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Ronald Reagan Presidential Library
Digital Library Collections
This is a PDF of a folder from our textual collections.
Collection: Reagan, Ronald: Gubernatorial Papers,
1966-74: Press Unit
Folder Title: Issue Papers - Education -
Public Education in California
Box: P30
To see more digitized collections visit:
https://reaganlibrary.gov/archives/digital-library
To see all Ronald Reagan Presidential Library inventories visit:
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Contact a reference archivist at: [email protected]
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EDUC
OF
NOTA Sha THERE
PUBLIC
STATE
8
EDUCATION
IN CALIFORNIA
IN 1971
The Annual Report of the California State Department of Education
CALIFORNIA STATE DEPARTMENT OF EDUCATION
Wisson Riss . Superincendent of Public Instruction
Secramento
1972
PUBLIC EDUCATION
IN CALIFORNIA
IN 1971
OF
DEPARTMENT * STATE CALIFORNIA EDUCATION EDUCA *
OF
The Annual Report of the California State Department of Education
ИОП ADUGS 013809
АИЯОНЦА ИӀ
This publication, which was edited and prepared for photo-offset publication by the Bureau of
Publications, California State Department of Education, was published by the Department, 721 Capitol
Mall, Sacramento, CA 95814.
1972
Foreword
For the last decade and a half in this country, we have witnessed a
growing concern for the quality of the education offered in our public
schools. An entire profession, in fact, has been built up around criticism of
the schools. Early last year, I resolved to dedicate my administration to
answering the criticism in California with some positive suggestions for
improving our public educational program.
In my conversations with people throughout the state, I have become
convinced that while we have problems, those problems are not
insurmountable. It has also become apparent to me from talking with these
concerned citizens that the discord which has left our schools suspended in
conflict for the past 15 years must give way to the greater themes of unity.
Thus, our premise for 1971-72 has been one of cooperation, not
conflict - our emphasis has been on solutions, not criticism.
At the state level, the Department of Education has sought a close
working relationship with educators and laymen everywhere and with the
Legislature, the Governor, and the State Board of Education. I have
established a special legislative coordination office that has the responsibility
of furnishing the Legislature with the timely information it needs to make
important decisions regarding public education. In addition our working
relationship with the Governor has been constant and cooperative and open.
The bond between the State Board of Education and the Department has
been a solid, working partnership.
Beyond unity, the capstone of my efforts this year can be summed up in
the word "accountability" - setting and meeting performance standards that
have been mutually developed. This is a concept that begins at home, and I
have sought to introduce it in a number of ways in the Department of
Education. Descriptions of those steps are included in this report.
This report, in fact, is a part of accountability, for the concept includes a
regular "accounting" to those to whom one is responsible. As the
Superintendent, this means that I should report regularly to the people and
the public decision makers on the state of the schools in California. I am
issuing this report for that purpose. Conveniently, the report also meets the
request of the Legislature for a regular report.
In this document we have attempted to lay out an objective picture of
education in California, together with priorities and problems which require
our attention. This picture includes an identification of areas for special
legislative concern at the 1972 session. Particular attention should be given
to: (1) school finance; (2) textbook selection; (3) statewide testing; and (4)
early childhood education.
iii
To many readers, this report may seem discouraging - merely a list of
problems. But underlying all of the activity described here, I believe, is a
sense of excitement and change, a feeling of accomplishment for the first
time in what has been for too long an arid educational terrain. I personally
ended 1971 with the satisfaction that the process of change and
improvement was underway. We have experienced frustration concerning the
many things which must be done, but our accomplishments in 1971 have
given us confidence and determination for 1972. This determination did not
begin with my administration; it stems from the desire of the people of
California to improve education for their children.
Wilsonkles
Superintendent of Public Instruction
iv
Contents
Page
Foreword
iii
Introduction
1
The First Two Annual Reports
1
This Annual Report
2
The Status of the Public Schools
3
Enrollment in California Schools
3
School Finance in California
3
Pupils and Teachers in California's Public Schools
4
Pupil Performance in California
5
Priorities of the State Board of Education and Superintendent, 1971-72
19
Department and Board Reorganization
20
Curriculum Development and Textbook Selection Procedures
21
School District Management Review and Assistance
21
Basic Skills - Reading and Mathematics
22
Career Education
22
School Finance and Efficiency
23
Drug Abuse and Preventive Education
23
Early Childhood Education
24
Bilingual-Bicultural Education
24
Priorities of the State Board of Education and Superintendent, 1972-73
25
Teacher Evaluation
26
Urban Education
26
Analysis and Applicability of Testing Procedures
26
Improvement of Guidance and Counseling Services
27
Intermediate School Education
27
Master Plan for Special Education
27
Programs to Prevent Conflicts on Junior High and High School
Campuses
27
Conservation Education
28
Other Areas of Interest in California Education, 1971-72
29
Venereal Disease Education
31
Field Act Impasse
31
Year-round School
31
Twelfth Year of School
31
Eighteen-year-old Vote
32
Administration-teacher Conflicts
32
Education Code Revision
32
Free and Reduced-cost Food Programs in the Schools
32
Textbook Delivery
32
Report on Positive Accomplishments in the Schools
32
V
List of Tables and Figures
Table
Page
1
Reported and Projected Fall Enrollment in California
Public Schools, 1960-1980
3
2
Fall Enrollment in California Public Schools, 1970 and 1971
4
3
Revenues for California Public School Support, 1957-58
Through 1969-70
5
4
Revenues for Support of California Public Schools,
by Source, 1969-70
5
5
Percent of California Public School Revenues,
by Source, 1960-61 Through 1969-70
6
6
Federal Support, California School District General Funds, by
Program, 1966-67 Through 1970-71
6
7
Revenues for California Public School Support from State and
Local Sources, 1950-51 Through 1969-70
7
8
Distribution of California School Districts by Assessed Valuation
Per Unit of Average Daily Attendance, Elementary Level,
1970-71 and 1969-70
8
9 Distribution of California School Districts by Assessed Valuation
Per Unit of Average Daily Attendance, High School Level,
1970-71 and 1969-70
9
10 Distribution of California School District Legal Tax Rate
Limits, 1970-71
10
11
Outcome of California School District Tax and Bond Elections,
1970-71
11
12 Average Class Size, Grades One Through Three; Pupil-Teacher
Ratios, Grades Four Through Eight
11
13 Distribution of Class Sizes, Grades One Through Three, in California
Public Schools, 1970-71
11
14
Enrollment in California Public Schools in Excess of Designated Class
Size, Grades One Through Three, 1970-71, 1969-70, and 1968-69
12
15
Pupil-Teacher Ratios in California School Districts, Grades Four
Through Eight, 1970-71, 1969-70, and 1968-69
12
16 Distribution of Full-Time Teachers in California Public Schools, by
Salary Paid, 1970-71
13
17
Statewide Standardized Test Results, California Public Schools --
1965-66 Through 1970-71, Reading Achievement - Grade 1
14
18
Statewide Standardized Test Results, California Public Schools -
1965-66 Through 1970-71, Reading Achievement -- Grade 2
15
19
Statewide Standardized Test Results, California Public Schools --
1965-66 Through 1970-71, Reading Achievement -- Grade 3
16
vii
Table
Page
20
Statewide Standardized Test Results, California Public Schools --
1969-70 and 1970-71, Scholastic Aptitude and Achievement
Tests -- Grade 6
17
21
Statewide Standardized Test Results, California Public Schools --
1969-70 and 1970-71, Scholastic Aptitude and Achievement
Tests -- Grade 12
18
Figure
1
Board of Education and Department of Education Priorities
for 1971-72 and Those to Be Continued in 1972-73
20
2
New Board of Education and Department of Education Priorities
for 1972-73
25
3
Federal and State Support for the Department of Education's
Professional Staff, 1972-73
30
viii
Introduction
During the 1969 session of the California Legis-
5. The report shall summarize statistical data on
lature, the budget committees of the Senate and
pupil population, assessed valuation, tax rates, expendi-
Assembly considered in depth the organization of
ture levels, sources of support along with the results of
the State Department of Education. One of the
the statewide testing program and other indices of pupil
most significant conclusions resulting from those
performance.
