BILL ANALYSIS                                                                                                                                                                                                    

                                                                    AB 2548

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          Date of Hearing:  May 4, 2016


                               Lorena Gonzalez, Chair

          2548 (Weber) - As Amended April 11, 2016

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          Urgency:  No  State Mandated Local Program:  YesReimbursable:   


          This bill requires the State Board of Education (SBE) to adopt a  
          statewide accountability system aligned to California's local  
          framework and that satisfies the federal accountability system  


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          requirements of the Every Student Succeeds Act (ESSA).  
          Specifically, this bill:  

          1)Requires the SBE, with regard to developing the statewide  
            accountability system, to rely upon data from key indicators  
            established pursuant to the evaluation rubrics adopted by the  
            SBE. Requires, at a minimum, the key indicators to include all  
            of the following:

             a)   For elementary and middles schools, a measure of: pupil  
               achievement in at least English language arts, mathematics,  
               and science; academic growth; progress toward English  
               proficiency; chronic absenteeism; school climate.

             b)   For high schools, a measure of: pupil achievement in at  
               least English language arts, mathematics, and science;  
               graduation rates; progress toward English proficiency;  
               college and career readiness; chronic absenteeism; and  
               school climate.

             c)   Requires substantial weight and, in aggregate, much  
               greater weight, to be given to the measure of: pupil  
               achievement in ELA, math and science; academic growth and  
               progress towards English proficiency. 

          2)Requires, in identifying appropriate assistance for a school  
            or LEA, the CCEE and the county superintendents of schools to  
            analyze data aligned with all the state priorities in order to  
            align the level of support, collaboration, and intervention to  
            the needs of the LEA or individual school or schools.


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          3)Requires the accountability system to ensure the creation of a  
            data and reporting system that provides meaningful and  
            accessible information on school and school district  
            performance that is displayed through an electronic platform.  
            Parents and the public must have the ability to easily access,  
            compare, analyze, and summarize school reports, pupil  
            performance results, and the progress made by schools and  
            school districts in reaching all of the state's priority areas  
            for purposes of local control and accountability plans and the  
            local control funding formula. 
          FISCAL EFFECT:

          1)Unknown General Fund costs, potentially in the hundreds of  
            thousands of dollars, for CDE to comply with the data  
            components of this bill. This bill requires data to be  
            provided to parents and the public that is "meaningful and  
            accessible" and displayed through an electronic platform. The  
            bill requires parents and the public to have the ability to  
            easily access, compare, analyze, and summarize school reports,  
            pupil performance results, and the progress made by schools  
            and school districts in reaching all of the state's priority  
            areas.  The current school data systems, CALPADs and  
            DataQuest, do not present data in this format.  It is not  
            clear if CDE would be able to adapt existing systems or if a  
            new data system would need to be developed. Either way,  
            significant resources would be needed to present data in this  

          2)Unknown Proposition 98/GF cost pressures, in the millions of  
            dollars, to the extent this expanded accountability system  
            identifies more school districts or school sites in need of  


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            state intervention and assistance.  

          3)The CDE estimates ongoing General Fund costs of $320,000 for  
            two positions to support the development, implementation, and  
            maintenance of a new state/federal aligned accountability  
            system.  These positions are needed irrespective of this bill.  
             The CDE has submitted a budget request for this staffing  
            support and the request is still being considered by the  

          1)Purpose. According to co-sponsors of this bill, Children Now  
            and Education Trust West, this bill will align the state and  
            federal accountability requirements, avoiding the confusing  
            and sometimes conflicting systems of the past, and bringing  
            together the strengths of both systems to promote high levels  
            of achievement and equity.  Specifically, according to the  
            sponsors, the bill proposes to establish common "key  
            indicators" that apply to both districts and schools and also  
            align with the state's values. The bill also sets forth  
            criteria for identifying districts and schools in need of  
            support and improvement and clarifies that the CCEE and county  
            superintendents shall analyze data aligned with all of the  
            state priorities in order to align the level of support,  
            collaboration, and intervention to the needs of the local  
            education agency or individual school or schools.  The bill  
            also requires the development of a data dashboard, showing  
            student outcomes from multiple measures. 


