BILL ANALYSIS                                                                                                                                                                                                    Ó



                                                                      



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          |SENATE RULES COMMITTEE            |                   AB 180|
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                                 THIRD READING


          Bill No:  AB 180
          Author:   Carter (D), et al.
          Amended:  8/30/11 in Senate
          Vote:     21

           
           SENATE EDUCATION COMMITTEE  :  10-0, 6/8/11
          AYES:  Lowenthal, Runner, Alquist, Blakeslee, Hancock, 
            Huff, Liu, Price, Simitian, Vargas
          NO VOTE RECORDED:  Vacancy

           SENATE APPROPRIATIONS COMMITTEE  :  9-0, 8/25/11
          AYES:  Kehoe, Walters, Alquist, Emmerson, Lieu, Pavley, 
            Price, Runner, Steinberg

           ASSEMBLY FLOOR  :  60-0, 4/14/11 - See last page for vote


           SUBJECT  :    Education:  academic performance

           SOURCE  :     Author


           DIGEST  :    This bill requires the Superintendent of Public 
          Instruction (SPI) and State Board of Education to allow no 
          more than 10 dropout recovery high schools to use an 
          individual pupil growth model that is proposed by the 
          school and certified by the SPI, and sunsets on January 1, 
          2017.

           ANALYSIS  :    Existing law requires the SPI, with the 
          approval of the State Board of Education (SBE) to develop 
          an alternative accountability system for schools under the 
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          jurisdiction of a county board of education or a county 
          superintendent of schools, community day schools, 
          non-public schools, and alternative schools serving 
          high-risk pupils, including continuation high schools and 
          opportunity schools.  Schools in the alternative 
          accountability system may receive an Academic Performance 
          Index (API) score, but are not included in the API 
          rankings.  

          The Alternative School Accountability Model (ASAM) was 
          developed in 2000.  The ASAM is a voluntary accountability 
          program where qualifying schools select three of 14 
          reporting indicators measuring student learning readiness, 
          transition, and academic performance.  Participating 
          schools annually report on these three indicators.  Schools 
          select their reporting indicators from a list adopted by 
          the SBE in 2001.  According to the California Department of 
          Education (CDE), approximately 1,000 schools participate in 
          ASAM.

          This bill, as part of the alternative accountability system 
          for schools,  requires the SPI and the SBE to allow no more 
          than 10 dropout recovery high schools to use an individual 
          pupil growth model that is proposed by the school and 
          certified by the SPI.  Specifically, this bill:

          1. Requires the SPI and the SBE to allow no more than 
             dropout recovery high schools to use, as part of the 
             alternative accountability system, an individual pupil 
             growth model proposed by the school.

          2. Requires the SPI to review the individual pupil growth 
             model proposed by the dropout recovery high school and 
             certify that model if it meets all of the following 
             criteria:

             A.    Measures learning based on valid and reliable 
                nationally normed or criterion-referenced reading and 
                mathematics tests.

             B.    Measures skills and knowledge aligned with state 
                standards.

             C.    Measures the extent to which a pupil scored above 

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                an expected amount of growth based on the individual 
                pupil's initial achievement score.

             D.    Demonstrates the extent to which a school is able 
                to accelerate learning on an annual basis.

          3. Defines a "dropout recovery high school" as a school 
             offering instruction in any of grades 9-12 in which 50 
             percent or more of its pupils are designated as dropouts 
             pursuant to the exit and withdrawal codes developed by 
             the CDE and the school provides instruction in 
             partnership with any of the following: 

             A.    The federal Workforce Investment Act.

             B.    Federally affiliated Youthbuild programs.

             C.    Federal job corps training or instruction provided 
                pursuant to a memorandum of understanding with the 
                federal provider.

             D.    The California Conservation Corp (CCC) or local 
                conservation corps certified by the CCC.

           Comments
           
           Growth model  .  The California Standards Tests (CSTs), which 
          comprise the majority of Standardized Testing and Reporting 
          (STAR) Program, measure pupil performance on the state 
          academic standards for each grade level.  Each grade has a 
          unique set of standards and the CSTs for that grade are 
          designed to measure pupil performance against those 
          standards.  The STAR assessments were not designed to align 
          performance levels across each grade level; therefore, the 
          state cannot accurately measure student gains or losses 
          across years and schools cannot be held accountable for 
          pupil performance over time.  