deliberations was that the Department of Educa-
The First Two Annual Reports
tion, as the state agency responsible for the
administration of public educational programs, did
The Department submitted its first annual
not have an effective system for reporting on the
report to the Legislature during the 1970 session. 1
status of public education to the executive and
The Joint Legislative Budget Committee reviewed
legislative branches of government and to the
the report and found it to be inadequate because it
public in general. Therefore, it was recommended
failed to indicate the major directions the Depart-
in the "Supplementary Report of the Committee
ment of Education would be taking to improve the
on Conference Relating to the Budget Bill for
quality of public education. Specific direction was
1969-1970" that: "The Department of Education
given to the Department to emphasize educational
make an annual report to the Legislature to
priorities in future reports rather than attempting
to review all of the activities in which the
indicate costs, benefits, strengths, and weaknesses
in public education within a framework established
Department was engaged.
by the Joint Legislative Budget Committee."
Essentially, the Legislature was telling the
The committee met on September 8, 1969, and
Department that the setting of priorities is crucial
after receiving testimony from a variety of sources,
to good modern management. For example, the
adopted the following framework for the report:
Department has had to recognize that it simply
does not have the resources to meet every need
1. The report shall provide information on the
adequately at the same time. State departments of
current status of public education in California, includ-
ing cost and achievement comparisons among the dis-
education, like individuals, cannot do everything at
tricts of the state along with overall comparisons with
once; therefore, to be effective in its work, a
other states.
department must limit the number of problems it
2. The report shall summarize the progress of public
attempts to solve at any one time.
education during the prior year in terms which reflect
Pursuant to the Joint Legislative Budget Com-
the attainment of specific objectives, including the
mittee framework, the Department submitted to
findings of special research and development projects,
the Legislature a preliminary draft of its second
plus information on areas of particular legislative con-
annual report in November, 1970. However, upon
cern. Whenever possible, special reports required of the
assuming office in January, 1971, the new adminis-
department shall be consolidated with the annual report.
tration of the Department found the statement of
3. The report shall be used by the department to
priorities contained in the preliminary draft inade-
suggest program improvements and methods for more
effective utilization of state educational support.
quate. Consequently, as one of its first official acts,
4. The report shall contain a statement of the
1 The Department of Education's Annual Report on Public
problem areas of public education which the department
Education in California. Sacramento: California State Department
considers to be of highest priority. For each priority
of Education, 1970.
area, a measurable objective shall be stated along with
2 The Department of Education's Annual Report on Public
strategies for the attainment of that objective, indicating
Education in California, 1969-71970, Preliminary Draft. Sacra-
the resources and time required.
mento: California State Department of Education, 1970.
1
2
the new administration developed a refined list of
Provides a summary of available indicators of
priorities, which it transmitted to the Legislature.
pupil performance
This Annual Report
Indicates the progress made in each of the
1971 priority areas and indicates future
This report will attempt to follow closely the
directions
express wishes of the Legislature for an annual
report which does the following:
Outlines the additional priority areas estab-
Serves as a resource document of statistics on
lished by the State Board of Education and
the pupil population and the financial condi-
the Superintendent of Public Instruction for
tion of the public schools
1972 and objectives for each year
The Status of the Public Schools
This section of the annual report provides
Table 1
statistical data on the public schools in California.
Reported and Projected Fall Enrollment in
It consists of four parts: (1) pupil population; (2)
California Public Schools, 1960 - 1980
school finance; (3) pupils and teachers; and (4)
pupil performance. A district by district break-
Enrollment
down of this information is presented in the
Kindergarten
Grades nine
following Department publications:
through
through
California Public Schools Selected Statistics,
Year
grade eight
twelve
Total°
1969-70. Prepared by the Bureau of Adminis-
1960
2,519,241
785,244
3,304,485
trative Research and District Organization,
1961
2,621,103
850,943
3,472,046
Sacramento: California State Department of
1962
2,720,122
931,874
3,651,996
1963
2,823,581
1,014,316
3,837,897
Education, 1971. (A 1972 edition of this
1964
2,928,366
1,063,229
3,991,595
publication, with statistics from the 1970-71
school year, will soon be available.)
1965
3,010,929
1,110,513
4,121,442
1966
3,087,335
1,147,832
4,235,167
California State Testing Program, 1969-70.
1967
3,145,569
1,184,806
4,330,375
Prepared by the Office of Program Evalua-
1968
3,186,181
1,225,854
4,412,035
tion. Sacramento: California State Depart-
1969
3,178,358
1,262,566
4,440,924
ment of Education, 1972 (available after
1970
3,168,439
1,288,886
4,457,325
March 31, 1972, in limited numbers)
1971
3,107,862
1,316,402
4,424,264
Annual Evaluation Report, 1969-70, Miller-
Estimated:
Unruh Basic Reading Program. A Report to
1972
3,076,299
1,346,400
4,422,699
the California Legislature as Required by
1973
3,043,041
1,369,400
4,412,441
1974
Education Code Section 5780. Sacramento:
3,014,609
1,391,900
4,406,509
California State Department of Education,
1975
2,989,842
1,411,800
4,401,642
1971.
1976
2,973,991
1,427,800
4,401,791
1977
2,970,821
1,429,800
4,400,621
Enrollment in California Schools
1978
2,980,134
1,419,300
4,399,434
In the fall of 1971, the graded enrollment of
1979
3,016,987
1,384,400
4,401,387
1980
3,079,399
1,336,700
4,416,099
California public schools was 4,424,264, down
33,061 from the preceding year. The growth in
ᵃThese figures do not include adult education and enrollments in
special classes.
pupil enrollment since 1960 and enrollment
projections through 1980 are presented in Table 1.
comparing the enrollment figures for the fall of
These projections indicate that California's graded
1970 with those of 1971, one finds a decline in
enrollment will decrease in 1972 and will continue
enrollments occurring in grades one through four,
to do so through 1978 when a modest upturn is
slight increases in grades five through seven, and
expected. These projections have significant
significant increases at the high school level.
implications for school programs; they indicate
what the schools' needs will be in terms of
School Finance in California
financial support, personnel, and buildings in the
California's public schools are supported from
years ahead.
special programs of federal assistance, state school
The move toward smaller enrollments is quite
fund apportionments, state budgetary categorical
evident when one examines the data in Table 2. By
aids, and local property tax levies. In 1969-70 total
3
4
Table 2
public education. It should be noted that over the
Fall Enrollment in California Public Schools,
period covered by Table 5, substantial growth
1970 and 1971
occurred in federal support to public education in
California. This federal increase and a slight
Enrollment
increase in revenue from miscellaneous sources
Grade or class
1970
1971
served to offset a decreasing level of support from
state sources. Table 6 provides a more complete
Kindergarten
335,975
315,805
analysis of the components of federal aid since
Grade one
363,610
339,513
1965.
