Virginia Board of Education Meeting Summary
11-14-2018 and 11-15-2018
Committee on Evidence-Based Policymaking
The Committee accepted its draft report containing recommendations informed by the Committee’s work since January 2018. The recommendations fall into three categories: (1) policy development, (2) resource advocacy, and (3) administrative and are as follows:
Policy Development
To advance educational equity, the committee recommends the following actions:
- Reconvene the Committee on the Standards of Quality (SOQ) to develop recommendations on resource equity for the governor and General Assembly to consider. Specific consideration should be given to building more flexibility in the SOQ for local school divisions, expanding At-Risk funding for high-needs schools and divisions, and developing differentiated SOQ based on indicators of student need.
- Develop and adopt a state-level equity dashboard to demonstrate the Board’s seriousness for school divisions to create, implement and sustain a culture of equitable education. Such metrics previously discussed by the committee include educator distribution, demographics, funding, educator experience, educator salaries reported at the building level, student access to opportunities, and student discipline.
- Gather more evidence-based research on educator compensation to make recommendations to the governor and General Assembly in 2019. Potential structures could include differentiated pay for high-needs schools and student populations, which could include special needs students and English Learners.
- Review the Guidelines for the Uniform Performance Standards and Evaluation Criteria of Teachers, Principals and Superintendents for possible revisions.
- Review and revise the current Licensure Regulations for School Personnel to offer alternatives to the Praxis assessment to encourage minority educator recruitment.
Resource Advocacy
The committee further asks the Board to advocate for the new and/or more funds to support the following initiatives:
- Develop mentorship and induction programs and provide professional development support for school leadership training to combat educator turnover.
- Adopt a wide-spread “Virginia Working Conditions” survey with efficient capacity for the Department to implement and offer technical assistance to local school divisions.
- Position local school divisions to:
- Advance their “Grow Your Own” programs.
- Recruit minority educators and administrators.
- Launch and/or expand educator residency programs.
Administrative
The committee strongly encourages the Department of Education to do the following over an agreed upon timeframe:
- Develop an equity framework to assist local school divisions in assessing equity throughout their divisions.
- Partner with educator preparation programs to develop cultural competency, implicit bias, and trauma-informed care training for new and current educators.
- Issue guidance to local school divisions on school and classroom integration and diversification and the positive impact of diversity on student achievement.
- Work with educator preparation programs and the Virginia Community College System to develop more course articulation agreements and 2+2 partnerships to ensure that financial resources aren’t a barrier to educator licensure.
- Develop and implement Open Education Resources to ensure access to high-quality curricula across the Commonwealth.
- Analyze current school improvement practices for ways to better embed equity into their current work with local school divisions.
The Board will receive the information contained in this report at its regular business meeting on November 15, 2018 (Agenda Item K). Upon receipt by the full Board, he Committee’s recommendations will be used to direct future Board action.
The Committee’s full report is available under the November 14, 2018 Agenda and Meeting Materials link at:
http://www.doe.virginia.gov/boe/committees_standing/evidence-based-policy/index.shtml
Board Work Session
The Board’s Work Session began with the announcement that the Committee on the Standards of Quality will resume its meetings in order to proceed with the biannual review of the Standards of Quality (SOQ). The Board then participated in a review of SOL background information that included: the Board’s role with the SOQ; the history; Standards 1-10; and the 2016 SOQ recommendations. A complete overview of this SOQ background information can be found within the agenda item at: http://www.doe.virginia.gov/boe/meetings/index.shtml.
The next item on the Board’s work session agenda was a discussion of House Bill 1530 (Davis). This bill requires the Board of Education to make recommendations relating to 1) strategies for eliminating any stigma associated with high school career and technical education pathways, and 2) the potential consolidation of the standard and advanced diplomas into a single diploma with the creation of multiple endorsements. The Board’s Study group on Stigma made preliminary recommendation and strategies focused around a highly visible mass marketing campaign to enhance positive perceptions about CTE, to raise awareness of CTE opportunities and outcomes, and to highlight 21st Century and emerging career options.
The Diploma study group discussed a series of next steps to address the possible consolidation of diploma types including a meeting with the sponsoring delegate, with a goal of submitting recommendations for the Virginia Board of Education consideration in January 2019.
