BILL ANALYSIS Ó AB 484 Page A Date of Hearing: May 15, 2013 ASSEMBLY COMMITTEE ON APPROPRIATIONS Mike Gatto, Chair AB 484 (Bonilla) - As Amended: April 24, 2013 Policy Committee: Education Vote:6-0 Urgency: Yes State Mandated Local Program: No Reimbursable: No SUMMARY This bill extends authorization for the state's K-12 assessment system from July 1, 2014 to January 1, 2024 and renames it the California Measurement of Academic Performance and Progress for the 21st Century (CalMAPP21). Suspends non-core subject area California Standards Assessments (CSTs) administered under the Standardized Testing and Reporting (STAR) program, beginning in the 2013-14 school year, until new assessments addressing the Common Core (CC) Standards are developed and implemented. Specifically, this bill: 1)Defines CalMAPP21 as the comprehensive assessment system with the primary purpose of modeling and promoting high-quality teaching and instruction using a variety of assessment approaches and item types in both the federal Elementary and Secondary Education Act (ESEA) required and non-required ESEA subject areas. 2)Requires only the following STAR assessments to be administered beginning in the 2013-14 school year: (a) core subject area CSTs in grades 3-11 necessary to satisfy the federal No Child Left Behind Act of 2001 (NCLB - current version of the ESEA); (b) the California High School Exit Exam (CAHSEE); and (c) assessments augmented as part of the Early Assessment Program in grade l1 until new CC Standard assessments are developed and implemented. FISCAL EFFECT AB 484 Page B 1)CalMAPP21 Costs<1> : a) 2013-14 Fiscal Year (FY) : Total GF/98 STAR contract and apportionment savings of approximately $15.1 million to only administer the required ESEA assessments. Of this savings, approximately $11.3 million is contract savings and $3.8 million is apportionment savings. The state provides local education agencies (LEAs) and charter schools with an apportionment reimbursement of $2.52 per pupil for administering these assessments. b) 2014-15 FY and beyond : While the actual costs of administering the Summative Multi-State Assessment Resources for Teachers and Educational Researchers (SMARTER) Balanced Consortium assessments are not finalized, initial estimates indicate annual total costs would be approximately $97.1 million GF/98 at full implementation, which is approximately $31.1 million GF/98 more than currently being allocated annually for the STAR program at full implementation. This assumes grades 3-11 are assessed ($66.4 million) and grade 9, 11, and 12 receive an "add-on" assessment ($30.7 million). The consortium assessments are vastly different than the current STAR assessments. For example, these assessments are designed to be online and computer adaptive as opposed to the paper - and - pencil STAR assessments currently administered to pupils. Likewise, there will be optional initial and formative assessments as part of this system. These assessments will be given throughout the year to help teachers and administrators receive interim data on how pupils are progressing on academic content throughout the year. 2)Other Costs . a) GF administrative costs to SDE, likely between $500,000 and $1 million, to convene stakeholder groups to discuss the development of an alternative assessment for individuals with exceptional needs, a science assessment aligned to the Next Generation of Science Standards, and standards-aligned primary language assessment for English -------------------------- <1>These costs are GF/98 only and do not include federal funds. The state does receive federal NCLB Title VI funds to offset state assessments costs for the STAR program, the CAHSEE, and the California English Language Development Test. AB 484 Page C learner (EL) pupils, as specified. b) GF/98 cost pressure, at least in the tens of millions, to SDE to develop non-required ESEA assessments (e.g., history-social science, science tests at the high school level, primary language assessments, and high school math assessments) and the assessments referenced above for individuals with exceptional needs and EL pupils. c) GF/98 costs likely between $500,000 and $1 million, to SDE to contract for a multi-year, independent evaluation of CalMAPP21, as specified. SUMMARY CONTINUED 1)Requires all LEAs and charter schools, beginning in the 2014-15 school year, to administer consortium assessments in ELA and mathematics in grades 3-8 and grade 11 and use these assessments to replace previously administered STAR assessments in these grade levels to satisfy federal ESEA requirements. 2)Eliminates the administration of second grade tests in the state's assessment system and those tests not required under the federal ESEA (see chart below). Further exempts recently arrived EL pupils (an EL pupil who has been enrolled in school for less than 12 months) from taking the consortium English language arts (ELA) assessment. 3)Eliminates the primary language assessments in ELA and mathematics administered to EL pupils in grades 2-11 from the state's assessment system. 4)Eliminates existing apportionment funding provided to school districts, COEs, and charter schools for the administration of the following: (a) other achievement tests in grades other than those required under CalMAPP21, (b) alternative assessment for individuals with exceptional needs, and (c) the primary language assessments for EL and non-EL pupils. 