Legislature(2019 - 2020)BUTROVICH 205
04/04/2019 09:00 AM Senate EDUCATION
Note: the audio ![]()
and video ![]()
recordings are distinct records and are obtained from different sources. As such there may be key differences between the two. The audio recordings are captured by our records offices as the official record of the meeting and will have more accurate timestamps. Use the icons to switch between them.
| Audio | Topic |
|---|---|
| Start | |
| Confirmation Hearing(s): University of Alaska Board of Regents Alaska Board of Education and Early Development | |
| SB79 | |
| Adjourn |
* first hearing in first committee of referral
+ teleconferenced
= bill was previously heard/scheduled
+ teleconferenced
= bill was previously heard/scheduled
| += | SB 79 | TELECONFERENCED | |
| + | TELECONFERENCED | ||
| + | TELECONFERENCED | ||
ALASKA STATE LEGISLATURE
SENATE EDUCATION STANDING COMMITTEE
April 4, 2019
9:01 a.m.
MEMBERS PRESENT
Senator Gary Stevens, Chair
Senator Shelley Hughes, Vice Chair
Senator Chris Birch
Senator Mia Costello
Senator Tom Begich
MEMBERS ABSENT
All members present
COMMITTEE CALENDAR
CONFIRMATION HEARING(S):
University of Alaska Board of Regents
Darroll Hargraves - Wasilla
CONFIRMATION ADVANCED
Alaska Board of Education and Early Development
Tiffany Scott - Kotzebue
- CONFIRMATION ADVANCED
SENATE BILL NO. 79
"An Act relating to course credit for students; relating to
annual reports regarding school district performance and school
district employees; relating to school operating fund reserves;
relating to competency examinations for teacher certificates;
relating to the duties and powers of the Department of Education
and Early Development; relating to the Professional Teaching
Practices Commission; relating to a virtual education
consortium; and providing for an effective date."
- HEARD & HELD
PREVIOUS COMMITTEE ACTION
BILL: SB 79
SHORT TITLE: VIRTUAL ED/TEACHER EXAM./COURSE EXAM.
SPONSOR(s): SENATOR(s) HUGHES
03/06/19 (S) READ THE FIRST TIME - REFERRALS
03/06/19 (S) EDC, FIN
03/26/19 (S) EDC AT 8:00 AM BUTROVICH 205
03/26/19 (S) Heard & Held
03/26/19 (S) MINUTE(EDC)
04/04/19 (S) EDC AT 9:00 AM BUTROVICH 205
WITNESS REGISTER
DARROLL HARGRAVES, Appointee
University of Alaska
Board of Regents
Wasilla, Alaska
POSITION STATEMENT: Testified during his confirmation hearing.
TIFFANY SCOTT, Appointee
Alaska State Board of Education and Early Development
Kotzebue, Alaska
POSITION STATEMENT: Testified during her confirmation hearing.
SHEILA MORRISON, Intern
Senator Shelly Hughes
Alaska State Legislature
Juneau, Alaska
POSITION STATEMENT: Reviewed SB 79 summary points for bill
sponsor.
JUDY ELEDGE, representing herself
Anchorage, Alaska
POSITION STATEMENT: Supported SB 79.
LISA SKILES PARADY, Ph.D., Executive Director
Alaska Council of School Administrators
Juneau, Alaska
POSITION STATEMENT: Gave her organization's perspective on SB
79.
WILLY KEPPEO, representing himself
Quinhagak, Alaska
POSITION STATEMENT: Provided his perspective on educational
issues in the Lower Kuskokwim School District.
ACTION NARRATIVE
9:01:16 AM
CHAIR GARY STEVENS called the Senate Education Standing
Committee meeting to order at 9:01 a.m. Present at the call to
order were Senators Birch, Hughes, Begich, and Chair Stevens.
^CONFIRMATION HEARING(S): University of Alaska Board of Regents
Alaska Board of Education and Early Development
CONFIRMATION HEARING(S): University of Alaska Board of Regents
Alaska Board of Education and Early Development
9:01:27 AM
CHAIR STEVENS announced the continuation of the confirmation
hearing for the governor's appointees to the University of
Alaska Board of Regents.
CHAIR STEVENS asked Mr. Hargraves to give his personal
background, what he brings to the board, why he is interested in
serving, and any goals he may have to improve the university
system.
9:02:26 AM
DARROLL HARGRAVES, Appointee, University of Alaska Board of
Regents, Wasilla, provided his work history. In 1969, he arrived
in Fairbanks on his way to teach in Barrow. After Barrow, he
taught in Kivalina and Gambell. He served as an intern for the
University of Alaska (UA) and later as the director of Statewide
Programs and Services. In 1974, he became the superintendent in
Nome, and later in Ketchikan. After he retired, he served as a
consulting superintendent for five different school districts.
He served as a member and as chair of the Local Boundary
Commission under four governors. He has traveled to or is
familiar with many communities in Alaska, except for the
Aleutian chain.
MR. HARGRAVES said he is pleased to assist the University of
Alaska, although he was unaware of the depth of the university's
problems when he agreed to serve on the Board of Regents. He
said he hoped the university could solve these issues so it can
move on to others, such as completing the land grant. The
university owns approximately 145,000 acres of the 360,000 acres
it is entitled to under federal laws enacted in 1915 and 1929.
Currently, the university's administration is still deliberating
over budget cuts. He expressed concern over losing the
accreditation for the teacher preparation program in Anchorage.
He offered his belief that the University of Alaska can
streamline functions between its campuses and become a statewide
system. For example, one credit hour at one campus should equal
one credit hour at all campuses.
9:07:02 AM
CHAIR STEVENS asked him to reflect more on the teacher
preparation programs. The university lost accreditation for some
teacher preparation programs at the University of Alaska
Anchorage. He recalled that the UA president, [Jim Johnsen] has
recommended to the board that it consider closing the School of
Education or part of it. He expressed concern since the majority
of the teacher education program was affected. He asked Mr.
