BILL ANALYSIS Ó SENATE COMMITTEE ON EDUCATION Carol Liu, Chair 2013-2014 Regular Session BILL NO: AB 484 AUTHOR: Bonilla AMENDED: June 17, 2013 FISCAL COMM: Yes HEARING DATE: June 26, 2013 URGENCY: Yes CONSULTANT:Lynn Lorber SUBJECT : Pupil assessments: transition to common core assessments. SUMMARY This bill, an urgency measure, (a) suspends all assessments that are not required by federal law, (b) provides a transition to new assessments that are aligned to the common core standards in English language arts and mathematics, (c) requires the development of updated primary language assessments and alternate assessments for pupils with exceptional needs, and (d) requires the development of plans for updated assessments in other subject areas. BACKGROUND Standardized Testing and Reporting (STAR) program Current law establishes the State's assessment system that consists of several assessments, including the STAR program. Assessments within the STAR program are the standards-aligned California Standards Tests, primary language assessments, alternate assessments and modified assessments. (Education Code § 60640) Many elements of the STAR program are used by California to meet the assessment and accountability requirements of the federal Elementary and Secondary Education Act (ESEA), which requires states to administer a standards-aligned achievement test in reading and mathematics to all students in grades 3-8 and grade 10. NCLB also requires assessment of science, once in each grade span of 3-6, 7-8, and 10-12 (California assesses science in grades 5, 8, and 10). Current law authorizes high school juniors to take "augmented" AB 484 Page 2 grade 11 assessments in English language arts and mathematics to learn about their readiness for college-level English and mathematics. (EC § 99300) Primary language assessment California's primary language assessment, the Standards-based Tests in Spanish (STS), assesses pupil achievement of California's content standards for Spanish-speaking English learners. The STS is a component of the Standardized Testing and Reporting (STAR) program. The STS tests are administered in two content areas: reading/language arts (RLA) and mathematics. The RLA tests are administered to pupils in grades 2 through 11 and the STS grade-level mathematics tests are administered to pupils in grades 2 through 7. Pupils who take the STS are required to also take the standards-aligned assessments in English (the California Standards Tests). Results from the assessments administered in English are counted towards a school's accountability measures, while results from the STS are not included in a school's accountability measures. Common core standards The State Board of Education (SBE) adopted common core state standards in English language arts and mathematics on August 2, 2010. Current law requires the SBE to adopt revised frameworks that are aligned to the common core standards in: 1) Mathematics by November 30, 2013. 2) English language arts by May 30, 2014. (EC § 60207) California joined the Smarter Balanced Assessment Consortium (SBAC) as a governing state in 2011, for the purpose of developing assessments that are aligned to the common core standards. A condition of becoming a governing member state, California committed to administering the SBAC assessments to pupils beginning in the 2014-15 school year. http://www.cde.ca.gov/ta/tg/sa//sbac-faqs.asp Next Generation Science Standards AB 484 Page 3 Current law requires the SBE to adopt, reject or modify updated science standards by November 30, 2013. The standards are developed by a group of experts convened by the SPI, and based upon the Next Generation Science Standards (an initiative of the National Research Council, Achieve, the American Association for the Advancement of Science and the National Science Teachers Association). Accountability Current law requires the Academic Performance Index (API) to consist of a variety of indicators including the results of STAR tests, the California High School Exit Exam, attendance rates, and high school graduation rates. (EC § 52052(a)(4)) The results of the STAR tests and the high school exit exam constitute at least 60% of the value of API scores. (EC § 52052(a)(4)(C)) To date, the only indicators used to calculate the Academic Performance Index (API) have been test scores. Therefore, test scores constitute 100% of API scores. Current law requires, beginning with the API Base calculation in 2016, to constitute no more than 40% of the value of the API for high schools, constitute at least 60% of the value of the API for elementary and middle schools. Current law authorizes the Superintendent of Public Instruction (SPI), with the approval of the SBE, to: 1) Incorporate the rates at which pupils successfully promote from one grade to the next in middle school and high school and successfully matriculate from middle school to high school into the API. 2) Incorporate valid, reliable, and stable measures of pupil preparedness for postsecondary education and careers into the secondary school API. 3) Develop and implement a program of school quality review that features locally convened panels to visit schools, observe teachers, interview students, and examine student AB 484 Page 4 work, if an appropriation for this purpose is made in the annual Budget Act. (EC § 52052) The API is also used for purposes of calculating Adequate Yearly Progress, as required by the federal No Child Left Behind Act. Transition to a new assessment system The SPI released recommendation for the transition to a new assessment system in January 2013. This