Grade two
353,539
345,225
Grade three
357,044
346,454
Historically, the two principal sources of public
Grade four
359,885
353,460
school revenues have been local property tax
Grade five
354,200
357,911
revenue and state support. Table 7 reviews the
Grade six
347,102
352,936
Grade seven
348,116
350,353
relationship of these two sources from 1950-51
Grade eight
348,968
346,205
through 1969-70. The figures in Table 7 demon-
strate the long-term reduction of state support as a
Total, grades one through eight
2,832,464
2,792,057
percent of the combined state and local revenues.
Total, kindergarten through
The determinates of the ability of school dis-
grade eight
3,168,439
3,107,862
tricts to raise local support for educational pro-
Grade nine
349,900
359,227
grams are (1) district assessed valuation, e.g.,
Grade ten
339,946
347,850
taxable real property; and (2) the tax rate estab-
Grade eleven
319,994
321,006
lished to collect those revenues. Table 8 shows the
Grade twelve
279,046
288,319
wide variance of assessed valuation per pupil
Total, grades nine through twelve
1,288,886
1,316,402
among the districts of the state at the elementary
Total, grades one through twelve
4,121,350
4,108,459
level. These range from $103 to $952,156 in
assessed valuation per unit of average daily attend-
Total, kindergarten through
ance (a.d.a.). The $103 would produce $1 of
grade twelve
4,457,325
4,424,264
revenue per pupil for $1 on the tax rate; the
Special classes for mentally
$952,156 would produce $9,521 per pupil for $1
retarded:
of tax. Table 9 provides comparable data at the
Elementary level a
43,387
35,303
High school level
15,038
13,989
high school level.
The rates which the taxpayers of California are
Other special students:
Elementary level a
30,450
33,599
required to bear also vary substantially among
High school level
86,998
94,395
districts, as revealed in Table 10. The tax rates
b
levied for public school purposes by each Cali-
Adults:
High school level
367,923
381,416
fornia school district are presented in detail in the
Department of Education's publication entitled
Total enrollment:
Kindergarten
335,975
315,805
California Public Schools Selected Statistics. As
Elementary'
2,906,301
2,860,959
indicated earlier, the 1972 edition of this docu-
High school
1,390,922
1,424,786
ment will soon be available.
Adultsᵇ
367,923
381,416
School districts are heavily dependent upon the
TOTAL
5,001,121
4,982,966
local property tax to support their educational
programs and capital improvements. Most increases
a
Includes grades seven and eight in junior high schools.
b
in tax support to these programs require the
Defined adults" - persons twenty-one years of age and older
approval of the local electorate. However, in recent
enrolled in fewer than ten periods of not less than 40 minutes
each. Community college enrollments are not included.
years, voters, with increasing frequency, have
turned down such proposals at the polls. Table 11
revenues from all sources exceeded $4.8 billion.
reviews the outcomes of local tax rate and bond
Table 3 presents the growth of revenue, by source,
elections for 1970-71.
in recent years; these figures include the revenue
for the community colleges. Table 4 provides a
more complete breakdown of the $4.8 billion
Pupils and Teachers in California's Public Schools
figure for 1969-70.
This section of the annual report on public
Table 5, as a companion to Table 3, identifies
education in California provides some general
the percent of total revenue, by source, for all
comparisons of the number of pupils per teacher,
5
including data on teachers' salaries. Table 12
gram. Pupils in grades one, two, and three are
presents the average class size in grades one
administered reading achievement tests annually
through three and the average pupil-teacher ratios
under the provisions of the Miller-Unruh Basic
in grades four through eight.
Reading Act of 1965 (Education Code sections
Since the figures in Table 12 represent averages,
5770-5798). Pupils in grades six and twelve are
they do not provide a full picture of the ranges
tested with both scholastic aptitude tests and with
that exist in class size and pupil-teacher ratios.
achievement tests in the areas of reading, language,
Therefore, tables 13, 14, and 15 have been
spelling, and arithmetic under the California
included in this report to provide the reader with
School Testing Act of 1969 (Education Code
more complete information regarding class sizes.
sections 12820-12849). This section of the report
Table 16 provides data on the salaries paid to
will review the results of the tests administered
full-time teachers in California's public schools in
under the two acts.
1970-71.
Grades One, Two, and Three
Pupil Performance in California
Table 17 indicates that California pupils in grade
Indicators of student performance in California
one scored very low on the Stanford Reading Test
are provided through the statewide testing pro-
from 1966 through 1969. However, during this
Table 3
Revenues for California Public School Support, 1957-58 Through 1969-70
Revenue, by source
Fiscal
year
Local property tax
State aid
Federal aid
Miscellaneous
Total revenue
1957-58
$ 785,291,800
$ 560,490,932
$ 25,875,311
$ 15,029,313
$1,386,687,356
1959-60
962,205,330
704,690,650
36,677,540
17,614,799
1,721,188,319
1964-65
1,575,025,840
1,057,565,256
73,538,295
67,230,364
1,773,359,755
1965-66
1,742,096,718
1,185,777,215
121,803,364
81,996,971
3,131,674,268
1966-67
1,973,189,418
1,230,432,413
233,961,711
84,537,736
3,522,121,278
1968-69
2,427,646,849
1,498,629,871
265,621,634
118,376,385
4,310,265,742
1969-70
2,654,293,865
1,766,482,779
270,931,663
129,393,384
4,821,101,691
a See Education Code Section 17606.
Table 4
Revenues for Support of California Public Schools, by Source, 1969-70
Source of revenue
Agency
Local property tax
State aid
Federal aid
Miscellaneousᵃ
Total revenue
School districts
$2,605,569,228
$1,570,822,193
$248,199,450
$126,926,251
$4,551,517,122
County superintendents
of schools
48,724,637
42,607,173
22,732,213
2,467,133
116,531,156
State:
Teacher retirement
-
81,816,924
-
I
81,816,924
Debt on school bonds
I
47,691,640
-
I
47,691,640
Elementary textbooks
-
22,692,923
-
I
22,692,923
Vocational education
-
230,271
-
-
230,271
Manpower Development
and Training Act
-
621,655
-
-
621,655
Total revenue
$2,654,293,865
$1,766,482,779
$270,931,663
$129,393,384
$4,821,101,691
Percent of total revenue
55.06
36.64
5.62
2.68
100.00
NOTE: This table includes revenues for community colleges.
ᵃMiscellaneous funds include in-lieu taxes or income from bonuses, royalties, rentals, or any other income from district property or
property within the district or state not being assessed for tax purposes and not being used for school purposes (Education Code
Section 17606).
