Running head: G.

MARTIN EDL 775 POLICY RESEARCH AND POLITICS 1

Education and Poverty

Glenn R. Martin Sr.

Central Michigan University

G. MARTIN EDL 775 POLICY RESEARCH AND POLITICS 2

Abstract

Education reform policies, NCLB and ESSA, have at their hearts student achievement

and teacher performance, however, each policy has overlooked or disregarded a fundamental

challenge that a large fraction of students face before any learning can occur and that is poverty.

Poverty has a devastating effect on large student populations both urban and rural, and the

education reform policies that are being supported on the National level, and pushed down to the

State, and local levels do very little to address this issue. This paper will examine three policies

designed to alleviate the problems of poverty and the effects poverty has on student learning and

achievement. Understanding how poverty affects student’s ability to learn, where they learn and

the conditions under which they learn, I will choose one of the three solutions I believe will have

the greatest impact and provide evidence of my support.

G. MARTIN EDL 775 POLICY RESEARCH AND POLITICS 3

Education and Poverty

When the Every Student Succeeds Act (ESSA) became law last December, the education

community breathed a collective sigh of relief. The bill was nearly a decade overdue after

widespread dissatisfaction with its predecessor, No Child Left Behind (NCLB). The

conventional wisdom among ESSA's advocates was that the new law would refocus

attention on the country's most vulnerable students. However, a focus on the elimination

of poverty as a barrier to education for a large majority of urban and rural students did not

exist in any of the aforementioned policies, although poverty has been recognized as a

legitimate educational barrier. (Cain, A. J. 2018, March 01)

In 2017 the state of Michigan had seventy three-percent (73%) or 1,118, 605 school age

children eligible for free and reduced lunch, a standard predictor of poverty. These numbers

indicate that even the more affluent districts are serving students who are suffering from food

and housing insecurity. School Nutrition Programs like Free and Reduced lunch is one of the

largest federally funded poverty elimination programs aimed directly at eliminating poverty as a

barrier for school-age children. Students in these programs receive a healthy well-balanced meal

for part of the day, yet they face the stress of food insecurity when they arrive home.

Students in districts with high poverty are also beneficiaries of targeted funding programs

like Title I, a program designed to provide targeted services to schools and school districts with

large percentages of students in poverty. This program is designed to support and supplement

the school food service programs by providing healthy breakfasts and afterschool snacks, while

also providing educational assistance to students who are underperforming academically.

Poverty elimination programs alone are not enough. There has been a recent push to fund

professional development and require Teacher Education programs to provide training to

G. MARTIN EDL 775 POLICY RESEARCH AND POLITICS 4

teachers to help understand the effects poverty has on academic preparedness and students ability

to learn, and to bring into focus that poverty is a crisis that needs to be managed to ensure student

success and remove poverty as a barrier to a good quality educational experience.

No longer can we consider the problems and needs of low-income students simply a

matter of fairness…Their success or failure in the public schools will determine the entire

body of human capital and educational potential that the nation will possess in the future.

Without improving the educational support that the nation provides its low-income

students – students with the largest needs and usually with the least support -- the trends

of the last decade will be prologue for a nation not at risk, but a nation in decline…. (Huff

Post, 2018)

Education

“Merriam-Webster defines education as the action or process of educating or of being

educated b: knowledge, skill, and development gained from study or practice

2: the field of study that deals mainly with methods and problems of teaching.”

(www.wordcentral.com, 2018)

Most people view education as the great equalizer, meaning every person has the ability

to raise their station in life through education. Politically, the American dream is synonymous

with education and training, building a set of skills that will allow you to command a salary

commensurate with your skills and abilities.

Poverty

The World Bank Organization defines poverty as;

G. MARTIN EDL 775 POLICY RESEARCH AND POLITICS 5

Poverty is hunger. Poverty is lack of shelter. Poverty is being sick and not being

able to see a doctor. Poverty is not having access to school and not knowing how

to read. Poverty is not having a job, is fear for the future, living one day at a time.

Poverty has many faces, changing from place to place and across time, and has

been described in many ways. Most often, poverty is a situation people want to

escape. So poverty is a call to action -- for the poor and the wealthy alike -- a call

to change the world so that many more may have enough to eat, adequate shelter,

access to education and health, protection from violence, and a voice in what

happens in their communities. (www.worldbank)

Poverty then can be described as the reason those living in it struggle to become

educated. The absence of resources to provide the basic needs of many school-age children, their

families, and their communities is the central driver behind the achievement gap between poor

children and wealthy children. Knowing that this inequity exists has been the driving force

behind the development of numerous policies that focus on eradicating poverty as a barrier to

education. However, the most recent educational policies focus on teacher quality and test

scores which effectively removes poverty as the central barrier to a good quality education.

