Legislature(2003 - 2004)
05/15/2003 08:45 AM Senate FIN
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* first hearing in first committee of referral
+ teleconferenced
= bill was previously heard/scheduled
+ teleconferenced
= bill was previously heard/scheduled
CS FOR HOUSE BILL NO. 174(FIN) am
"An Act relating to the state centralized correspondence study
program, to funding for educational programs that occur
primarily outside school facilities, and to the duties of
school boards of borough and city school districts and
regional educational attendance areas; and providing for an
effective date."
This was the first hearing for this bill in the Senate Finance
Committee.
Co-Chair Wilken stated this bill, sponsored by the House Rules
Committee by request of the Governor, "repeals the summer school
funding for Alyeska Central School (ACS) beginning in the 2003-04
school year. In addition, HB 174 provides a one-year transition
period in which the functions performed by Alyeska Central School
can be assumed by another educational organization, such as a
charter school, or a school district."
EDDY JEANS, Manager, School Finance and Facilities Section,
Education Support Services, Department of Education and Early
Development testified this legislation addresses two issues: cost
savings and policy. He cited the elimination of the summer school
program would save the State $1.2 million. He listed other
potential cost savings, including over $700,000 for lease of space
in the Goldbelt Building in Juneau, occupied by the Alyeska Central
School and paid by the Department of Administration.
Mr. Jeans gave a history of the correspondence school, which was
established in 1939. At this time, he informed that municipal-
operated schools addressed education in areas organized under a
local government, and the State operated schools in unorganized
areas. He said the State continued to operate schools until 1977
and the establishment of the Regional Education Attendance Areas
(REAA). Approximately seven years ago, he continued, the Department
allowed school districts to operate statewide correspondence
programs, a decision supported by the Legislature through the
adoption of SB 36, in which the Legislature specified that funding
would be available for these efforts. He noted that currently 12
such programs, including ACS, operate in Alaska.
Mr. Jeans commented that the majority of students currently
enrolled in ACS would attend other correspondence schools upon
elimination of ACS. He shared that the Department has learned that
many of the other programs would develop or modify existing
programs to assist those families currently served by ACS. He
asserted that of the 650 students enrolled in the ACS regular
program, approximately 45 do not have daily access to a public
school in their community. He informed that this legislation would
require other correspondence programs to operate under an open
enrollment policy, noting that currently some have instituted
"artificial caps" on the number of students allowed to enroll.
Mr. Jeans next spoke to the issue of accreditation. He acquiesced
that ACS is the only accredited statewide correspondence program,
although four others have applied for accreditation and are in
"accredited candidate" status for three years. He listed these
schools as the PACE charter school in Craig, Delta-Greely Cyber
School, Raven Charter School in the Yukon-Koyukuk school district,
and the IDEA Correspondence program in Galena. While in candidate
status, he assured, any credits awarded to a student are treated as
fully accredited and must be accepted as such by a receiving
institution.
Senator Taylor asked why no comparison is made between
accreditation and competency levels. He asked why the many
accredited schools in Alaska continue to graduate about "37 percent
of our student population functionally illiterate."
Mr. Jeans understood that the accreditation process requires school
districts to meet certain standards in assigning a grade or credit
to a student, which must subsequently must be accepted by another
accredited school. He was unable to respond to the relationship to
student competency.
Senator Taylor commented that students enrolled in a correspondence
program score higher in general competency tests than those
enrolled in regular public schools.
Mr. Jeans surmised this would be better understood as the "school
level designation system" imposed at the State and federal level,
is implemented. He indicated a disparity in the number of students
participating in assessments.
Senator Taylor opined that his "life experience" indicates that
these students have a "very high level of competency" obtained in
home schools and correspondence school programs. He asserted the
issue is how funds would be better spent.
Senator Bunde attributed the higher competency to the level of
parental involvement. He stated that students of the Galena school
district passed at a higher competency rate last year than students
enrolled in the district's IDEA correspondence program. He asked if
private schools in Alaska are all accredited and through what
accreditation organization.
Mr. Jeans replied that those that are accredited are through the
Northwest Association of Schools Colleges and Universities.
Senator Bunde asked if the witness was aware of any student denied
admission to a college for lack of accreditation.
Mr. Jeans was not aware of any and noted that colleges have
alternative assessment procedures for students educated in non-
accredited institutions.
