Legislature(2015 - 2016)CAPITOL 106
02/10/2016 08:30 AM Joint EDUCATION
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ALASKA STATE LEGISLATURE
JOINT MEETING
HOUSE EDUCATION STANDING COMMITTEE
SENATE EDUCATION STANDING COMMITTEE
February 10, 2016
8:32 a.m.
MEMBERS PRESENT
HOUSE EDUCATION STANDING COMMITTEE
Representative Wes Keller, Chair
Representative Liz Vazquez, Vice Chair
Representative Paul Seaton
Representative Harriet Drummond
Representative Jonathan Kreiss-Tomkins
SENATE EDUCATION STANDING COMMITTEE
Senator Mike Dunleavy, Chair
Senator Charlie Huggins, Vice Chair
Senator Gary Stevens
Senator Berta Gardner
MEMBERS ABSENT
HOUSE EDUCATION STANDING COMMITTEE
Representative Jim Colver
Representative David Talerico
SENATE EDUCATION STANDING COMMITTEE
Senator Cathy Giessel
OTHER MEMBERS PRESENT
Representative Lora Reinbold
COMMITTEE CALENDAR
PRESENTATION: STATE BOARD OF EDUCATION AND EARLY DEVELOPMENT:
ANNUAL REPORT TO THE STATE LEGISLATURE
- HEARD
PREVIOUS COMMITTEE ACTION
No previous action to record
WITNESS REGISTER
JAMES FIELDS, Chairman
State Board of Education and Early Development
Glennallen, Alaska
POSITION STATEMENT: Presented the State Board of Education &
Early Childhood annual report to the state legislature.
MIKE HANLEY, Commissioner
Department of Education and Early Development (EED)
Juneau, Alaska
POSITION STATEMENT: Responded to questions during the State
Board of Education & Early childhood annual report to the state
legislature.
ACTION NARRATIVE
8:32:29 AM
CHAIR MIKE DUNLEAVY called the joint meeting of the House and
Senate Education Standing Committees to order at 8:32 a.m.
Present at the call to order from the House were Representatives
Keller, Seaton, Vazquez, and Drummond; Representative Kreiss-
Tomkins arrived as the meeting was in progress. Present from
the Senate were Senators Dunleavy, Huggins, Stevens, and
Gardner.
^PRESENTATION: STATE BOARD OF EDUCATION AND EARLY DEVELOPMENT:
ANNUAL REPORT TO THE STATE LEGISLATURE
PRESENTATION: STATE BOARD OF EDUCATION AND EARLY DEVELOPMENT:
ANNUAL REPORT TO THE STATE LEGISLATURE
8:33:00 AM
CHAIR DUNLEAVY announced that the only order of business would
be the State Board of Education and Early Development: Annual
Report to the State Legislature.
8:35:32 AM
JAMES FIELDS, Chairman, State Board of Education and Early
Development, named the board members then paraphrased from a
prepared statement, which read [original punctuation provided]:
Strategic Priorities
In 2015, the State Board of Education & Early
Development developed strategic priorities to guide
the board in its leadership role and focus the
department's actions on student achievement as the
highest priority. Informed by the perspectives of
superintendents, legislators, and school board
members, the State Board established three priorities
as the foundation of its plan:
1) empower local control of educational decisions; 2)
modernize the state's educational system; and 3)
ensure high-quality educators for Alaska's children.
Resolutions
In December the State Board approved three
resolutions: 1) Supporting no change to the minimum
student count for school funding; 2) supporting repeal
of the minimum expenditure for instruction; and 3)
recommending funding of cooperative arrangement grants
as provided in AS 14.14.115.
8:37:30 AM
SENATOR GARDNER asked how cooperative arrangement grants differ
from other grants.
MR. FIELDS responded that statute includes provisions for a
cooperative grant as support for districts that collaborate on
cost saving measures; however, the grant has never been funded.
8:38:16 AM
MIKE HANLEY, Commissioner, Department of Education and Early
Development (EED), explained that the statute allows districts
to apply for one time grants of up to $100,000, as they pursue
consolidation of services. Sharing services can provide
efficiencies, and districts are beginning to indicate an
interest in making application; however, he reiterated, the
grants have never been funded. To a follow-up question, he said
the statute stands alone, and no regulations have been
promulgated.
CHAIR DUNLEAVY interjected that there is no history for its use,
but it could help fund the consolidation of services.
REPRESENTATIVE KREISS-TOMKINS reported that the Hydaburg and
Southeast Island School Districts have merged offices and
administrative services, motived by the cooperative arrangement
statute.
