Opinion ID: 2424209
Heading Depth: 1
Heading Rank: 25

Heading: The Core Curriculum Content Standards and the Testing Process

Text: The remand requires a determination whether school funding through SFRA, at the current FY 11 levels, can provide for a thorough and efficient education for New Jersey school children. The Court had found previously the CCCS provide the necessary content to deliver the level of education mandated by the New Jersey Constitution. Abbott IV, supra, 149 N.J. at 168 [693 A. 2d 417]. The CCCS accepted by the Supreme Court in Abbott IV initially contained seven academic content areas, which have since expanded to nine: (1) visual and performing arts, (2) comprehensive health and physical education, (3) language-arts literacy, (4) mathematics, (5) science, (6) social studies, and (7) world languages, and, additionally, (8) technology, and (9) 21st century life and careers. See P-4-12; N.J.A.C. 6A:8-1.1. Generally, each of the nine content standards contain both a broad vision statement of the skills and knowledge to be obtained and a more specific break down of the standards students should achieve by each grade level. For example, according to the CCCS in mathematics, by the end of second grade, students should develop a proficiency in basic addition and subtraction. [24] P-7. The CCCS must be revised every five years. See N.J.A.C. 6A:8-2.1. The CCCS were revised in 2004, in 2008 the CCCS were revised for language arts and math, and were revised again in 2009. Ibid. The 2009 revisions are scheduled to be implemented beginning in the 2011-2012 school year and in the 2012-2013 school year. See P-64. For purposes of the remand, this court was directed to review whether the current levels of funding allow all districts to provide a constitutional education as measured by the 2004 and 2008 standards, not the 2009 standards which have not yet been implemented in the schools. Counsel so agreed. Tardalo, 11 T 97:1-98:20. While the 2009 standards are of little moment to this remand, it should be noted, the preparation for implementation of the new CCCS is ongoing in the districts this year. As such, allotted funds have been and are being utilized to meet this obligation. In addition to providing instruction in the nine content areas, school districts are required to provide an appropriate education to all students with disabilities pursuant to IDEA, 20 U.S.C. § 1400 et seq.; N.J.A.C. 6A:14, to provide all English language learners with instructional services pursuant to N.J.A.C. 6A:15, and to provide all gifted and talented students with appropriate instructional service pursuant to N.J.A.C. 6A:3.1. N.J.A.C. 6A:13-2.1. Furthermore, school districts are required to provide library-media services in each school building under the direction of a certified school library media specialist, and with access to appropriate books, computers, and district approved instructional software. Ibid. The CCCS apply to all students enrolled in the public elementary and secondary school programs in New Jersey. See N.J.A.C. 6A:8-1.2(a). Furthermore, all district boards of education are responsible for aligning their district's curriculum and instructional methodologies to assist all students in achieving the CCCS, as well as to prepare all students for employment or postsecondary study upon their graduation. See N.J.A.C. 6A:8-1.2(c). To ensure all students [25] receive the education guaranteed to them by the New Jersey Constitution, the rules promulgated pursuant to SFRA direct all districts to provide students with a curriculum based on the CCCS, which relies on the use of State assessments to improve instruction. P-2; see also N.J.A.C. 6A:13-1.1. To measure student progress in meeting the CCCS, statewide assessments, or standardized tests, are administered at grade 3-8 and 11-12. See N.J.A.C. 6A:8-1.2(d). Each school and school district is required to analyze student assessments of student progress in relation to curricular benchmarks and the results of State and non-State year end tests. P-2; see also N.J.A.C. 6A:13-2.1(d)(4). The State administers the New Jersey Assessment of Skills and Knowledge (NJ ASK) in mathematics and language arts literacy to students in grades 3 through 8, and, additionally, in science to students in grades 4 and 8. Stip. ¶¶ 153-55; see also N.J.A.C. 6A:8-4.1. The High School Proficiency Assessment (HSPA) is administered to all first-time eleventh graders, retained eleventh-graders, twelfth graders and retained twelfth graders in language arts literacy and mathematics. Stip. ¶ 159; see also N.J.A.C. 6A:8-4.1. The Alternative High School Assessment (AHSA) is administered to those twelfth graders who repeatedly failed the HSPA in one or both content areas. Lastly, students are required to take end of course exams in Biology and Algebra I, upon completion of those courses. [26] Stip. ¶ 152. The other content