Hargraves whether the UAA should apply for reaccreditation
again, or if the program can be addressed at the Juneau and
Fairbanks campuses.
MR. HARGRAVES replied that the Department of Education has one
of the most direct influences across the state. He related his
understanding that after the spring and summer semesters, the
university anticipated up to 350 students planned to enter
teaching from that campus. That could help address the teacher
shortage in Alaska. He said the young people in the program are
exactly what the state needs. He expressed concern that these
students would not be certified. Although he could not speak for
the Board of Regents or the administration, it was unthinkable
that a department could lose accreditation so easily, he said.
He has had extensive experience with the Northwest Accreditation
Commission. Institutions just do not lose accreditation
overnight, he said. He has not yet figured out the reason, but
he hoped that the people responsible for this were fired. The
University of Alaska Fairbanks and University of Alaska
Southeast could continue to train teachers under their
accreditation, he said.
CHAIR STEVENS said he is certainly the right person to be there
at this tough time for the university.
9:12:15 AM
SENATOR COSTELLO said education is the most important issue in
the state since it trains young people for jobs. She asked him
to identify the number one challenge facing Alaska as a member
of the Board of Regents.
MR. HARGRAVES explained that the Board of Regents hires and
fires the University of Alaska president, approves the budget,
and establishes other policies for the university. Currently,
the budget and the accreditation of the Department of Education
were the two biggest problems facing the Board of Regents. He
said that in general, education has been going through a
restructuring process of necessity due to revenue shortfalls. He
predicted that this process will continue, which will result in
increased distance delivery for all levels. Thirty years from
now classrooms simply may not be used. In fact, some Lower 48
universities have been very successful using distance delivery.
Some campuses, such as the University of Arizona, run full
programs completely by distance delivery, he said.
SENATOR COSTELLO raised two concerns: teacher turnover and the
timing of the budget, which requires districts to write several
budgets and lay people off. Educators know that having
consistent adults in a young person's life can help alleviate
adverse childhood experiences. She offered her belief that the
budget process is almost untenable. The legislature puts
districts through churning, but ultimately don't change much
with the budget. The legislature does not pass the budget until
the very end. so talented teachers leave the state.
She characterized it as a chronic problem. She expressed concern
that the university system faces the loss of accreditation,
which seemed almost due to a lack of communication because it
was not appealed. At this point in the state's history, the
state was still shining a light on problems in education. She
said that she hoped for leadership to address issues. She
introduced legislation to help alleviate education funding
issues and early funding education earlier would save the state
$20 million. She asked whether he viewed teacher turnover as a
problem related to the pink slip issues due to the legislature's
budget passage timing, which falls late in the session.
MR. HARGRAVES said that during his time in Nome as a
superintendent, annual teacher turnover levels historically were
45 to 50 percent. During that time, teacher positions were
filled by telephone, so he hired people from all over the United
States. Any local certified teacher automatically got a job, he
said.
He said that in the early 70s that the state obtained a Ford
foundation grant to train teachers in order to keep them in the
state, but it was not particularly successful. However, teacher
turnover has always been a problem. He expressed concern that
with the loss of teacher training in Anchorage the problem would
get worse. In fact, superintendents and school districts all
over the state travel to the Lower 48 to contact teacher
placements trying to locate applicants since not enough
applicants in Alaska apply.
MR. HARGRAVE agreed that one of the biggest problems in the
system was the big delay in getting an approved budget. Some
school districts were successful working within that process.
However, it would be fantastic to fund education a year in
advance to allow districts to prepare their budgets and know the
number of teacher positions to keep. He acknowledged some
disadvantages would be experienced in that process, but overall
it would be a better process.
SENATOR COSTELLO said the legislature has done a lot to help the
state to grow their own engineers with programs. She would hope
the efforts would turn to cultivating new teachers, perhaps by
finding a means to identify people in rural areas who want to
teach in rural communities.
CHAIR STEVENS suggested the legislature could review the nursing
program for successes since having the program in the state has
made a difference.
9:21:08 AM
SENATOR BEGICH said he agreed that the current accreditation
should be extended to students in Anchorage so these students
can receive a meaningful certificate. He wanted to put on the
record that he does run a scholarship program for students who
go to University of Alaska Anchorage to become educators. His
bigger concern is the president's comments that he does not
intend to pursue accreditation. He said he didn't hear Mr.
Hargraves directly address that aspect. He asked him whether he
agrees with the university president or if the University of
Alaska Anchorage should pursue accreditation.
MR. HARGRAVES remarked that it was a terrible thing for UAA to
lose the education accreditation. As a member of the Board of
Regents, he has not yet been fully informed about what President
Johnsen will recommend since the University of Alaska's
president has not met with the Board of Regents. He said he
would work to keep the program in place. One problem he
envisioned was that the university would lose a minimum of two
to three years of accreditation, so students in these programs
will graduate without it. If the UAA were to reapply for
accreditation, it would still take time to reinstate it. He
pointed out the Department of Education rules currently require
accreditation, although he understood that some states did not
find that particular accreditation necessary. Still, Alaska
adopted it, so each campus enrolled students in the programs.
These students paid tuition with the understanding that their
programs were accredited. He suggested that some type of
extension program might help the University of Alaska retain its
education students. However, at this time the Board of Regents
does not have enough information to respond.
9:24:56 AM
SENATOR BEGICH related President Johnsen's intent was to
recommend that the Board of Regents not pursue the accreditation
program any longer. He recognized the potential two-to-three-
year transition for accreditation. However, he would like
something more concrete. He would like his community, which is
the largest in the state with 40 percent of the population, to
have an accredited university. He related his understanding that
Mr. Hargraves will need to listen to what the UAA president
suggests as a solution. However, he hoped that Mr. Hargraves
would be more aggressive in supporting Anchorage's and
essentially the Mat-Su's School of Education. He urged him take
accreditation seriously and the need for Anchorage to have an
accredited School of Education.
