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Most American students are still performing below their pre-pandemic counterparts in reading and math, while the yawning gap between high-achieving and low-performing students got even wider, data from “the nation’s report card” shows.
Results released Wednesday from the 2024 National Assessment of Educational Progress, or NAEP, paint a sobering picture of academic haves and have-nots. Scores are increasing for many students who already do well, while struggling students stagnated or fell even further behind their peers. That’s making a trend that began about a decade ago even more pronounced.
In some cases that divide was historic: Lower-performing fourth and eighth graders posted the worst reading scores in over 30 years. In eighth grade math, the gap between the highest- and lowest-performing students was the widest in the test’s history.
“The news is not good,” Peggy Carr, commissioner of the National Center for Education Statistics, told reporters on Tuesday. “Student achievement has not returned to pre-pandemic levels, reading scores continue to decline, and our lowest performing students are reading at historically low levels.”
Scores saw a dramatic decline in 2022 after students endured two disrupted pandemic school years marked by closures, quarantines, and remote learning. But in 2024, reading scores declined even more for both fourth and eighth graders.
“This is a major concern — a concern that can’t be blamed solely on the pandemic,” Carr said. “Our nation is facing complex challenges in reading.”
Fourth grade math was the lone bright spot, with average student scores ticking up two points on the 500-point scale. But much of that increase was driven by improvement among top performers.
Eighth grade math scores held steady, with gains among higher-performing students canceling out declines among lower-performers.
All of the children who took the NAEP last year had at least some of their education affected by the pandemic. The fourth graders were in kindergarten when schools closed in March 2020, while eighth graders were in fourth grade.
The results are sure to fuel ongoing debate about whether schools are doing enough to help struggling students, especially those who are the farthest behind, the role that school closures played in exacerbating learning gaps, and whether schools effectively spent the nearly $190 billion they received in federal COVID relief dollars.
The new NAEP scores have landed as conservatives push to expand private school choice, public schools grapple with budget cuts, culture war skirmishes persist, and chronic absenteeism remains at historically high levels. Students who performed the worst on the NAEP test were more likely to be frequently absent from school, Carr noted.
“We have a larger-than-in-recent-memory share of American students who are failing to demonstrate even partial mastery of the types of skills educators have defined as important,” said Martin West, a professor at the Harvard Graduate School of Education and the vice chair of the NAEP Governing Board, which decides the test’s content and approves questions. “That doesn’t bode well for their futures or for our collective futures.”
The new data come from tests taken in early 2024 by nearly half a million students across thousands of U.S. schools.
Worrying decline in NAEP reading scores continues
On average, fourth and eighth grade students scored two points lower in reading than their counterparts in 2022 and five points lower than students in 2019. Only in Louisiana, where the state superintendent has put a major focus on reading, did fourth grade reading scores rise above 2019 levels.
The share of fourth graders who scored at the very bottom of the NAEP scale was at its highest point in 20 years. The share of eighth graders scoring at the lowest level was the highest ever. And in both grades, students who did not reach the NAEP Basic level — relatively low performers at the 25th percentile and under — had lower scores than in 1992, when the first NAEP test was given.
When a fourth grader can’t meet the NAEP Basic level, it doesn’t mean they cannot read. But it likely means they would struggle with easier skills, such as sequencing events in a story or stating an opinion using supporting evidence from a text. Eighth graders who fall below NAEP Basic would have trouble identifying basic literary elements, such as character motivation and the main idea.
NAEP results show how many students score below, at, or above two thresholds: NAEP Basic and NAEP Proficient. Proficient is considered a high bar, above what most states set as grade level expectations. Reaching the NAEP Basic threshold indicates students have achieved partial mastery of fundamental skills and knowledge for that grade level.
The rise in students who don’t meet that mark is of particular concern.
The dips in reading come as dozens of states overhaul their reading instruction with materials that better align with the science of reading. And while federal education officials are usually reticent to explain what caused a particular increase or decrease in scores, Carr cautioned that the near-universal dips in reading should not be taken as evidence that reading reforms have not worked.
She pointed to the example of Louisiana, where fourth graders are scoring better in reading than they did in 2019, bucking the national trend. That state has focused heavily on the science of reading “but they didn’t start yesterday,” Carr said.
“They were able to pull this off, and not only improve to pre-pandemic levels, but exceed them, and bring their lower-performers along,” she said. “I would not say that hope is lost.”
Still, Lesley Muldoon, the executive director of the NAEP Governing Board, said the growing share of children who cannot read at the NAEP Basic level, which generally corresponds with state proficiency standards, is concerning.