bill implements many of those recommendations. http://www.cde.ca.gov/ta/tg/sa/documents/suptrecrpt2013.pdf#searc h=assessment%20transition&view=FitH&pagemode=none ANALYSIS This bill , an urgency measure, (a) suspends all assessments that are not required by federal law, (b) provides a transition to new assessments that are aligned to the common core standards in English language arts and mathematics, (c) requires the development of updated primary language assessments and alternate assessments for pupils with exceptional needs, and (d) requires the development of plans for updated assessments in other subject areas. Specifically, this bill: Suspension of existing assessments and administration of new assessments 1) Changes the name of the Standardized Testing and Reporting (STAR) program to the California Measurement of Academic Performance and Progress for the 21st Century (CalMAPP21). 2) Suspends, beginning in the 2013-14 school year, all STAR assessments not required for federal accountability purpose pursuant to the Elementary and Secondary Education Act (currently known as No Child Left Behind) and assessments used as part of the Early Assessment Program. Charts of which assessment would be suspended and those that would remain are on Page 9. This bill provides that these assessments are to be suspended until new assessments addressing the common core standards are developed and implemented. 3) Requires, beginning with the 2014-15 school year, all AB 484 Page 5 school districts, charter schools and county offices of education to administer the Smarter Balanced Assessment Consortium (SBAC) assessments in English language arts and mathematics in grades 3-8, and grade 11. This bill requires the SBAC assessments to replace previously administered STAR assessments in English language arts and mathematics to satisfy federal accountability requirements. Exempts recently arrived English learners from taking the federally required assessment in English language arts, as allowable by federal law. These pupils are currently required to take a primary language assessment and are currently required to also take the assessment in English language arts. Authorizes, beginning with the 2013-14 school year, the California Department of Education (CDE) to make available to school districts and charter schools the assessments that have been suspended. This bill provides school districts with the option to administer suspended assessments, but requires school districts to pay for all associated costs. Early Assessment Program (EAP) 4) States legislative intent that, beginning with the 2014-15 school year, the assessments currently used for the EAP should be replaced with the grade 11 SBAC assessments. New assessments in science and history-social science, and other subjects 5) Requires the Superintendent of Public Instruction (SPI) to make a recommendation to the State Board of Education (SBE) for science assessments used to satisfy federal accountability requirements (grades 5, 8, and 10). This bill requires the recommendation to be made within six months of the adoption of the Next Generation Science Standards (expected in November 2013). This bill requires the recommendations to include a plan for test development beginning in July 2014, and cost estimates and a plan to implement the assessments beginning in the 2016-17 school year. AB 484 Page 6 6) Requires the SPI to make recommendations, in consultation with specified stakeholders, regarding the grade level, content, and type of assessment. This bill requires the SPI to consider the use of consortium developed assessments, innovative item types, computer-based testing, and a timeline for implementation. 7) Requires the plan for assessments in other subject areas to include cost estimates and a plan to implement history-social science assessments beginning in the 2018-19 school year. 8) Requires the Superintendent of Public Instruction (SPI) to consult with stakeholders and subject matter experts to develop a plan for assessing content areas for subject areas (and grade levels) not required by federal law to be tested. This bill lists science, mathematics, history-social science, technology, visual and performing arts, and other subjects as appropriate. This bill requires the plan to be presented to the State Board of Education (SBE) for consideration and approval by February 1, 2015, and requires the SBE approved plan to be submitted to the Governor, Chairs of education policy and fiscal committees, by March 1, 2015. 9) Requires the plan for additional assessments to: a) Consider the use of various assessment options, including computer-based tests, locally scored performance tasks, and portfolios. b) Include the use of a state-determined assessment calendar that would schedule the assessment of tests not required by federal law over several years, the use of matrix sampling if appropriate, and the use of population sampling. c) Include a timeline for test development beginning in July 2015. d) Include cost estimates and a plan to implement history-social science assessments beginning in the AB 484 Page 7 2018-19 school year. e) Include cost estimates for other subject areas not required by federal law. 1) Requires the SPI to develop and administer subject area assessments not required by federal law upon the appropriation of funding, and requires the SBE to approve test blueprints, achievement level descriptors, testing periods, performance standards, and reporting plan. 2) Requires districts, charter schools and county offices of education to administer assessments in addition to those required by federal law as determined by the SBE. Primary language assessments 3) Requires the SPI to develop and administer a primary language assessment by the 2016-17 school year, to the extent that funding is provided for this purpose. 