DOCUMENT RESUME

ED 373 438 EA 026 048

AUTHOR Connor, Kim; Melendez, Melinda TITLE Education Reform Briefing Book. VolumeII, First Edition. Excerpts from Selected CaliforniaEducation Studies and Reports, 1983-Present. INSTITUTION California State Legislature, Sacramento.Senate Office of Research. PUB DATE Jul 94 NOTE 252p.; For Volume I, see EA 026 047. AVAILABLE FROM --;te Publications, 1020 N Street, Room B-53, Sacramento, CA 95814 (Stock No. 773-X; $8plus 7.75 percent sales tax; checks payable to SenateRules Committee). PUB TYPE Information Analyses (070)-- Reports Research/Technical (143)

EDRS PRICE MF01/PC11 Plus Postage. DESCRIPTORS Academic Achievement; Diversity (Institutional); Educational Economics; Educational Facilities; *Educational Improvement; *EducationalQuality; Elementary Secondary Education; *Excellencein Education; High Risk Students; LimitedEnglish Speaking; Productivity; *SchoolRestructuring; Teacher Shortage

ABSTRACT This is the second ofa two-volume briefing book that examines education issues in California from 1983 to the present. It includes summaries, findings, andrecommendations from selected California education studies andreports published since 1983. The material is presented verbatim.Topics include: asummary of California's Education Summit;school-to-work transitions in high school career programs; developmentof the link between education and training to jobs; support forlimited-English-speaking students; reform of categorical educationprograms; the school facilities crisis; language diversity; costsof K-12 education; school restructuring; the education of minoritystudents; programs for students with learning disabilities;programs for low-achieving schools; school readiness; middle-schoolreform; and educational excellence. (LMI)

*********************************************************************** Reproductions supplied by EDRSare the best that can be made from the original document. ********************************************************************** EDUCATION REFORM BRIEFING BOOK

Volume II, First Edition Excerpts from Selected California Education Studies and Reports, 1983-Present

U 8. DEPARTMENT OFEDUCATION OrbCe or EMAcalonat Flmemn and imporoverneni EDUCATIONAL RESOURCESINFORMATION CENTER (ERIC) Vriusdocument has been reproduced received Irom the person or onginelmg Organization 0 Minot changes have been reproduction (malty mad* to .mprove

Points -*or opinions Slated ,nlIsis docu- ment necessarily moresen: °Motel OE RI ,don or policy

-PERMISSION TO REPRODUCE THIS MATERIAL HAS BEEN GRANTED BY

TO THE EDUCATIONAL RESOURCES INFORMATION CENTER (ERIC).-

California Senate Office of Research July 1994

2 773-X BEST COPY AVAILABLE EDUCATION REFORM BRIEFING BOOK

Volume II, First Edition Excerpts from SelectedCalifornia Education Studies and Reports,1983-Present

Prepared by Kim Connor andMelinda Melendez

California Senate Office ofResearch Elisabeth Kersten, Director

Edited by Rebecca LaVally Formatted by Ginny Daley and Debra Smith

July 1994

3 Education Reform Briefing Book

PREFACE

This is the second volume ofa two-volume Education Reform Briefing Book that looks at education issues from1983 to the present. This volume includes summaries, findings andrecom- mendations from selected California education studies andreports published since 1983.

The material is presented verbatim, with permission,to assist the reader in understanding California educationissues from a variety of perspectives.

The first volume of this briefing bookcontains a modern history of education reforms in California anda look at emerging issues for 1995. TABLE OF CONTENTS

California Education Summit: Summary and Conclusions, Willie L. Brown, Jr., Speaker, California State Assembly, Sacramento, California, May 1994 3 Rediscovering Education: Creating Schools for the 21st Century, A Program Developed by the Teachers of California, California Teacher's Association, Sacramento, California, February 1994.... 14 School-to-Work Transition, Improving High School Career Programs, Legislative Analyst's Office, Sacramento, California, February 1994. 18 Mobilizing for Competitiveness, Linking Education and Training to Jobs, A Call for Action from the California Business Roundtable, BW Associates, January, 1994. 39 The Unfinished Journey: Restructuring Schools in a Diverse Society, California Tomorrow, San Francisco, California, 1994 47 A Chance to Succeed: Providing English Learners with Supportive Education, Little Hoover Commission, Sacramento, California, July, 1993 61. Reform of Categorical Education Programs: Principles and Recommendations, Legislative Analyst's Office, Sacramento, California, April 1993 69.

California's Jobs and Future, Council on California Competitiveness, (Ueberroth Report), California, April, 1992.* 76 No Room for Johnny, A New Approach to the School Facilities Crisis, Little Hoover Commission, Sacramento, California, June 1992 94

It's Elementary! Elementary Grades Task Force Report, California Department of Education, Sacramento, California, 1992.* 97

Meeting the Challenge of Language Diversity, An Evaluation of Programs for Pupils with Limited Proficiency in English, Berman, Weiler Associates, Berkeley, California, February 1992.* 100

Second to Nene: A Vision of the New California High School, California High School Task Force, California Department of Education, Sacramento, California, 1992.* 103

Costs and Casualties of K-12 Education in California, Little Hoover Commission, Sacramento, California, June 1991. 106

"A PACE Plan for California's Schools," Conditions of Education in California 1990, Policy Analysis for California Education, Berkeley, California, April 1991 110.

School Restructuring in California, The 1991-92 Budget: Perspectives and Issues, Office of the Legislative Analyst, Sacramento, California, February 1991. 113 Remedying the Shortage of Teachers for Limited-English- Proficient Students, Report to the Superintendent from the Task Force on Selected LEP Issues, California Department of Education, Sacramento, California, 1991. 115

1 California's Workforce for the Year 2000: ImprovingProductivity by Expanding Opportunities for the Education and Training of UnderservedYouth and Adults, Report of the California Workforce Literacy Task Force, Sacramento,California, November 1990.* 118 Educating Minority Students in California, DescriptiveAnalysis and Policy Implications, California Assembly Office of Research, Sacramento,California, April 1990 126 California Education Summit: Meeting the Challenge, TheSchools Respond, California Department of Education, Sacramento, California, February 1990.* 129 K-12 Education in California: A Look at Some PolicyIssues, Little Hoover Commission, Sacramento, California, February 1990 134 Alternative Programs and Strategies for Serving Studentswith Learning Disabilities and Other Learning Problems, SRI International, Menlo Park,California, March 1989.* 139

A Plan to Improve California's Lowest PerformiLgSchools, Report of the Task Force on Schools with UnderachievingStudents, Senate Committee on Education, Sacramento, California, June 1988.* 153

Report to the Governor, California Commission on EducationalQuality, Sacramento, California, June 1988.* 161 Here They Come: Ready or Not, Report of the SchoolReadiness Task Fore, California Department of Education, Sacramento, California, 1988.* 169 Return to Greatness: Strategies for Powerful Improvementsin Our Schools, Recommendations from the Commission on Public School Administration andLeadership, Association of California School Administrators, Sacramento, California, October 1988 177 Restructuring California Education, A Dt, ..,11 for PublicEducation for the Twenty-First Century, Recommendations to the California BusinessRoundtable, Berman, Weiler Associates, Berkeley, California, 1988.* 183 Caught In the Middle: Educational Reform for YounAdolescents in California Public Schools, California State Department of Education, Sacramento,California, 1987 *. 209 Report and Recommendations of the California Commission onSchool Governance and Management, Commission on School Governance and Management,Sacramento, California, May 1985.* 213 Who Will Teach Our Children? A Strategy i.or ImprovingCalifornia's Schools, The Report of the California Commission on the Teaching Profession, Sacramento,California, November 1985.* 222

Excellence for Whom?, A Report from the Planning Committeefor The Achievement Council, Oakland, California, 1984. 225

* Indicates commissioned or legislatively requested report orstudy.

2 6 February 15-16, 1994 San Francisco

Summary andConclusions

Willie L Brown, Jr. Speaker, Califcmia StateAssembly

7 3 CONCLUSIONS AND RECOMMENDATIONS

A MESSAGE FROM ASSEMBLY SPEAKER WILLIE L BROWN, JR.

TheCalifornia Education Summit was a unique 2) California must be committed to a quality event. It provided educators, parents, policy education for all of its children. makers, business leaders, community leaders, and the public the opportunity to learn about 3) There are no "magic bullets" that will both the successes and the problems of immediately transform public education: it will California's public schools. take time, hard work, sacrifice, and money.

But those two days in San Francisco did more 4) Public schools exist first and foremost to than simply provide information. The remarks serve the interests of students. The interests of of the presenters and panelists, as well as the adults associated with the school system be many reports and recommendations from they employees, parents, policy makers, or organizations and individuals that were issued others are secondary. concurrently with the Summit, offered dozens of ideas, solutions and recommendations for 5) The goal of public educationand the basis improving the largest public school system in upon which it and those associated with it the nation. should be judged is to successfully prepare students for citizenship, employment, and After reviewing the proceedings of the fulfilling, productive lives. Successful outcomes Summit, I would offer the following for students are what matter. conclusions and recommendations as a working agenda for policy makers as they 6) Any serious reform policy must recognize consider education reform in California. the variety of conditions of children which Ultimately, any final reform package must directly affect the success of the school system's reflect a consensus among all affected parties, instructional mission. While these conditions but I hope the following suggestions represent are important and sometimes serious barriers starting point for that discussion. to learning, they can never be excuses for inadequate instructional programs. The scores of presenters and panelists not only made concrete recommendations for policy 7) Preparing students for the work force or for changes, but their remarks also suggested further technical training should be valued as severs: important principles to guide future a success as much as preparing students for legislative action: traditional post secondaeducation.

1) California cannot afford to wait to begin 8) Any comprehensive reform effort must link making the fundamental changes necessary to additional funding to reform and reform to improve public education. We must begin now. additional funding

I ./ I 11,1 r ry 6 students. School systems number successfully educate Over the two-daySummit, I believe a organizations where those conclusions clearlyemerged tard to be top-down of themes and affected by educationalpolicy decisions are too which should guidethe developmentof any remote from, andhave little control overthe comprehensive reformof public education: decisions themselves.

However, there is little instate law that prohibits Funding delegating much of thecentral office decision to school sites, as California under-investsin making and discretion By most estimates, evidenced by the manyschool-based decision public education,both in relative andabsolute place in districts state controlof the marginal making initiatives in terms. In addition, throughout the state. education dollar hasundermined local control over bothfiscal and policyissues. Further complicating n.atters,California's school finance system isenormously, perhaps Teaching Profession unnecessarily, complex. Teachers are undercompensatedcompared to other professions.

Goals andAccountability Teaching is a craft: teachersimprove with Teachers need ongoing of the school system experience and training. The present structure professional development todevelop their neither rewards success norpenalizes persistent teaching can be an failure. State laws andregulations expertise. Furthermore, or dramatic Teachers need time ofiside inputs course isolated profession. focus predominantly on and consultation with requirements, instructionaltime, credential of class for collaboration qualifications, due process,plans, etc.rather their peers. of the rule-based nature than outputs. Some Procedurally, it can be timeconsuming and of the school systemis a result ofcollective expensive to dismissincompetent teachers. bargaining contracts. needs However, anyperformance-based system School Safety to recognizeand reflect boththe variety of populations in ourpublic schools andthe with which schools are Crime and violence onand around school conditions of children the instructional mission more faced. Additionally, anyaccountability campuses makes difficult for both students andstaff. It is difficult structure must recognizethat individuals and to separate campusviolence from violence in groups shouldonly be heldaccountable for which they .xercise some the larger community.At the present time, no outcomes over education agency hasthe responsibility to degree of control. provide educational servicesto students who are expelledfrom a school district. RestructuringSchool Systems

According to manyschool officials, schools are overburdened with unnecessarylaws and regulations that restricttheir ability to

1994 California Education um= 56 5 _ -q Technology programs but must be taken into account in judging the success or failure of the school California schools have very little access to system. technology. Most schools are not even wired to accommodate state-of-the-art technology. Many of the public services necessary to address the conditions that affect children are Technology can be of great assistance in both within the jurisdiction of public agencies other learning and teacher productivity. But than the schools. Yet, a significant portion of technology acquisition and use should always the education budget is actually for the be directly related to the instructional mission provision of non-educational services such as of the schools. nutrition, health, and child care. The problems resulting from lack of coordination are real and Teacher training is a critical component of any directly affect the level of services to children integration of technology into instruction and and families. In addition, parental involvement learning. was widely acknowledged to be a criticalfactor in the education of children, especially those with special needs. Workforce Preparation Finally, there is a compelling need to target According to business, many students leave resources and initiatives in schools and high school inadequately prepared for entry communities with large concentrations of at- level employment. For work-bound students, risk students. African American, Asian, and how well they do in school (i.e. their GPA) Hispanic students all need English language generally has no impact on their employment. development skills, the most capable teachers, and curriculum materials sensitive to Education and training in California are not California's diverse population. integrated into a coordinated system. Existing workforcepreparationprogramsare fragmented andhaveaninsufficient relationship to business needs.

Educating Children with Special Needs

Conditions such as poverty, abuse and neglect, and disability have a profound impact on the ability of the school system to successfully educate children. In addition, many children come to school with a primarylanguage other than English, which presents additional challenges for our schools. Such conditions are not excuses for less than adequate instructional

6 1994 California Education Summit Summary and Conclusimis 57 4) Adopt a multi-year, triggered taxincrease(s) REFORMSTRATEGIES to provide the state's50% based on revenues needed to fund Prop 98 plus about$100 per Finally, while hundreds ofspecific suggestions ADA, compared to available state revenues. were madeby presenters andpanelists, I believe the following legislativeinitiatives represent the kindsof structural reforms that State Level Reforms respond to the major themesarid issues raised by summit participants: 5) Create clusters of categorical programs to give greater flexibility toschools and districts in meeting local needs. Funding and 6) Move the Commission onTeacher State Level Reforms Credentialing back to the Departmentof Education in order to assure that teacher Funding training is aligned with curriculumand assessment policies. Maintain a separaterale- 1) Adopt a policy thatCalifornia will reach at making commission appointed by theSPI, least the national averageexpenditure per rather than the Governor, and independentof pupil by the 1999-2000fiscal year (5 years, the State Board of Education. commencing in 1995-96). 7) Deregulate teacher credentialing: move to a Provide 50% of this additionalfunding from licensing system based entirely on an state sources and 50%from local sources. assessment of demonstratedteaching ability, subject matter knowledge, and professional Adopt a policy that thisadditional funding knowledge rather than units and course will be general purpose(non-categorical). requirements. 2) Continue the current statutoryattempts to 8) Reduce the paperwork and reporting enact majority votelocal revenue authority requirements of local school agencies. for school districts or otherappropriate jurisdictions (e.g., counties). Technology 3) In the event statutory enactmentis unsuccessful, or is precluded bythe courts (as in the recent Flowersdecision), propose a 9) Use the PUC rate structure to financethe constitutional amendmentauthorizing the information exchange infrastructure for legislature to permit schooldistricts, or other public education (K-12, UC, CSU, CCC)and to appropriate jurisdictions, tolevy general leverage additional federal technology funds. purpose taxes, includingad valorem taxes, by either a vote of the governingbody or a local 10) Place an educational technologybond majority vote, as prescribedby law, provided before the statewide voters. the jurisdiction adopts thestructural reform elements identifed below. 11) Change the school constructionstandards to permit new schoolfacilities to accommodate technology.

Sunray and Conclusions 58 1994 California Education Smurfit

7 1 1 12) Require that school districts which Local Reforms participate in state technology funding describe how they will use technology to: improve the instruction and learning of pupils, improve Performance-based teaching, or improve the management and Accountability operation of the school. 1) Specify that the school is the basic locus of accountability. Workforce Preparation 2) On an interim or pilot basis adopt specific A number of initiatives to improve workforce outcome standards for students at certain grade preparation are already moving through the levels. The standards should: legislative process at both the state and federal levels. A Summit package should embrace those a) Use multiple measures, including but not initiatives that are consistent with the principles limited to, CLAS test scores, other measures suggested by the Legislative Analyst in her of academic achievement such as grades or recent report: (1) emphasize local control, portfolio assessments, work force readiness, (2) coordinate disparate funding sources, dropout rates, advanced placement tests, and (3) emphasize content and performance rather UC eligibility. than seat time and process, (4) reinforce the link to business. b) Be multi-dimensional, reflecting: (1) absoluteperformancelevels,(2) 13) Expand Partnership Academies by $15 performance relative to similar schools or million over the next three years under the districts, (3) improvements in performance, current competitive grant process administered and (4) reduction in performance gaps by the Department of Education as the primary among sub-populations. vehicle for developing the integration of academic and vocational education. c) Include both measures ofpupil achievement and the performance of the school as an institution (e.g., dropout rates, Educating Children attendance rates, or rates of suspensions and with Special Needs expulsions). 3) On an interim or pilot bvis adopt specific 14) Expand the Healthy Start program to rewards, ay. stance, and consequences for better coordinate children's services on school schools forieeting or failing to meet the sites. standards.

15) Establish a statewide commission to Rewards should include monetary incentives develop a Master Plan for Children's Services. for meeting or making progress toward state standards, as in the "Cash for CAP" program 16) Assure that all students have access to a from SB 813. rigorous core curriculum. i o Consequences should include assistance and intervention as ?rescribed in current law. 8

11, 1 iI r. I decision making responsibilities.Also The TeachingProfession provide improved trainingfor teachers and administrators in dealing withincreasingly 4) Teaching shouldbe an attractive career: diverse student and parentpopulations.

job. a) Make teaching afull-time, year round 6) As professionals,teachers shauld play a significant role in maintaining thequality of the compensation to be b) Increase teacher teaching force: competitive with otherprofessions. a) Require teachers(especiall; mentor or c) Expand efforts torecruit qualified board certified teachers) toparticipate in minority candidatesinto the teaching hiring, tenure, evaluation,and dismissal profession. decisions for their peers.

5) Teaching is a craft andrequires time, 7) Evaluation of certificatedstaff should be and collaboration professional development, fair and meaningful: with peers to develop expertise: a) Enforce the evaluationrequirements a) Give all beginningteachers frequent of the Stull act, withsanctions on assistance and support inat least the first administrators or boards, if necessary. two years ofemployment by making the New Teacher Projectpermanent and b) Tie the Stull act "standardsof expected statewide. pupil progress at each gradeand in each area of study" to the statewideaccountability b) Pay for (thecurrently 8) staff standards adopted above, ratherthan local development days outsidethe regular standards as currently required. instructional year.

c) T.teacher problem areas identified in c) Extend theprobationary period to 3 Stull act (or other) evaluations tothe SB 813 years, butmaintain some relationship continuing education requirements. between dismissal ofprobationary teachers and their evaluations. d) Institute peer evaluationof principals. d) Provide all teacherspaid time during the 8) Expand the requirementthat school school day for planningand collaboration districts meet and confer withteachers at a with peers. school site on any issues notwithin the scope of collective bargaining,including but not e) Create opportunitiesfor professional limited to curriculum, studentevaluation, career advancementfor teachers to develop instructional materials, discipline, andstaff teacher leaders.iipand to encourage development issues. teachers to improve theirskills and remain in the teachingprofession. 9) Expedite due process byrequiring that disputed teacher dismissals besubmitted f) Provide training, bothin-service and pre- directly to speedy binding arbitration,rather service, for teachersand administrators to than the current commission onteacher school site effectively assume greater competence process.

I ' 111 I 10...11

9 13 School Site Authority 10) Require that collectivebargaining agreements explicitly spell outhow the staff at school sites can exempt themselvesfrom certain contract provisions.Define the issues that are subject to school site variation.

11) Provide incentives and trainingfor increased effective parental involvement in local school programs, includingparental involvement in school-site decision making.

School Safety 12) Reinstate the school crime report to identify where the problems are. Standardize the measurements and definitions to assure comparability among districts. Include comparable statistics for the community within which the school is located. 13) Expand conflict resolution and peer mediation type programs in the schools.

14) Provide metal detectors and police presence on andaround schools, where necessary.

15) Change the expulsion law to maintain district responsibility for the education of "expelled "students. Create and fund alternative programs for problemyouth. Permit districts to contract with county officesfor these alternative programs.

16) Expand after school programs to keep youth busy and as safe havens. Require a formal relationship between local park and recreation districts (or county or city departments) and school districts.

14

1994 California Education Summit Summary and Conclusions 61

10 CALLERS SOMEEDUCATION SUM 0 E

ON SHOULDCONCENTRATE SIMPLE.WE WRITING, ISPRETTY MATH,READING, THE SUGGESTION BASICS -- WITH MY THE MATH. WITH FUNDAMENTALS, THING.ESPECIALLY COMEOUT THE TYPEOF STUDENTS CAN THAT IF THENTHEY SPELLING, SOTECHNOLOGICAL, GETTING OFMATHEMATICS,THATREQUIRE WORLD UNDERSTANDING AREAS AVERYSOLID LOTOFDIFFERENT THATTO A CA APPLY SKILLS." SANFRANCISCO, PROBLEM-SOLVING LEVELREADING ELEMENTARY THAT THAT ATTHE I THINK AND ITHINK IN THECLASSROOM. SOTHEY 'TM ASENIOR GREATLY AREYOUNGER, BESTRESSED WHENTHEY IT WASREALLY SHOULD TO READMORE IFOUND THE KIDSNEED FORREADING. FORCOLLEGE. .4LIKING AND INPREPARING IT IS WILLDEVELOP SCHOOL, HOWIMPORTANT FOR ME,IN HIGH GOOD HELPFUL, DON'TUNDERSTAND HAVING A MANYKIDS GROWFROM THAT LOT OFTHINGS I THINK FOR A CA STARTYOUNG BEACH, TO INREADING." HUNTINGTON BACKGROUND SETS,TINKER ERECTOR SETS, FRANKLIN UPWITHCHEMISTRY CHILD IGREW TOPHILADELPHIASCIENCE,AN "AS A OF ALL,VISITS PHYSICAL AND,MOST OF THISHANDS-ON ELECTRONICS, TOYS, RESULT ELECTRICITY, AS A CHEMISTRY, HANDS-ON INSTITUTE. OFPHYSICS, CONSIDER PLEASE ELEMENTARY UNDERSTANDING SECONDNATURE. INTOTHE OF MATHBECAME INTRODUCED ENTHUSIASM AND TO BE AND AND SCIENCE INTEREST TO BEUSEFUL PHYSICAL THENATURAL MINDS. TOCAPTURE CLOSETHEIR TOPRESENT GRADES THEY VOLUNTEERS BY BEFORE TRAINING YOUNGSTERS CONSIDER ORTHREATENED PLEASE IS NOTBURDENED EFFECTIVE,SO THETEACHER MATERIALS SUBJECTMATTER." RFD, CA THEADDITIONAL THERE'S AND IKNOW ENGINEER. HOW AEROSPACE PEOPLE. UNEMPLOYED ANDTECHNICAL THAN "/ AMAN ENGINEERS PERHAPSBETTER UNEMPLOYED POSITIONS. BEEN A LOTOF TEACHING THISMAYHAVE THEM SOLUTION ABOUTOFFERING UNEMPLOYMENT.BE AVIABLE THEMCOLLECTING ITWOULD SENDING BUT ITHINK BEFORE, CA SUGGESTED FONTANA, TOEDUCATION." 15

rr.wkfr.11777(Irfill algablaajj._, IlrL1111 11 LOCAL EDUCATION SUMMITS

Both before and after the California Education Summit manymembers of the State Legislature regional events brought together convened local "mini-summits" intheir districts. These local and educators, parents, business leaders,and community members toconsider the particular issues and California. concerns regardingpublic education in the various communities across this year: The following listsummarizes mostof the local education summits held Legislative Sponsoring Counties Summary Date DIstrIct(s) Member(s)

Yes January 20,1994 77th AD Tom Connolly San Diego

Yes January 22,1994 35th AD Jack O'Connell Santa Barbara Ventura

Yes January 27,1994 54th AD Betty Karnette Los Angeles

Yes January 27 & 50th AD Martha Escutia Los Angeles February 23, 1994

Yes January 29, 1994 78th AD Dede Alpert San Diego 77th AD Tom Connolly 76th AD Mike Goich 75th AD Jan Goldsmith 66th AD Ray Haynes 39th SD Lucy Killea 73rd AD Bill Morrow 79th AD Steve Peace 36th SD Robert Presley

50th AD Martha Escutia Los Angeles

No January 29, 1994 25th AD Margaret Snyder Stanislaus February 1, 1994 Tuolumne February 5, 1994 Stanisalus February 5, 1994 Stanislaus : Madera February 8. 1994 _,..6 February 8, 1994 Fresno

63 1994 California Education Summit Summary and Conclusions

12 legislative Sponsoring Date Districts) Member(s) Counties Summary

February 4, 1994 35th SD Marian Bergeson Orange Yes 71st AD Mickey Conroy 70th AD Gil Ferguson 72nd AD Ross Johnson 33rd SD John Lewis 73rd AO Bill Morrow 68th AL. Curt Pringle

February 4, 1994 21st AD Byron Sher San Mateo Yes Santa Clara

February 4, 1994 62nd AD Joe Baca San Bernardino Yes

February 4, 1994 48th AD Marguerite Archie-Hudson Los Angeles Yes 47th AD Gwen Moore 51st AD Curtis Tucker

February 5, 1994 58th AD Grace Napoiitano Los Angeles Yes

Fellruary 5 & 80th AD Julie Bornstein Riverside Yes February 10, 1994 Imperial

February 8, 1994 61st AD Fred Aguiar Riverside & Yes 34th SD Ruben Ayala San Bernardino 63rd AD James Brulte 66th AD Ray Haynes 34th AD Kathleen Honeycutt 36th SD Robert Presley 17th SD Don Rogers 65th AD Paul Woodruff

February 10.1994 55th AD Juanita McDonald Los Angeles Yes 52nd AD Willard Murray

February 12,1994 22nd AD John Vasconcellos Santa Clara Yes

In addition, on November 15,1993 the Senate Subcommittee on School Safety, Chaired by Theresa Hughes of the 25th S.D. held a hearing on school violence issues.

For a copy of the summary from a local education summit, please contact the sponsoring member of the Legislature or : Local Education Summit Summaries Office of the Speaker State Capitol, Room 219 I 7 Sacramento, CA 95814

, , f

13 I

A Program Developed ay the Teachers of California

California Teachers Association February 1994

a4 Rediscovering Education Creatifig Schools for the 21st Cefltwy

Taking Responsibility Teachers members of therediscover the hope and the prom- California Teachers Association iseof free and universal public applaudedtheNovember1993 education. defeat of Proposition 174. But CTA Hearings were held in every It Is time to members did not interpret the re-part of the stateby CTA chapters rediscover the jection of school vouchers as a signand regional assemblies often hope and the that voters are satisfied with thewith contributions fromparent, promise of status quo. They couldn't: Teachersbusiness, civic, community, and re- free and universal are well aware of our schools'ligious groups. public education shortcomingsand keenly Fare of Barely ten weeks after the elec- the reasons for them. tion, CIA's officers had received The problems exist despite thenearly 5,000 recommendations for publication, over the past decade, making our schools better-The vast of more than a dozen major "schoolmajoritycamefromclassroom reform" studies and the frequentteachers; the next largest number enactment of "reform" laws in theoriginated with parents. state legislature. Surveys reveal that In late January, after a review few teachers believe any of thosethat consolidated similar proposals, reports and laws have made anyCTA leaders submitted 1,792 spe- For the first difference. cific recommendations to the State time, a program Teachersknowwhy.TheCouncilof Education, CTA's developed by people who sponsored, researched,policy-making body. The Council, the people who and wrote those studies were well-made up of 660 elected teacher actually work In meaning. But they had little or nodelegates, further refined the list our classrooms experience teaching our childrenand referred itto CIA's officers and youth. Teachers were given, atand Board of Directors for final most, token representation on the action. "reform" panels. It is as if groups of Here then, for the first time, is academicians, bankers, and carpen- a program for renewing California's ters had issued sweeping reports onschools developed by the people changing the practice and professionwho actually work in our class- of medicine without includingrooms every day by those who doctors in their discussions. know what works and what doesn't. CIA Afembers Say 'Yes' Teachers want to take respon- sibility for the mission and thesuc- Just days after voters rejectedcess of our public schools. They will the vouchers initiative, CIA's lead-accept that responsibility if society ers issued a call to the Association'sdoes its part. In Rechk-vvering Edu- 235,000 members.It is time, theycation: Creating Schools for the said, for the people who know thelist Century, teachers define what classroom best for teachers toall Californians can and must do to tell the public what must be donehelp make our schools the best in to improve our schools and toour nation, the best in the world. What Must Be Done:The Essentials Ifalisesterist we must ensurethat teachers 3 Ofrestlas Foresight and dedication are needed to rejuvenate an education like other professionals have system battered by change: both the means and the opportu- Enrollment growth has packed nity to upgrade theirknowledge our classrooms tooverfilling. and skills. Demographicchangeshave If we are to teach our diverse produced classrooms that neither student population effectively "look" nor "sound" like those of a and meet the needs of each stu- class size must Demographic generation ago. dent individually changes have Social changes crime, be reduced significantly. produced class- the deterioration of the family If we are to achieve true equal- rooms that neither have placed new demands on the ity of educational opportunity, 'look' nor 'sound' schools. They nave given the schools must offer programs that like those of a schools new kinds of students to guarantee every student achance generation ago educate and have made the physi- to master the Englishlanguage. cal safety of students and school If our students are to thrive in our staff a primal concern. theworkplace,enabling The economy is in flux; partly state's economy to compete inthe for that reason, fiscal support for global marketplace, students and accessto publiceducation.hasdropped teachers must have well below the national average. state-of-the-artteaching-learning New technology has created a technologies. demand that tie schools teach 1 4 Safe Environment skills that were unknown just a few years ago. Investments in education will If our schools are not meetingsurely fail if schools are not pro- fully the needs of our society, thetected against crime and violence. Students and reason is not thatteachers are lessForced to prepare for the worst, educators must be dedicated or students less capableeducators spend excessive amounts physics:1y safe than those of earlier decades. It isof time and energy devising proce- on our school- becausetoday'sschoolsare notdures for guarding the security of grounds and In equipped to cope with the manystudents, staff, and property. our classrooms challenges of a new social, eco- Further,too muchof our nomic, and technological age. schools' limited fiscal resources money that shouldbe used for in- Five Basic Needs structional items, helping individual Guaranteeing security, upgrad-children, and maintaining quality fa- ing the teaching profession,provid-cilities is spent instead on com- ing students with helpindividually,bating crime and violence in our ensuring mastery of the Englishlan-schools and their neighborhoods. guage, and expandingthe use of At a minimum, ensuring a safe technology are five absolute pre-and secure teaching-learning envi- requisites to improving our schools. ronment requires that: If the teachinz-learning envi- Stateandlocalgovernment ronment is to improve for any must assume fullresponsibility "reform" to be effective stu- forproviding law-enforcement dents and educators must be services in and near our schools, physically safe on our school- justas they nowfurnish fire- grounds and in our classrooms. protection services. nea If we are to retain a teaching Schools must be integrated into force equal to all the challenges, local emergency networks and

16 tied into inter-agency health and Schools need to maintain and safety networks with up-to- strengthen programsthathelp date telecommunications systems; students master English as quickly and every classroom nut have a as possible while respecting their Red/scorer/pi 4 telephone. cultural and linguistic heritages. Schools need to expand pro- 2: The Teaching-Force grams that teach adults to speak, American teachers have virtu- read, and write English. ally no route to professional growth We need to ensure that teach- apart from what they themselves ers are trained and equipped to can devise, alone and on their own help students who speak little or Schools must be time. Other nations do better; Cali- no English. Integrated Into fornia can, too. local emergency Teachers need time during the5: Advanced Technology networks...and school day not only to prepare Inadequate funding has long im- every classroom lessons, but also to interact withpeded the application of state-of- must have a and learn from other mem-the-art technologyin ourclass- telephone bers of their profession. rooms: California today ranks 44th Teachers need opportunities toamong the 50 states in its ratio of examine their own work, com-students to computers. pare it with their colleagues', and Imaginative use of technology, publish the results. in this information age,can assist Teachers need more opportu-educators in meeting the needs of Everyone who lives nities to design and attend in-all students enhancing not just here must have service and other courses that willwhat, how well, and how fast stu- an opportunity to help them upgrade their skills. dents learn, but also student self- master English Teachers need sabbatical leavesesteem and interest in education. to renew themselves and expand A bold and comprehensive pro- their knowledge. gram to bring the advantages of technology into the classroomis .1: fundamental to creating schools for Among the 50 states, only Utahthe 21st century. At a minimum: packs more students into each of its All students must have access classrooms. Unlike California, how- to computers and other high-tech ever, that state has a largely homo- devices that permit them to inter- Next to the teacher geneous enrollment. California act withand learn from com- In the classroom, needs to reduce class-size because: puters and multi-media devices. no factor Is more The immense diversity in Cali- Teachers must be t. mined to crucial to the forniaclassrooms meansthat, help students use technology in quality of education without individual attention, large learning everything from the al- than the size of the numbers of students will have phabet to the calculus. class. little or no chance of succee Teachers must have access to in school. networks that cite the latest re- As many studies have demon- search into more effective ways of strated, next to the teacher in the teaching. classroom, no factorismore As a first step toward achieving crucial to the quality of educationthose goals, the state must provide than the size of the class the resources needed to obtain, maintain, and regularly upgrade the II English Proficiency hardware and software required to For Californians to succeed inemploy state-of-the-art technology. life, and for California to prosper, everyone who lives here must have an opportunity to master English.

17 SCHOOL TO WORK TRANSITION Improving High School Career Programs Legislative Analyst's Office Elisabeth Hill, Legislative Analyst February 1994

Executive Summary

There is considerable interest at the local, state, and federal levels in making high school programs more attuned to the needs of students who do not plan on attending college. Vocational education, which has long provided occupationai skills to high school students, plays only a small role in the lives of most high school students. "School- to-work" programs are intended to strengthen high school career programs by blending academic and vocational material withthe needs of employers in order to increase student academic and work skills.

School-to-work programs appear tc offer schools a promising avenue for improving academic achievement, helping students find better jobs, and assisting business to develop potential employees with the skills and knowlege needed in today's work place. School-to-work programs build on previous school reform efforts to raise academic achievement, but they are designed to focus on the needs o; lower- performing studentsstudents who now may drop out of school or graduate but do not seek additional education or training.

Research has identified six Early career counseling and elements that characterize exploration effective school-to-work programs (see box). Coun- High-quality, integrated. academic and vocational education selingandintegrated academic and vocational Focus on higher-skill occupabons courses ensure that each Work-based education student's highschool Certification of occupaborial program reflects his or her and academic skills career goals. A focus on Collaboration among high schools, higher-skill occupations employers. and postsecondary encouragesstudentsto institutions pursue higher long-term academic and work goals.Work-based education gives students a chance to apply schoollessons inapractical work setting. collaboration withemployers and Certificationof skills and Executive Summary high school programs postsecondary institutionshelp ensure that and students. meet real-worldneeds of employers

do not containthe Most existing statevocational education programs school-to-work programs. elements that areneeded for effective with academicmaterial Vocational courses areoften uncoordinated higher-level jobs. and focused on entry-levelemployment rather than adequate counselingto In addition, moststudents do not receive develop a career programfor themselves.

Little is known Yet, school-t.;-work programsare not a panacea. of different programmodels and about the cost-effectiveness experience in services. In addition, manyeducators have only scant students find jobs. addressing the needs ofbusiness and helping the needs of one Furthermore, altering highschool curricula to meet less effective for other group of studentsrisks making the curricula groups of students.

proposed School-to- It appears likely thatCongress will pass the provide additionalfederal Work OpportunitesProgram, which will school-to-work fordeveloping andimplementing resources believe the if the federal programfails to pass, we programs. Even to Legislature should act toencourage andsupport local efforts necessarily mean the create effective programs.This does not providing a careerfocus creation of a newcategorical program, but to existing programs.

In this report, we recom- Create a program structure tc mend the Legislaturetake encourage effective programs tohelp various actions Make ocogram changes to ease high schools createeffec- implementation of school-to-mrx tive school-to-work pro- programs grams(seebox).The LZ Realign state activities to suocort recommendations fall into local sc.nool-to-work efforts three generalcategories. structure that guides First, the Legislatureshould create a program

19 23 local programs. We do not require Executive Summary the development of high-quality the creation of local programs but,instead, suggest a state structure that encourages effective programs.

Second, we recommend the Legislaturemake program changes to tailor existing programs and policies tomeet the needs of high schools attempting to create school-to-work programs.Many of our recommendations center on increasing theamount of resources available to support local career programs.

Third, we recommend the Legislature requirethe State Department of Education to make a numberof changes to increase state administrative support of local initiatives.The recommendations involve reviewing adminisktive structuresand date requirements to ensure they are consistentwith the Legislature's strategyfor encouraging the development of localschool-to-work programs.

A 20 Chapter 6

What Can the Legislature Do To Help Create Local School-to-Work Programs?

Scnooi-to-work programs app.iar to offer schools a promising avenue for :rnproving academic achievement, helping students find better jots and assisting business to develop potential ernrioyees with the sk : :s and knowledge needed in today's work place. School-to-work prozrams build on previous s cnool reform efforts to raise academic ach:evement. These programs aim to raise the achievement or all students, with special focus on the needs of :ower-performing studentsstudents who now may drop out of school or graduate but not seek additional educanon or training.

Most existing state vocationa: education programs c' not contain the prozram elements research indicates are needed for .rfective school- to-work programs. Vocations. courses are often uncoordinated with academic material and focused on entry-level einvioyment rather than higher -level jobs. In addition, most students do not receive adequate counseiing to deve.op a career program for themselves.

Developing effective programs would take time, tor school-to-work prog-rams are in the early stazes of implementation. Little is known about the cost-effectiveness of different program models and services. In addition, many educators have only scant experience in addressing the needs of bus:ness and helping students find jobs. Making career awareness a pcirt of the education of most high school students means changing the orientation of many educators. the...'..:hool-to-Work Itappears likelythat Congress will pass What Can the Legislature provides additional federal resources Do to Help Create Local Opportunities Program. which implementing school -to -work programs.Even if Scnoolto-Work Programs? tor developing and the tederai program fails to pass, webelieve the Legislatureshould act to encourage and supportlocal efforts to create eftective career programs. This does notnecessarily mean the creation or anew categorica: program, but providing a careerfocus to existing programs. With a rev,changes, exiting vocations. programscan offer much in the wav of resourcesand experience

In the remainder: this chapter, wedescribe our recommendations regarding ..-ays the Legislature canhelp high schools createeffective career programs. First,the Legislature should create aprogram structure that guides developmentor high-quality local programs. Second, the Legislature should reviseexisting programs to meetthe needs of high schools attempting tocreate career program.Third, the Legislature should requirethe SDE to make and administrative changes toincrease support ofiota; program initiatives. Our recommendations aresummarized ir. Figure 8.

CREATE A PROGRAM STRUCTURE TO GUIDE LOCAL EFFORTS

We recommend enactment oflegislation in advance ofreceiving federal development andimplementation funds that creates a statewide program structure whichidentifies the. state's goals in creating a school-to-work programbut provides local flexibility over how program services aredelivered.

According to the SDE, the state willreceive 5750,000 in federal funds in 1993-94 to develop acomprehensive statewide school-to-work program plan. Once a stateplan is developed, additionalfederal development and implementationfunds of an unknown amount may be available toboth the state and school districtsto carry out the state plan. We recommendthat the Legislature enact a program structure that would guideschool districts in planningschool-to- What Can the Legislature work programs. We are not suggesting the Legislaturemandate all Do to Help Create Local high schools to create school-to-work programs. That decision is best School-to-Work Programs? left to each district tc resolve. Instead, we believe the Legislature should help guide interested districts in creating effect:Ye local programs.

Figure 8 Legislative Analyst's Office Recommendations Creating Effective School-to-Work Programs

VCreate a program structure to encourage effec- tive programs Maximize local control Clearly identify program goals Coordinate funding sources Reward schools for good performance Foster a learning environment

VMakeprogram changes to ease implementation of school-to-work programs Transform "seat-time" standards into skill and content standards Revise ROC/P mission Develop tech-prep standards Maximize funding from existing programs

Realign state activities to support local school- to-work efforts Reorganize the State Department of Educa- tion's internal structure Review the federal vocational education plan Ensure timely occupational information available to high school students Programs: Principles and What Can the Legislature I in our report Reform of Categorical Education features common Do to Help Create Local Recommendations, we outlined five program design School-to-Work Programs? zo effective programs. Webelieve any school-to-work program should be based on these five principles, asdiscussed below.

Maximize Local Control Over Program Design Whenever Possible We recommend that legislation require schools toreview the need (3.r program components thataddress the six elements of successful career programs: early careercounseling and exploration; high- cuality, integrated curricula; a focus on high-skill occupations;work- based education; certification of skills; andcollaboration with postsecondary institutions and employers. The legislationshould zive districts flexibility over how andwhen to implement the different elements during the implementation phase.We recommend the Legislature not attempt to define how each local programshould be designed and operated.

Clearly Identify Program Goals In this case, we believe the primary goal of school-to-work programs :s to improve the achievement ofhigh school students, particularly those types of students who currently do notgraduate with the analytical or communication skills needed by employers.Other _major goals of the program should includehelping students (1) obtain jobs that pay more and provide advancementopportunities and (2) continue education or training after high schoolgraduation.

Consolidate and Simplify Funding Sources As Figure 7 illustrates, seven programs providefunding for the vocational education and job training needs of high schoolstudents. Consolidating these programs at the high school level,however, would require significant statutory changes (at boththe state and federal levels) and institutional changes because highschools lack direct control over three of the four larger programs. Webelieve the state has two different options for consolidatingexisting resources. control 'What Can the Legislature The first option is to take steps to give high schools greater Do to Help Create Local over resources currently administered byROC/Ps, the Department School-to-Work Programs? of Rehabilitation, and private industry councils. This would require allowing funds to pass through high schools before allocation to the various training agencies or giving high schools more voice in the decision-making process of the different programs.

The primary benefit of this option is that greater control would permit high schools to determine what mix of vocationaleducation courses and providers best meets the needs of students.This option also could introduce an element of competition into the provision of vocational resources. The problems associated with this option are twofold. First, by reducing the authority of local training agencies, the Legislature also would risk losing the cooperation and expertise of these agencies. Second, high school administrators generally are inexperienced in dealing with these programs and may do a less competent job than current program administrators, at least in the near term.

The second option would treat existing programs and administrators as a consortium and give each provider a role in the operationof school-to-work programs. This option would coordinate resources, rather than consolidate them.

The strength of this approach is that high schools would be able to take advantage of the expertise and employer contacts developed by these agencies as well as program resources. This option also would protect these program resources against the potential desire to redirect or supplant them at a high school. The weakness of this approach is that cooperation takes a lot of time to achieve and does not always work. Agencies may resist and frustrate a high school's ability to use resources from a particular program.

In our judgment, the Legislature should begin with the second option because it would coordinate resources with the least disruption to local program operators, who can make important contributions to the development of local programs. In recommenda-

n

2 5 What Can the Legislature tions discussed later in this chapter, we offer some ways to begin Do to Help Create Local creating local consortia by strengthening each programs connection School-to-Work Programs? to high school programs. As these changes are implemented, the Legislature should monitor the performance of these consortia and the extent to which resources and support are shared.Ifit determines that the cooperative approach is not working, the Legislature may want to reconsider the first option.

Reward Schools for Good Performance We envision two types of rewards. First, schools that dramatically improve the achievement of students (based on specific performance measures) should receive recognition and financial awards. Similar to the JTPA Program, these awards would be funded by setting aside a small percentage of program funds.

Second, schools and consortia of providers (if the second option is chosen) that are successful at identifying and using greater-than- average amounts of funds through existing programs also should receive financial awards. For instance, any new funding could be based, in part, on the fiscal effort made by high schools and the consortia of provider programs.

Foster a Learning Environment The Legislature can help improve the quality of local programs in three ways.

Reasonable Implementation Period. First, any legislation creating a comprehensive school-to-work program should allow a reasonable implementation periodat least five years. Sufficient time will permit schools to learn about, plan, and implement programs that have worked elsewhere. Unrealistically short time frames result in wasted resources, less effective programs, and disillusioned teachers and students.

Technical Assistance. Second, schools need information and technical assistance to take advantage of other effective programs and to avoid

26 What Can the Legislature the pitfalls experienced by others. Sufficient funds for the SDE Do to Help Create Local and /or county offices or education to provide technical assistance School-to-Work Programs? should be a part or a comprehensive reform effort.

Evaluation. Third, any legislation should include rigorous evaluation of different school-to-work models. Evaluations will provide data for long-termimprovement- oflocalprograms andvalidatethe administrative performance measures used to indicate program success. Three partnership academies in California are part of a national evaluation of this program model, for instance. Using a sophisticated evaluation design,thisevaluationwillprovide unparalleled data on the educational and employment impacts of the academies on high schooi students.

Legislation should earmark state or federal funding for such evaluations. The legislation also should require the SDE to seek federal and other sources of evaluation funding that could reduce the cost to the state of the evaluations. While good evaluationsmay be costly, we believe they represent a long-term cost-effectiveuse of taxpayer money.