Test scores, then, are poor evidence for teacher quality because those scores mask what

impact teacher quality does have on the lives and learning of children. But this remains

ignored by many political leaders, education reformers, and the general public, leading to

three very common retorts to any recognition that poverty overwhelms the impact of

schools and teachers: (1) Poverty should not be used as an excuse. (2) If some

exceptional schools (often charters) can produce high test scores, then why can't they all?
G. MARTIN EDL 775 POLICY RESEARCH AND POLITICS 6

And (3) Just test students at the beginning and end of each year to factor out the home

conditions of the children. (Daily Kos, 2018)

Policy

There are several policies and programs designed to alleviate poverty as a barrier to

education. Three of those policies I will address in this paper. The first policy being Title I

funding which is a national program that receives its funding from the Federal Government,

whose primary role is helping schools provide services to poor students in an effort to minimize

the effects of their socio-economic status as it relates to educational attainment. There are

several types of services that are provided under Title I funding, for this paper, I will focus on the

services designed to address a student’s preparedness for learning.

Title I – A Distributive Policy

As a policy Title I one is designed to take federal funding and distribute it to school

districts that have high rates of students in poverty.

Title I, Part A (Title I) of the Elementary and Secondary Education Act, as amended

(ESEA) provides financial assistance to local educational agencies (LEAs) and schools

with high numbers or high percentages of children from low-income families to help

ensure that all children meet challenging state academic standards. Federal funds are

currently allocated through four statutory formulas that are based primarily on census

poverty estimates and the cost of education in each state. (Michigan Department of

Education)

There are four Title I grants providing direct assistance to students in high poverty school

districts, basic, concentration, targeted and Education Finance Incentive Grant (EFIG) that Local
G. MARTIN EDL 775 POLICY RESEARCH AND POLITICS 7

Educational Agencies (LEA’s) can apply for with each having their own formulation for

eligibility.

The basic grant provides funding to LEA’s that have a low number of students in poverty.

In order to be eligible for this grant, LEA’s must count at least 10 students or greater than two-

percent (2%) of the school-age population who meet the established poverty guidelines.

Concentration Grants use the same requirements for eligibility as the basic grant,

however, the funds go to LEA’s with more than 6,500 or fifteen-percent (15%) of the school-age

population live in poverty.

Targeted Grants use the same data as the basic and concentrated grants to determine

eligibility but allow for LEA’s with higher numbers or percentages of children in poverty to

receive more funding.

Finally, the Education Finance Incentive Grant (EFIG), which base the distribution of

funds on the following factors that measure:

• a state's effort to provide financial support for education compared to its relative

wealth as measured by its per capita income; and

• the degree to which education expenditures among LEAs within the state are

equalized. (Michigan Department of Education)

Once the allocation is made LEA’s receiving this funding should target this funding to

schools serving the highest population of poor students, with the option of a school-wide

program serving all students, or target services directly to students who fit the poverty criteria,

and who may be at risk for failing to meet the states academic standards.

I would argue, politically these programs look good and on some levels have achieved

some of the outcomes for which the programs were designed. However, these programs have
G. MARTIN EDL 775 POLICY RESEARCH AND POLITICS 8

had limited effect on school-age children and their families as a policy that truly challenges

poverty and creates equity. Students who are receiving educational services provided by Title I

and or take part in the school nutrition programs are only able to receive the services once they

reach the school building. Limiting the effectiveness of the services provided to students by Title

I to school operating hours. Noting, these programs may also become obsolete under ESSA, due

to the ambiguity in the law about how states comply with supplement and not supplant

requirement for the use Title I funds going forward.

Currently, schools receiving Title I funds educate more than two-thirds of our low-

income children and children of color, and yet approximately 5,750 Title I schools

nationwide received substantially less state and local funding than their non-Title I peers

within the same district. on average, these Title I schools are shortchanged by about

$440,000 per year, and the federal funds spent in these schools are often, in effect, being

used to make up some or all of that shortfall, instead of providing the additional resources

needed in high poverty schools. (FACT SHEET: Supplement-not-Supplant under Title I

of the Every Student Succeeds Act)

Teacher Preparation – Regulatory Policy/Capacity Building

The Second policy to be discussed is the preparation of teachers who teach or will be

teaching in high poverty school districts. Let’s start with the misconception most people,

politicians and even some educators have about poverty. Poverty is not just an urban problem.