CHAIR DUNLEAVY noted that the legislature has considered funding
the grant if districts decide to merge services and require
financial assistance in the effort.
COMMISSIONER HANLEY agreed, and said it represents a thoughtful
way to help districts.
8:40:56 AM
MR. FIELDS continued paraphrasing from the prepared statement,
which read [original punctuation provided]:
Significant regulations
In keeping with empowering local control, the State
Board adopted regulations to permit an alternate route
for obtaining an administrator certificate with a
superintendent endorsement. The board's intent was to
encourage a larger pool of applicants for
superintendent positions, in light of the many annual
vacancies among superintendents. Many rural districts
supported the certificate. The new certificate
contains many requirements to ensure quality.
The State Board raised educators' fees for
certification in order to fully cover the annual cost
(approximately $300,000) of operating the Professional
Teaching Practices Commission.
In keeping with empowering local control, the State
Board repealed the requirement for school districts to
administer early literacy assessments to students in
kindergarten through third grade. The state no longer
funds such assessments. Without repeal, the assessment
requirement would be an unfunded mandate. Districts
favored the repeal.
In keeping with empowering local control, the State
Board adopted a regulation to allow advanced nurse
practitioners to diagnose fetal alcohol spectrum
disorder and other health impairments in determining a
student's eligibility for special education.
Previously, only physicians were allowed to make that
determination, which placed a burden on districts.
The regulation was requested by health practitioners
and vetted by the state's chief medical officer.
8:42:40 AM
SENATOR GARDNER asked about raising the fees for the
Professional Teaching Practices Commission (PTPC), and what cost
savings efficiencies are being considered, such as implementing
electronic meeting formats.
COMMISSIONER HANLEY said statutory language speaks to the PTPC
being self-sufficient and supported by fees, similar to the bar
association. Two paid staff members exist and the overall cost
is about $300,000; others donate their services.
SENATOR GARDNER asked if the members travel to meet together in
person, and whether the meetings could be held telephonically.
COMMISSIONER HANLEY responded that traditionally they come
together to meet three times a year. The travel is reimbursed,
along with per diem, but due to the recent travel restrictions,
other measures will be implemented.
SENATOR GARDNER asked that, if the PTPC will be avoiding travel
costs, perhaps it would be prudent to wait on raising teachers
fees until actual costs are calculated.
COMMISSIONER HANLEY pointed out that the primary cost is for
office space, and travel restrictions could save $20-30,000.
8:46:32 AM
SENATOR GARDNER inquired about repealing the requirements for
early literacy assessments K-3, and asked what Alaska will do to
assess reading skills prior to third grade.
COMMISSIONER HANLEY provided a brief history from the previous
administration, which pushed to have early screening to ensure
reading abilities by the third grade. Although some districts
already practiced literacy screening, Governor Sean Parnell
authorized $300,000 to mandate the practice statewide. With a
change in the budget, it became an unfunded mandate, which has
been removed. He pointed out that some districts still
administer the early screenings.
MR. FIELDS commented that it was a question of whether or not to
retain an unfunded mandate. The majority of the districts have
kept screening practice in place.
SENATOR GARDNER queried whether data that compare the
effectiveness of early versus standard literacy assessments for
K-3.
COMMISSIONER HANLEY responded that the data was designed to
inform instruction practices, as diagnostic tools, and does not
provide outcome information.
8:50:15 AM
REPRESENTATIVE SEATON directed attention to the committee
packet, and the full report titled, "State Board of Education &
Early Development Report to the Alaska Legislature, January
2016," pages 2-3, and the bullet point under REGULATIONS AND
OTHER BOARD ACTIONS, which read:
A student's [Alaska Performance Scholarship (APS)]
money ends six years after high school graduation,
unless the student qualifies for a department
extension. The board extended the years of
eligibility for students who could not use their
scholarship because of enrollment delays outside their
control.
REPRESENTATIVE SEATON asked for further elaboration on this
aspect of the APS.
MR. FIELDS deferred.
COMMISSIONER HANLEY responded that often programmatic issues may
arise, such as the waiting list to take certain nursing classes
at the University of Alaska Anchorage (UAA), and this was taken
under consideration.
REPRESENTATIVE SEATON asked whether the action is handled
through regulation.
COMMISSIONER HANLEY answered that it is within the statutory
language to allow the department to make the accommodations,
while still fulfilling the goal of the scholarship program.