Senator Bunde stated that other than some junior colleges and the
University of Alaska, most colleges require some demonstration of
competency.
Senator Hoffman asked if the $700,000 lease expense is included in
the estimated $1.2 million savings of this legislation.
Mr. Jeans responded that the $700,000 lease expense is not included
as a savings in any fiscal note, as he was uncertain how the
Department of Administration would proceed in either terminating
the lease or locating other State programs in the space.
Senator Hoffman next indicated the fiscal note dated 4/23/03
references a savings of $4,300,000 and asked if this amount is
cumulative.
Mr. Jeans explained that the ACS operations are funded through the
foundation funding formula and because the students would be
expected to enroll elsewhere in the State school system and the
funds would be allocated to another district, the fiscal note does
not report a savings from the discontinuance of ACS operations.
Senator Hoffman suggested that if the only savings realized by this
legislation is from the elimination of the ACS summer school
program, the regular ACS school program could continue.
Mr. Jeans affirmed, but stressed that the Administration decided to
"get of out of that business and out of competition" since the
State has allowed local districts to operate statewide programs.
Senator Hoffman asserted that competition creates better services.
Mr. Jeans reiterated that 11 other statewide correspondence
programs currently exist. He stated that none of the school
districts operating these programs developed programs similar to
ACS because of existence of ACS. He shared that several districts
have indicated they would develop programs similar to ACS to
attract former ACS students.
Senator Hoffman expressed support for continuing the competition,
given that the costs would not change.
Senator Bunde noted school districts that are experiencing
decreasing enrollment and suggested those districts could attract
students residing within the district who are currently taking
correspondence.
Mr. Jeans agreed this was a "fair assumption".
Senator Hoffman pointed out this would be assuming the school
districts in question have adequate space, stressing that many
school buildings are overcrowded. He reminded this was addressed
the prior legislative session with the passage of bonds to fund new
school construction, which would not be completed for several
years. He stated that eliminating a correspondence program would
place a burden on the regular public school buildings.
MIKE JEFFERY testified via teleconference from Barrow and agreed
with Senator Hoffman and Senator Bunde's comments to the need to
continue the Alyeska program. He told of his three children
enrolled in the program, one of who would graduate this spring. He
spoke of the "track record" and the significance to families. He
stressed the ACS provides an alternative education program in
accordance with the federal "No Child Left Behind" program. He
pointed out the ACS employs qualified teachers in many fields that
many smaller schools are unable to obtain. He agreed the
discontinuance of the summer program would save money, but argued
this could be accomplished without eliminating the entire ACS
program.
JEANNE FOY, Teacher, Alyeska Central School, representing the
Alyeska Central School Teachers Association, testified in Juneau
that she has heard reference to lease payments of both $300,000 and
$700,000. She suggested an alternative location with a lower lease
cost could be investigated. She read a statement into the record as
follows.
The Administration has stated that closing the school is a
policy decision. It just doesn't want the State to run a
correspondence program anymore. The Department representatives
have also testified that the Department fully supports
competition among school districts for these statewide
distance delivery programs. Although, I would mention that the
fact that Galena has quite a large home school support
program, did not prevent the other ten or so districts from
offering their own home school support programs. But yet, for
them to offer a program like ours, we must be eliminated,
which creates an interesting definition of competition.
The yearlong extension of the committee substitute for this
bill, would give the school the ability to explore the
possibilities of becoming a charter school sponsored by a
school district. If that happens, that would fulfill the
Administration's goals of not wanting to operate Alyeska
Central School anymore and would also continue to give parents
another educational choice.
Parents have been very vocal about why they value ACS. To have
a program requires a certain economy of scale, which requires
that the school remain intact. The No Child Left Behind Act
poses a challenge to the State because small schools cannot
have teachers certified in every subject they teach. A
centralized correspondence program makes sense because then
the school has enough resources to have certified teachers for
every subject.
I therefore urge the Committee to support the committee
substitute for HB 174.
Co-Chair Wilken asked the number of students who would continue
after July 1, 2003.
Ms. Foy answered that "quite a few" students would finish their
course work later in the summer. She relayed discussions held by
the ACS parents' organization in identifying the characteristics
the charter school should have. She stated that the first priority
was a year round school, due to the importance of the flexibility
this would provide particularly to rural students. She exampled
trapping, fishing seasons and road inaccessibility as some reasons
why a standard nine-month program is unfeasible.
