monitoring systems.

3. Peer-to-Peer/Communities of Practice

Connect CSI school leaders across the state through a CoP facilitated by leaders who have been successful in leading a school improvement effort. Connecting CSI leaders will scale up improvement efforts and curate effective practices.

Leadership Coaching

Engage former leaders who have successfully navigated similar challenges and are well-versed in school improvement best practices. Their expertise can guide the implementation of effective strategies and the phasing out of less effective practice.

By implementing these strategies, SEAs can create a more connected and effective system of support for school leaders, particularly those in schools requiring comprehensive support and improvement. It’s essential to foster an environment of continuous improvement and adaptability to meet the evolving needs of school leaders and their communities.

Resources

For more information on developing these competencies, consider exploring the Great Teacher and Leader modules or the School Turnaround brief, which provide further insights into effective leadership practices.

Mikkaka Overstreet is a principal consultant at Education Northwest specializing in literacy and serves on the Oregon Early Literacy Educator Preparation Council. She is passionate about helping make quality, equitable education a reality for all kids— especially those who have been historically marginalized based on their identities.

Catherine Barbour is a senior director at Education Northwest specializing in equity-centered school improvement and school leadership. For over thirty years, she has helped some of the lowest-performing districts and schools in the nation achieve equity-driven improvement.