The Board concluded its Work Session with a discussion of the 2018 Annual Report on the Conditions and Needs of Public Schools in Virginia. The Board reaffirmed the following priorities as outlined in the comprehensive plan:
- Provide high-quality, effective learning environments for all students;
- Advance policies that increase the number of candidates entering the teaching profession and encourage and support the recruitment, development, and retention of well-prepared and skilled teachers and school leaders; and
- Ensure successful implementation of the Profile of a Virginia Graduate and the accountability system for school quality as embodied in the revisions to the Standards of Accreditation.
As a result of the Board’s review of research and work, the following conclusions were drafted regarding the condition of public education in Virginia:
- Virginia schools are underfunded. According to the Joint Legislative Audit and Review Commission’s report Virginia Compared to the Other States: 2018 Edition, Virginia ranks 24th of 50 for state and local per pupil funding for Pre K-12 education, and 40th of 50 for state per pupil funding. State level support for K-12 education in Virginia has not returned to pre-recessionary levels. Despite recent progress by the legislature, state support is still down 9.1 percent per student for the 2018-2019 school year in real dollars compared to 2008-2009.
- Local governments continue to take on a larger share of funding. In 2016-2017, Virginia localities invested $4.0 billion above the required local effort for SOQ programs. However, not all localities have the capacity to provide additional investments causing resource and learning opportunity inequities for students.
- Students in high-poverty schools have less experienced teachers, less access to courses, and lower levels of spending on teachers and instructional materials. Despite serving students who often need additional supports and services, Virginia’s high poverty divisions receive 89 cents for every dollar as compared to low poverty divisions. Average student outcomes similarly lag in high poverty divisions.
- While student enrollment continues to increase, overall staffing levels for Virginia public schools have decreased compared to the 2008-2009 school year. Currently, there are 1,242 fewer staff in Virginia schools and over 50,000 more students enrolled, many requiring additional supports and services.
- Virginia is facing a growing shortage of high-quality educators entering and remaining in the classroom. The number of unfilled teacher positions across the Commonwealth has increased by 42 percent over the past ten years, from 760 to 1,080, and has become an emergency in many high poverty schools. The percent of provisionally licensed and inexperienced teachers has similarly climbed.
- For the past six years in Virginia, teacher turnover rates have been above ten percent. While the specific reasons for departure are not collected, nationally we know that the major reasons for teacher turnover include lack of administrative support, poor teaching conditions and accountability pressures.
- Virginia ranked 29th out of 50 for average salary of K-12 teachers, as of 2016. When compared to similarly educated professions across the country, Virginia teacher wages are less competitive, earning about 30 percent less than similarly educated professions.
- Comprehensive induction programs can improve teacher retention and accelerate the professional growth of a teacher, providing a positive return on investment and improve student learning.
- Financial incentives can impact teacher recuitment and retention. Research shows that state financial incentive programs have potential to direct teachers to shortage areas but those incentive programs will lose their appeal if they are not sufficient, sustainable, and paired with improvements to working conditions.
- PreK and early childhood education are essential to the success of Virginia’s public education system.
The Board will continue its research and work into 2019 with the expectation of developing and submitting a comprehensive package of recommendations to the Governor and General Assembly prior to the development of the 2020-2021 biennial budget. The Board discussed its commitment to create a more equitable public education system which supports a high-quality, diverse teacher workforce, utilizing its authority provided in the Virginia Constitution and Code of Virginia. The Board also addressed that conditions that affect student learning and well-being require a continued investment of resources. Furthermore, addressing these needs will require partnerships between the Board of Education, the General Assembly, the Governor, local school boards and divisions, educators, families, community organizations, institutions of higher education, and business industries. A draft of the Board’s complete 2018 report can be found in the agenda item at: http://www.doe.virginia.gov/boe/meetings/index.shtml.
Committee on School and Division Accountability
The Committee began its discussion of possible changes to the Standards of Learning tests that comprise the Virginia Assessment Program with a review of the testing program from 2006 to the tests administered in elementary, middle and end-of course tests administered in 2018-2019. Following this, The Committee focused its attention on the future of SOL writing and history tests.
