01/24/2014 08:00 AM Senate EDUCATION
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| Start | |
| SB111 | |
| Adjourn |
+ teleconferenced
= bill was previously heard/scheduled
| += | SB 111 | TELECONFERENCED | |
ALASKA STATE LEGISLATURE
SENATE EDUCATION STANDING COMMITTEE
January 24, 2014
7:58 a.m.
MEMBERS PRESENT
Senator Gary Stevens, Chair
Senator Mike Dunleavy, Vice Chair
Senator Bert Stedman
Senator Charlie Huggins
Senator Berta Gardner
MEMBERS ABSENT
All members present
COMMITTEE CALENDAR
SENATE BILL NO. 111
"An Act repealing the secondary student competency examination
and related requirements; and providing for an effective date."
- HEARD & HELD
PREVIOUS COMMITTEE ACTION
BILL: SB 111
SHORT TITLE: REPEAL SECONDARY SCHOOL EXIT EXAM
SPONSOR(s): SENATOR(s) STEVENS, GARDNER
01/22/14 (S) PREFILE RELEASED 1/10/14
01/22/14 (S) READ THE FIRST TIME - REFERRALS
01/22/14 (S) EDC, FIN
01/22/14 (S) EDC AT 8:00 AM BELTZ 105 (TSBldg)
01/22/14 (S) -- MEETING CANCELED --
01/24/14 (S) EDC AT 8:00 AM BELTZ 105 (TSBldg)
WITNESS REGISTER
TIM LAMKIN, Staff
Senator Gary Stevens
Alaska State Legislature
Juneau, Alaska
POSITION STATEMENT: Presented information regarding SB 111 on
behalf of the sponsor.
LES MORSE, Deputy Commissioner
Department of Education and Early Development
Juneau, Alaska
POSITION STATEMENT: Presented information on the High School
Graduation Qualifying Exam (HSGQE).
ED GRAFF, Superintendent
Anchorage School District
Anchorage, Alaska
POSITION STATEMENT: Testified in support of SB 111.
WILLIAM MCLEOD, Superintendent
Dillingham City School District
Dillingham, Alaska
POSITION STATEMENT: Spoke in favor of SB 111.
PATRICK HIGGINS, Member
Anchorage School Board
Anchorage, Alaska
POSITION STATEMENT: Spoke in favor of SB 111.
SUNNI HILTS, President
Association of Alaska School Boards (AASB)
Seldovia, Alaska
POSITION STATEMENT: Spoke in favor of SB 111.
MIKE COONS, representing himself
Palmer, Alaska
POSITION STATEMENT: Testified in favor of SB 111.
BETTYE DAVIS, Member
Anchorage School Board
Anchorage, Alaska
POSITION STATEMENT: Spoke in favor of SB 111.
LARRY TALLEY, Parent
Juneau, Alaska
POSITION STATEMENT: Spoke in support of SB 111.
LIZ DOWNING, Vice-President, Legislative Committee Chair
Kenai Peninsula Borough School District Board of Education
Homer, Alaska
POSITION STATEMENT: Testified in support of SB 111.
BARBARA PARKER, Member
Delta Junction School Board
Delta Junction, Alaska
POSITION STATEMENT: Testified in support of SB 111.
PETE HOEPFNER, Member
Cordova School Board
Cordova, Alaska
POSITION STATEMENT: Testified in support of SB 111.
JEAN MISCHEL, Attorney
Legislative Legal and Research Services Division
Legislative Affairs Agency
Juneau, Alaska
POSITION STATEMENT: Answered questions regarding SB 111.
ACTION NARRATIVE
7:58:54 AM
CHAIR GARY STEVENS called the Senate Education Standing
Committee meeting to order at 7:58 a.m. Present at the call to
order were Senators Dunleavy, Gardner, Huggins, Stedman, and
Chair Stevens.
