Is it really surprising that some states have low graduation rates? Fifty percent is horrible, but a target of 95% is overly optimistic. The only way you can get rates that high is if a high school diploma doesn't mean anything. If you're going by IQ,* that 5% consists of the mentally retarded. "Not mentally retarded" is not equivalent to "deserves a diploma."
* insert the disclaimer of your choice regarding IQ testing