If a fourth grader can’t meet that in reading, “we’re saying that they’re unlikely to determine the meaning of a familiar word using context from the text,” Muldoon said. “That is a crucial skill that students really need for entering middle school.”
NAEP math scores show recovery — but also stagnation
In fourth grade math, average scores increased two points from 2022 but were still three points lower than pre-pandemic levels. Only in Alabama did fourth graders have higher scores than their 2019 counterparts. The average score was lifted by high-performing students who saw greater gains, while lower-performing students did about the same as in 2022.
Fifteen states and 14 urban districts saw improvements compared with 2022. District of Columbia Public Schools posted 10-point gains, well above the national average. D.C. schools also showed improvements for both low- and high-performing students, as did schools in Atlanta, Baltimore, Houston, Los Angeles, Miami-Dade County, and Guilford County, North Carolina.
Eighth grade math was a different story. There was no change in average scores because while high performers did better than their counterparts in 2022, low performers did worse.
Middle school math has been a problem area in the pandemic’s wake. Some students struggled to learn key concepts virtually, such as how to divide fractions or graph a line. That lack of knowledge followed them. Others may have had content repeated often because their classmates were absent a lot, which put them behind in their lessons.
West, the NAEP Governing Board member, said it appeared the pandemic accelerated the decline among low-performing eighth graders in math, but it was even more striking that “the bottom continued to fall out” from 2022 to 2024.
“The main takeaway is that: What we’ve done as a nation, including the federal recovery dollars, has been insufficient,” he said.
Students who struggle in middle school often end up locked out of more advanced math in high school that can open doors to higher-paid careers in STEM fields.
Mark Miller, who teaches eighth grade math in Colorado’s Cheyenne Mountain School District, said declining student motivation and “stick-to-it-ness” might be contributing. In recent years, struggling students in his classroom have needed a bigger nudge to dig in on difficult problems than when he started teaching nearly two decades ago.
“The coach in me has had to reach into my coaching motivational speeches in my classroom just as much as I have had to on the court or on the field,” said Miller, who is also a former NAEP Governing Board member. Many students think: “If I want to know something, I can look it up in two seconds, why do I need to persevere through learning how to solve systems of equations or learning how to solve a word problem?”
One thing his school is trying: Keeping kids who did not meet certain math standards in the same classes as their peers while providing extra support, instead of moving them to remedial math. The hope is that teachers can fill in gaps with mini lessons along the way, and that struggling students will feel more confident in their math abilities if they’re learning alongside their peers.
NAEP score gaps have consequences for ‘equitable society’
While the pandemic surely has had a lasting impact on students, the gap between high- and low-performers appears to have started growing about a decade ago. Similar gaps have appeared on international tests and are more stark for American students than for those in other countries that also experienced pandemic disruptions.
Theories abound: The federal government eased up on school accountability measures, and school leaders took their eyes off the lowest performers. The Great Recession, with its economic traumas followed by deep spending cuts, left a lasting scar on American education. Phones are sapping our attention span and cognitive abilities.
Nat Malkus, a senior fellow at the American Enterprise Institute, highlighted the trend in an analysis posted last week in advance of the NAEP release. He noted that the growing divide between high and low performers even shows up on a recent skills test for adults who haven’t been in school in years, complicating the idea that something school-related is the main driver.
The trends defy easy explanations and likely have multiple causes, he said.
Tests such as NAEP can’t answer the why. But Malkus hopes that researchers with access to student-level data can start digging in more. Are low-performing students concentrated at certain schools? Do they share certain characteristics? Or are they enrolled in schools with both high and low test scores?
He also hopes that superintendents and principals seek out this data about their own schools and find ways to support low-performing students even when average test scores look good.
“What this means for the story for an equitable society is enormous,” he said.
Yet there doesn’t seem to be enough urgency to get to the bottom of the problem, said Dan Goldhaber, who directs the Center for Analysis of Longitudinal Data in Education Research at the American Institutes for Research.
While his research and others found that federal pandemic aid helped academic recovery, Goldhaber said it’s reasonable to ask if it could have done more. In the rush to get money out the door, a real opportunity was missed to collect data that would have shown which interventions really move the needle for struggling students, he said.
“I think we will look back in 25 years, and we will see all these kids have these outcomes in life that were predicted by this major decline,” he said. “The message is everywhere, but I don’t see much appetite to address it.”
Erica Meltzer is Chalkbeat’s national editor based in Colorado. Contact Erica at emeltzer@chalkbeat.org.
Kalyn Belsha is a senior national education reporter based in Chicago. Contact her at kbelsha@chalkbeat.org.
