The Houston Independent School District (HISD), one of the largest and most diverse school systems in Texas, has long served as a hub for public education in urban America. Despite this, in March 2023, it became the focus of national attention for a vastly different reason–the Texas Education Agency (TEA) takeover of the district, citing chronic underperformance and governance failures (Carballo & Bauman, 2023). As schools across HISD felt increasing pressure from governmental agencies to improve their key performance indicators, the TEA and its appointed superintendent, Mike Miles, took HISD as their testing ground for substantial state-led reforms. The appointment of Miles and the implementation of his New Education System (NES) marks a critical moment in HISD’s history. The outcomes of the NES will impact the future of educational policy not just for Houston, but for urban school districts across the country (Patel, 2023). This literature review will examine how past educational reforms, specifically in Dallas Independent School District (DISD), have fared and how the NES builds upon or diverges from those strategies. By focusing on standardized test scores and teacher retention, key performance indicators that have historically defined reform success. This review will explore whether HISD’s new system can rise to meet the challenges that led to its takeover.

In Texas, the TEA holds the authority to intervene in school districts that consistently fail to meet academic and governance standards, as outlined in the Texas Education Code, Chapter 39 (Texas Statutes, 2005). This legal foundation for intervention became more refined in 2015 with the introduction of House Bill 1842, driven by Texas State Representative Harold Dutton, who was focused on the persistent low academic performance at his alma mater, Wheatley High School and the surrounding institution, Kashmere High School (Onyeneho, 2023). HB 1842 granted the TEA expanded powers to intervene in underperforming school districts, occurring when a campus in a district fails to meet state accountability standards (receiving a "D" or "F" rating) for five or more consecutive years. The process, prescribed in HB 1842, begins with the district being required to create a turnaround plan for the underperforming campuses, which must address student performance goals and include community input. The TEA commissioner has the authority to approve, reject, or demand revisions to these plans. If the campus does not meet acceptable performance standards after the implementation of the turnaround plan, the Commissioner of Education is legally obligated to take further action, such as closing the campus or appointing a board of managers to oversee the district. This framework ensures a step-by-step escalation, culminating in a takeover if improvement is not achieved (Texas Legislative Study Group, 2023). In 2019, in HISD, , TEA Commissioner Mike Morath signaled intent to intervene at the district level. Although HISD initially contested the decision in court, the legislative clarification provided by SB 1365 in 2021 solidified the TEA’s authority, enabling the takeover to proceed in 2023. This decision involved replacing HISD's elected board with a state-appointed board of managers and introducing a new superintendent, Mike Miles (Texas Legislative Study Group, 2023).

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State takeovers have been used across Texas as a means of intervening in school districts that experience prolonged academic underperformance and internal issues. State takeovers have happened across the United States and showed mixed results, but specifically, in Texas, the TEA has seen major improvements following takeovers. Since 2000, the TEA has implemented boards of managers in seven districts across Texas; all districts, except one, showed improvements in standardized test scores (Mendez, 2023). Although it is unclear how these gains compare with progress in non-takeover districts, Houston’s vast and diverse student population makes this takeover, along with the implementation of Mike Miles’ NES, an especially challenging and ambitious endeavor. For the TEA, the takeover of HISD represented a last resort to ensure that students receive a quality education–one that Mike Miles has framed as both a challenge and an opportunity for Houston’s residents and students alike (Kelly, 2024).

As part of the state intervention, the TEA and Education Commissioner, Mike Morath, appointed Mike Miles as superintendent along with a board of managers to oversee district operations in HISD. Miles, who previously served as superintendent of Dallas Independent School District (DISD), earned a controversial reputation for his leadership style. Known for his firm approach, he received sharp criticism among his trustees for perceived stubbornness and arrogance, while his tenure in Dallas saw only limited improvements in STAAR exam scores–a critical measure for evaluating superintendents’ effectiveness (From Staff Reports, 2024). This raises the question: Why did the TEA choose Mike Miles for HISD’s critical overhaul, despite his controversial track record at DISD? When Miles came to DISD in 2012, he proposed an ambitious improvement plan called Destination 2020, aiming for substantial academic progress across the district. This plan included rigorous new evaluation systems that ranked principal and teacher performance, implemented a pay for performance scale, emphasized frequent classroom observations, and standardized teaching strategies across all schools in DISD (Hobbs & Haag, 2024). Notably, the NES echoes many elements of Destination 2020; similarly, the NES introduced performance-based evaluations and frequent teacher observations, and focuses resources on underperforming campuses in unique ways. This continuity raises both hope and concern: Will the NES yield better results in Houston, or will it repeat the divisive outcomes seen in Dallas?

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Research on the effectiveness of school district takeovers provides valuable insights into the potential and limitations of said interventions. Wong and Shen’s study (2002), which examines city and state takeovers in major urban areas across the nation from 1992 to 2000, highlights key differences in outcomes based on the type of takeover. State-led takeovers have demonstrated mixed outcomes, often hindered by administrative scandals and political tension, challenges that are evident within HISD and its community. A notable example includes a TEA report citing trustee misconduct as a contributing factor to the district's struggles (Ray-Hart & Hennes, 2023).