Urban areas and depressed rural areas are not the only places with high rates of students living in

poverty, when in reality poor children are present in all school districts. “Millions of school-age

students in America live in poverty. You don’t have to teach in a blighted urban area or a

depressed rural region to teach students who are from a poor family.” (Teaching, 2018)
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Earlier I provided the definition of poverty, from the World Bank. In that definition, there

were several factors that contribute to poverty and each of those factors individually or

collectively may be present and create a barrier for any of the students in a school district.

Recognizing that these barriers are present and how to properly deal with them as educators, for

the students could mean the difference between success and failure.

Attempts to close the achievement gap for low-income students have often met with

limited success. Maybe that's because such efforts have ignored another kind of gap—the

gap between the skills that teachers [and, district-level administrators] must have to

provide high-quality instruction for disadvantaged students and the preparation that

teachers [and, district-level administrators] actually receive before they enter the

profession. (Supporting New Educators, 2005, pgs. 62-65)

During my interview with an urban school district superintendent, he stated: “he has

purchased books and have held several professional development days designed to help his staff

(all school district staff), understand poverty as a barrier, helping his teaching staff understand

how to teach with poverty in mind.” (Toal, P) This not only helps the students, but it helps the

staff understand the student's situation, better understand the community and families, which in

turn helps relieve their stress and anxiety about doing their jobs, which keeps staff in place and

alleviates high mobility of the teaching staff and students.

High-poverty schools have high staff mobility and high student mobility. One of the

characteristics of generational poverty is the amount of instability it brings to situations.

In this case, the instability and insecurity occur both at home and at school. To combat

high staff mobility, some school districts are offering a 5% additional pay differential to

keep staff stable. To combat high student mobility, it is imperative that schools use a
G. MARTIN EDL 775 POLICY RESEARCH AND POLITICS 10

formative assessment for students and immediately provide the interventions and safety

nets for those students. (Bing.com, 2018)

Student and staff mobility can be minimized with proper teacher training, and

prospective teacher preparation on understanding the needs of students going to school in

high poverty school districts, and providing inducements like pay incentives may bring

highly qualified experienced teachers willing to teach in those districts.

Also, consider that teachers in high poverty schools may work harder than

counterparts at schools outside of high poverty areas, because of the gap in achievement

these teachers are required to spend more time fixing student issues than actually

teaching.

“Teacher preparation programs, including graduate degrees, should require

courses that provide an overview of poverty and methods of working with this

population.” (Bing.com, 2018)

For example, in New York City public schools, teaching candidates are provided

with;

…a strong understanding of the connection between poverty and

achievement. Traditional teacher preparation programs could easily replicate this

model by requiring pre-service teaching, or at least intense observation, in

economically disadvantaged areas. Additionally, coursework that explicitly

explores the relationship between socioeconomic factors and learning will better

prepare students for the challenges of public school teaching. (Bing.com, 2018)
G. MARTIN EDL 775 POLICY RESEARCH AND POLITICS 11

Not only do current teachers and future teachers need to be properly trained on how to

properly handle the poverty barrier, but experienced teachers who are highly qualified need to be

reassigned to high poverty school districts.

Experience: Darling-Hammond (1995) observes that studies of teacher efficacy

consistently show that experienced teachers are more effective than beginners at

resolving a number of instructional and managerial problems, such as maintaining

discipline, motivating students, and adapting instruction for students with diverse

learning needs. (American Federation of Teachers, 2018)

However, as currently constructed, more novice teachers with limited classroom

experience are assigned to high-minority, high poverty school districts. “Seven in four of the five

largest school districts in Maryland, for example, schools with the highest average percentage of

novice teachers (46 percent) were compared to schools with the lowest average percentage of

novice teachers (11 percent). Eight schools with the largest proportions of novice teachers had

more than twice as many minority students, almost three times as many poor students, and less

than half as many students achieving at satisfactory levels on state achievement tests.” (AFT,

2018)

There is evidence that partnerships between schools that serve predominantly low-income

students and teacher preparation programs can have a positive outcome for both schools and

future teachers. Prospective teachers are taught judgment focused teaching which relies on the

teacher’s judgment to adapt the lessons and provide additional supports if a large number of

students do not grasp the concepts being taught, which is in direct conflict with common core

standards that require a teacher to move through the lesson plan at the dictated pace. These

partnerships also emphasized problem driven instruction where students work in collaborative
G. MARTIN EDL 775 POLICY RESEARCH AND POLITICS 12

groups on task that emphasize comprehension and literacy, over worksheets. Practice-based

learning provides benefits for both the prospective teacher and the student, by providing

extensive reading and writing practice and providing the prospective teacher with an additional

1,000 hours of teaching experience. Allowing the prospective teacher the rare opportunity to

practice the lesson taught in their methods class in a live classroom environment, with the added

benefit of more adults in the schools leading to more focused one on one interventions.