CHAIR STEVENS related his understanding that the board would
meet this month to address this issue vis--vis the UAA
president's recommendation. He related his understanding that
this issue would not affect the entire University of Alaska
School of Education, that it would be limited to part of the
program. He said he assumed the other programs would continue.
MR. HARGRAVES acknowledged that he has read the news reports.
The Board of Regents received notice that the UAA president will
make recommendations at the next board meeting. His first
impulse is to find a way to get that accreditation back in
place, he said.
9:28:18 AM
SENATOR BIRCH said he appreciated Mr. Hargrave's advocacy for
the land grant program. He briefly discussed the University of
Alaska's history. In 1917, it was founded as a School of
Agriculture and College of Mines when the federal government
committed land to establish the university. In 1959, Alaska's
first legislature granted a million acres of land to the
university. He said he appreciated Mr. Hargrave's aspirations,
including for distance learning. He said he attended the
University of Alaska in the late 60s and 70s when it was one
university. Now the UA has three major campuses and 13 satellite
campuses. He questioned whether the UA can operate in so many
locations. In fact, this is something he struggled with when UAA
Fairbanks opened a second College of Engineering many years ago.
MR. HARGRAVES said that while he was still at the UA, he was
tasked to create the Tanana Valley Community College (TVCC). He
pointed out that there was no need for new buildings. Although
the university built an administrative building for TVCC, the
college shared the Hutchinson Career Center and Fairbanks North
Star Borough School District (FNSBSD) facilities to meet its
needs. Since the Community College Act of 1962, the UA via
memorandum of agreements has used local school buildings, he
said.
MR. HARGRAVES explained that years ago, a prior UA president
decided that it made sense to abolish the MOA's and build its
own buildings, which the legislature supported. The
proliferation of physical assets for the university at some
sites never made any sense to him. He has observed these
facilities in communities, which sit dark all day. Even if these
facilities weren't staffed, each one hired a director, he said.
He offered his belief that school district facilities could
satisfy all of these communities' needs. He suggested returning
to the community college concept and reinstitute the MOAs for
school district facilities. He recalled this method worked well
when he was the director of the UA Statewide Services. He
offered his belief that many people consider the university's
facilities to be the center of community activities, but he does
not share that view. Although some rural locations have enough
students to justify a campus, it is not true for many, he said.
9:34:00 AM
SENATOR HUGHES related her understanding that the University of
Alaska currently offers over 400 university degree programs. She
asked whether the Board of Regents would be interested in
reviewing the programs using three criteria: student interest
and demand, the state's workforce, and programs that related to
Alaska's uniqueness in the Arctic. She said she was optimistic
that by restructuring, consolidating, and streamlining the
university system and programs, that it could encourage students
to stay in the state and also entice out-of-state students. She
expressed concern that offering too many programs weakened the
overall programs. Instead, she reiterated that the UAA should
provide programs based on these three criteria This effort could
increase UAA's college rankings and bolster student enrollment.
She asked for his view of this model.
MR. HARGRAVES responded that he agreed with all of her points.
He agreed that by focusing on too many courses it could dilute
and diminish the quality of the overall programs the university
offers. He pointed out that the UAA has an active program to
review courses. He said he has been encouraged that department
heads, deans, and provosts have been cancelling and cutting
programs that lack adequate justification. He offered his intent
to suggest the administration increase this effort.
9:37:53 AM
CHAIR STEVENS opened public testimony and after ascertaining
there was none, closed public testimony. He solicited a motion.
9:38:21 AM
SENATOR HUGHES stated that in accordance with AS 39.05.080, the
Senate Education Standing Committee reviewed the following and
recommends the appointment be forwarded to a joint session for
consideration:
University of Alaska Board of Regents
Darroll Hargraves - Wasilla
9:38:34 AM
CHAIR STEVENS found no objection and the motion passed.
Signing the reports regarding appointments to boards and
commissions in no way reflects individual members' approval or
disapproval of the appointees; the nominations are merely
forwarded to the full legislature for confirmation or rejection.
9:38:48 AM
At ease.
9:40:14 AM
CHAIR STEVENS reconvened the meeting and announced the
confirmation hearing for Ms. Scott, appointee to the Alaska
State Board of Education and Early Development. He asked her to
speak to what she brings to the board, why she is interested in
serving, and any goals she may have for their education system.
9:40:50 AM
TIFFANY SCOTT, Appointee, Alaska State Board of Education and
Early Development, Kotzebue, introduced herself. Her Eskimo name
is "Nipisan" and her English name is Tiffany Scott, she said.
She is from Kotzebue, but her family originally comes from
Noorvik. She said she works as a registered nurse in the
emergency department at Maniilaq Health Center in Kotzebue,
which serves 12 federally recognized tribes in the Northwest
Arctic. She graduated from Colony High School in Palmer in 2003,
the School of Nursing at the University of Alaska Anchorage, and
the Alaska Technical Center in Kotzebue. She holds a Bachelor of
Liberal Arts from the Harvard University Extension School in
Cambridge, Massachusetts, she said.
MS. SCOTT explained that last year former Governor Bill Walker
appointed her to serve on the State Board of Education (BOE) as
the representative for the Second Judicial District. Governor
Dunleavy reappointed her to the same seat for a five-year term.
The state BOE has seven members, comprised of leaders in special
education, indigenous education, school counseling serving
unrepresented students in postsecondary education, local school
board, and athletics and education policy. Each of these
perspectives helps the state to move forward on the three
commitments of the Alaska Education Challenge, which is to
increase student success, support responsible and reflective
learners, and cultivate safety and well-being. She said that she
hoped to bring her perspective as a rural resident, nurse, and
former school board member. She hoped it would expand the BOE's
work, especially as it relates to cultivating student safety and
well-being.