areas of the CCCS are not tested by way of statewide assessments. P-13. The schedule for all upcoming State assessments for the current school year is set forth annually by the Commissioner. [27] Stip. ¶ 152. Generally, all the NJ ASK tests are administered in May. Stip. ¶ 161. Testing for HSPA occurs in March for all first-time eleventh graders, retained eleventh-graders, twelfth graders and retained twelfth graders, and, additionally, make-up testing is scheduled for October for all retained eleventh graders, twelfth graders, and retained twelfth graders. Stip. ¶¶ 157 & 159. The AHSA is administered during several testing windows in January, April, and July. The results of all spring assessments are available publicly in the following month of January, and thereafter reported in the New Jersey School Report Card publication in February. Stip. ¶ 161. [28] Accordingly, the tests measuring student progress for the 2010-2011 school year are scheduled to be administered in May 2011, and the results will not be available publicly until January 2012. Ibid. As such, these test results are not available for this report when addressing the question presented. The standardized tests are intended to measure whether or not a student is meeting the CCCS. Erlichson, 3 T 42:20-25. A student is considered to have met the CCCS in the tested subject if he or she demonstrates proficiency on the exam. Ibid. To demonstrate proficiency, or to pass the exam, a student must attain a scaled score of at least 200. Ibid. Scaled scores are derived from a student's raw score, which is the number of items answered correctly on the exam. Erlichson, 4 T 31:2-8. Accordingly, a student who attains a scaled score of 199 or less is deemed not to have demonstrated proficiency, and is considered not to have met the CCCS. Id. at 33:16-17. The rules, based on the CCCS, provide specific requirements for districts with high concentrations of poverty which fall below a certain level on proficiency tests, or high need school districts. A high need school district is defined as one having a forty percent or greater concentration of at-risk students, and the district is at one or more of the enumerated proficiency levels for State assessments. P-2 at 9; see also N.J.A.C. 6A:13-3.3(a). The applicable statutory proficiency levels are as follows: 1. Less than 85% of total students have achieved proficiency in language arts literacy on the NJ ASK 3; 2. Less than 80% of total students have achieved proficiency in language arts literacy on the NJ ASK 8; 3. Less than 80% of total students have achieved proficiency in language arts literacy on the HSPA; 4. Less than 85% of total students have achieved proficiency in mathematics on the NJ ASK 4; 5. Less than 80% of total students have achieved proficiency in mathematics on the NJ ASK 8; and/or 6. Less than 80% of total students have achieved proficiency in mathematics on the high school State assessment. School districts deemed high need are required to implement statutorily designated programs for language arts literacy, mathematics, or both, for a minimum of three years. P-2 at 10; see also N.J.A.C. 6A:13-3.3(b). By way of example, districts where less than 85% of the students achieved proficiency on NJ ASK 3 in language arts are required to provide an intensive literacy program for preschool to grade three to ensure that all students achieve proficiency on the State standards. P-2 at 10; see also N.J.A.C. 6A:13-3.4(a). The requirements of the intensive literacy program include an emphasis on small group instruction, at least a ninety-minute uninterrupted language arts literacy block which may then include direct instruction or guided reading, and professional development for teachers in elements of intensive early literacy, to name a few. Ibid. Similarly, those districts achieving less than 85% proficiency in NJ ASK 4 in mathematics, are required to implement a comprehensive program for grades three and four, including [e]xplicit mathematics instruction for struggling students, differentiated instruction, and methods to involve parent and family members in student learning. P-2 at 13-14; see also N.J.A.C. 6A:13-3.5(b). One area of concern identified by the State's witness is the lack of a uniform standard within the State to determine whether a district is meeting or exceeding the CCCS. Erlichson, 3 T 50:13-19. In other words, there is no standard similar to the 200 point pass score, which would require a district to have a certain percentage of its students pass in order to be considered meeting the CCCS. The assessments currently used by the State are either the statewide benchmarks under No Child Left Behind or the yearly progress towards those benchmarks. Ibid. The lack of a uniform method to determine whether a district is meeting the CCCS is problematic, as this remand requires determining whether a thorough and efficient