4) Requires the Superintendent of Public Instruction (SPI) to consult with stakeholders to determine the content and purpose of a stand-alone English language arts summative assessment in primary languages other than English. 5) States legislative intent that the primary language assessment be included in the state accountability system. Currently, results from the assessments administered in English are counted towards a school's accountability measures, while results from the Standards-based Tests in Spanish (STS) are not included in a school's accountability measures. 6) Requires the SPI to consider the appropriate purpose for the primary language assessment, including support for the State Seal of Biliteracy and accountability. 7) Authorizes the California Department of Education (CDE) to make available to school districts and charter schools the existing primary language assessment, and authorizes the administration of the existing assessments. 8) Authorizes school districts to administer the existing primary language assessment until a subsequent primary AB 484 Page 8 language assessment aligned to the common core standards in English language arts is developed. Contracts 9) Authorizes CDE to enter into contracts to implement the administration of assessments that are exempt from the requirements of the Public Contract Code and the Military and Veterans Code relative to awarding the contract to the lowest bidder. 10) Deletes current law that requires test publishers to meet specified criteria to be eligible for consideration to be awarded the contract, including providing disaggregated scores. This bill leaves intact the current requirement that the contractor comply with all conditions and requirements of the contract to the satisfaction of the State Board of Education (SBE) (and SPI as added by this bill). 11) Requires the State's assessment system to include the development of a contract(s) with a vendor for the development or administration of achievement tests and performance standards aligned to state-adopted content standards. Reporting results 12) Modifies the existing requirement that the test publisher make individual pupil, grade, school, district and state results available by August 8, to instead require the SPI to recommend and SBE to adopt a calendar for the delivery and receipt of summative assessment results (pupil, school, grade, district, county and state levels). 13) Adds the condition "for assessments that produce individual pupil results" to the requirement that individual results be reported to schools and teachers. 14) References providing aggregated results of assessments and strikes existing law relative to providing disaggregated results. Accountability AB 484 Page 9 15) Requires the Superintendent of Public Instruction (SPI) to make recommendations (by when?) to the State Board of Education (SBE) regarding transitioning the Academic Performance Index as the State transitions from the Standardized Testing and Reporting ( STAR) to the California Measurement of Academic Performance and Progress for the 21st Century (CalMAPP21). Setting performance standards 16) Requires the SPI to recommend, and the SBE to adopt levels of pupil performance on summative achievement tests, in subject areas required by federal law and subject areas not required by federal law, at each grade level. This bill excludes the Smarter Balanced Assessment Consortium (SBAC) assessments from this requirement, as SBAC developed the performance standards for the SBAC assessments. 17) Requires the performance standards to be reviewed every five years to determine whether adjustments are necessary. 18) Deletes the requirement that the SBE adopt a performance standards system, including performance levels and performance level descriptors (SBAC is developing this system for the SBAC assessments). Miscellaneous 19) Requires CDE to acquire and offer at no cost to school districts, contingent on the appropriation of funding, interim and formative assessment tools offered through SBAC. 20) Requires districts, charter schools and county offices of education to administer field tests and pilot tests of the SBAC assessments. 21) Modifies the stated purpose of the State's comprehensive assessment system: a) From: "assisting teachers, administrators, pupils and parents to improve teaching and learning, including first and foremost, to provide information on the academic status and progress of individual pupils." AB 484 Page 10 b) To: "model and promote high-quality teaching and learning, including providing information to pupils, parents, teachers, schools and school districts on a timely basis so the information can be used to further the development of the pupil or to improve the educational program." 22) Repeals the Statewide Pupil Assessment Review Panel, which was to develop an assessment of applied academic skills for grades 4, 5, 8 and 10. 23) Requires the SPI to produce the currently-required materials describing the State's assessments for parents in languages other than English. This bill states intent that the existing clearinghouse for multilingual documents be used to meet this requirement. 24) Deletes the requirement that the test publisher make available a reading list that includes an index correlating ranges of pupil reading scores on the English language arts assessment to materials that would be suitable for pupils in grades 2-11. 