BILL ANALYSIS                                                                                                                                                                                                    



                                                                       



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          |SENATE RULES COMMITTEE            |                  SB 1357|
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                              UNFINISHED BUSINESS


          Bill No:  SB 1357
          Author:   Steinberg (D)
          Amended:  8/20/10
          Vote:     21

           
           SENATE EDUCATION COMMITTEE  :  8-0, 4/14/10
          AYES:  Romero, Huff, Alquist, Hancock, Liu, Price,  
            Simitian, Wyland
          NO VOTE RECORDED:  Maldonado

           SENATE APPROPRIATIONS COMMITTEE  :  10-0, 5/27/10
          AYES:  Kehoe, Alquist, Corbett, Denham, Leno, Price,  
            Walters, Wolk, Wyland, Yee
          NO VOTE RECORDED:  Cox

           SENATE FLOOR  :  35-0, 6/1/10
          AYES:  Aanestad, Alquist, Ashburn, Calderon, Cedillo,  
            Cogdill, Corbett, Correa, Cox, Denham, DeSaulnier,  
            Ducheny, Dutton, Florez, Hancock, Harman, Hollingsworth,  
            Huff, Kehoe, Leno, Liu, Lowenthal, Negrete McLeod,  
            Padilla, Pavley, Price, Romero, Runner, Simitian,  
            Steinberg, Strickland, Wolk, Wright, Wyland, Yee
          NO VOTE RECORDED:  Oropeza, Walters, Wiggins, Vacancy,  
            Vacancy

           ASSEMBLY FLOOR  :  76-1, 8/25/10 - See last page for vote


           SUBJECT  :    California Longitudinal Pupil Achievement Data  
          System

           SOURCE  :     Author
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           DIGEST  :    This bill requires the California Department of  
          Education (CDE) to include pupil attendance data on chronic  
          absentees in the Annual Report on Dropouts in California  
          and in the California Longitudinal Pupil Achievement Data  
          System (CALPADS), and to provide related reports to local  
          educational agencies on demand.

           Assembly Amendments 
           
          1.Expand the provisions of preparation that the CDE must  
            use in preparing CALPADS.

          2.Require the periodic reports by CALPADS to local  
            educational agencies to include district, school, class,  
            and individual pupil rates of absence and chronic  
            absentees.

          3.Make the implementation of the provisions regarding the  
            inclusion of pupil attendance data in CALPADS contingent  
            upon the appropriation of federal funds specifically for  
            the purposes of those provisions.

          4.Made other technical changes.

           ANALYSIS  :    

           Existing Law

           1.Defines a truant as a pupil who is absent from school  
            without valid excuse tree full days in one school year or  
            tardy or absent for more than any 30-minute period during  
            the school day without a valid excuse on three occasions  
            in one school year, or any combination thereof.

          2.Requires any pupil who has once been report as a truant  
            and who is again absent or tardy to again be reported as  
            a truant.

          3.Defines a habitual truant as a pupil who has been  
            reported as a truant three or more times per school year  
            (at least five days), if an appropriate district officer  
            or employee has made a conscientious effort to hold at  

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            least one conference with a parent and the pupil.

          4.Requires, beginning August 1, 2011, the Superintendent of  
            Public Instruction to produce the Annual Report on  
            Dropouts in California using the California Longitudinal  
            Achievement Data System (CALPADS).

          This bill:

          1.Makes legislative findings and declarations about the  
            relationship between, and the causes and prevention of  
            dropping out of school and low pupil attendance.

          2.States legislative intent regarding efforts to improve  
            pupil attendance and prevent dropouts.

          3.Requires the Superintendent of Public Instruction (SPI)  
            to include "chronic absentee rates" in the Annual Report  
            on Dropouts in California, and defines "chronic absentee"  
            to mean a pupil who is absent for 10 percent or more of  
            the schooldays in a school year.