8:53:02 AM
REPRESENTATIVE VAZQUEZ upheld the concern for early literacy
screening, and opined that fourth grade is too late to
intervene; as upheld by national statistics. She asked for
further details regarding the $300,000 appropriation, and
followed-up to inquire how many districts have continued to
implement the assessments as a diagnostic tool.
COMMISSIONER HANLEY responded that the $300,000 was initiated on
July 1, 2014, as an annual appropriation. The amount was
determined using the existing cost of programs that had been
adopted, and implemented, by 50 percent of the districts, as a
best teaching practices policy. The goal was to extend funding
to provide the resource to all teachers. He said there has not
been tracking to determine how many are still using the
assessments
REPRESENTATIVE VAZQUEZ asked to have an accounting.
CHAIR DUNLEAVY pointed out that the appropriation was defunded
as part of the budget reduction effort. The Every Student
Succeeds Act (ESSA) may provide a potential for shifting the
responsibility for literacy testing, he opined.
MR. FIELDS added that the early literacy screening was a large
topic before the board; however, the intent is to avoid imposing
upon districts, any unfunded mandates that require recorded
data.
8:57:27 AM
SENATOR STEVENS asked for clarification of the chain of
authority over education in Alaska; specifically the role of the
state board versus the governor, as well as the appointment
process for a commissioner.
MR. FIELDS explained that the governor appoints the state board,
and the board nominates a commissioner which is submitted to the
governor for confirmation.
8:58:51 AM
MR. FIELDS moved to charter schools, paraphrasing from a
prepared statement, which read [original punctuation provided]:
Charters
The State Board approved requests for all eight
charters, new or renewed, that it received. All such
requests had been approved first by the applicants'
local school board.
Alaska Measures of Progress [(AMP)]
The written report to the legislature reflects events
in 2015. Since then, the department has decided to
not use the Alaska Measures of Progress assessments
after this school year. Federal law requires us to
give an assessment this spring. The department will
prepare an [request for proposal (RFP)] for a new test
vendor for the following years. Superintendents and
other stakeholders will be consulted in the process.
8:59:39 AM
SENATOR HUGGINS inquired about the policy for the districts to
administer the AMP, and the expectations regarding the
disposition of the data results.
MR. FIELDS reported that the idea for securing a waiver for
administering the AMP was discussed.
COMMISSIONER HANLEY stated that Acting Secretary John King, U.S.
Department of Education, has stated that there are no
opportunities to not administer an assessment this year. He
pointed out that a large concern, regarding the AMP, was that at
the district level, the data information was not actionable;
lacking the detail necessary to implement changes at the school
level. However, the data is valid and reliable. Knowing that
the assessment is required, it was decided to take an approach
to render the data as useful as possible, which includes:
modification of the reports from four levels to eight levels;
removal of confusing language and graphics; timely return of the
data; and basically putting a silver lining on a dark cloud.
Thus, as a two year report parents and students will garner
value in being able to compare improvements.
SENATOR HUGGINS asked what the consequences are for not
administering the assessment.
COMMISSIONER HANLEY explained that components of federal law
could create sanctions on funds received. Alaska receives
approximately $63 million in Title funds, and $300 million in
total federal funding, which would be put at risk. He pointed
out that state statute also requires the testing.
SENATOR HUGGINS observed that, under ESSA, it appears education
is entering a new era, and status quo measures do not correspond
with what's emerging.
SENATOR GARDNER commented that value can be garnered through
administering appropriate assessments, which informs
instruction. The assessment process is the means for education
accountability and is required. It is troubling and unfortunate
to start over and have to work out the bugs, as well as absorb
the costs. She conjectured the wisdom of making a change, when
a difference may prove to be negligible.
COMMISSIONER HANLEY acknowledged that to switch, after only one
year, is difficult. The new opportunities, with the
implementation of ESSA, does allow additional options that were
not previously available. He reminded the committee that the
state is under a five year, $25 million contract, renewable
annually. By the end of the second year, approximately $9
million will have been paid for two years of assessments.
Although it has been a frustrating process, the money has not
been wasted, he assured, and the data will be used.
SENATOR GARDNER asked that if, under ESSA, high schools can
choose assessments other than nationally recognized tests, how
can student outcomes be compared between high schools.
COMMISSIONER HANLEY responded that until federal regulations are
promulgated, it will be difficult to know exactly how this will
be handled. However, the Scholastic Achievement Test (SAT) and
American College Testing (ACT, Inc.) have comparability scores,
which are two assessments that may meet the requirements when
the federal regulations are released.