6
Table 5
period, consistent though modest improvement
Percent of California Public School Revenues,
was realized each year. With the introduction of
by Source, 1960-61 Through 1969-70
the Cooperative Primary Reading Test in 1970,
pupils in the first grade scored slightly above the
Percent of total revenue, by source
publisher's norm group at the 75th percentile level,
slightly below the norms at the median, and at the
Fiscal year
Local
State
Federal
Miscellaneous
publisher's 25th percentile level. Continued use of
1960-61
56.31
39.00
2.88
1.81
this test in 1971 indicated that the first grade
1961-62
57.71
36.96
2.58
2.75
pupils were continuing to demonstrate consistent
1962-63
57.94
37.28
2.85
1.93
1963-64
57.82
37.57
2.74
1.87
though modest improvement in their test scores -
1964-65
56.79
38.13
2.65
2.43
equaling or exceeding the publisher's norms at the
25th, 50th, and 75th percentile levels.
1965-66
55.63
37.86
3.89
2.62
1966-67
56.02
34.94
6.64
2.40
Table 18 presents much the same picture for the
1967-68
54.96
36.14
6.47
2.43
grade two test results as Table 17 presented for
1968-69
56.32
34.77
6.16
2.75
grade one. The results obtained on the Stanford
1969-70
55.06
36.64
5.62
2.68
Reading Test from 1966 through 1970 were low
NOTE: This table includes revenues for community colleges.
but consistently though modestly improving. The
initial results of the Cooperative Primary Reading
Test in grade two (1971) were very similar to the
Table 6
Federal Support, California School District General Funds, by Program, 1966-67 Through 1970-71
Amount of federal revenue
Program
1970-71
1969-70
1968-69
1967-68
1966-67
Forest Reserve Fund
$ 6,344,134
$ 6,486,052
$ 3,776,775
$ 2,970,088
$ 2,899,845
Vocational Education Aidᵃ
(Smith-Hughes, George-Barden
acts)
1,216,836
3,242,345
4,279,329
5,336,851
11,054,482
National Defense Education Act (P.L. 85-864)
3,750,032
3,564,691
5,679,646
6,282,291
6,161,531
Maintenance and Operation (P.L. 81-874)
74,145,379
68,117,146
73,326,452
66,922,101
66,695,490
Veterans Education
283,931
318,788
266,744
347,579
288,812
Manpower Development and Training Act
(P.L. 87-415; P.L. 90-636)
11,015,067
10,014,632
12,309,670
11,270,838
10,806,841
Vocational Education Act (P.L. 88-210;
P.L. 90-576)
22,364,760
18,479,509
12,483,328
(b)
10,142,724
Economic Opportunity Act (P.L. 88-452)
18,380,143
15,463,576
14,071,245
15,971,355
15,790,531
Elementary and Secondary Education Act
(P.L. 89-10)
121,913,998
81,907,601
92,731,146
93,159,716
88,835,034
Preschool Education Aid (McAteer Act)ᵃ
8,098,240
8,478,965
7,869,160
6,428,579
(c)
3,760,813
1,818,731
di
Higher Education Facilities Act of 1963
1,620,948
(d)
(d)
School Construction (P.L. 81-815)
211,606
184,456
252,409
(d)
(d)
Miscellaneous Fundsᵃ (Education Code Section
17606)
1,460,955
2,415,444
1,420,621
2,909,763
1,073,667
Other Miscellaneous Fundsᵃ
23,724,703
19,108,455
8,257,397
5,877,124
5,360,200
Totals
$296,670,597
$239,600,391
$238,344,870
$227,619,009
$208,966,433
NOTE: This table includes support for community colleges.
a Includes some state funds.
b Reported in Vocational Education Aid.
C Program was not in effect or funds were not differentiated in districts' reports.
di General Fund portion only; additional revenue reported in other funds.
7
publisher's national norms - equaling them at the
reflect consistent though modest improvement in
25th and 50th percentile levels and falling slightly
the reading performance of California pupils.
below at the 75th percentile level.
Table 19 presents current and historical test data
Grades Six and Twelve
for those pupils enrolled in the third grade classes
In accordance with the requirements of the
of the state from 1967 through 1971. At this level,
California School Testing Act of 1969, the State
only the Stanford Reading Test has been used.
Board of Education established a statewide testing
Again, the data indicate that the California pupils
program involving pupils in grades six and twelve
scored at levels considerably below those of the
to provide annual measures of academic achieve-
publisher's norm group; however, there has been
ment and scholastic aptitude. The achievement
consistent though modest improvement in the
tests adopted by the Board to be administered for
performance of California third grade pupils each
the first time in those grades in the fall of 1969
year. The Cooperative Primary Reading Test will
were as follows: grade six, Comprehensive Test of
be introduced at the third grade level in May of
Basic Skills (CTBS); and grade twelve, Iowa Test of
1972. It will be of interest at that time to see (1)
Educational Development (ITED). Both of these
whether the results of that test yield the same
batteries of tests provided measurements of pupil
patterns as those in grades one and two when that
achievement in reading, language, spelling, and
test was initiated at those levels; and (2) whether
arithmetic (mathematics). Prior to 1969 the only
subsequent experience with that test continues to
achievement tests administered statewide to pupils
Table 7
Revenues for California Public School Support from State
and Local Sources, 1950-51 Through 1969-70
State sources
Local sources
Ratio
Percent
Percent
state to
of total
of total
Total
local
b
Year
Revenues
a
revenues
Revenues
revenues
revenues
revenues
1950-51
237,553,000
42.3
324,483,000
57.7
562,036,000
1:1.37
1951-52
261,597,000
42.1
359,786,000
57.9
621,383,000
1:1.38
1952-53
327,437,000
44.5
407,228,000
55.5
734,665,000
1:1.24
1953-54
401,418,000
47.5
442,738,000
52.5
844,156,000
1:1.10
1954-55
431,831,000
47.1
485,623,000
52.9
917,454,000
1:1.12
1955-56
470,854,000
46.4
544,397,000
53.6
1,015,251,000
1:1.16
1956-57
502,785,000
43.3
659,354,000
56.7
1,162,139,000
1:1.31
1957-58
560,490,932
41.6
785,291,800
58.4
1,345,782,732
1:1.40
1958-59
633,763,888
42.3
866,065,433
57.7
1,499,829,321
1:1.37
1959-60
704,690,650
42.3
962,205,330
57.7
1,666,895,980
1:1.37
1960-61
752,145,063
40.9.
1,086,180,343
59.1
1,838,325,406
1:1.44
1961-62
789,215,137
39.1
1,232,153,373
60.9
2,021,368,510
1:1.56
1962-63
853,386,170
39.2
1,326,583,642
60.8
2,179,969,812
1:1.55
1963-64
934,271,275
39.4
1,437,943,311
60.6
2,372,214,586
1:1.54
1964-65
1,057,565,256
40.2
1,575,025,840
59.8
2,632,591,096
1:1.49
1965-66
1,185,777,215
40.5
1,742,096,718
59.5
2,927,873,933
1:1.47
1966-67
1,230,432,413
38.4
1,973,189,418
61.6
3,203,621,831
1:1.60
1967-68
1,438,629,935
39.7
2,188,139,233
60.3
3,626,769,168
1:1.52
1968-69
1,498,629,871
38.2
2,427,646,849
61.8
3,926,276,720
1:1.62
1969-70
1,766,482,779
40.0
2,654,293,865
60.0
4,420,776,644
1:1.50
NOTE: This table includes support for community colleges.
a State revenues (Governor's Budget and Controller's Report) include apportionments to school districts, debt
service on school construction bonds, teacher retirement, textbooks, and vocational education.
b
Local revenues (Controller's Report) include General Fund taxes, bond interest and redemption taxes,
community college tuition, high school tuition, and taxes levied for offices of county superintendents of schools.