25) Modifies existing definitions, deletes obsolete definitions, and adds new definition for terms such as "constructed-response questions," "Elementary and Secondary Education Act (ESEA) required subject area," and "summative assessment." 26) Requires, by July 1, 2014, the State Board of Education (SBE)to revise State regulations to conform to the changes made by this bill. 27) Requires the California Department of Education (CDE) to administer a survey of school districts to determine how they are progressing toward implementation of a technology-enabled assessment system, and update the survey results biannually. This bill requires the Superintendent of Public Instruction (SPI) to make recommendations to the Legislature by January 31, 2014, to identify the needs of school districts in order to be capable of fully implementing a technology-enabled assessment system. AB 484 Page 11 28) Modifies the current requirement regarding the reporting on the implementation of the State's assessment system to instead require CDE to develop a three-year plan of activities supporting the continuous improvement of the assessment system. This bill requires CDE to contract for a multiyear independent evaluation of the assessments, and report to the Governor, SPI, SBE, and education and fiscal policy committees by October 31 annually. This bill sunsets this provision on July 1, 2025. 29) Extends the sunset, by 10 years, on the Standardized Testing and Reporting (STAR) program (for the assessments that remain intact) until July 1, 2024. 30) Contains an urgency clause in order for the suspension of assessments, and the other important education initiatives, required by this bill to be in effect in time for the beginning of the 2013-14 school year. STAFF COMMENTS 1) Need for the bill . According to the author, "The State Board of Education (SBE) adopted common core state standards in language arts and mathematics on August 2, 2010. The adoption of new standards made it necessary to change California's current assessment Standardized Testing and Reporting Program (STAR) so it aligns to California's newly adopted common core state standards. To address the need for standards aligned assessments, the SBE joined the Smarter Balanced Assessment Consortium (SBAC) in June 2011. SBAC is a multistate consortium developing assessments aligned to the common core standards that will be operational by the 2014-15 school year. Current law requires the Superintendent of Public Instruction (SPI) to consult with stakeholders and develop recommendations on how best to align the current system with the new state standards. In response, the SPI's report, Recommendations for Transitioning California to a Future Assessment System, was released in January 2013." 2) New assessment system . California joined the Smarter Balanced Assessment Consortium (SBAC) as a governing state in 2011, for the purpose of developing assessments that are aligned to the common core standards. California committed AB 484 Page 12 to administering the SBAC assessments to pupils beginning in the 2014-15 school year as a condition of becoming a governing member state, as well as committing to administering pilot tests and field tests, accepting the performance standards established by SBAC (rather than by the SBE), and entering into contracts for the administration of the SBAC assessments. California is not currently bound by statutes or fiscal requirements to fulfill the commitments made to SBAC. However, the State has adopted common core standards, updated curricular frameworks, professional development modules, supplemental instructional materials, and is working on an adoption of mathematics instructional materials. School districts have been required to provide instruction on the common core standards for three years, and have spent resources to do so. Further, the 2013 Budget Act appropriates $1.2 Billion for common core activities, contingent on development of a local plan on the expenditure of funds. California could halt or slow the transition to common core-aligned assessments, but without assessments aligned to the common core standards pupils will be taught one set of standards yet take assessment aligned to prior standards. On the other hand, schools, teachers and pupils could use additional time to have greater opportunities for professional development, obtain appropriate instructional materials, deliver and receive instruction specific to the common core standards, and build computer and broadband capacity. In addition, the state could continue to require the administration of all STAR tests, rather than suspending some of those tests, schools, teachers and parents will have data on pupil achievement that is otherwise lost with the suspension of assessments not required by the federal government. Additional time to transition to a new assessment system could also be used for additional pilot and field testing and ensuring the State concurs with performance standards and other details being determined by the Smarter Balanced Assessment Consortium (SBAC). This bill requires the Superintendent of Public Instruction (SPI) to recommend to the State Board of Education (SBE) a science assessment that is aligned to the Next Generation AB 484 Page 13 of Science Standards, with a plan to administer the assessments beginning in the 2016-17 school year. This bill specifies that the assessments are to be used for federal accountability requirements (grades 5, 8, and 10). Current law requires the SBE to adopt, reject or modify updated science