           Status of ASAM  .  On November 5, 2008, the SBE approved a 
          conceptual framework for redesigning the existing ASAM 
          system.  The framework was being used by the CDE as the 
          basis for the development and eventual implementation of a 
          revised ASAM system, but funding was vetoed and therefore 
          all work on the revised ASAM has ceased.  Also reportedly 

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          due to budget reductions, the state no longer collects the 
          accountability indicators used by ASAM schools.  As a 
          result, CDE is not implementing the ASAM program.

           Prior Legislation
           
          AB 2307 (Carter), 2009-10 Session, was nearly identical to 
          this bill.  (Held on the Senate Appropriations Committee's 
          Suspense File.)

          AB 2013 (Arambula), 2009-10 Session, would have required 
          schools that enroll 100 percent of their pupils in 
          independent study programs to be included in the state's 
          alternative accountability system and made changes to 
          require mandatory participation by all alternative schools. 
           (Held on the Assembly Appropriations Committee's Suspense 
          File.)

          AB 1130 (Solorio), Chapter 273, Statutes of 2009, states 
          legislative intent regarding the examination of methods for 
          making and reporting comparisons of school and district 
          academic achievement over time based on a cohort growth 
          measure.  Passed the Senate with a vote of 36-0 on 
          September 11, 2009.

          AB 429 (Brownley), 2009-10 Session, would have required 
          examination of methods for making and reporting valid 
          comparisons of individual academic performance over time 
          and for making potential improvements in the API, so as to 
          be able to measure and report both a student's and a 
          school's academic growth over time.  Passed the Senate with 
          a vote of 35-0 on September 10, 2009.  AB 429 was vetoed by 
          Governor Schwarzenegger, whose message read:

            "I appreciate the author's intent to address the issue of 
            measuring annual academic achievement growth in schools.  
            However, this bill circumvents the authority of the State 
            Board of Education (SBE), by not providing the SBE with 
            the authority to approve or modify the recommendations of 
            the Public Schools Accountability Act advisory 
            committee."

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

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          According to the Senate Appropriations Committee:

                         Fiscal Impact (in thousands)

           Major Provisions      2011-12     2012-13     2013-14     Fund  

          CDE review, certification     Potentially significant 
          start up,           General  
                              and ongoing costs    

           SUPPORT  :   (Per Senate Education Committee of analysis 
          6/8/11 - unable to verify at time of writing)

          American Federation of State, County and Municipal 
          Employees
          California Charter Schools Association
          California Federation of Teachers
          California School Boards Association
          Inyo County Office of Education
          School for Integrated Academics and Technologies
          YouthBuild Charter School of California

           ARGUMENTS IN SUPPORT  :    According to the author, "Dropouts 
          often are far below grade level standards and re-enter 
          seeking to complete their diploma in a shorter period of 
          time than necessary in the traditional high school.  Most 
          standardized tests do not measure individual student 
          performance over time and therefore, an open entry and exit 
          education does not align with once-a-year testing.  In 
          contrast, an individual growth model can demonstrate the 
          learning gains of a student to assess the value of the 
          school's instructional program."


           ASSEMBLY FLOOR  :  60-0, 4/14/11
          AYES:  Achadjian, Allen, Ammiano, Atkins, Beall, Bill 
            Berryhill, Block, Blumenfield, Bonilla, Bradford, 
            Brownley, Buchanan, Campos, Carter, Cedillo, Chesbro, 
            Cook, Davis, Dickinson, Donnelly, Eng, Fletcher, Fong, 
            Fuentes, Furutani, Gatto, Gordon, Hagman, Halderman, 
            Hall, Hayashi, Roger Hernández, Hill, Huber, Hueso, 
            Huffman, Jeffries, Lara, Bonnie Lowenthal, Ma, Miller, 
            Mitchell, Monning, Nestande, Nielsen, Norby, Pan, Perea, 

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            V. Manuel Pérez, Portantino, Silva, Skinner, Smyth, 
            Solorio, Swanson, Torres, Valadao, Wieckowski, Yamada, 
            John A. Pérez
          NO VOTE RECORDED:  Alejo, Butler, Charles Calderon, Conway, 
            Feuer, Galgiani, Garrick, Gorell, Grove, Harkey, Jones, 
            Knight, Logue, Mansoor, Mendoza, Morrell, Olsen, Wagner, 
            Williams, Vacancy


          CPM:kc  8/30/11   Senate Floor Analyses 

                         SUPPORT/OPPOSITION:  SEE ABOVE

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