The Committee reviewed the revised guidelines for Local Alternative Assessments for 2018-2019 through 2019-2020. The following summarizes the information discussed:
Purpose of the Guidelines
The Guidelines for Local Alternative Assessments for 2018-2019 through 2019-2020 replace the Local Alternative Assessment Guidelines for 2016-2017 through 2018-2019 adopted by the Board in September 2016. The updated guidelines clarify the expectation that divisions are to continue the implementation of performance assessments, emphasizing the use of the Virginia Quality Criteria Tool for Performance Assessments and common rubrics developed by the Virginia Department of Education (VDOE) to achieve consistent expectations for Virginia students. This document provides guidance for local alternative assessments in non-verified credit courses in which Standards of Learning tests were eliminated by the General Assembly in 2014. Guidelines for the Use of Local Performance Assessment to Award Verified Credits in Writing, adopted by the Board on September 20, 2018, and announced in Superintendent’s Memo #266-18 provide guidance to school divisions that choose to administer local performance assessments to students to verify credits in writing.
Background Information
Legislation in the 2014 General Assembly amended § 22.1-253.13:3.C of the Code of Virginia to eliminate the following state-developed Standards of Learning (SOL)
o tests and replace them with locally developed alternative assessments:
o Grade 3 History,
o Grade 3 Science,
o Grade 5 Writing,
o United States History to 1865, and
o United States History: 1865 to the Present.
In addition to replacing these SOL tests, the legislation also required each local school board to annually certify that it had provided instruction and administered an alternative assessment, consistent with Virginia Board of Education guidelines, to students in grades three through eight in each SOL subject area in which the SOL assessment was eliminated. Specifically, the Code now states:
Each school board shall annually certify that it has provided instruction and administered an alternative assessment, consistent with Board guidelines, to students in grades three through eight in each Standards of Learning subject area in which a Standards of Learning assessment was not administered during the school year. Such guidelines shall (1) incorporate options for age-appropriate, authentic performance assessments and portfolios with rubrics and other methodologies designed to ensure that students are making adequate academic progress in the subject area and that the Standards of Learning content is being taught; (2) permit and encourage integrated assessments that include multiple subject areas; and (3) emphasize collaboration between teachers to administer and substantiate the assessments and the professional development of teachers to enable them to make the best use of alternative assessments.
Certification That Content Has Been Taught and Assessments Administered
Local school boards and division superintendents will continue to certify through the annual Standards of Quality (SOQ) compliance assurance that instruction has been provided and local alternative assessments measuring the Standards of Learning (SOL) and adhering to the Board’s guidelines administered in the following subject areas:
o Grade 3 History,
o Grade 3 Science,
o Grade 5 Writing,
o United States History to 1865, and
o United States History: 1865 to the Present.
Definition of Authentic Performance Assessments
Performance assessments generally require students to perform a task or create a product that is typically scored using a rubric. Authentic performance assessments often include tasks that mirror those that might occur in a “real-life” situation and/or are authentic to the academic discipline. It is up to the local school division to determine whether a performance task is authentic.
Timeline for Implementation of Performance Assessments
While some divisions have successfully implemented all the steps listed in previous guidelines, other divisions are not yet ready for full implementation. Divisions should continue to progress toward implementation of performance assessments as part of a balanced assessment system in courses where the SOL tests were replaced with local assessments.
The timeline for implementation approved by the Board in September 2016 and communicated in Superintendent’s Memo #284-16 has been adjusted to allow time for all divisions to implement performance assessments utilizing resources developed by VDOE staff. The resources are designed to ensure consistency across the Commonwealth and to support divisions in the implementation of performance assessments. School divisions are expected to use the Virginia Quality Criteria Tool for Performance Assessments to determine the quality of tasks during development and revision. Common rubrics that provide consistent expectations for student achievement are being developed by VDOE staff, and school divisions are expected to use these rubrics when evaluating student responses to locally developed performance assessments.
Expectations for 2018-2019
For the 2018-2019 school year and beyond, school divisions are expected to use the Virginia Quality Criteria Tool for Performance Assessments to ensure that students have access to quality tasks. Each locally developed performance assessment should be evaluated by the local school division using this tool and necessary modifications should be implemented prior to continued use with students. Additionally, school divisions are encouraged to begin using the common rubrics developed by the VDOE with performance assessments in classrooms where an SOL assessment has been replaced (Grade 3 Science, Grade 3 History, Grade 5 Writing, United States History to 1865, and United States History: 1865 to the Present).