          4.Requires the CDE, contingent upon the receipt of federal  
            funds for this purpose and in consultation with the  
            Department of Finance and the Legislative Analyst's  
            Office, to prepare CALPADS to include quarterly rate of  
            pupil attendance data, to support efforts to identify and  
            support pupils at risk of dropping out, and to be capable  
            of issuing local educational agencies (LEAs) periodic  
            district, school, class and individual pupil reports on  
            rates of absence and on chronic absences.  Requires the  
            CDE to consult with organizations representing school,  
            district, and county education administrators, classified  
            and certificated staff, and parents in this process.

          5.Requires early warning systems, that may be developed, to  
            utilize highly predictive indicators, including  
            attendance, course grades or completion, pupil  
            achievements on assessments, suspensions and expulsions,  
            have predictive reliability of the systems ensures  
            through thorough validation, and provide periodic early  
            warning reports that inform principals, teachers, and  
            parents in a manner that enables timely identification  
            and support of individual pupils who are at risk of  

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            academic failure or dropping out.

          6.Authorizes a LEA to submit data on pupil attendance and  
            other indicators as identified by the CDE, when CALPADS  
            is prepared to accept data on pupil attendance, and to  
            request early warning reports, which CDE would be  
            required to provide up to four times each school year.

          7.Requires the CDE to notify LEAs that reporting pupil  
            attendance and chronic absentee data pursuant to this  
            bill is voluntary.  Requires the notification to include  
            reporting pupil attendance/chronic absentee data and of  
            developing effective supports and interventions for  
            at-risk pupils.

          8.Prohibits the provisions of this bill from being  
            implemented unless federal funds are appropriated  
            specifically for this purpose.

           Comments

           According to the author, this bill will support California  
          schools in identifying "students who are most at risk of  
          academic failure or dropping out, before it's too late."   
          The bill enables the collection of new data on student  
          absenteeism and combines that data with other predictive  
          indicators already collected by our education data system.   
          These combined indicators will become the foundation of an  
          'early warning system,' so that critical education, health,  
          and community supports can be strategically targeted before  
          students abandon school."

          The author also states that, "Chronic absence from school,  
          even in the primary grades, is one of the most accurate  
          predictors of later high school dropout.  Our education  
          data system, however, is not equipped to collect data on  
          absenteeism.  California must do more to support districts  
          and make sure that individual students, and schools, are  
          identified when they show clear signs of distress.  Once  
          identified, districts, parents, schools and communities can  
          do a better job of providing the supports needed to address  
          the problem."

          The broad vision of this bill is conceptually sound and  

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          attractive.  Research clearly links in the aggregate,  
          though not necessarily in every individual pupil, both  
          attendance and achievement, and lack of attendance and the  
          probability of dropping out of school.  Any policy change  
          that leads to more and earlier information about pupil  
          attendance being made available to parents and educators is  
          good policy in terms of leading to increases in pupil  
          achievement and decreases in the number of drop outs.  It  
          is not completely clear, however, whether the complete  
          vision of this bill and its benefits will be realized by  
          the bill's enactment, since most of those benefits depend  
          on actions or occurrences that are beyond the requirements  
          of the bill or outside of the control of the state.   
          However, this bill does establish a long-term vision and  
          take steps toward that vision, and the bill generates a  
          number of clear policy benefits in doing so.  Those  
          benefits include that the bill will make it easier for some  
          LEAs to focus on the attendance problem and react to the  
          early warning that they may get from state reports, move  
          the attention that some LEAs pay to attendance issues  
          beyond a focus on truancy only, provide a foundation upon  
          which the complete vision of a comprehensive data system  
          and pupil attendance early warning systems could be fleshed  
          out once sufficient federal or state funds are available,  
          provide benefits in terms of moving the state's educational  
          data system to be more comprehensive in nature, and provide  
          a summary of attendance data to receiving LEAs when pupils  
          transfer from one LEA to another.