standards by November 30, 2013. Should this bill clearly limit the initial development of new science assessments solely for meeting federal accountability purposes (grades 5, 8, and 10)? Should the State proceed with additional assessments prior to completing the transition to SBAC assessments and the development of a new primary language assessment and an alternate assessment in English language arts and mathematics? This bill requires the SPI to develop and present to the SBE a plan for assessing content areas that are not required to be assessed by federal law (such as grade 2), by February 1, 2015, and requires the SBE to approve the plan by March 1, 2015. This bill requires the plan to include a timeline for the development beginning July 2015 of an assessment in history-social science, with a plan to administer the history-social science assessments beginning in the 2018-19 school year. It is important for the State to recognize the significance of providing assessments in subjects and grade levels beyond those required for federal accountability purposes. Should the State proceed with additional assessments and related activities prior to completing the transition to SBAC assessments and the development of a new primary language assessment and an alternate assessment in English language arts and mathematics? 3) Suspension . This bill suspends the requirement to administer any assessment not required for federal accountability purposes. See last page for charts of assessments that are proposed for suspension and assessments that would remain. This bill authorizes school districts to continue to administer assessments that have been suspended but at the expense of the district. AB 484 Page 14 The effects of suspending assessments not required for federal accountability purposes include reducing time spent on testing, capturing savings that can be used to transition to the Smarter Balanced Assessment Consortium (SBAC) assessments, and the loss of pupil test score data (for assessments not immediately replaced) that is used by schools to drive instruction. This bill requires all pupils to take the SBAC assessments in English language arts and mathematics, and does not alter the existing requirement that pupils take the California Standards Test in science. In addition, this bill authorizes school districts to continue to administer assessments that will be suspended. Therefore, all pupils across the state will not be taking a uniform set of assessments. All pupils will be taking both SBAC and STAR assessments (to meet federal accountability requirements), and some of those pupils will also be taking STAR assessments that have been suspended. 4) Timing is everything . The SBE adopted common core standards in English language arts and mathematics in August 2010, and is required to adopt revised frameworks that are aligned to the common core standards in mathematics by November 30, 2013, and English language arts by May 30, 2014. The SBE approved supplemental instructional materials that are aligned to the common core standards in English language arts in 2012, and is expected to approve supplemental instructional materials aligned to the common core standards in mathematics in July 2013. The SBE is authorized to conduct an adoption of basic instructional materials that are aligned to the common core standards in mathematics for grades K-8, by March 30, 2014. The 2013 Budget Act appropriates $1.2 billion for common core activities, as specified. Have schools and pupils had the time and resources to be fully prepared for the administration of SBAC assessments in the 2014-15 school year? 5) Primary language assessment . This bill suspends the primary language assessment, which is the Standards-based Tests in Spanish (STS) and requires the SPI to develop and administer a primary language assessment in English language arts by the 2016-17 school year. AB 484 Page 15 This bill authorizes schools to continue to administer the STS. Schools that chose to discontinue the STS will not have a primary language assessment, or the pupil-level data that is provided by that assessment for up to three years (two years for mathematics and three years for English language arts). Pupils in schools that choose to continue to administer the Standards-based Tests in Spanish (STS) would take the STS in English language arts and mathematics in the 2013-14 school year, the STS in English language arts and the Smarter Balanced Assessment Consortium (SBAC) assessment in math (with accompanying glossary for translation) in the 2014-15 and 2015-16 school years, and the new primary language assessment in English language arts and SBAC assessment in mathematics in the 2016-17 school year. This bill requires the development of a new primary language assessment that is aligned to the common core standards in English language arts, but does not require the development of a corresponding assessment in mathematics. The SBAC assessment in mathematics is reportedly accompanied by a glossary that is to be sufficient to serve in the place of a primary language assessment in mathematics. This bill exempts recently arrived English learners (pupils who have been in the United States for less than 12 months) from taking the federally required assessment in English language arts (currently the California Standards Test, soon to be the SBAC assessment). Federal law provides this flexibility, while current state law requires pupils who are English learners to take both the primary language assessment and California Standards Test in English language arts. This bill states legislative intent that the primary language assessment be included in the State's accountability system (currently the Academic Performance Index (API)). Currently, results from the assessments administered in English are counted towards a school's accountability measures, while results from the STS are not included in a school's accountability measures. This bill authorizes the California Department of Education to AB 484 Page 16 make available to school districts and charter schools the existing primary language assessment. 