The History of the Graduation Requirement Mandate
Posted: Thursday, March 1st, 2012
by Carolyn Holcroft
To truly understand the context behind the current dialog and debate regarding the proposed graduation requirement mandate elimination, we have to go back to 1979. That year California voters passed Proposition 4, thus requiring the State of California to reimburse local governments (including schools) for any increased costs resulting from new programs or higher levels of service required by state law, technically labeled a “mandate.” (This was ultimately codified in Government Code section 17561.) Right now there are 51 mandates on the books for which the state must reimburse schools.
This background helps inform the current situation because a mandate was effectively created when California Education Code section 51225.3 (a)(1)(C) was added by Chapter 498, Statutes of 1983. Prior to 1986, California high school students were required to complete only one high school science course in order to graduate. However, §51225.3 increased the minimum requirement to two science courses – one in physical science and one in biological science. The Commission on State Mandates (CSM) subsequently identified this new requirement as a mandate in November, 1986, and then in March 1988, they adopted the “Parameters and Guidelines,” which formally established the mandate and defined which costs associated with the additional science requirement were eligible for reimbursement.
When the mandate was originally imposed, the costs associated with requiring an additional science course were predicted to be reasonably within the state’s financial resources. This changed, though, when the San Diego Unified School District finally won a law suit against the CSM in 2004. The case was Sacramento County Superior Court Case No. 03CS0140 and had begun years earlier in the 1980s. The SDUSD (and several other schools) had filed reimbursement claims in which they included salary costs incurred from staffing the additional science course. However, the state asserted such expenditures were excluded because the cost of staffing the second science course could be offset by cancelling other “elective” courses – that is, the additional science course could be offered in lieu of, rather than in addition to, other non-core curricular offerings. After years of legal battle the court finally concluded in 2004 that the language in 51225.3 only required a second science course and did not mandate the elimination of any other curriculum in lieu of the second science course requirement.
The second major occurrence leading to the current crisis was a 2008 court decision in the case, “California School Boards Association (CSBA) vs. State of California.” The troubles precipitating this suit began in 2002 when the California Legislature began the practice of appropriating $1,000 for each K-12 mandate and “deferring” payment of the remaining balances, asserting that this met the legal obligation for reimbursement at least temporarily, and that the balances would be paid at some future (unspecified) time. In 2007, CSBA sued the state for the remaining monies and requested the court prohibit the state from continuing their practice of deferral. On December 4, 2008, a San Diego Superior Court judge ruled that the practice of deferral is unconstitutional and this decision was subsequently upheld on appeal in a legal opinion dated February 9, 2011. However, the court did not order the state to cough up the rest of the money it owed, estimated at the time to be approximately $900 million for all underfunded mandates, stating that this would be a violation of the separation of powers doctrine.
In light of the 2004 and 2007 court decisions, the CSM was obliged to amend the parameters and guidelines for the additional science class mandate. Amended parameters and guidelines were initially adopted in November 2008, but then “corrected” parameters and guidelines were issued in December 2008, and it is this document that outlines the current rules for mandate-related reimbursement. These amended versions changed and clarified the way that school districts can claim increased costs associated with the additional science class, such as teaching salary costs and acquisition of space, equipment, and supplies. It’s especially important to note that the most recently adopted parameters and guidelines amendment is effective back to January 1, 2005 – that is, school districts can submit adjusted reimbursement claims retroactive all the way back to January 2005. The State Controller’s Office (SCO) just released the “Claiming Instructions” for the amended claims parameters in July 2011 and not surprisingly, school districts are submitting revised claims for additional costs not allowed under the original parameters and guidelines, and these are predicted to lead to a tremendous increase in cost to the state. At this point the mandate requiring a second science class is estimated to be one of the top two most expensive mandates the state must fund, perhaps exceeding $200 million.