MAKE PROGRAM CHANGES

Transform "Seat-Time" Standards Into "Skill and Content" Standards We recommend transforming high school graduation and college admission requirements into skill- and content-based standards in order to facilitate the integration of academic and vocational curricula.

High school curricula are driven currently by two forces: state high school graduation requirements and minimum entrance requirements for the University of California (UC) and the California State University (CSU). (The UC requirements are knownas the "A through F" requirements.) As we discussed above, changes in these

27 high What Can the Legislature requirements can result in significant curriculachanges within Do to Help Create Local schools. School-to-Work Programs? Graduation andcollegeentrance requirements currentlyare described in terms of "seat time," or the number of years ofclasses students must take to satisfy the requirements. These requirements could, however, be posed in terms of skill and contentstandards, that is, the skills and content matter we expect graduates orcollege students to possess. For example, in lieu of three yearsof English, requirements would specify that the curriculum includewriting a business letter, writing a three-page essay, reading Shakespeare,and so on.

The current seat-time requirements create a barrier to integrating academic and vocational material. The requirements promote traditionally structured courses rather than courses in which academic material is taught as part of a vocational course.

Creating skill- and content-based graduation standards ratherthan seat-time standards is a task that should not be too difficult to achieve. Detailed curriculum frameworks exist for every highschool subject matter. Implicitly, these frameworks specify what we expect high school students to learn and can provide the basis forskill and content standards.

To transform high school graduation requirements intoskill and content standards but leave college admissionrequirements unaffected would risk creating a two-tiered systema seat-time system for "college-bound" students and a skill and content system for the remainder of students. A two-tier system would reduce the future options of students who did not explicitly meet college entrance reauirements.

The Legislature could avoid this problemand increase the participation of college-bound students in career programs by requiring the SDE towork with the UC and the CSU on their

02 28 What Can the Legislature admission requirements to duplicate to the extent possible the skill- Do to Help Create Local and content-based high school graduation requirements. School-to-Work Programs?

Update the ROCIP Mission Statement We recommend adoption of legislation updating the mission of ROC/Ps to reflect the goals of school-to-workprograms.

ROC/Ps constitute a major source of vocational educationcourses for high school students. Indeed, insome districts, high schools are almost entirely dependent on ROC/Ps for vocational education classes. The mission of ROC/Ps is dated, however, and limits the ability of local agencies to respond to the school-to-work transition needs of high schools. For example:

ROC/Ps are required to prepare students for entry- level employment. The school-to-work reform effort focuses on helping students achiesre higher levels of academic and vocational skills. For thisreason, we believe the mission of ROC/Ps should be amended to focus on the long-term academic and vocational needs of students.

ROC/Ps currently must show thatevery vocational course meets a documented labor market demand and results in the employment of students. These require- ments place a heavy emphasis on fulfilling short-term training needs of employers rather than satisfying the long-term needs of both employers and students. Reducing the emphasis on immediate employment and requiring most courses to be part ofa sequence of courses (or "majors") would give ROCA'smore flexibility to integrate academic material intocourses and promote higher-level skill development.

ROC/Ps are prohibited from serving ninth and tenth graders. This rule hinders ROC/P participation in academies and apprenticeshipsthat begin during the What Can the Legislature ninth or tenth grades. Thisrestriction should beeased Do to Help Create Local School-to-Work Programs? for these programs.

Current law does not requireROC/Ps to coordinate courses with highschools or communitycolleges. Existing law prohibitsROC/Ps from unnecessarily duplicating other manpowertraining programs, but is silent on the questionof coordinating withother education agencies. Whilesuch coordinationis moving forward in some casesthrough the imple- mentation of tech-prep programs,codifying the requirement will emphasize itsimportance.

We envision three roles forROC/Ps in an environmentwhere career programs are common:

ROC/Ps would provide some orall of the vocational education needs of occupationalclusters and academy or apprenticeship programs.

They would provide vocationaleducation in specific occupational areas that are not partof an occupa- tionalcluster,2+2 program,ormore-rigorous academy or apprenticeship program.

ROC/Ps would provide technicalassistance and resources to highschools in creating school-to-work programs,integratingacademic and vocational courses, linking withlocal employers, and coordinat- ing with communitycolleges.

Develop Tech-Prep Standards We recommend the Legislaturedirect the SDE and theChancellor's Office of the CaliforniaCommunity Colleges to jointlyestablish standards that high school, ROCIP,and community college courses

303 4 What Can the Legislature must meet in order to facilitate local development of coordinated Do to Heip Create Local sequences of vocational education courses. School-to-Work Programs? In tech-prep programs, high schools and ROC/Ps coordinate academic and vocational education courses with community colleges to promote student transition from hie: school to community college. When the coordination is complete. the colleges give college credit for high-level work done while a student is in high school.

Currently, no widely accepted standards are available to guide the local coordination process. Secondary schools must coordinate separatelywith each communitycoliec,,e,statecollege, and university. We view this as an unnecessarily burdensome, time- consuming, and expensive process.

The development of state standards describing the minimum requirements for high school and community college course content could greatly accelerate the developmen: of tech-prep programs across the state. Like the existing academic frameworks, these standards would not be required of schools. Instead, the standards would give high school, ROC /P, and community college educators a guideline for developing local course sequences. For example, these guidelines could identify the role of secondary and postsecondary institutions in providing sequential courses in different occupational . areas, and the content of the various courses. Rather than requiring each school and college in the state to individually negotiate these sequences, state frameworks for these secuences could hasten the implementation of tech-prep programs and help. ensure a minimum level of quality to the coordinated programs.

Maximize Funding From Existing Programs We recommend adoption of legislation to enable schools to redirect existing funding for schooi-eo-work transition programs.

While substantial amounts of funding are available through existing vocational education and job training programs, policy and practice

31 available or erect What Can the Legislature often limit the amount of resources that may be barriers to the smooth coordination of resources. Do to Help Create Local 1 School-to-Work Programs? We identified several instances where funds could beredirected or arocesses changed to obtainadditional resources. Specifically, we recommend the following changes.

Create statutory limits on the percentage of ROC/Pfunds that may be used to support services to adults. Asor 1992-93, 50 percent of :hese funds supported adult vocationaleducation services. We recommend that half of the funds supportingadults, or $60 million, instead be used to support high school programs.This change would force a major change in some ROC/P operationsand should be implemented over a period of years.

This recommendation also would reduceROC/P services to adults. We view the change as returning the central missionof ROC/Ps to serving high school youth. Until the passageof SB 813, ROC/Ps' primary mission was serving high schoolyouth. Our recommenda- tion would establish the ratio of youth andadults served by ROC/Ps to its pre-SB 813 levels. Because ROC/Pswould serve fewer adults, this recommendation would increase thedemand for adult job training that is provided by other agencies,such as community colleges, adult education, JTPA, and the EmploymentDevelopment Department.

Assign a larger percentage of federal vocationaleducation funds to secondary schools. If new federal school-to-workfunds are not available to support development costs, the paceof local design and implementation of career programs would beslowed greatly. In that event, we recommend theLegislature redirect additional federal Perkins Act funds to high schools forthree years. Currently, high school programs receive 47 percent oflocal Perkins Act funds, and adult programs (through ROC/Ps andcommunity colleges) receive the remaining 53 percent. This split isbased on a policy decision of the state Board of Education and theCommunity Colleges Board of Governors. By increasing the percentagegoing to high school

32 36 What Can the Legislature programs to 67 percent, the Legislature could make $15 million in Do to Help Create Local additional resources available each year for planning and implement- Schoolto-Work Programs? ine school-to-work programs. While community colleges and ROC/Ps have needs for these funds, we believe that providing planning funds needed to start school-to-work programs would have greater long-term benefits by giving high school students access to the education and training needed to get good jobs. This would be a small reduction in overall funding available to these agencies.

Mandate review of local JTPA spending plans for youth programs by school superintendents. Local JTPA funds are controlled by private industry councils (PICs). High schools and school districts have no formal role in the planning and expenditure of funds targeted for youth services. The Legislature can give school officials some leverage over the use of these funds by requiring PICs to obtain approval of each school superintendent for its plan to spend JTPA youth funds. In addition, the Legislature should require local JTPA plans to include a description of how the youth funds will support high school career programs. Together, these two changes will help increase the JTPA resources available to high school programs.

Limit partnership academy funding to providing three-year planning and startup grants. Currently, partnership academy funds provide ongoing support to 48 high school academies. These funds are used to reduce class sizes and provide needed vocational education services, mentors, etc. A number of high schools, however, have been able to operate academies without additional state subsidies. Instead, these schools depend on ROC/P, community college, and employer resources to support the additional cost of operating the academies. By phasing out permanent operating subsidies to existing academies, the Legislature ultimately extend startup grants to 200 academies each year with existing partnership academy funding.

Refocus tenth-grade counseling to include vocational and career counseling. Under current law, tenth-grade counseling is limited primarily to ensuring that students will have sufficient high school

0 ( 33 course credits tograduate by the end of twelfthgrade. This change What Can the Legislature i would explicitly allow schools to usethe counseling fundsfor Do to Help Create Local vocational and career counseling aswell. School-to-Work Programs?

REALIGN SDE ACTIVITIES TOSUPPORT LOCAL SCHOOL-TO-WORKEFFORTS to the We recommend the Legislaturerequire the SDE to submit relevant fiscal and policy committees aplan for how the department intends to support school-to-work programs.

within Just as school-to-work programsseek comprehensive change high schools, the Legislature alsoshould expect the SDE to alterits structure and programs to supportlocal efforts. Yet, almost two years after thepublication of Second to None,the department has done little to reorganize in supportof the report's vision. Below we describe three ways the departmentcould improve its ability to support local programs.

Reorganize the SCE's InternalStructure The department's current organizationshould be reexamined to determine whether bringingtogether different program areas affecting high schools would increaseits ability to support local school-to-work efforts. Academic andvocational interests are divided within the SDE, for instance, just asthey are in high schools.

Within one branch of thedepartment, there are three different divisions with major responsibilitiesfor school-to-work programs: a curriculum division with responsibility over"academic" programs, a separatevocational education division,and an instructional support division containing ahigh school reform unit. In addition, within a second branch of thedepartment, the Alternative Education Division is responsible forJTPA-funded programs, opportunity programs, dropout programs,and working with state agencies responsible for the collection and useof occupational information.

34 What Can the Legislature We believe the department should reexamine its internal structure Do to Help Create Local with an eve toward creating an organization that facilitates the School-to-Work Programs? support of local school-to-work programs. At a minimum, the department should consider moving the Alternative Education Division into the same branch as the other divisions with major school-to-work responsibilities. Beyond that, the SDE should weigh the costs and benefits of merging portions of all four divisions into one high school reform unit. By confronting the same issues that Second to None asks high schools to solve, the department would be able to play a more supportive role in the reform process.

Review the Federal Vocational Education Plan The states plan for expenditure of the federal vocational education funds should be reviewed to ensure that it is consistent with the six elements of effective school-to-work programs. Such a review is required in any case due to recent changes in the Perkins Act that address school-to-work program goals.

Two examples are illustrative. First, these changes establish the integration of academic and vocational material as one of the act's major program goals. Second, the changes require the state to develop a system of core standards and measures, which would be used annually to assess program effectiveness. Local programs that consistently cannot meet these standards and measures must work with the appropriate state agency to develop an improvement plan. The SDE is required to monitor the effectiveness of local high school plans.

Currently, the department's implementation plan does little to stress the importance of two program components of the federal act. For instance,thestate'splan includesintegrating academic and vocational material only as one of 14 priorities that are contained in federal law. In addition, until recently, the SDE had not taken any steps to determine the extent to which integration was occurring locally or what barriers were preventing further integration of academic and vocationalmaterial.Yet, as discussedearlier, integrating these curricula is a central. and difficult, element of plan shouldstress effective career programs.We believe the state Legislature priorities. What Can the this priority abovethe other federal Do to Help CreateLocal Programs? SchooltoWork the state's standardsand measures. A similarproblem exists with We identified thefollowing shortcomings:

Not Implemented.While the state Data System to develop complied with thefederal requirement implement standards and measures,the SDE did not required to computethe the system. Someof the data collected. measures have neverbeen identified or

Measures. Our reviewindicates Inadequate Range of identified by the that the standardsand measures adequately measurethe impact of career SDE will not impacts on programs. The measuresignore program students (such aslow-performing subgroups of only on state- students), for instance,and concentrate or district-wideaverages.

The standardsand Program GoalsNot Specified. communicate thestate's measures alsodo little to For instance,they do not provide program goals. elements of information on thestatus of the six important, effective school-to-workprograms. More not communicateto local districts the measures do around the state's interestin developing programs these elements.

has never No Local Monitoring.The state department specific monitored localperformance based on any The SDE criteria, as requiredunder federal law. considered advises that monitoringof local plans was the relatively small a low-priorityactivity, due to that are available for amount of federalsupport funds state-level activities.

36 provide an important What Can the Legislature The federal vocational education program can effective school-to- Do to Help Create Local tool for the state in shaping local efforts to create has been making a good School-to-Work Programs? work programs. While the department attempt at recrafting the state plan to encourage moreeffective program design and operation, webelieve the Legislature should require the department to provideinformation on its progress in these two areas. This would assurethat the state obtains the maximum value from the federal vocationaleducation funds.

Ensure Timely Occupational Information ' vailable to High School Students the department should initiate an expanded effort tounderstand the occupational information needs of high school studentsand work with the Employment Development Department(EDD) and the CaliforniaOccupationalInformationCoordinating Committee (COICC) to develop sources for this information.The SDE currently participates as one of the nine members on thefederally mandated COICC, which is required to coordinate thedevelopment of occupational information systems for use in planning,counseling, and economic development.

Occupational information constitutes an important componentof any high school career guidance effort. Currently, however,the data made available by the state do not meet many of theneeds of high school students. The EDI) collects occupationaldata through a number of state and local programs. Data on occupationaldemand are published periodically in theform of ten-year forecasts of employer demand for specific occupations in specific regions.The EDD also publishes state and regional unemploymentstatistics by industry and reports of employment prospects in specific occupa- tions.

While the EDD data are valuable, the needs of high schoolstudents call for somewhat different information. Specifically, wehave identified three areas in which EDD data do not meet the career needs of high school students: Job Definitions. Whilethe EDD data providelong- What Can the Legislature term estimates ofthe demand for manyoccupations, Do to Help Create Local they do not recognizehow jobs are being affectedby School-to-Work Programs? computerization and the changingneeds of business. this As students makelong-term career decisions, type of data onoccupational areas would prove valuable.

EconomicConditions.The EDDoccupational employment projections arebased on simple straight- line projections of relativelyshort-term employer needs. The EDD does notalter these projections to reflect expected changes inthe economy thatwould affect demand for specificoccupations. These data, too, would be valuable tohigh school students.

Adaptability for Use inSchool-to-Work Programs. School-to-work programs try tofocus students on long-term career decisionsthatis, decisions that often require additionaleducation or training to achieve. The EDD data are notstructured around career paths; infact, we found the datarather difficult to use when trying tocompare theemployment prospects for a varietyof career options.

High schools need goodoccupational data to help highschool that its students make good careerdecisions. The EDD recognizes data need to be modified to meetthe needs of high schoolstudents. Because the EDD operates thedata collection system andthe COICC coordinates the various needsof state and local agenciesfor occupational information, webelieve the SDE should workwith the two agencies to improvethe applicability of dataavailable to high school students.

4

38 What Can the Legislature Do to Help Create Local CONCLUSION School-to-Work Programs? In this chapter, we presented our recommendations fo:. actions the Legislature should take to help school districts create effective school-to-work programs. The recommendations revolve around three themes. First, the Legislature should createa program and planning structure that promotes the creation of effective local programs. Second, we recommend certain refinements to existing education programs in a manner consistent with school-to-work programs. These recommendations also suggest changes that can help schools maximize existing funding forcareer programs. Third, we recommend changes to a number of state activities that should be structured to support local school-to-work efforts. Together, these recommendations would allow the Legislature topave the way for the development and implementation of effective localprograms. MOBILIZING FOR COMPETITIVENESSLinking Education and Training to jobs TheA California BusinessCan Roundtable for Action from Jamul'SUMMARY y I ()()-} 44 PaulPrepared Berman, by BW Project Associates Director 41 5 MOBILIZING FOR CONIPETITIVUNTSS: LINKING EDUCA I ION AND TRAINING TO JOBS Goal 1: Create a Coherent System SUMMARY OF and(ions,Create ttansilions employment a coherent to high educationser vices,shill careers and Itjob (lining for training all system, Californians. programs so th«t operate 1i -12 edu«nion,under a conintunitv«minion policy colleges, Irtunwark the four-veal and provide education clear pathways GOALS,STRATEGIES, guideAppointStrategy education an1. AnEducation Education and training and and Economic andEconomic link Development it toDevelopment employment. Council Council. to develop a common policy framework that will AND POLICY Policylion, Optionsdepartmental,I hr and legislative leaders. TheGum Council nor should appoint the ( ...'ouncil; iIS nu nlhclti would in( I t R I c high level Int,,ine,,s, would: labui Mut a OPTIONS commonperformance-basedFormulate policy a plan framework, that accountability; links recommends education and resource training to the state's economic allocation strategies, and proposes a shift to development, establishes a StrategyDevelop 2. A aLegislative legislative Master Master Plan. Plan for all education and training. Serve as a temporary advisory body. 4G 1Policy hegrade Legislature Options schooling should and employmentrevise the Master training. Plan The for MasterI ligher PlanEducation should: and extend it to include all post-10th ConsiderStrengthenDevelop making a student education's community fee policy link collegesto related economic theto actual pointdevelopment; ofcost entry of instruction; to higher education for most students; SUMMARY OF GOALS, STRATEGIES, AND Policy OpnoNs EstablishDirect t IC a andrevised Csll system to develop of certificates plans lor andcampus degrees specialization; for education and training after grade 10 (see Concentratestrategyproviders i); (see responsibility Strategy 4). for Adult Basic Education in a new State authority that would contract with withBuildStrategy clear an infrastructure3. pathways An infrastructure to of higher professional-technical of skill Certificates jobs. and certificates Degrees. and academic degrees that provide all Californians andEducationalPolicy (tepees Options institutions,that provide in transition conjuni,ion ladders with businessgoing from and the labor, foundation should skills establish to advanced a system higher of certificates skills in 4=. different careers, including:assessment;Certificate of Foundation Skills, awarded for successful high school or Community Academy CertificatecareerDiploma fields ofof after Professional Academic about three or Competence, Technical years of Merit,study; awarded a postsecondary in an industry degree or career awarded field signifyingin different the industry or achievementMasterProfessional level of in Master'sJourneyman the profession. Degree, level awarded in the profession; in an industry or career field signifying the achievement of mentReorganizeStrategy and 4. postsecOndary Organizing literacy education Adult education. Basic for adults Education. to provide them with better learning opportunities linked to employ- 4 1/4.) 40 MOBILIZING FOR COMPETITIVENESS: LINKING EDUCATION AND TRAINING TO JOBS ThePolicyploci..ion Legislature Options of MUBE should ..eivicec establish 'Jun14;11011! a contracting the ..mie authority forAll Adult plogi Basic am,. Education would he. that would oversee the CalledRequiredProvided Community three-to award to Academies, five-yearthe Certificate contracts, regardless of Foundation renewable of deliverer; Skillsbased for successlul on student completion performance; of Academy programs; EstablishStrategy S. Workforce Providing OneStop=skim" Centers Services. for education, Articulated with community colleges, guaranteeing access to training, and employment services that integrate higher education. all lo- 41. cal, state, and federal programs and provide one-stop Policy Options services for individuals. The(:enters State shouldwhose keyprovide features support wouldGrass-roots and he: incentives efforts with voluntary local collaboration; for communities to form local Workforce Transition EducationIntegratedInformation services;linked moved, to high not skill people. jobs and community development; IGoal try,' rile2: Upgrademite Ition Educationand and Training to World-Class (loss simulants, co that fill calif'' fliutic ohtutt, Standards the foie 1(111( (ma ralv,nrr LII 1111)1Viellyy (Intl SetStrategy industry-wide 1. Setting skill Standards. standards benchtnarked to Shills they will 'feedlot high hinge jobs and employment se( ill ity in world-class levels. (.cilikir Ma's 21st tetitioy e«Itionlv. 51 SUMMARY OF GOALS, STRATEGIES, AND POLICY OPTIONS PolicyskillThe standardsOptionsbusiness community, and certifications in conjunction for careers with and labor job andclusters education, in major should California take industries.the lead in Theestablishing State should facilitate this process byproceduresEstablish helping industries voluntary for assessment to:Industry and Workforce certifications; Development Consortia to set standards and establish Strategy 2. Shiftingiqiihlish petto Performance-based lot mance based accountability, Accountability. reduce iegulot ions, and develop Formincentives an industry lot excellence Skill Standards lor local and Certification Panel to oversee standards and certification. education institutions and job training providers. PolicyThe OptionsEducation and Economic Development Council and the Master Plan should develop policies for mov- oning studentthe state's performance. education andCalifornia Supporttraining should: performance-basedsystem from accountability assessments; based on inputs to accountability based ExpandEliminateFund education the unnecessarily use ofon charter the basis restrictive schools. of outcomes, regulations rather on than the deliveryinputs; of education and training; paradigmAccelerateStrategy 3. shift theAccelerating in reform approaches of K-12K-12 to Reform.by learning, committing and guaranteeingto the goal of auniversal career head early start childhood for all students. education, pursuing a J2 53 M01111 IZING COMM. I I I IVFNI:Cti: LINKING F.1)I ICA I ION AND TRAINING I 01011S Policy Options goalThe1. Establish Statemust heshould the approached Foundation establish in a stages: forpolicy Learning. of universal early childhood education. In light of limited resources, this PhaseRestructureFund in only subsidies preschools K-2 intofor four-year-oldsdevelopmentally accredited as from meeting appropriate poor high ECF. standards; families to attend public orinstruction. private preschools; 2. high-performanceShiftI he to Stale an Active should Learning workplaces. encourage Paradigm. schools The State 10 should follow develop active Wining environments lor all policies that: students and to become ShiftIncorporateEstablish to performance-based high new standards learning foraccountabilitytechnologies; all students; and eliminate excessive regulations; Support,tillInstitutionalize 1274 evaluate, to charter stall and schools. development disseminate informationlor continual leacherabout growth; effective grass-roots educational model from 3. mandatoryGuarantee1.1w I egislatitre structurea Career and forReedited the a school-to-careerBoard for of AN Education Students. transition system: should establish the following series of requirements that set a 54 assessment;ProvideRequire accelerateda Certificate learning of Foundation opportunities Skills for for students advancement; having difficulty passing the tenth grade RequireInitiatePhase transition inCareer this restructuring Pathways programs Demonstration. forover every five studentyears; at every high school; SUMMARY OF GOALS, STRATEGIES, AND POLICY OPTIONS Strategy 4. Innovating at Community Colleges. efficient.Introduce systemic innovations to enable community collegesPolicy Optionsto become more effective, productive, and Thelearning community and improve colleges productivity shouldSet scale aside and up aeffectiveelliciency. fund to supportinnovations The Legislature innovation; to the andsystem the communitylevel in order colleges to enhance should: TrainImplementIntroduce college performance-based distancepersonnel education, in modern academic year-round management standards operations, practices; and assessments;and other high utilization facility policies; StrategyIntegrate 5. integratingtechnology Technology into curriculum for Learning. and instruction throughout K-12 and the communityStrengthen colleges. the Chancellor's Office capacity to direct and coordinate systemwide changes. PolicyToTechnology accomplish Options should this objective:be integrated into learning at all levels of the K-12 schools and community colleges. TheTechnology K-12Legislature system Master should should Plan, authorize establish and establish technologythe new a set-aside faculty bonds fromcredential to fundcommunity hardwareof Technology college purchases, generalSpecialist, fully funds; channelfund the existing 1992 ofand a newsystemwide staff development telecommunications funds into network; technology training for teachers, and accelerate the development .4.1 58 thedevelopmentlearningThe CSUNet. commcalty technologies, for collegestechnology start should (includingan Institute greatly the expandfor new Technology faculty the use [N.J.,' of and distance r-,ance education Education, and undertake of new cost major effective staff - Technology Specialist) and join 5 7 WINO I ()It CI )R1I'l III WI NI ss: I INNING. FI)I I( A I ION ANI) I ItAININt ; I () Sliengthensecurity,Goal and high income3: skillsSupport growthtraining a Businessfor for workers. innovative Shift workplaces to High Skills, that yield High improved Wages quality and prodta tivity, enhanced employment MobilizeStrategy higher1. Mobilizing education Higher to help Education. businesses become high-performancePolicy Options workplaces. business'The Governor shift shouldto high mobilizeskill, highCommunity higher wage educationworkplaces. colleges, to CSU, Toplay do anda so: leading UC should develop a strategic plan roleto collaborate in the State's in supportstrategy ofto support andCommunitybusiness' provide shift collegesorganizational to high-performance should and help employee businesses organizations; training. identify needs, develop plans, acquire training resources, Strategy 2. GeneratingIse bonds, loans,Resources. and tax incentives to create additionalPolicy Options resources for high skills training. withoutI burdening the statee Legislaturebudget.Issue tax-exempt California should authorizebondsshould: or certificatesa range of participation to pay for training; of new initiatives designed to create additional training resources transformation;Provide forgivablelow-interest loans loans to forbusinesses retraining that to increase must retrain productivity employees and in support order to make a transition to new organizational formsparticipateProvide of production; tax in incentives approved to school-to-work businesses that transition invest inprograms. high skills training linked to workplace reforms or The Unfinished journey: Restructuring Schools in a Diverse Society

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A California Tomorrow Publication

4 7 0 BEST COPY AVAILABLE ONCLUSIONS AND ECOMMENDATIONS

Conclusions

I. School restructuring is an energetic, hopeful movement that is resulting in an increased focus by educators upon teaching and learning. Most of the schools in this study reported broader involvement of teachers, parents and oth- ers in setting a whole school vision, excitement about possibilities for change, and higher lev- els of commitment to professional development and reflection on research. The schools stud- ied tended to be optimistic sites where teachers were volunteering many extra hours because of a belief that change was possible. Restructuring appears to be a real movement for change. II. The impact or -LT restructuring movement depends upon building the understanding and knowledge base teachers in how issues of race, language and culture figure in the lives and schooling of their students. There is still an alarming widespread lack of awareness and expertise on these issues. In the majority of schools in this research, restructuring reforms were failing to address the needs of racial, linguistic and cultural minority students. Some schools were perpetuating practices that are out of compliance with law or were eroding programs designed to meet the needs of their minority students. This appeared to he occurring primarily out of ignorance about basic principles of second language acquisition and about the role of cultural back- ground and racism in the lives and schooling of students. The critical shortage of bilingual teachers and of teachers of the cultures and communities of the students, the lack of profes- sional development in these areas, and the lack of expertise about the cultures and back- grounds of diverse students are major barriers to effective restructuring reforms. III. The promise of the restructuring movement to make schools better for all diverse stu- dents is dependent upon building broadly inclusive processes. However, often missing from the table are the voices of those people most connected to the communities of the students. In most restructuring schools, the dialogue has widened to involve a broad group of commit- ted teachers in shaping the whole school vision and reform plan. But parents, community members, instructional aides and other support staff have not yet been a meaningful part of the change process in most schools. IV. The involvement of parents and caregivers, while oftentimes a goal of restructuring schools, remains one of the most problematic aspects of reform efforts. ,)f ..(eli()((is desire ::acre parent in\ ()I\ einent than the ken able t() !valve. Few schools had an active parent body that represented the linguistic, cultural and racial composition of the students. Varying perspectives on how, why and which parents should he invnlved commonly created underlying tension in restructuring. Where the school staff do

48(1 The Unfinished Journey of par- backgrounds or communitylives of their students.the missing presence not share the few schools recognized creation of appropriatereforms and programs. Yet ents impedes the that might facilitatesuch involvement. this, nor did they havethe supports or mechanisms addressed in restructuringschools. For the most part, thesebarriers are not being for teachers, administrators, par- Restructuring demands newroles, skills and resources V. change, and to ensure afocus upon diversity. ents and others inorder to create whole school responsibility being assumedby teachers in runningtheir Along with an unprecedented knowledge for the task.Facilitation, schools, we found a profoundlack of preparation and curriculum developmentthese arejust some of the skills planning, mediation, management, support andprofessional demanded by restructuring.The skills for change require strong restructuring schools do nothave access. The abilityof schools development to which most is greatly depen- professional development forthe participants in restructuring to obtain such of training and technicalassistance dent on the presence orabsence of a strong infrastructure districts for the individual success of schools innegotiating with their in each locale, and the changing in these opportunities. Teachers'roles are particularly time and resources to utilize reform their expertise, energy andinvolvement are key. Currently, restructuring schools, and This is not sustain- primarily by voluntary timeoff the backs of teachers. is being maintained while attempting to reducethe able. Those schools wefound making significant progress supplementary funding, materials,travel and training. Most burden on teachers relied on other work of restructuring, so essential was the ability to payfor time for planning and the as to preventburn-out and bitterness. infrastructure of professionaldevelopment and technical assis- VI. A new, but fragmented, schools. This infrastruc- tance support isbeing created to addressthe needs of restructuring the need. And, it mustbuild its own capac- ture must bebroadened and strengthened to meet ity for helping school sitesaddress issues of equity and diversity. coaching, professionaldevelopment Restructuring schools areincreasingly relying upon the Offices of Education, andreform and technical assistance supportof universities, County this infrastructure of supportis essential, but mustbe greatly projects. The existence of high priority policy focus upon strengthened. The lack of acoordinated, comprehensive and and making these resourcesavailable is a major barrierfac- strengthening this infrastructure general, or for schools cannot develop thecapacity for reform in ing schools. Without them, the state reform initiatives(SB addressing the needs of diversestudents specifically. While 1470) are having a powerfulimpact on the field, eachhas been 274, SB 620, SB 1882, AB interests. While each is animportant generated from a separate setof concerns and legislative school sites are implementingthem as separate initiatives, catalyst of reform, in practice focus on issues of language,cul- resulting in a fragmentationof efforts. And, few support a ture, race, accessand equity that schools urgentlyneed. of children which affect their par- VII.To address the basichealth and mental health needs schools are building newpartnerships with human services agen- ticipation in school, some children's needs is dependent uponsuch cies. The promise ofrestructuring to meet diverse partnerships. of schools in our sample wereengaged in designing schoollinked A relatively small number and public health and human services in partnership m.ithcommunity based organizations efforts are being supportedthrough foundation and state grants service agencies. These challenges in working encouraging such collaboration.They are, however, facing numerous funding streams. across disciplines, agencycultures, bureaucracies, and unstable funding and staffing. VIII. Reform efforts arehampered by inadequate and with less. Teachers are puttingin In many schools, restructuringis about trying to do more sclif)ols are trying to personaliseinstruction despite -,(1rc curs hile accertin,..; iv% curs.

t.).? 4,,r) Executive Summary 49 increasing class sizes. Districts and schools already grappling with unstable and inadequate funding require additional resources from foundations and specialgrants for the extra work of restructuring. The reform efforts of those withoutany special funding are suffering. A cli- mate of competition between schools for scarce additional resources interferes with any poten- tial for system-wide change. Findingways to prevent the ragged exhaustion we documented in schools. as educators put in manyextra unpaid hours is critical. Restructuring efforts are unlikely to be successful or sustained restingon the powers of exhausted school staff. IX. Private foundations and public demonstration projectsare playing a crucial role in shaping the reform thrust in the field. Theyare, however, largely missing the opportunity to encourage a focus in restructuring schools upon equity for diverse students. As the basic funding for schools is eroded, andas schools recognize the necessity of additional funding to support their change efforts, theyare increasingly turning to private foundations for support. Funding for demonstration projects, fornetworking and conferences, and for technical assistance and coaching relationships has fueledthe restructuring movement. These funding sources powerfully impact thecontent and direction chosen by schools in their reforms. Thus, we found restructuring schools strongly focusingon innovative uses of technol- ogy, developing schools in line with state curriculum frameworks and reformreports, and col- laborative services. There is, however,very little support for equity- related change activities such as innovative LEPprograms, immigrant education, Afrocentric approaches, intergroup relations and school climate projects,or multicultural curriculum. Without financial resources, schools are finding it difficultto focus on an equity agenda within their restructuring. X. One of the most hopeful aspects of the restructuringmovement is that schools more than ever reflect on their practice and striveto improve their programs. While concern about student outcomes is present inmost restructuring schools, very few review sub-aggregated student data or consider the experiences ofgroups of students of differing cultures, languages and races. Schools are failing to consider information thatwill help them plan appropriate programs or assess the effectiveness of their reforms for students of different linguistic, culturalor racial groups. Only sub-aggregated data can inform teachers of thegaps in learning that need to be addressed and whether theirnew approaches are closing the gaps. Our findings documented both a widespread blindness to the need for suchmechanisms, and a lack of attention and resources devoted to developing such capacity. We documenteda resulting continuation of past practices or implementation of new practices whichare contrary to the research litera- ture (in some cases legal compliance) with regards to effectiveprograms for racial, cultural and linguistic minority students. Witha few exceptions, schools appear to he receiving very little support from district research offices, from theiruniversity partnership connections or other sources in how to design evaluative andmonitoring data systems, or how to use data in informing their restructuring efforts. Without suchsupport, schools generally do not have the expertise to incorporate data/accountabilitymechanisms. XI. The school restructuring movement is generallycommitted to basing reforms on the research on teaching and learning. Few schools,however, arc specifically informed by research about appropriate schooling for the particularstudent populations and communities that they serve. Restructuring schools are, in mostcases, knowledge hungry. However, there is a gap between the research that has been generated from the advocacy andresearch sector specifically about diversity, equity and accessand the research generated froma mainstream school reform field. In too many cases, generic mainstream school reformliterature does not speak to the tL iiee,a, of cultural, linguistic and racialmummy students. uoinniunication and collabo- ration between these two arenas of the educational reform fieldare essential.

5 0 The Unfinished Journey and state policy mech- System-wide reform will not berealized unless there are district XII. schools, and to adequately support anisr.is to build beyond a firstgeneration of restructuring schools in their change efforts. that a first generation ofrestructuring A policy assumptionbehind restructuring has been models and inspire others tofollow suit. The emphasis hasbeen, schools might provide some this first rung strategy and then, on spawning a first generationof schools. The link between reform is weak. Indeed, manyof the schools which actually achieving overall school system other schools further have more recently embarked onrestructuring have relied on visits to raise serious concerns abouthow the present system of along in the process. But our findings school system. We are voluntary individual school site changewill impact upon the overall school after school, in dis- particularly concerned about commonpractices we observed in for the resources necessary inorder to engage in meaningful trict after districtthe scramble The vast majority of restructuring, and the concentrationof those resources in a few schools. outside of the reform movementaltogether. Expertise is schools in California arc simply disseminate that learning. developing in the field but there arefew mechanisms to capture or efforts, the problem of As less and less money appearsavailable to support new restructuring how to support new generationsof restructuring schools is very great.

i4 51 .xecurn.c Summary Recommendations

The task ofrestructuring schools to be appropriate fora diverse society is cannot be done by schoolsalone. Each of enormous. It this goalat the state, county, us has a role to play. To workcollaboratively toward school-site and communitylevels, The Unfinished includes among itsrecommendations: Journey

That the StateLegislature: 1.Fund a secondround of SB 1274 schools to demonstration sitesto allow a new generation of enter the process. This secondround must strategically that center theirreform efforts around focus on scho(.s working for equitableeducation for racially, culturally and linguisticallydiverse students. 2.Continue funding for the technicalassistancecomponents of SB 1274 and SB and also fund effortsto strengthen and coordinate 620, standing of racial, their capacity to infusean under- cultural and linguisticdiversity into the field. 3.Pass a strong, comprehensive child-supportivestate budget that recognizes tricable connectionbetween basic health the inex- families, and and humansupport for children and their support for education. TheLegislature should Legislative Analyst andthe Department of request the Office of the any proposed budget Finance to analyze thepotential impact -4 cuts in one sectorupon the demand for public institutionsthat work with the services from other address the complexity same population of childrenand families. To of needs of studentsrequires a support vices for childrenand families. This infrastructure ofser- respond to their depends upon agencieswith the capacity needs. In thepast decade in California, to competitionover scarce funds between there has beena dangerous families. schools and humanservices for children and 4. Create and funda major five-year professional of supporting development campaignwith the goal mainstream teachersand administrators ed to teach in to develop the expertiseneed- a diverse society. Theseskills include: acquisitionprocesses and supports for knowledge of secondlanguage with a wide students through thatprocess; familiarity range of materials aboutdifferent cultures enable teachersto build inclusive curricula; and historical periodsto portive of diversity; approaches to creatinga climate sup- exposure to the major culturesand national student populationof California; backgrounds of the and strategies forworking .in partnership other children andfamily agencies. with 5.Establish an interdisciplinary task forceto assess professional nities for human developmentopportu- services staff workingwith diverse families ensuring all such staffreceive adequate and developa plan for pre-service andin-service professional opment opportunities. Theseopportunities must help devel- on the strengths of them learn skills forbuilding families, adaptingservices to respond guages of families, improving to the cultures and lan- access to services for cultural working ininterdisciplinary and linguisticminorities, teams, and using datato inform practice. The assessment must analyze thecurrent level of available training and developa plan for ensuring such resources across departments development of all opportunities could bemade a part of thestaff human serviceproviders. This legislation 1763 which calledfor a similar should buildupon AB assessment but was vetoedin in committee forconsideration in 1994. i 992 and carriedover

52 65 The Unfinishedtourney which credentialling task force to investigatethe extent to 6.Establish an interagency involvement of staffwith knowl- policies and practices posebarriers to hiring and employees of and families. Oftenparents or edge and expertiseof diverse children in work- have tremendousunderstanding and skills community-based organizations However, becausethey may and families fromtheir communities. ing with children school-linked servicesprojects may be lack the appropriatecredentials, schools and responsibilities in them or assigningthem to particular prevented from hiring these barriers andrecommend reme- restructuring. This taskforce should investigate dies in polices andregulations. accountability systemthat builds upon 7.Invest in thedevelopment of a data-driven accountable information systemsand holds schools existing data and management and participation. standards and equitablestudent achievement for both high level self-examination ofsub-aggregated data at The accountability system mustpromote components:incentives for schools to the school site level,and include three basic for technical assistance andprofessional development improve their performance, sufficiently improving,and reasonable schools engaged in goodfaith efforts but not fail to improve overprolonged periods sanctions for thoseschools which ultimately of time. universal public schooling systemby refusing 8.Protect the cornerstoneof our free and immigrant chil- communities of students,including undocumented to exclude any will be eroded if some public education to servethe public good dren. The role of the skills andknowledge for full populations are marginalizedand denied access to life of our society. participation in the social,economic and political

That the CaliforniaDepartment of Education: models and restructuring schoolsand make these new I.Document the work of videotapes, conferencesand knowledge available toothers through publications, other disseminationmechanisms. reform initiatives (SB Coordinate the infrastructuresof support for current state 2. subject matter projectsand state curricu- 1274, SB 620, SB 1882and AB 1470), the he complementary partsof an overall lum frameworkimplementation. These must funding with sepa- than separate initiativesin competition for reform strategy, rather They must he mandated toemphasize rate governanceand financing structures. student populations. equity and thedevelopment of strategiesfor educating diverse connections to theCalifornia Departmentof Education's Each must have strong monitoring and compliance,desegre- offices of bilingualeducation, school climate, gation and multiculturaleducation. obtain and and reform funds toschool sites that dc not 3.Stop awarding restructuring school experiences oftheir students by spe- use disaggregateddata on the differential and evalua- gender, and LEP statusfor program planning cific raciaVethnic groups, but wish to have the capacity tocollect and use such data tion. Schools that do not meaningful data system.But should be given seedfunds and training to create a without such data. noreform funding mustproceed. for serving efforts in schools that are outof legal compliance 4.Stop funding reform addressing that major gap is acentral their limited Englishproficient students, unless component of theschool's reform effort.

53 Executive Summary That the County Collaboratives: 1. Work with local schooldistricts to develop strategies forlinking and coordinating human services reform withschool restructuring efforts. Develop strategiesto ensure the participation of community with connections based organizations to racial, cultural and linguistic minoritycommunities in the devel- opment of school-linked services efforts. 3.Help coordinate, assess and improve professional developmentactivities for educa- tors and human service providersto learn to work in interdisciplinary understand appropriate teams and to practice with culturally andlinguistically diverse families. 4. Provide sites with technicalassistance on strategies for involving lies, for reaching parents and fami- out to community based organizations,and for information shar- ing in the school-linkedservice process.

That School Districts andSchool Boards:

1.Build infrastructures supportik g reform and ensuringa focus on issues of equity and diversity. Supports offered shouldinclude: A broad menu of professionaldevelopment opportunities A clearinghouse of reformresearch, resources and models A central information base about reform efforts in thedistrict Facilitation of networkingamong schools Coordination and hosting of,ite visits to restructuringschool for visitors from within and outside of thedistrict Grant writingsupport Blame free assistancein designing data tion and achievement systems for evaluating student participa- Coordination of "coaches" and other facilitationassistance for schools Providing meeting andretreat facilities away froma school site for a school communityto gather, talk and work Sponsorship of regular opportunities for cross-sitesupport among restructuring schools, such as Principalsforums andcontent area focused groups Strong resource personnel and legal advice aboutthe responsibility of schoolsto address the specific needsof special populations ofstudents Assistance in creatingstrong partnerships between schools providers and human service Develop a policy and process for involving an expanding circleof schools inrestruc- turing, with an eye to system-widereform. 3.Establish policies thatsupport the stable tenure of principals sites, and allow for site based in restructuring school principal selection. Strongadministrative leadershipat the school site supportiveof the arduous task of must hack schools' efforts school change is critical.Districts to foster successful and stablenew working relationships among principals, teachers andcommunities.

67 54 The Iinfinisbed !wane,. Non-citizen immigrant Enable non-citizen parents tovote in schoolboard elections. 4. have won this rightfor representation inthe deci- parents inChicago and New York contribute a wealthof education of their children.These parents can sions about the become more responsive todiverse knowledge and supportfor schools seeking to students. and structure of the work of restructuringwithin the calendar 5.Create time for the to pay forthis time. Teachers school year, as well asfind the extra funds necessary additional hours they arecurrently contribut- and others must bepaid for the many ing as volunteersfor systemic schoolchange. when necessary so as tomain- Establish principles abouthow to allocate fiscal cuts 6. their legal andeducational responsibili- tain an infrastructure tohelp schools fulfill of students. It is allthe more importantthat districts pro- ties to special populations and cultural minority educational rights and accessof racial, linguistic tect the regards is still thin,where there are students where capacity atthe school site in this training in these areas,and where publicand political shortages of teachers with diversity. Funds mustbe allocat- ambivalence on these issues runshigh over issues of in this infrastructure. ed for both resourcepeople and legal advisors capac- development resources.Building school personnel's 7.Must not cut professional school reform and foraddressing issues of ity for change isrequired for meaningful access and equity.

Working Together: That DistrictAdministration and Unions recruitment, hiring andretention of Support measures thathighly prioritize the 1. and communities of thestudents. It must be a sys- teachers from the backgrounds the stu- close the gap betweenthe teaching force and rem-wide concern and effort to background. dent population in termsof language, culturaland ethnic/racial for teachers andadministra- Negotiate expanded and moreflexible job descriptions paid hours in the school yearcontract, tors in restructuringschools that include more 10% base funding level forrestructuring schools. An up to and create an extended example, should be created asindividual sites see fit Ifor extended pay and calendar be continued for aslong as a extended days, weeks or years).This funding must inclusive, school-widereform process school can demonstrate thatit is engaged in an that is both data connectedand research driven. direction for schoolreforms to address issuesof diversity and 3.Provide the vision and community because it is often verydifficult for educators and equity. Furthermore, about these issues, such adia- members to engage inrespectful and safe dialogue the district leadershiplevel. logue and focus must bemirrored and modeled at

That RestructuringSchools: their school personnel to learnabout who their students are, 1. Develop mechanisms for fhis is particularly importantwhere prior schooling experiencesand participation. with language, culture, national orracial/ethnic background teachers do not share a develop this knowledgeincluding: those students. There are awide range of ways to interviews; utilizing theexpertise of dis- student writing, studentpanels and student the immigrant population;community trict assessmentpersonnel for insights into hearings and surveys, and manyother strategies.