6) Assessments for students with exceptional needs . This bill suspends the California Alternate Performance Assessment (CAPA) and California Modified Assessment (CMA) that are not required for federal accountability purposes, thereby leaving intact the CAPA and CMA for grades 3-8 and grade 11 in English language arts and mathematics, CAPA for grade 10 in English language arts and mathematics, and for grades 5, 8, and 10 in science. The CDE is member of a consortium of states working to develop alternate assessments that are aligned to the common core standards. On October 1, 2012, California joined the National Center and State Collaborative Consortia, which is developing alternate achievement standards and assessment system for pupils with significant cognitive disabilities. These alternate assessments are expected to be available in 2015. The SBAC assessments will reportedly include accommodations and modifications sufficient to serve in place of the CMA. This bill does not clearly authorize schools to continue to administer the suspended California Alternate Performance Assessment (CAPA) and California Modified Assessment (CMA) assessments. The suspension of these assessments prior to the administration of replacement assessments raises concerns about the lack of pupil achievement data until new assessments are in place. 7) Comparability . Transitioning to a new assessment raises questions of comparability of results between the existing assessment and the new assessments. For accountability purposes, base scores and growth targets for the Academic Performance Index (API) are recalculated annually. It is not clear how the API will be calculated at the point where the Standardized Testing and Reporting (STAR) tests are used for the base and Smarter Balanced Assessment Consortium (SBAC) assessments are used for the growth. The SBAC assessments are computer-adaptive; schools are authorized to administer the SBAC assessments on paper for up to three years. The computer-adaptive assessments will by its nature assess a broader range of skills than the paper-and-pencil version. SBAC will reportedly conduct ongoing technical work to ensure that the results of the AB 484 Page 17 paper-and-pencil version of the assessment can be aggregated with the results of the computer-adaptive version to generate a valid accountability measure. States administering SBAC assessments are afforded a 12-week test window. This may accommodate schools that do not have sufficient computer capacity for a large pupil population, but also raises concerns that some pupils could be assessed with 12 weeks less instruction. According to the Frequently Asked Questions on CDE's website, "SBAC will continue to evaluate the impact of the summative assessment administration window on student scores during the pilot test (early 2013) and the field test (early 2014) to determine whether adjustments in scoring or administration are necessary." 8) Accountability . Both the state and federal accountability systems (Academic Performance Index and Adequate Yearly Progress, respectively) are based primarily upon pupil test score data. Both accountability systems also link interventions to that data. There is concern that pupil test score data, based on new assessments aligned to new standards, will not immediately be a reliable measure for accountability purposes. In addition, the state will have information about pupil achievement on fewer assessments upon the suspension of assessments not required by federal law. This bill requires the SPI to recommend to the SBE regarding transitioning the API as California transitions from the STAR program to the California Measurement of Academic Performance and Progress for the 21st Century (CalMAPP21). It is not clear what this means, nor is a timeline provided for these recommendation. Further, it is not clear how these recommendations will correspond with the recommendations that the advisory group that is currently required to develop, nor why it is necessary to develop additional or separate recommendations regarding the transition to a new accountability system. How do the accountability measures in the Local Control Funding Formula (LCFF) change the accountability landscape? Does LCFF accountability significantly change the overall use of test scores for accountability? Under the LCFF, all school districts and county offices of education are required to AB 484 Page 18 have plans that provide blueprints on how they will provide among other things, implementation of academic content and performance standards and measure pupil achievement using statewide assessments and other holistic elements. The United States Department of Education recently announced that schools participating in the field testing of the consortium assessments will not be required to also administer existing state standardized assessments. This helps schools that participate in the field testing of SBAC assessments because all pupils in California are required to take the Standardized Testing and Reporting (STAR) tests - pupils in school field testing will also take the SBAC field test. The U.S. Department of Education is proposing that field test schools would use the STAR test results from the previous year for federal accountability purposes. 