BILL ANALYSIS                                                                                                                                                                                                    



                                                                    AB 2548


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          ASSEMBLY THIRD READING


          AB  
          2548 (Weber)


          As Amended  May 27, 2016


          Majority vote


           ------------------------------------------------------------------ 
          |Committee       |Votes|Ayes                  |Noes                |
          |                |     |                      |                    |
          |                |     |                      |                    |
          |                |     |                      |                    |
          |----------------+-----+----------------------+--------------------|
          |Education       |5-0  |Olsen, Kim, McCarty,  |                    |
          |                |     |Santiago, Weber       |                    |
          |                |     |                      |                    |
          |----------------+-----+----------------------+--------------------|
          |Appropriations  |19-0 |Gonzalez, Bigelow,    |                    |
          |                |     |Bloom, Bonilla,       |                    |
          |                |     |Bonta, Calderon,      |                    |
          |                |     |Chang, Daly, Eggman,  |                    |
          |                |     |Gallagher, Eduardo    |                    |
          |                |     |Garcia, Holden,       |                    |
          |                |     |Jones, Obernolte,     |                    |
          |                |     |Quirk, Santiago,      |                    |
          |                |     |Wagner, Weber, Wood   |                    |
          |                |     |                      |                    |
          |                |     |                      |                    |
           ------------------------------------------------------------------ 


          SUMMARY:  Requires the State Board of Education (SBE) to adopt a  
          statewide accountability system aligned to California's local  








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          framework and that satisfies the federal accountability system  
          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.
          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  








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            local control funding formula. 


          FISCAL EFFECT:  According to the Assembly Appropriations  
          Committee:


          1)Unknown General Fund costs, potentially in the hundreds of  
            thousands of dollars, for California Department of Education  
            (CDE) to comply with the data components of this bill.  The  
            current school data systems, CALPADs and DataQuest, do not  
            present data in formats required under the bill.  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 the  
            manner prescribed in the bill. 


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



          COMMENTS:



          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  








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            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 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  
            Superintendent of Public Instruction (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 SBE  








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            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 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 presented its final report to the SBE in May.   
            Many of the recommendation in the Task Force report are  
            consistent with the requirements of this bill.



          3)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  








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            accountability program requires time and should be deliberate  
            and sequential.  They believe this bill would impede the  
            current process. 




          Analysis Prepared by:                                             
          Rick Pratt / ED. / (916) 319-2087  FN: 0003236