8
in the sixth grade dealt with reading, and pupils in
language achievement; in language achievement
the twelfth grade were not included in the state
California pupils scored somewhat below the pub-
testing program.
lishers' quartile norms. The results for 1970 indi-
Measures of scholastic aptitude at grades six and
cate generally that the achievement levels of sixth
twelve were obtained by means of the Lorge-
grade pupils declined slightly from the 1969
Thorndike Intelligence Tests, Verbal Battery.
results. The largest decrease noted was in the area
Although this same test has been used statewide
of arithmetic achievement.
with pupils in the sixth grade since 1966, it was
The data in Table 21 indicate that in 1969 the
used statewide with twelfth grade pupils for the
twelfth grade pupils in California also were at or
first time in the fall of 1969.
near the publishers' norms at the 75th percentile
The results of the scholastic aptitude and aca-
level, the median, and the 25th percentile in all
demic achievement testing in grade six in 1969 and
areas tested except language achievement; as with
1970 are presented in summary form in Table 20.
the pupils in the sixth grade, California pupils
These data indicate that in 1969 the sixth grade
enrolled in the twelfth grade scored somewhat
pupils of California were at or near the publishers'
below the publishers' quartile norms. The results
norms at the 75th percentile level, the median, and
for 1970 were slightly, but consistently, lower than
the 25th percentile level in all areas tested except
they were in 1969.
Table 8
Distribution of California School Districts by Assessed Valuation
Per Unit of Average Daily Attendance, Elementary Level,
1970-71 and 1969-70
District with this assessed valuation
per unit of a.d.a.
Number of
Cumulative
Modified
districts
Units of a.d.a.
percent of a.d.a.
assessed valuation
per unit of a.d.a.
1970-71
1969-70
1970-71
1969-70
1970-71
1969-70
$100,000 and over
55
56
4,157
4,059
0.13
0.13
75,000-99,999
35
35
6,378
5,823
0.32
0.32
50,000-74,999
76
76
24,566
19,155
1.08
0.89
47,500-49,999
14
16
14,874
5,016
1.54
1.05
45,000-47,499
13
13
6,296
12,497
1.73
1.43
42,500-44,999
16
10
15,199
12,158
2.20
1.81
40,000-42,499
18
11
67,927
12,600
4.29
2.20
37,500-39,999
21
12
7,746
7,293
4.53
2.42
35,000-37,499
18
30
18,867
75,268
5.11
4.74
32,500-34,999
17
25
11,933
9,971
5.48
5.04
30,000-32,499
25
21
28,037
20,166
6.34
5.66
27,500-29,999
33
27
36,896
31,511
7.48
6.63
25,000-27,499
35
31
62,155
69,192
9.40
8.76
22,500-24,999
42
52
179,606
136,164
14.93
12.96
20,000-22,499
60
54
211,001
201,218
21.43
19.15
17,500-19,999
75
68
628,204
617,334
40.78
38.15
15,000-17,499
82
82
237,937
259,321
48.11
46.14
12,500-14,999
76
75
426,929
397,056
61.26
58.36
10,000-12,499
93
97
515,046
444,621
77.12
72.04
7,500- 9,999
80
92
522,907
591,273
93.23
90.24
5,000- 7,499
51
57
185,986
268,441
98.96
98.51
Under $5,000
17
19
33,819
48,457
100.00
100.00
Totals
952
959
3,246,466
3,248,594
Median, 1970-71
$20,083
1969-70
19,600
1968-69
18,200
9
Table 9
Distribution of California School Districts by Assessed Valuation
Per Unit of Average Daily Attendance, High School Level,
1970-71 and 1969-70
Districts with this assessed valuation
per unit of a.d.a.
Number of
Cumulative
Modified
districts
Units of a.d.a.
percent of a.d.a.
assessed valuation
per unit of a.d.a.
1970-71
1969-70
1970-71
1969-70
1970-71
1969-70
$125,000 and over
17
12
6,464
3,703
0.48
0.28
100,000-124,999
11
13
8,681
9,943
1.12
1.02
95,000-99,999
1
3
206
1,841
1.13
1.16
90,000-94,999
7
3
29,080
1,550
3.27
1.27
85,000-89,999
8
7
8,297
6,465
3.88
1.83
80,000-84,999
6
9
2,968
3,393
4.10
2.08
75,000-79,999
6
7
8,760
32,231
4.75
4.49
70,000-74,999
8
14
2,875
11,202
4.96
5.33
65,000-69,999
10
5
13,556
3,537
5.96
5.59
60,000-64,999
16
11
27,561
15,325
7.99
6.74
55,000-59,999
24
17
49,623
33,861
11.64
9.27
50,000-54,999
23
23
100,583
84,121
19.05
15.55
45,000-49,999
27
29
256,474
92,030
37.94
22.43
40,000-44,999
27
34
63,286
277,506
42.60
43.17
35,000-39,999
46
47
199,565
133,509
57.29
53.14
30,000-34,999
45
46
187,829
246,469
71.12
71.56
25,000-29,999
36
31
192,675
143,138
85.31
82.25
20,000-24,999
24
30
111,965
150,973
93.56
93.54
15,000-19,999
13
12
84,358
82,269
99.77
99.68
10,000-14,999
2
3
2,213
4,247
99.93
100.00
Under $10,000
1
0
895
0
100.00
100.00
Totals
358
356
1,357,914
1,338,313
Median, 1970-71
$40,777
1969-70
41,300
1968-69
39,600
10
Table 10
Distribution of California School District Legal Tax Rate Limits, 1970-71
Unified districts
Elementary districts
High school districts
Number of
Number of
Number of
Tax rate
districts
Tax rate
districts
Tax rate
districts
$ 1.65ᵃ
7
$
0.90ᵃ
40
$
0.75ᵃ
2
1.66-1.99
0
0.91-0.99
0
0.76-0.89
1
2.00-2.09
0
1.00-1.09
2
0.90-0.99
1
2.10-2.19
3
1.10-1.19
6
1.00-1.09
4
2.20-2.29
17
1.20-1.29
10
1.10-1.19
4
2.30-2.39
4
1.30-1.39
210
1.20-1.29
11
2.40-2.49
4
1.40-1.49
33
1.30-1.39
8
2.50-2.59
11
1.50-1.59
48
1.40-1.49
11
2.60-2.69
19
1.60-1.69
37
1.50-1.59
26
2.70-2.79
13
1.70-1.79
34
1.60-1.69
8
2.80--2.89
9
1.80-1.89
56
1.70-1.79
17
2.90-2.99
11
1.90-1.99
49
1.80-1.89
8
3.00-3.09
15
2.00-2.09
47
1.90-1.99
6
3.10-3.19
13
2.10-2.19
18
2.00-2.09
6
3.20-3.29
18
2.20-2.29
30
2.10 and over
5
3.30-3.39
10
2.30-2.39
12
3.40-3.49
16
2.40-2.49
17
Total
118
3.50-3.59
10
2.50-2.59
17
3.60-3.69
9
2.60-2.69
6
3.70-3.79
13
2.70-2.79
15
3.80-3.89
11
2.80-2.89
4
3.90-3.99
4
2.90-2.99
4
4.00-4.49
10
3.00-3.09
5
4.50-4.99
9
3.10 and over
12
5.00 and over
4
Total
240
Total
712
NOTE: The legal tax rate limit is the statutory tax rate established as a maximum for each type of
district (Education Code Section 20751) or the tax rate authorized by election in the district (Education
Code Section 20803), whichever is in effect.
a Statutory maximum tax rate.
b Includes 209 elementary school districts with a legal tax rate limit of $1.35, the statutory maximum
established by Education Code Section 20751 (1)(b).