9) Additional things to consider . The State has made significant commitments to the Smarter Balanced Assessment Consortium (SBAC), including the use of SBAC assessments beginning in the 2014-15 school year (according to SBAC directions on the administration of those assessments) and using the performance standards for pupil achievement established by SBAC. The SBE has historical had the role of developing performance standards, and continues to be charged with developing performance standards for non-SBAC assessments. The SBE is required to review performance standards every five years. Should the SBE also review, initially and every five years thereafter, the performance standards established by SBAC? This bill requires individual results on assessments to be reported to schools and teachers for assessments that produce individual pupil results. Is it expected that some assessments will not produce individual results? Which assessments? This bill references aggregated pupil scores and deletes current law that specifically requires the disaggregation of pupil achievement on assessments. Is it clear that the State's continues to require disaggregated pupil assessment score data? This bill authorizes the California Department of Education AB 484 Page 19 (CDE) to enter into contracts to implement the administration of assessments that are exempt from the requirements of the Public Contract Code and the Military and Veterans Code relative to awarding the contract to the lowest bidder. According to CDE, this exemption has been current practice since the Standardized Testing and Reporting (STAR) program began. This bill deletes the requirement that the test publisher make available a reading list that includes an index correlating ranges of pupil reading scores on the English language arts assessment to materials that would be suitable for pupils in grades 2-11. Is SBAC developing reading lists? Should school districts be authorized to continue to use existing reading lists? Do all teachers and pupils have sufficient computer literacy skills necessary for the new computer-adaptive assessments? 10) Technical issues . This bill requires the SPI to recommend and the SBE to adopt performance standards for assessments not required for federal accountability purposes, and requires the standard to be reviewed every five years. Staff recommends an amendment to specify that the standards are to be reviewed by the SBE. This bill modifies the currently required annual report of an analysis of assessment results, and deletes the requirement that the report be provided to the Legislature. The CDE has indicated their intent to post the report on the CDE's website and notify the Legislature of the availability of the report. Staff recommends an amendment to specifically state this process in the bill. This bill requires the SPI to provide a periodic update on the implementation of the new assessment system. Staff recommends an amendment to specify that the CDE is to provide the update to the SBE and Legislature by the process described above. This bill requires assessment to measure the degree to which pupils are achieving academic content standards adopted by the SBE, and includes several cross-references to sections of the Education Code relative to content standards. Not AB 484 Page 20 referenced is the section requiring standards for English language development that are aligned to the common core standards. That section of the Education Code will sunset on July 1, 2013. Staff notes that English language development standards are related to the California English Language Development Test (not associated with this bill); however, this section of the bill references the State's entire assessment system. Staff recommends an amendment to add the cross-reference of Section 60811.3 as it read on January 1, 2013. The definition of "high-quality assessment" provides that assessments should enable measurement of pupil achievement and pupil growth to the extent feasible. Is it not clear why it is necessary to condition the measurement of pupil growth. 11) Fiscal impact . According to the Assembly Education Committee, "the fiscal effects of this bill are as follows: a) California Measurement of Academic Performance and Progress for the 21st Century (CalMAPP21) costs (These costs are General Fund/Proposition 98 only and do not include federal funds.) i) 2013-14 Fiscal Year (FY): Total General Fund/Proposition 98 STAR contract and apportionment savings of approximately $15.1 million to only administer the required Elementary and Secondary Education Act (ESEA) assessments. Of this savings, approximately $11.3 million is contract savings and $3.8 million is apportionment savings. The state provides LEAs and charter schools with an apportionment reimbursement of $2.52 per pupil for administering these assessments. ii) 2014-15 FY and beyond: While the actual costs of administering the SBAC assessments are not finalized, initial estimates indicate annual total costs would be approximately $97.1 million General Fund/Proposition 98 at full implementation, which is approximately $31.1 million General Fund/Proposition 98 more than currently being allocated annually for the STAR AB 484 Page 21 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. b) Other Costs: i) General Fund administrative costs to CDE, likely between $500,000 and $1 million, to convene stakeholder groups to discuss the development of an alternative assessment, a science assessment, and primary language assessment. ii) General Fund/Proposition 98 cost pressure, at least in the tens of millions, to CDE 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 English learner pupils. iii) General Fund/Proposition 98 costs likely between $500,000 and $1 million, to CDE to contract for a multi-year, independent evaluation of CalMAPP21, as specified. 