Senator Bunde understood the majority of ACS students reside in
urban areas. He asked the number of "truly rural" students.
Ms. Foy estimated 45 to 50 of 800 full-time students. She stressed
that a regular public school must be of a significant size to offer
the same caliber of "rigorous" courses to these rural students.
Senator B. Stevens asked the student to teacher ratio.
Ms. Foy listed 80 students per one teacher.
CECILIA MILLER, Alyeska Central School Education Association,
testified in Juneau that the teacher to student ratio is
approximately one teacher to every 60 elementary students, and one
teacher per subject for 150 to 200 students for secondary students.
She characterized the ratio at the secondary level as similar to
regular public schools.
Senator B. Stevens asked if correspondence is done over the
Internet and the occurrence of communication with every student.
Ms. Miller responded she teaches both on-line and "paper-based"
courses and that the programs are such that teachers evaluate each
student's work about every three weeks. She qualified that students
call for guidance, noting that some students require more
interaction.
Ms. Miller expressed support for the committee substitute, as an
additional year is critical to allow for the program to transition.
She stressed the importance of the program to families and listed
reasons for choosing ACS: the program is accredited; the curriculum
meets the standards established for the Alaskan graduation
competency examination; and the program is mediated by highly
qualified teachers.
Ms. Miller remarked that accreditation is important for acceptance
into a selective college. She stated that students eliminated for
lack of accreditation is not disclosed and that during the
admissions process "it is easier to get flagged out than to get
flagged in" to a selective college. She also pointed out a major
component of accreditation is to assist schools to continually
improve.
Ms. Miller shared that many parents value the choice of different
education programs. She spoke to the differences between "home
support" and correspondence programs, primarily that teachers are
involved in the correspondence programs.
Ms. Miller noted earlier claims that the ACS curriculum would be
made available to other school districts. She informed that this
was done previously, but discontinued due to legal, integrity and
educational reasons. She explained the curriculum is copywrited and
the Department is researching the legal implications. She also
emphasized the necessity to ensure that the students are actually
performing the work and that a teacher is evaluating a student's
progress. She gave an example of a test designed to be taken
without the use of a calculator and the compromise that would occur
if a student used a calculator. She then stressed the value that
parents place on the presence of a qualified teacher knowledgeable
about the curriculum.
Senator Bunde asked if ACS paid for the recent travel of parents of
ACS students to Juneau.
Ms. Miller affirmed and explained those parents are members of the
advisory committee and gather annually to assist in making policy
and program changes to better serve the students. She assured that
while testifying before the Legislature, these parents were not
compensated by ACS.
Senator Hoffman asked if the Association's preference is status
quo.
Ms. Miller responded this committee substitute represents the best
compromise.
KEVIN SWEENEY, Special Assistant, Office of the Commissioner,
Department of Education and Early Development, spoke to the reasons
behind intent to eliminate Alyeska Central School. He understood
that Alaskan voters want a "scaled down government". Although at
one time, ACS offered the only statewide correspondence education
program, he pointed out that choices in education have "grown
tremendously" in the past ten years, exampling charter schools and
the expected addition of another 20 to 25 charter schools in the
State within five years. He furthered that as well as the statewide
correspondence programs operated by some school districts others
also offer district-wide correspondence programs. Therefore, he
surmised, many options are available and that the elimination of
ACS would allow districts to "take over the education of our
children."
Mr. Sweeney corrected that the annual lease for ACS facilities is
$375,000.
Senator Hoffman asked if the Administration's position is that
Alaskans' intentions for scaled down government includes education.
Mr. Sweeney remarked that no one wants to reduce funding for
education; however, he opined that some programs could operate
without "any sever interruption to people" and ACS is one of those
programs. He disputed that the State is the only agency that could
successfully operate a statewide correspondence program. He
expressed confidence in the school districts to accomplish this.
After hearing no objection, Co-Chair Wilken ordered CS HB 174(FIN)
am MOVED from Committee with fiscal note #1: ($1,170,300) for the
Foundation Program component; and fiscal note #2: $4,339,000 for
the Alyeska Central School component. [No motion was made to report
the bill from Committee.]
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