SB 111-REPEAL SECONDARY SCHOOL EXIT EXAM
8:00:26 AM
CHAIR STEVENS announced that the only order of business would be
SB 111. He noted he would take public testimony and hold the
bill. He said he would keep public testimony open for future
hearings and he welcomed written testimony at any time.
CHAIR STEVENS pointed out that the governor is introducing an
omnibus bill that will include the issues in SB 111. He
indicated that he would like to make SB 111 a committee bill if
it was acceptable to the members.
TIM LAMKIN, Staff, Senator Gary Stevens, sponsor of SB 111,
Alaska State Legislature, Juneau, Alaska, presented information
regarding SB 111 on behalf of the sponsor. He explained that SB
111 repeals the High School Graduation Qualifying Exam (HSGQE)
also known as the exit exam. He related that Section 1 of the
bill deletes the exit exam reference in the Department of
Education and Early Development (DEED) annual report to the
legislature. Section 2 deletes the same reference in DEED's
annual report to the public on school performance. Section 3
deletes the reference in DEED's school accountability section.
Section 4 deletes the reference in the charter school
operational requirements. Section 5 repeals the high school
competency test requirements, and Section 6 provides for a July
1, 2014 effective date.
He mentioned a policy consideration the committee may want to
address - the effective date of the repeal and consequences for
adults who have failed the HSGQE and may want to retest. A
phase-out time might be considered.
SENATOR GARDNER referred to written testimony she received that
inquired about how the repeal would affect Juneau's students
this year.
CHAIR STEVENS remarked it was a good question. He said he would
ask DEED to address the timing of, and the need for, the repeal.
8:03:29 AM
LES MORSE, Deputy Commissioner, Department of Education and
Early Development, Juneau, Alaska, presented information on the
High School Graduation Qualifying Exam (HSGQE).
CHAIR STEVENS asked if SB 111 is really necessary. He wondered
if HSGQE would need to be "taken off the books." He also
requested information on the timing of the repeal.
MR. MORSE explained that a requirement that students pass an
exit exam with basic competencies is clearly in statute. For
DEED to repeal the exam, as well as the competency requirements,
HSGQC would have to be removed from statute.
CHAIR STEVENS asked about the phasing out of the exam.
8:05:24 AM
MR. MORSE reported that there are two parts to phasing out the
exam; when it would go into effect and which students would be
affected. The bill has an effective date of July 1, 2014, so any
student who is required to take the exam this spring, would have
to pass it to graduate. Adults currently under the HSGQE system
who did not pass the exam have the right to return and take it.
There are several adults still in this category. Some transition
for that group would be important, as well as for students that
don't pass the exam this coming spring. He pointed out that most
states that phase out the HSGQE allow testing for a period of
years for adults to retake the exam.
8:08:22 AM
SENATOR GARDNER asked if the department has an effective date in
mind. She suggested having an immediate effective date, but also
a transition period for adults that have a certificate of
achievement, rather than a diploma.
MR. MORSE said July 1, 2014, does make sense to avoid confusion
this spring. The problem of an immediate effective date is if SB
111 passes this session, some students will graduate in early
May so there will be some graduates who will be required to pass
the HSGQE and some who will not.
SENATOR GARDNER asked if there might be some other test in place
such as Accuplacer, SAT or ACT.
8:10:36 AM
MR. MORSE addressed the bill the Governor referenced in his
State of the State speech regarding students having a choice of
SAT, ACT, or WorkKeys as exit exams. He suggested that those
tests could serve as future planning tools and guides to an
Alaska Postsecondary Path.
CHAIR STEVENS predicted that at some time in the future the
committee would have to figure out how SB 111 and the Governor's
bill would mesh. He asked Mr. Morse to share his thoughts on SB
111.
8:13:21 AM
MR. MORSE thought it would be useful to understand that the
purpose of the HSGQE law was to have students leave high school
with basic skills. He said that many students who have not
passed HSGQE also have not met local graduation requirements.