Summary of Legal Tax Limits
Type of district
Range
Median
Unified
$1.65-6.80
$3.16
High school
0.75-2.98
1.57
Elementary
0.90-4.50
1.62
11
Table 11
Table 12
Outcome of California School District
Average Class Size, Grades One Through Three;
Tax and Bond Elections, 1970-71
Pupil-Teacher Ratios, Grades Four Through Eight
Tax rate increases
Bond issues
Year
Average class size
Pupil-teacher ratios
Percent
Percent
Percent
Percent
Type of district
passed
failed
passed
failed
1967-68
27.81
28.5 to 1
1968-69
27.23
28.2 to 1
Elementary
56
44
27
73
1969-70
27.03
28.0 to 1
High school
59
41
27
73
1970-71
27.22
27.9 to 1
Unified
39
61
21
79
Total, all districts
52
48
25
75
Table 13
Distribution of Class Sizes, Grades One Through Three, in California Public Schools, 1970-71
Pupils attending classes this size or smaller
Classes with this
Pupils in classes
Class size
number of pupils
of this size
Cumulative percent
(number of
of enrollment
pupils per
Percent
Percent
class)
Number
of total
Number
of total
Number
1970-71
1969-70
1968-69
Fewer than 5
7
0.01
21
0.00
21
0.00
0.00
0.00
5-9
44
0.10
329
0.03
350
0.03
0.03
0.04
10-14
136
0.34
1,667
0.15
2,017
0.18
0.26
0.22
15-19
723
1.80
12,794
1.17
14,811
1.35
1.65
1.45
20-24
5,591
13.92
127,372
11.66
20
442
1.10
8,840
0.81
23,651
2.16
2.43
2.23
21
599
1.49
12,579
1.15
36,230
3.31
3.73
3.48
22
909
2.26
19,998
1.83
56,228
5.14
5.81
5.25
23
1,429
3.56
32,867
3.01
89,095
8.15
8.89
7.94
24
2,212
5.51
53,088
4.86
142,183
13.01
13.72
12.19
25-29
24,699
61.52
676,921
61.93
25
2,852
7.10
71,300
6.52
213,483
19.53
20.66
18.29
26
3,844
9.57
99,944
9.14
313,427
28.67
30.07
26.95
27
5,119
12.75
138,213
12.64
451,640
41.32
42.75
39.40
28
6,172
15.38
172,816
15.81
624,456
57.12
59.02
55.99
29
6,712
16.72
194,648
17.82
819,104
74.93
77.97
76.15
30-34
8,909
22.19
272,257
24.91
30
5,455
13.59
163,650
14.98
982,754
89.90
94.54
93.53
31
2,246
5.59
69,626
6.37
. 052,380
96.27
97.74
97.34
32
952
2.37
30,464
2.79
1,082,844
99.06
99.10
98.83
33
187
0.47
6,171
0.56
1,089,015
99.62
99.62
99.54
34
69
0.17
2,346
0.21
1,091,361
99.84
99.82
99.77
35-39
50
0.12
1,789
0.15
1,093,150
100.00
100.00
99.98
40 or more
0
0
0
0
1,093,150
100.00
100.00
100.00
Totals
40,159
100.00
1,093,150
100.00
NOTE: Districts with fewer than 101 average daily attendance were excluded.
12
Table 14
Enrollment in California Public Schools in Excess
of Designated Class Size, Grades One Through Three,
1970-71, 1969-70, and 1968-69
Number of classes
Class size
Number of pupils in excess
with pupils in excess of
(designated
of designated class size
of designated class size
number of
pupils)
1970-71
1969-70
1968-69
1970-71
1969-70
1968-69
35
39
63
92
24
26
37
34
89
121
163
50
58
71
33
208
243
310
119
122
147
32
514
541
702
306
298
392
31
1,772
1,312
1,620
1,258
771
918
30
5,276
3,229
3,932
3,504
1,917
2,312
29
14,235
11,275
12,802
8,959
8,046
8,870
28
29,906
26,845
29,543
15,671
15,297
16,741
Table 15
Pupil-Teacher Ratios in California School Districts, Grades Four
Through Eight, 1970-71, 1969-70, and 1968-69
Districts with this pupil-teacher ratio
1970-71
1969-70
1968-69
Percent
Percent
Percent
Pupil-teacher
of total
of total
of total
ratios
Number
districts
Number
districts
Number
districts
Less than 10:1
0
0
0
0
0
0
10:1-14:1
6
0.8
9
1.2
8
1.0
15:1-19:1
33
4.3
34
4.4
31
4.0
20:1-24:1
152
19.9
169
22.0
176
22.9
20:1
15
2.0
18
2.3
18
2.3
21:1
23
3.0
25
3.3
22
2.9
22:1
24
3.1
32
4.2
30
3.9
23:1
39
5.1
31
4.0
55
7.2
24:1
51
6.7
63
8.2
51
6.6
25:1-29:1
434
56.9
435
56.8
424
55.1
25:1
73
9.5
78
10.2
73
9.4
26:1
70
9.2
81
10.6
86
11.2
27:1
101
13.2
100
13.0
92
12.0
28:1
95
12.5
92
12.0
90
11.7
29:1
95
12.5
84
11.0
83
10.8
30:1-34:1
135
17.8
119
15.5
126
16.5
30:1
51
6.7
55
7.2
69
9.0
31:1
48
6.3
27
3.5
27
3.5
32:1
21
2.8
26
3.4
22
2.9
33:1
10
1.3
10
1.3
6
0.8
34:1
5
0.7
1
0.1
2
0.3
35:1 and over
2
0.3
1
0.1
4
0.5
Totals
762
100.0
767
100.0
769
100.0
NOTES: Pupil-teacher ratios in districts with fewer than 101 a.d.a. and grades seven and
eight of junior high schools maintained by high school or unified school districts were
excluded.
Numbers and percents printed in italics are totals for the pupil-teacher ratio range and
are followed by data for the individual ratios within the range.