5)Requires school districts and charter schools, in the 2014-15 school year, to receive the same amount of STAR apportionment as received for the 2013-14 school year, with the requirement that districts and charter schools use the funds from the suspended assessments on CC implementation, including AB 484 Page D professional development, technology to implement CalMAPP21, or other relevant activities. 6)Authorizes SDE, beginning with the 2013-14 school year, to make available to districts and charter schools suspended STAR test forms. Further requires school districts and charter schools that choose to administer suspended assessments to do so at their own expense, as specified. 7)Authorizes SDE to enter into contracts to implement CalMAPP21 and requires the State Board of Education (SBE), as it deems necessary, to revise state assessment regulations (including establishing emergency regulations) for the purpose of implementing the new assessment system. 8)Requires the SPI, with SBE approval, to provide for the development of an alternative assessment for individuals with special needs and the degree by which pupils are achieving the academically rigorous content standards, as specified. 9)Requires the SPI to make recommendations to the SBE regarding science tests required under NCLB within six months of the adoption of the Next Generation Science Standards. 10)Requires the SPI to consult with stakeholders and subject matter experts in determining how to assess non-required ESEA subject areas, including, but not limited to, science, mathematics, history-social science, technology, and visual and performing arts. This involves developing a plan by January 15, 2015, as specified. 11)Requires the SPI, contingent on funding for this purpose, to consult with stakeholders (including EL experts) to determine if a stand-alone ELA and mathematics primary language assessment is needed to supplement the consortium assessment. Further requires this work to be completed by November 2014. 12)Requires SDE, contingent on funding for this purpose and by December 1, 2014, to identify existing grade 2 assessments in ELA and mathematics available for a diagnostic use by school districts, as specified. 13)Requires SDE to administer an LEA survey to determine how school districts are progressing toward implementation of a technology-enabled assessment system and update the results AB 484 Page E biannually. Further requires the SPI to make recommendations to the Legislature, on or before January 31, 2014, to identify LEA needs in order to implement the system. 14)Requires SDE to contract for a multi-year independent evaluation of the assessments, including annual reports. 15)Requires the Superintendent of Public Instruction (SPI) to produce assessment materials for parents in languages other than English, upon determination that funds are available for this purpose. COMMENTS 1)Rationale . As a condition of applying for the federal Race to the Top (RTT) grant program, states were required to adopt the CC Standards in ELA and mathematics by the fall of 2010. In August 2010, the SBE adopted these standards. The U.S. Department of Education, using Race To The Top grant funding, issued a competitive grant for the development of a comprehensive assessment system based on the Common Core (CC) Standards in ELA and mathematics that would adhere to the testing requirements of the federal Elementary and Secondary Education Act (ESEA). ESEA requires testing in ELA and mathematics in grades three through eight and once in grades 10 through 12. Two assessment consortia were funded through this process: the Partnership for the Assessment of Readiness for College and Careers and the SMARTER Balanced Assessment Consortium. Each consortium was awarded grant funding to develop an assessment system aligned to the CC Standards in ELA and mathematics and to help participating states implement the standards and the common assessments. Both consortia are scheduled to operationalize assessments 2014-15 and include use computer administered assessments. In June 2010, California joined the SMARTER Balanced consortium. Participation in this consortium requires California to administer and use the assessments developed by the consortium to meet the ESEA Title I requirements in the 2014-15 school year. This bill implements this requirement and specifies the primary purpose of the state's assessment system - CalMAPP21 - is the consortium assessments, as AB 484 Page F specified. 2)Current law establishes STAR as the state's primary K-12 assessment system . This program consists of three elements: (a) California Standards Tests (CST), including tests in Spanish for specified grades; (c) the Spanish Assessment of Basic Education primary language test, and (d) the California Alternative Performance Assessment for special education pupils. The STAR program is scheduled to sunset in 2014. This measure renames the state's assessment system and provides that only those CSTs administered in grades 3-8 and grade 10 will be administered in the 2013-14 school year. The following table displays the current STAR assessments and whether or not they are included in the proposed CalMAPP21, as specified. ---------------------------------------------------------- | Assessment | Required | Suspended | | | (per ESEA) | (non-ESEA) | |---------------------------+---------------+--------------| |ELA - Grade 2 | | X | |---------------------------+---------------+--------------| |ELA - Grades 3-8 | X | | |---------------------------+---------------+--------------| |ELA - Grades 9-11 | | X | |---------------------------+---------------+--------------| |CA Alternative Performance | | | |Assessment (CAPA) - ELA - | | X | |Grade 2 | | | |---------------------------+---------------+--------------| |CAPA - ELA - Grade 10 | X | | |---------------------------+---------------+--------------| |CAPA - ELA - Grade 11 | | X | |---------------------------+---------------+--------------| |Math - Grade 2 | | X | |---------------------------+---------------+--------------| |Math - Grade 3-8 | X | | |---------------------------+---------------+--------------| |CAPA - Math - Grade 9 | | X | |---------------------------+---------------+--------------| |CAPA - Math - Grade 11 | | X | |---------------------------+---------------+--------------| |Algebra I - Grades 7-8 | X | | AB 484 Page G |---------------------------+---------------+--------------| |General Math - Grade 8 | X | | |---------------------------+---------------+--------------| |Geometry - Grade 8 | X | | |---------------------------+---------------+--------------| |Algebra II | | X | |---------------------------+---------------+--------------| |Summative Math - Grades | | X | |9-12 | | | |---------------------------+---------------+--------------| |Integrated Math - Grades | | X | |9-12 | | | |---------------------------+---------------+--------------| |CAPA - ELA - Grades | | | |---------------------------+---------------+--------------| | | | | |---------------------------+---------------+--------------| |Science - Grade 5 | X | | |---------------------------+---------------+--------------| |Life Science - Grade 10 | X | | |---------------------------+---------------+--------------| |Biology | | X | |---------------------------+---------------+--------------| |Chemistry | | X | |---------------------------+---------------+--------------| |Earth Science | | X | |---------------------------+---------------+--------------| |Physics | | X | |---------------------------+---------------+--------------| |Integrated Science | | X | |---------------------------+---------------+--------------| |History-Social Science - | | X | |Grade 8 | | | |---------------------------+---------------+--------------| |U.S. History - Grade 11 | | X | |---------------------------+---------------+--------------| |Primary Language | | X | |Assessment | | | |(ELA - Grades 2-11) | | | |---------------------------+---------------+--------------| |Primary Language | | X | |Assessment | | | |(Math - Grades 2-7) | | | ---------------------------------------------------------- AB 484 Page H 3)Elimination of the primary language assessment . SB 1448 (Alpert), Chapter 233, Statutes of 2004, required SDE to establish primary language CSTs for ELA and mathematics. To date, there are Spanish CSTs available for pupils enrolled in grades 2-11 in ELA and for pupils enrolled in grades 2-7 in mathematics. Also, Spanish CST are available for pupils enrolled in algebra I and geometry. Statute authorizes a pupil to take a primary language CST. The pupil, however, is required to take this assessment in addition to all CSTs in English for specified subjects (i.e., ELA, mathematics, history/social science, and science). According to SDE, 34,346 EL pupils took the Spanish CSTs in ELA and 36,887 EL pupils took the Spanish CST for mathematics in 2012. Current law authorizes EL pupils enrolled in school less than 12 months or who receive primary language instruction and non-EL pupils, as specified, to take the standards-aligned primary language assessment. This information provides valuable information on a pupil's knowledge of the ELA and mathematics standards. For example, an EL pupil may have academic content knowledge, but this knowledge cannot be measured accurately if he or she does not understand the test because it is in English. There were 1.4 million ELL pupils enrolled in California schools. This represents 22.3% of all children enrolled in school. According to SDE, 35% of ELLs are enrolled in kindergarten. The committee may wish to consider requiring SDE to continue administering the current primary language assessment and develop a new primary language assessment aligned to the CC Standards. 4)Related legislation . a) AB 959 (Bonilla), pending in this committee, requires the SPI and the SBE, in consultation with the University of California (UC), the California State University (CSU), the California Community Colleges (CCCs), and other specified groups, to recommend specific use of the summative results of middle and high school Common Core (CC) assessments by UC, CSU, and CCCs for entry into college, course placement, career opportunities, and assessment programs at the college level. b) SB 247 (Liu), pending in the Senate Appropriations AB 484 Page I Committee, extends the STAR Program by two years from July 1, 2014 to July 1, 2016. This measure also eliminates the requirement that pupils in grade 2 be assessed in ELA and mathematics under this program and instead, requires SDE, beginning July 1, 2014, to make available to school districts information regarding existing diagnostic assessments that are appropriate for second grade. Analysis Prepared by : Kimberly Rodriguez / APPR. / (916) 319-2081