MS. SCOTT expressed an interest in serving on the Board of
Education because in Alaska's earliest history, she would not
have been allowed to serve since she is an Alaska Native person
and woman. Her mother has shared her experiences attending
boarding schools operated by the Bureau of Indian Affairs. Her
mother was sent from home when she was twelve years old to
attend schools in Southeast Alaska. She said that once her
mother and classmates returned home, these children knew their
lives would never be the same. These youth lost parts of the
Native culture that the Inupiat have been working hard to
preserve and revitalize. She expressed gratitude for the many
years of advocacy asserting the rights of Alaska Natives in
education that has helped her reach a seat on the board. The
state must partner with tribes and Alaska Native organizations
to not only narrow the achievement gap but to take seriously the
charge to transform Alaska's schools. Education provides people
with hope and can help them overcome social challenges that
threaten the promise of education. Ms. Scott spoke in Inupiaq,
which she translated to mean "We work together."
CHAIR STEVENS expressed appreciation for her service on the
board.
9:44:04 AM
CHAIR STEVENS opened public testimony, and after ascertaining
there was none, closed public testimony.
9:44:18 AM
SENATOR COSTELLO asked the record to reflect that the committee
and legislature appreciates Alaskans who come forward to serve
the state. She offered her belief that Ms. Scott was familiar
with many of the issues the committee has deliberated and
discussed, including teacher turnover in rural and urban Alaska
and the high rate of suicide among young people. She said that
Ms. Scott was a fabulous addition to the board. The lack of
questions for her does not indicate any lack of interest in the
strengths she brings to the board, she said.
9:45:11 AM
SENATOR HUGHES remarked that Ms. Scott did a great job during
her time serving on the Mat-Su school board. She recalled Ms.
Scott attended Colony High School with some of her children. She
said that Ms. Scott's comments about transforming education
rings true. She said she was glad that Ms. Scott understood the
need to close achievement gaps
9:46:04 AM
SENATOR BIRCH extended his appreciation for her continuing
engagement in public service. She continues a long tradition of
public service in her family, he said.
9:46:30 AM
CHAIR STEVENS solicited a motion.
9:46:33 AM
SENATOR HUGHES stated that in accordance with AS 39.05.080, the
Senate Education Standing Committee reviewed the following and
recommends the appointment be forwarded to a joint session for
consideration:
Alaska Board of Education and Early Development
Tiffany Scott - Kotzebue
9:46:45 AM
CHAIR STEVENS found no objection and the motion passed.
Signing the reports regarding appointments to boards and
commissions in no way reflects individual members' approval or
disapproval of the appointees; the nominations are merely
forwarded to the full legislature for confirmation or rejection.
9:46:59 AM
At ease.
SB 79-VIRTUAL ED/TEACHER EXAM./COURSE EXAM.
9:48:10 AM
CHAIR STEVENS reconvened the meeting and announced the
consideration of SB 79 and his intention to have committee
discussion, take public testimony, and hold the bill in
committee.
9:48:29 AM
SENATOR HUGHES said the committee heard an overview and
sectional of the bill at the March 26, 2019 meeting. She
referred to a sheet with summary points in members' packets.
This bill is the culmination of several years' work by some
members of the committee, particularly Senator Begich. The
committee held numerous joint meetings with the House Education
Committee, bringing forward provisions with consensus. Her staff
will review the six major aspects of bill. She offered to
address some possible concepts to include in a committee
substitute.
9:49:59 AM
SHEILA MORRISON, Intern, Senator Shelly Hughes, Alaska State
Legislature, Juneau, reviewed a summary document, relating that
the first two points pertain to students and improved outcomes,
the second two relate to the importance of enough quality
teachers, and the last two points focus on cost savings measures
and focus on increased funding in classrooms. She paraphrased
the summary titled, "SB 79 Virtual Ed / Teacher Exam / Course
Exam Sponsored by Sen. Education Transformation Act, Summary
Points:
• VIRTUAL EDUCATION Creates virtual education consortium
in the department to allow students statewide to take
online classes offered by other school districts.
Gives districts the option to join the consortium. The
consortium will maintain a database/menu of course
offerings with course descriptions, video
introductions of teachers, video instruction samples,
and curriculum samples. Teachers will have access to
virtual teaching training and professional development
courses. Allows a district to charge for a course
offered. Districts that join the consortium will be
assessed a fee to support the operations of the
consortium.
• COURSE CREDIT FOR OUT-OF-SCHOOL ACTIVITIES Allow
students to receive credit for activities outside of
school for career and technical education, physical
education, art, and music, including for cultural
activities, if the activities meet the district course
requirements.
MS. MORRISION paraphrased the next two sections, which relate to
teachers.
• RAISED BAR FOR TEACHER CERTIFICATION Requires teacher
certification test scores to be increased when they
are lower than other states.
• RATIO REPORTING Requires each school district to
report annually on ratio of administrative employees
to teachers to students to the department and to a
district's local community. Requires the department to
report these ratios to the legislature.
MS. MORRISION paraphrased the next two sections related to cost
savings and classroom funding.
• ROLLOVER SAVINGS LIMIT INCREASE Increases school
district fund balance cap from 10% of operating costs
to 25% to encourage efficiency improvements. Savings
derived from cooperative agreements are outside the
25% cap for first three years.
• CONSOLIDATION OF ADMINISTRATIVE SUPPORT IN DEPARTMENT
Consolidates the administrative support for the
Professional Teaching Practices Commission into the
department.
SENATOR HUGHES reviewed the considerations for a potential
committee substitute (CS) for SB 79. She paraphrased the summary
provisions.
• Virtual education working group: remove specificity of
consortium in bill and require commissioner to convene
working group to determine its structure, how it will
function, district participation, any teacher training
requirements, class fee methodology, etc.
• Praxis adjustments to occur every 3 years rather than
"periodically" as currently stated in bill.
• Insertion of "classroom" prior to "teacher" in ratio
language. Inclusion of classroom teacher definition.