12) Related legislation . SB 247 (Liu) eliminates the requirement schools administer a state assessment (as part of the current STAR program) to pupils in grade 2, requires the CDE to identify an existing diagnostic assessment in English language arts and mathematics in grade 2 that is AB 484 Page 22 aligned to the common core standards, and directs savings (from the repeal of the mandate to test in grade 2) to school districts that choose to administer the grade 2 diagnostics. SB 247 is scheduled to be heard by the Assembly Education Committee on June 26. AB 959 (Bonilla) requires the SPI and the SBE, in consultation with public institutions of higher education and other specified groups, to recommend specific uses of the summative results of middle and high school common core assessments by those institutions for entry into college, course placement, career opportunities, and assessment programs at the college level. AB 959 was held on the Assembly Appropriations Committee's suspense file. SB 201 (Liu) requires the CDE to develop or contract for the development of an English language development assessment that is aligned to the common core standards, and authorizes the State Board of Education to adopt instructional materials that are aligned to the common core standards in English language arts and English language development. SB 201 is pending in the Assembly Education Committee. AB 928 (Olsen) requires standardized tests for kindergarten through grade 12 to be available for purchase by private schools to the extent the purchase would not violate any contract. AB 928 is scheduled to be heard by this Committee on July 3. SUPPORT Bay Area Council Californians Together California Teachers Association Superintendent of Public Instruction OPPOSITION California Right to Life Committee DJM Associates EdVoice AB 484 Page 23 Standardized Testing and Reporting (STAR) Program Assessments That Would be Suspended During the 2013-14 School Year (Not Required for ESEA or EAP) Grade-Level Assessments --------------------------------- |Grade 2 ELA and Mathematics (CST | | and CAPA) | |---------------------------------| |Grade 8 History - Social Science | | (CST) | |---------------------------------| |Grade 9 ELA (CST, CMA, and CAPA) | |---------------------------------| | Grade 9 Math (CAPA) | |---------------------------------| | Grade 10 ELA (CST and CMA) | |---------------------------------| | Grade 11 U.S. History (CST) | |---------------------------------| | Grade 11 ELA (CMA and CAPA) | |---------------------------------| | Grade 11 Math (CAPA) | |---------------------------------| | Grade 2 - 11 Reading/Language | |Arts (STS) | AB 484 Page 24 |---------------------------------| |Grade 2 - 7 Mathematics | |(STS) | --------------------------------- End - of - Course Assessments -------------------------------------- |Algebra I (CST and CMA) (for grades 9 | | - 11) | |--------------------------------------| | Algebra II (CST) (for grades 9 - 10) | |--------------------------------------| | General mathematics (CST) (grade 9) | |--------------------------------------| |High School Summative Math (CST) (for | | grades 9 - 10) | |--------------------------------------| |Geometry (CST and CMA (for grades 9 - | | 11) | |--------------------------------------| | Integrated Mathematics 1 (CST) (for | | grades 9 - 11) | |--------------------------------------| | Integrated Mathematics 2 (CST) (for | | grades 9 - 11) | |--------------------------------------| | Integrated Mathematics 3 (CST) (for | | grades 9 - 11) | |--------------------------------------| | Biology (CST) | |--------------------------------------| | Chemistry (CST) | |--------------------------------------| | Earth Science (CST) | |--------------------------------------| | Physics (CST) | |--------------------------------------| | Integrated/Coordinated Science 1 | | (CST) | |--------------------------------------| | Integrated/Coordinated Science 2 | | (CST) | |--------------------------------------| | Integrated/Coordinated Science 3 | AB 484 Page 25 | (CST) | |--------------------------------------| | Integrated/Coordinated Science 4 | | (CST) | |--------------------------------------| | World History (CST) | |--------------------------------------| | Algebra I (STS) | |--------------------------------------| |Geometry | |(STS) | | | -------------------------------------- Notes: EAP: Early Assessment Program CMA: California Modified Assessment ELA: English - Language Arts CST: California Standards Test CAPA: California Alternate Performance AssessmentSTS: Standards - based Tests in Spanish STAR assessments that would NOT be suspended ---------------------------------------------- |Grade 3 - 8 ELA and mathematics (CST, CAPA, | |CMA) | |----------------------------------------------| |Grade 11 ELA (CST for purposes of the Early | |Assessment Program) | |Math: Algebra II and summative assessment | |----------------------------------------------| |Grade 5, 8, and 10 Science (CST, CAPA, CMA) | |----------------------------------------------| |Grade 10 ELA (CAPA) | | | ----------------------------------------------