The exam was a factor in identifying students who had not met
local requirements. He noted that most districts have raised
graduation requirements to ensure that students master basic
skills, so the exam may no longer be a factor in identifying
students lacking credits.
CHAIR STEVENS requested data about how many students did or did
not pass the exam at its onset and currently.
MR. MORSE referred to information in members' packets that show
current pass rates of students taking the exam for the first
time, followed by students that retake the exam.
He referred to several tables that show current results -
"Statewide Spring 2013 HSGQE." The tables show total numbers and
percentages of students scoring above and below proficiency from
2009 through 2013. The first table shows 10th grade results
followed by grades 11 and 12.
He drew attention to "HSGQE Relevancy" which depicts that the
2012 senior class cohort group has a combined cumulative passage
rate of over 90 percent. After five opportunities to take the
test, this group in 2012 had a 90 percent success rate of
passing all three parts of the exam. There were 1,590 seniors in
2010 that completed the school year but did not receive a
diploma. Of that group over 53 percent had passed all parts of
the exam. The remaining students who did not pass the exam, also
did not pass the local requirements. Almost half of the students
who did not pass the exam, also did not meet their local
requirements. These students, such as special education
students, typically struggle with testing,
8:19:44 AM
CHAIR STEVENS asked how many days are required for HSGQE testing
per year.
MR. MORSE replied that it takes three days in the spring to test
all 10th graders and 1-3 days for 11th and 12th graders,
depending on the number of tests they did not pass. In the fall
the test is given for 1-3 days to those who did not pass in the
spring. The school has schedule changes for three days both
times.
CHAIR STEVENS pointed out repealing the test would open up more
days for classroom instruction and provide relief for teachers
administering the test.
MR. MORSE agreed. He recalled that last year the Governor
suggested the elimination of the TerraNova exam which the State
Board of Education ended up removing. He said he anticipated a
new language arts combined assessment and a math assessment with
the new standards. The goal is better information with less
testing time.
SENATOR GARDNER inquired about the timing of the HSGQE test and
whether a practice test is given earlier than 10th grade.
MR. MORSE replied that the test itself is not given earlier, but
there is a practice test available to take at any time.
8:22:28 AM
SENATOR HUGGINS said 10th grade students did better on the exam
in 2009 than they did in 2013. He questioned the effectiveness
of the test. He listed some of the scores to show the
comparisons concluding that the trend is downward.
He noted that three of the committee members have served on a
school board and have struggled with how to effect change and
improve student performance. He said he supports the repeal of
the exit exam. He requested the history of the exit exam and
maintained that it did not affect positive change.
8:24:59 AM
MR. MORSE shared his experience with the exam in a school
environment and at DEED. The HSGQE came into effect in the late
90's and the first group of students to be held accountable for
the exam was the Class of 2002. It soon became apparent that
students were not prepared for the exam, especially in
mathematics, and would not graduate. The exam was redesigned;
uncodified law was clarified that it was to be a basic exam of
essential grade 8-10 skills. The first cohort held accountable
was changed to 2004. Special education students were not held
accountable until 2005 due to a lawsuit.
He remarked that it is hard to say if the exam had an effect or
not. School districts responded by increasing requirements. He
said he noticed that the population of students taking the exam
dropped significantly by nearly 1,000, which may have had an
effect on performance.
8:28:13 AM
SENATOR HUGGINS said he wondered if anything was learned from
the experience. He opined that change should effect results and
make things better for teachers. He inquired if the state
accomplished anything with the exit exam.
MR. MORSE concluded that groups of students profited; those that
needed to rise to the occasion - students who struggle the most.
He gave an example of a superintendent whose goal was to have
every student pass the exam. In many instances school districts
adjusted the instruction to target the test.
8:30:56 AM
SENATOR HUGGINS recalled conversations with teachers who said
the exit exam was a method to help underachieving students.