• Read by nine language early child literacy. (Will
reduce achievement gaps and social promotion.)
• New method for acquiring student count for BSA
calculation: instead of average daily attendance for
dates in October, use average daily attendance for
school year. (Will decrease absenteeism)
• Expanded cooperative agreement language to include
shared services and partnerships with other districts,
other government agencies, businesses, and non-profit
organizations. (Will free up dollars for classrooms.)
SENATOR HUGHES said that the commissioner recommended including
stakeholders from the Alaska Society for Technology in Education
(ASTE) in the Virtual Education Working Group. She noted that
Jerry Covey previously suggested changing the language by
adjusting Praxis scores. She added that the commissioner
provided a standard definition for teacher that was used by the
department, which is in members' packets.
SENATOR HUGHES directed attention to the read by nine literacy
provision. The committee just heard from Tiffany Scott, BOE,
about achievement gaps in the state. Virtual education primarily
was for middle and high school student. However, the need for
students to learn to read by the third grade is necessary to
close the achievement gap, she said. While some educators are
beginning to use online tools to help struggling readers, she
cautioned against not having a classroom teacher for K-3
students or even older students struggling with reading.
She reiterated the goal was to try to close achievement gaps in
both the higher and lower grades. She directed attention to the
language in the draft legislation, which was based on
legislation used elsewhere. For example, one provision would
require districts to hold summer camps. She suggested that the
language be changed to "may" because it might not work for some
communities.
9:56:56 AM
She suggested adding language to address situations for the
students receiving intensive instruction who are doing fine in
other subjects, but struggle to keep up with their cohorts in
reading. She recommended that these students be allowed to stay
with their cohorts as much as possible. For example, one option
would be to keep these students with their cohorts once their
reading skills were at grade level. She said she hoped that
school districts would consider this approach. She related that
Dr. Bishop has indicated that the Anchorage School District was
already implementing many of these concepts. However, the goal
would be to close the achievement gaps throughout the state.
When children learn to read by age nine, these students
subsequently "learn" by reading, so reading is an essential
skill, she said.
9:58:49 AM
SENATOR BIRCH said that the fiscal note would require the
Department of Education and Early Development (DEED) to
establish a virtual education consortium. He asked whether
removing that requirement would positively affect the fiscal
note.
SENATOR HUGHES answered that the commissioner said he would like
to work to reduce the fiscal note for the working group in the
first year by reducing the number of employees. She recalled
that the fiscal note added seven or eight employees, but the
commissioner thought that the work could be done with fewer
staff. She offered her belief that the fiscal note will change.
SENATOR BIRCH asked how credits earned for activities conducted
outside of the school day would be determined, in particular, in
terms of graduation credits. He further asked how that would be
managed so students do not have credits that would not advance
their academic interests.
SENATOR HUGHES replied that some districts were already doing
allowing credits outside the school, so long as the activity met
the district requirements. For example, a band course requires a
certain number of hours. However, if students were in community
bands or took lessons, and the district determined that the
activity mets the course requirements, the student could receive
music credits. She characterized this approach as a flexible
one. For example, students on the varsity basketball team could
use their gym training hours to meet the physical education (PE)
requirements, which would free students up to take other
courses. She envisioned that these decisions would be made by
each district and the activity must meet the course
requirements. She remarked that many valuable educational
experiences happen outside of the school.
10:01:05 AM
SENATOR BIRCH noted [Section 7] would amend AS 14.17.505 by
increasing the districts' unreserved fund balance limit from 10
percent to 25 percent of district expenditures. He cautioned
that district expenditures for education are immense. He
recalled that one report showed districts had reserved hundreds
of millions of school funding. He expressed concern about the
amount of money school districts were squirreling away in
unreserved fund balances that could better be used to fund
education. He asked for the justification for districts to
increase the percentage of their unreserved fund balances.
SENATOR HUGHES answered that the statewide combined total was a
couple hundred million. The reason for the increase was to
encourage efficiencies and allow school districts to have more
funding available to weather rougher economic times. For
example, a district could achieve efficiencies in order to save
its funds for a great instructional program. She recalled that
Senator von Imhof brought this suggestion forward.
10:02:46 AM
SENATOR BIRCH reiterated his belief that the legislature needed
to see "all the piggy bank dollars on the table" so everyone
would be on an even playing field. He noted that a couple
hundred million dollars was not an insignificant amount.
SENATOR HUGHES said the committee has the discretion to reduce
the amount or even remove the provision. She said she certainly
would not want that provision to prevent passage of other great
provisions in the bill.
10:03:26 AM
SENATOR COSTELLO commended Senator Hughes as a passionate
advocate who seeks better results in education and promotes
innovative solutions.
She acknowledged that some districts already offer online
courses. For example, the Anchorage School District has an
agreement with Middlebury College to offer language classes in
middle schools and high schools. She asked whether the virtual
education consortium would mean that the department could not
work with Middlebury College, or if this specifically related to
online courses offered within a school building. She asked
whether this referred to courses teachers in local school would
develop and videoconference or to curriculum the districts would
write and offer online. She offered her own experiences as a
teacher who developed lesson plans. She expressed concern about
the level of support teachers receive from the district. She
said she wishes DEED had the benefit of her lesson plans in a
format that could be shared with other teachers in Alaska.
SENATOR COSTELLO related her understanding that this focus was
more about fostering a connection between an online class in one
district with an online class in another. She remarked that it
takes significant time to find good online classes and
communicate the course work to students. She questioned whether
the department should be involved, since this work would all
happen within districts. She further suggested that the
department could focus its time and energy on helping to improve
what happens in classrooms.
CHAIR STEVENS noted that the department was online.
SENATOR HUGHES answered that she initially envisioned developing
a database for students to use, but she realized these online
courses could also be wonderful resource for teachers to observe
how other teachers teach. She pointed out that the database
could be similar to the one that Senator Costello described. For
example, a teacher at Teeland Middle School could share
recordings of how to solve math problems that could be accessed
by anyone in the country.
