FRANKFORT, Ky. — The Kentucky Board of Education approved controversial new high school graduation requirements Wednesday that could have a wide-ranging impact on the future of the state's public schools, higher education institutions and workforce.

The measures, proposed by Education Commissioner Wayne Lewis, were approved by a unanimous vote of the board's eight present members. Amanda Stamper, of Lexington, was absent from the meeting.

"Today marks a different trajectory for outcomes in this state," said board chairman Hal Heiner.

Background:No Algebra 2? Kentucky may change high school graduation requirements

The requirements aim to fix a well-established problem facing Kentucky's high school students: While roughly 90 percent of them graduate each year, nearly half don't have the skills they need to be succeed in college or the workforce.

Though leaders on all fronts — from superintendents to employers — agree the issue exists, some have expressed concern that Lewis' changes aren't the best solution. Several groups representing educators had asked the board to delay its vote to give the public more time to understand the proposal and its potential consequences.

On Wednesday, Lewis said the issue was urgent and asked the board to not postpone its vote.

"I will not celebrate the awarding of Kentucky high school diplomas that we know are not well-prepared to be successful," Lewis said. "... We should all hang our heads in shame if we have anything to do with the continued reality that we hand high school diplomas to kids, telling them that they're ready to go on when we know in our hearts that all we've really given them is a certificate of attendance."

The majority of the changes, including the requirement for students to prove they’re transition ready, will take effect for freshmen entering high school next year. Incoming freshmen in 2020 will be the first class to take a high-stakes exit exam.

The test will be administered in the 10th grade and will measure students whether students have eighth-grade level math and reading skills. Students must pass the test to graduate.

Lily Gardner, a sophomore student from Lexington, has been watching debate about the requirements play out. On Wednesday, she questioned the reason for the test.

“Are we striving to simply give them the baseline skills necessary for the workforce they have been tracked to, regardless of their experiences within school, or are we attempting to provide a meaningful, holistic, and possibly even enjoyable education?” she asked. “In my school experience to date, I have seen how demoralizing it can be to not enjoy school or even how boring it can be to simply be taught material for the end-all, be-all test.”

Board members also expressed confusion about the exit exam during a nearly three-hour discussion Wednesday.

Joe Papalia, of Louisville, said he was “uncomfortable” that students would only need to demonstrate an eighth-grade level of competency to pass by the state’s standards.

Papalia, chief executive officer of Munich Welding and Deposition Technology Innovations, said he and other employers were hoping for a more rigorous test comparable to the GED, which he said would prepare students for jobs that earn about $15 to $20 per hour.

“We have to prepare people at least to that level so they’re independent,” he said. “We can’t set the bar too low.”

Lewis said setting the bar too high initially wouldn’t allow educators enough time to raise student achievement. He said that would “run the risk of inflicting damage.”

That statement echoed concerns shared by groups, including the Kentucky Education Association and the Prichard Committee, that the changes could have unintended consequences for the state’s most vulnerable students.

Brigitte Blom Ramsey, executive director for the committee, said the board’s confusion illustrated the need for further public discussion.

“We heard from multiple board members that this is a monumental decision,” Blom Ramsey said. “And the decision of high stakes testing for students – that decision has been made in the matter of a couple months with very little stakeholder agreement.

“We worry that what we’re doing is taking what could be a transformational model for the state and throwing a decades-old wrench into it,” she said.

Stephanie Winkler, president of the teachers union, issued a statement Wednesday afternoon saying that her union has no official position on the new graduation requirements.

"KEA believes there are positives aspects of these changes," she said, adding that there still are many questions and concerns that have not been addressed.

She said there must be "a thorough plan to communicate how these changes will impact local schools and students themselves."

The process to revise the state’s graduation requirements began under former Commissioner Stephen Pruitt.

Before his abrupt resignation in April – which came under pressure from a state board newly reconstituted by Gov. Matt Bevin – Pruitt had scheduled eight town halls throughout the state to hear public opinion.

Lewis canceled those town halls when he was named to the interim role by the board, instead asking for feedback through an online survey.

Groups including the Kentucky School Boards Association and the Kentucky Association of School Superintendents expressed concerns this week about whether schools would have the resources to implement Lewis’ changes, particularly around the transition readiness measure.

Check this out:How can a Kentucky high school graduate not be college or career-ready?

That measure requires students to demonstrate they’re prepared for either college or a career before they graduate. Underfunded school districts, particularly in the state’s rural counties, may struggle to provide the necessary opportunities to students, critics said.

On Wednesday, Lewis said the concerns were legitimate but did not back down on the requirement.

Lewis expects the state’s graduation rates to drop once the new requirements take effect. He would not say by how much or if certain student groups, such as those from low-income households, would be disproportionately affected.

“We had this comment today that this is a level of personal accountability, individual accountability, for students that we have not seen in the past,” Lewis told reporters. “I would adjust that statement and say that there always and there continues to be a high degree of individual accountability for kids.”

“It just happens after they graduate.”

Wayne Lewis:Critics lying to public about his proposed graduation rules

The requirements, as approved by the board, are still considered preliminary.

The public will have 30 days to provide feedback, which the board may or may not incorporate, before the changes become final.

Mandy McLaren: 502-582-4525; mmclaren@courier-journal.com; Twitter: @mandy_mclaren. Support strong local journalism by subscribing today: courier-journal.com/mandym.