CHAIR STEVENS observed that many states were rushing to
incorporate an exit exam. He cautioned against chasing popular
trends.
8:32:09 AM
SENATOR STEDMAN commented that one of the things he recalled
about the exit exam is when the superintendent would report
positive student scores, the business community would report
lack of work skills by student workers. He suggested that some
of the data "suffered from benchmark error." He said one
advantage of the exit exam was to be able to see how all
districts were doing. He added that he was not opposed to
eliminating the exit exam, but he wanted to be able to evaluate
all schools across the state for effectiveness.
MR. MORSE assured that if the exit exam is repealed, a test that
provides similar data would replace it, as required by state and
federal law, but without the high stakes for students. The
replacement proposal would provide data, but also let students
have a choice of assessments that relate to state standards.
8:35:30 AM
SENATOR GARDNER requested information from the statewide results
chart from 2009 to 2013, as well as figures from implementation
to 2009.
MR. MORSE agreed to do so.
SENATOR HUGGINS suggested the book David and Goliath that
captures today's education climate.
8:36:35 AM
CHAIR STEVENS opened public testimony.
8:36:54 AM
ED GRAFF, Superintendent, Anchorage School District, Anchorage,
Alaska, testified in support of SB 111. He pointed out that
HSGQE is aligned with the old standards and not to the new
Alaska Academic Standards, which has new assessments being
designed by the Achievement & Assessment Institute (AAI).
Currently, HSGQE requires certain conditions to be in place
which have a direct impact on the district. He concluded that
graduation should be based on coursework, not an exit exam.
CHAIR STEVENS asked for Mr. Graff's opinion on the effective
date of the bill and the phasing out of the old exam.
SUPERINTENDENT GRAFF agreed that the date could affect this
year's graduation class. He said Anchorage does offer HSGQE for
adults and there should be a consideration for adults who would
like to retake the test.
8:40:53 AM
CHAIR STEVENS cautioned against assuming this discussion means
current students will not have to take the test.
8:41:13 AM
WILLIAM MCLEOD, Superintendent, Dillingham City School District,
Dillingham, Alaska, spoke in favor of SB 111. He opined that
there are several ways to assess student achievement. He
maintained that the exam has served its purpose. He shared
statistics about the passing rate of the exam in his district.
He said there are remediation programs in place for those who do
not pass the exam. He gave an example of a successful student
who made use of a remediation program. He said the exit exam
does impact the graduation rate and the 4-year rate. He believed
there were more effective ways to assess skills, such as
WorkKeys, the new iteration of the standards-based assessment
scores, and a differentiated diploma.
8:44:22 AM
PATRICK HIGGINS, Member, Anchorage School Board, Anchorage,
Alaska, spoke in favor of SB 111. He shared Anchorage's
educational focus on having students advance academically at
least one full year each year. In 2010 Anchorage adopted a scale
to measure academic success and has seen positive results.
Graduation rates have increased from 60 percent to almost 80
percent in the last six years. The exit exam has not benefitted
the Anchorage School District, especial English Language
Learners and Special Education. Anchorage has adopted the Common
Core State Standards which set higher standards than the exit
exam does. He concluded that resources should be put where they
can best be used.
8:47:43 AM
SENATOR DUNLEAVY questioned if graduation rates had increased
from 60 percent to 80 percent.
MR. HIGGINS said yes and added that the dropout rate has
decreased. He suggested that Anchorage should now focus on
raising academic scores and investing more resources before
students reach high school.
CHAIR STEVENS thanked Mr. Higgins for his service.
8:49:05 AM
SUNNI HILTS, President, Association of Alaska School Boards
(AASB), Seldovia, Alaska, spoke in favor of SB 111. She shared
ways the exit exam works against student success. She noted that
the HSGQE does not test the Alaska Academic Standards. She
maintained that an assessment that measures 10th grade
competencies sends the wrong message to students and lowers
expectations.