This bill would not require districts to go through the
department to reach agreements with colleges, so it would not
interfere with the Anchorage School District's arrangement with
Middlebury College, she said. She suggested that this topic
might be something the working group could further discuss. She
said she initially envisioned that districts would share open
slots in classrooms with other districts. The working group was
formed to allow districts to figure out what would be most
helpful, she said
10:08:23 AM
SENATOR COSTELLO asked the sponsor whether she had contemplated
potential unintended consequences of allowing course credit for
outside activities. She said she strongly supports music in
school since it can have a huge impact on children's enjoyment
of school. Research shows that learning a musical instrument
provides tremendous benefits for students. She expressed concern
that some parents who can afford to do so might pay for private
music lessons for their children instead of having them
participate in the school band or symphony. She highlighted that
the whole culture of music programs in schools is tremendously
beneficial because students gain from working collectively with
their peers. She recalled that one of her most enjoyable moments
as a parent was watching a diverse group of students coming
together to perform music for an audience.
SENATOR HUGHES argued that it would not have that effect. She
related that she heard from a number of superintendents who
indicated that many schools already allow this flexibility. It
has not resulted in what Senator Costello described. Instead, it
supplements the music program, so students who plan to major in
music can obtain additional music credits beyond band and choir.
From what she has heard, it has not been a problem. She surmised
that it was probably more of an exception for a student to free
up a period in order to take a higher math class. She suggested
this issue could be addressed further if problems arose.
10:11:47 AM
SENATOR COSTELLO expressed concern about teacher certification
test scores. She said she learned that grades should be based on
meeting the standards. For example, in aviation, pilots have
performance-based assessments. Pilots are trained and must prove
their ability to perform to a certain standard. Instead of
basing teacher certification relative to other teachers across
the country, it should be based on meeting a set of standards,
she said. She questioned the fairness of one class of teachers
meeting one standard and another class meeting another standard
because the standards change. She offered to discuss this
further with the sponsor.
SENATOR HUGHES replied that she had not thought of it in that
way. She suggested that perhaps the adjustment would not need to
be made every three years. She recalled that high school physics
teachers in Alaska were 25 points or so lower. She said that it
is important for students who want to go to college to have
confidence that their high school physics teachers fully
understands the physics being taught. She agreed to further
discuss this provision.
10:14:48 AM
SENATOR BEGICH explained that in his high school, students who
learned course subject matter outside of the classroom were
required to prove their competence and comprehension of the
course material. These students were subject to a rigorous and
difficult process to show teachers that the course requirements
were met, he said. He offered his belief that this bill would
encourage students to do that. It would force students to
contemplate the credit requirements and show how their work
relates to it, he said. The Anchorage School District has
offered students the ability to challenge courses for decades.
In fact, he graduated from high school early because he was able
to double up on courses, but he had to prove it to his teachers,
he said.
SENATOR BEGICH referred to an issue discussed earlier that
related to districts' fund balances that totaled $200 million.
He directed attention to a letter members received from Melody
Douglas, the Alaska Association of School Business Officials
(ALASBO). The letter explained the importance of fund balances.
For example, teacher salaries must be paid timely, but if state
funding was delayed for any reason, the districts could fail to
meet payroll. Salaries vary, with some salaries paid year round
whereas others are paid for nine months, he said. Just as the
legislature uses the Constitutional Budget Reserve Fund for cash
flow, the districts' fund balances are required by most
accounting processes to make sure the districts were performing
their due diligence as public officials.
He clarified the reason for the increase [to the districts'
unreserved fund balance limit from 10 percent to 25 percent of
district expenditures] suggested by Senator von Imhof would
recognize that massive innovation might require some upfront
costs. The corollary is that certain grant applications and bond
debt require reserves be kept on hand. He recalled on recent
suggestion implied that if the unreserved fund balances were
swept up, it could offset the proposed education cuts. He
offered his belief that taking that approach would be
devastating for school districts. He encouraged members to read
the letter.
10:17:46 AM
SENATOR BEGICH expressed concern on the read by nine provision.
He suggested that it might not be effective for districts that
use a fluid process instead of a graded one. For example, the
Chugach School District uses a fluid process, but it does not
use retention as a factor, so there would be no way to measure
it. He recalled that Bob Griffin, appointee to the State Board
of Education, previously mentioned the Finnish model, which also
uses a flexible model, he said. If the state were to adopt a
model like the Finnish one, the concept of a third grade
retention would be less effective because it would not fit the
model. He cautioned that the committee keep its options open as
it seeks innovation and not to create "brackets." It could
prevent districts from using innovative systems, such as the
Finnish model, or the system used by former Commissioner Hanley
in the Chugach School District.
SENATOR HUGHES remarked that the bill can be improved by
suggestions from members. She suggested that the committee may
wish to consider some type of waiver to address Senator Begich's
concern if the language is adopted in the proposed committee
substitute.
10:19:13 AM
SENATOR BEGICH said he raised the issue because he supports the
bill. He echoed Senator Costello's comments that teachers need
supported curriculum.
He noted that the House recently eliminated the $19.5 million
funding for former Senator MacKinnon's approach to curriculum
revision. He said he was confident that the incentives were not
needed. However, in the process, the department lost three
curriculum positions, which he hoped the committee would
consider restoring. The DEED is notoriously close to failing to
meet its support requirements under the Constitution of the
State of Alaska, as evidenced through court cases, he said. He
offered his belief that with three curriculum positions, the
DEED could provide curriculum support and other support
necessary for teachers. He thanked Senator Hughes for her work
on these long-sought education bill.
SENATOR HUGHES referred to the last two bullet points.
• New method for acquiring student count for BSA
calculation: instead of average daily attendance for
dates in October, use average daily attendance for
school year. (Will decrease absenteeism)
• Expanded cooperative agreement language to include
shared services and partnerships with other districts,
other government agencies, businesses, and non-profit
organizations. (Will free up dollars for classrooms.)