Expectations for 2019-2020
For the 2019-2020 school year, school divisions are expected to continue to use the Virginia Quality Criteria Tool for Performance Assessments to ensure that students have access to quality tasks. School divisions should also continue to make progress in using the common rubrics developed by VDOE with performance assessments in classrooms where an SOL assessment has been replaced (Grade 3 Science, Grade 3 History, Grade 5 Writing, United States History to 1865, and United States History: 1865 to the Present).
Additionally, beginning with the 2019-2020 school year, all school divisions will be expected to prepare Balanced Assessment Maps for each of the five replaced SOL assessments. These Balanced Assessment Maps will more fully detail the local alternative assessment plan for each of these courses and will indicate the types of assessments used to measure the content and skills covered in the course. Assessment maps may include a variety of assessment types but must include some performance assessments. Additional information about the development of assessment maps will be provided by the VDOE beginning in spring 2019.
The development and selection of the local assessments that comprise the balanced assessment map are left to the discretion of the school division. However, assessments used should be designed to provide feedback to students, parents, and teachers regarding the extent to which the student has demonstrated proficiency in the content and skills included in the SOL covered and should demonstrate continued progress in implementing performance assessments as part of a balanced local assessment system.
Local school divisions may choose to administer the same assessments for particular grade levels and content areas to all students in the division or may provide schools with flexibility in selecting the assessments to be administered.
By 2019-2020, school divisions should provide opportunities for cross-scoring student responses to performance assessments within schools and across schools within the school division, using common rubrics developed by the VDOE to evaluate student work. Meetings scheduled by the VDOE in summer 2019 will provide opportunities for professional development on cross scoring.
Use of Integrated Assessments
The legislation encourages integrated assessments that include multiple subject areas. For example, a local assessment might address content from both grade 3 history and grade 3 science. If such assessments are used, the results should include information about the extent to which the student has demonstrated proficiency in each specific set of SOL covered.
Professional Development
The capacity of teachers to design and implement assessments that are intended to inform instruction is likely to vary widely across the Commonwealth. School divisions should evaluate the capacity and experience of their teachers in implementing such assessments and use this information to design professional development. Professional development should encourage the collaboration of teachers within grades and across grades to implement the assessments and to use their results to determine instructional needs. School divisions will be notified when materials used in the summer 2018 Performance Assessment events and other performance assessment resources are posted to the VDOE website
Documentation and Reporting to the Virginia Department of Education
During the 2018-2019 through the 2019-2020 school years, VDOE staff will conduct annual site visits or “desk reviews” in a sample of school divisions. As a part of these “desk reviews,” documents will be examined and school division staff interviewed either by webinar or by telephone. The purpose of these reviews will be to determine how local school divisions are verifying that the content is being taught, to determine the types of alternative assessments that are being administered, to identify exemplars of performance assessments that may be shared with other school divisions, and to assist teachers, schools, and school divisions in strengthening their own alternative performance assessments. The reviews will help Department staff to identify “best practices” for sharing with other Virginia school divisions.
Beginning with the 2019-2020 school year, the balanced assessment maps completed by school divisions will become part of the desk reviews. For 2019-2020, materials retained at the division for possible review should include the following:
1) Balanced Assessment Map for each of the five replaced SOL assessments;
2) Copies of assessments administered, including performance tasks;
3) Rubrics used for scoring; and
4) Division-specific material used to train teachers and samples of student writing from the various score points of the rubric.
School divisions are to retain these documents for one year after the end of the academic year, as outlined in the Records Retention and Disposition Schedule, General Schedule No.GS-21 (Series 000236, 000240). The VDOE will not require the retention of individual student work beyond the student work samples that demonstrate division scoring.
Individuals with Disabilities Education Act
School divisions should be aware of the following requirement found in Section 300.160 c (1) of the Individuals with Disabilities Education Act:
A State (or, in the case of a district-wide assessment, an LEA) must develop and implement alternate assessments and guidelines for the participation of children with disabilities in alternate assessments for those children who cannot participate in regular assessments, even with accommodations, as indicated in their respective IEPs, as provided in paragraph (a) of this section.
If school divisions choose to meet the local alternative assessment requirements through the use of division wide assessments, an alternate assessment for students with disabilities who cannot participate in regular division assessments must be provided.