           Related Legislation

          SB 1148 (Alquist) -- 2009-10 Session  .  Deems as a truant  
          any pupil who is absent from school without a valid excuse  
          for at least 10 percent of the school year, and requires  
          the permanent record of a pupil to reflect if she or she  
          has been deemed a chronic truant.  (Held in Senate  
          Appropriations on Suspense)

           SB 1317 (Leno) -- 2009-10 Session  .  Creates a new  
          misdemeanor for parents of a pupil deemed chronically  
          truant, and establishes a deferred entry of judgment  
          program specifically designed to address issues of chronic  
          truancy.  (In Assembly awaiting assignment)


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           FISCAL EFFECT  :    Appropriation:  No   Fiscal Com.:  Yes    
          Local:  No

                          Fiscal Impact (in thousands)

           Major Provisions             2010-11            2011-12           
             2012-13             Fund

           CALPADS                       $300                           
                                            Federal

          Early warning                    Unknown, potentially  
          significant              General
            reports 

           SUPPORT  :   (Verified  8/25/10)

          Advancement Project
          Association of California School Administrators
          Bay Area Council
          CA Assn for Health, Physical Ed., Recreation and Dance
          California Association of School Counselors
          CA Assn of Supervisors of Child Welfare and Attendance
          California Business Education Coalition
          California Family Resource Association
          California Federation of Teachers
          California Postsecondary Education Commission
          California School Health Centers Association
          California School Nurses Association
          California State PTA
          Children Now
          The Education Trust-West
          Fight Crime: Invest in Kids California 
          Junior Leagues of California
          League of Women Voters of California
          Los Angeles Unified School District
          Office of San Francisco District Attorney Kamala Harris
          Partnership for Children and Youth
          PICO California
          Public Advocates
          San Francisco Unified School District

           ARGUMENTS IN SUPPORT  :    According to the author's office,  
          "chronic absence from school, even in the primary grades,  

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          is one of the most accurate predictors of dropping out of  
          school.  This bill enables the collection of new data on  
          student absenteeism and combines that data with other  
          predictive indicators already collected by our education  
          data system.  These combined indicators will become the  
          foundation of an early warning system so that critical  
          education, health and community support can be  
          strategically targeted before students abandon school."

          Proponents argue that dropping out of school is the final  
          step in a process of disengagement, which if often  
          reflected in poor attendance.  However, California is one  
          of just seven states that does not collect individualized  
          attendance data, making it far more difficult to identify  
          potential dropouts or schools that are in danger of high  
          dropout rates.

           ASSEMBLY FLOOR  : 
          AYES: Adams, Ammiano, Anderson, Arambula, Bass, Beall, Bill  
            Berryhill, Tom Berryhill, Block, Blumenfield, Bradford,  
            Brownley, Buchanan, Caballero, Charles Calderon, Carter,  
            Chesbro, Conway, Cook, Coto, Davis, De La Torre, De Leon,  
            DeVore, Eng, Evans, Feuer, Fletcher, Fong, Fuller,  
            Furutani, Gaines, Galgiani, Garrick, Gatto, Gilmore,  
            Hagman, Hall, Hayashi, Hernandez, Hill, Huber, Huffman,  
            Jeffries, Jones, Knight, Lieu, Logue, Bonnie Lowenthal,  
            Ma, Mendoza, Miller, Monning, Nava, Nestande, Niello,  
            Nielsen, Norby, V. Manuel Perez, Portantino, Ruskin,  
            Salas, Saldana, Silva, Skinner, Smyth, Solorio, Audra  
            Strickland, Swanson, Torlakson, Torres, Torrico, Tran,  
            Villines, Yamada, John A. Perez
          NOES: Harkey
          NO VOTE RECORDED: Fuentes, Vacancy, Vacancy


          CPM:cm  8/26/10   Senate Floor Analyses 

                         SUPPORT/OPPOSITION:  SEE ABOVE

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