55VS Execuuve Summary Highly prioritize professional development, particularly for schools that do not have credentialed bilingual or language development specialist teachers, or that do not have teachers from the communities of the students. The gaps of knowledge and training about the educational experiences and needs of racial, ethnic, culturaland linguistic minority students must he addressed. We recommend that such training he a prerequisite for at least a majority of the restructuringcommittee members in every school. 3. Study and reflect upon the research literature on the educational and social/cultural experiences of specific communities of students. School sites must he linked to the major professional associations and clearinghouses of research on issuesof educa- tion for racial, cultural and linguistic minority children. (Lists of these and the important literature are included in the appendices of this report.) 4.Developprior to the adoption of new programs or initiativesa language impact assessment as to how potential language barriers will be addressed in the new reform plan. This is critical in schools with language minority parent populations and/or LEP/NEP student populations. To assist in this process, school sites must be able to draw upon the expertise and perspectives of community advocates, cultural liaisons, district and county consultants in bilingual education and English as a Sec- ond Language, as well as upon the members of their own school community. 5.Hire staff from the communities of the students whenever possible. 6.Adopt policies and practices that ensure multiple perspectives at the formal gover- nance and advisory levels. Formal places must be created in school governance sys- tems for racial, linguistic and cultural minority parents and community advocates, as well as bilingual and ethnic minority instructional assistants. Ensure that the faculty with bilingual, ESL, multicultural and intergroup relations expertise are represented on the key committees of the school. 7.Make it a specific mandate to address the dimensions of culture, language, ethnicity and race within the mission of the school. School sites must devote time within the planning of their mission to define the role of the school in addressing issues of equi- ty, access and diversity and the desired outcomes for students living in a diverse soci- ety. 8.Seek multiple mechanisms to address students' academic support needs. This includes: homework hot-lines, before and after school tutoring services, homework centers open after school and in the evening; computer systems for students to check on their progress, advisors, student advocates; an entire school community which believes, acts upon and reinforces the importance of every child's education so that children take school seriously and will pursue what is expected of them at school. 9.Implementformalmechanismstoensuretheparticipationofthe parents /family /caregivers of all studentsparticularly those whose communications with the school are across lines of ethnicity, culture, language and national back- ground. To ensure this, the location and timing of school meetings and events must he flexible and accomodate the variety of parents' needs and schedules. There must he school staff wirb the bilingual skills to he able to speak with parents and families in their home language. Uhey must provide translation and mediation as well as interactions via telephone, face to face meetings and printed materials. It).Frain .,Il staff in cross-cultural communication to foster increased and effective tvvo- way communications between the school and the home. Staff must brainstorm together about working with parents and create networks of cultural liaisons and culturally sensitive mediators.

5 6 6 3 The Unfinished Journey facilitate and nurturerelationships amongdifferent groups 11. Create mechanisms to workshops, cross communitypotlucks of parents. Thesemechanisms may include: ensure thatschool activities involveall sectors of and social events, recruitment to can communicatewith the parent community,and translation support so parents each other. dialogue. In master schedulesand 12. Create time for jointplanning, collaboration and be provided with jointplanning time with other teacher assignments, teachers must whatever organiza- teachers (by grade level,interdisciplinary ream, "house" team, or the restructuring designof the school site). Inaddition, tional unit makes sense given he expanded to provide the structure of the schoolwork day, week and year must school/community-wide retreats,dialogue, planning occasional opportunities for available to the school, and reflection. In whateverdiscretionary funds might be for time, facilitation andfacilities for resources musthe explicitly made available planning and dialogue. provide of community basedorganizations and agencies that 13. Seek the involvement strategies for forging new other than academic servicesfor families. Following are school-linked service partnerships: of children and family needsand community resources.The a. Conduct an assessment pupil support services such as assessment of school resources mustencompass existing and others. student study teams, school socialworkers, the SB 65 Coordinator for the various ethnic and h. Analyze the availabilityand appropriateness of services linguistic groups present in theschool community. and service providers todiscuss how sup- c. Createforums for school staff, parents criteria for ports and resourcesneed to he created orreconfigured, and to develop identifying students and familieswho would benefit most fromservices. based organizations that servethe students' communitiesand d. Involve community appropriate otter critical insights about how toprovide culturally and linguistically services. administratorsin e. Engageclassroom teachersnot justpupil support staff and the development of theschool-linked services component. staff and service providers tolearn about each other's f. Provide time for s,-hool and discuss how they can skills, strengths, limitationsand underlying philosophies best work in partnership witheach other. school-linked efforts to reach out tofamilies are g. Make surethe various school and coordinated and build upon eachother. that it is integrated withpupil h.. Design the school-linkedservices component so decision making processes and support servicesand is linked to school restructuring forums. administrators and parents for i. Find ways to rewardservice providers. teachers. working collaboratively. evaluation systems with theinvolvement and participationof all 14. Develop site based professional parts of a schoolcommunity, particularly inthose schools where the the communities of thestudents. This dialogue must staff does not come from the very different explicitly fo.us upon concernsabout equity and take into account linguistically diverse educational goals that may hefound in a racially, culturally. community. Only through such a processcan accountabilitymechanisms, indicators planning must also take place Ind Izoak he annrorriate.andii\eful. The dialogue and numnianon anu blame. in an atmosphere of respect.tree trom retrinution,

57

. b.:cc:awe Summary 15. Develop data systems in partnership with the district as well as teachers,parent/care- givers and community voices. All schools must have access to data about theirschool program which provides the following basic minimalinformation subaggregated by race, language and gender: School completion rates Attendance races Expulsion/suspension rates Enrollment in A-F, Advanced Placement courses, and in GATE programs LEP program compliance Placement in remedial and skills classes Enrollment in elective courses Passage rates on high school competency and graduation tests Retention rates 16. Utilize multiple forms of student grouping through the school day, week and year, including forms of same-type groups and varying forms of cross-type groups. Schools must be flexible in their approaches to meeting the learning needs of individ- ual students. In keeping with a twin commitment to targeted instruction and to inte- gration, faculty must be trained to recognize when different groupings are appropri- ate for students, and how to teach effectively within varied groupings.

That Private Foundations and Corporate Foundations:

1. Consider multiple strategic demonstration projects in school restructuring related to issues of equity and diversity. For example, support is needed for restructuring schools that have expertise in bilingual programs and second language acquisition but are still struggling to build these into strongly integrated educational and social programs for students. Support the proliferation of restructuring schools committed to an agenda of equity for their diverse students. This can he accomplished by supporting networks and dis- semination, and the creation of strategic demonstration projects in this area. 3.Support programs aimed at leadership development for educators in restructuring schools so that they can become knowledgeable and committed to issues of diversity and equity. 4. Must not fund restructuring efforts in schools that are out of legal compliance with regard to serving their LEP students, unless addressing that major gap is a central component of their restructuring plan. Foundations must restrict their awards to those school sites which have created disaggregated data systems to reflect and evalu- ate the impact of their program on students on different races, gender and LEP status. S. Fund the non-profit sector's important activities that support and inform the central activities of restructuring schools. Schools rely on the non-profit sector for research, technical assistance, conferences, coaches, data collection and professional develop- ment. The outside "critical friend" role provided by non-profits provides new lenses for looking at schools, and objective facilitation. Particularly, support should be focused on those projects dealing with the issues of equity, inclusiveness and diversity.

58 The Unfinished Journey non-profit projects. 6.Urge and support morecollaboration and coordination across reforms at sites undergoingmultiple reforms, and use 7.Assess the connection among they build upon each funding to encourage sites to connecttheir reforms so that other and eliminate unnecessary orduplicative governance structures. other foundations and with stateagencies to coordi- 8.Strengthen collaboration with initiatives, so as to ensure thatthey are not working at cross purpos- nate funding of for diverse es, and to assesshow well their combinedefforts are addressing equity students. based organizations to beinvolved in school-linked 9.Increase support for community in the collaborative services efforts. This includestime and training to participate process. designed to build the capacityof parents and community 10. Increase support for efforts level decision mak- residents and adoacy groups to participatein school and district restructuring. ing processes, to have a voice inshaping and monitoring school

That Universities, Schools ofEducation, Credential ling andCertification Programs, and ProfessionalDevelopment Programs: Prepare educators for the newroles and skills that restructuringdemands. These 1. mediation, management, as well asthe core pedago- include facilitation, planning, curriculum of teacher gies for teaching and learning in adiverse society. The core education programs must teach skillsand approaches for workingwith parents and of second language families cross-culturally andcross-lingually; solid knowledge acquisition issues and the implicationsof bilingualism for educational programs; understanding how to collect and useinput and outcome data toinform teaching understanding school budget processes:working collabo- and educational planning; background as a ratively; and understanding one's owncultural, ethnic and linguistic factor in one's teaching. Cross-Cultural, Language andAcademic Development Offer the Bilingual and teachers, and. (CLAD/BCLAD) authorizations. Giventhe critical shortage of trained skills or expertise the devastating impact of ateaching force without the knowledge, imperative to prepare new to work with languageand cultural minority students, it is and continuing teachers in the areasof bilingual and cross-culturalinstruction. education for all Engage in and support efforts todevelop interdisciplinary preservice 3. Such efforts must I) ensure that corecurricu- teachers and human service providers. working with lum for all disciplines include strategiesfor working across disciplines, strengths; 2) culturally and linguistically diversepopulations, and building on family provide opportunities for students todo their practice in interdisciplinary programs; and 3) offer faculty opportunities toconduct cross-disciplinaryresearch. These efforts may be modeled upon theinnovative strategies currentlybeing piloted by California. California State University, Fullertonand the University of Southern

That School Reform and SchoolRestructuring Projects: in consideration of the research oneducation for I.Review their models and processes ith one linguistic, cultural and racial minoritystudents. l'hey must collaborate %% disseminate another in demonstration projectefforts to encourage, document and models that address these students'needs.

Executive Summary 59 2.Immerse staff in the literature on effective bilingual programs and secondlanguage acquisition, and on the role of culture,race and language in children's schooling experiences, and campaignto bring that body of expertiseto restructuring schools. 3. Convene their coaches and leadersto discuss how to ground their efforts in the research base on working with specific ethnic. cultural, racial, andlinguistic minori- ty communities. They must provide facilitationand leadership on issues of diversity and equity.

That Educational AdvocacyOrganizations and Professional Associations Concerned withDiversity and Equity: 1.Place a high priority on dialogue and dissemination of their researchto restructuring schools and to the larger"mainstream" policyarena that shapes restructuring. These groups can strongly inform andpromote a focus on meeting the needs of specific language, culturalor ethnic racial minoritygroups in the schools.

That Civil Rights Organizations and CommunityAdvocacy Groups: 1.Develop their capacity to address access and equity ineducation so as to vigilantly monitor these issues, and to be a resource to restructuringschools and districts that are grappling to design responsive andappropriate programs.

That Communitiesas a Whole:

1. Mount an organized defense to reaffirm the importance ofa free, universal public education system for all students. Forums and othermechanisms must be used seminate information that to dis- can counter the current tendenciesto ignore, overlook or resist notions ofaccess, equiry and free universal schooling. he made by public Great contributionscan education foundations, schoolvolunteer organizations and civic groups in the fight for local a public investment in education andan understanding of the future stakes in thatinvestment.

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BEST COPY AVAILABLE 61.i4 Executive Summary

alifomia has a responsibilitylegally, morally and in its own future self-interestto provide an opportunity for education to all children, not just the "easy" ones who come to school with pre-school polish, involved parents and the kind of high self- esteem that makes achievement routine. But the State's record in meeting that responsibility for one-fifth of the five million students in today's classrooms is spotty at best.

Under federal law and state policy, the one million students who do not speak English fluently are supposed to be taught English as efficiently and effectively as possible. In addition, they are supposed to receive any necessary services to allow them to progress academically in other subjects, just as their English- speaking peers do. Insteaa, one-quarter of them receive no special services whatsoevernot even instruction in the English language. The other three-quarters are often caught in a tug-of-war between advocates of different educational theories.

The situation was summed up cogentlyinarecent newspaper editorial:

For the better part of two decades, bilingual education programs -- in California as elsewherehave been as much a problem as a solution for the education of Learners A Chance toSucceed: English speaking little or no children who cometo school English. urgently But what hadbegun as awell-intended and teaching appropriateto necessaryeffort to provide children who hadtoo oftenbeen the needs of machine that neglected -- calcifiedinto a self-serving children it was paid less and lessattention to the real serve. Frequentlyit became an supposed to with the ideologically basea programmore concerned and intrinsic virtues ofbilingualism andbiculturalism children indefinitelyin those programs with keeping the than with itssupposed mission:getting them into and efficiently English-speakingmainstream as quickly as possible. often been precisely Not surprisingly,the results have opposite to what hadbeen intendedlocking students And into separate programsfor years on end. sometimes they run tothe absurd:Native English speakers who, becausethey tested poorlyand had Hispanic names, wereplaced in bilingualclasses conducted largely inSpanish; children fromChinese assigned to the and Russianfamilies who were program butwho, since no classesin their language bilingual class.' were available,ended up in a Spanish English The effectivenessof California'sefforts to teach by the low numberof students who are learnerscan be gauged the reclassified as fluentEnglish speakers, thehigh dropout rates, applications and thedissatisfaction oftenexpressed lack of college system that by parents, teachers andadministrators. All point to a has failed to meetthe needs of theseat-risk students. the education of An examinationof the facts surrounding shows that success comes,not English learners bythe Commission but whenever dedicated when some particularmethod is employed, individuals within tnescnoot system areabie to provide the that encourageslearning and achievement. supportive atmosphere educational system that That this so rarely occursstems from an on the childrenthemselves, rather than has refused to concentrate study, the on ideologyand bureaucracy. As a result of its shared by: Commission believesthe blame can be

63 6 Executive Summary School districts that, in the absence of financial rewards for positive student outcomes, have failed to put together creative and innovative programs that meet local needs.

The State Department of Education, which has failedto focus its energies and expertise on ensuringoutcome accountability by aevising statewide assessment tools and performance stanaards.Instead, it has pursued a single- minded educational strategy ill-suited for the challengeand magnitude of linguistic aiversity in California.

Teachers who have not adapted to changing conditions and who have failed to employ teaching strategiesthat have proven effective in building self-esteem, achievement and language proficiency.

Those who have placed the interests of thechildren at the center of their convictions rather than protecting turf or serving special interests know the present system must berevamped. Towards that goal, the Little Hoover Commissionconducted a study of the education of English learnersin California and has made the following findings andrecommendations:

,14,11,41,17,1{A, .Y,I,KH04:=INtAWZAtMret,..19,11.,..reAttat" inding 1: Schools are not meeting .y3 h.rrr s')s., -; the pkimary goal of education for . 'sr/ " immigrant students:helping the ."/ flirt childrPr: to become fluent in English quickly.

The education system is expected _come to take in young, untutored children and 2yearslaterturnthemoutas knowledgeableandskillfulbudding adults. While this mission ischallenging enoughwithmainstreamstudents, schools find it even more difficultto attain in the face of ever- increasing numbers of children who donot speak English fluently. The schools' first and primary goalwith this population isto teach them English effectively and efficiently.Unfortunately, by almost any measure -- fluency transition rates, dropoutstatistics, college eligibility and community satisfaction-schools are failing to meet that goal. At least onereason is the failure of schools to dedicate adequate resources to serving the needsof English learners.

64 A (-mance to aucceea:zap= Learners Recommendation 1: The Governor andthe Legislature should enact legislation torevise the statefundingmechanisms for educating Englishlearners so that schools have anincentive to help students attain Englishproficiency rapidly.

Whatever reform is adoptedby the State shouldbe targeted schools and maximizing at encouragingquality performance by the incentives for theschools to devote theneeded resources to meeting the needs ofEnglish learners. inding 2: The StateDepartment ofEducation'semphasis on native-language instruction is inappropriate, unwarranted, notfeasible and counterproductive.

TheStateDepartmentof Educationfavors native-language instruction as the bestmethod for N. educating students who do notspeak f 7'; 3: English. This bias permeatesall of the Department's policies andprocedures, effectively punishing schoolsthat wish to pursue other options. The Department'ssupportfornative- language instruction is:

Inappropriate since federal law, cnurtcases and statepolicy all recognize that variousmethods of instruction maybe effective in helping Englishlearners become fluent.

Unwarranted since a multiplicityof academic studies have yielded conflicting resultsabout a single, "best"method of teaching non - English-fluent students. The oneconclusion that can be drawnfrom studiesisthat a variety of approaches work depending on implementation, demographics and resources.

Not feasible since aboutone-fourth of California's non- English-fluent students speak alanguage other than Spanish and there are relativelyfew bilingual teachers a key

65 /3 Executive Summary

element to native-language instructionfor languages other than Spanish. In fact, teacher credentialing proceduresare not available for the majority of languages spoken in California schools.

Counterproductive since schools are requiredto expend energy and resources documenting thesuccess of other options or providing plans on how native-languageinstruction can be achieved in the future. The Department'senergy also is absorbed in enforcing native-languageinstruction rather than fulfilling its two primary functions ofoverseeing school districts: ensuring that studentsare progressing academically and documenting that earmarked fundsare being spent to supplement the education of English learners.

Recommendation 2: The Governor and the Legislature should enact legislationthat establishes a state framework for local control of educational methods for non-English-fluent students.

To be effective, the frameworkwould replicate the three standards established by the federalcourts to determine if a school district is making an acceptableprogram choice:

* The emoted methodmust be based on a recognized academic theory.

The schoo. district must dedicatea reasonable amount of resources to make the chosen method viable.

Students must make academicprogress and move toward English proficiency.

Only if a school district failedto satisfy the three criteria would the State step in witha more directive approach to meeting the needs of English learners.

Recommendation 3: The Governor and theLegislature should enact legislationto direct the State Department of Educationto focusonholdingschools accountable for student achievement ratherthanon directingthe

66 9 A Chance to Succeed:English Learners implementation of a single academic approach.

The Department needs to establishimmediately a statewide protocol for academic testing forstudents of all languages.To accomplish this, the Departmentshould devote its considerable energies to identifying and/or creating,if necessary, adequate assessment tools fornon-English-fluent students. Once the protocolisin place, the Department shouldmonitor student progress annually and giveassistance to districts that are unable to demonstrate student achievement.

Recommendation 4: The Governor and the Legislature should direct the Department of Educationtoproduce areport examining funding for English learner education and documenting the supplementaluseofearmarked funds.

Understanding the role and magnitude of the presentfunding system is critical for ensuring accountability.Districts should be spending money allocated for English learners in a waythat supplements the general funding received for those samestudents. In addition, it is futile to argue that more fundingis needed -- as the Department, its consultants and advocateshave maintained -- without being able to provide policy makers with aclear picture of what is now being spent.

inding 3: Thereisa severe shortage of teachers with the expertise in language acquisition, the training in cultural diversity and the Te1114-- skills to enhance the classroom learning environment that are vital for meeting student needs in today's schools.

Ali students need to be stimulated to think, encouraged to question, and inspired to express their ideas verbally

::::::::::::::::::: . and in writing.The needs of English learners are no less in these important areas -- yetthe supply of teachers who understand language acquisitiontheories, cultural influences on learning styles and specializedtechniques to break

67 0 Executive Summary through language barriersisfar outstripped bythe demand represented by 1 millionstudents whoare not fluent in English. The state entities responsiblefor teacher training with new have responded programs that are makingprogress on solving this problem. Because a diversity oflanguage groups isscattered throughout the State,a key element in anysolution is to that all teachers have ensure at least a workingknowledge of howto address the needs ofEnglish learners.

Recommendation F The Governorand the Legislature should enacta resolution directing the State Departmentof Education and the Commissionon Teacher Credentialing to focuson improving teaching techniquesrather than on creating a cadre ofbilingual teachers.

Because sooneror later most of the students in their class State's teachers willfind who speakno or limited English,it is important that allteachers have trainingin language theory, cultural diversity acquisition and techniquesthat enhance learning ability. The Departmentand the Commission Credentialing should work on Teacher together toensure that all teachershave the tools thatare needed to meet the challenge oflanguage diversity in California'sschools.

Theefforts neededandgoalsenvisionedby these recommendationsare not so very extraordinary. Advocateshave argued that Englishlearners need a supportive learningenvironment that will enhanceself-esteem, diversity, encouraae respect forcultural stimulatecomplexthinkingskillsand knowledgeable, productive produce members of society.The Commission believes, however, thatthe same prescription for all the State's for success isneeded children. And thestrategies for puttingsuch a program together aremore similar than dissimilar, language sooKen regardless of the when a child entersthe classroom door.

The clear need is forCalifornians-- whether they are parents, school employees orstate bureaucrats-- tcfocus on educational outcomes. Once society'sgoals for its children system of accountability are clear and a is in place, methodsbest suited to varying local conditions willemerge. The Commission result will be believes the end a brighter future for all ofCalifornia's children.

68 REFORMOFCATEGORICAL EDUCATION PROGRAMS:

PRINCIPLES AND RECOMMENDATIONS

Legislative Analyst's Office April 1993 69 Executive Summary

Categorical education programs provide $5.1 billion of GeneralFund support to schools and other local education agencies (LEAs) in 1992-93. This funding is funneled throughat least 57 individual pro- gramsprograms that support a wide range of services, including services for students with disabilities, home-to-school transportation,. vocational education, staff and curriculumdevelopment, and coordination with local health and social servicesagencies.

Requirements associated with the 57 individualprograms limit the amount of flexibility LEAs have to designprograms that meet the specific needs of local students. For example, almosthalf of the categorical programs require LEAs to implementprograms based on a specific program model.

CALIFORNIA'S EXPERIENCE WITH CATEGORICALPROGRAMS

For this report, we talked tomany program experts and reviewed available program evaluations and academicassessments of the effectiveness of categoricalprogram services. From this review, we reached the following conclusions:

Categorical programs doa relatively good job at allocating resources to specific programs. Programs ensure that fundsare spent on "eligible" activities usually through a combination ofprocesses, requirements, and program rules.

Despite the extensive data collected from LEAsand the many ;grogram evaluations conducted, educators knowvery little about how well many programs work. Many evaluationsare not evalua- tions as such, but operational reviews. Manyprograms cannot be evaluated because theprogram is so narrow in its focus that there is no way to accuratelymeasure its impact on student achievement. that are available reveal,at best, a mixed Executive Summary The few good evaluations record of success.

and Categorical programs encourageLEAs to focus on program perfor- process rulesrather than the impact ofservices on student mance and otheroutcomes. Existingaccountability mechanisms emphasize compliance withrules governing howfunds are spent and the program modelused to deliver services.Few programs local routinely collect good outcomedata. This emphasis encourages administrators to design programsin a way that ensurescompliance, rather than in a manner thatmaximizes the impact ofservices on student performance. that is Program funding formulas canreward schools for behavior not in the best interestsof students. Programsthat determine LEA funding allocations based onthe number of "eligible"students These reward schools for identifyingstudents who need services. programs alsopenalize schools that are able tosuccessfully address This type of student needs by reducingfunding to these schools. funding structure represents one wayin which fiscal incentives may conflict with the interests ofstudents.

The current syster, I ofcategorical programs promotes afragmenta- tion of services at the schoolsite. This fragmentationmanifests itself separately from in schools administeringeach categorical program other programs ratherthan in a coordinated orintegrated fashion. responsibility for This lack of coordinationleads to a blurring of improving student achievementand reduces theeffectiveness of program services.

Directly funding agenciesother than school districts canfunher fragment services and programauthority. Directly funding services through Special Education LocalPlan Areas (SELPAs) orRegional school:, to act Occupational Centers/Programs(ROC /Ps) encourages education and job prepared- as if addressingthe problems of special classroom teacher. In the case ness is notthe job of each school and by the fact that schools of ROC/Ps, thisproblem is compounded Executive Summary may have very little formal influence over thetypes of services provided by ROC/Ps. In addition, theseseparate organizational structures develop their own constituencies andpriorities, which creates a resistance to meeting the changingneeds of high school students and school districts.

PRINCIPLES OF CATEGORICALPROGRAM REFORM

Based on our findings,we identified five principles for categorical program reform.

Maximize Local Control WheneverPossible. By increasing local flexibility over program design, schoolswould have more latitude to use funds to meet the needs of their students. Theappropriate level of control (state, district, school site)depends on the nature of each program. Research emphasizing the role of individualschools in reform efforts suggests that fundsshould be made available to schools, rather than districtsor other LEAs, whenever practicable.

Clearly Identify Program Goals. Goalsand outcome measurescan greatly influence the operation of localprograms. The Legislature needs to focus on holding schools accountablethrough performance measures and leave decision makingover the details of program design to schools and districts.

Reward Schools for Good Performance.Existing negative fiscal incentives need to be replaced withpositive incentives. Research suggests that creating incentives for integration ofspecial services into the regular classroom couldlead to increases in student achievement. Eliminating the classificationof "eligible" students for funding purposes would improveprogram incentives for LEAs.

Consolidate and Simplify Funding Structures.The Legislature should reduce program fragmentation byconsolidating programs to the extent possible. Consolidation ofprograms, however, should never

72 iv5 clear goals and perfor- Executive Summary proceed beyond the poin: where there are mance measures that describethe intent of the program.Further simplifying the school finance systemwould help schools focus on policy and practice rather than funding.

Foster an Education Poi:cu EnvironmentThat Learns From Its Experiences. The Legislature and LEAs need tolearn how services, learningenvironments, andsocialconditionsaffectstudent achievement, boll: in the iong and short term.This means finding outcome measure- that supplyfeedback to administrators and policymakers abou: program effectiveness.Evaluation should be used to determine the effe:t of services andvalidate the accuracy of performance measures.

RECOMMENDATIONS

Based on these reform principles, we developed sevenrecommenda- tions that we believe will substantially improvethe effectiveness of categorical programs without altering theirbasic goals. We view, our recommendations as the first step in a long process,however. As educators learn more about the impact ofcategorical services and how to measure that impact, manyrefinements ir.individual programs and in the larger systemof categorical programs will naturally follow.

A New School Improvement Block Grant.We recommend creation of a school improvement biock grant byconsolidating 13 separate categorical program:, into one grant. This grantwould nrovide the support tyr scho:1-ide improvementactivitiesimprovements affecting all students at the school.

A School Incentives AwardProgram. We recommend creation of a new School IncentivesAward Program to provide financial awards to schools thatperform well. This program would recognize the

73 Executive Summary achievements of the state's high-achievingor quickly improving schools.

A High School "At-Risk" Block Grant.We recommend consolidation of five existingprograms currently serving students at risk of dropping out of high school intoone block grant for that purpose. This would free districtsto use state funding to support whichever service delivery model most effectivelyreduces the number of students dropping out of school andhelps those who have returned to school succeed.

A Program of Evaluation. Werecommend establishment ofa program to evaluate program models ina number of essential areas of California's K-12 educationsystem. This would begin the process of systematically evaluatingthe short- and long-term impacts of categorical programs. These studies shouldbe used primarily to gain information on the effectiveness ofdifferent types of local interven- tions rather than gauge thesuccess of state "programs."

Revamp Special Education Funding. Werecommend revamping the funding system for special educationin order to create positive incentives for schools to integrate specialeducation students into the mainstream classroom. This would beaccomplished primarily by simplifying the existing fundingstructure, consolidating funding and program decisions at the district level, creatingincentives for providing preventive servicesto nonspecial education students, and eliminating state restrictionsover how services should be provided.

A New Career Training Block Grant. Werecommend reformulating ROC/P funding into a vocational educationblock grant in order to encourage the integration of academic and vocational educationand help high school graduates obtain theskills needed to find well- paying jobs.

Review the State Strategy for Educationimprovement. We recom- mend reviewing the role of thestate with an eye toward modifying

74 ut procedures to conformwith our Executive Summary legislative and administrative recommendations to improve statecategorical programs. Dutiesand activities of the State Departmentof Education should bereviewed to ensure that its role andresponsibilities reenforce theemphasis on focus performance and outcome:,.. Similarly,the Legislature should its oversight function on setting stateeducational policy andholding local districts accountable torresults. CALIFORNIA'S JOBS ANDFUTURE

... .it :f.1..

COUNCIL ON CALIFORNIA COMPETITIVENESS

April 23, 1992

76 (-33 5. EDUCATION AND TRAINING 21111111111111V 411011111111111111.

Getting a lob is a necessity. but it is not a right. A workermust be prepared for the workplace. Each person has the responsibility to acquire the knowledge and skills he or she will need in life.In turn. California must provide a public education system that will offer to all students equally the opportunity to fulfill their highest potential. to get good. high-skill jobs. and to becometaxpayers. Today we spend over $28.5 billion on public education. but with dismal results.In a 1990 survey. 77 percent of California business leaders stated that the education level of job applicants is a major problem. Among the largest firms in California. 63percent report that new applicants for entry-level positions lack a satisfactory education. Overall. only an estimated 46 percent of new job applicants demonstrate adequate basic math and verbal skills on written examinations. Pacific Bellreports that six out of ten entry-level job applicants flunk examinations gearedto seventh-grade knowledge levels. The company estimates that it spendsover S14 million per year on employee training to provide remedial education. While some companiesmay have no choice but to try to cure this problem themselves,many other companies can just go elsewhere in search of a better workforce and they do.

The challenge for California is not aneasy one. California regularly absorbs nearly 45 percent of all documented immigrantsto the United States. and. presumably, an even higher percentage of the nation's undocumented immigrants. Asa result. California's primary and secondary school enrollment isnow approaching six million. and is expected to continue increasing ata rate of 200,000 pupils per year a number equal to the total enrollment in the state of Idaho. Bythe year 2000. one in every eight children in the United States will attend California'spublic schools.

Today approximately one hundred languagesare spoken in California schools. One in every seven pupils comes to school withno knowledge of English.Of new students entering our schools during the last fiveyears, 92 percent are ethnic and racial minorities and 65 percent are "limiter?- English- proficient."

Our schools have become one of history'sgreat social experiments and the experiment is not a success. California is 42nd in thenation in its percentage of high school students who graduate.In 1939, over 33 percent of all California students dropped out or were held back in high school.-The dropout figure iseven higher for some minority youngsters. Projecting thisrate over the next ten years will add 1.4 million dropouts to our population.Many of these young people will become public charges. increased schoolbudgets for lack of trying.We nave Our failure todate is not projects andinnovations have introduced ahost of demonstration markedly. We people havestudied theproblems. schools.Thoughtful and qualified where such as magnet such as theprimary schoolsin Inglewood We have evenhad some successes. advanced theliteracy andoverall teachers haveenergetically be principals and students. But itis not enough.and it will not performance oftheir inner-city unless more population andshrinking jobmarket enough for thegrowing school 1.3 Uitai,l1r.0.1,101 more money perchild. but wedo need more: We do notnecessarily need more results. more careerchoices, more moreaccountability for training strategic planning, total schooling.and morevocational intelligent useof resources. more directed towardhigh-skill jobs.

7 8 Educauon and Training A. More Strategic Planning

Problem:

California's public education system at the primary and secondary levelsis administered and directed by the state Department of Education. the state Board c,i Education. the Superintendent of Public instruction. 55 county offices of education, and 1.013 local school d__:ricts. Moreover, there are duplications among primary and secondary education authorities, community college administrators and other state-supported education agencies.This welter of overlapping and often warring administrators could not be expected to generate a comprehensive strategic plan for our schools. and it has not done so. The first reauirement for holding the system accountable for its work is to have a plan against which its achievements can be measured.

Actions:

Adopt as law the basic principles which the state wishes to apply in restructuring its education system.These principles must include, among others, the concepts of accountability, freedom of choice. and job-skill education that are detailed below. Before July 1, 1992. the governor and the legislature should jointly appoint an Advisory Council on Education and Training, made up of qualified people from the worlds of education. business. labor. and the professions, to advise on the nature of such principles. Once the principles are adopted. the Advisory Council should create and issue annually five- and ten-year rolling plans setting forth the educational and job training objectives of California. consistent with the basic principles. The Advisory Council should recommend restructuring the current system to meet the principles and objectives, and offer legislative proposals as necessary. The Advisory Council should regularly measure the success of California schools in meeting these objectives, and report to the public.

The Advisory Council. in conjunction with each major state education agency, shall meet with the governor monthly and report publicly on the state of their progress with respect to achieving the goals of this report and of the five- and ten-year plans.

As to the actions called for in this report which can be accomplished by executive action. the administration should take all such actions immediately. There is no need to delay such reforms until the Advisory

7 9 9 2 Education and Training education problems are Council begins its work.The solutions to these needed urgently.

03 Education and Training 80 B. More Accountability

Problem:

The system is not accountable for its results financially or educationally. The state provides almost two-thirds of the budget of each school district, but has little or no control over spending. The biggest expenditure. the collective bargaining agreement with the teachers. is negotiated by each district separately, within only the broadest state guidelines. Tnis disconnection between the entity paying the bill and the entity committing to the amount of the bill is a classic case of now costs get out of control.

Actions:

Implement the recommendations of the Little Hoover Commission of June 1991. concerning the tightening of accounting controlson school districts.

Either implement statewide collective bargainingon behalf of school districts. as recommended by the Little Hoover Commission.or give school districts the right to raise discretionary funds by local ballot initiatives. Such local funds would be thesource of money to which districts would have to turn for the funds they commit topay in setting labor costs. One way or the other, make the party negotiating the labor cost be the party responsible for raising the funds.

Problem:

Educationally, the system exacts absolutely no penalty forpoor performance. There is periodic student testing of basic skills under the California Assessment Program at grades 4, 5, 8, and 10, but there are no consequences for the results, bad or good. The measurements for funding and resources reiate onlyto inputs average daily attendance figures. numbers of buildings, numbers of teachers not to outputs. Teachers are not paid on the basis of accomplishments. and schoolsare not funded on that basis.The result is the same result as in every other place where accomplishment is ignored not enough is accomplished.

4 81 Education and Training Action: Enhance the use of the California AssessmentProgram examinations and apply them to measure individual studentperfizmance as well as to publicize and. in extreme cases.apply sanctions toschools where statewide norms in basic skills are not achieved.Create a bonus pool from existing funding to reward schoolsthat show improvements in test results as well as inwrovements in otherimportant issues such asschool violence and drug use. By focusing onimprovements. the bonuspool willnotbenefitjusttheschoolswiththefewestproblems. Simultaneously, ease the restrictive burdenof the excessively detailed constraints on curricula and content ofeducation in conjunction with the freedom of school choicediscussed below. Encouraging varietyin school programs and measuring the resultsby testing will allow parents to shop for the bestpublic schools and force the schools towork for their state funding by improving theeducation they provide.

Education and Training 8 2 ;') C. More Choice

Problem:

Today our society has two tiers of consumers of educational services:the affluent. who can choose amoncr. schools. public or pnvate, for their children'seducation: and the rest of us. who must take what the state schools monopolyoffers. This is unfair. and its natural result is an unresponsive public system.Teachers and principals adhere to a modei state curriculum. and do not show the fullinitiative and creativity their experience and training would allow them in establishingunique educational approaches and products.Our professionals sink into distracted boredom: our students attend (or drop out of) assigned schools as though serving sentences.The market mechanism that drives our whole society is left at theschoolhouse door.

Actions: Implement freedom of school choice for parents and children throughout each public school district Across the nation there is a rising flood of support for allowing parents and children to choose the school they will attend.It has been broadly tried, with great success. in such diverse places as Minneapolis, Minnesota. and East Harlem. New York. In California. the proliferating magnet schools are a strong step in this direction. We must go much further.

Empov. principals, teachers, and parents to come together to set their own curricula and form their own "schoolswithin schools" in existing school facilities. These schools must be free of most government regulations that restrict their ability to use the best ways and schedules for teaching, the best curricula, and the best reward structures.

Control the quality of the work of these schools by the use of the California Assessment Program tests. Publish and use these test results and surveys of school violence and drug use to help parents and children choose schools. Parents should not have to send their children to failing schools. Fund these schools as is now done on the basis of their attendance levels, and out of the bonus pool, discussed above, on the basis of measured performance improvements.

83 Providetransportationassistanceand parentinformation programs to assure that real choices areavailable for all children and parents.

Implement safeguards. such as some admissions bylottery. to be sure diversity standards are met amongthe student body.

Wniie impiernentlr.2 iiistrict mimic school choice. asdiscussed above. continue assessment and demonstrationprojects of broader market strategies to expand choicesfor children and parents, such as interdistrict publicschool choice. and voucner programs. which would includeprivate schools.

84 Education and Training 7 D. More Intelligent Use of Resources rrobiem:

School population growth is spiraling. just to stay where we are today. California would need to build 20 classroomsa clay. se,...en days a week. r.very week of the year for the next decade.This cost alone would be $30 billion.If California is to improve its facilities situation. it will have to accelerate that pace and make better use of existing facilities. Because of the state constitutional requirement of a two- thirds vote for school bonds, a minority of the public has been able to veto school construction. Over $5 billion of badly needed school construction projects are now stalled m the state Allocation Board for lack of funding.Nevertheless. only $1.9 billion in bond authority will be on the June 1992 ballot. And funding is not the only hurdle. Any school construction proposal must cross a regulatory swamp. At the state level alone. approvals are needed from the Office of Local Assistance. the Office of the State Architect. the Department of Education. and the state Fire Marshal. The approval of the Office of the State Architect typically takesone year after funding is approved and allocated. The wholesaga, from identifying the need to opening the school doors. normally consumes six years. We must find better and faster ways to build more schools. and to get more use out of those we already have.

Actions:

Amend the state constitution to require only a majority vote to authorize school bonds applicable to primary and secondary schoolsas well as community colleges.

Implement the recommendations of this Council on Regulatory Streamlining,particularlywithregardtoschoolfundingand construction agencies.

Employ year-roundschoolinginallovercrowdeddistricts,as Los Angeles has done. to maximize use of existing staff and facilities. Eliminating the long summer recess is good for the education ofour children and lessens the social problems arising from enforced idleness.

Mobilize California's telecommurications and computer industries to apply the latest technologies to teaching in California schools. We should lead the world in interactive computer applications. Thiscan stretch our faculty budget toward giving pupils the benefits of a small-

(- rs, ...I T... L.4... of reducing classsize to class environmentwithout all the expense optimum levels. needs must be metby Much of our hightechnology eauipment with an inciustrv. Industrymust act innovationsfrom between an educated understanding of thedirect connection Establish voluntary workforce anda-..ealthyeconomy. scnoois andbusinesses todevelop pilot partnerships between We must be thenation's projects anddemonstration programs. technological leader.

Li 9 86 ^."..1.....:oaen Tow:ft:in flt E. More Total Schooling

Problem:

When we have theclassrooms and teachers.we make too little use of them. Our 180-day schoolyear is among the shortest in thewestern world. Our school day is short. When we have thepupils in ourgrasp. we should take the time to teach them.

We do not focusour instruction where it counts. Theyoungest children are the most educable in basic skills. Yettoo many children do not enter thesystem until age six or seven. EnOish comprehensionand literacy are the minimum admission tickets for a good job in thisstate. Also, literacy and comprehension, ingeneral. are fundamental components of self-esteem.But in California. inevery average class of thirty high school sophomores,four pupils will not be ableto speak English fluently. Our system is denying these young people an equal chance for the high-skilljobs. Actions:

Extend the minimum schoolyear to 200 days. This will still trail Japan (243 days) and Germany(226 to 240 days), but it will bea strong step forward.

Extend the minimum schoolday by one hour. This will furtherenhance education while dealing inpart with the problems arising from "latchkey kids."

Provide the opportunity for allchildren to have at leasttwo years of pre-kindergarten schooling, withassociated health and social services. State funds should supplementHead Start and other federalfunds. Repeatedly, this has been shownto be the most valuable application of funds toward improving children'sperformance. Further, fora parent receiving welfare assistance. havinga young child in school may give him or her the best chanceto obtain gainful employment.

Require that all pupils will becapable of reading and writing English by the end of the third grade. Testto verify this result. (For students who enter school lateor who do not have continuous attendance,all schools must provide instructionto enable these students to be ableto be functional in English in the shortestpossible time.)If necessary. eliminate or restructure all otherprograms in the first three gradesto

87 0 the but obtain this result.For many children, obtain this result. for above. willmake this opportunity for two yearsof preschool. called We recognizethe equaldignity and third-grade goal achievable. languages. but we wantall important contributionsof all cultures and participate with equalopportunity in thejob market our children to students will society. Once cToundedin English, the and in the larger and subjects be best able tobenefit from the varietyof other programs available in schoolcommencing in the fourthgrade.

Education and Training 88 F. More Career Training Directed Toward High-Skill Jobs

Problem:

Our high school studentsare offered a ze:...trailv standardized education. There is not enough focus on work skills for those not continuing to college, and what prozrams we have are not matched to job availability.In the current business climate, this problem is compounded by the rapid disappearance of high- paying industrial jobs for those with only a high school diploma. Withoutsome focused training or post-secondary education. ayoung person's future may only offer lower- paying service jobs.

Actions:

Test all tenth-grade students to allow themto consider a focused career program in the eleventh and twelfth grades. Unlike some European countries. California should make participation in suchprograms purely voluntary.

High schools, in partnership with business and community colleges. must develop high - quality eleventh- and twelfth -grade careerprograms and provide apprenticeships and other clear paths fromschool to work for those who choose thecareer program. Industry must take an active role in establishing the curricula and testing standards. and itmust help finance and provide specialized facilities and facultyassistance. Industry must continually identify theareas of the economy for which trained workers are really needed. The Graphic ArtsAcademy at Pasadena High School, developed in conjunctionwith the Printing Industry Association, is a fine example of sucha program.

The high school diploma should beaccompanied by appropriate certificates of qualification for those who havetaken the career option and passed the industry-standard testing.Only as an industry- generated standard will these certificates become ticketsto jobs.

1 0

89 Education and Training Problem: education andadult education The state invests enormousfunds in post-secondary job training programsalone cost over$3 billion and training.Career education and and wasteful.Job- the system isuncoordinated. duplicative, annually. However. fragmentation. with abewildering array training programsparticularly suffer from (see the followingtable) that areundirected, over- of 23 separate programs levels. bureaucratized. andaimed at achievingonly minimum skill

Actions: and Training shouldreport tothe The AdvisoryCour.cil on Education 1992. with rules forcareer-training programs. governorby October 31. cost- agencies to makeeducation and training more departments, and These rules should effective in achievingeconomic development. training and jobplacement programsin the state coordinate the existing development. We and provide direction tosupport thestate's economic must eliminateduplication. State Council onVocational Educationand The existing Committee California OccupationalInformation Coordinating totaling about $600,000,should be mergedinto and their budgets, proliferation ofadvisory the AdvisoryCouncil to avoid a councils. information centers at numerouslocations around the Establish public that each worker state to provideassessment andreferral services so can beguided into theappropriate career program. of over Employment TrainingPanel (with its budget The existing Advisory Council onEducation $60 million) mustwork closely with the funding to assist indeveloping the career and Training,and provide directed towardhigh-skill jobs. programs withindustry standards

1 ki 3 90 Education and Training PROGRAMS BY TARGET GROUP

Program Client Groups Targeted

.00 Dislocated Public Disabood °Icor Low Foacry Women Yotr,r, Aid Vets Wormers WoncersIncome°flint:fors

Postseconaary Voc. Education

Seconoary Voc. Education, ROC/Ps

Adult Education

Job Training Partnership Act

GAIN

Vocational Rehabilitation

Jot Service

Employment Training Panel Program

CA. Conservation Corps

Refugee Assistance Services

Inmate Employment

Vocational Education for inmates

Supported Employment

Special Veterans Services

Food Stamp Employment & Training

Wagner-Payser 10% Protects

Service Center Program

Senior Community Employment Service

Ward Employment

Apprenticeship Training

Job Agent Program

California IMPACT

Career Opportunity Development

TOTALS 5 9 12 3 9 4 7

SOURCE: Employment Development Depamnent

1 91 Education and Training Problem: The lack of accepted training standards thatapply across an industry is a fundamental problem in our system to prepare peoplefor the workplace. Unlike our European and Asian competitors. which havewidely accepted national training standards for most industries. California has suchstandards for only a few industries. and even these can vary from onelocation to the next. Tnere is little consistency from one company or training agency tothe next in what workers are expected to be able to perform. In many cases there are noperformance standards at all. This lack of explicit expectations makes it impossiblefor students to plan their education. not knowing what courses areessentii or what sidlis future jobs willrequire. and it makes it impossible for employers to rely onthe competence of graduatesfrom such programs. Further, there is ashift in the nature of work in California.Low- skill manufacturing jobs are leaving, and manyof them will never return.Career training currently is too often directedtoward yesterday's jobs. not the high-skill positions of tomorrow. Without knowing aprogram's record in placing its graduates, a prospective student cannot seeif it is a path to success.

Actions: The Advisory Council on Education andTraining must propose concrete action plans byOctober 31. 1992, for setting clear industry- wide standardsfortheskillsneeded inhigh-skill,high-wage organizations. Industry skill standards. pegged toworld-class levels. will determine the certification of newworkers, the retraining and conversion of displaced workers. and theupgrading of the skill levels of the existing workforce. Such standardswill transform education and training.

Establish regional joint committees containingindustry and labor representatives as well as people from thelocal schools and community colleges to formulate curricula.assessments. and credentials based on the newhigh-skill standards. State educators should suppon business andlabor to implement the action plans for setting industry-specifichigh-skill standards.

As a first priority. the AdvisoryCouncil on Education and Training must set action plans todevelop career-training standards in eleven critical industries: aerospace,biotechnology, computer-based applications. energy,environmental sciences. financialservices,health.internationaltrade,printing, telecommunications. and transportation.

t.. Education and Training 92 All career training programs must be evaluated annually, with particular emphasis on the percer.tages of graduates successfully placed in industry and their wage levels. Such results should be published. so prospective students can choose among programs. We should not be training our workers for jobs that are not there.

1:

93 Education and Training fr

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Ire, r I OO ' No Room for Johnny: A New Approach to the School Facilities Crisis, Little Hoover Commission, June 1992.

Recommendations:

1. The Governor and the Legislature should modify the Leroy F. Greene State School Building Lease Purchase program to return the responsibility of funding new school facilities to the locals school districts, thereby limiting the State's financial role to ensuring equity and providing a s,-aty net.