Coming back to the present day…it is rumored that Governor Brown’s office is looking to modify that statute, as recommended in the LAO report, to maintain the requirement of two years of science to graduate from high school without it being a reimbursable mandate. Additionally, the Department of Finance still has litigation pending against the Commission on State Mandates (Sacramento Superior Court Case # 34-2010-80000529-CU-WM-GDS, Department 31) regarding the guidelines the CSM adopted in 2008. This case is currently scheduled for hearing on June 1.
CSTA will continue to pursue this issue and keep the membership informed of new developments.
Posted: Thursday, April 23rd, 2015
by Jessica Sawko
For many months our members have been requesting clear information from the state department of education (CDE) regarding the purpose of the “science CSTs” that are being administered this year in grades 5, 8, and 10 and well as how the test scores from those assessments will be used for accountability purposes. The following was excerpted from a letter from the California Department of Education released on April 22:
California Assessment of Student Performance and Progress for Science
As educators from across the state begin or continue to implement the California Next Generation Science Standards (CA NGSS), questions have been raised regarding the role of the summative science assessments which students in grades five, eight, and ten will participate in during the spring of 2015.
During the transition to the new science standards and assessments, the federally required science assessments in grades five, eight, and ten (i.e., California Standards Tests, California Modified Assessments, and California Alternate Performance Assessment) will continue to be administered until an assessment aligned to the CA NGSS is developed and approved by the SBE. A new assessment is currently under development and scheduled to be operational in 2018–19.
Because the current science tests are not aligned with the new CA NGSS, the results will not be used in any accountability reports; however, the scores will be publicly available. As in prior years, AYP is based only on ELA and mathematics. Science is not included in AYP calculations.
As reported by CSTA previously, API will not be calculated for the 2014/2015 school year. More information about the suspension, what that means for reporting in 2015/2016, review this letter dated March 17, 2015 that was sent to administrators.
Posted: Tuesday, April 7th, 2015
CSTA’s counterparts at the National Science Teachers Association (NSTA) has been actively representing the voice of science teachers in Washington D.C. This morning they sent out this call to action:
The U.S. Senate and House of Representatives are currently working to reauthorize (rewrite) No Child Left Behind. Please contact your members of Congress immediately, and ask them to make STEM education a national priority. At the Legislative Action Center of the STEM Education Coalition website, you can send a letter to your elected representatives, asking them to
- Maintain a strong focus on science, technology, engineering, and math (STEM) education.
- Continue the focus on math and science as required elements of any state’s accountability system.
- Provide states with dedicated funding to support STEM-related activities and teacher training.
It is urgent that educators take a moment to write to your elected officials, and send this message to colleagues and networks in your school or district.
Posted: Tuesday, April 7th, 2015
by Jessica Sawko
On March 31, 2015 participants from the Science Assessment Stakeholder Meetings held in July 2014 were invited to participate in a follow up meeting to provide input on what a formative component, a Next Generation Science Standards (NGSS) Digital Center, should look like for California. This NGSS Digital Center could include formative assessment tools similar to that of the Smarter Balanced Digital Library for ELA and mathematics. This meeting will take place at the end of April 2015. This is very exciting news as it gives some insight to the direction the state may take with the future statewide assessment system to support the Next Generation Science Standards. Learn More…
Posted: Wednesday, April 1st, 2015
by Laura Henriques
Women are far less likely than men to earn pSTEM (physical Science Technology Engineering and Mathematics) degrees or work in the field. This isn’t a new phenomenon, but it has gotten a bit of press lately. US News and World Reports had an article highlighting a Clinton Foundation Report showing women in developing countries have less access to cell phones (and therefore the internet) than men. This results in decreased access to health care, fewer job options, a lack of flexibility with work and childcare related issues, and a lowered sense of empowerment. That article linked to several other articles about the lack of diversity in STEM fields in the US, the leaky pipeline and more. Learn More…
Posted: Wednesday, April 1st, 2015
by Sara Dozier
Like me, you are probably excited about the opportunities that the Next Generation Science Standards offer students and teachers. For the first time in 17 years, our science standards are asking us to engage our students in science learning that is engaging, meaningful and just plain fun. In addition to our excitement, though, there is also some apprehension. Learn More…