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The Houston Federation of Teachers (HFT) released an official statement in early May giving Mike Miles a resolution of no confidence, calling Miles’ appointment to HISD “...a politically motivated, irresponsible experiment that is worsening inequities and disenfranchising Houston voters” (Houston Federation of Teachers, 2024).
From the start of the takeover, the lack of public input and negligible transparency
with parents and the community was prophetic. The failure to gather teachers' input

on students' needs indicated early in this experiment that Miles would take a top-
down approach to "solving" HISD issues. Decisions on curriculum, teacher

evaluation, and leadership have not been based on proven peer-reviewed and
research-based best practices. Miles’ HISD has exploited a District of Innovation
loophole in order to hire large numbers of unaccredited teachers, and he has

removed obstacles to this betrayal of academic standards by stacking decision-
making roles on the District Advisory Committee in his favor, subverting the will

of our community, and jeopardizing our students’ learning development (Houston
Federation of Teachers, 2024).
While this resolution does not have any legal weight, it underscores the deep dissatisfaction within the community and highlights the growing concern over the direction of HISD under Miles’ leadership. This statement reflects a broader sentiment that decisions affecting the district are being made without adequate transparency, input or consideration of the long-term impact on students, teachers, and the broader Houston community. The NES, spearheaded by Miles, introduces a rigid structure emphasizing standardized metrics, centralized lesson plans, and a tiered learning model. While these reforms aim to enhance academic performance, they have sparked significant backlash from students and educators who feel alienated by the inflexible curriculum and fast-paced expectations. According to critics, the NES limits creativity and adaptability in the classroom, leaving little room for addressing individual learning needs. This dissatisfaction is amplified by the reduction of traditional support systems, such as certified librarians and individualized teacher input, replaced by scripted lessons and untrained learning coaches (Kelly, 2024).

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The concerns expressed by the HFT not only highlight dissatisfaction with Miles’ leadership but also point to deeper systemic issues that have significant implications for the district’s stability–chief among them, teacher retention. Teacher turnover has been recognized as a critical indicator of an institution's health, as it directly affects student learning. Research done by Henry and Redding (2018) explores the average effect of faculty turnover and its correlation to student achievement. There are three key factors discussed that reflect clearly in HISD: classroom disruption, staff instability, and differences in the quality of replaced teachers. It is proven that children and adolescents thrive in a nurturing and stable environment; mid-year departure of educators creates an unfamiliar and destabilizing experience for students, which can be reflected in testimonials from Wheatley and Kashmere students alike. Houston Public Media interviews with such students offer a sobering glimpse into the real-life impact of teacher turnover under the NES. Kashmere High senior Kevin Terrel expressed frustration with the rigid structure of the new reforms, lamenting that “they took away all our freedom and joy,” as well as expressing his concerns with the supporting community aspect that has been stripped from Houston schools.
"I ain’t gonna lie, I come to school every day mad, angry, depressed, all of that —
full of feelings of rage. I feel like they need emotional support at school for
students...Because simply asking us a question every single day about how we feel
or whatever — like just not trying to sit down and talk to us, chop it up with us,
take time out of their day, out of your workday to help us better ourselves, our
mental — like what are you here for? All you're doing is just getting paid to tell us
A-B-C-D, 1-2-3" (Walsh, 2023).
Similarly, Wheatley High senior Rodney Deshar voiced concerns about the overwhelming workload, while Kashmere junior DiCapryon Euell-Holloway, shared his frustrations regarding teacher turnover stating, “...all the teachers that tried to help me and my situation — who understood me — they’re gone. And I feel like now I’m empty because the people that actually made me come to this school are gone now" (Walsh, 2023). These accounts not only highlight dissatisfaction with the NES but also underscore the emotional toll on students, especially those whose trusted teachers–educators who offered support and stability–have been replaced or removed altogether. This disconnects between students and the new educational model raises significant questions about the broader implications of teacher turnover and leadership transitions within HISD.

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While the concerns surrounding teacher turnover and the student experience under the NES have raised concerns about its long-term sustainability, one of the most objective measures of success lies in standardized test scores, for example the State of Texas Assessments of Academic Readiness exam (STAAR). These scores provide a key indicator that the TEA relies on to assess the academic performance of schools. Despite criticism from Houston community members and educators, it is essential to explore whether these changes have had any measurable impact on student achievement regarding standardized testing outcomes. From 2010 to 2019, Wheatley High had failed to meet state standards, while Kashmere High has had a conservator overseeing the underperforming campus since 2016.

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Since the takeover in 2023, preliminary data has shown minor improvements in STAAR test scores across a wide range of grades and curriculum. In a press conference in June, Miles praised the higher scores achieved under the NES, stating, “The STAAR exams are valid and reliable assessments, but they are only given once a year, so it’s a snapshot of how our kids are doing on proficiency. We also use other data to determine how well our kids are doing...The overwhelming majority of our kids had a good experience academically...” (Grunau, 2024). This “other data” is not clearly disclosed by Miles and also contradicts student testimonials, specifically by students in Wheatley and Kashmere High School. Miles’ view of success seems to focus more on numbers while overlooking the broader and more complex educational experience, which highlights significant dissatisfaction. As Nusaiba Mizan, a reporter who covers education for the Houston Chronicle notes, the district focuses on students who “meet” or “master” grade level expectations, which indicate higher thresholds of performance, rather than passing rates (Asch, 2024). This selective view allows the district to present its results in a more favorable light, but it obscures the struggles of students who are barely approaching grade level or falling behind. Standardized test scores may show academic progress, but they do not fully capture the quality of education or long-term effects on overall student development. Moreover, it is important to recognize that one year of data does not establish a trend; these academic gains may be circumstantial or fail to be replicated in the next school year. Without long-term data, any celebration of achievement is premature and risks showing overconfidence in the system, potentially overshadowing the very real challenges students and teachers continue to face.