13
Table 16
Distribution of Full-Time Teachers in California Public Schools, by Salary Paid, 1970-71
Number of teachers, by level'
Number of teachers, by levelᵃ
b
High schoolᶜ
b
Yearly salary
Elementary
Total
c
Yearly salary
Elementary
High school
Total
Under $6,000
$12,000 to 12,299
4,159
2,397
6,556
$6,000 to 6,299
147
12
159
12,300 to 12,599
3,118
2,755
5,873
6,300 to 6,599
342
29
371
12,600 to 12,899
3,782
2,670
6,452
6,600 to 6,899
821
202
1,023
12,900 to 13,199
3,694
2,586
6,280
6,900 to 7,199
1,917
465
2,382
13,200 to 13,499
2,971
2,668
5,639
7,200 to 7,499
2,898
829
3,727
13,500 to 13,799
2,659
2,493
5,152
7,500 to 7,799
5,012
1,650
6,662
13,800 to 14,099
2,201
2,052
4,253
7,800 to 8,099
5,000
1,887
6,887
14,100 to 14,399
3,061
3,162
6,223
8,100 to 8,399
5,760
2,242
8,002
14,400 to 14,699
2,951
3,600
6,551
8,400 to 8,699
6,231
2,559
8,790
14,700 to 14,999
1,542
2,414
3,956
8,700 to 8,999
5,283
2,248
7,531
15,000 and over
3,237
7,308
10,545
9,000 to 9,299
6,112
2,831
8,943
Total
114,554
75,080
189,634
9,300 to 9,599
5,750
2,707
8,457
9,600 to 9,899
5,414
3,520
8,934
9,900 to 10,199
5,001
3,006
8,007
First quartile
$ 8,729
$ 9,695
$ 9,063
10,200 to 10,499
4,631
2,651
7,282
Median
10,303
11,611
10,783
10,500 to 10,799
4,572
3,559
8,131
10,800 to 11,099
4,537
2,797
7,334
Third quartile
12,356
13,772
12,957
11,100 to 11,399
3,857
2,352
6,209
11,400 to 11,699
4,213
2,840
7,053
Mean
10,609
11,645
11,019
11,700 to 11,999
3,681
2,589
6,270
a
Teachers employed on two levels have been classified in the level to which the major portion of their time is assigned.
b
Includes kindergarten teachers.
C Includes junior high school teachers.
14
Table 17
STATEWIDE STANDARDIZED TEST RESULTS
CALIFORNIA PUBLIC SCHOOLS -- 1965-66 THROUGH 1970-71
READING ACHIEVEMENT -- GRADE 1
A. GENERAL INFORMATION
Test
STANFORD READING TEST
COOPERATIVE PRIMARY
READING TEST
Year
1965-66
1966-67
1967-68
1968-69
1969-70
1970-71
No. of Pupils Tested
330,633
337,207
347,001
347,062
354,411
344,971
B. INTERQUARTLLE RANGE (25th, 50th & 75th PERCENTILE SCORES) COMPARED TO PUBLISHER'S NORMS*
75
PUBLISHER'S
PERCENTILE
50
RANK
25
C. PUBLISHER'S PERCENTILE RANKS AND GRADE EQUIVALENTS OF STATE QUARTILE SCORES (25th, 50th & 75th PERCENTILES)
75th Percentile (State Q3)
State Raw Score
43.1
48.2
48.3
50.6
31.2
31.6
Publisher's Percentile Rank
44
52
52
58
80
82
Publisher's Grade Equivalent
1.8
1.9
1.9
2.0
2.2
2.2
50th Percentile (State Q2)
State Raw Score
30.6
32.5
32.7
34.5
22.4
22.8
Publisher's Percentile Rank
16
20
20
23
44
51
Publisher's Grade Equivalent
1.6
1.6
1.6
1.7
1.8
1.8
25th Percentile (State Q1)
State Raw Score
21.2
22.2
22.6
23.6
17.6
18.0
Publisher's Percentile Rank
5
5
6
7
25
25
Publisher's Grade Equivalent
1.4
1.5
1.5
1.5
1.5
1.5
*The three broken horizontal lines indicate the publisher's 75th, 50th and 25th percentiles. The shaded columns represent the
middle fifty per cent of the test scores of California grade one pupils. The top of each column represents the 75th percentile
score for the California pupils, the bottom represents the 25th percentile score, and the break in the middle of the columns
represents the 50th percentile score. These data are presented in numerical form in Part C of this Exhibit.
15
Table 18
STATEWIDE STANDARDIZED TEST RESULTS
CALIFORNIA PUBLIC SCHOOLS -- 1965-66 THROUGH 1970-71
READING ACHIEVEMENT -- GRADE 2
A. GENERAL INFORMATION
Test
STANFORD READING TEST
COOPERATIVE
PRIMARY
Year
1965-66
1966-67
1967-68
1968-69
1969-70
1970-71
No. of Pupils Tested
314,646
318,529
329,021
337,151
345,586
332,517
B. INTERQUARTILE RANGE (25th, 50th & 75th PERCENTILE SCORES) COMPARED TO PUBLISHER'S NORMS*
75
PUBLISHER'S
PERCENTILE
50
RANK
25
C. PUBLISHER'S PERCENTILE RANKS AND GRADE EQUIVALENTS OF STATE QUARTILE SCORES (25th, 50th & 75th PERCENTILES)
75th Percentile (State Q3)
State Raw Score
55.3
56.6
57.1
58.3
59.3
34.4
Publisher's Percentile Rank
60
64
64
66
68
70
Publisher's Grade Equivalent
3.0
3.1
3.1
3.2
3.2
3.5
50th Percentile (State Q2)
State Raw Score
37.6
39.3
39.7
41.7
42.6
26.6
Publisher's Percentile Rank
28
30
32
36
38
50
Publisher's Grade Equivalent
2.5
2.5
2.5
2.6
2.6
2.8
25th Percentile (State Q1)
State Raw Score
23.7
24.8
25.1
26.4
26.5
20.3
Publisher's Percentile Rank
6
7
7
8
10
25
Publisher's Grade Equivalent
1.9
1.9
1.9
1.9
2.0
2.1
*The three broken horizontal lines indicate the publisher's 75th, 50th and 25th percentiles. The shaded columns represent the
middle fifty percent of the test scores of California grade two pupils. The top of each column represents the 75th percentile
score for the California pupils, the bottom represents the 25th percentile score, and the break in the middle of the column
represents the 50th percentile score. These data are presented in numerical form in Part C of this Exhibit.
16
Table 19
STATEWIDE STANDARDIZED TEST RESULTS
CALIFORNIA PUBLIC SCHOOLS 1965-66 THROUGH 1970-71
READING ACHIEVEMENT -- GRADE 3
A. GENERAL INFORMATION
Test
STANFORD READING TEST
Year
1965-66
1966-67
1967-68
1968-69
1969-70
1970-71
No. of Pupils Tested
313,380
319,903
329,447
347,410
336,845
B. INTERQUARTILE RANGE (25th, 50th & 75th PERCENTILE SCORES) COMPARED TO PUBLISHER'S NORMS*
75
PUBLISHER'S
PERCENTILE
50
RANK
25
C. PUBLISHER'S PERCENTILE RANKS AND GRADE EQUIVALENTS OF STATE QUARTILE SCORES (25th, 50th & 75th PERCENTILES)
75th Percentile (State Q3)
State Raw Score
75.1
75.3
75.7
75.8
75.6
Publisher's Percentile Rank
56
56
60
60
60
Publisher's Grade Equivalent
4.1
4.1
4.2
4.2
4.2
50th Percentile (State Q2)
State Raw Score
61.9
62.2
63.1
63.4
63.6
Publisher's Percentile Rank
34
34
36
36
38
Publisher's Grade Equivalent
3.4
3.4
3.4
3.4
3.5
25th Percentile (State Q1)
State Raw Score
44.4
44.9
46.2
46.6
47.1
Publisher's Percentile Rank
12
12
13
13
13
Publisher's Grade Equivalent
2.7
2.7
2.7
2.8
2.8
*The three broken horizontal lines indicate the publisher's 75th, 50th and 25th percentiles. The shaded column represents
the middle fifty per cent of the test scores of California grade three pupils. The top of each column represents the 75th
percentile score for the California pupils, the bottom represents the 25th percentile score, and the break in the middle
of the column represents the 50th percentile score. These data are presented in numerical form in Part C of this Exhibit.