9:08:54 AM
CHAIR DUNLEAVY asked how long the reauthorization will remain in
effect for the ESSA.
COMMISSIONER HANLEY responded, four years; however, it will
remain in effect pending reauthorization, which in the case of
NCLB has taken eight years.
9:09:15 AM
REPRESENTATIVE SEATON noted that, in the recent past, not only
have absolute numbers been presented to the legislature, but
measurable growth levels, to ascertain progress at individual
schools. He asked, by stopping the assessment after the second
year, what other alternatives will exist to provide growth
comparisons across schools throughout the state.
COMMISSIONER HANLEY responded that the AMP and ESSA assessments
are too different to be calibrated, and agreed that the growth
model, comparing and tracking school progress, will only cover a
two year period. He predicted that a gap will be created, in
2017, due to the assessment change which eliminates the
possibility for comparison. Due to the lack of connection
between the AMP and ESSA assessments it will take an additional
year before growth can again be compared.
REPRESENTATIVE SEATON expressed concern, stating that the
education committee has, for some time, been focused on
measuring growth in students not just the static level. It's a
concern, he said, if it is not possible to gather follow-up
data, and the continuity is interrupted for tracking student
growth. The legislature has pushed for the development of the
growth model, and if the school board doesn't have some other
means for growth comparisons, measuring standards may revert to
a baseline assessment. We may be stepping backwards, he opined.
MR. FIELDS suggested that data is data, and it could be possible
to do some type of assessment between the two testing
approaches, while a new RFP is being established.
9:13:50 AM
REPRESENTATIVE VAZQUEZ queried what the damages to the state
will be, for breaking the five year contract, and requested a
copy of the contract.
COMMISSIONER HANLEY said a copy of the renewable contract will
be provided.
REPRESENTATIVE VAZQUEZ voiced support to have a nationally
recognized assessment tool in place, which will provide the
possibility for comparison as well as accountability.
9:14:51 AM
MR. FIELDS continued with the prepared statement, which read
[original punctuation provided]:
The Every Student Succeeds Act
The new federal education law, the Every Student
Succeeds Act, returns to the states some of the
control over their schools that was lost in No Child
Left Behind. Alaska intends to work with stakeholders
to build a school accountability system that meets the
needs of parents, students, educators, and the public.
The State Board will consider removing from state
regulations the former federal requirement that school
districts incorporate data about student achievement
in educator evaluations. Using such data sounds like
a good idea, but implementing its use in a fair and
valid way would be an enormous and time-consuming task
for districts. The districts would have to generate
valid before-and-after data about student achievement
for all subjects, including the many subjects that
don't use standardized tests.
Beyond that, the Every Student Succeeds Act allows the
states more flexibility in the type of assessment,
more freedom in creating a school accountability
system, and more local control over corrective
measures for low-performing schools.
The department will be working with stakeholders on
the state's plan to operate under the new law. The
plan is due at the end of October 2016.
The department will convene an advisory committee to
develop options for the state plan. The committee
will include members from urban and rural districts
and at least one member each from education, parent,
business, nonprofit, and Alaska Native organizations.
The public will be able to comment on the options, on
the draft plan, and on the revised draft plan.
The Alaska Statewide Mentor Project
The Alaska Statewide Mentor Project, a partnership of
the department and the University of Alaska, has been
serving school districts since the 2004-2005 school
year. One of its main goals is to improve teacher
retention, particularly in rural districts, so that
students can benefit from experienced teachers.
Since the project began, mentors have served in 52 of
Alaska's 54 districts in over 80% of Alaska's
approximately 500 public schools. For 2015-16, 30
mentors are serving 328 early career teachers in 188
schools within 28 school districts. The state funds
12 mentors (nine full-time, three part-time) in 23
rural districts. The remaining mentors are funded
through external sources. A federal grant funds a
study that evaluates the effectiveness of ASMP in five
urban districts; it supports fourteen mentors (10
urban and four rural). The remaining four rural
mentors are funded through two other federal grants.
The State Libraries, Archives & Museums Division
The State Libraries, Archives & Museums Building, now
under construction, will place the Alaska State
Museums, the Alaska State Archives, and the Alaska
State Libraries in one facility at the site of the
current State Museum. The new building is scheduled
to open in April 2016.
Libraries, Archives & Museums benefits lifelong and K-
12 education. Examples are:
• Live Homework Help offers live tutoring for students
in grades 4 to early college, seven days a week, from
noon to 2 a.m.