2. The State Department of Education should convene a task force to determine advisory (rather than prescriptive) standards for adequate, modern school facilities that can be adopted by the State in place of the current minimum standards.

3. The Governor and the Legislature should place a constitutional amendment before voters to modify the approval threshold of general obligation bonds in a manner consistent with the most cost-effective use of the bonds issued.

4. The Governor and the Legislature should create a one-stop shopping system so that school districts have a single point of contact for school facility projects.

5. the Governor and the Legislature shovol set workload parameters within which the State Al-nitect could exercise independent authority to use school fees to hire retired employees to contract out for plan checking services.

6. The Governor and the Legislature should require the Office of the State Architect to convene a panel to receive input and review interpretive guidelines and operating procedures.

7. The State Architect should proceed with administrative changes to address the delays and inconsistencies he has identified in the school facilities plan check process.

8. The Governor and the Legislature should establish an inspection process that would allow a 10-year waiver for school districts to use UBC Type I and Type II buildings as classroom space when enrollment projections exceed available or expected resources to meet those projections.

9. The Governor and the Legislature should establish an inspection process that provides school districts with a permanent Field Act equivalency certificate for UBC Type I and Type II buildings that offer joint education opportunities. Legislature should augmentthe 10. The Governor and the Architect and inspection budget of theOffice of the State increased enforcement powersto deal with give the office in compliance school structures andportables that are not with the Field Act. Legislature should extendthe existing 11. The Governor and the three-year waiver to a morereasonable time frame thatwould allow school districts to pursuerealistic plans to eliminate the need to a waiver. Legislature should modify theNaylor Act 12. The Governor and the land for the to require full marketvalue pricing for sale of developing school facilities or,at the very purpose of to purchase least, give schooldistricts an equal opportunity surplus land from othergovernmental entities atdiscounted prices. unused-site 13. The Governor and theLegislature should abolish penalties and requirementsthat discourage schooldistricts from maximizing revenuesfrom assets. Legislature should direct anappropriate 14. The Governor and the state body to determinethe added cost to schoolconstruction of public policies thatdictate the use of prevailing wage and that set goals forminority/women enterprise participation. legislation to 15. The Governor and theLegislature should enact allow students to attendschool in any district whentheir neighborhood school is too crowdedto allow them to attend. Legislature should create a taskforce 16. The Governor and the to examine the deferredmaintenance practices and make recommendations that will placefuture building upkeep efforts on a sound foundation.

96 IT'S ELEMENTARY!

F:ememart leaces stirs{ Aeocri:

BILL HONIG STATE SUPERINTENDENT OF PUBLIC INSTRUCTION SACRAMENTO, 1992 IT'S ELEMENTARY! ELEMENTARY GRADES TASK FORCE REPORT, BILL HONIG, STATE SUPERINTENDENT OF PUBLIC INSTRUCTION, SACRAMENTO, 1992.

Recommendations: Make a rich, meaning-centered, thinking curriculum the centerpiece of instruction for all students in all subject areas of the elementary grades.

Begin curricular reform by mastering a single subject area.

Reduce the amount of time spent on skill-based activities.

Choose depth over coverage in teaching a subject. Schedule class work in longer blocks of time.

Team teach and specialize, especially in the upper elementary grades.

Extend the learning day with homework assignments consistent with the thinking curriculum. Use a variety of grouping strategies.

Provide more collaborative learning opportunities. Intervene early to prevent learning problems, especially in reading fluency.

Develop an academic support network to ensure that all students acquire important learnings the first time around. Use categorical resources to support the thinking curriculum. Avoid grade-level retention as an instructional strategy.

Invest shrewdly in technology to help promote the thinking curriculum.

Provide teachers access to the best thinking about curriculum and instructional practices.

Make sure that teachers have adequate scheduled time for working together in professional collaborations at the school site.

Support teacher professionalism with a classroom supply budget, secretarial help, and a well-equipped workplace.

98 111 diversity of ethnic Aggressively recruitteachers from a backgrounds. Support new teachers. system of authentic,performance-based Continue building a the thinking assessments that measuresthe full scope of curriculum. for the elementary Define a set ofperformance standards years. students' performancein Assesslimited-English-proficient the home language. during the primary years. Do not assignletter grades school is tryingto Develop a unifyingvision of what the accomplish. guide for action. Use the visionof the school as a making them feel partof a Bond students totheir schools by caring community. active involvementin Reach out to parentsto solicit their the education oftheir children. Systematically upgrade schoolplants statewide. services at the schoolsite to ensure that Coordinate human met. the basic securityneeds of children are take the problem-solving Enable the localschool community to initiative. outcomes. Hold schoolsaccountable forreaching agreed-on

99 MEETING THE CHALLENGE OF LANGUAGE DIVERSITY

An Evaluation of Programs for Pu42iis with Limited Proficiency in English

VOLUME I

EXECUTIVE SUMMARY

R-119/1

Paul Berman Catherine Minicucci Jay Chambers Beryl Nelson Patricia Gandara Laurie Olsen Barry MrI Aughlin Tom Parrish

February 1992

BW Associates 815 Allston Way Berkeley, CA 94710 (510) 843-8574 ABSTRACT

This volume summarizes the conclusions ofa study funded by the California legislature to conduct a comprehensive examination of programs for limited Englishproficient (LEE') students. The study offers the following conclusions:

L California public schools face a complex challenge of educatinga rapidly growing number of language minority students.

2. Schools choose different models for educating their LEP studentsin response to their demographic conditions and resources, and then devise strategiesto adapt these models to their reality.

3. Schools are developing educational and organizationalinnovations to address language minority issues, but they facesevere resource limitations and problems in implementing their programs.

4. The cost of delivering instruction in classesfor LEP students was *boat thetime as the cost for mainstream daises, andprogram costs beyond the classroom were highest for ESL Pull -out and Double Immersionprograms. Most fcmcling for the cost of classes for LEP students came from district generalhinds; funds for supplemental (ornon - direct classroom) services for LEP childrencame fromvariety of sources, rather than from a single, or solid, base ofsupport.

S. Most LEP students in intermediateor senior high schools may not have access to the full curriculum that would enable themto graduate.

6. California public schools donot have valid and ongoing assessments of the performance of students with limitedpronciency in English. Therefore, the state and the public cannot hold schools accountablefor LEP students achieving high levels of performance.

This volume recommends issues thatstate policy-makers should address to meet the challenge of fully educating Califon:lidslanguage minority students. The recommendations are basedon the premise that schoolswith the state's active supportmust develop a capacity to deal with linguisticand cultural diversity that is far greater than the resources and efforts currentlyassociated with special programs for LEP students. Building such capacitywill require a substantial investment. California schools should view language minoritystudents as part of a diverse mainstream.not an issue separate from the more general strivingfor educational excellence. The following recommendations are proposed as stepsto build capacity and begin incorporating the challenge of educating LEE' students into themainstream of public school policy irsatring.

101 should establishlocally-based networldng todisseminate Recommendation 1: The state works for LEP information and provideappropriate staffdevelopment about what students under differentdemographic conditions. Credentialing of all teachers,including languagespecialists and Recommendation 2: for training in assessing, classroom teachers shouldincorporate requatments understanding, and capitalizing oncultural and linguisticdiversity. procedures should be Recommendation 3: Authenticand alternative assessment accountability structure andto enable developed to bring LEY studentsinto the state's teachers to better diagnosethe needs of LEPstudents. appropriate Recommendation 4: The stiteshould place a highpriority on providing preschool for LEP children. for should increase itsinvestment in providing resources Recommendation 5: The state secondary levels. materials for languageminority students atboth the elementary and Department of Educationshould bring practitioners Recommendation 6: The California educational and researchers together toadvance the state-of-the-artof providing effective programs andservices for LEP students atthe secondary level. reform of schools having Recommendation 7: The legislatureshould promote systemic SB 1274, the high percentages of LEPstudents by providingsupplemental funding for restructuring demonstration program. funding, and Recommendation 8: The Legislatureshould increase the level of state services for LEP students. review the current fundingmechanisms, for programs and

102 5 .4; -64 1.:14;:kia ,) Je.V40- -(Stila'

C)

LU

.j., iimiiismsgsrmamsai SECOND TO NONE, A VISION OF THE NEW CALIFORNIA HIGH SCHOOL, THE REPORT OF THE CALIFORNIA HIGH SCHOOL TASK FORCE, CALIFORNIA STATE DEPARTMENT OF EDUCATION, 1992.

Vision of the New California High School claatragggrrissEvery student participates in the academic foundation - A new curriculum is developed - Teachers and students work in clusters to support student learning Program majors lead to postsecondary options - Students make choices - More students than ever before have advanced learning opportunities - Program majors keep options open Every student has a plan

Developing powerful teaching and learning. Teachers are effective coaches Students collaborate as active learners Instructional materials and technology are better utilized Establishing a comprehensive accountability and assessment system. Schools continuously assess student progress Student assessment is outcome-based Schools compile graduation portfolios The California Department of Education and schools set targets The administration supports assessment activities Providing comprehensive support for all students. Licluding lan ua e-mi or'tstudents and those at isk of failure. Student support is an intrinsic part of the school Students receive individual attention The school is part of a network of community services Academic support connects to the regular program The high school is responsible for students' success Stronger student assessment is crucial Carefully designed "enabler" courses help students - Gain key skills and knowledge A quality curriculum and support are provided for language-minority students The high school community provides extra instructional time

Restructuring the school Schools make major changes in their organizational structures - Flexible use of time controlled by an interdisciplinary team of teachers Longer blocks of time for student work 1041 academic foundationsin - Time foremphasizing the grades 9 and 10. day, week and year - A longer school students a teachersees in a Schools reducethe number of day Facilities areorganized by clusters professional roles Creating new is established An environmentof professionalism time and supportto implementchange Teachers have the is broadened The concept ofstaff development its role The districtoffice changes more control overresources School staff has is involved The entireeducational community Charting a course forreform Beginning thediscussion Bringing schoolstogether Developing supportmaterials lir1 1.1% 1 100\1 R COM N111( )N

BEST COPY AVAILABLE COSTS AND CASUALTIES OF K..12 EDUCATION IN CALIFORNIA, LITTLE HOOVER COMMISSION, JUNE 1991.

Finding 1. Current school funding methods prevent school districts from shifting priorities and allocating more money for instruction.

Recommendation: To allow more flexibility in the decision-making of the districts and to further coordinate funding for special programs, the governor and the Legislature should allow additional block grant funding to local school districts. Such a block grant program must include sufficient safeguards toensure that the funds ultimately accomplish the objectives ofprograms identified as being necessary in state statute. Further, revenues for the block grant program must be tied to the positive results from the districts' special programs.

Finding 2. The collective bargaining process improperly controls how school districts spend the majority of general fund monies.

Recommendation: The reduce the adverse fiscal effectsof unsound agreements reached through collective bargainingat the district level, as wellas to make the collective bargaining process more cost-efficient, thegovernor and the Legislature should require a study examining thefeasibility of the establishment of a statewide council of recognized exclusive bargaining representatives tocarry out the collective bargaining process witha joint council of school districts. The study should assume that the statewide councils would delegate local issues, including cost-of-living adjustments, to local employee representatives and districts for the negotiation of subsidiaryagreements. In addition, recognizing that the state provides the majority of education funding, and to ensure uniform and fiscally sound agreements are reached, all agreements wouldbe subject to the approval of the state Board of Education, the governing body of the state Department of Education.

Recommendation: To allow districts greater flexibility in managing their costs, the governor and the Legislatureshould enact legislation to review the current parameters of what can be included in the collective bargaining processso as to identify areas that might be better removed fromthe realm of negotiations. Once these areas are identified, thegovernor and the Legislature should exclude them from the collective bargaining process.

Recommendation: To provide an incentive for districtsto scrutinize and minimize their costs associated with collective bargaining, the governor and the Legislature should make the statutory changes and, along with thepeople, the constitutional changes necessary to limit theamount that 10120 Claims related districts may bereimbursed for Mandated Cost Districts shouldnot be to collectivebargaining costs. they spending more oncollective bargaining; precluded from they may bereimbursed for by should only belimited in what will have todetermine how they the state. Each district bargaining costs fromtheir will coveradditional collective unrestricted revenues. contract, no if, in thenegotiation of a new In addition, within 60 daysprior to theexpiration agreement is reached negotiating partiesshould of the existingcontract, the mechanisms and bindingdispute settlement submit to mandatory Employment RelationsBoard. under the auspicesof the Public California's K-12 systemcontinues to operate Finding 3. accountability at the without adequatecontrols and with no top. district Recommendation: To avoid anincreasing problem of spending, the financial failurestemming from deficit Legislature shouldprovide the state's governor and the state Board co Superintendent of PublicInstruction or the authority andresponsibility fox. Education with additional district is in financial recovery whenit appears that a meet its financialobligations. jeopardy of failing to Superintendent of Suggested measuresinclude giving the the state Boardof Education the Public Instruction or measures once a authority to proceedwith cost containment state Departmentof Education a district submits to the would be qualified certification. Another possible measure Superintendent of PublicInstruction or the state to give the to ensure thefiscal Board of Educationgreater authority proposed by localschool boards. For soundness of budgets is established anddoes example, if a budgetreview committee approval of a schooldistrict budget and, not recommend alternative budget thatsubsequently is instead, proposes an of the local schoolboard, the Superintendent not adopted by option to either acceptthe Public Instructioncould give the budget, accept thebudget review district's proposed alternative budget committee's proposedbudget, or prepare an and approve it. Governor and theLegislature should enact Recommendation: The school board legislation providingpenalties against any approve a budgetor expenditurein member who votes to and criteria of currentstatutory standards knowing violation Instruction, the developed by theSuperintendent of Public of the Departmentof state Controllerand the Director and approved bythe state Board of Finance and reviewed in the by localeducational agencies Education for the use management of development of annualbudgets and the subsequent expendituresfrom that budget. exceeded 20 percent; The state'sdropout rate has Finding 4. total picture. current statisticsfail to reveal the 108 _L..- Recommendatiem: To account for the sizable number of students who drop out prior to the 10th grade, the department should implement its plan to collect dropout data for grades 7, 8 and 9 beginning with the school year 1991-92. Recommendation: To facilitate data collection on dropouts at all grade levels as well as the tracking of dropouts once they leave school, the governor and the Legislature should require the design and implementation of a statewide, student-level data base that will incorporate the use of standard student identification numbers, such as social security numbers. Once the data base has been established and reliable figures are generated for dropouts who eventually return to some form of formal education or pass a diploma equivalency test, the department should publish those figures along with the dropout rate. Recommendation: To ensure the accuracy of the dropout data in the California Basic Educational Data System, and thus the calculation of the dropout rate, the department should periodically review and confirm the accuracy of the dropout data sent to the department by school districts. Finding 5. If California fails to reduce the dropout rate, the state's economy will be severely affected. Recommendation: To effectively address the dropout problem, the Governor and the Legislature should support current successful efforts at dropout prevention and recovery, such as the SB 65 programs and the California Partnership Academies, so long as those efforts are directed at the aspects of the problem demanding the highest priority, such as the unique problems associated with Hispanic dropouts based on projected trends. In addition, to the extent possible, efforts aimed toward at-risk youth should be consolidated and coordinated to achieve the most efficient and effective use of limited education dollars. Finally, legislation should be enacted to provide sufficient resources to further the efforts of promising initiatives, such as the Every Student Succeeds initiative, that will effectively address the highest priorities of the dropout problem. Recommendation: Within existing resources, the department should continue its efforts to develop and implement initiatives that will substantially contribute to the alleviation of the dropout problem. In particular, given that population and dropout figures show Hispanics as having a high dropout rate while becoming the largest single ethnic or racial group in the state, the department's efforts should place special emphasiE, on the unique problem of Hispanic dropouts.

109 ow.

Acal*Aolit

Catiraftlia

Policy Analysis for California Education (PACE)

DIRECTORS James W. Guthrie University- of California, Berkeley Michael W. Kirst Stanford University Allan- R. Odden University of Southern California

BEST COPY AVAILABLE 110 123 A Comprebensive Attack on the Problem The way to empower schools and overcome inap- propriate bureaucracy is to declare the school the primary What California needs is unit for management and begin directing financing to the a comprehensive education reform plan that is of suffi- school site. Schools should become responsible for their cient scale to reach all school children, budgets and accountable to their parents. California can a sustained comnutment to solving school problems. and build a system whereby dollars flow to schools, decisions highly visible leadership. follow the dollar, responsibility flows to teachers and principals, and benefits flow to stuoents. A PACE Plias for California's Schools Create responsive and responsible schools. Too many scnooi reform efforts in California have been splintered, In order ID meet the cnallenges, PACE proposes a en -point inconsistent. and unplanned. Moreover, they have not plan for revitalized education. always been aimed in the right direction. To this point the Set goals for California's schools. The state needs a notion of reform has been to pass another law, promote road map for schools. Citizens deserve to know what they a new rule, require a new activity, complete another state- will re :dye from their tax money; educators need to issued form, or enact another regulation. know what they are expected to accomplish: students California must unleash, not punish, the creative need to know what they are expected to learn. potential of pro:essional educators, pupils, and parents. In order to achieve consensus on a set of education The right way to encourage results is to agree upon goals. PACE proposes a Governor's Task Force on desired outcomesand a way of measuring results, ask that California education. The Task Force's principal mission those responsible draw up a plan for achieving these ends, would be to specify the major goals California expects its and then let those responsible for action act. schools to accomplish by the year 2000. The Task Force PACE proposes to achieve this goal by expanding should be representative of the state's citizens and should the planning grants available to local schools to encour- consult widely and hold public hearings. age cooperative efforts by educators and parents. Each Once a set of educational goals has established new school should be expected to develop a comprehensive and higher standards for schools, public officials, edu- cators, pupils, and the general public must commit five-year plan for achieving state and local goats. These plans should build on the unusually thorough state themselves to the fulfillment of these goals. In addition, cur- Californians will need to be informed regularly about riculum frameworks. Unproductive and outmoded rules and regulations should be stripped away to permit schools progress in meeung these standards. to pursue their plans. The state's role should be to provide Provide a "Head Start" for all children. The state must advice and ensure high standards. mare it possible for every child. rich or poor. to benefit Coordinate social services for children. Many of the from schooling. It must build a system that will enable at children most in need education are least prepared least every 4-year-old, whose parents so desire. to attend to benefit from it because of an array of economic, health. prescnool. Break up bureaucracy. Some of California's school and social problems. The dominant institution in the life of students is the school, yet most social services dinners and some lf its schools are too large. Too much are the responsibility of other agencies. effort is spent on communication and coordination. leaving California needs to design a coordinated system for delivering non-educa- too little time. money. and energy foreriucation. What the tion services to students, with the school state must do is openly acknowledge that individual as one of the centers of service delivery. schools are the most important organizationai link to Enhance teacher expertise. California has been students. It is at the school she mat the state should center a na- tional leader in developing new curriculum planning. direct resources. encourage instructors. develop concepts, but more staff development is needed if teachers are leaders. and teach students. to be able to teach the new curriculum. The state haspowerful 111124 that work, such as theCalif onua staff development models means fcr applying modernand future technology to California MathematicsProject. Writing Project and the change the classroom. These programs need to besustained and expanded. The state should establish a California Centerfor of Develop "smart" reportcards. The consequences Educational Technologya joint venture betweenthe frequently are not clear tostudents doing well in school state's higher and lower educational institutionsand the school. Students say e-lioyers who seek jobs after high private sector to providethe seed money and the lead- seldom look at their reportcards, and employers s ership to adapt tecnnologicaladvances for use in class- report cards do not tellthem anything. California nee room instruction andin school operations. to transform report cardsand high school diplomas so u have studied and hi employers can tell what students A Concluding Caveat well they have done. Employersneed to be encourag better schools, and no one-time to use these new report cardswhen deciding wnom toki There is no single answer to educators, parents, pupils, and the and what to pay them. only "fix." Policymakers. a comprehensiveplan of Give households a choice. At present.only the rich c general public must be committed to realize that this plan *ill need choose their scnools. Allowingall families a choice of action. All concerned must have an opportunity for success. educational styles and philosophieswould likely improve sustained support in order to high and has every right both their own satisfacuon withschooling and the overall California must set its standards Indeed. citizens must demandresults, quality of schools competing forstudents. to expect high results. well tended, the eventual Expanding the range of choice amongpublic schools keeping in mind that if the seeds are would give households more optionswhile preserving harvest will be bountiful. the public schools' role in buildingcommunities. Restore local control through fair taxes.A measure of fiscal control must be restored tolocal school districts. Because of Proposition 13. educationfundinem CAlifornia is now controlled almost entirelyby state officials. a shift that has connzbuted to bureaucrancbungling, higher costs. and loss of effectivenessmeeting local education needs.Communities. by a majority vote.should be permitted to decide on limited property taxincreases for education, to De used specificallyfor consuucuon or instruction. These funds should be distributedin a way which does not penalize property-poordistricts nor unfairly reward the nen. Devising such a"power equaiizing" tax system is a reiauvelysimple matter technically. Proposing it and seeing it through tofruition regimes courage politically. Apply new technology inschools. New technology changes our lives but seldomfundamentally affects our schools. The kinds of technologywe now have are capable of stimulating a drasticchange in the basic approach to classroom teaching.However, too little attention is currently paid to developingcomprehensive

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School Restructuring in California

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Report to the Superintendent from The Task Force on Selected LEP Issues

115 Executive Summary

More than 861,000 limited-English-proficient (LEP) training programs in universities and colleges and in students are enrolled in California's public scixxils, and local school settings at that time and presentlydoes not the number is increasing daily To educate thesestu- match the population growth of LEP students. dents to participate effectively in the mainstreamecon- Appointed in the spring of 1989, the Superintendent's omy and become productive citizens. 22,365 appropri- ately trained bilingual and English language develop- Task Force on Selected LEP Issues examined thelack of ment teachers are needed (see Table 1, column 8, in foresight and problems related to the low representation Appendix D). of minorities in higher education and, particularly, in teacher preparation programs. These issuesare ad- According to figures for the spring of 1990, approxi- dressed in this report. The recommendationsto the mately 8,033 teachers hold bilingual credentials and superintendent in some instances are directedto related certificates of competence, and approximately 3,897 agencies such as the Commission on Teacher Creden- teachers hold English language development specialist haling (CTC), institutions of higher education(IHEs), certificates (see Table 1, column 9, and Table L and local school districts. column 1, in Appendix D). An additional 6,957 teach- The State Superintendent of Public Instruction ers are in bilingual in-service training programs. and can facilitate cooperation among the various agenciesto 7,220 are in training programs for English languagede- carry out the recommendations that can be fulfilled velopment specialists (see Table 4, column 4. and immediately and to establish a time line for Table 2. column 3, in Appendix D). The total future implement- ing those that require further development. supply of bilingual teachers is 14,990, consisting of the presently authorized 8,033 plus the 6,957 bilingual The task force's recommendationsare presented in the teachers in training. This figure falls short of the following categories: developinga statewide informa- number of bilingual teachers currently needed. tion campaign, improving the preparationof current teachers, training paraprofessionals, and The lack of qualified staff and appropriate cumculum developing a pool of teachers for LEP students. negatively affects the academic achievementamong LEP students. The dropout rate for Hispanics n..pm 1985 through 1988 is 30.9 percent. (Figures from the General Recommendations California Department of Education's [CDE's: Califor- for Immediate Action nia Basic Educational Data System [CBEDS' for 1985 The following are general recommendations: through 1988 provided this information.) 1.The Superintendent shouldannounce a state initiative The failure to meet the increased demand for trained (a statement of departmental actions)to meet the crisis. including a major public information personnel capable of providing bilingualsupport or campaign strategies for English language development for the about the need for teachers of LEP students.Other actions would be related to: LEP student population constitutes a staffing crisis in the California school system. The current shortage of a. Developing legislation to create and expand resources for bilingual teacher training appropriately trained personnel is related to a lack of b. Redirecting or expanding existing strategic planning for the instruction of a stud= resources popu- for funding state staff development lation unlike any previously enrolled. Changing demo- c. Developing and publishing departmental graphics indicated a rise in the LEP student population materials to inform potential teachers andthe as early as ten years ago. During the ensuing years general public about bilingual teaching these changes were not systematically tracked and 2.The Legislature should give priority analyzed for their effect on programs for teacher to providing the financial support needed to train additional preparation. The number of candidates entering teacher teachers quickly, to increase the number ofand improve the

vii , n 1 1 6 `- quality of teachers' training programs, and to 7. LEAs and the CDE should stabilize wage scales and institute a teachers' career ladder with financial benefits for paraprofessionals. incentives to keep teachers in the classroom. 8.Financial incentives should be offered to paraprofes- sionals undertaking training for credentials. Recommendations for Improving the 9.IHEs and LEAs should work out flexible arrange- Preparation of Current Teachers ments to enable paraprofessionals to meetacademic The following recommendations deal with sources of requirements. funding and administrative procedures for improving the preparation of current teachers to instruct LEP Recommendations for Developing a Pool students: of Teachers for LEP Students 3.Since all teachers in California have some LEP Recommendations for the short term follow: students in their classes, a California Language 10.The CDE, in collaboration with the CTC, should Minority Subject Matter Project (CLMP) should review the California Basic Educational Skills Test be established with funds from the California (CBEST) to remove hurdles for teachers of LEP Department of Education (CDE) and Senate Bill students. 1882, Morgan, Chapter 1362, 1988. The CLMP should be administered in the same way as are 11. The CTC should develop a limited preliminary other subject-matter projects, such as language credential for teachers trained in foreign countries. arts. historysocial science, mathematics, science, 12. The CDE and CTC should collaborate to provide and others. The CLMP should have three main consistent and complete information about the op- aims to work with the other subject-matter portunities in bilingual cross-cultural teaching for projects to disseminate information to all teachers students in California and in other states. about techniques and methods for providing in- 13.The CTC should consider establishing a limited struction to LEP students for learning content; to specialty credential for teachers trained in foreign expand the number of bilingual teacher-training countries. programs (BTTPs); and to ensure that BITP trainers Recommendations for the long term follow: and students know and understand the content of the California curriculum guides and frameworks. 14. IHEs and LEAs should cooperate on a long-term recruitment plan to attract former LEP students to 4. CDE should ensure that schools and school districts bilingual cross-cultural teaching. receiving funds through Senate Bill 1882. 1988. use them for training programs in districts, especially for 15.Students should be offered financial incentives such teachers seeking certification as language develop- as scholarships and forgiveness of loans if they ment specialists (LDS). become teachers of LEP students. 5.The Department of Education should collaborate 16. The University of California (UC) and The Califor- with teachers' unions and local educational agencies nia State University (CSU) should receive additional (LEAs) to support legislation that provides pay funds if they increase the number of candidates for differentials for fully qualified teachers of LEP bilingual cross-cultural credentials and certificates students. for language development specialists. Providing am adequate supply of teachers of LEP stu- Recommendations for Training dents may i e possible if all these recommendations are Paraprofessionals followed in a combined strategy. But major efforts will The following recommendations focus on ways to be required to establish equal instructional opportuni- enable paraprofessionals to become teachers of LEP ties for all students. students: California's education, business, and political commu- 6.LEAs, IHEs, and the CDE should cooperate to help nities must cooperate in immediate, far-sighted action paraprofessionals become csedentialed teachers. to solve a crisis that threatens the prosperity of the state. California's Workforce for the Year 2000:

Improving Productivity by Expanding Opportunities for the Education and Training of Underserved Youth and Adults

Report of the California Workforce Literacy Task Force

November 1990 Executive Summary

Productivity at work is the engine for economic growth, and literacy Increasing the is the fuel that drives that engine. In an increasingly competitive productivity of international and national economy, California can no longer afford to California's underinvest in the skills development of that half of its adult citizens workforce for who are out-of-school but typically not college bound. These adultsare the 21st century likely to be below average in the skills of language, literacy, mathematics, is the most reasoning, and problem solving, and for these reasons theyare important economic likely to be less productive than their more accomplished workmates. and social problem facing the state today. To meet the challenging needs of the State's present and future workforce, the Task Force strongly recommends that California's Legislature and Governor work together to

promote awareness of the serious need facing the State for greater investments in the literacy skills development of our underserved youth and adult human resources;

provide leadership to state government agencies, business and industry, communitygroups, and families to improve the education of underserved, traditionally non-college bound youth and adults; and produce a master plan for the workforce education and training of California's underserved youth and adults that addresses in an integratedmanner the needs of the present adult workforce, the needs of youth transitioning from school to work, and the needs of pre-school and primary grades children for well educated parents who can prepare and assist them to be successful in school. A Life-Cycle, Intergenerational Perspective

The Task Force approaches the improvement of workforce literacy other skills for the next century with the understanding thata "quick-fix" will not work. Instead, an approach is needed that takesa long term view of the life cycle.Thus, our recommendations deal with (1) thecurrent workforce of youth and adults who constitute three-quarters of the workforce of the year 2000; (2) teenagers whomay be considering dropping out of school to enter the workforce, whomay become teen parents, or who leave school intending to go directly into the world of work and do not anticipate going to college; and (3) pre-school and primary grade school children who will comprise the workforce ofa generation from now.

vii 119 1 3 2 school reform per se, While the Task Force is notconcerned with public The best "head premised on the beliefthat the best"reform start" for a child our recommendations are other caregiver.From program" for children is awell-educated parent or starts with the of adults canproduce this point of view, aninvestment in the education head of the family. improving the educationof adults andthe A well educated "double duty dollars" by productivity of the educability of their children.In this way, both the parent is the best of the public schools maybe increased. educational workplace and the productivity "intervention of the Task Force program" for a Findings and Recommendations from child. recommendations are based on anumber of findings The Task Force the Task Forceby studies by Task Forcemembers, papers contributed to of and concerned citizens,and from studies State government agencies policy analyses bythe hundreds of national reports,research papers, and based on the belief thatproblems ofworkforce Task Force staff. They are be overcome by a literacy and other intellectualskills development will simultaneously deals with the presentworkforce of adults,the strategy that the future workforceof emerging workforce ofyouth leaving school, and children entering andparticipating in primary school. Need For A Master Planfor the Education andTraining of Non-College BoundYouth and Adults Findings: California's youth and adults are notseeking Over 40% of More than half of California's higher education. applicants for million of California's youthand adults age military service An estimated seven below the fifteen and older haveeducationally developed skills in fiscal year 1989 in need of Englishlanguage scored at the 8th ninth grade level, and many are grade level or training. below in literacy. demands State provided literacy programscannot meet the present for services, yet a majorityof those who couldbenefit from those who are additional education are notbeing reached, and of the ninth served most drop out withoutincreasing their skills to grade level. adult education andtraining program There are over a thousand and providers now operating inCalifornia in an uncoordinated underevaluated manner. Higher Education, thereis no Master Unlike the Master Plan for adults in Plan for the education ofnon-college bound youth and California that integrates theroles of government agencies; businesses andindustries; workers unions; community-based organizations;library related services and the formal secondary andpostsecondary institutions. ."-10r

Viii 120 Recommendation 1: That the Legislature, in conjunction with the Governor, appoint a Commission, for a term of five years, to prepare a Master Plan for Workforce Education and Training of California's non-college bound youth and adults. The Master Plan should establish the foundation for the Governor and the Legislature to formulate effective policies and programs for lifelong education and training of California's non-college bound youth and adults well into the 21st Century.

The Master Plan should integrate the roles of local, state and federal agencies, businesses and industries, labor, community-based organizations, public library services and the formal secondary and post-secondary educational institutions. In developing the Master Plan, the Commission should take into consideration any existing formal plans and programs of state agency providers. The following recommendations of the Task Force should be incorporated into the plan. Need to Adequately Fund the Delivery System for Adult Literacy Education and Training

Findings:

Most of the population in need of literacy and other cognitive In 1987, some skills development are not being reached and served by the current 1100 literacy delivery system. Limited funds lead to many being turned away programs served from programs. Among the reasons given for non-participation less than one are failure to recognize a skills problem, fear of admitting a literacy in seven of the problem at work, or embarassment. The demands of work and millions of youth family may create barriers to participation. Negative attitudes and adults who about classroom learning, times and locations for learning are read below the often reported. The perceived lack of any rewards or benefits offer ninth grade level. little incentive for many in need of improving their skills. Most left without achieving ninth Current state policies limit the funding for adult education and restrict grade skills. the opportunities for non-college bound youth and adults to obtain education and training. Recommendation 2: That the Legislature remove the prohibition against offering of adult education by communities that now cannot do so because they did not have programs in place before Proposition 13; further that the Legislature provide additional funding for adultEnglish-as-a-Second Language (ESL) and basic skills programs to realistically reflect the need for ,'hese services.

ix 123. Need for Incentives to IncreaseWorkplace Education and Learning

Findings:

Tne current adult education systemdoes not includesignificant Of SOO applicants and involvement of business and industryin workforce education for work in a and adults, yet theworkplace major defense contracting training for non-college bound youth found. firm in San Diego, is where most of those in need are one in four read few educationalopportunities below the ninth grade Most California businesses provide level. level. for workers below the management Many businesses and industries inCalifornia are now employing workers whose skills are below theninth grade level andwhose productivity is not as great as it shouldbe.

Many workers unions have membersin need of additionaltraining in job skills and intellectual skillsdeveloped through education (reading, writing, arithmetic, reasoning,problem solving). Recommendation 3: That the Legislatureadopt policies providing incentives for Californiaemployers, above a certain level of employment, toinvest a minimum of one percent of employee payroll toestablish a formal progr RI of educationand training of non-management employees. feasible to In the case of small and mediumsized businesses, where it is not establish individual programs, a trainingconsortium might be formed. Included in employer training could be pre- orpost-employment training of deficient job applicants to raise theirbasic skills to acceptable levels. Need for Education and TrainingIn The Public Sector

Findings:

State and local government agenciesin California have failed to recognize and address the need forworkforce education and training in public sector work-settings.

The State, by its leadership andexample, should encourage all local governmental agencies to adopt a systemof education and training for their own workforce. Recommendation 4: That the Legislatureand the Governor adopt policies to establish asystem of basic skills training in state governmentto permit job applicants with basic skillsdeficiencies to qualify for entry level work, andprovide continuing education to permit underqualified employees toattain the skills needed to move upward.

4 , 17: X 122 J Need for Skills in English Language and Literacy: A California Priority for Adult Education and Training

Findings:

Many adult literacy learners in California's workplaces feel By the year 2000, discriminated against for speaking a language other than English, one in three of and they are reluctant to attend language and literacy classes for California's fear of reprisals by employers. working age population will Educators have not adequately determirt-: the problems and effects be Latino or of proficiency in a native language in the learning of Asian. English -as -a- Second Language. Recommendation 5: That the Legislature and Governor develop policies of non-discrimination against non-English speakers and non-literates in the workplace and further that they prc. de for research to further guide state policies regarding the development of English literacy among limited-English proficient adults, with attention to the effectiveness of native language literacy instruction on second language learning. Need to Use Technology To Enhance Adult Learning Findings:

California has failed to capitalize on the use of technology in adult education and training that could cost-effectively expand the capacity of the literacy delivery system.

Many workplace literacy programs find that the use of computers motivates employees to participate in programs. Recommendation 6: That the Legislature incorporate the development and use of technology for adult workforce education into any State policies and legislation on the use of educational technology in California's education system. Need for Workforce Education in the Transition From School To Work Findings:

California does not have a well articulated educationprogram to assist in the transition from school to work for non-college bound youth.

xi

123 have a high Many non-college bound youth andadults who do not school diploma or the equivalent cannottake advantageof California's apprenticeship program. Reconunendation 7; That the Legislaturedirect the Commission on the Master Plan forWorkforce Education and Training to developpolicies to increase the effectiveness of the transitionfrom school to work by expanding the State'sapprenticeship program. Need to Break The Cycles OfMarginal Literacy and Marginal Living

Findings: Children's educational achievementin school is directly related to Infants born into education level. richly nourishing their parent's, and especially mother's, cultures of literacy, Studies of pre-school and primaryschool compensatory education in homes where parental there are literate programs repeatedlyemphasize the importance of parents who use involvement for the success of programs. their literacy the children of the poortrying extensively, tend to In California, more money is spent on to compensate for theparent's lack of education thanis spent grow literate to a children's school learning and large extent even on parental education to prevent before entering adaptation problems. primary school. New federal laws are calling forintegrating adult basic education with early childhood education and thiscalls for new education delivery systems and methods. Recommendation 8: That the Legislaturerequire at least 10 percent of the over $1.13billion that is spent by the State Department of Education'sCompensatory Education Office and the Early ChildDevelopment Division be redirected to establish programsoffering basic skills education for the parentsof children who qualify for these two programs;further, that the Legislature require that where child careprograms are provided by employers, considerationbe given by these programs to providingfunding for parent education at work sites. Need For Professionalism andResearch-Based Knowledge In Workforce Education AndTraining

Findings:

There is no systematic higher educationand training to produce professional adult educators and trainers fornon-college bound youth and adults, many of whom maysuffer from serious learning disabilities.

xii 124 A critical need exists for research on adult learning and teaching methods that address the widely diverse needs of California's adult learners in workplace and other settings. Recommendation 2: That the Legislature establish a network of field stations for action research and evaluation on adult education in association with campuses of the California State University and Community College system, oriented to developing information about California's workforce skills needs, abilities of the non-college bound workforce, and the development of improved methods of education and training for non-college bound youth and adults; further that the Legislature require the California State University and Community College systems to establish a formal program to educate and train a cadre of adult educators that can work with the spectrum of education, language, and learning needs of California's undereducated youth and adults. Need to Raise Awareness about the Literacy, Education, and Training Needs of Underserved Youth and Adults Finding:

There is a general lack of awareness, knowledge and commitment among business, government and the general public in California regarding the problems of workforce literacy and the educational needs of underserved, typically non-college bound youth and adults. Recommendation 10: That the Legislature and the Governor emphasize their commitment to workforce literacy by demonstrating leadership in promoting awareness of the personal and economic costs of the marginal literacy, poor education. and unmet training needs that limit the productivity of California's workforce.

125 CALIFORNIA CHILDREN CALIFORNIA FAMILIES .1Im IN 111

Educating Minority Students in California Descriptive Analysis and Policy Implications

prepared by Aswnbty Office of Research 0321A

126139 EDUCATING MINORITY STUDENTS IN CALIFORNIA, DESCRIPTIVE ANALYSIS AND POLICY IMPLICATIONS Assembly Office of Research April, 1990

Finding 1. Gains have been made in the achievement of Black and Hispanic students since the implementation ofeducation reform efforts five years ago. However, there continues to be a persistent and significant gap between the performance of white and Asian students and the performance of Black and 'Hispanic students in California public schools. The differences are extremely acute when comparing the performance of schools serving predominantly Black and/or Hispanic students with schools serving predominantly white students.

Finding 2. Schools serving high percentages of Black and Hispanic students have significantly larger average enrollments than schools serving high percentages of white students. This is particularly true for Hispanic students at all grade levels. Recommendation: Policies for improving low-performing schools serving primarily Black and Hispanic students should consider reducing the size of the school unit. This can be accomplished by either designing smaller individual schools or considering the "school within a school" concept.

Finding 3. Current practice statewide requires that fiscal data be collected using the school district as the unit of analysis rather than the individual school site.. Therefore, it is not possible to determine whether actual resource differences exist among schools serving primarily Black and Hispanic students as compared to schools serving primarily white students. Recommendation: Expenditure data should be collected so it is possible to determine per pupil expenditures by school site. The data to be collected should be standardized statewide, using expenditure categories which are easily understood by the public. The actual design of the school level data system should consider input from a group of local administrator and teacher groups and should examine models in use, or currently under consideration by, at least four states. School personnel at the school site level should receive training and assistance from the school district in order to ensure that data collection is uniform and does not pose an excessive burden on site personnel.

Finding 4. No overwhelming quantitative data exist which demonstrates the factors contributing to the differences between the highest and .lowest performing schools serving predominantly minority students.

127 1 40 assist Recommendation: Continuedinvestigation is needed to schools serving minoritystudents in identifying thecritical making significant improvementsin factors involved in designed to assist student performance. A number of projects such schools are currentlyunderway. Issues, such as teacher collegiality, community supportservices, student participation levels, staff development,partnerships with private industry and institutionsof higher education, decision-making models, and incentivesfor innovative strategies, should be considered whenexamining schools which are making significantimprovements in minority student achievement.

128 CALIFORNIA EDUCATION

kJ MEETING THE CHALLENGE The Schools Respond

CALIFORNIA DEPARTMENT OF EDUCATION Saaamento, CA 1990

129 4 2 Executive Summary

At the national education summit in September 1989,the President and the nation's governors issued a series of challenges to the educationalcommunity. To respond to these challenges, some 300 individuals representing the major groups driving California educationreform-teachers, principals, superintendents, parents, students, school board members,legislators, business leaders, and community members -met in Sacramento on December 12-13,1989.

During the 1980s we all worked hard to improve student performance,and our efforts are paying off. By any set of standards, we have made substantial progress in ourschools. However, California educators are also acutely aware that we still have a long way to go to prepare ourrapidly growing and diverse student body for the increasingly demanding job marketand to instill in our students strong democratic and ethical values. The California Education Summit: Meeting the Challenge, the Schools Respond wascalled for two principal reasons: To begin the process of developing a consensus-a game plan for the 1990s-on the next steps we should take in California to upgrade the schools; and

To reflect on our experience and identify those elements which would increase the chances of success in any forthcoming national efforts.

We started the education summit with fundamental agreement on our goals as a state-and-a nation. These goals, once c,ntroversial and widely debated, are now generally accepted as the foundation of our reform efforts. We began with the premise that more of our studentsmust:bereductded :to higher levels than ever before. For example, at least 25% of those students who initially enter-higbichool should earn a bachelor's degree; another 25% should earn an associate degree from a community college; and at least 40% should make a successful transition from school. to worIct-thusteducklg the dropout rate to under 10%.

There was also overall agreement that to reach these goals,-more .of w-students3nustreadr-wrke, compute, communicate, and think at higher levels; and that to reach these higher levels we need to teach a thinking curriculum so that students become active learners, develop real understanding of fundamental concepts and ideas, and apply knowledge creatively. 'Thesefprinciples-am.currerely reflected in the California frameworks.

What we addressed at the summit was how best to reach these lofty ideals -what we should keep, what we should buid on, and what we should change in assessment and accountability, staff development, team building and reorganization at the school site and district levels, teacher- preparation, and strategies to help children and adults at risk.

What implementation strategies should we pursue to further our improvement efforts? The seven groups at the summit were charged with answering that question. Each summit participant was assigned to one of these groups and the subjects addressed reflected those highlighted at the national education summit. The key strategies hat emerged from the group discussions included the following:

Increasing Accountability and Improving Assessment

Develop a more comprehensive accountability system, including more substantive information about those students not going on to postsecondary education.

130 1,13 Executive Summary

recognize top performanceand significant growth, Develop more comprehensiveincentive systems to as well as toidentify chronic lowperformance. concentrating on developmentof fiscal Improve staff development forlocal school fiscal officers, policy teams and involvinginformation technology. decision-making by expandingthe use of information technology, Improve local financial management resource allocationchoices. reducing the paperwork burden,and sharing data concerning assessment in In favor of performance-basedassessment, a type of Eliminate multiple choice tests presentations, and solve real-world problems. which students are called uponto write, make oral like the Golden StateExam, which drive Develop and use powerfulend-of-course examinations, important improvements inschool curricula.

Enhancing the Curriculum dear picture of whatstudents Improve assessment and developperformance standards to get a know and can do and to set targetsfor student performance. that extending the contracted school yearby at least 15 days so Enhance professional development, collaborate with their colleagues. teachers have the time and structurein which to think, plan, and in each discipline.- Develop better insbuctIonal materialsto reflect the best thinking broadening the teacher's role toinclude peer coaching and Restructure the teaching profession, help implement reforms.» mortaring, as well as developingand utilizing teacher4eaders to

Improving High SchoolTransitions obtain necessary skills, knowledge, Provide all students a rigorous,sophisticated core curriculum to and values to maximize theiroptions after graduation. degree from four-year colleges Increase the number of studentswho enroll In, and earn a bachelor's and universities to 25% of thosestudents who Initially enter highschool. associate degree from, a community Increase the number of studentswho enroll in, and receive an college to at least 25% of thestudents who initially enter highschool. that enable success ;;:i 40% ofthe Increase the number of studentswho transition to work with skills students who enter high school. from the current 22% to under Reduce the number of enteringhigh school students who drop out 10%.

Improving Adult Literacy that the iliterate adult Decrease adult illiteracy by 5% per yearfor each of the next 10 years, so function in our democracy, and enrichthe population can compete in thework place, understand and quality of their lives.

131 144 Executive Summary

Forge a bold partnership among key providersand those who need literacy skills to meet future challenges, coordinating regionally all public andprivate sector resources to meet priority needs.

Provide adequate resources to reduce adult illiteracy,removing current funding restrictions and encouraging the infusion of private sector resources.

Demand federal recognition and support because thelevel of adult literacy in the United States is a national crisis.

Organizing More Effective Services for Children, Youth,and Families At Risk

Prevent students from becoming at-risk through prenatal care, parentingeducation, early intervention for infants at risk, preschool programs, and before- and after-schoolchild care.

