SD36 - Report of the SJR 498 Commission on Educational Accountability


Executive Summary:
AUTHORITY AND STUDY OBJECTIVES

Adopted by the 1999 Session of the General Assembly, SJR 498 established the 20-member Commission on Educational Accountability, comprised of legislative, citizen, and ex officio members. The mission of the SJR 498 Commission is a comprehensive one, encompassing a review of the Standards of Accreditation (SOA) and any included accountability mechanisms; the implementation of the Standards of Learning (SOL) and revised assessments; consideration of ways to increase the capacity of schools, teachers, and students; the receipt of regular reports from its task forces; and exploration of other educational accountability concerns and additional issues as it deems appropriate.

Complementing the work of the Commission from its inception in 1999 were the HJR 723 Task Force examining the impact of the Standards of Accreditation on local school division budgets and the HJR 566 Task Force exploring, among other things, the integration of the SOL in secondary school curricula and programs focusing on workforce development skills; the adequacy of current curricula, program resources, and technology in Virginia public schools; and staffing and state and local funding levels for secondary school workforce development programs.

Further supplementing the Commission's work in 2000 was the HJR 302 Task Force, which studied the need for appropriate alternative forms of Standards of Learning assessments for students receiving special education and related services. That resolution also directed the Commission on Educational Accountability to continue the work of the Joint Subcommittee on Remediation. In addition, the 2000 Session of the General Assembly directed the Commission, in cooperation with the Board of Education, the State Council of Higher Education for Virginia, the Senate Committee on Finance, and the House Committee on Appropriations, to study the demand for and preparation of classroom teachers, pursuant to HJR 159 and SJR 248.

INCREASING CAPACITY FOR SCHOOLS AND EDUCATORS: TACKLING TEACHER SHORTAGES

To meet the challenge of attracting and retaining quality teachers, many states are exploring a variety of initiatives, including attracting students in secondary and postsecondary schools to the teaching profession; recruiting mid-career professionals in other disciplines; strengthening scholarship and loan programs; and providing loan forgiveness for service in a critical academic shortage area or particular geographic region. Also bolstering teacher recruitment and retention efforts in some states are signing bonuses and monetary rewards for obtaining national certification.

In meeting its specific study directives, the Commission endeavored to examine the increasing demand for public school teachers and review current incentives for entering the profession as well as a variety of educational and policy issues. Discussion focused on increasing salary levels, obtaining accurate and detailed teacher shortage data, creating early interest in the teaching profession, and ensuring the quality of teacher training. The input and expertise of a number of sources were pursued, including the Board and Department of Education, the Commission on Access and Diversity in Higher Education, the Joint Task Force of the Board of Education and State Council of Higher Education on Teacher Supply and Demand, and national experts. Testimony and information were gathered addressing the Virginia Teaching Scholarship Loan Program, licensure by reciprocity for individuals holding a valid out-of-state teaching license and national certification from the National Board for Professional Teaching Standards (NBPTS), incentive grant awards for teachers obtaining NBPTS certification, local licensure, alternative licensure and "career switcher" mechanisms, and clinical faculty and mentor teacher programs.

FINANCE ISSUES

The Department of Education's survey of school divisions regarding costs associated with the implementation of the Standards of Accreditation (SOA) provided much data for Commission consideration. School divisions reported estimated total expenditures of $535.8 million to support the new SOA since 1997; of this amount, $139.9 million and $395.9 million addressed state and local initiatives, respectively. New appropriations accounted for $366.3 million; the remaining $169.5 million was culled from redirected or reprogrammed funds. Total annual expenditures increased in each of the three years; $116.6 million in 1998; $188.4 million in 1999; and $230.7 million in 2000. Similarly, statewide pupil-based averages increased from $159.54 and $255.63 per pupil in 1998 and 1999, respectively, to $310.72 in 2000. Direct aid to public education increased by $804.4 million (about 25 percent) during this three-year span.

Also explored was the ongoing study by the Joint Legislative Audit and Review Commission (JLARC) regarding the funding of the Standards of Quality (SOQ). This study is expected to address expenditures made by school divisions in excess of the SOQ and additional issues, such as local ability to pay, will also be targeted. An interim status report was anticipated at the December 2000 JLARC meeting, with a final report briefing scheduled in August 2001. Data is expected addressing, among other things, elementary and secondary classroom instructional positions; alternative education; school resource officers; school health personnel; medically fragile students; special education; salary increases; staff recruitment and retention; miscellaneous (capital outlay; bus replacement; repayment periods for loans); and course offerings and maximum class sizes in 2000-2001.

OTHER EDUCATIONAL ACCOUNTABILITY ISSUES GENERALLY: REVISIONS TO THE STANDARDS OF ACCREDITATION

Pursuant to SJR 498, the Commission was to address recent revisions to the Standards of Accreditation (SOA); implementation of the Standards of Learning (SOL) assessments; the effects of failure to obtain a diploma under the SOA; the assessment of transfer students; and the impact of the SOA and SOL on (i) teachers and at-risk students; (ii) instructional time to meet the SOL; (iii) the ability of certain school divisions to meet and maintain accreditation; (iv) student promotion and retention; and (v) diploma requirements.

The Board of Education adopted revisions to the Standards of Accreditation on July 28, 2000; the regulations became final on September 28, 2000. The revisions targeted increased flexibility and refined consequences and rewards for students, educators, schools, and school divisions. The revisions allow the use of tests other than the SOL assessments for awarding verified units of credit.

The assessment of transfer students was also addressed in the revisions, as the SOA now provide that the scores of limited English proficiency (LEP) and transfer students will be used in the calculation of a school's accreditation rating if it will benefit the school and authorize the Board to alter the inclusions and exclusions from the accountability calculations by providing adequate notice to local school boards. Also included in the revisions is a transition period for students in grades seven, eight, and nine in fall 2000; in academic years 2000-1 through 2002-3, these students must pass six SOL assessments, two of which must be in English, for a diploma.

Other revisions include an expedited re-test for SOL end-of-course examinations; the creation of the Modified Standard Diploma, for certain students with disabilities who are unlikely to meet Standard Diploma requirements; the requirement that two of the six elective standard units of credit must incorporate at least two sequential electives; the addition of the Board of Education Career and Technical Seal and the Seal of Advanced Mathematics and Technology; the establishment of "benchmark" annual SOL passing rates to indicate progress in academic years 2000-1 through 2003-4; the addition of the ratings of "Provisionally Accredited/Needs Improvement" and "Accreditation Withheld/Improving School"; and the use of a three-year rolling average of student pass rates or the current year's scores, whichever is greater, in determination accreditation status.

RECOMMENDATION

Having explored a wide range of issues in its second year of study, the Commission determined that ensuring educational accountability for Virginia's public schools remains a paramount issue. The implementation of the Standards of Accreditation, the increasing demand for qualified instructional personnel, adequate funding to meet the requirements of the Standards of Quality and Standards of Accreditation, the effective preparation of students to enter the workforce, and other issues merit ongoing study and observation. Therefore, the Commission has agreed upon the following recommendation:

That the work of the Commission on Educational Accountability be continued for one additional year.