Use of Local Assessments in State Accreditation or Federal Accountability
The results of the local alternative assessments will not be used to designate state accreditation or federal accountability status.
The final item on the Committee’s agenda involved a discussion of the following chart containing summary and background information on the proposed cut scores for the End-of-Course Mathematics Tests Based on the 2016 Standards of Learning:
|
Pass/Proficient |
Pass/Advanced |
||||||
|
Background Information |
Standard Setting |
Background Information |
Standard Setting |
||||
Test Name * |
Pass/Proficient Cut Score |
Pass/Proficient Cut Score for New Test to Maintain Previous Level of Rigor* |
Round 3 Median for |
Articulation Committee Recommendation* |
Pass/Advanced |
Pass/Advanced Cut Score for New Test to Maintain Previous Level of Rigor* |
Round 3 Median |
Articulation Committee Recommendation* |
Algebra I |
25 out of 50 |
21 out of 45 |
20 out of 45 |
20 out of 45 |
45 out of 50 |
41 out of 45 |
40 out of 45 |
40 out of 45 |
Geometry |
25 out of 50 |
23 out of 45 |
20 out of 45 |
20 out of 45 |
44 out of 50 |
40 out of 45 |
40 out of 45 |
40 out of 45 |
Algebra II |
27 out of 50 |
23 out of 45 |
24 out of 45 |
24 out of 45 |
43 out of 50 |
37 out of 45 |
40 out of 45 |
40 out of 45 |
* Tests based on the 2016 Mathematics Standards of Learning have 45 items
** Tests based on the 2009 Mathematics Standards of Learning have 50
items
The Board will receive the cut score materials for information at its November 15 business and expected to take action at its January 17, 2019 meeting.
Business Meeting
Revisions to the Fee Schedule for Licensure
The Board approved the recommendation of the Advisory Board on Teacher Education and Licensure (ABTEL) to revise the fee schedule for licensure to become effective January 1, 2019. This fee schedule will increase the fees for initial licensure, renewal, and added endorsements; however, the fee for other actions on licenses (duplicates, degree change) will not increase. The cap on the fees is proposed to be eliminated. ABTEL further recommended that the fee schedule be reviewed at a minimum of every five years. The new fees are:
• INITIAL LICENSE
In-state: $100
Out-of-state: $150
• SUPERINTENDENT LICENSE
In-state: $200
Out-of-state: $300
• LICENSE RENEWAL: $50
• ADD/EVALUATE FOR AN ADDITIONAL ENDORSEMENT: $50
• OTHER ACTIONS ON LICENSES: $25
Add a degree or duplicate/copy a license. Please note that there is no fee for a name change on a license. However, if a name change is the only request, a $25 fee for duplicating the license will be assessed.
Procedural Guidelines for Conducting Licensure Hearings
The Board approved the proposed Procedural Guidelines for Conducting Licensure Hearings to become effective January 1, 2019. These guidelines were developed because of the Board’s stated commitment to providing an equitable and fair process that affords a license holder who is seeking license renewal or reinstatement or whose license is the subject of a petition for suspension or revocation adequate and timely notice of the proceedings and a meaningful opportunity to be heard. The approved guidelines are intended to assist the parties and the decision makers in that process. Among the changes to the procedural guidelines are:
• Clarification that a license holder may waive their right to a Superintendent’s Investigative Panel Hearing, requesting that the licensure matter go directly to the Board for a hearing
• Clarification of the role of VDOE staff in Superintendent’s Investigative Panel hearings
• Changes to the order of proceedings for Board hearings
• Clarification that the Superintendent of Public Instruction as well as VDOE staff are not to participate in the Board’s deliberations
• Clarification that if a petition is initiated by a local school board, its representatives are expected to attend the Board hearing.
A complete summary of the approved revisions, and clarifications can be found in Agenda Item C at: http://www.doe.virginia.gov/boe/meetings/2018/11-nov/item-c.docx. In particular, Attachment A is a strikethrough version of the new procedural guidelines highlighting all changes made to the document.