Involve parents and provide support for the home to help break the cycleof poverty and dependency.

Enhance community collaboration and deliver,/ of comprehensive services,focusing on schools as the hub of services and using mandates, rewards, or penalties to motivateparticipation.

Coordinate educational programs, especially categorical programs, providing programmaticflexibility where schools and districts demonstrate high levels of student achievement

Restructuring to Improve Student Performance

Focus restructuring efforts on students, with districts and schools developing a clear vision of whatit takes to improve student performance.

Engage In long-range strategic planning.

Involve teachers In restructuring, providing them time to focus their skills, knowledge, and expertise on the task of delivering a rich, thinking curriculum successfully todiverse students.

Increase service orientation, flexibility, and accountability, and relax rules and regulations that impede schools' efforts to organize to improve student performance.

Modify assessment practices, focusing on the new thinking, problem-solving curriculum.

Improving Teacher Preparation and Recruitment

Expand teacher recruitment to target minority individuals, encourage mid-career entrance into teaching, and provide incentives to keep outstanding teachers in the profession.

Improve teacher preparation by enhancing field experience prior to credentialing and upgrading the status of teacher preparation within higher education.

Improve teacher induction, retention, and assessment by creating an organized systematic, statewide process to support new teachers and assess of their competencies.

132 1.15 Executive Summary

expanding the teacher work year to allow for morestaff Enhance professional development, the salary devaiopment, providing teachersopportunities to expand their roles, and restructuring schedule to recognize Increases inresponsibilities and competence.

Improve administrator credentialing andtraining to increase emphasis on curriculum andinstructional leadership and providing ongoing professionaldevelopment. The These and other recommendations arediscussed in the following seven working group reports. material document also contains StateSuperintendent of Public Instruction Bill Honig's introductory which helped set the summit's tone and structure.Finally, this document contains an alphabetical volume to listing of summit participants.California Education Summit Background Papers, a working group received, accompany this document,includes the initial background information each History, Columbia in addition to the keynote addressdelivered by Dr. Diane Ravitch, Professor of University.

A videotape was made of portions ofSuperintendent Honig's opening address to thesummit participants and the groups' presentations of thefinal recommendations. Copies of the videotape were supplied to every schooland district

While we have general agreement on the futuredirection of our educational reform efforts, further progress will depend on educators'creative abilities to adapt these general ideas to thespecific realities at their. schools and districts. We hope that thematerials generated from the summit will spark local discussion and planning regardingthe next steps we need to take in our reform movement. Working together we will be able to meetthe challenges facing education in the 1990s and beyond. State of California Little Hoover Commission 1303 J Street, Suite 270 Sacramento, CA 95814(916) 445-2125

K-12 EDUCATION IN CALIFORNIA: A LOOK AT SOME POLICY ISSUES

FEBRUARY 1990 117

Commission on California State Government Organization & Economy 114 method for reporting average daily attendance. The Commission's study resultedIn the following findings:

1. THE STATE'S GOVERNANCE STRUCTURE FOR EDUCATION IS NOT OPERATING AS STATUTORILY INTENDED

Contrary to the legal description of the State's education governance structure, the Superintendent of Public Instructionisnot operating at the direction of the State Board of Education.Instead, the Superintendent has assumed the role of policy maker and the State's schools are without the benefits associated with having a state board govern educational policy. This situation results from an inherent flaw in the governance structure itself, the Superintendent's control of the budget, ambiguity created by the State's statutes and Constitution, and the makeup of the Board.

2. THE DEPARTMENT MAY BE CIRCUMVENTING THE STATE'S REGULATORY PROCESS THROUGH THE USE OF POLICY GUIDELINES

State law requires that state agencies proceed through the State's regulatory process when prescribing actions based on the agencies' interpretationsof statute. However, the State Department of Education frequently issues to schools and school districts various policy guidelines that appee ,) be prescriptive in nature.If these guidelines are determined to be in the nature of regulation_. then local education agencies will have been forced to comply with the Department's interpretations of state law without the benefit of public input and the legal scrutiny of the State's primary agency responsible for approving administrative regulations.

3. THE STATE'S SYSTEM OF FUNDING CATEGORICAL PROGRAMS IS NEITHER EFFECTIVE NOR EFFICIENT

In attempting to provide earmarked funding for programs designed to meet special educational needs, the State has created an extremely complex system that recognizes 80 different categorical programs funded from 86 sources totaling approximately $5.3 billion.However, the system does not link all program funding to identified needs and performance indicators. For example, some funds become 'institutionalized' over time and do not follow students when they shift among districts.Further, the State's system of categorical funding does not allow for an efficient coordination of all appropriate funds at the local level.As a consequence of the current system, the proliferation of specially funded programs has resulted in a duplication of services, curriculum fragmentation and ineffective delivery of services.

4. THE CATEGORICAL 'SUNSET LAWS' HAVE NOT BEEN WORKING AS STATUTORILY INTENDED

Despite the statutory elimination of specific program requirements for certain categorical programs, the State Department of Education has imposed similar,ifnot more stringent, requirements on schools for the operation of the programs. The Department issued the requirements as guidelines to ensure that program goals are met. However, contrary to legislative intent, schools are denied flexibility in achieving the programs' original objectives.Consequently, the Department stifles the creativity and efficiency of local education agencies in accomplishing the initial objectives of the programs that were sunsetted.

135 143 CONSIDERED OF SOME SCHOOLDISTRICTS NEEDS TO BE 5. THE REORGANIZATION realized through the indicated that there arepotential efficiencies to be Recent data have large districts. extremely small districts and thebreakup of some extremely consolidation of some related to specific the lack of fiscal incentives,and the lack of analysis Opposing political pressure, reorganizations from occurring inthe State.As a California school districtshave prevented such costs are incurred in somedistricts. result, excessiveadministrative and other overhead IS OF OFFICES OF EDUCATIONBY COUNTY BOUNDARY 6. THE ORGANIZATION INEFFICIENT AND DOES NOTMAXIMIZE SERVICE DELIVERY the local school districts,county Operating as intermediateagencies between the State and intended to coordinate services amongthe districts within each county. offices of education are boundaries rather however, many offices restricttheir activities to county Under this organization, within the same the needs shared by districtsfrom different counties than operate according to to realize the efficiencies Consequently, these countyoffices of education are unable region. and the services deliveryin those available through the greatercoordination of district efforts districts is not maximized. IS INEFFICIENT AND DOES 7. THE STATE'S SYSTEMFOR REPORTING ATTENDANCE NOT ENCOURAGEATTENDANCE to school districts, As the foundation for theallocation of basic education revenues system requires schools toidentify those students who are California's attendance reporting invest eligible for state aid. The attendancesystem requires schools to properly excused and thus Further, the much time and effortir. accounting for studentswho are not actually attending. absences as excused absences current system encouragesschools to classify questionable As a result, more emphasis is because of the otherwise potentialloss in revenue to the schools. students' attendance. placed by schools on attendanceprocedures than on increasing the Commission's report In addressing these findingsrelated to K-12 education in California, presents eight recommendations: the Education Code t. The Governor and the Legislatureshould enact legislation to amend authority for the State's proposededucation budget is given specifically so that approval it clear that the to the State Board ofEducation.Such an amendment should make of Education over the Board's authority Is superior tothe authority of the State Department activities of the Department. proposed budget for theBoard's activities as well as the expressly prohibit the The Governor and the Legislatureshould enact legislation that would 2. from issuing any policy State Department of Educationand/or the State Board of Education under existing law.The guidelines or other documentsthat are defined as regulations the Board to a reduction recommended legislation wouldsubject the Department and/or the Board lb found to have in its/their administrativebudget(s) if the Department and/or issued regulations as definedunder existing law. that encourages the coordination The Governor and theLegislature should enact legislation 3. the inclusion of many more existing of categorical funding atthe local level by allowing Coordination Act. The legislation categorical programs underthe School -Based Program

136 140 EXECUTIVE SUMMARY

The K-12 education system in California, which serves over 5 billion students, is funded by approximately $23.4 billion from state, local and federal governments. Of this total, the State will provide approximately $15.81 billion (67.6 percent), local funding will account for about S5.84 billion (25.0 percent), and the remaining $1.75 billion (7.4 percent) will come from the federal government.

The governance structure at the state level consists of a part-time State Board of Education, appointed by the Governor with Senate confirmation, and the Superintendent of Public Instruction who is an elected constitution II officer who directs the activities of the State Department of Education.Only 12 other states have a similar arrangement, although in one of the states the boardis appointed by the legislature. Most states have governance structuresin which administration of the school system flows from the board down to the chief.

The forces of tax reform, equity, declining enrollments and special educational needs have molded the current school finance system since the early 1970's. Some of the major effectson education and the calculation of state funding came from the court,ballot initiatives and legislation. The major events affecting K-12 education include the Serranov.Priest cases (requiring equalization in districts' base funding), Proposition 13 (which limited theamount of property taxes that could be levied by local government and had the effect of shifting the burden of school financing from local government to the State), Proposition 4 ( also knownas the "Gann limit', it placed a ceiling on state spending), Senate Bill 813 (the State'scomprehensive education reform package), and Proposition 98 (which established a constitutionallyguaranteed minimum level of state funding for local school districts and community colleges).

In general, education, is funded through t'yo primary methods.The core of educational funding in California is a system of allocating revenues to districts basedon the districts' average daily attendance (ADA) of school children.Based on ADA, the State calculates each district's revenue limit, which is the amount of general purpose revenue that a school district is entitledto receive from state and local sources.Categorical program funding is in addition to base funding for the revenue limit and is designed to provide funding fora particular program or type of student. Unlike the revenue limit, for the most part categorical fundsmust be separately accounted for and spent on designated purposes. For the fiscal year 1989-90, thereare 80 categorical programs and approximately $5.3 billion in categorical funding.

Admbistering the funds and services at the local levelare 1,010 individual school districts and 58 county officesof education. Each of these entities supports an executive and administrative staff, and each is responsible for various functions suchas accounting, budgeting, procurement and transportation.The districts vary greatly in size; Los Angeles Unified School District is the largest with over 570,000 ADA and Reservation ElementarySchool District is the smallest with an ADA of 10.

In January 1989, the Little Hoover Commission began Itsstudy on K-12 education in California.The Commission focused on the effectiveness of the State'seducation governance structure, the equity and effectiveness of funding categoricalprograms, the potential reorganization of districts, the potential regionalization of services delivery,and the efficiency of the State's

137 150 needs should explicitly emphasize that target groupstudents and instructional improvement be designed must be met, and that the systemfor monitoring performance of this program to validate compliance. schools Further, the Governor and the Legislatureshould enact legislation that would allow that federal law to commingle categorical funds andgeneral purpose revenues to the extent demonstrate that allows such commingling. After three years, the schools must achievement levels among compensatoryeducation students have either increased over district time, or are greater than the achievementlevels of comparable students in other schools.

legislation to base all appropriate categorical 4. The Governor and the Legislature should enact funding on indicators of need. To the extentpossible, such indicators should be foundin district demographics that are updated annuallyby the districts and analyzed annuallyby for the State Department of Education inreviewing and approving districts' application funding. legislation that would amend the 'sunset 5. The Governor and the Legislature should enact laws` (Education Code Section '62000 et seq.) toexplicitly prohibit the State Department of Education from restricting the local education agencies'flexibility in meeting the general requirements of the State's original program laws andfederal statutes.

provide sufficient funding for 6. The Governor and the Legislature should enact legislation to the advisory commission authorized by Chapter1229, Statutes of 1988, so that the commission can conduct .a study of the feasibility ofincreased consolidation of school districts and recommend statutory revisions based uponthe results of the study.The revisions should include fiscal and other incentives for theimplementation of consolidations that are determined to be feasible.

7. The Governor and the Legislature should enactlegislation to require the advisory commission provided for under Chapter 1229,Statutes of 1988 to expand its study to include a review of the activities of county officesof education and existing cooperative arrangements between districts and/or countyoffices of education. The legislation should require the commission to report to the Governor andthe Legislature the results of its study and recommendations for statutory revisions nolater than January 1, 1991, and should provide sufficient funding for a comprehensive study.

8. The Governor and the Legislature should enactlegislation that would revise the current attendance accounting procedures so that onlyactual attendance is counted toward ADA when determining base revenue limits, therebyeliminating the current process of verifying absences for apportionment purposes.Further, the legislation should encourage local education agencies to emphasize.the importanceof school attendance.

138 IJI I

ALTERNATIVE PROGRAMSAND STRATEGIESFOR SERVING STUDENTSWITH LEARNINGDISABILITIES AND OTHER LEARNINGPROBLEMS

Executive Summary

March 1989

Prepared for:

State of California Office of LegislativeAnalyst Sacramento, California

SRI Project No. 4692

Prepared by:

Patrick M. Shields, SRIInternational E. Deborah Jay, SRIInternational Thomas Parrish, Associatesfor EducationFii.Wae and Planning, Inc. Christine Padilla, SRIInternational

The conclusions of this report are those of the authorsand contractors and do necessarily reflect the iews of not the Office of LegislativeAnalyst or any ocher of government. agency Principles of Effective local Practice

We identified a set of four general principles that guided practicein situations where local educators are running "effective" programs to meetthe educational needs of students with learningproblems. These are:

All activities-- planning. budgeting. personnel decisions. service delivery -- concerning the problem learnerpopulation are directed first and foremost at improvingeducational services. We found that when school and district staffare driven first by student needs, they are able to devise effectivestrategies to deal with problem learners, using both general fund andcategorical programresources.

Efforts designed to address the needsof problem learnersare coordinated across programs. grades,and staff: problem learners are thergipoglitaioinirkil. Programpractices guided by a primary focus on students' educationalneeds require coordinated efforts in which program boundariesand staff labelsmean less than school resources and staff capabilities.

The three components of effectiveprograms for problem learners served with special education resources--prereferral. assessment. and instruction--are tightly coupled. Our findings suggest thatpre- referral activities are most usefulwhen they yield information that can be used for instructionalpurposes and that helps guide the formal assessment process. Similarly, assessment activitiesare most useful when they provide datathat can be used in the instructional process.

Programs for problem learners shouldbe systematically planned, implemented. and evaluated. Although effective practicescan result from the efforts of a concerned individual actingon his or her own, effective programs inour sample sites tended to reflect the systematic efforts of staff throughoutthe school, actively supported by the school and districtadministration.

Principles to Guide State Policy

Similarly, our findings point to a set of general principlesthat should guide future state efforts to support more effective localservices for problem learners. These are:

Resolve contradictory signals. Teachers and administratorsexpressed confusion over state policy regardingappropriate services for problem learners--especiallyover the appropriate role of special

140 r education resource programs. Local educators pointed out that the state's current focus on integrated services reflected in such legislation as AB 777 and SB 65 seems torun counter to the tradi- tional concern with compliance and separateprograms. Given local educators' unclear perceptions of state policy, it is imperativethat any new state initiatives be woven into a broader effort to send unambiguous messages to local districts and schools about the appropriate amount of integration between regular and categorical education programs.

Involve regular educators. State policies that are directed at improving the educational programs for problem learners should incorporate mechanisms that ensure the active involvement ofregular educators as well as categorical program staff. Accordingly, it may be beneficial to involve state-level administrative stafffrom various departments/programs in the development of suchpolicies and to use the resources of various stateprograms to fund the implementa- tion of these policies.

Offer incentives, not mandates.Teachers and administrators are committed to improving educational services for problemlearners, but they are typically overworked. State mandates for changes in how they educate children can easily be interpretedas unwanted outside interference and calls for them to increase theirworkload. State policies that offer incentives (opporVinities fortraining, small grants, professional recognition) to try outnew programs and practices appeal to these educators' interests,provide rewards for staff who make the effort to participate, andcan ultimately function as a more effective change agent than state mandates.

gktelaraviumaPrvichriilr. If the state is going to ask local educators to change how theyserve problem learners, it will have to provide the requisiteresources and support that such changes require. Local educators must be introduced to theproposed policy change and provided access toexpertise. Local staff need training in implementing the newprograms. In some cases, schools and districts may requiresome extra funds to maintain the new program.

In summary, then, we expect that themost effective state policy will be grounded in an unambiguousmessage to local educators that offers specific incentives for school and district staffto further integrate categorical and regular program efforts toserve problem learners. Moreover, we believe that these incentives have to be followedup with ongoing technical and financial support. In the following sections, we describe specificrecommendations based on these general principles.

141 1J Findings and Recommendations: Prereferral Practices andStudent Study Teams

We found wide variation in the extentto which schools carry out prereferral activities and in the nature of school-level student studyteams. Although some local variation is always expected, our results suggestthat schools that choose not to put SSTs in placemay b( sacrificing important benefits. SSTs can increase the appropriateness of referrals and redutethe total number of referrals to specialeducation..Student study teams, especially in schools that heavily involve regular educators in theprocess, can also improve the appropriateness of servicesto problem learners, improve school communication and coordination, and provide support forregular teachers in working with students with learning problems. In large part, these benefits accrue because SSTs provide a structured time andplace for professionals to come together to devise effective solutionsto the problems students face in the schools.

SSTs are costly endeavors, however, because they consumeconsiderable staff time. In schools in our sample, an average of 60 studentsare referred to SSTs in a single year, and SST members spend approximately498 hours on SST activities for these students. Salaries and benefits forthis staff time cost approximately $15,225per school. However, because SSTs inmost schools in our sample reduce thenumber of referrals to special education, about45% of these costs are offset by the savings in stafftime spent on conducting assessments for students who are not likely to qualify forspecial education.

Local Policy Recommendations

Because our findings suggest that prereferralactivities are most effective when they are systematic and ongoing andwhen they bring together the skills and resources of the entire school underthe leadership of the regular educationprogram, we recommend that:

Schools establish student study teams. Establish organized and ongoing teams of professionals representing differentprograms, grades, and strengths to address the needs of problemlearners throughout the school. We recommend that theseteams have an

142 J %.1 appointed leader who has the support of the school administration, and that the SST be charged with developing school policiesand practices for dealing with the needs of problem learnersin the regular classroom to the extent possible.

State Policy Recommendations

Because of their wide-ranging benefits to both students andinstruc- tional staff,.we believe the state should activelyencourage prereferral activity and SSTs. In particular, we think the state should:

Clarify its commitment to student study teams. The first step the state could take is to send a strong message about theimportance of prereferral activity and the usefulness of SSTsor other mechanisms designed to ensure the effectiveness of prereferralactivity.

Ensure the availability of training and technicalsupport. The success of prereferral activity depends largelyon training and technical support. Although the State Department of Education continues to sponsor SST training, it shouldconsider other methods to ensure the availability of ongoing technicalsupport for both special and regular educators. Training might be jointly sponsored by the Special Education and InstructionalSupport Services divisions of the State Department of Education. We estimate that the provision of training to 80% of the state's schoolsover a 10-year period would cost less than S400,000 annually.

Consider providing other financialsupport. In addition to providing training to local districts, state policymakersshould consider local-level incentives for implementingstudent study teams. For example, the state could providea stipend to the chairperson of the SST. Payment of one extra hourper week to the average teacher would cost a single school $978 annually. Compensation for SST partici- pants could be provided statewideor to selected schools through grants similar to those providedas a result of the state's SST/SIM grant from the U.S. Department of Education.

Findings and Recommendations: Assessment

We found less innovation acrossour sample schools' assessment activities than we did in the othercomponents of the special education program. Most schools rely heavily on standardizedtests, and psychologis:s and resource specialists playthe predominant roles. There are differences. however, in the relative influence of psychologistsand resource teachers and in the relative influence of district versus school policies. Also, school staff differ in their perceptions of theamount of testing required by law.

This disagreement is reflected in the widerange of assessment costsacross schools in our sample. Nevertheless, most schools investconsiderable resources in conducting special educationassessments. On average, assessments cost $523, accounting for more than one-fifth of the total-cost of the resource specialistprogram.

In part, the investment in assessment appears to be made at theexpense of direct instruction. In schools that devote considerableresources to assessment, resource specialists spend, on average, II hours per week lesson direct instruction than those in schoolswith low-cost assessments.

Many resource specialists in our sample believe that theresources dedi- cated to assessments are disproportionate to the benefits. In particular, some educators questioned the efficiency of expending significantresources differentiating .iiong a set of problem learners, all ofwhom need assis- tance. Questions were also raised about the value of the typicalassessment for fashioning an effective instructional response to students'needs. The reassessment process came in for particular criticismbecause it generally failed to offer teachersany new information. Finally, we found thata number of factors, such as the availability of alternativeprograms, can influence the eligibility determination :f problem learners(particularly "borderline" or "grayarea" students) justas much as special education assessment data.

The high cost of assessment (we estlmate that nearly$85 million is spent annually on resource program assessmentsacross the state), the widespread lack ofagreement on the purpose of assessment activities, andthe wide variationin methodologies and leve's of effort raise questionsabout whether the investment in assessment is-oney well spent. The question such figures raise isnot whether assessments should take place at all, butrather whether the benefits are sufficient to offset the costsfor marginally impaired students.

144 - J Local Policy Recommendations

We recognize that the policy issues related to the assessment process are more appropriately dealt with at the state level. Nevertheless, we believe there are steps district and school staff can take to improve the utility of the assessment of problem learners.

District special education staff should work to integrate district assessment Policies and practice with school-level efforts to address the needs of problem learners. We found that many of the problems in the assessment process reflect a disjuncture between district staff's beliefs and rules about "correct" assessment procedures and the needs of school instructional staff. Effective district-level assessment policy should provide school staff with clear guidance and assis- tance, while trying to mold the assessment process to the school- level needs.

School-level assessment activities for problem learners should be Directed explicitly at Providing information needed in the instructional process. The high cost of assessment can be justified only if the process yields useful data beyond the determination that a student should be placed in a resource room. Potentially effective practices incluue increased use of curriculum-related assessment tasks, the use of diagnostic teaching techniques, and the simplifica- tion of the presentation of assessment data to teachers.

Districts and schools should reexamine the purposes of the reassessment process. Reassessments too often represent little more than a routine compliance step, rarely yielding information that lead to a student's transitioning from one level of service to another. we suggest that districts and schools reexamine their reassessment process with a view toward making it more useful for instructional or other purposes.

State Policy Recommendations

The study suggests that the state might takea number of steps to improve the usefulness of assessments and reduce theircosts. Generally, these recommendations involve providing betterguidance to local educators. Specifically, we suggest that the state:

clariets-co of regular educators in assessments. In spite of ".egislative mandates for multidisciplinary assessmentteams, regular educators typically play a minimal role in assessments. Increased 'nvolvement by regular educators could help focus theassessment

145 process on designing effective instructionalstrategies. We suggest, then, that the state clarify howregular educators might best participate in the assessmentprocess.

Clarify that alternatives to standardizedtests are acceptable. Staff in our sample schools typicallywere unsure of the extent to which they could use assessment methods other than psychologicaland achievement tests. Yet, local educators were interestedin finding alternative mechanisms that wouldprove useful in designing instruc- tional programs and that couldbe used reliably with minority students. The state should further evaluatealternatives to the "standard battery of tests" thatmany districts use to conductassess- ments. If the state decides that thereare appropriate alternatives, it needs to communicate those todistricts and schools.

Provide ouidance on appropriate levelsof assessment activity. Educators' uncertainty as to what thestate considers necessary to diagnose a learning disability is reflectedin the variation in the amount of time and resources expended in different schools. Recent legislation (SB 2059) calls foran analysis of existing eligibility criteria regulations and guidelinesfor the identification ofpupils as individuals with exceptional needs. We suggest that these tasks include a consideration of whatconstitutes a reasonable effort toward conducting a special education assessment that meetsthe spirit and intent of federaland state legislation.

Clarify exit criteria for specialeducation. The state should provide more detailed guidelines concerning the criteria thatare to be used to assess a stuaent's ability to transition fromone level of special education service to another or to exit from specialeduca- tion. In many schools in our sample,the reassessmentprocess is pro forma; relatively few studentsexited from the resource specialist program or were given a different placement. Statewide data suggest that transfers from one level of schoolingto another have more to do with exiting from the resource specialistprogram than special educationassessments.

Fund demonstration protects. We suggest that the state begintaking active steps to explore alternative assessment strategies. The state could select the most promising alternatives from theresearch and practice in other states andfield test their cost-effectiveness. Section 7 of SB 2059 providesone mechanism for undertaking this task.

In making these recommendations, we recognize thatthe assessment process will always be constrained by the availabilityof appropriate services. Whatever assessment methods are used, there will be studentswho need specialattention but do not qualify for special education. Without adequate alternatives, there will be pressures toserve these students in the resource specialistprogram.

146 indinqs and Policy Recommendations: Placement and Instruction

In our examination of how schools provide instructional services to resource program students, we found that the three "models" (pullout, :onsultation, and the Strategies Intervention Model) are rarely alternatives

In practice. Pullout and consultation are terms that help to definea continuum of services, ana almost every school we visited uses some combina- tion of the two. For its part, the strategies model typically requires both

pullout services (students are given instruction in learning strategiesapart from their regular education peers) and consultation (as specialists and classroom teachers work together to help the student apply those strategies in the regular education setting).

We argue, then, that schools are usefully differentiated not bytheir service delivery model, but by the overall degree of integration ofand coordination between special and regular education efforts to addressthe needs of problem learners. Moreover, our findings suggest that the specific method used by a particular teachermay be less important than the quality of those services. Resource specialists report that appropriate instructional

support in a pullout setting is superior to poorly designedconsultation services that minimize the specialist': abilityto reach any students; a well-functioning program of consultation inwhich specialists and classroom teachers work together is superior to pulloutservices that may foster fragmentation in a child's day.

The findings do suggest, however, that schoolsthat have established more integrated programs are more likely topromote greater communication and cooperation among staffana are more likely to have established a broadrange of service delivery options. includingconsultation services. Schools with integratedprograms are typically also able to serve a higher number of problem learners than schools with lessintegrated services. Ultimately, our findings suggest thatschools are better off if they work to coordinatetheir various resources inan integrated effort to deal with problem learners.

Such integration doesnot require the abolition ofresource rooms--in fact, we found that most sites running integrated and coordinated programs offera

147

lv continuum of services to problem learners, includingopportunities for both in-class and pullout services. What integration doespreclude is the establishment of separateschool-level fiefdoms for differentcategorical programs in which staff paid from different sources workto maintain the integrity of theirprogram at the expense of a coordinatedassault on the difficulties faced by the school's problemlearner population.

Local PolicyRecommendations.

Our findings suggestthat many schools and districtscan do much more to integrate and coordinatethe services received by problemlearners. Our first five recommendations address this issue of integration. Our last recommendation calls forfurther consideration of study skillscurricula.

a team to address the Regglittmesial,arnaffhavetoworkasneeds of problemlearn rs. tion is oftencompromised when Effective instruc- a student is passedback and forth between isolatedsettings run by individuals who donot communicate regularly. Instructional planning, should be coordinated implementation, andevaluation among all the professionals bility for the who hold responsi- instruction ofan individual student. coordinated services The need for does not, however,dictate the service model or servicesetting. delivery

Schools and districtsshould consider typical resource broadening the roleof the specialist. We witnessed programs in which a number of effective resource specialists playbroader roles, team teaching,modeling effective including instructionalstrategies for classroom teachers,serving as consultants designing and to classroom teachersin monitoring instructionalprograms for problem and participatingon grade-level teams. learners. Such effortsmight make better use of thespecialist's skills ties for collaborative while creatingmore opportuni- team efforts. include provisions Any such effortshave to for the specialistto reduce other the amount of duties, suchas direct resourceroom instruction.

Jyisa§niriwhihreutesecialitsaraagkedtoassumenwr:iolessch 1 an di trict dministrator h uld arrangements. on ider 'oint funding joint fundingrefers to the specialist's salary practice by whicha is paid fromtwo or more Sucharrangements can facilitate programmaticsources. For example, a specialist's assumingnew roles. a resource specialistwho is funded education and school from both special improvement funds could of a teamduring a school's more easily becomepart for one reading period andtake responsibility subgroup of studentsdefined by their program labels. needs, not their

148 I t Li Schools and districts should maintain a continuumof service options for problem learners. A range of placement and service options offers students with different learning problemsalternative services, facilitates small transitionsfor students attempting to spend an increased percentage of their day inthe regular classroom, and increases the likelihood of regular andspecial education inter- action. This continuum might include short-termtutorial services, in-class placement with instructional aide support,in-class place- ment with a modified program monitoredby the resource specialist. and placement in the resource room for one ortwo periods per day with direct instructional assistance from aspecialist.

Schools should make efforts to designinstructional programs that make it possible to decrease the amountof time resource program Itticsssici...E2gleirreularclassrooni. Eventually, all resource program students have totransition back into regular classrooms, or ultimately into the real world.Thus, although segre- gated pullout services may be justified inthe short term, if a school adopts the general principle that problemlearners are the responsibility of the entire school, the solution is notlong-term separation from the regular program out broadening the scopeof the regular program to better meet the needs of students with a rangeof abilities (e.g., ensuring that regular classrooms areappropriately modified or problem learners are provided adequate supportsystems).

Secondary schools should consider adopting a learning-strategies- based curriculum. Our study was not sufficiently focused on the Strategies Intervention Model to endorse unequivocally theteaching of learning strategies in secondary resource programs. Nevertheless, a significant subset of theschools we visited that had adopted the Strategies Intervention Model were axle to provide evidence ofreal academic gains. The strategies model also places emphasis on coordination and collaborative efforts.

State Policy Recommendations

Local efforts to foster more integrated orograms depend in part on state-level encouragement and assistance. 1-ere, we outline a number of steps the state should consider if it wishes to foster more integrated programs at the local level.

Encourage Integrated Service Within the :urrent Legal Framework--Our first set of recommendations, which focus on steps the state can take to encourage more integrated services, are designed to be implemented within the existing legal and fiscal framework:

149 0 Reouire that all segregated (e.g.,pulloutl instructional activities problem learners npay___...,fredaterforrlemlrnersbcororrstatulinked to specific remediation goals. Too often, segregated services for resource program students become institutionalized. We believe that the state could takea step toward remedying this pattern by making segregated services the exception ratherthan the predominant patter- of service. For example, the state couldrequire that IEPs that ca': for segregated services for RSPstudents delineate clear and short- term goals that can be achieved onlyin a separate setting, as well as a timeline for returning the student to the regularclassroom. S ecif the editions under which resources ecialists and other categorically funded teachers) can serve nonidentified students. Ir a majority of our sample schools, specialistsprovided instructiona: services to students not identified forthe resource room program. Such services varied significantly,but they were typically justifies by specialists as "win-win" situations: resource program students were helped by not being ,singled outas different, while nonidenti- fled problem learners receivedneeded services. Some teachers believed sucn services were perfectly legal; others doubted thatthe; were allowable under a strict reading ofstate law, but argued that they were necessary. Tedchers need clarificationconcerning when services to nonidentified studentsare allowable.

Encour e oistri is to 'oint-f Adresource s.-cialists. A clear signal from Sacramento that jointfunding arrangements areappro- priate might facilitate lc-2.1-levelservice coordination.

Continue to support staff developmentactivities that hqlo resource specialists and classroom teachersto work more closeivtogether. Local educators need extensivetechnical assistance and ongoing training opportunities if theyare to implement new methods of instructional delivery. In particular, we recommend thatthe state increase its support of trainingand assistance for the methods of teaching learning strategiesat the secondary level andways for specialists to act asresources or consultants to classroom teachers.

Encourage More Integrated Service Through Changes in the CurrentLegal Framework--Another set ofpotentially promising policieswould require changes in the current legal and fiscal framework. Because of the signifi- cance of such a step. we include the following set of policychanges as proposals for the s:ate's consideration. The details of such changeswould have to be developec by the state in coordinationwith various interest groups. We believe that these proposals provide a solidground on which to begin such discussions.

150 .4 U Consider allowing_for differential caseloads. Current funding arrangements provide little incentive for specialists to declassify students and no incentives to serve nonidentified problem learners. One option that might address these issues is to allow for differential caseloads. Such a plan might have the following characteristics:

- All students identified for and placed in the resource program retain the right to the same services they currently receive.

- The resource specialist's caseload cannot go above 28 identified resource program students.

- If the resource specialist's caseload drops beloW 28 identified students, the specialist can serve nonidentified students up to the maximum of 28, counting nonidentified students at the rate of .5.

Such a plan guarantees all identified students their legal rights to services; it ensures that a resource specialist is not forced to serve regular education students in addition to his or her present responsibilities; and it allows for greater service to problem earners who are not identified for the resource program. As long as specialists kept their "full" caseload of 28 (e.g., 24 RSP students and 8 regular education students), their funding would not come. into jeopardy.

Consider the creation of a new category of resource specialists with broader school-level responsibilities. A second option is to create an additional category of specialist with greater freedom to consult' with classroom teachers, review the progress of problem learners, and provide inservice training to classroom teachers. We could envision a new category with the following characteristics:

- The specialist would have fewer direct instructional responsibili- ties for identified resource program students, serving a larger portion of these students by monitoring their progress and making suggestiors to regular education teachers for classroom modifications.

- The specialist would have a number of new responsibilities, including monitoring the progress of a small number (5 to 10) of nonidentified students; some administrative oversight for the provision of services to problem learners throughout the school; and carrying out staff development workshops for other teachers.

- The specialist credential would require additional graduate work and the specialist's work year would be increased from 180 to 200 days (requiring an increase in salary).

The creation of such a category of "specialist" could be optional for schools and districts; some large schools might choose to have both a traditional resource teacher and a "specialist." The new specialist position would require significant resources ana effort, however.

151 A new credential might have to be developed. Moreover, if the new specialist's positionincluded an extra month's work each year, this would require over $4,000per specialist. Assuming that 10% of the current resourceteachers would opt for a specialist credential, the statewide cost insalary and benefits alone would be close to $3 million. The currentshortage of specialists statewide, though, raises the question offeasibility for such an option at this time.

LLi__.g.__attL2LQLf(JfglPConieraltrintheldjnreOUrCeSeCialiStS. The only way districts and schools can receive money to fund aresource teacher is to identify,assess, and label a set of problem learners and maintain those students in the special educationresource pro- gram. Lowering the numberof students in the program createsa poten- tial loss of funds; serving students not actually identifiedraises questions of improperuse of supplementary categorical resources. These factors tend tofoster the development of more segregated programs at the school level. One proposal for addressing these problems would be to alter the basic fundingarrangement altogether. We have in mind a policy that would change theway schools receive funds for resourceprogram services and that would:

- Provide all schools with a guarantee of supplementalresources to deal with their problem learner populations basedon student enrollment, independent ofhow many students are labeled"RSP."

- Be equitable for all districtsthrough the use of standardized estimated costs of services forproblem learners.

- Increase flexibility in theuse of these resources to meet the needs of all problem learners,while maintaining existing guarantees to identified students.

Like our previous proposals, this alternative is basedon an assump- tion that all current guarantees to identifiedresource program students be maintained while allowing for increased flexibilitywhere and when local educators deemit appropriate. This alternative differs in that it explicitly radically severs the ties between funding forresource program services and the identificationand labeling of students. short: In schools would be funded on the basisof their overall enroll- ment. not t.,n the basis of the number ofRSP students.

A school-based resource program funding allocation hasa number of inherent advantages. If fully implemented, it wouldprovide schools with generally equal resources to serve problem learners,and it would provide districts and schools with considerably more flexibilityin providingresource program services. Importantly, changingthe basis for funding wou,J not change the requirements thatlocal educators identify, assess, and label students when warranted. It would, however, reducepressure to identify and label students simply funds. to be assured of

152 `-/ CALIFORNIA LEGISLATURE SENATE COMMITTEE ON EDUCATION Senator Gary, K. Hart, Chair Senator Rebecca Q. Morgan, Vice Chair

Hearing on A PLAN TO IMPROVECALIFORNIA'S LOWEST PERFORMINGSCHOOLS Report of the Task Forceon Schools With Underachieving Students

June 25, 1988 To develop ways to use these lessonsin many more schools, in Januaryof 1988 Senator low-performing Gary K. Hart andRebecca Q. Morgan, the Chair andVice-Chair of the formed a task force Senate EducationCommittee, comprised primarilyof principals and from schools thathave turned around. teachers (See Task ForceMembers, Appendix A.) The task forcewas asked to devise lead to substantial a plan that could improvements within the large number of next five years ina the state's lowestperforming schools.

The task force findings and recommendationsfollow:

I. Characteristics of Low-PerformingSchools Low-performing schools share manycommon characteristics. studies and theexperience of task Recent force members indicatethat low-performing schoolstypically have: * School staffsthat set lower their students. standards for, andexpect less from, o An academic curriculum which isdifferent from, and less rigorous than,the curriculum significantly For example, fewer at higher performingschools. advanced math andscience courses and less demandingwork is reauired are offered, in core academiccourses such as English and socialstudies. Poor and minority often "tracked"into this less students are demanding curriculumat a young age, from which theynever emerge. come to believe that As a result,many students they are the problem-- that they cannot learn. A large numberof these students drop out. Among those who eventually giveup and stay, academicperformance and self- esteem are seriouslycomtromised. o Teachers who are less experiencedthan their performing schools, colleagues at higher and more teacherswho are assigned their areas oftraining or expertise. outside of * Lessaccess to and participation ing schools to in staff trainingaimed at help- improve curriculumand instruction. o School manaaement patterns thatfail to involve ing problems and staff in analyz- acting upon them. These schools reflective; they donot engage staff are not self- provement or designing in planning forschool im- school reformefforts. poor use of thediscretionary They tend to make intended to improve resources that areavailable and curriculum andinstruction. They also fail to hold students andparents accountable for regularstudent attendance, appropriatestudent behavior, students of allassigned work. and completion by o strained or counterproductive relationshipswith their district offices. Instead of providing targeted support and assistance, districts tend to .cake too many bureaucratic demands of these schools, diffusing the time and energy of local school staffs.

o School facilities that are inadequate, out-of-date or unsound; most of these schools also face seriousovercrowding.

= Patterns that isolate tnem from otner community resources,such as health care, counselling, or other socialservices that could address basic family needs and thus allow students to focus more attention on learning. While this is a long and troubling list of problems, the task force strongly believes th there are solutions to these problems. Above all, improvement it :ontingent upon a serious commitment on the part of school staff to improve these schools. The basis of this commitment is a belief that all students can learn regardless of their economic status, race or ethnicity.

II. Management and Teaching Staff Effectiveness The key to improvement is the effectiveness of the school's manage- ment and teaching staff. Schools are collections of people--staff and students. The task force rejects the notion that student com- position alone determines student performance. School staff, and the support they receive from district staff, parents, and the com- munity at large, can turn a school around. (See examples, Appendix B "Schools on the Moves.) For this to happen, however, staffs..

need: . o To become confident that their students can achieve at higher levels, and that student achievement is best accomplished through rigorous classroom instruction for all students.

o Help in learning how to analyze--and analyzing -the strengths and weaknesses of their school, and in devising a dynamic plan for schocl improvement. Such a plan must look carefully at the indicators used to measure staff and student progress.

o Help in organizing for change, including strengthening school level leadership skills, creating school leadership teams, gain- ing support from staff, students and parents, and redirecting student energy and interest toward school goals.

o Help in carrying out change, including selecting priorities; keeping the focus on a rigorous curriculum, connecting with re- source people, training and materials; and making better use of existing resources. o Continuing assistance throughout the school improvement process, including constant monitoring and periodic reports of progress, modifying the plan as needed,and maintaining high expectations for students and staff. III. A Plan For Action

The problem of low-performing schools is serious enoughto demand strong intervention, even outside intervention, if assistanceis provided over time and onlylimited progress is made. Recently, Itate policymakers and educatorshave proposed lifting local school boards control from over schools that are experiencingacademic failure. The task force concludedthat outside intervention will be necessary if indeed local efforts to build thecapacity of such schools fail. At a minimum, school staffand school board at these schools should know members that they will be heldaccountable for implementing approaches thatgreatly increase opportunities their students to succeed. for The task force believes that outside interventioncan be effective only as a last resort, andonly followinga series of specific actions designed to improveschools withina three to five year period. The task force spent muchof its time devising statewide strategy to help a specific low-performing schoolsinitiate and implement an improvementprocess. The Process

The first step is to identify a team ofpractitioners, talented educators whose experienceincludes helping to performing schools. turn around low- These school improvementconsultants should be given leaves of absencefrom their regular with as many as five assignments to work or six schools ona continuing basis two to three year period, over a beginning in thesummer of 1988. Based on their particularexperiences and expertise, tants will be matched with the consul- schools that needassistance. Consul- tants will work closely withstaff at low-performing trict administrators, lccal schools, dis- school boards and thebroader local community in a directedimprovement process, lowing steps: to include the fol-

Year 1: Assemble key administrative and instructionalstaff from each low-performing schoolfor a Summer 1988 with the school improvement training session consultants and otherkey resource people. The purpose cf thistraining is to sonnel from these schools prepare school per- to conduct a schoolwidestudy during the 1988-89 schoolyear. The schoolwidestudy will includea program quality review--a carefulstudy by the school of the strengths and community weaknesses of thecurrent instructional program. Following the review, staff from low-performingschools will have opportunitiesto visit exemplary schools andprograms to obtain ideas and adviceregarding how to year training will culminate proceed. The first- with the selectionby the school community of a LeadershipTeam, broadly school site staff, to representative of the develop a schoolimprovement plan.

_t_ 156 J o Year 2: Organize in thesummer of 1989 an Institute for the School Site Leadership Teams, followedby intensive training of staff who have made a commitmentto stay in these schools for the duration of the school improvementprocess. The first priority should be training in languagearts, targeted to the elementary, middle and secondary school levelsas appropriate. Elementary schools that have already focusedattention on language artscan proceed to mathematics and science;secondary schools can bring staff in each disciplinetogether to do intensive workin response to the school improvement plan. School improvement consultants will play a key role byhelping to identify and utilizethe best possible state and regionaltraining, material and personnel resources and by sharing informationon effective practices in California and elsewhere. The consultants will alsobring to- gether groups of schools undergoingthe same improvementprocess, so that they may provide mutual support and problem-solving. Dur- ing year two, additionalresources will be needed in the targeted schools to enable staff to have time for'planning andintensive training. Off-site planning and visitationsto exemplary schools will continue. o Year 3: Hold a refresherInstitute for the School Site Teams, so they may assess Leadership progress and gain renewed vigor. The institute will be followed by intensive training inmathematics, science, and social studiesin response to schoolimprovement priorities and targetedto elementary, middle andsecondary schools as appropriate. Continue Year 2 activitiesas needed. The Substance

The planning and change process at each school and district,and in each community, willdiffer depending orities. upon local needs and pri- Individuals and groups at alllevels will need to work improve the targeted schools. to

Districts o District plans and assistance. Schools can do muchmore with the active support andassistance of districts. thought to preparing Districts must give a districtwide plan designedto support im- provement efforts in low-performingschools. Plans should include r.ys to insure that qualitystaff development, material sonnel resources and per- are available to these schoolsto meet the needs identified in school-levelreviews. Schools that are experiencing difficulty often look fora "auick fix"; they tendto believe that a prepackaged staff developmentor curricular program can provide "the answer". Schools that have turnedaround know that there is no easy answer--school reformis hard work. Districts and school improvement consultantscan assist low-performing identifying and schools by brokering high qualityservices to support the school improvementeffort. Accountability and Flexihilimv. District pians shouldspecify how .scnoois will measureprogress toward locally ment objectives. determined improve- However, districtsshould grant local substantial autonomy while schools encouraging innovativeapproaches to school site objectives. Districts should hold able for results, but schoolsaccount- should neitherdiscourage innovation dictate specific programsor procedures. ncr

:mprovement of Sohool-triot.Relations. Conflict betweenthe central administrationand tne scnoolcan be a majcr obstacle achieving improvement to at the school level. Local school may need to focus onways to help resolve boards schools and the central conflicts betweenlocal district administration,so that school districts can providethe support and schools need to improve. assistance thatlocal

o Consideration of Chances in SchoolPersonnel. teachers who havechosen to teach Good schoolsneed who are unhappy about in their schools,not teachers their assignmentsor who have made short-term commitmentto the school only a prove, low-performing improvementprocess. To im- schools shouldbe afforded in selecting andretaining teachers. more flexibility teachers should have Both the principaland the a say about whichnew teachers to their school. Teachers and are assigned ted to the school administrators whoare not commit- reform processshould be reassigned. evaluations should Personnel insure thatteachers and unwilling or unableto meet high administrators whoare other work. standards arecounselled to find

Schools

Focus on Instruction. Thefocus on the on the instructional improvementprocess will be program. All students a rich, common need to beexposed to core curriculum.Teachers and work together administratorsshould to make changes ininstruction and necessary toassure student programming as success with thecore curriculum. High Expectations for StudentAchievement. teachers needto convey high Administrators and performanceexpectations to students duringclassroom instruction their ingprocess. and throughoutthe school- oStaff Development. School administrators need timetogetner, away from and instructionalstaff out the students, in the school Year. The best summer and through- available trainingresources must be made to all staff inthese schools, ! routinelyare made available just as suchresources to higher performingschools. Student Advising. Students need . and goals to discuss their with adults whowill listen plans, needs assistance. and providesupport and student In some schools,teachers have advisor in "schools assumed the roleof within schools". Students and

1 158 - teachers can identify with these small school units as a sense of community is fostered and fewer students are lost in the shuffle. In other schools, counselors are provided time to work directly with students in a classroom, small group or individual setting. Other schools depend upon parent and community volunteers topro- vide students with much needed adult role models, advisors and advocates.

