Algebra Policy in California Great Expectations and Serious Challenges

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Algebra Policy in California Great Expectations and Serious Challenges M A Y 2 0 0 9 REPORT Algebra Policy in California Great Expectations and Serious Challenges HIGHLIGHTS Most California policymakers and educators would likely agree that all students need to take and master algebra—and that they need to do so n California has used its academic content standards and accountability as early as possible in their school careers. policies to push for earlier student Agreement on this goal represents or advanced on the state’s Algebra I test in participation and success in algebra ......2 important progress in a state where—less 2008 than in 2003. Nearly 26,000 more low- n The state has seen large increases than 10 years ago—the notion of algebra income 8th graders did so. However, too in 8th grade algebra participation as a high school graduation requirement many California students still struggle to and proficiency ......................................5 seemed like a radical idea. That said, the get through the Algebra I gateway leading to same Californians are much more divided more rigorous math and science courses in n Test scores, “repeater” data, and regarding when exactly students should high school. Participation for all clearly does the NAEP all provide evidence that take algebra and how to assure them a not translate automatically into success for all. math performance falls well short reasonable chance for success. That divi- Many call for strengthening math of the state’s expectations for many students ......................................6 sion was reflected in strong reactions to a instruction, particularly in the late elemen- State Board of Education decision made tary and middle grades, as the crucial next n Critics are raising hard questions last July—blocked by a California court step in moving California toward its goals. about the state’s algebra policies ruling that is currently under appeal— Some also say this is an opportune moment and pushing for clarification about that would have increased pressure for all for California to consider its mathematics what to teach and when ...................... 11 students to take Algebra I by 8th grade. policies more broadly, including its academic n The debate sheds light on shortcomings Since the late 1990s, state officials have content standards and annual assessments. in California’s teacher credentialing used assessment and accountability poli- Any of these would require investments of policies and a lack of support for cies as powerful levers to encourage schools time and funding. What combination of state professional development ................... 14 to enroll more 8th and 9th grade students policies and school practices would be most in Algebra I courses. In the process, schools effective to help students succeed? What have raised expectations and afforded greater investments in educator capacity would be opportunity to thousands of previously most strategic? These are complex but impor- EdSource thanks the Noyce Foundation for underserved students. Nearly 45,000 more tant issues for California to explore, and underwriting the research, development, and California 8th graders scored proficient they are the focus of this EdSource report. dissemination of this publication. EdSource® is a not-for-profit 501(c)(3) organization established in California in 1977. Independent and impartial, EdSource strives to advance the common good by developing and widely distributing trustworthy, useful information that clarifies complex K–12 education issues and promotes thoughtful decisions about California’s public school system. EDS O U R C E R eport California continues to reach toward earlier student success in algebra When California adopted academic content standards in mathematics in 1997, no one assumed that large-scale changes in math achievement and course-taking—including in algebra success in grade 8— would happen overnight. Early decisions by California policymakers establishing the content standards in math and the 2004 requirement that students complete Algebra I to graduate from high school left many debates for the future. A brief history of the State Board of Education’s algebra decision In July 2008, the California State Board of Education SBE approval, the California Department of Education The board’s motion directed state education officials (SBE) passed a motion—now blocked by a state (CDE) also explored a second option: the development to negotiate with the ED for: court—that called for the state’s Algebra I test of a blueprint for a new grade 8 math test. This test, if n An agreement to make the Algebra I CST the sole to become the “sole test of record” in grade 8 approved by SBE and accepted by the U.S. Department test of record in California for grade 8 math; mathematics for federal accountability purposes. of Education, would replace the General Math CST and be taken by students not yet enrolled in algebra. n A transition period for building the state’s California and federal education policies make It would be based on a subset of the state’s Algebra I capacity to ensure all 8th graders can succeed different assumptions about testing in grade 8 math. standards, excluding more rigorous content such as on the test; and n California policy assumes that the California factoring and quadratic equations. n In the long term, better accommodation of Standards Test (CST) an 8th grader takes in This new CST blueprint sparked some intense California’s education policies under federal law. math is connected to the math course she or he disagreement: takes. Most commonly, 8th graders enrolled in In September 2008, CSBA and ACSA filed a lawsuit— n Algebra I take the Algebra I CST and 8th graders Some—including CDE, the California School later joined by the California Teachers Association not yet enrolled in an algebra course take the Boards Association (CSBA), and the Association (CTA) and State Superintendent of Public Instruction General Mathematics CST. of California School Administrators (ACSA)— Jack O’Connell—to block the state board’s decision. supported the blueprint as an improvement on They claimed that SBE (1) violated the Bagley-Keene n In contrast, the federal No Child Left Behind the General Math CST that would allow local Open Meeting Act by not providing adequate public law (NCLB) assumes that math testing in educators to make judgments about proper notice of the action it took that day; and (2) exceeded grade 8 is based on a state’s content standards student placements. its legal authority by implicitly changing California’s for that grade. n Other state leaders saw the blueprint as lowering academic content standards to require Algebra I in On Feb. 6, 2008, the U.S. Department of Education the state’s academic standards for what counts grade 8, despite the fact that the math standards (ED) notified California that its General Math CST does as grade-level math in grade 8. Three former state for grades 8–12 are organized by discipline rather not comply with federal requirements because it tests secretaries of education and four former SBE than grade level. 8th graders on content defined by California’s math presidents signed a letter arguing that “anything In January 2009, the Sacramento County Superior standards as intended for grades 6 and 7. Failure to less than Algebra I” should not be considered Court ruled in favor of the plaintiffs on both grounds enter an agreement with the ED to align California’s “grade-level proficient at eighth grade.” and issued a preliminary injunction preventing assessment system with federal expectations would One day before the state board was to consider the state board from taking any further steps to result in $1 million in Title I Part A administrative the new blueprint further, in July 2008, Gov. Arnold implement its algebra decision. SBE is appealing funds being withheld from the state and provided Schwarzenegger also went public with his opposition the court’s ruling that the board exceeded its legal instead to California’s local education agencies. (At to it. He sent a letter encouraging the state board to authority but is not disputing the ruling pertaining to the time of this writing, California and ED officials pursue the Algebra I CST as the sole test of record the Bagley-Keene Act. were discussing a settlement of this matter.) in grade 8 math for federal accountability purposes. One option for complying with federal expectations By a vote of 8-1, the board passed a motion to was to have all 8th graders take the Algebra I CST. With this effect. n Algebra Policy in California n May 2009 © Copyright 2009 by EdSource, Inc. EDS O U R C E R eport A July 2008 decision by the State Board of figure 1 How California’s academic content standards in mathematics are organized in Education (SBE) has raised issues not re- grades K–7 versus grades 8–12 solved 10 years ago. This decision—blocked In grades K–7, the mathematics content In grades 8–12, the mathematics content by a Sacramento County court ruling that is standards were established for each grade level, standards were established for nine specialized currently under appeal—directed the state using five common strands: math disciplines: to enter an agreement with the U.S. Depart- ment of Education (ED) to make the Algebra I n Number sense n Algebra I California Standards Test (CST) the “sole n Algebra and functions n Geometry test of record” in grade 8 math for federal n Measurement and geometry n Algebra II accountability purposes. Depending on the n Statistics, data analysis, and probability n Probability and Statistics kind
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