CHAIR STEVENS asked how long Ms. Hilts has served on the School
Board.
MS. HILTS said 10 years.
CHAIR STEVENS noted that Jean Mischel was available to answer
questions.
8:51:56 AM
MIKE COONS, testifying on his own behalf, Palmer, Alaska,
testified in favor of SB 111. He spoke against the SAT and ACT
claiming they do not measure student competency. He shared a
personal story about his educational experiences in high school
and after. He opined that tests do not adequately measure a
student's knowledge or competency. He said there is too much
emphasis on testing, especially on higher-level math.
8:55:23 AM
BETTYE DAVIS, Member, Anchorage School Board, Anchorage, Alaska,
spoke in favor of SB 111. She noted that she previously proposed
a similar bill. She said this legislation needs to take place
immediately, especially to save money.
8:57:26 AM
LARRY TALLEY, Parent, Juneau, Alaska, spoke in support of SB
111. He said that he submitted written testimony. He focused on
the human cost of the exit exam and shared a personal story of
his son who is a special education student and who failed the
test numerous times. He shared his son's wish to attend college
so he went to a summer program specializing in children with
special needs. He was accepted to Landmark College even though
he could not pass the exit exam. With the help of a math tutor,
he passed the exit exam but was delayed a year going to college.
He worked during that year successfully.
MR. TALLEY shared that his son was no longer included on the
family insurance because he was not in college, leading to high
costs to the family. He had a 3.25 GPA. He called the exit exam,
"cruel and unusual punishment."
9:03:53 AM
CHAIR STEVENS apologized for how Mr. Talley's son was treated.
MR. TALLEY said he is grateful to teachers. He added that his
son is in his second year of college and is on the Dean's List.
SENATOR HUGGINS thanked Mr. and Mr. Talley for supporting their
child under difficult circumstances.
9:05:13 AM
LIZ DOWNING, Vice-President, Legislative Committee Chair, Kenai
Peninsula Borough School District Board of Education, Homer,
Alaska, testified in support of SB 111. She said the board and
district believe in accountability, but the HSGQE is no longer
relevant. She opined that passing grades should indicate
successful completion of courses. She agreed with the concept
mentioned in the Governor's State of the State address regarding
SAT, ACT, or WorkKeys replacing the exit exam. However, she did
not see an exit exam as a requirement for graduation. She agreed
with the testimony on cost, time, and heartbreak caused by the
exit exam.
CHAIR STEVENS asked how long Ms. Downing has been involved with
the school board.
MS. DOWNING said 9 years.
9:08:08 AM
BARBARA PARKER, Member, Delta Junction School Board, Delta
Junction, Alaska, testified in support of SB 111. She maintained
that the HSGQE is a graduation-qualifying exam, the antithesis
of No Child Left Behind. With the HSGQE every year, students are
left behind. She noted that the district has new standards with
a new state assessment system that will be a much more accurate
indication of what students are learning than the exit exam.
CHAIR STEVENS thanked Ms. Parker.
9:10:57 AM
PETE HOEPFNER, Member, Cordova School Board, Cordova, Alaska,
testified in support of SB 111. He said repealing the exit exam
would save money and time.
9:11:55 AM
JEAN MISCHEL, Attorney, Legislative Legal and Research Services
Division, Legislative Affairs Agency, Juneau, Alaska, answered
questions regarding SB 111.
9:12:19 AM
CHAIR STEVENS asked whether "phasing in" for adults who have
previously failed the exit exam could be included in the bill.
MS. MISCHEL replied that the Governor's omnibus bill, SB 139,
provides for a transition period until July 1, 2017, for adults
to complete the exam. She added that is just one example of how
it could be done.
CHAIR STEVENS said he has not seen the Governor's bill, but
would check it out.
[SB 111 was held in committee.]
9:13:32 AM
There being no further business to come before the committee,
Chair Stevens adjourned the Senate Education Standing Committee
at 9:13 a.m.