Community Officials and State Policvmakers

Attention to the External Environment. The success of schools is not independent from the larger community. Crime and unemployment in the surrounding area impact the everyday operation of schools. These factors also influence student confidence in the belief that education can make any difference in their lives. State and local elected officials must intervene to insure that communities are safe and that employment is available to those who work hard to achieve. o Coordination of Social Services. Schools have been asked to do far too much in recent Years. staff are expected to be nurses, counselors, probation officers, job placement special- ists and social workers, in addition to providing highquality instruction. It is impossible and inappropriate for schools to meet all of these demands; education, particularly forpoor and minority students, is sufferirg as a result. Therefore, commun- ities, particularly those with low-performing schools,must con- sider ways to coordinate existing social servicesso that student and. parent needs are addressed and schoolscan get about the bus- iness of instruction. Schools can provide referrals, but regional entities should be strengthened or, in nearly allcases created to better plan and coordinate the provision of health, mental health, and social services. State policymakers must lend their support to coordinated social services to insure both cost- and program-effectiveness. o Effective Parent Involvement. The role of parents in the school improvement process should be reassessed. Recent research sug- gests that parents can be most effective when directly involved in supporting the education of their own children;e.g., reading regularly to and with their child, helping their child withhome- work, discussing their child's progress with teachers. These efforts should be supported, along with parent involvement in setting overall school Improvement objectives. Too many parent advisory groups diffuse energy and effectiveness. There should be no more than one parent group required by law foreach school. o Initiatives Aimed at Youna Children. The aiguments for initia- tives aimed at younger children, for example, in therecent report of the Committee on Economic Development,are compelling. State and regional agencies should consider ways tocreate or augment pre- and postnatal care for high risk mothers and follow-

159 I ( 2 up care and developmentalscreening for infants; cation for mothers and parenting edu- fathers; family healthcare and nutri- tional guidance; and quality preschool andchild care services for three- andfour-year olds. This will help to when they enter insure that elementary school, studentswill be healthyand developmentally readyto succeed in school.

IV. Monitoring andIntervention

School improvementefforts must be carefully ated. monitored andevalu- If, after a reasonabletime, local improvement met, outsideintervention will be reauired. goals are not should be held Schools and districts accountable for measurablestudent progress clearly stated goals. The school improvement toward carefully monitored process should be through use of multipleindicators. tion to testscores, ways to chart In addi- student and staff progress include:measures of attendance; incidentsof vandalism;measures of student truancy;student, staff and parent perceptions ofthe school and theinstructional grades; rigor of program; numbers of "D"and "F" curricular offerings;and number ofstudents enrolled in advancedcourses.. Longitudinal information on student data can alsoprovide performance at thenext level, suchas success in achievingemployment or admission To the extent to higher education. that test scoresare used to baseline testing measure progress, the period will takeplace in the second afford time inthe first year for year, to program design. schoolwide study,planning and

The state mustprovide a statutory framework andresources neces- sary to support schoolimprovement and monitor studentprogress. Clearly, additionalresources must be allocated within these to and redirected schools to supportthe intensive recommended by the task training andsupport force. The state mustinsure that such resources are used toauament, and not lar and instructional supplant, thecore curricu- school programs. Beyond that, the should providesubstantial flexibility state to local schoolsand dis- tricts to consolidateresources for the school and to useresources as they see fit. improvement effort,

The state shouldinsure that local have the school districts,and schools, resources and assistancenecessary to carry improvementprocess proposed by the out the school any intervention. task force prior.to and during Schools thatdemonstrate significant enabling underachievingstudents to succeed progress in and rewarded. If after a reasonable should be recognized period of time--twoto three years--school improvementgoals are not vention in being met, outsideinter- low-performing schoolswill benecessary. should allow forthe governance of State law the hands of school districtsto be placed in an experiencedpractitioner, as that the stepsneeded to improve necessary, to insure out. low-performing schoolsare carried

160 California Commission onEducational Quality

REPORT TO THE GOVERNOR

GOVERNOR George Deukmejian June, 1988

161 APPENDIX C SUMMARY OF REPORT RECOMMENDATIONS

SETTING EDUCATIONALGOALS AND STANDARDS

1. The Commission recommendsthat legislation be enacted Education to establish to require the State Board of a representative statewide task forceof educators.parents, business leaders, and other citizensto clearly identify Statements of of California's K-12 educational desired expectations forgraduates system. mcluding noncourse specificrequirements, such as citizenship, demonstratinga concern for others, anda commitment to democratic ideals. these expectancies have been Once identified. grade-level standardsshould be establishedto lead to the achievement of thoseexpectancies.( Page 61 2. The Commission recommends that the State Departmentof Education developcurriculum and programs which implementthe goats specifiedin the State Constitution and Code Section 44806 to provide in Education more emphasis on nonviolence andgood citizenship. (Page6) 3. The Commission recommends that legislation be enactedto require a school safety plan each school and thatcounty offices of education. for or the appropriate intermediateorganization, be required toreview and approve the plans. (Page7) 4. The Commission recommendsthat a percentage of the through the Office of Criminal discretionary State fundsnow available Justice Planning, the YouthAuthority, and the Federal-State Advisory Groupon Juvenile Justice and Delinquency Prevention be designatedto assist with implementing school safetyprograms. ( Page 71 5. The Commission recommends that the State Departmentof Education, in the State Board of Education.the Department of conjunction with the Auditor General develop Finance. the State Controller'sOffice and operanonat definitions of varioustypes of reserves for school districts and identify "adequate"and "inadequate" of districts. (Page 9) reserve expectancy levels forvarious sizes 6. The Commission recommendsthat the Department of Education be requiredto review the purpose of all data requests and eliminatethose that duplicate other questionable value in relation requested data orare of to the cost of compilation.( Page 91 7. The Commission recommends that ail school districtsuse multi-year financial planning that the State Departmentof Education and for multi -year spending plans contract with financial consultantsto develop models for tse by localeducation agencies. The accommodate differencesin type. size. and location plans should population served. (Page 111 as well as make-up of the student S. The Commission recommends that a base fundingallocation model be developed force with representation fromthe Department of by a task Legislative Analyst's Office. Finance. Department ofEducation. appropriate legislative fiscal andpolicy committees. and other principal participants in K-12education. Page 131 9. The Commission recommendsthat all sznool district :he same percentage change progrvn funding be annually adjusted by as cieterrntneci by acommon formula. i Page 15)

162 75 10. The Commission recommends that the currentsingle annual cost-of-living adjustment be replaced with dual adjustments: (1) a Base Program MaintenanceAdjustment to cover costs of salary schedule maintenance and operating expense priceincreases: and (2) a Salary and Benefit Increase Adjustment to cover salary and benefitenhancements. (Page 15) 11. The Commission recommends that legislationbe enacted to require the Superintendentof Public Instruction, upon findings of a base revenue limitdeficit. to continue to allocate base revenue limit apportionments at a ratewhich would provide full funding for the year to the level of the February estimates. In this event, the Statewould appropriate sufficient funds in the annual deficiency bill to fully fund any actual deficit inthe State School Fund. (Page 16) 12. The Commission recommends that funding forSmall School District Transportation, Small Continuation High School start-up, Necessary Small Schools,and Meals for Needy Pupils be rolled into the base revenue limit (Page 18) 13. The Commission recommends that a revenue limitworksheet task force be convened by the State Department of Education for the purpose of makingtechnical changes to simplify the revenue limit worksheet. (Page 18) 14. The Commission recommends that a positiveattendance system model be implemented on a statewide basis after the Department of Education reviews thehistorical excused absence rate data. (Page 20)

MONITORING AND ASSESSMENT

15. The Commission recommends that legislation be enacted torequire the State Department of Education, with approval of the State Board of Education, todevelop a standardized statewide testing system which measures individual student competenciesagainst the newly recommended statewide student performance standards at everygrade level; is State and nationally norrned; replaces local minimum proficiency tests:and provides for the timely reporting to schools of test results classified, among other ways,according to the sex. ethnicity, and socio-economic status of students. (Page 23) 16. The Commission recommends that the Miller-UnruhReading Basic Program be amended to allow locally determined instructional delivery methods. (Page 25) 1'. The Commission recommends that the Administration continue toallow program statutory and regulatory provisions to sunset if the result might beincreased local management authority. (Page 25) 18. The Commission recommends that thecategorical program sunset statutes be amended to refocus the State's evaluation efforts on the allocationof funding, in contrast to the current emphasis on evaluating program delivery methods. (Page 26) 19. The Commission recommends that the systemof monitoring student performance be modified to provide for the measurement of outcomes againstestablished standards for all students. including special categorical student populations.(Page 26) 20. The Commission recommends thatlegislation be enacted to incorporate into the State and local school quality indicators. or into a similar monitoring system.annual standardized assessments of student progress in noncoursespecific areas not measured by CAP. but included in the desired statewide expectations, as well asacademic areas.Page 28)

21.The Commission recommends that legislation beenacted to require the State Department of Education to report CAP data in a manner which indicateseach school's overall statewide

163 U ranking and improvement rates, in additionto reporting by comparison to other schools with similar student backgrounds. These schooland student performance ratings should be provided annually to all parents and shouldreflect the performance of students and schools in comparison to other students and schoolsstatewide. (Page 28) 22. The Commission recommends thatlegislation be enacted to provide criminalsanctions for willfully erroneous reportingor nrreporting of school crime statistics: to transfer the administrative responsibilities to,41,3 Department of Justice; to requirea more timely dissemination of the information agencies: and to study ways for obtainingmore accurate information, such as comparing schoolsuspension and expulsion reports. (Page 31) 23. The Commission recommends thatthe Governor convenea task force to develop a model school safety assessment tool and that Attorney General update vandalism materials and information to reflect new laws, codes, andtechnology. (Page 32) 24. The Commission recommendsthat legislation be enactedto establish a California School Safety Institute toserve as a clearinghouse for materials.program models. legal research. training, consultation, and to provide researchon designated school crime topics including drug and alcohol information. (Page33) 25. The Commission recommends thatlegislation be adoptedto provide the State Department of Education with the authorityto enforce the requirements of the EarlyWarning System. Enforcement authority could includereducing or withholding the salaries ofor levy fines on, those responsible for noncompliancewith reporting requirements. (Page35) 26. The Common recommends thatthe State Controller's Office developmeaningful fiscal indices for inclusion in local educationagency audit guides along with instructions for auditors to summarize the fiscal healthof the local agency in the annual audits.(Page 35) 27. The Commission recommends thatauditors who do not comply withState instructions and audit standards be prohibited fromperforming future school district audits.(Page 36)

STUDENTS, PARENTS, EDUCATORS,AND THE COMMUNITY 28. The Commission recommends that legislation be enacted to requireprospective teacher candidates, prior to their finalyear of college, to spend time observinga K-12 classroom prior to taking subsequent teachereducation credentialclasses.In addition, teacher candidates, in their fifthyear, should be required, prior to completingcoursework, to complete a residency teachingassignment under a mentor teacher. (Page39) 29. The Commission recommends thatCalifornia begin extending itscertificated staff year to allow additional nonteaching daysbeyond the regular schoolyear, with the provision that staff development timenot be taken at the expense of student classroomtime. (Page 40) 30. The Commission recommends thatlegislation be enacted to establisha Leadership Academy Program which uses the most successfulCalifornia scnool principalsto provide staff development to other principals, especiallythose from the State's lowestperforming schools. to achieve high student learningsuccess rates. (Page 42) 31. The Commission recommends that theGovernor initiate a "Governor's LeadershipFellows Program" specifically for training leadersof low performing schools. (Page42)

44

164 32. The Commission recommends.therefore. that a curriculum framework be developedand designed specifically to meet the needs of school businessofficials and that certification be required of all new school business officials. :Page 43. 33. The Commission recommends that the Legislaturehold hearings in order to clarify, and promulgate in legislation. the definition of the scope ofcollective bargaining so that the collective bargaining process will be equitable for all partiesinvolved. (Page 45) 34. The Commission recommends that publicdisclosure and public participation be required prior to the adoption of collective bargaining agreementsand administrator compensation adjustments. (Page 47) 33. The Commission recommends one of thefollowing three options: 1) that the March 13th and May 15th layoff notice dates be repealed and local agenciesbe given the option to negotiate any alternative notice requirement:2) that layoff notices be required by July 15th ofeach year. a time moreclosely allied with final State budget decisions; or 3)that timing requirements for layoff notices be subject to legislativehearings and possible statutory revision. (Page 48) 36. The Commission recommends that legislation beenacted to establish procedures which provide for a more efficient and equitable process for dismissingincompetent teachers. (Page 49) 37. The Commission recommends that school districts and theState adopt policies that promote intra-district open attendance, to provide greater parental choice cortheir children's educational opportunities and to encourage schools to become moreeffective. (Page 54) 38. The Commission recommends thatallschoolsbe requiredtouseacoordinated, comprehensive planning process for school programs The process shouldinvolve parents, students, teachers, administrators and other local community members to ensurethat all student learning needs are identified and the base educational program isprovided to all. (Page 55) 39. The Commission recommends that the number o: programswhich may be coordinated under the School-Based Program Coordmanon Act oe increased.The Commission further recommends that the Department of Education, in its internal organizationand operation, increase its efforts to deal with student needs in the contextof coordinated planning and delivery and stress this approach in its dealings with local education agencies.(Page 56) 40. The Commission believes, therefore, thatschool site planning should be entrusted to a single school site council. for only in that way can the needs of theindividual be put into the context of the entire school environment.Existing councils should be integrated within a given periot* of time to help eliminate theself-serving results which separate committees produce. (Page 56) 41. The Commission recommends thatschool and law enforcement cooperative programs as now administered through the Department Justice and the Department of Education be supported and expanded. Furthermore. the Commissionrecommends that programs such as studentresponsibilitymodels.conflictresolutionandpeermediation.interagency cooperation. community involvement. and public,iprivatepartnerships have a higher priority among the progruns of the appropriateState and local agencies. (Page 57) 42. The Commission recommends that theOffice of Criminal Justice Planning or the Office of Emergency Services establish an on-call F'-.ate emergency response teamfor assisting schools with trauma resulting from major violent acts.I Page 58)

165 J EFFICIENCY IN PROGRAM AND SERVICE DELIVERY

43. The Commission recommends that the role of the State be redefined fromone of prescribing specific methods for program delivery and assessment toone of setting broad policy direction and monitoring effectiveness in terms of outcomes measuredagainst defined quality indicators. (Page 60) 44. The Commission recommends that relevant State statutes and regulations be revisedto reflect an assumprion that if a target population existsat a school site. and. if funds are provided to that site for the benefit of that population andare allocated to that population in the school site plan. that the expenditure of such funds does, in fact, benefitthe target population. (Page 63) 45. The Commission recommends that separFte State categorical aidappropriations and programs for meeting special student needs be continued. (Page 64) 46. The Commission recommends that the funding for the Foster YouthServices program be folded into the base revenue limits of the four districtsnow receiving fuhding. (Page 65) 47. The Commission further recommends that the School ImprovementProgram. which offers the greatest opportunity to implement localmanagement authority and school-community planning combined with program quality reviews. continueto be supported and expanded. (Page 65) 48. The Commission recommends that the School-Based Program CoordinationAct be amended at the earliest date to allow for the coordinatior. ofresources for the following additional programs: Adult Education Continuing Education Independent Study Opportunity Schools and Programs Regional Occupational Centers/Programs Work Experience Program Native American Indian Education Tenth Grade Counseling 9-12 Instructional Materials (Page 65) 49. The Commission recommends that the Admirustrationcontinue to pursue equity in the costs of child care services offered in Department of Educationadministered programs in contrast to privately funded services licensed by the State. The Commission furtherrecommends that a prohibition be placed on the use of non-child care and development schoolsystem funding )r school-run child care and development programs. (Page 67) 50. The Commission recommends that State policies calling forthe provision of the core curriculum forall students and for ensuring that categoricalprograms supplement or enhance the core curriculum bemainta.inei....Statestatutes whichsetout statewide instruction related policies should be maintained. However, theprocess of waiving the requirements of such statutes should be delegated to school districtgoverning boards for those statutes routinely waived by the State Board of Education.(Page 68) 51. The Commission recommends that class size reduction bea local option. to be used as deemed appropriate by school districts. rather thanas an additional statewide mandate. ( Page 70)

0 166 _L 52. The Commission recommends the consolidationand. where appropriate, the unification of school districts, and therefore recommends that legislationbe enacted to direct the State Superintendent of Public Instruction to identify minimum and maximumschool district sizes and optimum school district configurations and to propose animplementation plan to achieve statewide conformity. (Page 72) 53. The Commission recommends thedevelopmentofa moreefficientandeffective intermediate unitstructureto enhance education service deliveryand avoidcostly duplication. Therefore, the Commission recommends thatlegislation be enacted to direct the Superintendent of Public Instruction to identify a more appropriateregional intermediate unit configuration for the K-12 educational system.and to develop an implementation plan, with State Board of Education approval,which will abolish the county offices of education' and creatt in their place intermediate regional offices ofeducation. (Page 74) 54. Therefore. the Commission recommends thatthe State Board of Education require the Department of Education to implement a region-based managementinformation model. The Superintendent should make annual reports to the State Board,Governor, and Legislature for use in statewide policy development. (Page 741 55. The Commission therefore recommends thatlegislation be enacted to expand State- supported preschool programs to accommodate. at a minimum,all students who are identified as being at-risk of future academic failure. (Page 76) 56. The Commission, therefore, recommends that the StateDepartment of Education provide funding for the development, piloting, and evaluation of promisingmodel programs that make use of various instructional times and schedules to meet thediffering learning needs of students. (Page 77) 57. The Commission recommends that the State EducationalTechnology Committee make a concerted effort to review existing State and locally funded piloteducational technology projects and thoroughly evaluate the findings to determinethe most effective ways to use educational technology to improve student learning. These findings shouldbe made available to all school districts. (Page 78) 58. The Commission therefore recommends that the Stateundertake a coordinated effort involving all the principal representatives of the various componentsof the K-12 education system to develop a single coordinated proposal fordealing with rising health insurance costs. A single unified proposal will improvethe chances of solving the problem to the satisfaction of those people involved. (Page 86 59. The Commission recommends that Californi, negotiatewith Federal agencies to adopt lees restrictive regulations for the compensatory education program.The regulations should allow the use of all ECIA Chapter 1 funds on a "schoolwideproject" basis; consider low student achievement as well as poverty in program targeting; andallow a longer phase-out of funding when student achievement improves. (Page 801

0

167 ASSISTANCE AND INTERVENTION 60. The Commission recommends thatthe State Department of Education establish an Educational Incentives Repository, which would catalog information on local incentive programs in operation in California and other states and make the information widely available to schools and school districts. (Page 86) 61 The Commission recommends that the State establish a two-tier district accountability and school performance incentive program that would recognize districts that attain specified fiscal and management objectives and reward schools that meet goals of improvement or high achievement in certain educational quality indicators. (Page 87) 6E. The Commission recommends that legislation be enacted to require children of families who receive Aid to Families with Dept ndent Children (AFDC) benefits to attend school as a condition of receiving the full AFDC payment. subject to due process protection and social services assistance. (Page 90) 63. The Commission recommends that legislation be enacted to require adequate student attendance and a grade point average acceptable for high school graduationas conditions of receiving a California driver's license prior to the age of eighteen. (Page 90) 64. The Commission recommends that the State of California provide a tax credit toencourage parents and guardians to participate in and successfully complete courses which demonstrate effective child rearing practices and include activities and techniques that parentscan use to assist their children to succeed in school. (Page 92) 65. Legislation should therefore be enacted to provide a tax incentive to businesses hat allow employees to spend time in their children's classroom or to participate in their children's school activities for a full day at least twice annually at no loss in salary to the employee. (Page 92) 66. The Commission recommends that the State statutorily establish a three-phase assistance and intervention process for local education agencies which failto meet minimum fiscal management standards or minimum educational standards for students in one or more of their schools. Precise standards governing and triggering intervention should be adopted by the State Board of Education, with advice and assistance from representative task forces. (Page 92) 67. The Commission recommends that legislation be enacted authorizinga State-appointed fiscal trustee to petition the appropriate court to suspend specific fiscal provisions of any district contract if the provisions would significantly impair the ability of the district to meet its financial and educational obligations. (Page 95) 68. The Commission recommends that specific statutory authority be granted toa district during Phase II intervention and to a trustee appointed during Phase III intervention. allowing for the temporary termination of educational services, reassignment of staff, and subsequent reopening with new staff. (Page 97) 69. The Commission recommends that principal / teaching teams in low performing schools be required to receive assistance from a "Governor's Leadership Academy" prior toany action being taken to place the school into academic receivership. (Page 97)

Lu 168 Full Report Here TheyCome: Readyor Not

Report of the SchoolReadiness TaskForce

California Departmentof Education 311i Home. Suze-:ntenoent or Put 6c instruction Sacramento 1988

169 16,2 Major Recommendations:

That all districts IMMEDIATELY examine how theircurrent kindergarten programswould benefit froman integrated experiential curriculum. An integrated opportunity for each child program maximizes the to participate inactivities at his/her own level. For example, a childwho enters kindergarten already reading at a secondgrade level shouldbe given opportunitiesto expand his/herknowledge of literature. Likewise, a child whoenters kindergartenunable to identify letters should be givenopportunities to learnat his/her rate. An age-appropriate own and developmentallyappropriate curriculum in kindergartenrelies on manipulatives, example blocks, and for a balanced approach toskill-specific academics. This can only happen when teachers adapttheir classroom approaches tothe developmental children. needs of young In addition, the TaskForce strongly believes districts using that intelligence or schoolreadiness tests for placement or exclusionof children in their school experience first formal must discontinue thispractice in orderto avoid tracking ofchildren. That the State of California reconfigurepresent educational programs into early primaryprograms for instructional planning for childrenagea four through six which based on: will be

an integrated, experientialcurriculum that is individualized to meetthe developmentalneeds of each child basedon the National Association of Young Children's for the Education Developmentally Appropriate in Early Childhood Practice Programs Serving Childrenfrom Birth Through Age 8 (seeAppendix). teachers trained in early childhoodeducation/child development theory andpractice. smaller classes planned articulation with prior andsubsequent schooling That children beeligible to enter that they reach three the program in theyear years, nine months andwill leave the program in the year thatthey reach six This approach will years, nine months. give teachersflexibility to self-contained classrooms use both and mixed wide-agegroupings. That the program must meet the specialneeds of the rich cultural diversity that characterized Californiachildren, including multipleopportunities for rather than an inappropriate language interaction direct teachingof language. primary language thatthe child brings The valued, accepted, and to school will be utilized in learningbasic concepts while, at thesame time, the child is acquiring English. The ultimate goal is academicsuccess and proficiency without loss of in English proficiency in the homelanguage.

170 .1. 33 That the assessment of children will be developmentally appropriate. Assessments used by the teacher to plan individualized activities to maximize each child's progress must rely on teacher observations, supplemented by individualized testing only when necessary. That appropriate developmental screening instruments will be used to identify children with exceptional needs who may need an enriched curriculum because they are so developmentally advanced or who may need special education and related services. All children with exceptional needs will be provided programs in a variety of age-appropriate environments.

Implementation Recommendations:

Appropriate Educational Programs for Four through SiX Year Olds

Integrative, Experiential, Age-Appropriate Curriculum Model Curriculum

SDE distribute NAEYC's Developmentally Appropriate Practice in Early Childhood Programs fore each administrator and teacher in public school programs for childrenages four through six. SDE purchase and distribute a new language arts, mathematics, fine arts, physical education, science, and history/social science framework and model curriculum guide foreach administrator and teacher in public schoolprograms for children ages four through six.

SDE encourage optimum flexibility with the basic instructional materials list so that it consists of more manipulative (blocks, etc.) and other developmentally appropriate materials for children four through six, as outlined in theNAEYC practices and the SDE language arts, mathematics,and history/social sciences frameworks and model curriculum guides. These are not auxiliary but basic materials. There needs to be a person with expertise in child development/earl7 childhood education on every curriculum commission.

SDE encourage districts to purchase manipulative and other developmentally appropriate materials directly from vendors using funds allocated for textbooks. Class Size and Adult: Child Ratio

SDE sponsor legislative actioA to provide a maximum adult:child ratio of 1:12, including one credentialedteacher trained in child development/early childhood educationand one aide trained in child development/early childhood education for every group of 24 children.

171.LA Articulation

SDE actively encourage districts to develop plannedlinks in articulation betweenprograms for four year olds, theearly primary program, and theprimary and intermediategrades of elementary school. Cultural Diversity

SDE actively encourage districts to representcultural diversity in staffing ofprograms for children four six. through

SDE activelyencourage teacher training institutions school programs to recruit and high minority students forteaching in programs for children four throughsix. SDE actively encourage teacher traininginstitutions to emphasize proficiency inanother language and curriculum. multicultural

The staff should include teachers who come fromthe nearby community served by the program and who are raciallyand ethically representativeof the childrenserved and are sensitive to their linguisticdifferences. Children with ExceptionalNeeds SDE encourage special education local planareas (SELPAS) to expand services to indivieualswith exceptional three through five, needs, ages immethately rather thanby 1991 as authorized by State lawAB 2666-87.

Special education andrelated services beprovided in individual, small andlarge groups, ina variety of typical age-appropriate environments,and include opportunities active parent involvement. for

Exceptional childrenshould be providedservices with nonhandicapped peers to theextent possible. Teacher Praparation andTraining SDE offer in-service training and technicalassistance to administrators, schoolboards, teachers,and parents re: developmentally appropriate practices for children,ages four through six, using NAEYCmaterials and SDE model curriculum guides. frameworks and SDE actively encourage teacher traininginstitntions to include programs for,multiple-subjects credential childhood emphasis. with early

4 r-

%). 172 SDE actively encourage teacher training institutions to recruit minority students and to emphasize proficiency in another language and multicultural curriculum.

SDE actively encourage teacher training institutions to emphasize child development/early childhood educationfor all elementary teachers.

SDE actively encourage teacher training institutionsand the Commission on Teacher Credentialing to increasesponsorship of pre-service internship programs for teachers of children,ages four through six.

SDE encourage school site councils and administratorsto allocate School Improvement Program (SIP) funds forchild development/early childhood education training ofteachers and aides currently teaching inprograms for children ages five and six.

SDE sponsor legislative action to require thatteachers of four through six year olds in the early primaryprograms in public school be credentialed teachers withchild development/early childhood education training. For those teachers who do not now have such training, itmay be pre-service, in-service, or collegecourses.

SDE sponsor legislative action to make salaryscales for programs for four year olds within public school districts comparable to K-12 programs based on training,credentials, and experience.

SDE sponsor legislative action to includethe statutory COLA in programs for four year olds both withinthe public schools and private nonprofit programs. Full Day Programs

SDE should sponsor legislative action to providean option to increase duration of programs for childrenages four through six to coincide with the hours of the primaryschool day in each district when the program includesdevelopmentally appropriate activities throughout the day. School-Age Child Care

SDE actively encourage districts to developplanned links in articulation between public schoolprograms and neighborhood child care services.

Additional funding should be available tomeet the child care needs of income eligible families. Whenever possible child care programs should serve both income eligible andfee paying families.

173 4166 Assessment

SDE make a policy recommendation and issueguidelines to all districts toencourage teachers to assessment to individualize use alternativemeans of instruction and tonot use standardized testingfor placement ages four through six. or exclusion ofchildren,

SDE inform alldistricts and enforce testing of Black the law concerning and Hispanic-children and their specialprograms. placement in DELIVERY New Programs

Lower the Education Code definitionof school three years, ninemonths for public entrance age to State Department Ichool districtsmeeting of Educationcriteria offering primaryprograms. the early

Provide supplementalfunds to public applicationor competitive schools through types of activities: grant processesfor the following

o training andplanning at the o lowering class size school and districtlevel o increasinginstructional time

Allow moth publicschools and private year olds through agencies toeducate four a competitive grantprocess in which applications wouldbe approved developed by the on the basis ofcriteria Department andconsistent withthe recommendations of thisreport. the lead in School districtsshould take organizing suchprograms along the Latchkey programsestablished in lines of the Bill 303 (Roberti). 1985 as a resultof Senate In thisprocess, school receive priorityfunding when districts would received for the applications ofequal meritare same geographicarea. should be givento programs serving Further, priority a majority ofat-risk children (i.e.,children livingin proficient children,children withpoverty,limited-English- exceptionalneeds, or abused and neglectedchildren). The StateDepartment of Education should createan evaluation process (similar to thatused by the National Association for the Education ofYoung Children)to develop funding ofprograms, based on the clear criteriafor report. The State recommendations ofthis Department of Educationshould ensure participation fromprogram representatives private, nonprofit)in its administration (public and development activities. and policy Provide funds for expanding child care and development services.

New Facilities Increase the current state school building aid square foot per pupil allowances to increase the space available for preschool, kindergarten, and child development programs.

Provide sufficient facilities funding for public schools that have the greatest unhoused -.led in the early primary grades, particularly those with thigh concentrations or large number of at-risk children. 1 Governance SDE ensure that a governance unit within the K-12 structure for programs for children four through six include appropriate participation of the Child Development Division.

PUBLIC MEDIA CAMPAIGN SDE contract for the production of a media campaign for the public about developmentally appropriate practices for children ages four through six. The following points, stressed differently for the different audiences, will be the center of the campaign:

Young children go through predictable stages of development which cannot be accelerated. The child's stage of development predicts how that child sees and explains the world and events around him/her. Children today, despite "Sesame Street" and other modern advantages, still need an appropriate developmental curriculum. Four-through-six-year-old children learn best through purposeful play in a rich, stimulating, well-planned environment. This type of environment may best be demonstrated by narrated examples. The goals and outcomes of a c.ivelopmentally appropriate program are not exclusively academic. Programs stressing self-initiated learning and self-esteem have long-term benefits for students and society. An understanding of child development/early childhood education is essential for teachers and administrators at all levels. Parents and teachers are partners in the education of young children and are advocates for them. School readiness assessments are not appropriate for placement of children. The State Department of Educationshould contract out this campaign to a professionalmarketing agency. However, the Task Force recommends thefollowing forms of communication appropriate for each of fiveaudiences: Children Themselves General Public Parents School Officials Teachers Return to Greatness: Strategies for PowerfulImprovements in Our Schools

California MustRecognize and Adapt to. Changesin Society

California MustPromote Local Leadership

California Must Builda Partnership BetweenTeachers and Administrators

California MustSignificantly Increase Spendingon Education

October 1988 177 j 0 Return to Greamess: Strategies for Poweriut Improvementstr. Our 5cnoots

Summary

Recommendations

1: California Must We must recognizeour cultural change from Recognize and Adaptto based society to an agrarian- Changes in Society one based on knowledge/servicework. We must alter our school year. andwe must alter me waywe use education timeto provide moreopportunities for stu- dents to receive qualityeducation. At-risk students must he educated in smallerunits to allow for more effectiveinstruction. Concentration on languageskills in the earlyyears of educa- tion is critical to latersuccess. Every studentmust meet the performance each grade level. expectations for no matter what specialresources are needed to achievethis goal. Each local communitymust have a youth services that links school policy district, community,state. and federal pro- grams for maximumeffectiveness. California must separate the costs ofinstruction from the costs of providing youthservices.

2: California Must Where Decisions Promote Local Should Be Made . The professionals at the Leadership school sitetheteachers and principal-4hould makedecisions and implement accordance with the them in district's vision andexpectations. They should be responsible forestablishing instructionalap- proaches. methodologies.and strategics. The staff should central office serve local school sites,to allow local building- level professionalsto concentrateon instruction. The superintendent. as chief executive officer.must prt. ide leadership and visionfor the schooldistrict. The superin- 178j 1 Summary: Recommendations

tendent must select principalsand then support them effectively. . Local school board membersmust serve as trustees. The board should hire thesuperintendent andapprove the appointment of the superintencient'sstaff. The board should establish policies thatassure that state expectationsare met. and establish localexpectations of the schools. Inset- ting policies to guide the district. theboard should provide clear guidanceon the roles and responsibilities of thesuper- intendent and administrativestaff. Training for school board members is of criticalimportance. The California Departmentof Education shouldcontinue its efforts to develop effectiveand unburdensomemonitoring mechanisms. The department shouldserve as a clearinghouse for the sharing of innovative educationalpractices among local school districts. Astrong analysis and research capacity should be developedto provide local school districts with useful data and research finding= The Department of Educationshould continue to provide leadership and to developcurriculum frameworks that districts can useas guidelines. The state shouldset clear expectations for the of performance the public schools, butshould not prescribe howthe ex- pectations will be met.

Such expectations shouldbe monitored throughstatewide tnciices such as studentachievement tests. retentionrates, college attendance. jobplacement. communityservice. and extracurricular involvement ofstudents. . The governor, the legislature. thestate board of education, the state superintendentof public instruction, school boards. local administrators.and teachers shouldprovide leadership for the creationof a restructured educational system.

Deregulation . Parents should have an increasedopportunity to select the public schoolprogram their child attends, eitherin the district where they liveor in the district where they work. While we believe stronglyin this idea. we hold resolutely that we must not furthersegregate students. nor deny equal access. y.

. The Commission believes overall teachercompensation must be elevated to levels that willattract and retain the best people for the profession.

Compensation must be closely tiedto professional models that recognize outstandingachievement --a career ladder approach. for example. Beginning teachers must be providedadditional support- and appropriate workloadsto allow for development of teaching skills

Tenure should be grantedthrough a five-yearprocess. pro- viding ample opportunity forteacher development. Granting of tenure should be basedon the judgments of professionals with expertise in gradelevel and subject.on principal evalu- ations. and on student performance.

Administrator Preparation and StaffDevetopment A greater investmentat the state and local levels must be made in staff development.Staff development must bean integral part of thecontract year. Such time should be in the form :Di additionalcontract days. A legislatively createdcredentialing board. withrepresen- tatives from throughout theeducation profession. should be formed to determine thecontent of administratorprepara- tion programs, to ism_redentials. and toremove creden- tials for cause Acimliiistratorsshould be periodicallyrecer- tifed. To allow schools to create their own paths towardeffective- ness, we must acknowledge thatadministrators and teachers alike will need timeto meet both formally and informally; they will also need frequent staffdevelopment opportunities and ,...;nsiderable patience withone another. Important change involves risk, and trialand error. and the transition process will proceed best in an atmosphereof good-humored forbearance.

4: California Must The State Constitution shouldbe amended Significantly Increase as follows: Require the Legislature Spending on Education to establish base levels of fundingon three-year rolling cyclesto allow school districts sufficient time to plan their programs:

Establish a five-year plan forclosing the per-pupilfunding gap that currently exists betweenCalifornia and the top 10 states in the nation t excludingAlaska): iJ-1 0 180 Return to Greatness: Strategies for Foy/et-rut Improvements in Our Schools

The education code should be changed from an overly pre- scriptive regulating document to a broad constitution in those areas relating to expectations. state monitoring, cur- riculum. employment, and employee relations. Aspects of the code that result in overregulation should be eliminated.

3: California Must School boards and administrators must take primary re- Build a Partnership sponsibility for creating an environment for propori.ng and Between Teachers nurturing a partnership-based decision-making process. and Administrators Teacher unions must participate equally in proposing and nurturing such partnerships. Business. community, and elected leaders must also provide strong support. School culture must create a climate that motivates all within it, provides opportunities for innovation. and re- wards excellence. The school system must change to accommodate a new work environmentone that will allow teachers to teach, will use technology to increase productivity, and will provide ade- quate support staff. Shared decision making will help the movement toward a new work environment. Future relationships between central office administrators, teachers, and site administrators should be lifted to the collegial level. Responsibility for making important decisions that directly impact the success of school programs. as well as the com- mitment to implement these decisions. must be accepted and shared by professional staff at all levels. Teachers are professionals. The centerpiece of a profession is a partnership decision-making model built on respect and trust. The current educational bargaining process is based on the industrial union model. The Commission holds that profes- sional educators should not use such a model, because it creates a work rule mentality. utilizes adversarial tech- niques. and creates combatants rather than facilitators and leaders. The essence of a professional relationship is to minimize matters formalized by contract and subject to third-party intervention and interpretation. This Commission makes a sharp distinction between core salary, benefit, and due pro- cess matters that should be formally bargained, and the broad range of educational, instructional, and work environ- ment matters that administrators and teachers should jointly decide.

181 104 Return to Greatness: Strategies for PoweriutImprovements in Our Scrtoots

Reapportion state and localrevenue sources so that local sources make up a much larger share of school funding,and give school districts authority, subjectto majority voter approval, to raise additionalrevenues for school improve- ment such additional support should beon top of funds provided through theexisting district revenue limit mecha- nism and must be ''Serrano Neutral"); Nlake all local electionsto increase local property taxreve- nues and to enact parcel taxes and general obligationbonds subject to a majority of the electorate. ratherthan a two- thirds vote; and Modify the Gann Spending Limitsto allow for the expendi- ture of increased state and local revenues. The state's current per-pupil allocationformula must be rewritten to include an added calculationfor lower socio- economic students and at-risk studentswho require addi- tional support at increasedcosts. To compromise between theelimination of categoricalpro- grams and block grants, we recommend thatthe school- based Programs Coordination Act(AB 777) be amended to grant local school districts and theircommunities greater autonomy and flexibility in funding and staffingsitelevel programs designed to help children in need. California's school infrastructuremust receive immediate attention. We must invest in addedfacilities. remodel out- dated facilities, and maintain theexisting physical plant. We cannot continue to defermaintenance.

1]J 182 RESTRUCTURING CALIFORNIA EDUCATION

A Design for Public Education in the Twenty-First Century

Recommendations to the California Business Roundtable

SUMMARY

BW Associates

1JG 183 THERECOMMENDATIONS

1. EXPAND AND FOCUSSCHOOLING A. Establish primary schoolingfor all students B. Focus and consolidate elementary nn =econciaryeducation on core academics C. Institute a post-10student option of specializededucation

2. ESTABLISHACCOUNTABILITY BASED ON CHOICE PERFORMANCE AND A. Set student performancegoals. instit-_::e state-wide schooling exit tests. and deregulate B. Strengthen schoolperformance repots andintervene in failing schools C. Support parental choiceof expanded schooloptions

3. ESTABLISHSCHOOL AUTONOMY.AND EMPOWER TEACHERS, PRINC" PALS PARENTS, A. Provide schools w.th discretionary bucget fundingand authority B. Involve parents. community members andteachers in schoolgovernance C. Expand teacherresponsibilities andpromote team approaches management to instructional

4. MODERNIZEINSTRUCTION A. Redirect staff development to advance implementation ofeffective practices B. En all schools tointegrate technoioq intoinstruction and management C. Promote adoption offlexible educationalprograms

5. STRENGTHENTHE TEACHINGPROFESSION A. Establish multi-tiered teaching system withhigher salary rates B. Upgrade process ofbecoming a teacher C. Assure continuing highprofessional s:andarcis

6. CAPITALIZE ONDIVERSITY A.Build school capacity to provide English languageacquisition B. Assure foreign languageproficiency 'icr all children C. Establish critical andminority teacher shortageprogram

184 197 1. EXPAND & FOCUS SCHOOLING

THE NEED THE PROPOSAL In response to outside forces. educational pro-All children ages 4 to 6 should have the opportu- grams have vacillated between high academicnity for pre- and early schooling appropriate to standards and mass education without adequatetheir development before beginning formal aca- attenuon to standards. The organizauon of school-demic course work at about age 7. Elementary ing reflects this tension and prevents schools fromand secondary education should concentrate on achieving either excellence or equity. Schoolingthe core subjects needed for full and productive must be reorgani7 d so that high standards arecitizenship. and students should be expected to expected of all students. master the core by age 16. After mastery. all Many Poor Children Start Behind, Never Catchstudents should have the choice, from many op- Up. Children who "fail" kindergartenin part be-tions. of further education and training tailored to cause their families do not have the resources fortheir initial career aspirations. (The figure below pre-schoolingare often labeled as "underachiev-illustrates the recommended new structure of ers" and separated from regular classes to receiveschooling.; remedial work. Remediation has been ineffective and costly. A. Establish primary schooling for Organization of Schooling Limits Achievement. Pupils are generally separated into academic and all students (ages 4-6) non-academic tracks, with most students from poor. non-English speaking. and minont back- B. Focus and consolidate grounds placed in lower tracks with different cur- elementary and secondary riculum and lower standards. Research shows that both high- and low-achievers learn less un- education on core academics der tracking. Most dropouts occur from the lower (ages 7-16) track in the last two years of high school. Junior High Schools Have Been Ineffective. C. Institute a post-10 student The gaps in learning between male and female. option of specialized education white and Black or Hispanic. and high and low (ages 17-18) achievers grow larger in junior high school. Wrong Emphasis in Curriculum. Schools are asked to do both too much and too little. Many courses are offered. yet the curriculum does not go very deep. Higher standards have meant learn- ing specialized facts rather than higher order skills and breadth of knowledge.

NEW STRUCTURE Primary Core Academics Choice of Education for all students Specialized Education ages 4-6 ages 7-16 ages 17-18

State-Contract Public School Specialized High Schools

ELEMENTARY Community Colleges State-Contract and Private Provider 4 HIGH SCHOOL Regional Occupation Centers N State-Sanctioned t/ -4 Public and Private Private Provider iColleges and Universities

State TestGrade 6 State Test Grade 10.

185 1 -3 EXPAND &FOCUS SCHOOLING: How It Works A. Establishprimary schooling forall students (ages4-6)

KEY FEATURES The state should institute BENEV'ITS a primary school pro-The roots of low achievement gram in which all childrenages 4-6 have the op- and failure in school and later life start early. IfCalifornia is to develop portunity for education andsupplemental day-an outstanding education care appropriate to theirdevelopment. system, it must start schooling earlier andrevamp the very begirming of the education Expand Schooling andParental Choice. process. All children ages 4 to 6 would have theop-All Students GivenEqual Start. Aboutone m portunity for free primaryschooling, pro-four children of thevery poor attend some vided by public or private state providers who wouldsubsidized pre-schoolprogram. and there isa compete for state contracts.Parents wouldlong waiting list for these have a choice of providers. services. Yet almost half and would receiveof all four-year oldsattend private schools.Thus. information about alternativesfrom regionalchildren from poor or low information and referral to low-middle income centers. backgrounds do not haveadequate access toap- propriate early childhood Emphasis on Development. education. Thispro- Primary school-posal would give allchildren an equalstart in ing would focus on childdevelopment, notschooling. formal academics. Solid Foundation forLater Academics. Fourto Early Language Training.Primary school-six year-olds are beingpushed to achieveaca- ing would provide earlylanguage training fordemically before theyare ready. Experts, includ- limited English. as wellas English-speakinging Superintendant Honig'sSchool Readiness Task children. Force. agree that theearly years of schooling should emphasize hands-onlearning appropriate Day-care. Providers wouldoffer day-care. asto a child's development. well as health andnutritional services. Day- care fees would be based Preschooling Has High Payoff.Research shows on ability to pay. that pre-schoolingcan lead to higher achieve- Parental Responsibility. ment. employment, andattendance at post- Parenting educa-secondary institutions. tion would be provided:parents would be re- on the one hand; and less quired to contribute dropping out.drug abuse, welfare. and services. the other. crime, on

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186 EXPAND & FOCUS SCHOOLING: How It Works B. Focus elementary and secondaryeducation on core academics (ages 7-16)

KEY FEE rums BENEFITS Elementary and secondary school grades shouldIn the 21st Century. all studentswhether college be realigned and consolidated so that all studentsor job-boundwill need to learn how to learn, can learn the same core competencies by the endmanipulate information. and problem-solve, as of the tenth grade. well as develop a solid foundation in reading, writing, communicating. calculating.scientific Eliminate Tracking. Tracking intocareerreasoning, and social studies. This proposal rec- (and ability) groups would be eliminated, andommends that schools provide this common core elementary and secondary education wouldof essential learning for all students. focus on providing the same core competen- cies for all students. Mission Clarified, Course Offerings More Effi- cient. By focusing on the same core academic Core Competencies. The core competenciessubjects for all students, elementary and secon- would stress general and broadly applicabledary schools could clarify their mission and elimi- knowledge, reasoning, problem-solving, andnate costly. largely superficial electives and gen- higher-order skills. They would include com-eral education courses. munication (reading, writing. and speaking)Equal and High Standards for All Students. in English and in a second language_ mathe-Standards and expectations would be high. clear, matics, science and social studies. and the same for all students. including the poor Grade Consolidation. The comprehensiveand linguistic, racial or cultural minorities. This high school and junior high would beapproach advances both excellence and equity, consolidated into a common high schoolrather than sacrificing one for the othe.4 program. End of Tracking Raises Achievethent, Reduces Unintentional Segregation Within Schools. Tracking usually leads to unintentional segrega- tion because poor, minority students are more likely to be placed in lower tracks. But research shows that when students in higher tracksare mixed with lower-track students, higher-track students do no worse and many do better: lower- track students improve. Since advancement would be based on performance rather than seat-time attendance. high-achieving pupils could advance more rapidly. Grade Consolidation Eases Adolescent Transi- tion. The transition to middle or junior high school Lan be disruptive for studentsa new environ- ment is introduced, and most children experience problems of adolescence. Consolidating grades would place early adolescents with olderpeers. eliminate one transition, and reduce the slide in academic learning that occurs in junior high.