          2)Background. The Local Control Funding Formula (LCFF) was  
            enacted to provide a more equitable distribution of education  
            dollars-especially among districts with populations of low  
            income pupils, English learners, and pupils in foster care-and  


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            to provide more local discretion over the use of those  
            dollars.  Accountability for the use of those dollars is  
            achieved though the requirement for local education agencies  
            to adopt and annually revise their local control  
            accountability plans (LCAPs).  Each LCAP must address eight  
            state priorities that include a mix of inputs (such as  
            appropriate teacher assignment and level of parental  
            involvement) and outputs (such as performance on academic  
            assessments or English learner reclassification rates). The  
            law also provides that schools and school districts may be  
            identified by county superintendents of schools and the SPI as  
            needing intervention and support. The state created the CCEE  
            to assist the state with these supports and interventions.


            While much of the structure for these new requirements is set  
            in statute, the law also gave significant authority to the  
            State Board of Education (SBE) to develop regulations  
            governing the expenditure of funds and to develop a system of  
            continuous improvement for all schools.  As the state was in  
            the middle of redesigning its accountability system, the  
            federal government adopted the Every Student Succeeds Act  
            (ESSA) in December 2015.  This has presented California with  
            the opportunity to craft one single, coherent state-federal  
            system of accountability.  

            The SPI established the Accountability and Continuous  
            Improvement Task Force to advise the state in the development  
            of the new accountability system.  The Task Force, which began  
            meeting in September 2015, consists of 30 members representing  
            a broad cross section of the education and academic  
            communities, as well as organizations representing parents and  
            other stakeholders.  Children Now, the sponsor of this bill,  
            is represented on the Task Force.

            The Task Force is in the process of preparing a final report,  


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            which will be presented to the SBE in May.  

          3)Debate over key indicators. Since January, the SBE has been  
            discussing how the enactment of the federal Every Student  
            Succeeds Act (ESSA) presents an opportunity to develop a  
            single coherent local, state and federal accountability and  
            continuous improvement system grounded on LCFF.  Because the  
            current LCFF evaluation rubrics propose using the key  
            indicators to analyze performance of LEAs and schools, the SBE  
            has determined that the availability, reliability and  
            comparability of quantitative data statewide is an essential  
            characteristic for potential key indicators.  It is not  
            possible to analyze performance on a statewide basis if the  
            underlying data is either not available at the state level or  
            is defined or collected inconsistently.  


            Some of the key indicators proposed to be added by this bill  
            (school climate and college and career readiness) have been  
            considered and denied by the SBE at this stage in the process.  
            The SBE found, while these indicators are important for  
            informed local decision making, they are not appropriate for  
            the current LCFF evaluation rubrics because data are not  
            currently collected and/or reported statewide.  

            According to the SBE Agenda for May 16, 2016, the SBE staff  
            recommendation is to adopt the following key indictors:  
            student test scores; progress of English learners toward  
            English language proficiency; high school graduation rate;  
            pupil achievement in grade 3 ELA and Grade 8 Math using the  
            state CAASPP scores; and suspension rates by grade span. Staff  
            also recommends the SBE develop an annual process to consider  
            key indicators as valid and reliable data becomes available in  
            the future, for example, issues such as chronic absenteeism  


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            and performance on science assessments. These are indicators  
            also included in this bill.

          4)Opposition. The California Teachers Association is opposed to  
            this bill. The CTA states this bill is premature in its  
            assertion of key indicators for determination of intervention  
            and technical support for districts and COEs for each of the  
            state priority areas.  They note the SBE is still in the  
            process of identifying key indicators and other metrics for  
            implementation of the LCAP rubrics. Establishing additional  
            requirements in legislation hinders adjustments and changes  
            that may be needed as the state  continues to implement the  
            components of the statewide accountability system and align  
            the system to new federal policies that are also still under  
            development.  CTA believes the process for developing an  
            accountability program requires time and should be deliberate  
            and sequential. They believe this bill would impede the  
            current process. 

          Analysis Prepared by:Misty Feusahrens / APPR. / (916)