Amendments to the Licensure Regulations for School Personnel (8 VAC20-231 to Comport with 2018 Legislation Passed by the General Assembly Under the Fast Track Provisions of the Administrative Process Act
The Board moved this item to its January agenda to allow staff time to convene stakeholder groups to further discuss various requirement levels for completion of professional development hours over the duration of a license. 180 hours are currently required, and the discussion will be whether those hour requirements will stay the same or whether they should move to 270 or even 360 hours (to reflect the extended duration of licensure). The complete draft of all proposed licensure regulation changes can be found in Item D at: http://www.doe.virginia.gov/boe/meetings/2018/11-nov/item-d.docx
The Board of Education’s 2018 Annual Report on the Condition and Needs of Public Schools in Virginia
As discussed in the Board’s Work Session (as described above), the Board approved the 2018 Annual Report on the Condition and Needs of Public Schools in Virginia. The priorities outlined in the comprehensive plan are to:
• Provide high-quality, effective learning environments for all students;
• Advance policies that increase the number of candidates entering the teaching profession and encourage and support the recruitment, development, and retention of well-prepared and skilled teachers and school leaders;
• Ensure successful implementation of the Profile of a Virginia Graduate and the accountability system for school quality as embodied in the revisions to the Standards of Accreditation.
A complete more complete overview of the 2018 Annual Report can be found above under the Board Work Session, and the full report is available in the Item E attachment at: http://www.doe.virginia.gov/boe/meetings/2018/11-nov/item-e.docx
Revised Guidelines for Local Alternative Assessments for 2018-2019 through 2019-2020
The Board received for first review the revised Guidelines for Local Alternative Assessments for 2018-2019 through 2019-2020. These guidelines provide a revised timeline for the implementation of local performance assessments for: grade 3 history, grade 3 science, grade 5 writing, United States History to 1865, and United States History: 1865 to the Present. The updated guidelines clarify the expectation that divisions continue the implementation of performance assessments, emphasizing the use of the Virginia Quality Criteria Tool for Performance Assessments and the common rubrics developed by the Virginia Department of Education (VDOE) to achieve consistent expectations for Virginia students. A complete overview of the proposed guidelines can be found in the previous summary of the Board’s Committee on School and Division Accountability and in Attachment A of Item F at: http://www.doe.virginia.gov/boe/meetings/2018/11-nov/item-f.docx
Corrective Action Plan Require by Division-Level Review of Richmond City Public Schools
The Board received for first review the proposed corrective action plan required by the division-level review of the Richmond City Public Schools, as required under the provisions of the Standards of Quality. Action on the plan will be taken by the Board at its January 24, 2019 meeting.
Cut Scores for the Algebra I, Geometry, an Algebra II End-of-Course Tests Based on the 2016 Mathematics Standards of Learning
The Board received for first review the proposed cut scores for the Algebra I, Geometry, an Algebra II End-of-Course Tests based on the 2016 Mathematics Standards of Learning. The information contained in the chart, Summary Background Information on the Proposed Cut Scores for the End-of-Course Mathematics Tests Based Upon the 2016 Standards of Learning, previously outlined in this report (Summary of Committee on School and Division Accountability) was discussed. This chart can also be found within the agenda item H at: http://www.doe.virginia.gov/boe/meetings/2018/11-nov/item-h.docx
Model Guidance for Positive and Preventive Code of Student Conduct Policy and Alternatives to Suspension
The Board received for first review the Model Guidance for Positive and Preventive Code of Student Conduct Policy and Alternatives to Suspension. This Model Guidance updates the Board of Education’s Student Code of Conduct Policy Guidelines, which were first developed in 1994 in response to action by the 1993 General Assembly and last updated in 2014. This proposed document is a major revision and reflects numerous changes in state laws and regulations and in approaches to student conduct as indicated by current research on effective practice. The Model Guidance focuses on establishing policy guidance that will assist school divisions in creating safe, supportive learning environments for all students. It recommends best practices for creating a school climate that supports every student in meeting the goals of the Profile of a Virginia Graduate. In addition, the new guidance is anchored to a multi-tiered system of supports framework and guides school divisions in creating leveled systems of prevention and intervention when addressing student behavior to ensure equity. The Model Guidance connects student behavior to social emotional development and recommends administrative responses include interventions, as well as consequences, for guiding student development.
The proposed guidance can be found within Agenda Item I at: http://www.doe.virginia.gov/boe/meetings/2018/11-nov/item-i.docx
Reports
The Board received the following reports:
• Report on 2019 Commemoration Schools
• Report from the Committee on Evidence-Based Policymaking