High Schools and the Changing Workplace, 1984 Skills for the 21st Century A national commission composed of businesspeople, representatives from the public sector, and academicians concluded that both college-bound and job-bound students need the same fundamental skills. They allneed a firm foundation in the core areas of communication in English,mathemat- ics, social studies, and science. Students requirecompetence in the higher order skills of critical thinking, reasoning, and problem-solving. EXPAND & FOCUS SCHOOLING: How It Works C. Institute a post-10 student option of specialized education (ages 17-18)

KEY FEATURES BENEFITS All students should be able to choose specializedThe post-10 option would dramatically improve education in line with their initial career aspira-the motivation of studentsand introducecon- uons after they master the core competencies attrolled competition into public education. about age sixteen (the tenth grade:. Student Choice Reduces Dropouts. Most drop- Eligibility. Students would become eligibleouts occur in the last two years of high school. Too for two additional years of education undermany students do not see the advantage of con- the post-10 option by taking statewide exittinuing their schooling. or feel bored and unchal- tests on mastery of core competencies. lenged by courses required for graduation. By giving students responsibility to choose programs Career Options. Students could choose fromthat fit their career aspirations. dropouts could be many career options. including college pre-minimized. paration. vocational/techaicai education. fine or performing arts. and others tnat wouldCompetition Promotes Quality, Strengthens develop to meet the needs of the 21st Century.Public Education. The post-10 option introduces market incentives lc: the public schoolsystem to Providers. Providers of post-10 educationbe Innovative and efficient. For the equivalentof would be public high schools andstate-grades 11 and 12. students could attendtheir authorized public or private Inon-sectarian)own or other public high schools. which would post-secondary instituuons. such as the Cali-offer specialized programs (muchas magnet forma Community Colleges. Calubrrua Stateschools or alternauve schools do today). There- University. and the Universin- of California. fore. high schools would haveto compete with each other. as well as post- secondaryinstitu- Non-discrimination. Providers of post-10tions. for their students. education could not discriminateon the ba-Post-10 Reduces Redundancy Between sis of students' race, gender. nauonal High origin.Schools and Community Colleges. Sincecom- religious background, or physical handicap. munity colleges offer a wide range ofcourses in an environment that some youth may find challeng- No Additional Tuition. Providers ofpost-10ing and conducive to learning, education would be required some pupils are to accept a statelikely to select community colleges foreleventh subsidy as full tuition payrnen:. ana twelfth grade work. Most vocational/ tecnni- Information for All Families. Regional cai post-10 courses might eventually beprovided In- by community colleges. This wouldsave state formation Centers would be establishedandmoney by reducing redundant coursework be- act., I, provide information to allparentsnveen high schools and community colleges. help and students about. post-10 op- tions. snarpen the mission of the community colie1.5e.s. and allow high schools to eliminate obsoletevoca- uonal programs. Fast Advancement Possible. Advancedstudents may go to CC. CSC or private post-secondary institutions. and test themselves in a collegeenvi- ronment.

Phi Delta Kappan. June 1987

Post-10 Options Work Minnesota passed legislation in 1985 providinga post-10 option of the type advocated here. The evaluationreports show that students from all parts of Minnesota and from many differentbackgroundsincluding some who had dropped out or intended to do soexercisedthis option: they outperformed the regular students inpost-secondary institutions who entered as freshmen.

1 188 2. ESTABLISH ACCOUNTABILITY BASED ON PERFORMANCE AND CHOICE

THE NEED Tim PROPOSAL California education has drifted toward more cen-Governance should be shifted toward a system of tral control. Federal and state concerns for equalaccountability based on local control and parental opportunity and affirmative action. Propositionchoice. Rather than prescribing the educational 13's shift of financing to the state level. and theprocess. the state should set performance goals national movement toward higher standards havefor the system. measure how well schools are all contributed to centralization, not excellence.meeung these goals, institute ways to hold schools Whereas broad state direction is necessary andaccountable for performance. and require and en- should be further strengthened in some areas. theable districts and schools to provide parent choice. governance system for K-12 education Is now outThis would tree educators to design educational of balancethere is reliance on regulation of theprograms suited to their students. educational process instead of on incentives. accountability, and performance. Schools Over-Regulated. State laws and models A. Set student performance goals, implicitly prescribe how education should be de- institute statewide exit tests. and liverede.g.. what the curriculum should be. how many and what types of courses each student deregulate schooling should take. and how many minutes courses and the school day, week. and year should have. These B. Strengthen school performance regulations stifle the ability of local schools to reports and intervene in failing adapt their educational methods to the particular schools needs of students. Many districts exacerbate this over-regulation and contribute to excessive bu- reaucratic controls. These regulations contribute C. Support parental choice of to unnecessary uniformity in schooling, even expanded school options though schools and teachers can be more effective when they design their own programs. Inadequate Measurement Hampers Accounta- bility. Despite many testing programs current measurements of student performance provide inadequate information about how much essen- tial knowledge and reasoning skills stu:tents have learned. Schools cannot be held accountable for results until performance can be measured in fair. comparable. and understandable ways. Lack of Parental Choice Limits Local Accounta- bility. Districts decide which public s:nool each student may attend. It has been reported that many parents "lie, cheat. and do whatever they can" to get their children into good schools. Other parents send their children to private schools. Some parents. particularly in poor areas. believe their children must settle for mediocre schooling in chronically failing systems becaust. :hey hay.. no otner choice.

189 ESTABLISHACCOUNTABILITY: How It Works A. Set studentperformance goals,institute statewidee)dt tests, and deregulateschooling

K,EY FEATURES BENEFITS The state should se'. goalsfor education in the form of core competencies. For over two decades.state officials in California and establish requiredand across the nation havetried to direct local statewide exit tests for allstudents at grades 6efforts in order to improve and 10. As the newsystem takes hold. state laws performance or obtain equity. These efforts havenot yielded satisfactory and regulations that overlyprescribe the educa-results. tional process (suchas state determined gradu- ation, course. and seat-timerequirements) shouldStatewide Exit Tests RaiseStandards. The in- be phased out. stitution of exit tests for allstudents would enable the state to set thehigh standards of literacy Test Emphasis. The StateDepartment ofneeded for full andproductive citizenship in the Education would developexit tests and end 21st Century. of-course tests as challenging subject-matterExit Tests Provide True examinations, emphasizinghigher -order Measures for Accounta- skills in core subjectareas. bility. Unlike today'sachievement and aptitude exams. these tests would not beexclusively mul- Timing. Students would beexpected to taketiple-choice questions. Theywould be graded by the exit tests at approximatelythe 6th gradeteachers and emphasizewriting. reasoning, and (the end of elementaryeducation) and thedemonstrations of the student'sability to apply 10th grade (the end ofthe common highknowledge to solve problems.They would, for the school in the restructuredsystem of educa-first time, providean understandable statewide tion). Students could electto take the testsmeasure of performance for studentsto judge ho% r earlier. and more thanonce. Much they knowandfor parents, employers. and college admissionsofficers to judge student Pass Level. The state wouldnot set passingaccomplishments and schoolperformance. levels for the tests, but localauthorities could set separate levels of Exit Tests ReplaceRegulation of Vie Educa- mastery for promotiontional Process. Astatewide exit test would or graduation. Honors wouldbe given for set high grades. clear and comparableobjectives for teachers and schools. regardless ofwhere they are located. it would not tell educators But Results Publicized. Exittest and end-of- what they must doto have students performwell on the test. With course test scores would be aggregatedbyreliable and comparable a school and widely publicizedas part of School measure of performance Performance Reports. in place, regulations thatinhibit local innovation could be phasedout. Deregulation. State lawsand regulations setting state graduation.course and sea'- time requirements would bephased out when the new tests and othermeasures are imple- mented.

190 ESTABLISH ACCOUNTABILITY : How It Works B. Strengthen school performance reports and intervene in failing schools

KEY FEATURES BENEFITS The current system of School Performance Re-The vitality of the K-12 system rests on the public's ports should be strengthened. and the state shouldconfidence that all public schools offer an adequate establish a process of intervening in failing schools.education. California's schools of tomorrow should give even greater assurancethat all public schools School Performance Reports. School Per-will deliver quality education. This proposal ad- formance Reports would be distributed todresses the need to hold schools and districts parents in an accessible form, and Regi analaccountable for student performance, regardless Information and Referral Centers wouiL. 3eof the makeup of their student bodies, by having supported to interpret the reports. the state intervene in failing schools. Identification of Low-Performing Schools.Information on School Performance Promotes The state would establish a process for inter-Accountability. California is a leader in develop- vening in chronically low-performing schoolsing School Performance Reports. Today parents which wouldidentifythreeclassesofdo not receive the reports, and for many parents schoolsClass I (high or adequately perform-they would not be understandable. This proposal ing), Class II (inadequately performing). andwould institute state dissemination of these re- Class III (chronically low-performing or fail-ports directly to parents, and state support of ing). These designations would be based on aRegional Information and Referral Centers to help broad-range of school performance datapoor and non-English speaking parents under- published in School Performance Reports,stand the reports so that appropriate local action plus input from the local community solic-could be taken. ited in public hearings. Involving the Community Furthers Solutions. Some schools throughout California have been District Responsibility. Districts would bechronically at the bottom of every measure of required to design and receive approval toschool performance. Their studentsusually from implement an improvement plan for Class IIpoor. non-English speaking. and minority back- and III schools. T .acilitate hiring or trans-groundsare often cited as the reason for low ferring staff at Crass II and Class III schools,school performance. But there are numerous ex- districts would be released from some per-amples of schools with predominantly poor and sonnel, due process, and collective bargain-minority pupils who have overcome these chal- ing agreements. lenges and are now effective schools. The state Additional Funding. Class II schools andintervention process would involve community Class III schools would be eligible for addi-members in identifying chronically low-perform- tional state funding if the state determinesing schools, and thereby begin a local search for that inadequate funding has contributed tosolutions within the public system. their failure. Carrot and Stick Approach Assures Action. Dis- tricts would be responsible for helping low- Parental Choice. Pupils from Class III schoolsperforming schools become effective, but they may would have the absolute right to transfer toneed additional funds to be successful. However. other schools. Districts would be required tocurrent categorical programs often provide addi- find or create alternative sites for studentstional funding without producing major improve- requesting transfers from Class HI schools.ment. This recommendation proposes mandatory Districts would be authorized to contractplanning, relaxed restrictions on staff replace- with other districts or with private educationment and hiring, and parent choice in case strong providers to provide adequate schooling foraction is needed. these students. If districts fail to make prompt and satisfactory arrangements. the SDE could provide these students with the means to attend any public or (non-sectarian) private school of their choice.

r 4

191 ESTABLISH CHOICE: How It Works C. Support parental choice ofexpanded schooloptions

KEY FEATURES BENEFITS Parents should have theright to select amongChoice would strengthenthe public school public schools. and thestate should provide in-by introducing system centives for districtsto develop mini-schools competition and puttingpressure on weak schools to do better.The proposals (autonomous schools-within-schools)and etherommend a new dynamic for rec- alternative schoolprograms from whichparents public schoolsschool could choose. performance matters becauseparents can select among schools or schoolprograms. Right to Choose. Thelegislature would es-Choice Can Support tablish the presumptive Desegregation. Aside from right of parentstoadministrative difficulties,transportation prob- send their childrento any school withinalems and the needto maintain and district, provided that thechoice does notdesegregation present strengthen contribute to segregation. practical barriers toun- Districts wouldrestricted parental choiceof schools. However. have to develop reasonableand fair proce-districts in California dures to insure parental and around thecountry choice. or face legalhave successfullyimplemented procedures action. have both furthered that desegregation and madechoice of schools within thepublic systema reality. This Interdistrict Choice.The state wouldproposal would give strengthen and extend parents the right to choose existing laws to en-provided that theirchoice does not contribute able and encouragedistricts to enter volun-segregation. to tarily into interdistricttransfer agreements so that parents could sendtheir children toMini-Schools ExpandChoice. PromoteEffec- schools outside of theirhome district. tiveness. The key toproviding effectiveparental choice, especially inlarge and mediumsize dis- Mini-Schools. To stimulatethe developmenttricts, lies in creatingmini-schoolssmall, self- and spread of mini-schoolsand other school-contained schools withdistinctive programs that ing alternatives, thestate would initiateaoperate in facilities traditionallyhousing one large Schools-of-Choice grantprogram. availableschool. Mini-schoolscan solve transportationand to schools or districts,that would provide fordesegregation problems.and allow mostparents both planning andimplementation. to send their childrento neighborhoodor commu- nity schools. They enable Information. The state educators to create small- would establish Re-school environmentsin which students feelmore gional InformationCenters that would domotivated, teachers andadministrators assume outreach work and provideinformation aboutmore responsibility andare more effective, and schools to parents whootherwise mightnotparents are more involved. have adequateaccess to alternativeprograms.

Phi Delta Kappan. June 1987.1

Choice a SuccessEast Harlem Teachers started mini-schools in New YorkCity's District 4 in East Harlemone of the city'smost troubled areas. Parent, teacher choice has student, and transformed failing schoolsinto successful and ing places to learn.Only a few excit- years after their inception, theprograms were adopted by other districtschools.

192 3. ESTABLISH SCHOOL AUTONOMY AND EMPOWER PARENTS, TEACHERS, PRINCIPALS

THE NEED THE PROPOSAL Effective schools develop a vision of their educa-Schools should have autonomy to develop educa- tional program that is shared by administrators.tional programs suited to the needs of their com- teachers. parents. community members. andmunities. Community members and parents pupils. They create a learning environment thatsnould be given the authority to oversee school supports this vision and is suited to their stu-operations. and teachers should participate in dents. To promote such effectiveness, schools ofschool management and work in teams. the 21st Century will need autonomy within a larger framework of accountability to the com- munity. district. and state. and they will need A. Provide schools with discretionary creative administrators in partnership with teach- ers and parents. budget funding and authority Some Districts Too Controlling. Central staff in B. Involve parents. community many districts exercise considerable authonty that both creates excessive paperwork and limits dis- members and teachers in school cretion at the school level. However. effective dis- governance tricts help develop effective and efficient schools: They provide support. facilitate improvement, and C. Expand teacher responsibilities insure quality by having high expectations. and promote team approaches to Parent and Community Involvement Limited. instructional management A breakthrough in student learning is unlikely to come about without more parent involvement in schools or their children's schooling. Yet most parents have no responsibility and little say about how their schools work. Teachers Not Participating in Decision-Making. Teachers also lack authority, particularly on many decisions affecting their classrooms. Effective schools have strong leadership from the principal. and a team approach to management. Teachers Isolated. Teachers are generally iso- lated from one another, and do not use team approaches that have been proven effective. Good schools have people working together.

193 ESTABLISH SCHOOLAUTONOMY: How It Works A. Provide schools withdiscretionary budget fundingand authority

KEY FEATURES BENEFITS Schools should have authorityover their educa-The key to devolving authority from tional programs and budgets. the district to the school level lies in transferringbudgetary au- thority to the schools. Only by Authority. Each school would beprovided controlling their with a School Discretionary Budget own budgets will schools be able to controltheir which iteducational programsand thus fairlybe held ac- would control, subject to fiscalaccountabil-countable for results. ity regulations that districts wouldenforce. The school would be authorized bystate lawSchool Autonomy Promotes Effectiveness.Cali- to spend its discretionary budgeton stafffornia will have an increasinglydiverse student development: technology servicesor equip-body. Research shows that effectiveschools set ment: textbook, curriculum materials. andhigh expectations and developprograms that meet equipment purchases: counseling andspe-student needs. This proposal wouldenable schools cialist services: the hiring ofnon-tenure trackto have latitude to design distinctive andeffective teachers: and other items relatedto the de-programs to match student diversity. velopment and delivery of theinstructional program. Focused District Role CouldImprove Efficiency. Under the proposed recommendation,districts Funding. School DiscretionaryBudgetswould not specify school educationalprocesses would be provided directlyto schools byas often occurs today in ineffectivedistrictsbut the state, and would not bepart of districtwould focus on areas thatthe central headquar- general appropriations. Districtswould payters and the district school boardare best suited for all district-levelexpenses and for non-to control: legal obligations. collectivebargaining discretionary school costs (e.g..administra-negotiations, equity concerns. facilitiesmainte- tor and tenured teacher salaries). Thisnewnance, finance, and quality control. Thisrefocus- funding system would eventually ing of the district role would reducebureaucracy replaceand paperwork. current state funding arrangements.includ- ing state categorical fundingmechanisms. Competition for School DollarsCould Foster Innovation. The proposed fundingmechanism Additional Funding. Schoolscould obtainwould consolidate categorical additional funds bymeans of competitive funding and pro- grant awards vide discretionary funds directlyto schools (while (e.g..for schools-of-choiceremoving equivalent funds fromdistrict allot- grants. staff development, and technology)ments). Schools would be free to and from community fundraising. purchase a range of services and equipment frompublic or private suppliers: districts wouldcompete with other Hiring Authority. Schools wouldhave thesuppliers to offer servicesto their clientsthe authority to hire and replacenon-tenure trackschools. teachers, refuse district assignmentof teach- ers to the school, and request districtsto replace tenured teachers.

194 EMPOWER PARENTS & TEACHERS : How It Works B. Involve parents. community members and teachers in school governance

KEY FEATURES BENEFITS A new system of school governance snould beThe iigure below illustrates two governance fea- instituted with parents and community memberstures that would establish 'a new balance of au- serving on school-level boards and teacners shar-thonty for schoolsan elected school-level board ing in school administration. consisting of parents and community members. and a schooi coordinating council consisting of Community Board. Each school wouldthe principal and teacher representatives. establish a Community board. This Boarc. electedbyparents.wouldconsistofSchool Coordinating Council Promotes Colle- parents and members of the community. Thegiality. Effective pnncipals often create a collegial Community Board would have me legalenvironment \vnere administrators and faculty responsibility to approve the school's edu-can loin together to make critical decisions about cational program. expenditures of schooltheschool'seducational program.California discretionary funds. and me establishmentschools have expenence in the School Improve- of mini-schools. ment Program with taculty acnsory groups that promote colieztality. The proposal would extend Teacher Participation. Each scnool wouldthis practice to me entire schooi program. also establish a School Coordinaung Coun-Community Board Reinforces Local Autonomy cil. This council would be a pianrung and ad-and School Responsiveness. The Community visory group. consisting of the principal andBoard would give parents a voice in the shaping of teachers. institutionalized as a mechanisma school's program. and thereby establish local for the participation of teachers in criticalaccountability more directly than is possible in educational decisions. large districts.

I- THE SCHOOL AND TEACHER TEAMS

School School Community IPRINCIPAL1 Coordinating Board Council .

Lead Lead Lead TEACHER TEACHER TEACHER

TEACHER TEACHER TEACHER Adiunct TEACHER

Assistant ; Assistant Assistant I TEACHER I TEACHER TEACHER

r 195 EMPOWER TEACHERS How It Works C. Expand teacher responsibilities and promote team approaches to. instructional management

KEY FEATURES BENEFITS The state should encourage the development ofThe figure on the facing page suggests a funda- new scnool management structures by creatingmental revision in the organizauon of schools new categories of teachers. a:by providing mod-teachers would have differentiated roles. Lead els and training in the use of differentiated staff-Teachers would supervise a small number of ing and teacher teams. Teachers. and the Lead Teacher and Teachers would constitute a team with jomt responsibility .Lead Teachers. A new classification of teach-for a fixed group of students. They would plan ers. called Lead Teacners. would be created.together. and. in some instances. engage in team Lead Teachers would have supervisory re-teaching. Many different variauons of this basic sponsibility under the overall administrativemodel have been used across the country. direction of the pnncipal (see recommenda- tion 5.A). Small School Environments Better for Stu- dents and Teachers. In this sysLcan. teachers Assistant Teachers. The state would certifywould no longer be isolated. Instead. they would a new category of non-tenure track teacners.share responsibility for groups of students. One or called Assistant Teachers. who would be hiredtwo teams could join together to form a mini- by schools mot districts) on renewable con-school. which would develop its own identity and tracts and work under teacher supervision. educational program. Students would enroll in a mini-school and could remain there throughout Teacher Teams. Schools would be encour-their elementary or secondary school experience. aged to organize into teacher teams. consist-Thus. small school environments could be built. ing of one or more Lead Teachers. regularin which students would know each other and Teachers. and Assistant Teachers. Eachteachers would know students. team would share responsibility for specific groups of students throughout their years ofAssistant Teachers Increase Teacher Produc- school attendance. This organizauon wouldtivity. Though Assistant Teachers would not have facilitate the implementation of mini- schools.the rigorous training of Teachersand therefore and would enable a team of teachers to be re-not be given the full responsibilit or pay of Teach- sponsible for each student (see figure onersthey would play a specialized role in a team facing page). approach. The provisicr, of Assistant Teachers would increase the adt.:t to student ratio. allow Incentives and Staff Development. The statemore fie:Obie scheduling. and enable more effi- would offer school incentive grants to furthercient use of Teachers' time. the dissemination. planning and impiemen- tauon of team approaches and mini-schools. These awaras include funds for staff development (see recommendations 2.0 and 4.A1.

BEST COPY AVAILABLE

196 4. MODERNIZE INSTRUCTION

THE NEED THE PROPOSAL In the 21st Century. most students should learnUsing state subsidized Institutes of School Devel- much more than the average student learnsto-opment. teachers and administrators should learn. day. This goal will be possible only if instrucuon isdevelop. and implement effective instructional changed so that all students are able to realizetechniques and create more flexible learning envi- more of their potential. ronments that make use of modern technologies. Current Expectations Too Low. Most instruc- tion implicitly assumes that only fifteen or twenty percent of children can master the higher level of A. Redirect staff development to literacy needed in the future. This conclusionis advance implementation of unwarranted and unacceptable. Research has identified effective instructional strategies(espe- effective practices cially mastery and cooperative leaning) thaten- able most students to achieve at high levelsI see B. Enable all schools to integrate figure below'. technology into instruction and Breakthrough Requires Training. Only practical management barriers stand in the way to making the break- through depicted below. Teachers and adnums- C. Promote adoption of flexible trators currently lack ongoing training in the most effective instructional strategies. educational programs Technology Critical. Remains a "Side Show." The implementation of effective instructionalstra- tegies may depend on computer-based technol- ogy. Most schools neither have the resources nor the incentives to restructure theiroperations so that technology can be used productively. Rigid Educational Programs Prevent Effective Instruction. School programs work withina uni- form course-load formula and schedule thatorigi- nated at the turn of the 20th Century. These practices. now retained for administrativecon- venience. prevent the adoption of more productive instructional methods..

MORE STUDENTS CAN LEARNMORE Average s:uoent can perform above 80% of stuaents in current system

NOW Current K-12 Number System of Students O\ \ High Performance Level

Student Tut Scores

197 MODERNIZE INSTRUCTION: How It Works A. Redirect staff developmentto advance implementation of effective practices

KEY FEATUPES BENEFITS The state should consolidate staff developmentEffective instructional approaches cannot be funding, provide funding directly to schools. andmandated. The key to their widespread adoption subsidize R&D and training institutes that wouldis staff deveiopmentteachers and administrators equip teachers and administrators to implementmust develop. learn. and adapt new approaches mini-schools. mastery and cooperative learning,to local settings. At least $1 billion per :,rear is now year-round and flexible scheduling. and other ef-spent on staff development, but this money is fecnve instructional and school managementspread thinly, with generally disappointingre- approaches. suits. This proposal would redirect and target staff development funds. and introduce market School Planning. Schools would be requiredmechanisms to enable schools to implement effec- to formulate school development plans (SDPsI.tive instructional practices. which would delineate plans for all school restructuring and instructional moderniza-Consolidating Funds at School-Level Promotes tion. 1.--icluding staff development plans forComprehensive Planning. Most staff develop- each teacher and administrator. ment funds currently are part of categorical pro- grams. allotments for teacher salary increases for Funds Redirected to Schools. Uponap-taking courses. or district and regionalcenter proval of SDPs. schools would receiveim-programs. This proposal would redirect these funds plementation funds, which would becometo schools. allowing them wide latitude to create part of School Discretionary Budgets. Cur-school development plans and purchaseservices rent state funding for staff development andfrom diverse suppliers. Districts andpeers from the School Improvement Program would beInstitutes would approve the plans and give schools redirected for this purpose. Schools couldpractical advice on the best methods. purchase staff development and school de- velopment assistance from districts. Insti-Training Cadres Enable Dissemination of Ef- tutes. and other public or private providers.fective Practices. By having all Lead Teachers and Administrators trained at Institutes,a cadre Institutes. Using competitive contracts. theof leaders would be formed who know effective state would supply start-up funds for Insti-methods. can work with peers to develop models tutes for School Development. These autono-for dissemination. and bring new practices back mous institutes would provide intensive staffto their schools. development for all Lead Teachers and Ad-Autonomous Institutes Prompt Quality Service. ministrators, who would help develop andPractitioners would operate the Institutes, which disseminate comprehensive models for schoolwould have to generate funds fromcontracts with development. Institutes could consist of di-schools. This arrangement can stimulate client- verse organizationse.g. partnerships be-oriented service and innovation. tween universities,districts. and private businesses, or consortia of schools. The staff and governing boards of the Institutes would have to include Lead Teachers and admiruz- trators.

7-- S. Kansas ESC Bulletin. 1985

An Effective Fee-for-Service Center The Southeast Kansas Education Service Centerhas been providing services to schools and districts since 1977,yet receives no state or federal funding. All funds to operate the ESCcome from the agencies that contract for their services. They have grown toa S10 million program of 1 1 I services that range from special educationinstruction to staff devel- opment and innovative instructional media delivery and repair services.

198 1 MODERNIZE INSTRUCTION: How It Works B. Enable all schools tointegrate technology into instruction and management

KEY FEATURES BENEFITS The state should launch a comprehensivepro-California's large enrollment growth means there gram to insure that all schools can usecomputer-will be severe teacher shortages and heavy finan- based technology effectively. Theprogram shouldcial burdens. unless schools installmore produc- set state standards and models for technologytive procedures. Computer-based technologies purchase and use. and provide incentives andintegrated with the modern instructional methods staff training so that administrators andteachersproposed earlier could help solve these problems. can integrate technology into management andThis proposal addresses the main barrierspre- instruction in ways suited to local conditions. venting the widespread adoption of technologies in educationthe need for continued R&D invest- State Standards. The state would setstate-ment and the training of teachers and admini- wide standards for the purchase anduse ofstrators. computer-based technology (including related communication protocols) that would enableComputers Can Increase Teacher Productivity. schools to network efficiently,use long-Computers could free teachers' timenow spent on distance learning technologies, andcreatebookkeeping. Effective instructional methods (such computer-based learning environments. as mastery and cooperative learning. flexible sched- ulin.a-. and year-round schooling) involve complex Required School Planning and LocalAu-record keeping that can be handled bycomputers. tonomy. Schools would submit a technology use plan (TUP) as part of their school devel-State Standards Plus Local AutonomyCan opment plan. After feedback and approvalStimulate Supply. In the absence of uniform from districts and Institutes for School standards. schools currently purchasea wide De-variety of substandard equipment and software. velopment, schools would be funded directlyAs a result. businesses lack the organized so that they could acquire technologyserv- school ices and equipment suited to their local needsmarket required to justify substantial (andmuch (but compatible with statewide standards).needed) R&D investments. Uniform standards would promote a statewide market. and Schools could purchase equipment andserv- give busi- ices from districts. Institutes.or private pro-nesses incentives to invest in R&D. State stan- viders of their choice. dards could also be general enough to allowschools latitude in choosing among alternative techno- logical On-Going Training. The Institutes forSchool approaches, thus further stimulating Development would provide on-goingtrain-competition among suppliers. ing of teachers and administrators in theInstitutes Can Provide Effective Training.The purchase and use of technologyon a subsi-Institutes for School Development would develop dized fee-for-service basis. models of technology use and provide trainingfor teachers and administrators. Thisarrangement State Incentives. The state would establishwould enable technology to be integratedwith a new competitive grants program that wouldschool development and staff trainingand (a) reward uses of technology thatincreasedthus become a vital component ofrestructuring teacher productivity and school efficiency.schooling. (b) provide matching funds for theformation of consortia of schools for the purchaseof technology services, and (c) offerlong-term R&D funding for the development anddem- onstration of computer-based curricula.

2 199 MODERNIZE INSTRUCTION: How It Works C. Promote adoptionof flexible educationalprograms

KEY FEATURES BENEFITS The state in cooperation withbusinesses should promote the adoption of year-round More efficient utilization ofteachers and school schooling,facilities must be developed ifCalifornia is to cope flexible course scheduling, andalternative classwith financial and teacher sizes by using a combination ofincentives. de- supply problems caused regulation. and training. by enrollment growth. Flexibleapproaches to the educational program.as proposed here, would ease these problems and contributeto more effec- Partnership for Change. Governmentandtive education. business would join ina concerted effort to establish year-round schoolsas the normFlexible Programs EnhanceProductivity. Flex- throughout California. Informauonaboutible scheduling would allowadministrators and successful examples would bedisseminatedteachers to design more efficientlearning environ- to parents, community members. andteach-ments. Many models exist for thisapproach. For ers. and local plans and guidelines wouldbeexample, some classes couldbe taught only three developed by local businesses,communitytimes a week, perhaps foran hour and twenty groups. and district school boards fora shiftminutes on Monday and Fridayand one hour on to a year-round calendar. SDEwould de-Wednesday. Some classes couldbe arranged so velop additional booklets andguides for usethat they would havea large number of students at the local level. on some sessions, whereas otherclasses would have much smaller studentloads. Moreover, some Year-Round Schooling. Thestate wouldstudents might worksome of the time in an indi- broaden the scope ofcurrent incentives forvidualized manner requiringteacher supervision schools to develop year-roundcalendars, andrather than teaching. require districts to place all newly builtfacili- ties on year-round schedules. unlessa waiverYear-Round Calendars Practical,Efficient. Ef- were granted by the Superintendent ofPublicfective. Shifting toa year-round schedule utilizes Instruction. facilities more efficientlyat a time when the state is faced with billions of dollarsof new building Flexible Schedules. Thestate would encour-costs. Moreover. practitioners havedemonstrated age schools to reorganize schooltime bythat year-round calendarscan use teacher and eliminating course unitrequirements forstudent time creatively. Theproblem of shifting to graduation: eliminating standardsfor theyear-round scheduling is,in large measure, poli- minimum length of school days:and provid-tical. The proposal callsfor the businesscom- ing incentive grants for schoolsto experi-munity, along with government,to help mobilize ment with flexible scheduling. citizens to accept year-roundschooling. Facilities. The state wouldencourage the use of alternative classroom spacesie.g..larger lecture halls and smallerseminar rooms) by enabling schools to rentor lease public and private buildings. and specifyingthat new buildings provide alternative classroomsizes and spaces.

200 5. STRENGTHEN THE TEACHING PROFESSION

THE NEED THE PROPOSAL Much has been written nationally and in Califor-The teaching profession should be strengthened nia about the need to strengthen the teachingby establishing a multi-tiered system of teaching, profession. For education in the 21st Century. aupgrading entry standards, instituting internship high quality teaching force and public respect forprior to tenure. establishing requirements for teachers will be essential. maintaining high standards, and raising teacher The following are some issues raised in numeroussalaries. reports. Teacher Preparation Programs Inadequate. Many A. Establish multi-tiered teaching teacher preparation programs do not adequately train teachers in new instructional techniques system with higher salary rates and the use of modern technologies. B. Upgrade the process of becoming Standards for Teaching Credentials Low. Teach- ing credentials are easy to obtain. and are based a teacher on courses taken rather than measures of knowl- edge. skill, and ability to teach. C. Assure continuing high Teacher Evaluation Inadequate. Tenure Almost professional standards Automatic. Staff Development Uneven. Rigor- ous evaluations of teacher performance are seldom performed and advancement to tenure occurs quickly and routinely. Post-tenure evaluation is not linked to staff development. Salaries and Working Conditions Cause Many Teachers to Leave the Profession. Teacher salaries are rigidly determined and are too low. especially for outstanding teachers with options outside of teaching. Teachers in many schools do not participate in decisions that affect them and the educational program. Teacher Retirement Creates Window of Oppor- tunity. Over the next ten years, an entire new generation of teachers will enter the profession. From 6% to 8% of the current teaching force leave the profession every year: over the next decade up to half of today's teachers will have le1L Alw- gether. between 132.000 and 177,000 new teach- ers will be needed.

201 _A4 STRENGTHEN THE PROFESSION:How It Works A. Establish a multi-tiered teachingsystem with higher salary rates

KEY FEATuREs BENEFITS New categories of teachers should be addedto theA multi-uered teaching system supportsmore existing teaching force, and salary rates should beeffective. efficient. and flexible instruction. increased substantially above cost of living allow- ances. Improves Attraction and Retention. Teachers currently have few options for promotion. Theyre- Categories. The categories of teachers wouldceive automatic. small salary increases for each be Intern Teacher. Teacher. and Lead Teacher,year of service or for attaining higher post-secon- plus Assistant Teacher and Adjunct Teacher.dary degrees (or units of post-secondarycourse credit). Research shows that teachersare inter- Lead Teacher. Lead Teachers would be nomi-ested in opportunities for professional growthand nated by School Coordinating Councils (in-advancement. and that many are unhappy with cluding principals) and approved by Schoolthe flat career path now available. The multi- Community Boards. Lead Teachers wouldtiered teacher system would helpattract outstand- head teacher teams and direct the training ofing candidates to the profession because it would Intern Teachers (see recommendation 5B).provide significant opportunities forcareer growth They would earn more than Teachers. andand additional income. unlike current Mentor Teachers. their would maintain their positions unless they receivedTeacher Teams Can Improve WorkingCondi- negative evaluations. tions. The addition of Lead Teachersallows the reorganization of schools into teacher teams and Assistant Teachers. Assistant Teachersmini-schools, which could end teacher isolation would be paraprofessionals withmore train-and enhance teacher choice in designingeduca- ing and responsibility than aides, but lesstional programs (see recommendation 3C). than full Teachers. They wouldearn sub-Assistant Teachers Boost Teacher Productiv- stantially less than Teachers, be hired underity. The addition of Assistant Teachers woulddra- contract by schools, and function as teammatically decrease student-adultratios, and en- members under the supervision of Teachers.able Teachers to adapt instructionalschedules They would work with individual students.and curriculum planning tomeet diverse student administer student tests. lead smallgroupneedsas well as the needs of the teachingstaff. discussions. perform classroommanagementTeachers would gain more controlover the use of tasks. and help to implement computer tech-their time, and could concentrateon instruction nology. Assistant Teachers would be certifi-instead of housekeeping tasks. The resultingin- cated by the state and would meeta mini-crease in teacher productivity and effectiveness mum state requirement of two years of post-would greatly improve professional morale,the secondan, education. general climate for learning, and theattractive- ness of teaching as a profession. Adjunct Teachers. Adjunct Teachers would be hired by schools and be specialists from all walks of life who would teach occasional classes, work with individual students.or help prepare curriculum mac-7 ials. There would be no specific stater :ements for these positions. The Rochester Plan Teachers new to the Rochester City Funding. The extra costs of these staffposi- tions, as well as a general boost in the salary School District enter atone of three levels of Teachers. would be met bystate career levels: Intern, Resident, or Pro- funding. fessional Teacher, with starting salaries based on years of experience. Profes- sional Teachers have the opportunityto serve as Lead Teachers and to receive extra stipends for assuming added responsibilities. STRENGTHEN THE PROFESSION: How It Works B. Upgrade the process of becominga teacher

KEY FEATURES BENEFITS The process of becoming a teacher should beIt is extremely easy to become a teacher in Calif- strengthened by replacing current credentialornia. and even easier to receive tenure. Lax requirements with a professional teacher exami-requirements weaken public confidence in the nation, an internship period, and peer evaluation.quality of teachers. This recommendation pro- poses measures that would upgrade the induction Professional Exam. Teacher candidatesprocess and reassure the public that teachers are would have to obtain a bachelor's degree inafully qualified professionals deserving the higher substantive major and pass a rigorous Pro-pay scale and autonomy proposed throughout fessional Teacher Examination that testedthis document. them in subject matter, pedagogy, and effec- tive instructional strategies (e.g.. mastery andExam Shifts Basis for Certification to Perform- cooperative learning, techniques for flexibleance. Under current law. teachers are required to scheduling, and the use of educational tech-earn a bachelor.s degree and complete a year of nologies). teacher training that includes universitycourse- work and practice teaching under thesuper- Deregulation. When the Professional Teachervision of a credentialed teacher. This process relies Examination is phased in, state credentialon certifying courses and programs of study, but requirements specifying teacher preparationprovides no assurance that approved courseswere courses would be eliminated. well taught or that teacher candidatesare ade- quately prepared. Courses are certified, not the Internship and Evaluation. Candidates whocompetence of prospective teachers. This recom- pass the Professional Teacher Examinationmendation instead focuses on the outcomes of would become Intern Teachers andserve ateacher preparation by proposing a rigorousex- four-year internship under the guidance ofamination to test candidates' knowledge followed Lead Teachers. They would become Teachersby evaluation to assess their teaching. and obtain tenure if they were successfully evaluated by a Teacher Assessment PanelExam Improves Teacher Preparation by Chang- composed of their Lead Teacher, a Teachering Incentives, Not by Increased Regulation. peer trained in evaluation, and their schoolPresently, prospective teachers must passa basic principal. skills examination geared to about a tenth grade literacy level. The Professional Teacher Exam. New Teaching Board. A California Teachingwhich would replace this test, would bea chal- Standards Board, a majority of whose mem-lenging and fair test of teachers' knowledge in bers would be teachers, would be establishedtheir fields. The Exam would influence thecon- to set professional standards for teachers,tent of teacher preparation, and Colleges of approve the Professional Teachers Exam,Education could be judged by how well their gradu- issue credentials and certificates, and over-ates perform on the examination and subsequent see the teacher evaluation process. evaluations. Internship Plus Evaluation Facilitates Learn- ing the Art of Teaching Currently.once can- didates receive a credential and find teaching positions, they almost automatically receive life- time tenure in less than two years. Yet three to five years, and considerable peer support. are needed to master the complex realities of classroom teach- ing. This proposal recommends a four-year peri- od of internship in which prospective teachers would receive support from Lead Teachers. work on teams. and get formal feedback on their performance.

203 A-44.4.- STRENGTHENTHEPROFESSION:How It Works C. Assure continuing highprofessionalstandards

KEY FEATURES Teachers and Lead BENEFITS Teachers should beevaluated every three years, and This proposal wouldprovide assurance tials every should renew theircreden-ers would continue that teach- seven years. to be judged by highprofes- sional standards afterobtaining tenure. Formative Peer Review. In addition to evalu-Formative PeerReviews Foster ations now conductedby schools. Peer the current Collegiality. In view Panels (composed of Re- system, new teachersare evaluated by a Lead Teacher andschool administrators.and can obtain two Teachers selectedby the Teacher critiques of their work informal evaluated) would being from MentorTeachers. evaluate Teachersto pro-With the proposedreforms.they would vide feedback exclusivelyfor the Teacher lar formative receive regu- evaluated. The Panel being evaluations over thecourse of their could suggest staffde-internship froma panel composed of velopment as wellas other measures foradministrator, and their peers and an improving performance.(Also see peers would be largely dation 5.8 for recommen-responsible foran overallassessment of their evaluation of InternTeachers).capabilities. Lead Teacher Evaluation. LeadTeacherCredential RenewalExams AssurePublic of Panels (composed oftwo Lead TeachersandContinuing HighStandards. Thecurrent system an administrator) wouldevaluate Lead Teach-now requires credential ers and provide feedback. but permits this renewal (every fiveyears). A negative evalu- re-certificationupon teacher com- ation could resultin a Lead Teacher pletion of-...;urses or training of reassigned as a Teacher. beingand in unknown quality . This is no problem for themany com- petent t.. ...hers inCalifornia, but Credential Renewal. take courses which some teachers Teachers (and Lead do not help themmaintain Teachers) would berequired to renewtheirtheir currencyin their teaching credentials by taking formed system, field. In there- appropriate substan- teachers wouldrenew their cre- tive sections of theProfessional Teacher dentials everyseven years by passing amination every Ex- the relevant seven years. Teacherswouldsubject-matter portionof the Professional have one year inwhich to pass the Exam. Thus, Teacher re-exami- credential renewalwould focuson nation, after which theircredential would beactual teacherknowledge rather than suspended until they course attendanceand evidence of had passed. the public wouldhave more assurance that allteachers keepup to date.

Testing forRecertification Three statesArkansas. Georgia, and Texasrequire testingfor recerti- fication. Georgia, inparticular, usesa set of 28 subject-matter assess teacher competence, exams to using specificperformance-based objectives developed by educators.All teachers in Georgi a certified since 1978,and those whose certificatesexpired after July 1986, exams. must pass appropriate 6. CAPITALIZE ON DIVERSITY"

THE NEED THE PROPOSAL California has a difficult challenge in the languageCalifornia should establish policies for assuring area. and at the same time has a great opportu-that non-English speaking students fully acquire nity. English. and that English speakers learn a second language beginning in early childhood. A teacher High Percentage of Non-English Speaking Chil-shortage policy snould also be established to meet dren. The challenge lies in the high percentage ofCalifornia's growing need for quality teachers in students, particularly entering students. whosecritical areas and from various ethnic .groups. family language is not English. About twenty- five percent of California students have limited ability to speak. comprehend. or writeEnglish. They need to learn English as quickly as possible so A. Build school capacity to provide they can succeed in a competitive environment. Under the present system. however, such chil- English language acquisition dren are quite likely to fall behind. and are at great risk of dropping out and havinglimited B. Assure foreign language employment opportunities. proficiency for all children Diversity Not Exploited. The opportunity relates to the place that California holds nowand could C. Establish critical and minority hold in the future as a main trading center on the teacher shortages programs Pacific Rim and with Latin America. The shift to a global economy means that more people will benefit from learning the Pacific languages and Spanish. Moreover, national reports have stressed the need for citizens to learn foreign languages early as an important step in understanding the emerging 21st Century environment. With its rich diversity of people. California could draw on its resources to lead the nation in the developmentof language skills for all students. Teacher Shortage Barrier to Goals of the Fu- ture. The supply of trained teachers is a main barrier to coping with the challenge of limited English speaking children and realizing the op- portunity of training in foreign languages for Eng- lish-speaking students. Shortages of teachers also are likely to occur in non-languageareassuch as math and science. Moreover.teachers from some ethnic minorities are under-representedin the present system; the education system of the future should more closely represent the diversity of the student population. CAPITALIZE ON DIVERSITY:How It Works A. Build Capacity ToProvide English LanguageAcquisition

KEY FEATURES BENEFITS The state should support policies that provide forThis proposal addresses practicalproblems in English language acquisition atage four. upgradeovercoming the under-achievement of students the assessment of limited Englishspeaking stu-whose native language is not English. dents. and increase the supply andproductivity of bilingual instructors. Early Language Development HasLong-term Payoff. language developmentin prim.- schools Early Language Development.Followingfor children ages 4 to 6 would buildwhat exerts state guidelines, suppliers of primary school-call "common language proficiencies"which serve ing would be required to provide languageas the underpinning of all language skillsin both development activities for all four-year-olds.English and the primary language.Research shows Language development would he conductedthat children who develop suchcommon language in the student's native language andEnglish.proficiencies in the primary languagewill achieve and would use developmentallyappropriateat higher levels than theirpeers who have not activities as recommended in section 1.A. received this preparation. Strengthen Assessment. In all grades.stu-Upgraded Assessment PromotesHigher dents would receive languagesupport untilAchievement. Non-native Englishspeaking chil- they attained proficiencyas measured bydren often learn to speak informalEnglish before upgraded language assessmentinstruments.they master the language wellenough to compre- The new, state-approvedinstruments wouldhend and work in formal academicsubjects. Since test students' ability to speak Englishflu-assessments of English speaking abilityoften do ently and to comprehend andwrite in aca-not sufficiently test for formal academiccompre- demic subjects. Districts would be.requiredhension. some limited Englishspeaking children to assess the English proficiency of childrenare prematurely considered equippedID receive upon their entry into schooling, anduponEnglish-only instruction in academicsubjects. their transition to and exit froman EnglishUpgraded assessments will enablestudents to be language development program. fully prepared when they takeacademic subjects in English. and thereforeprevent these pupils Expand Instructor Pool. Bya specified year.from falling behind. under-achieving,and eventu- districts would be required touse appropri-ally dropping-out. ately qualified instructors to provide EnglishMore Flexible QualificationsBuilds Capacity language development and instruction inand Increases Productivity.The most serious students'primary language.Proceduresobstacle to overcoming language would be devised to credential barr:ers that or certify aprevent all students from performingat high lev- wide range of qualifiedinstructors servingels is the shortage of qualified different roles. In addition teachers skilled in to Bilingual Teach-the primary languages of thestudents and meth- ers and Aides, there would be Language De-ods of second language velopment Specialists. Assistant acquisition. The Trojected Teachersshortage of teachers is 11,000 in 1990and 12.600 with AA degrees fromcommunity colleges.teachers by the turn of the and qualified private century. This proposal contractors. (Also seerecommends several strategies forexpanding the recommendation 6.C.) pool of teachers by differentiatingthe roles of instructors with different levels of qualif--cations. Training. Institutes for SchoolDevelopment (see recommendation 4.A) wouldtrain teach- ers and administrators in effective modelsfor English language acquisition.academic sup- The Eastman Project port in a primary language. and means to This program in Los Angelesuse a team teach- sustain fluency in a native language(see rec- ing approach that makes efficient ommendation 6.B1. Models would includethe use of full application of tecimolo*'. and theuse of bilingual teachers who instruct onlyLimited Teachers and Language Development English Proficient students, ratherthan teach a Spe- class composed of one-third English cialists working in teams withnative-language speaking speaking Assistant Teachers andAides. children. In the Eastman School. whicnpio- neered the program in 1981, bilingualteacher demand has been reduced 37.5percent through the restructured bilingualprogram.