The districts currently use specific dates in October for
student counts to determine the base student allocation (BSA)
calculations. SB 79 would use the average attendance for the
entire school year. The districts work hard to encourage student
to attend school in October, but the goal is to encourage
attendance year-round, she said. Absenteeism can affect the
counts in some districts, especially in places with achievement
gaps, she said. She acknowledged that this change was not a
"magic bullet" that would suddenly make students show up.
However, it could create a culture in schools that would
emphasize the importance of year-round attendance. It could help
smooth funding for special education. In instances in which
students attend one school at the beginning of the year, but
move to another district, the extra funding for special
education does not move with the student. She suggested that
this might be a fairer approach.
SENATOR HUGHES said the provision about cooperative agreements
would expand the language in statute to include shared services
between districts, governmental agencies, and nonprofits. She
explained that the goal was to funnel cooperative agreement
grant savings back into classrooms. She clarified that this does
not request additional money for cooperative agreement grants
although the Senate Finance Committee may decide to consider it.
10:23:09 AM
CHAIR STEVENS opened public testimony.
10:23:32 AM
JUDY ELEDGE, representing herself, Anchorage, stated support for
SB 79 and the virtual classrooms. She said that since 1997 she
has worked in rural Alaska in low performing schools. She has
been dedicated, has slept on school floors, and brought her own
food. She offered her belief that she brings a different
perspective to what happens in schools. She characterized the K-
12 education as archaic. She described the situation where one
teacher tries to teach all K-12 grades as impossible. She said
that the districts hire high school teachers, who place their
emphasis on teaching high school students, even when most of
these schools have fewer high school students. The virtual
classroom can help free up teacher time so it could be spent
teaching in the lower grades. These schools need to have good
primary teachers to teach reading in order for education to
improve. Schools should also have good teacher aides, which
would help immensely, she said. The virtual classrooms can
really open that door and students' eyes to the world outside.
MS. ELEDGE offered her support for using student counts averaged
for the full school year. She characterized the truancy law
enforcement as nonexistent. Someone can miss 50 days of school
and still pass to the next grade. She also offered her support
for the read by nine model, because it is clear and simple. She
said that the "No Child Left Behind" policy required every child
to read by third grade, but it did not work since there were no
consequences. She offered her belief that the rural schools have
major systematic problems, but SB 79 could start the process to
improve them. She said the bill could make a difference, but it
will take time.
10:27:37 AM
SENATOR BEGICH said he appreciated her saying that it does not
happen overnight.
MS. ELEDGE confirmed that the problems in districts could not be
solved in one year.
10:28:14 AM
LISA SKILES PARADY, Ph.D., Executive Director, Alaska Council of
School Administrators (ACSA), Juneau, said that SB 79 was going
in the right direction. She said that many districts were
already working on distance learning. She suggested the
districts should implement these changes in a thoughtful,
methodical way to ensure it is done right. She asked the
committee to urge administrators to support the efforts. She
suggested that Dr. Mary Wegner, who is a member of the
International Society for Technology in Education, should be
consulted since she could provide valuable resources in the
process. She has been recognized as a state and national leader
in distance education. A number people have formed a working
group to work on the issue. She offered to share their
recommendations in writing or at a future hearing.
SENATOR BIRCH referred to the committee's earlier discussion on
the unreserved fund balance increases for districts. He asked
whether districts obligate and commit funds on an annual basis
when the districts hire their employees. The committee received
a memorandum from DEED that indicated the unreserved fund
balance was $200 million statewide. He asked whether she saw a
need for that increase.
DR. PARADY answered that she would like to hold discussions on
this, along with ALASBO, since the group was intimately familiar
with the unreserved fund balance. She pointed out that it varies
by district, but the figures can be deceiving. In fact, the
unreserved fund balance purpose is for emergency use, such as if
the boiler fails and needs to be replaced, she said. The
governor suggested that school districts could use fund balances
to transition to his proposed budget. She said she would like to
dispel the notion that this fund was a transition fund to buffer
school districts against the proposed budget because it is not.
For example, the Juneau superintendent, Dr. Weiss, indicated
that the Juneau School District could one operate for three days
with its fund balance. Further, Jim Anderson, Chief Financial
Officer, Anchorage School District, indicated that the ASD was
required by municipal charter to maintain a certain fund balance
to maintain its good bond rating. She suggested the legislature
must review the fund by district.
10:34:15 AM
SENATOR BIRCH said a one percent reserve is probably not enough
but there have been concerns voiced about voters turning down a
bond proposition and school districts building anyway because
there is money in the reserve. He said he was still trying to
sort through the issue and looked forward to the discussion.
CHAIR STEVENS suggested the committee continue to discuss the
issue of fund balances for before going on to other issues.
SENATOR HUGHES said she misspoke when she credited Senator von
Imhof with bringing the idea forward. It was Senator MacKinnon
who made the suggestion and Senator von Imhof voiced support.
She also expressed hope that DEED took note and would consult
Dr. Wegner.
DR. PARADY referenced Senator Birch's comment and said she did
not believe that districts can redirect funds for any purpose
other than what was stated on the bond proposition. She offered
her belief that it is appropriate to save whenever possible but
didn't want that misconstrued to mean that districts were
"squirreling away money." That is certainly isn't the case in
Alaska, she said.
10:36:57 AM
SENATOR BEGICH echoed Senator Birch's concern saying he did not
know the reason for an increase to the fund balance.
CHAIR STEVENS said that the committee would be glad to hear from
the department about fund balances.
SENATOR COSTELLO commented that the committee was working to
discern whether the bill achieves the desired results. She
reminded members that in 1977 Governor Jay Hammond signed Senate
Bill 35 which gave clear direction that Alaska wanted local
control. She said she preferred local decisions for schools to
be made by the people who have children in the schools and know
the community. She expressed an interest in what superintendents
need. She expressed frustration that the legislature never gets
to that question because it is always arguing about the funding.