National Poverty Elimination Programs – Distributive/Redistributive Policy

The third and final policy analysis focuses on national poverty elimination programs

aimed at relieving the sting of poverty for the families and communities where these poor

students live. To help combat poverty and eliminate poverty as a barrier to education, the state of

Michigan through funding from the federal government provides several different food service

programs for poor children, their families, and their communities. For the purposes of this paper,

I will focus on the programs that are directly related to schools and school-aged children.

School Nutrition Programs

Study after study has shown that when students come to school prepared, they have better

outcomes. Preparedness begins with rest and nutrition. Students who eat a healthy well-balanced

meal, behave well, perform better, and have better cognitive development. They actively

participate in the educational experience, and a healthy eating environment teaches them about

the benefits of nutrition.

The National School Lunch, School Breakfast, and Afterschool Snack Programs were

established to make nutritionally balanced, low-cost meals, snacks, and/or milk available

statewide to children through the completion of high school. These federally funded meal
G. MARTIN EDL 775 POLICY RESEARCH AND POLITICS 13

entitlement programs are available to public and nonprofit private schools, and residential

child care institutions. (MDE Food & Nutrition Programs)

Nationally over 30 million or seventy-percent (70%) of school-age students are receiving

free or reduced meals through their school districts food service programs. These children come

from families that are between one-hundred thirty percent (130%) to one-hundred fifty percent

(150%) of the federal poverty level, in other words these students are some of the poorest

students in the country, who live in some of the poorest communities and go to school who have

large population of students fitting this criterion. For a majority of these students, school is the

only place they can get a well-balanced and nutritious meal.

Students who receive free and reduced lunch rely on the schools to be open in order to

receive a good meal. Most schools are not year-round and close several times a year including

several weeks during the summer limiting access for this population of students to good healthy

meals. For these students, the summer food service programs were created to provide additional

support during the long summer break.

The Summer Food Service Program (SFSP) was created to ensure that children in lower-

income areas could continue to receive nutritious meals during long school vacations

when they do not have access to the National School Lunch or School Breakfast

Programs. The SFSP, also known as Meet Up and Eat Up, is operated at the local level by

program Sponsors and is administered in Michigan by the Michigan Department of

Education (MDE), Office of Health and Nutrition Services. (MDE Food & Nutrition

Programs)

However, with the neighborhood schools being closed for financial reasons and those that

remain, closed for the summer, students have to be able to get to the site where meals are being
G. MARTIN EDL 775 POLICY RESEARCH AND POLITICS 14

provided in order to utilize this service. (MDE Food & Nutrition Programs) The Director of

MDE Health and Nutrition services, Stated; “Food and housing insecurity is a crisis in our

schools here in Michigan, and there is really no legislative will to talk about the elimination of

poverty on a statewide scale. I believe until we as a country decide to tackle poverty for the

whole family our educational systems will continue to struggle.”

For the poor access to the programs and services that are designed to eliminate barriers

also creates barriers. Community-based food service programs that provide meals to every

eligible person in the community would make access easier.

“A poverty strategy may be more likely to succeed if it addresses the more specific

problems that are of concern to groups and communities, that policymakers and community

problem solvers can get their heads around, and for which “success” and “failure” can be both

visualized and measured.” (Bing.com, 2018)

Conclusion

As a nation, we must address poverty, as a crisis and condition that will have detrimental

effects on our future, understanding that poverty is an impediment to any real attempts at

education reform.

The achievement gap between children from different income levels exists before

children enter school. Families are children’s most important educators. Our society must

invest in parental education, prenatal care, and preschool. Of course, schools must

improve; everyone should have a stable, experienced staff, adequate resources and a

balanced curriculum including the arts, foreign languages, history, and science. If every

child arrived in school well-nourished, healthy and ready to learn, from a family with a
G. MARTIN EDL 775 POLICY RESEARCH AND POLITICS 15

stable home and a steady income, many of our educational problems would be solved.

And that would be a miracle. (Ravitch, 2018)

There are several nation poverty elimination programs that have been in existence since

1964 when the original war on poverty began 57 years ago. Today there are more than 51% of all

school-age children in the United States living in poverty and attending public schools. “Time is

not change.” (Matthews, D. 2014) If education is really going to be the great equalizer, the goal

of any future school reform policy designed to close the achievement gap in high poverty school

districts, utilizing student and teacher performance, should focus on addressing poverty through

teacher training and professional development. This a very direct way to address the problem at

the classroom level, without creating new and more costly policies and programs.
G. MARTIN EDL 775 POLICY RESEARCH AND POLITICS 16

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