206 Q CAPITALIZE ON DIVERSITY: How It Works B. Assure foreign language proficiency for allchildren

KEY FEATURES BENEFITS California should implement policies that insureCalifornia competes in a world economy with in- that all children learn at least cne foreign lan-creasing emphasis on new markets in the Pacific guage. Rim. To achieve its full potential asa trading partner. representatives of California businesses Goals. The state goal would be fluency in atwill need to know the culture andcustoms of the least one foreign language for all studentscountries they are trading with. as well as attain entering college by 1995: fluency for all newfluency in the languages of the Pacific Rim. This K-12 teachers by 1997: and fluency for allproposal sets goals so that California could estab- common high school graduates by 2000.lish foreign language trainingand maintenance Foreign language instruction would be de-as a high priority. signed to stress communication skills more than formal grarnmatic structure. Fluency inEarlier Instruction, More Time Promote Lan- Spanish and in Asian languages would beguage Fluency. Students receive too little foreign encouraged as part of an effort to providelanguage instruction too late in their schoolca- California students with the skills they needreers to achieve competency in a second language. in an international job market. In order to graduate. students nowmust pass one year of a foreign language as an alternative to fine Early Language Training. Exposure toaart. UC and CSU require two years of a foreign foreign language would begin in pre-schoolslanguage for entering freshmen. Generally. for- with 4 year-olds. and systematic instructioneign language instruction is not availableto stu- in foreign languages would begin no laterdents until high school. though expertsagree this than 5th grade for all children. is a poor time for children to begin to learna second language. In 1986/87 only 44.851stu- Testing. Proficiency in a second languagedents were enrolled in foreign language classesin would be tested at the time a student leaveselementary or intermediate schools (grades K -8)- elementary school at grade 6. and upon exit1.5 percent of the K-8 total enrollment. The brief from the common high school at grade 10. one or two year exposure to a foreign language that most schoolchildren receive is fartoo short a Teacher Supply. The state would developtime to attain communication fluency ina second plans to identify and recruit foreign languagelanguage. Experts agree that communication flu- teachers in sufficient numbers to meet theseency takes between four to six years to learn. goals (see recommendation 6.C). Competitiveness Enhanced. California'scom- mercial competitors in Europe and the Far East begin instruction in a foreign language in elemen- tary school. In Germany. children begin foreign language instruction in the fifth grade: in Japan. the sixth grade. The consequence of this imbal- ance is that in international trade negotiations most California business leaders know less about Japanese culture and language than Japanese counterparts know about the English language and American customs. A Nation At Risk.1983. A National Priority

"Achieving proficiency in a foreign language ordinarily requiresfrom four to six years of study and should, therefore, be startedin the ele- mentary grades. We believe it is desirable that students achieve such proficiency because study of a foreign language introducesstudents to non-English speaking cultures, heightensawareness and comprehension of one's native tongue, and serves the Nation's needs incommerce, diplo- \'''...rmacy, defense, and education." 207 CAPITALIZE ONDIVERSITY: How ItWorks C. Establish criticalteacher shortagesprograms

KEY FEATURES BENEFTIS New government and non-government programsOver the next decade, about150.000 new teach- should be establishedto help meet shortages ofers will have to enter California K-12 teachers in critical subjectareas, including the education to recruitment of under-represented keep pace with enrollmentgrowth and replace minorities. teachers leaving for retirementor other reasons. The implementation of Designation of Critical Areas.The Superin- several earlierrecommen- tendent of Public Instruction dations would ease the generalproblem of teacher would be au-shortagesfor example, thorized to designate subjectsas Critical use of Assistant Teach- Teacher Shortage Areas. ers to replace some retiring Teachers,greater use of technology. introductionof Adjunct Teachers. Incentives. For designatedshortage areas,higher wage scale for allteachers. career advance- the state would initiate ment possibilities. and greatlyimproved working a program that wouldconditions stemming from provide scholarships for qualifiedcollegeteachers. the empowerment of students. who make acommitment to teach in the shortage area at leastone year forHowever. these reformsare not targeted to par- every year they have receiveda scholarship:ticular curricularareas where shortages presently and graduate fellowships forcandidates withexist and are likely toworsen. Mathematics. sci- bachelor's degrees in thedesignated short-ence, and bilingual instructionare currently the age areas who wish to pursue furtherstudiesmost critical areas. This leading to a clear credential. proposal offers steps to strengthen current effortsto prevent severe long- run problems by using a seriesof specific incen- Early Recruitment. Thestate. working withtives to attract teachersto specially designated the business community. wouldinitiate a newcritical shortageareas. "Early Identification andRecruitment" pro- gram for teachers in criticalshortage areas.In addition. business hasexperts in critical areas The program wouldsupport a publicity andwho would like to teach ifways can be found to recruitment campaign designedto interestenable them to contributeto schools without high school and collegestudents in teachinghaving to give up theircurrent professions. Pro- careers. grams of this nature have beenexperimented with around the country. Retraining. The state wouldreimburse the expenses of Teachers wishingto retrain for teaching in a designated shortagearea. To be eligible for state reimbursement.Teachers would have to pass thesubstantive portion of the Professional TeacherExamination (see recommendation 5.B) within threeyears of beginning their retrainingprogram. The busi- ness community wouldpromote programs (e.g.. job-sharing, lending specialiststo schools as Adjunct Teachers. and earlyretirement) to help resolve the critical teachershortage.

/---1 PACE.1986. SDE. 1988 TEACHER SHORTAGES In 1985-86 there was a shortage of 821 math teachers.representing 8% of the 10,249 in the field. The Lack of science positions teachers was even moreserve at 8.7%. The greatest shortage occurred in bilingual education. which accounted for 44% of the totalteacher shortage. Minority teachers are under-representedrelative to the proporuons of schools. ethnic students in public Native American Asian Black Filipino Hispanic PacificIslander White % of Teachers 0.9 3.4 6.2 0.7 6.7 0.2 82.1 % of Students 0.7 6.9 9.2 2.0 29.6 0.6 51.0 \.. r.) 4. 4, .1 7nR A°11AUGHrri SIN THE MIDDLE

Educational Reform for Young Adolescents in California Public Schools

REPORT OF THE SUPERINTENDENT'S MIDDLE GRADE TASKFORCE CAUGHT IN THE MIDDLE, EDUCATIONAL REFORM OF YOUNGADOLESCENTS IN CALIFORNIA PUBLIC SCHOOLS, CALIFORNIA STATEDEPARTMENT OF EDUCATION, BILL HONIG, SUPERINTENDENT OF PUBLICINSTRUCTION, SACRAMENTO, 1987.

Finding 1: Core curriculum. Every middle grade student should pursue a common, comprehensive, academicallyoriented core curriculum irrespective of primary languageor ethnic background.

Finding 2: Knowledge. Every middle grade student should be empowered with the knowledge derived from studyingthe ideas, experiences, and traditions found in thecore, elective, and exploratory curricula.

Finding 3. Thinking and Communication. Every middle grade student should develop the capacities for criticalthought and effective communication.

Finding 4. Character Development. Every middle grade student should be helped to personalize idealsand to develop the ability to make reasoned moraland ethical choices. Finding 5. Learning to Learn. Every middle grade student should develop a repertoire of learning strategiesand study skills which emphasizes reflectivethought and systematic progression toward the goal of independentlearning.

Finding 6. Instructional Practice. Instructional practice should emphasize active learningstrategies which are consistent with the goals of thecore curriculum and the developmental characteristics ofyoung adolescents.

Finding 7. Academic Counseling. Every middle grade student should have timely information about therelationship brween the curricula of the middle andsecondary grades and r' ad be provided access to the opportunityto prepare for broadest possible range of academic options(curricuiLw paths) in high school.

Finding 8. Equal Access. Every middle grade student should have access to the most advanced levels ofcurricula offered during each of the middle grades; thisopportunity should be facilitated through educational policiesand practices which make the highest level of content masterya valid and obtainable goal for vastly increasednumbers of students. Finding 9. Student Diversity and Underrepresented Minorities. Every underrepresentr.ed minority middle grade student should receive encouragement and incentivesto pursue academic and occupational goals.

Finding 10. At Pisk Students. Many riddle grade students are "at risk" of dropping out of school; they should have access to educational programs which emphasize personal

210 4.-e commitments to academic achievement.

Finding 11. pyInZLtLn11oaDeveP'sicaadrLo o:prLent. Many middle grade students require specificprimary health care services and strong counseling and guidanceprograms in order to be able to concentrate theirintellectual abilitieson academic goals.

Finding 12. School Culture. Every middle grade student should experience a positiveschool culture which reflectsa strong, student-centered educationalphilosophy. Finding 13. Extracurricular and Intramural Activities. Every middle grade student shouldhave access to extracurricular and intramural programs whichdevelop a sense of personal connectedness to school throughactivities which promote participation, interaction,competition, and service.

Finding 14. StudentAccountability. Every middle grade student should be accountablefor significant standardsof academic excellence andpersonal behavior. Finding 15. Transition. Every middle grade studentshould experience a successful andpositive transitionamong elementary, middle, andsecondary levels of school organization.

Finding 16. Structure. Middle grade educationshould be identified with grades 6,7, and 8; disparities instate funding formulas amongelementary, high school, andunified school districts should beeliminated for these grades.

Finding 17. Scheduling:An Expression of MiddleGrade Philosophy. The school schedule forthe middle grades should be a direct reflection of a sound educationalphilosophy and should facilitate equalaccess by all students to the range of instructional full programs and student supportservices. Finding 18. Assessment. Assessment programs for themiddle grades should be comprehensive;they should include measurement of a broadrange of educational goalsrelated to student achievement andprogram effectiveness; the primary purposes of middle grade assessmentshould be to compile data which lead to improved curriculum and instructionalprograms and more effective studentsupport services.

Finding 19. ProfessionalPreparation. Middle grade teachers ar.d principals should beprepared to teach/administergrades 6,7, and 8; specialized preparationshould address the content areas of the core curriculum,instructional strategies which emphasizeactive learning, and the developmental characteristics ofyoung adolescents.

Finding 20. Staff Development. Middle grade teachers and principals should participate in comprehensive,well-planned,

A 211 . long-range staff developmentprograms which emphasize professional collegiality.

Finding 21. Parents, Communities,and School Boards. Parents, communities and schoolboards should share accountability for middlegrade educational reform.

Finding 22. State -of- the-Art Middle Grade SclJols. A partnership involving localschool districts, institutionsof higher education, and thestate Department of Education should be created to facilitatethe development of 100 state-of-the-art middle gradeschools; the mission of these schools should be toserve as a catalyst for middle grade educational reform throughoutCalifornia.

r

212 Report and Recommendations of the California Commission on School Governance and Management

TO The Governor AND THE State Legislature

Sacramento May, 1985 SUMMARY AND RECOMMENDATIONS

The Commission on School Governance and Management met during theseven month period from October 1984 through April 1985 inan effort to respond to the provisions of Section 33600 of the California Education Code (SB 813/1983). The Commission reviewed numerous reports and studies that had been completed over the preceding sixyears. Many of those reports and studies were directed at the same issues thatwere included within the Commission's charge in SB 813. The Commission took invited testimony from a number of educational experts and authorities and called upon the experience and knowledge of the Commission members to gain a shared understanding of the problems associated with California's system of school governance and management (SG &M).

After a series of ten meetings and hearings, the Commissionhas concluded that while the State's public educationalsystem underwent massive changes during the past twentyyears, no significant effort was made to overhaul the SG&M structure inresponse to those changes. As a result, a serious alienation has builtup between the public and the educational community, and a cynicism hasgrown within the educational community itself about the ability to solve the problemsand improve the quality of education in California.

The Commission believes that what happensduring the next ten years in California's schools may well hold the keyto the future of this country's democracy in the twenty-firstcentury. With the diverse population that exists in California and the projectionsfor even greater diversity in the years ahead, it is essentialthat the California State Legislature and thestate government take bold actions to strengthen the teaching and learningprocess in the schools throughout the State and streamline the bureaucracyso that there are clear lines of authority and responsibility.

The Commission has concluded that major systemicchanges are required in order to balance changes at one level with changesat another so that there is not a competition for power and authority but rathera building of a partnership and a sharing of thepower and authority.

Since the Commission's initial work isnow complete, the Commission submits the following recommendationsto the members of the Legislature and the Governor. It is hoped that these recommendations and thereport will serve as a tool for broad-based discussionson issues of school governance and management in California.

RECOMMENDATION I

As a first step in moving toward a more effective andefficient educational system, the Commission recommends that the Legislature delegate greater authority and fiscal discretion to the localschool site. As an example, this might be accomplished by blockgrants of categorical moneys which are currently apportionedon a per pupil basis

214 r2 to each school site. Included within the block grant might be prior year accumulated lottery revenues. Base revenue limit and formuladriven funds would continue to be apportioned at a higher level of SG&M.

RECOMMENDATION 2

An accepted process should be developed for use by local school boards that will guarantee a continuum of curriculum and program among the various schools within a K-12 community. (At a minimum, a K-12 community consists of one or more secondary schools and all of the schools that feed children into the secondary school(s).) The school board responsible for each school site should be held accountable for maintaining the continuum.

RECOMMENDATION 3

The school site administrator should: (a) be delegated reasonable authority in the selection and retention of school site personnel; (b) ensure that the adopted curriculum is being taught effectively; (c) provide regular and systematic monitoring of classroom activities and provide each site employee with regular performance evaluations; and (d) coordinate educational and personnel activities with other site administrators within the school's K-12 community.

RECOMMENDATION 4

Concurrent with the delegation of power and authority through statute to the school site, the Commission recommends: (a) a strengthening of the training and preparation for school site administrators, and (b) a redefinition of the school site council to include greater lay I participation. The lay members might be formally elected by the voters of the community.A strengthened site council might take the place of the multitude of "councils" that exist at many school sites (see Reference 26, Vol. II, pp. A82 -A88).

RECOMMENDATION 5

The State should seta ways to clarify the functions of the school districts of California so that the educational and business services provided to the school sites and the professional educators at those sites become more equalized and the delivery systems more efficient and effective. This can be accomplished in the following ways: a. Area Educational Services

Once greater power and authority along with expanded spending discretion have been delegated to the school site, educational services could be consolidated into units covering larger areas than those which currently exist in most parts of the State.

215 Simultaneously, in thoseareas where districts have size, the educational grown large in services units should beestablished on the basis of seasonably sized communities of interest. In those communities where the educational servicesare dispersed into smaller units, the existingeducational services units eliminated. should be (For an expandeddiscussion on the educational unit, see Exhibit I,pp. 30-31.) services

b. Business, Professional,and Administrative Services While educational services are being consolidatedinto more compact and/or effective units, the business, professional,and administrative services of the educational bureaucracyshould be consolidated into much larger regional servicecenters to provide more consistent and equitable services throughout theState. (For an expanded discussion,see Exhibit I, pp. 31-34.)

RISCOMMEIIDATION 6

In order tostrengthen the lay leadership and businessmanagement functions in the SCAMstructure, the State should establish for Governance an Institute and Management tosupport the public school institute should he system. This charged with the trainingand development of school board membersto ensure articulation elected throughout the system,to broaden communityperspectives, and in educational to maximize the potentialfor equity opportunities and schoolleadership in the State.

RECOMMENDATION 7

Noneducational managers should be offeredtraining and development opportunities career through the Institute forGovernance and Management. This would provide for more consistentprofessional development of thepersons in these positions while delivery of quality ensuring the and equivalent servicesthroughout the State.

RECOMMENDATION 8

The State shouldmove to define more precisely the responsibilitiesof the county offices ofeducation throughout the State so that inthose counties where there isa relatively small student county offices might population, the serve as the educationalservices unit, and business services would the be provided by largerregional entities. In those countieswhere there are to be several educationalservices units established, theremay exist one or more regional one of which could be the service centers, existing county officeof education. In examining the roles for the countyoffice of education in restructured and more clearly a defined hierarchy of SG&M,the State should reconsider the processes that are used to selectsuperintendents and board members forthese agencies.

216 3 districts that duplicative,coterminous unified The State should ensure to exist. and county offices ofeducation are not allowed

RECOMMENDATION 9

that the current processof collective The Commission believes counterproductive. Now that bargaining at the districtlevel is often funding, the Legislatureshould the State formulatesthe allocation of of establishing a systemof salary schedules consider the possibility if the State adopts determined at the statelevel. As an alternative, center approachoutlined in the"Theoretical the regional service shift Structure" (see Exhibit I, p.30-34), it might be preferable to bargaining process to theregional operations. In the salary schedule that take place this way, the oftendivisive and debilitating processes school districts could be today in small, mediumand even some large avoided.

RECOMMENDATION 10

the possibility ofdecentralizing some of the The State should consider particularly as they operations of the StateDepartment of Education, training of relate to compliance andmonitoring activities where the and oversight of projects,and monitoring for clients, close supervision services could compliance activities areimportant. These decentralized defined be provided by a few of theregional service centers that were in Recommendation 5b above. educational Every effort should be made toavoid the creation of new consolidate special offices and agencies throughoutthe State and to of commonality activities into regional service centerson the basis to maximizeefficiencies, of objectives. Such consolidation would serve services. facilitate communications, andenhance effectiveness of these

RECOMMENDATION 11 forward funding The Commission recommendsthat the State establish consider changing the guarantees for financingpublic education and the budget calendars for schooldistricts. The school districts in significant ways from State of California areconstrained in several developing their budgets in asystematic manner. By establishing provide guarantees for subsequent yearfunding, the Legislature could and the development of the districts greaterflexibility in the planning programs. Commission further In order for this type of processto succeed, the will protect recommends that the Legislatureenact laws or policies that funding changes school districts from theimposition of new programs or be to augment during a school year. The only exception would 30

217 previously budgeted funding and only then, at the option of theaffected district(s).

Adequate, stable, and guaranteed funding is absolutely essentialif the State is to expect a restoration of quality to the publicschool system.

RECOMMENDATION 12

The Legislature should authorize the changingof district boundaries to realistic communities of interest forpurposes of school facility planning and construction. The Commission furtherrecommends that the State Legislature refer a constitutionalamendment to the voters to reestablish a community's ability to seek voter approval and thenissue general obligation bonds for the neededconstruction and/or rehabilitation of local public schoolfacilities.

RECOMMENDATION 13

The Commission believes that the current process of appointingState Board memoers, electing the Superintendent of PublicInstruction, and directing he Department of Education lacksthe cohesiveness that could produce the best results for the educational system inthe State.

The Stat . should consider amendingthe processes used to select the Superintendent of Public Instruction and State Board membersand possibly redefine their respective roles as they relateto the direction of the State Department ofEducation.

RECOMMENDATION 14

The K-12 educational hierarchy needs to bemore directly involved in the development and training ofCalifornia's school teachers. Just as there is a need for a clear delineation of power and authority withinthe educational operations of theState, there is a need fora more direct linkage between the needsof the classrooms and site administrator's offices and the collegesthat train and prepare those leaders. The State should ensure that the colleges and universities ofthe State retain their academic autonomy while at the same time the Stateshould more precisely define what is expected fromthose individuals who will be the educators of futuregenerations.

RECOMMENDATION 15

The Commission believes that thereis a significant role to beplayed by the State in any comprehensive educational system. Most importantly, however, the Commission has concludedthat the educational community needs to understand clearly what goals and outcomes are expectedof the public school system in California. The Superintendent of Public

218 Instruction, the State Board of Education, the State Legislature and the Governor should agree on a common set of goals and outcomes so that the parties responsible for educating our children will be able to respond to greater specificity and clarity.

RECOMMENDATION 16

In order to more fully develop its concepts, ideas, and recommendations, the Commission should be funded during the 1985-86 year, independent of the State Department of Education, and be provided with sufficient funding to facilitate broad-based discussions, to develop plans for implementation of SG &M reforms, and to recommend revisions to existing regulations and state codes.

RECOMMENDATION 17

The Commission believes that along with the delegation of expanded power and authority to the school site, the Legislature should afford parents the opportunity to have their children educated at a school near the parent's or guardian's place of employment. This is particularly important when the selected school offers before- and after-school programs. This could help to strengthen parent/child/teacher relationships.

Further, as the strengthened school site operation matures, the Legislature should consider the possibility of allowing open enrollment within communities of interest on.a scale larger than just a neighborhood. Children should not be locked into a single school site that will not or cannot improve itself in spite of significant opportunities to do so.

The move (legislatively) toward a more open form of enrollment in California schools should be approached cautiously and be implemented only after there is a strong sense that freer forms of enrollment would strengthen the public school system and afford improved educational opportunities for a broad spectrum of the State's student population.

RECOMMENDATION 18

Because the current school elections are conducted in odd numbered years, the incentives for citizen involvement are minimal. In many communities of the State, the school board members are elected by only four to five percent of the entire voting age community. In order to improve citizen participation and maximize community involvement in school board elections, the Legislature should consider changing the date for the school board elections to coincide with the June or N'ivember general elections in even numbered years. (This process is allowed and is the preferred practice in San Diego County.)

219 I / tikj RECOMMENDATION 19

The commission members believe that the mission of the K-12 public school system should be primarily to educate children through their teen years. The State should consider assigning the responsibility for all adult education to the community colleges.

If this recommendation is adopted, the community colleges should be given the authority to delegate certain educational functions to area schools (K-12) when both agencies believe the efficiency and effectiveness of adult education could be enhanced.

RECOMMENDATION 20

The Commission believes that the State should initiate a complete redrafting of the Education Code and the California Administrative Code, Title 5, Education, as a part of any major restructuring of the SWIM system.

CONCLUSION

The Commission on School Governance and Management urges the State Legislature to take bold steps to ensure that the recent reforms to California's educational system are successful. It is not sufficient to merely prescribe changes from above; it is necessary to delegate to the local agencies the authority and means to work toward the Str6e's goals and objectives and then to hold those agencies accountable..

, (-) 1.. aJ 220 CONCLUDING COMMENTS AND FUTURE WORXPLAN

The Legislature, in defining the six areas that the Commission on School Governance and Management was to review, identified issues that have been of concern to the Legislat-e for some time and for which previous studies have failed to produce recommendations or reforms that eliminated the problems associated with those issues.

Recognizing this fact, the Commission reviewed previously commissioned reports and studies and several articles pertaining to the issues under consideration. Having reviewed this wealth of information, the Commission concluded that in dealing with narrow issues, the specific recommendations often fail to encompass other affected issues and are dismissed as lacking adequate analytical bases. In an attempt to avoid this problem, the Commission purposely chose to first gain an understanding of the system as a whole and then to seek solutions that would be synergistic in application.

Although the theoretical structure presented in this report is idealistic (see Exhibit I, pp. 28-36), the Commission believes that the proposal contains a number of significant ideas that would substantially improve the effectiveness and efficiency of the educational process in California. The Commission is not so presumptuous as to believe that the structure, as presented, can or should be implemented without changes. Rather the existence of this proposal should help to stimulate broad public dialogue and help the Legislature to reach conclusions concerning what should actually be enacted into law.

If the Legislature decides to continue the Commission in 1985-86,the members would be prepared to refine the Commission's recommendations, delineate more clearly the responsibilities inherent in the proposals, and prepare a plan of implementation for Legislative consideration. Clearly, there are many constitutional, fiscal, and legislative issues involved in a major restructuring of the overall governance and management of California schools, and there is a need for a clear communication to the public as to what those changes might be.

During the remainder of the current fiscalyear, the Commission intends to conduct hearings to accept testimony from interested individuals and organizations concerning the contents of this report and the recommendations to the Legislature. The Commission will submit a supplemental report to the Legislature during the month of July 1985 that will document the findings of those public hearings.

Regardless of the information that is collected during these hearing., the Commission is convinced that if the State is to realize significant improvements from the reforms enacted in SB 813, the Legislaturemust delegate greater authority and power back to the people at the school site.

221 A Strategy For Improving California'sSchools

T;:e Report Of The California Commission On The Teaching Profession \.'v ember. 19S5

1235 WHO WILL TEACH OURCHILDREN? A STRATEGY FOR IMPROVING CALIFORNIA'S SCHOOLS, THEREPORT OF THE CALIFORNIACOMMISSION ON THE TEACHING PROFESSION,NOVEMBER 1985.

Finding 1. Restructure the teachingcareer and establish rigorous professionalstandards. For the teacher, no feature of the teaching occupationis more destructive of the longterm prospects for improvement than the current realitythat to move up,you must move out-. Recommendations:

1. Establish a new systemof setting and enforcing professional standards, 2. Deregulate academic trainingof teachers, 3. Require a teaching residency for a clearcredential, 4. Replace the emergency credential with an alternateroute into the teachingprofession, 5. Redesign the process for granting tenure toteachers, 6. Establish a "boardcertified" classification, 7. Strengthen and focus thementor program, 8. Create and fund a comprehensivegrant program to demonstrate advancedcareer options for teachers, 9. Give teachers fullcredit on salaryschedules for their total years of experience, 10. Offer sabbaticals to improve teacherproductivity. Finding 2. Redesign the schoolas a more productive workplace for teachers andstudents.

Many schools today donot provide teachers the basic resources and students with for their work. If students are tobe motivated to learn, theschools must providean environment in which teacherscan teach. Recommendations:

11. Begin the process ofreducing class sizes, 12. Provide safe andsufficient classroomspace, 13. Provide sufficientinstructional materials, 14. Develop and publish a biennial "index of Conditionsfor Teaching and Learning"for every school, 15. Intervene in schoolsat risk, 16. Restructure the statecommittee on educationand technology, 17. Focus professional development programson educational improvement, 18. Define the role ofthe principal, 19. Restructure themanagement of California schools, 20. Involve teachers inschool decision-making, 21. Develop demonstration "Education Policy TrustAgreements" to formalize cooperationof teachers and in educational improvement. administrators

223S" Finding 3. Recruit capable men and women to teaching.

Recommendations: 22. Make beginning teacher salaries competitive with other professions, 23. Restore lost purchasing power for career teachers, 24. Initiate a statewide recruitment campaign for new teachers, 25. Recruit minority teacher prospects at the high school level, 26. Create a work-study program in public schools for college students, 27. Offer additional service-payback fellowships to prospective teachers.

224 Excellence for Whom? A Report From the Planning Committee The Achievement for Council r Dr. Patricia R. Brown Prepared by: and Kati Haycock ), FundfromPublication Californiafor Faculty of this Casualty Research report wasand administered madethe Spencer Foundation possible by grants CoverDistrict.Photographsof Education by Daniel atcourtesy Galvez the University of of Oakland, the Oakland of California. Unified School California, Berkeley. by the School (( )1984 The Achievement Oakland,1016 CastroCalifornia Street 94607 Council, Inc.

(_ 0 andtodayteachers ThoughtsAnglo,PART inside and FOUR outsideadministrators,on Strategies the confines minorityThere are many educators in California of to Improve Achievement NEWTENEXTENDING PRINCIPLESSTRATEGIES SUCCESS: TO GUIDE 4. aretoLike few incentivesbut, everyone incentives else, to at improve educatorsthe moment minority respond there sometimespotentialminorityhaveschools dedicated and youngin education. throughcolleges, their people lives special public Singly to assistingachieve and and privatewho in their full poor and groups; buildingedtended? at certain on Overthese conclusions thesuccesses. course of aboutBecause our study,stratj t ies forHow can these and other successes be ex- w0 arriv- se con- mentdressincludeachievement: andproblem, incentives ameliorate an and effective for willthe schools underachieve-eliminate solution to ad-thewill theirdevoteorganizations,without tasks. enormous extra sometimescompensation, energy and not; endless these and normally individualshours programs and to themremedycanpearclusions be onforth used the shape below. underachievementfollowing to evaluatethe recommendations pagesand yet other problemwe because initiatives that they to setap- 5. ingandRatheristingpenalties totheir the thanprograms. component needs on involving progress of poor parts allwithin and institutionsin respond- minoritycertain ex- . . . 1. secondarypasslevels:gartenThe achievement elementary, andan effective educationincreases secondary,gap solution throughand begins will will and theinstrength- kinder- gradepost- encom- thoughofconsisted programs,students,institutional the of importance our aisolated seriesand response community offrom andspecial hasthe success remainder generallylife.add-on Al- of youngsters..111Iflivestutionsdo of minority make a anddifference low-income in the educatorsand their insti- 2. Thetutions.en typical the connections student attending between a pre- insti- ment:changediscounted,many an ofgeneral effective these they programspatterns aresolution not sufficient ofshouldwill achieve- seek not to be dileducatorsand ler ence in the their lives institutionsdo of minority and makeAs is evident in the preceding chapter, these low- a remedyschools:thehavedominantly same access resource qualityan minorityto effective educational as disparities, do school students solution espp does in otherdally not resources of will topromotingsolveengage turn the entire all underachievement and educators schools supporting around. in themore problem, effort efforts to oftendisciplinarygoingprograms,income difficult rates youngsters. havetransitionachievement actions gone havefrom up; In drop-out, individualscoresschooldecreased; and schools college-and the truancy, andto work has and 3. disproportionatevacancybyWheneverin relationinstitutional rates, studentsto andthe numbersfiat curriculum,teacher areOf studentdivided, of quality. poor Teacher choice,whether and 6. counselor,leadershipitiativeshingeAlmost notall but, of teacheron from thein state-wide themajor aor end,superintendent, program success on policy personal director: stories in- byaedrower,been special hismother eased. counselor there way; whose Inare the others, toalso lifegang give is"results": although schooltouchedleader who thethe by isyoungfocus convinced one more try; the a teacher in is nar- unw- educationallywillthangroupminority move their where students peers:toward students unnecessary anend the effective up areelimination in taughtthe divisions solution bottom less of particular,lyplemechanismsan and toeffective the to serviceeducation and tosolution attract in will minorityprofession more schools able general- peo- in establish ap-will include findsvocationalaptituderiizesrecent him and hiddenimmigrant a education decent cultivates behind whosejob student thewith her collegeextraordinary halting whose professor English; x.12 a promising future. instructorscientific recog- the withinquatelyed,ingand that, poorbranchingthe preparedhigherwhereand minority points, studentsgroups. for andstudents must towardrepresented be divid- are ade- assur- 7. achievementopportunities.sedMostpropriate on supplemental students training spectrum, at andresources either communication leaving end are offocus-the the 43 needs of middle-achieving students is in their best interest; (b) it is widely achievers,enhancedunmet:oursare many anshould effective recognizing reasons service provide solution why to extrathatwhile athe society will attentionmiddle- provide theresuch asto (c)facilitateunderstoodreengagedmake educators the progress schools that in theacross the processbetterby changes minorities the for of stateall education;that students; willare ty.The in a Achievementnew push. to boost Council the. achieve-will workto unite schools and the communi- berslikelytionalachieverslastingthe needs of toand the occur economic: ofunderserved unusually when change additionalpatterns high middle in and educa-is mem-group more low- conceivedsive,eachresolutelyand (d)initiativeeach the whole.and should problemneed systematically: notbe bepart comprehen- of a while well- is attacked mentforfollowingin The otherof Achievementpoor pageswords, and will seek serveminority Council: California-wide as an the students.initial Council changes agenda will,The in recommendations laid out on the 8. ferentwaysTherequartile.are assisted students arecultural important into and andthe uppereconomic parentsdifferences achievement from groups in thedif- COUNCILACHIEVEMENT:LEADERSHIP IN THE IMPROVING ACHIEVEMENT As we sat down to translate these principles California-widemunitiesforcesandeducational set that in around motiondiscourage policy activities, the broadand State. highpractice, strategies the achievement In Council addition and to will counteractwill to developin mount thesecom- bothaggregatinggroupeffectiverespond the differences, todesign solution educational groups and refrainingwill andimplementation heopportunity: sub-groups sensitive from over- an toinof conscioussomeonebetheinto tossed sortspecific weof wouldinto the wereaction the fact act consideringwind proposals,thaton them. withrecommendations the Rather, couldwe expectation were experiencenot acutely simply ofthat agenciesfortduringincometwenty to involveits firstto andhigh thirty yearcolleges,others schools predominantly a morein businesses, helpingand narrowly their to minority feeder"turn focussedgovernment around" elemen- or ef-low- . . . the changes thateducational twill facilitate strategies. alsoanddepend.;ashas complex taughtthe on recommendationsthe not us presenceas onlythat the onprogress one the of we qualitycontinued that inaddress solving issue of the leadershipfrom frequentlya analysisproblem it, but ment.anthetary allcommunities and out junior ellott highs,to surrounding encourage and will studentthose work schoolsto achieve engage in progressschools by better minorities for all students.will make the 9. that,There even is mounting if we could evidence eradicate to suggest over- partandthere minorityadvocacy.of is the very last studentslittle yearAt advocacythe laying moment,in California. the on groundwork behalfunfortunately, of poor forWith this need in mind, we spent the better P1 thattionwouldtionalnight willdiscourage not all counteractsystem, disappear:of the high problems the non-school achievement anachievement effective in the forces educa-solu- and gap minorityenergeticCouncilthataleaders and advocatefrom low-incomewill the serve ethnic,for the asstudents. educational an informed newComprising needsand organizationThe and .busi- of Achievement 10. achievement.willmunity includeI he in effortsthe drive to engageto encourage the com- high (1 ildetudiieveinclit is achievementwillstrategiesness carefully communities, analyzethatand whatpromise whatThe does Achievementworks to not, generate inand increasing promote Councilreal im vincedsectionlikelyItmassive is not, tothat of diminish however, andCalifornians solution will notif: insoluble, (a) ofgo a thiscanaway broader problemandbe overnight. con-is cross- more pioblern toother minoritypushprovernehts.unite interested toschools booststudents. The individuals andthe Council achievementthe community andwill work,organizations, of inalong poor a new withand FOCUSSED ACTIVITY:THE SCHOOL/COMMUNITYThere areINITIATIVE approximately 175 comprehen- basis,professionalsdevise and vehicles explore into to otherbringthe schools successful ways of creating new on a regular minority ourstatecriteria view, education isrecently the absence developedofficials. of any Especially by language both federal critical, on the and in feeder20tions.lysive minority to high 30We elementary ofshoots recommend and/or these in schools,low-income Californiaand that, junior togetherbeginning with highstudent predominant- schools, be with their in 1985,popula- non-college-boundsupport,theincentives business manpower, for communityto high students. andachievement; hiring provide incentives and for financial upward,characteristicsratherinstitutionsresponsibilities than schools being to of poor areourstudents encouraged educatorsleftand to minorityincluded generate andto broaden educationalinstudents: increases the move the dividualsplayoffyearselected the the"turn ground, role forand around" participation oforganizationsThe facilitator, Achievementeffort. inTo exploring theget Council contributionsthis initiative an intensive, four- with in- should improvementtativeshaveForce already from composed programs turnedin troubled of the leadersaimed schools. at from bringing To This initiative should be corner and represen- overseen by a task schools that get the about ofchosencountability,development inthe the curriculum toeasiest stimulate centeringof possiblea more andimprovement balancedways.on a setWe ofrecommendin indicatorsall system of ac- aspects the example,expertiseticipating,terestthey might in and andandwork make, the resources.otherwise to capacityidentifyingobtain connectingCouncilagreements to schools benefit staff needs with frommight, from: an in- withpar- for matchingorganizingzationsconsiderationdistrictbest from schools all this participantsstudents, effort with oncomparable should a competitive be given staff, parents, and outside organi- institutions.school and basis, to students.achievementecutivereport officers annuallyWe alsoamong of recommend onour minority their educational efforts andthat thelow-income to chief improve among all kinds of systems ex- mentiicipatingprovementEducationtoThe State of disci schools Department efforts supportetionai priority by yandthese lunds,assigning in State the school providingdisburse- Board par- im- of achievementACTIONSCALIFORNIA-WIDE FORproblem THE el ACTIVITY:SCHOOLS If California is to attack ively, we think it bill its under- underachievementIf problem effective-California -_-_-_-____- ,_ is to attack _ its sources;withcatesjoiicalunnecessaryspecialized the clout hinds, totraining, freerestrictions and waivingassigning on red the use of up departmental re- tapea liaison and studentsinglevelsportant achievement of thatthe as educationaleducators one among of their andsystem foremost institutions regard poor and minority improv-respon- at all ingthecatorsly, weeducationalachievement and think institutions it system important among regardat all that levels improv- edu- of innearby the turn-around colleges and process universitiesto by help creating sizesideredobligationsibilities. of the fulfilled underachieving toWe these byhave special youngsters passed add-on populations the time programs:can the be con- when our is large foremostminority responsibilities. students as one of their poor and 4,01111 hostingotherin ingmanagementthe theacademic Writing workshops schools and training partnership first for Math crack teachers opportunities, projects at participation of giv- programs, a par- and achievementschool-widebenefitsenough, theirof gains. changeefforts problems to broad generate great enough enough, across -the -board to warrant and the withunnecessarythat an the eye K-12 toward branching curl eliminationiculum points be carefully ofand educationally channels, and2. The K-12 Curriculum: We recommend rethought educationaliesonicesticular oforganizationsto use to the schools: contribute subject, and providing other changespoolbased otid strategies mumwill make to improve the schools achievement Following are our suggestions for ! ily We think them. better for all school-among ..11(complishedstudentsadoption mustof in practices ways be differentiated,that tominimize101 the this Ilateffects k(P(Iiiiid. of assure that, where is ac- organizationstoimprovedlocaltrainingexpertise community opportunities; achievementand encouragemanpower, and statewide and and and reward provide ethnic ingcreasingyoung educational Californians.attention accountability, is being devoted 1. Improved Accountability: we are seriously Although in to improv- StudentculumliteracysuringAt the should mastery that elementaryskills all be by children of oriented the those endlevel, develop skills towardof gradethe should soundcurri- six. en- 4 6 attendance, concerned about the narrowness of the success be assessed frequently, with indivi- ea,I. 1 g dingBeginningprovideddualized at least routinely.assistance in gradethrough seven prescribed grade and ten, exten- and all propriateshouldcoreedstudents to thecurriculum. be in same,assistance assessed California academically-rigorous Student regularlyshouldprovided. progressbe and expos- ap- studentssortingsciousbeAt thoseseparated, ofprocess pointsand the take possibleschools at on which such poor should effectsactionstudents and minority beas of must con-mayany IS Teachersorthat training, they and feel to administrators unprepared,respond effectively either frequently by to background the report educa-3. Teacher and Administratorbe necessaryTraining: to reduce those effects. administratorsthetentionHowever,tional question has needs yet while"What been toof this knowdopoor directed wemuch (and andwant is toward minority do)ouragreed aboutteachers answering to,students. these little and at- schools.principalsdevelopedunderachievingfocus on fromin'training close improving schools consultation minorityand with be leaders for collectedethnicCaliforniaDrop-out and by data economicalland shouldhigh should schools beinformation; uniformlyinclude in bequestion,populationschools,ministrators convenedincluding we representativesgroups?" recommend from To predominantly answerthat fromteachers a groupschools this importantofand ofminorityexperts educa- ad- mayandanalysis training, be especiallysuggets certain that, importantsteps in andaddition typesin the to of processleadership resources of4. Steps Toward anproving Schools: Our dataploreTheshipEducational resourcesCaliforniaways reports in which Opportunity andcan Round othercollegebe combined Tableinstitutional shouldscholar- on to ex- curricularschoolandstrategies,tion, intercultural and opportunitiesto modules recognizedthe effects differences for ofinclusion expertsteacherdesign in in responsesexpectations,oneon teacher learning or more and to turning schools around. A. STEP ONE: Analyzing theachievement Problem.poororder students, to plan In among strategies schools minority need for improving adequate and forThegraduatesfeedbackprovide periodic state shouldwhohigh follow-up information enter schools provide college; studies with support on better their of subject.aadministrator series of in-service training trainingprograms programs and to develop on this schoolsOur review turn of around the process suggets by that which the educationalfacilitateconsiderfollowingbaseline this what datadata analysis,modifications the andsystems: data anwe opportunitysuggest mean. in current theTo to evaluatesograduatesthosethese that California high theirstudents who schoolssuccess do not highwith enter in can equipping theschool college, better skills 1'6 Academies;'theWeitiativeprinciple fortherefore mation in typically Sacramento butofwelcome several suggt plays the"Management toa recentpivotalencourage in-role. that these CAPtakerseconomicshouldThe State and and incorporate CBEDS Departmentcourse information enrolleessystems; ethnicof Education on into andtest the tytionaldataIn necessaryattentionall collection ofagencies their to forperformance-related providingefforts, shouldwork; stateand giveschools educa- priori- in tiontheinterpretingmore lowestand detailedwith achievement technical and evaluative acting assistance deciles on theinforma- with data. in meanBecauseforthen progress. tothe holdsupplemental difference them accountablebetween funding con-may fidenceleavereviewnow us andof that satisfied, current will California become practice much will moreless doesbe give ableso not, in usto the however, meetany future. con- the A B. S1LP TWO: Establishing asforThean Agendaaindividual resultingwhole. foi schoolsdata should and forbe availablethe state SESfundingacademictinued schools progressshould stagnation, that be andprovided improve atransitional return to out low- toof to theotherpresentchallengeand context agreement linguistic problem ahead. of agreement supporton results We the believegoals fromprograms. on afora that setlack bilingual ofmuch ofFor goals attention only andof can the in tonumberCaliforniabelieveProgress. create thatof schoolanOnce minority itagenda is data servingimportant or are forpoor a in improvingsubstantial hand,studentsfor each we fectivelyIfsuccess.mulasChapter teachers should toI eligibility.are the reward, to learning respond Funding not problems morepenalize for- ef- startingforbeginandavailable assisting selected. immediately with educationala students broad-based We recommendto re-examine with strategies discussionlinguistic that its be problems,strategiesCalifornia of compared the ap- specificschoolshouldminorityachievement community plansbe students. established for among improving and These shouldits by poor agendasachieve- the lay and fullout counselorsspecialiststhethey schoolencountermust havecharged siteto in ready the withcurriculum classroom, accessat assisting and diagnostic reachingareviewpropriate careful of thesestudentevaluationgoals goals.for need, these of availablethen efforts proceeding and techniques a thorough through for andsettingcessfully.resourcesment "receiver" process andWhere necessary a institutions shoudfeasible,description unite tothe intodo "feeder"agenda- so ofcoor suc-the providebusiness-schoolBecauseandteachers group important cooperativein teaching designing programs strategies.professional university- individual often thanwentsistentlyly report because on thatto underrated higher their of, the intellectualeducation counselor. by counselorsthat abilitiesin Forspite this wereof, reason, rather they con-6. Counseling: Minority students frequent- C. STEP THREE: Resourcesmightdinated forAlthough Change. take planning to some improve and actions action achievement units. a school motepanded.schools,assistance aggressive theseSchools and efforts tolemoral should in supportshouldlot mitt!'assume be to in ex-the a systemwouldeliminaterentit would trendhe of counselingto be inignore easy many howto staffs.school look very withTo districts complicated do glee so, to however,on reduce the our cur- or postset ontlaty oppottimities has marginally-preparedgettingevitableare relatively that, cost-free,if we are students serious through about increased numbers ofit seems in- areIfhelp.terinstitutional plansing to out be for theirlaid improving partnershipsand needs executed achievement and byseeking withlay- edtunities.andthebecome theprocess programmed need Thoughand bytoin denythewhich the into area state the students (or importanceby has out incorporating recently of) are those informedof recogniz-affecting oppor- addi- of takea more some rigorous extra resources curriculum,resourcesindividualFunding to do it so.will formulas for schools each should additional with provide extra stu- time.monandmaximum administrators planningAll the effectiveness, specialists and need development and more teachers data com- in otherforceingreformtional hand,on existing counselingpackage,grade additional 10, college-going we this resourcesare resources provision concerned patterns. into werewill that, themerely provided If,by SB onfocus- rein-813 the beunderlevelriculumdent encouraged oncompleting the aor skills directionscoring to test. place a Schoolsparticularat of resourcesa those specified should whocur- Given the demographics of California, it 5. Children with Linguistic Limitations: timeunlessthe world to schooluse won't them. personnel do much have good the seems Moreover,greaterriculumin grades opportunity we begins 7-9the believe totoperiod that changebranchthere the during entire current which training would patterns. the pro- be cur- a academicmanage process the remainder of the the teachers childreninescapable with linguistic that the difficulties subject isof important educating studentsshouldcess for the counselors into ways different in should which curricular heschools reexamined, paths. as A:, program BEST COPY AVAILABLE

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