She said she supports early education funding to free up time to
hold other discussions. She asked Dr. Paraday to weigh in on
what superintendents need.
DR. PARADY said she would like time to consider the question.
She offered her belief that superintendents frequently discuss
the need to stabilize districts, in terms of overall funding,
but also the timing of it so districts can hire quality staff.
She noted that the council's joint position statements do
outline their priorities, such as early childhood education. If
districts want their students to accomplish things by third
grade, the legislature needs to invest in education and make
sure children are ready to learn when students come to school.
She said superintendents appreciate Senator Begich's efforts on
SB 6. In order for students to succeed, the state must invest in
that early education.
DR. PARADY encouraged the committee to review the joint position
statements. She also acknowledged that career and technical
education was important. Students who engage in career and
technical education graduate. The state must build that out for
all students. Extending the reach of good, quality teachers and
doing whatever the state can do to shore up its crisis around
quality teachers is important and Senator Costello's bill helps.
DR. PARADY reminded the committee that the state worked on this
through the Alaska Learning Network (AKLN) but the program
collapsed when funding was cut. She emphasized that the
legislature must commit to increasing bandwidth and while the
bill to incrementally increase the Broadband Assistance Grant
(BAG) to a minimum of 25 Mbps does not provide for student
connectivity needs, it may be the best that the state can do
this year. The state does not have the $2 billion necessary to
wire the whole state, but it can be done incrementally to better
support the type of programs suggested in this bill.
DR. PARADY said the legislature and the Alaska Council of School
Administrators must thoughtfully figure out how to move forward.
DR. PARADY said the districts have lost many of its
superintendents because the job has gotten more difficult. The
experience level across the state has declined. Dan Walker,
Lower Kuskokwim School District (LKSD) is an example of
longevity in leadership, she said. His ongoing leadership and
his leadership team have focused on making a difference in
student graduation rates. LKSD, the largest rural school
district, does not have a school in the lowest 10 percent. That
is significant. Those are the kind of progress points the
districts need work on. The LKSD has sustained focus and ongoing
leadership and the district pours enormous resources into
retention of their teachers and into growing their own. As the
committee has said, that is a pocket of prosperity. LKSD is a
model for rural schools, but it comes with solid leadership over
time. The districts do not experience that success in the rest
of the state. She suggested the legislature and administrators
need to understand what happens in successful districts and
replicate it in other districts .
10:45:31 AM
SENATOR HUGHES said that she appreciated her comments. She said
the state must give students statewide access to great teachers
and that SB 79 would help. One thing that surfaced in the Senate
Finance Committee is a correlation between career and technical
courses and academic achievement in core subjects, she said.
While virtual education might not allow students to put on
goggles and participate in welding, it that will come, she said.
DR. PARADY said she appreciated the comments about local control
because districts know best what their children need.
10:47:25 AM
WILLY KEPPEO, representing himself, Quinhagak, said his
community on the coast of the Bering Sea is part of the Lower
Kuskokwim School District. He said that he views this
differently because he is not a part of the system. He has been
watching LKSD for 30 years. He has three children and his
youngest attends Mt. Edgecumbe High School because she wants to
go to college. She wanted to have a job like her sister. He
suggested that LKSD needed a total forensic audit. Even when the
superintendent changes, the new one enters a system that has
been in place for so many years that the new superintendent
cannot change anything. The district is lucky if teachers stay
for two years. He questioned why the system can't be set up like
the army where the teachers would sign contracts for a certain
number of years in exchange for paying for their education. He
remarked that life in the villages was a completely different
lifestyle. He offered his belief that district spending needed
to be curtailed, because the waste is unbelievable.
He offered his belief that consolidating schools was a good
idea. For example, parents in Quinhagak would prefer to have
their children go to school in Bethel rather than attend school
in Mt. Edgecumbe in Southeast Alaska. It is costly to fly to
Sitka and parents could visit students more easily in Bethel.
Students want the opportunity to take courses, such as shop, but
it is not feasible for districts to offer these classes in
schools with only a few students. He said he hoped the outcome
of SB 79 would be change. He acknowledged that he did not have
solutions to the problems. However, the legislature needs to
know the funding available in the districts, so he recommended a
forensic audit.
CHAIR STEVENS said the committee takes public comments
seriously. He recalled Senator Hoffman raised the same issue in
the Senate Finance Committee, in terms of lifestyle in the
villages, such that teachers relocating from cities such as
Boston will choose not to stay for long.
10:55:12 AM
CHAIR STEVENS held SB 79 in committee.
SENATOR HUGHES said that she planned to visit offices to explore
waivers for the literacy, the fund balances, and Praxis scores.
10:56:03 AM
There being no further business to come before the committee,
Chair Stevens adjourned the Senate Education Standing Committee
at 10:56 a.m.
| Document Name | Date/Time | Subjects |
|---|---|---|
| 10_SB079_Ed Tranformation Act_Support_Cmte Meeting Points_04_03_2019.pdf |
SEDC 4/4/2019 9:00:00 AM |
SB 79 |
| 11_SB079_SB079_Ed Transformation Act_Research_Definition of a Teacher.pdf |
SEDC 4/4/2019 9:00:00 AM |
SB 79 |
| 12_SB079_SB079_Ed Transformation Act_Research_Read By 9.pdf |
SEDC 4/4/2019 9:00:00 AM |
SB 79 |
| SEDC_ConfirmationHearing_Profiles_Board of Education_02April2019.pdf |
SEDC 4/4/2019 9:00:00 AM |
Confirmation - Board of Education - April 4, 2019 |
| SEDC_ConfirmationHearing_Profiles_Board of Regents_02April2019.pdf |
SEDC 4/4/2019 9:00:00 AM |
Confirmation - Board of Regents - April 4, 2019 |