California school boards fault state government’s failure to narrow the achievement gap

California School Boards Declare State Government the "Accountability Gap" in Student Achievement Crisis

For decades, the chasm in academic performance between California's most and least advantaged students has been a persistent stain on the state's education landscape. Now, a leading voice for the state's school districts is pointing a finger directly at Sacramento, arguing that state government itself is the primary impediment to closing this critical "achievement gap."

The California School Boards Association (CSBA) has launched a bold legislative initiative, dubbed "SOS for Student Achievement," aiming to dismantle what they describe as a "fragmented" and "diluted" system of state policies that actively hinders, rather than helps, local efforts to uplift struggling students.

A State of Disconnect: The Core of the Problem

At the heart of CSBA's critique lies the assertion that state-level bureaucracy, overlapping authorities, and a deluge of regulations are creating insurmountable obstacles for school districts and county offices of education. These local entities are tasked with delivering daily results for students, yet they find themselves battling a system that lacks coherence and accountability.

"School districts and county offices of education are expected to deliver results for students every day," stated CSBA President Debra Schade. "The SOS for Student Achievement legislative package recognizes that the state must also be accountable for ensuring its own policies, programs and funding are aligned to support local efforts."

The disparities in student achievement, measured by test scores and university admission rates, are stark and have been exacerbated by the COVID-19 pandemic. For instance, recent state Smarter Balanced math test data reveals that only 20% of Black students and 26% of Hispanic students achieved proficiency, a figure that has remained stubbornly unchanged for a decade when compared to 50% of White and 70% of Asian students.

Further underscoring the severity of the issue, the 2024 National Assessment of Educational Progress (NAEP) 4th grade math test showed California tied with Massachusetts for the widest gap in the nation between income-disadvantaged and non-income-disadvantaged students, a staggering 39-point difference.

The SOS Initiative: A Four-Pillar Approach to Accountability

CSBA's proposed legislative package comprises four distinct bills designed to inject clarity, accountability, and measurable progress into the state's approach to student achievement. The overarching goal is to compel state agencies, including the governor's office, the Legislature, the California Department of Education, and county offices, to establish clear priorities and measurable goals.

Pillar One: Crafting a Coherent State Plan

Assembly Bill 2225, championed by Assembly Education Committee Chair Darshana Patel, D-San Diego, proposes the creation of a 15-member task force. This group, a blend of education stakeholders like CSBA, employee unions, administrators, and legislative leaders, will be charged with developing a comprehensive "Closing the Achievement Gap Support and Operations Plan."

This plan, due by December 1, 2027, will establish clear metrics for agencies involved in student achievement, including the State Board of Education and the California Department of Education. Crucially, it will outline how these agencies will be held accountable for their performance and recommend strategies for the governor and Legislature to reduce unfunded mandates – a long-standing grievance among school districts.

Pillar Two: An Independent Watchdog for Progress

Assembly Bill 2202, introduced by former Assembly Education Committee Chair Al Muratsuchi, D-Torrance, seeks to establish an independent "Closing the Achievement Gap Commission." This body will serve as an annual advisory council to the State Board and the Department of Education, offering critical insights into what strategies are proving effective and which are falling short in improving student performance across districts.

The commission's membership will reflect a diverse range of expertise, including heads of state agencies, representatives from both small and large school districts, and employee group leaders, ensuring a holistic perspective on the challenges and opportunities in education.

Pillar Three: Annual Recommendations for Improvement

To ensure continuous evaluation and adaptation, Assembly Bill 2149 will mandate that the nonpartisan Legislative Analyst’s Office (LAO) provide annual recommendations. These recommendations will focus on how the state can more effectively meet its targets for closing the achievement gap, offering data-driven insights to guide policy decisions.

CSBA President Schade emphasized the importance of this financial oversight: "As a school board trustee, my budget reflects the priorities of our district. We want the LAO to look at if closing the achievement gap is reflected in the state's proposed and final budget."

Pillar Four: A Transparent Dashboard for Progress

Finally, Assembly Bill 2514 aims to create a "State of the Achievement Gap Dashboard." This public-facing tool will offer a transparent measure of the state's progress in narrowing achievement disparities, providing a much-needed counterpoint to existing, often criticized, state dashboards that may not sufficiently highlight this critical issue.

The Flawed Foundation: A Legacy of Unfulfilled Promises

The push for the SOS initiative comes against a backdrop of decades of attempts to reform California's education system. In 2012, the Legislature and then-Governor Jerry Brown overhauled the state's funding and accountability framework with the Local Control Funding Formula (LCFF). This landmark legislation aimed to direct additional resources to low-income students, English learners, and other high-needs populations, coupled with a support system tied to the performance of the lowest-achieving student groups.

However, CSBA argues that the promised support system has devolved into a duplicative and disorganized effort with widely varying effectiveness. While the LCFF targets specific student groups, many argue that the majority of students – Latino, Black, and low-income children – who consistently underperform in state assessments, are not adequately designated for assistance.

Compounding these issues, school districts have voiced increasing frustration with "creeping mandates" imposed under the LCFF. Governor Newsom and the Legislature have utilized unexpected state revenues to roll out new initiatives, such as transitional kindergarten, expanded after-school programs, and community schools, often without detailed implementation plans or adequate resources.

"We do have unfunded mandates and initiatives that are providing a tremendous amount of noise and barriers for our local school districts and county offices that really have caused some challenges," Schade noted, highlighting how these new programs can divert crucial energy away from the core mission of addressing the achievement gap.

A Glimmer of Alignment?

The sentiment that state-level reforms often create more problems than they solve is not unique to CSBA. Eric Premack, executive director of the Charter Schools Development Center, expressed sympathy with CSBA's position, stating, "I’m struck by the belief that reform is something that the state can impose on thousands of schools by edict and mandate." However, he also cautioned that CSBA's proposals might lean more towards preserving local autonomy than fundamentally transforming the system for student benefit.

Interestingly, Governor Newsom's office has acknowledged some of the structural flaws in California's oversight and support systems. The governor has proposed shifting the management of schools from the State Superintendent of Public Instruction to a new Commissioner of Education directly under his and the State Board's control. This move, which would take effect after Newsom's current term, aims to centralize authority and potentially streamline decision-making.

CSBA has endorsed this proposal, viewing it as a step in the right direction, though they believe it doesn't go far enough for a "complete reformation." Troy Flint, CSBA's Chief of Communications, emphasized the need for ongoing partnership and evaluation as systems evolve. "Beyond the first flurry of attention, we want continued involvement as partners, with ongoing evaluations, as systems are changed," he remarked.

As California grapples with its persistent achievement gap, the SOS for Student Achievement initiative represents a significant call for accountability from the very top. The success of these proposed bills could signal a new era of state-level commitment, ensuring that Sacramento's policies truly serve as a catalyst for student success, rather than an unintended barrier.