• In Alaska's Digital Pipeline are hundreds of full-
text online books, magazines, newspapers and other
research resources for students.
• Many school districts' Alaska Native language
materials are scanned and available online.
Graduation and dropout rates
In 2015, the preliminary five-year graduation rate was
78.3%. This refers to a cohort of students who were
9th-graders five school years previously. Many
graduated in four years, but others needed all or part
of a fifth year. The five-year rate reflects more
accurately than the four-year rate the percentage of
9th-graders that do get a diploma.
Alaska's four-year rate in 2015 was 75.6%, up from
71.2% in 2014. With the repeal of the Alaska High
School Graduation Qualifying Exam, more students are
receiving a diploma.
Preliminary information for the 2014-2015 school year
shows a grade 7-12 dropout rate of 3.68% compared to
4.0% in 2013-2014. The dropout rate generally has
declined from 6.0% in 2004-2005.
National Assessment of Educational Progress
Every two years the U.S. Department of Education,
through the National Assessment of Educational
Progress (NAEP), tests large samples of 4th-graders
and 8th-graders in each state in reading and math.
The most recent results were released in 2015.
NAEP's state and nationwide results are presented as
average scores on a scale of 000 to 500. The "scale
scores" fall into four categories of achievement:
advanced, proficient, basic, and below basic. Thus,
NAEP also reports the percentage of students who fall
within those categories of achievement.
NAEP's definition of proficiency is rigorous. In
NAEP, basic refers to partial mastery of the subject.
Proficient refers to competency in challenging
material, including knowledge, application, and
analytical skills. Advanced is superior performance.
In no state did more than 54% of students score
proficient on any of the NAEP tests.
Alaska's performance on the NAEP is poor. It is
similar to the national average because that also is
poor. Some states perform notably better than Alaska
and the national average. The department has cited
Alaska's performance on NAEP as one indication of the
need to implement higher standards in English language
arts and math.
Alaska is about at the national average in 4th-grade
and 8th-grade math. Alaska is notably below the
national average in 4th-grade reading but only a
little below in 8th-grade reading.
9:21:49 AM
REPRESENTATIVE KELLER noted the report on high school students
attending for a fifth year, and questioned the budgetary impact
necessary to serve them. The four year graduation plan appears
to have become a five year plan, and he asked whether it serves
a significant number of students.
COMMISSIONER HANLEY answered that only few students require a
fifth year; however, these students highly value the opportunity
to complete their diploma, and it's important to honor their
effort. The fiscal impact is marginal, but it represents an
outcome worth reporting.
9:23:27 AM
SENATOR STEVENS asked about the board's involvement in recent
events at Mt. Edgecombe. He reported having received inquiries
concerning its possible closure.
MR. FIELDS replied that the board has had no involvement in
current decisions, regarding the facility.
SENATOR STEVENS asked if EED was aware of the situation.
COMMISSIONER HANLEY reported having received a 15 minute
briefing regarding a plan that was made locally, which came as a
surprise to the department.
SENATOR HUGGINS suggested the need for an omnipotent voice to
dispel rumors regarding the reported actions. He made it clear
that Mt. Edgecombe will not be closing, neither will the Alaska
Native Science & Engineering Program (ANSEP) be taking over.
9:27:29 AM
REPRESENTATIVE KELLER commented on how different next year's
report may be with the changes that are afoot to return control
to local districts. He pointed out that the board handles a
huge responsibility, is seated by volunteers, and meets only a
handful of times per year. The Mt. Edgecombe situation is an
example of what can happen without clear direction, which he
anticipates will be cleared up through the leadership of
Chairman Fields.
9:30:19 AM
REPRESENTATIVE SEATON recalled that a few years ago it was
evident that some schools were failing, primarily due to the
local control that was not effective at the time. The
legislature stepped-in to assist, and among other measures
taken, oversaw the creation of the statewide mentorship program;
effectively improving teaching techniques and bolstering
administrators. He cautioned that the committee not let go of
the reins and allow a situation of devolvement to ensue out of
budgetary concerns.
9:31:59 AM
REPRESENTATIVE KELLER reported that the by-laws of the state
board are not able to be downloaded.
MR. FIELDS offered to make them available.
CHAIR DUNLEAVY thanked the commissioner for the dedication he
has afforded the position, which he will vacate on 3/1/16.
9:32:58 AM
ADJOURNMENT
There being no further business before the committees, the joint
meeting of the House Education Standing Committee and Senate
Education Standing Committee was adjourned at 9:32 a.m.
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