education can be delivered as measured by the CCCS, not by No Child Left Behind or any other standards. The DOE is required to review, at each grade level in which statewide assessments are administered, the performance of schools and school districts, using a percent of students performing at the proficiency levels as one measure of yearly progress, and using the Adequate Yearly Progress Targets. [29] See P-13; see also N.J.A.C. 6A:8-4.4. Individual school performance is reviewed annually by the DOE, in accordance with the New Jersey Single Accountability Continuum (QSAC) Act, by evaluating the school's performance on standardized tests as it relates to achieving the CCCS according to the criteria specified in the Adequate Yearly Progress Targets. Ibid. In other words, the school is evaluated on its proximity to meeting the yearly progress benchmarks. The school district's progress is evaluated and monitored according to the QSAC Act. Specifically, the QSAC Act was established: For the purpose of evaluating the thoroughness and efficiency of all the public schools of the State, the commissioner, with the approval of the State board and after review by the Joint Committee on the Public Schools, shall develop and administer the New Jersey Quality Single Accountability Continuum for evaluating the performance of each school district. The goal of the New Jersey Quality Single Accountability Continuum shall be to ensure that all districts are operating at a high level of performance. The system shall be based on an assessment of the degree to which the thoroughness and efficiency standards established pursuant to section 4 of P.L. 2007, c. 260 (C.18A:7F47) are being achieved and an evaluation of school district capacity in the following five key components of school district effectiveness: instruction and program; personnel; fiscal management; operations; and governance. A school district's capacity and effectiveness shall be determined using quality performance indicators comprised of standards for each of the five key components of school district effectiveness. The quality performance indicators shall take into consideration a school district's performance over time, to the extent feasible. Based on a district's compliance with the indicators, the commissioner shall assess district capacity and effectiveness and place the district on a performance continuum that will determine the type and level of oversight and technical assistance and support the district receives. N.J.S.A. 18A:7A-10. The QSAC Act requires the DOE to evaluate and monitor public school districts' performance and capacity in five key components of school district effectiveness as follows: (1) instruction and program; (2) personnel; (3) fiscal management; (4) operations; and (5) governance. N.J.A.C. 6A:30-2.1. Every three years, the Commissioner conducts a comprehensive review of each school district. See N.J.A.C. 6A:30-3.1. Within the intervening years between the review periods for each district, the Commissioner may determine there are conditions significantly and negatively impacting the district's educational programs or operations, and as a result, the Commissioner may direct an immediate comprehensive review of the district. Ibid. Furthermore, an immediate comprehensive review may be ordered for districts designated as District in Need of Improvement pursuant to the No Child Left Behind Act, 20 U.S.C. §§ 6301 et seq., and, as a result, these districts are subject to corrective action pursuant to Federal law. [30] See N.J.A.C. 6A:30-3.4. The comprehensive review, occurring every three years, requires each district to complete a self-assessed District Performance Review. See N.J.A.C. 6A:30-3.2. Subsequently, the District Performance Review is submitted to the ECS for evaluation and issuance of a recommendation to the Commissioner for the district's placement on the performance continuum. N.J.A.C. 6A:30-3.3. The Commissioner makes the final determination for the district's placement on the continuum. Ibid. Placement on the continuum depends on the district's reported percentage of weighted quality performance indicators satisfied by the public school district in each of the five key components of school district effectiveness. N.J.A.C. 6A:30-4.1. A district which satisfies between 80-100% of the weighted quality performance indicators in each of the five key components of district effectiveness is deemed a high performing school district. Ibid. A school district accumulating less than 80% in any one of the key components will be required to initiate improvement activities including the implementation of a QSAC improvement plan. See N.J.A.C. 6A:30-5.2. Failure to submit an improvement plan may result in withholding of State aid pursuant to N.J.S.A. 18A:55-2, or, if necessary, State intervention within the district. See N.J.A.C. 6A:30-5.5; N.J.A.C. 6A:30-6.1.