Table 20
STATEWIDE STANDARDIZED TEST RESULTS
CALIFORNIA PUBLIC SCHOOLS -- 1969-70 & 1970-71
SCHOLASTIC APTITUDE AND ACHIEVEMENT TESTS -- GRADE 6
A. GENERAL INFORMATION
Test
LORGE-THORNDIKE
COMPREHENSIVE TESTS OF BASIC SKILLS, Form Q, Level 2
INTELLIGENCE TEST
Verbal Ability
Reading Subtest
Language Subtest
Spelling Subtest
Arithmetic Subtest
Year
1969-70
1970-71
1969-70
1970-71
1969-70
1970-71
1969-70
1970-71
1969-70
1970-71
Number of Pupils Tested
327,078
322,870
328,754
333,734
327,059
331,766
327,273
332,601
326,901
331,609
B. INTERQUARTILE RANGES (25th, 50th and 75th PERCENTILE SCORES) COMPARED TO PUBLISHERS' NORMS*
75
PUBLISHER'S
PERCENTILE
50
RANK
25
C. PUBLISHERS' PERCENTILE RANKS AND GRADE EQUIVALENT SCORES OF THE STATE QUARTILE SCORES (25th, 50th & 75th PERCENTILES)
75th Percentile (State Q3)
State Raw Score
109.0
108.2
71.8
71.4
68.4
67.9
25.7
25.7
84.8
83.2
Publisher's Percentile Rank
74
72
74
72
68
68
73
73
74
68
Publisher's Grade Equivalent
Not Applicable
7.6
7.4
7.2
7.2
7.5
7.5
7.3
6.9
50th Percentile (State Q2)
State Raw Score
98.1
97.2
61.7
61.2
58.3
57.5
22.6
22.5
74.9
72.6
Publisher's Percentile Rank
48
46
48
46
43
43
49
49
47
43
Publisher's Grade Equivalent
Not Applicable
6.0
5.8
5.7
5.7
6.0
6.0
5.9
5.8
25th Percentile (State Q1)
State Raw Score
87.9
87.4
45.7
45.3
44.3
43.2
17.6
17.3
58.9
56.1
Publisher's Percentile Rank
25
23
24
23
-21
19
22
19
24
21
Publisher's Grade Equivalent
Not Applicable
4.5
4.4
4.3
4.2
4.6
4.3
4.8
4.7
*
The three broken horizontal lines indicate the publiahers' 75th, 50th and 25th percentiles. The shaded columns represent the middle fifty percent of the test scores
of California grade 6 pupils. The top of each column represents the 75th percentile for the California pupils, the bottom represents the 25th percentile scores, and
the break in the middle of the column represents the 50th percentile acore. These data are presented in numerical form in Part C of this Exhibit.
17
18
Table 21
STATEWIDE STANDARDIZED TEST RESULTS
CALIFORNIA PUBLIC SCHOOLS -- 1969-70 & 1970-71
SCHOLASTIC APTITUDE AND ACHIEVEMENT TESTS -- GRADE 12
A. GENERAL INFORMATION
Test
LORGE-THORNDIKE
IOWA TESTS OF EDUCATIONAL DEVELOPMENT, Form X-4
INTELLIGENCE TEST
Verbal Ability
Reading Subtest
Expression Subtest
Spelling Subtest
Quantitative Subtest
Year
1969-70
1970-71
1969-70
1970-71
1969-70
1970-71
1969-70
1970-71
1969-70
1970-71
Number of Pupils Tested
235,913
249,160
234,478
247,311
230,820
246,781
228,140
241,363
234,706
248,853
B. INTERQUARTILE RANGES (25th, 50th and 75th PERCENTILE SCORES) COMPARED TO PUBLISHERS' NORMS*
75
PUBLISHER'S
PERCENTILE
50
RANK
25
C. PUBLISHERS' PERCENTILE RANKS AND GRADE EQUIVALENT SCORES OF THE STATE QUARTILE SCORES (25th, 50th & 75th PERCENTILES)
75th Percentile (State Q3)
State Raw Score
113.2
112.8
29.8
29.4
50.8
49.8
11.1
11.0
19.0
18.7
Publisher's Percentile Rank
74
74
74
71
68
65
72
72
77
77
50th Percentile (State Q2)
State Raw Score
101.5
101.0
21.5
21.2
40.8
39.9
8.2
8.1
13.2
12.9
Publisher's Percentile Rank
47
45
52
49
42
40
47
47
48
48
25th Percentile (State Q1)
State Raw Score
90.5
90.2
15.4
15.1
30.3
29.6
5.4
5.3
8.8
8.6
Publisher's Percentile Rank
22
20
24
24
22
22
26
26
25
25
* The three broken horizontal lines indicate the publishers' 75th, 50th and 25th percentiles. The shaded columns represent the middle fifty percent of the test scores
of California grade 12 pupils. The top of each column represents the 75th percentile score for the California pupils, the bottom represents the 25th percentile score,
and the break in the middle of the column represents the 50th percentile score, These data are presented in numerical form in Part C of this Exhibit.
Priorities of the State Board of Education
and Superintendent, 1971-72
The success of educational programs at the local
Another significant step taken by the Board was
level is dependent on the relationships which exist
the development of a Board policy manual, which
among the child, his teacher, his parents, and the
is now in the final developmental stages. This
school principal. If lines of communication are
represents a major step in helping to solidify the
clear, if each one sets realistic goals, and if each
role of the Board and in making the dealings of the
assumes his responsibility, the educational program
Board with the Department of Education, various
will have a better chance of succeeding. In like
educational agencies, the public, and the Legisla-
manner, the organizations having responsibility for
ture more meaningful and constructive.
providing the resources needed for educational
In 1971 the new Superintendent of Public
programs must also establish good communica-
Instruction began the important tasks of establish-
tions, set realistic goals, and assume appropriate
ing better lines of communication with the schools
responsibilities for the education of our youth. In
and of establishing with the State Board of
California the State Board of Education, the
Education priorities for California education. The
Superintendent of Public Instruction, and the State
specific priorities established by the State Board of
Department of Education were created to help
Education and the Superintendent of Public
coordinate the efforts in public education - to act
Instruction for 1971-72 are reviewed in this section
as the liaison between state government and local
of the annual report. The State Board and the
educational agencies. In more recent years, they
Superintendent agreed that the following were the
have also served as the liaison between the federal
nine priorities that should receive major attention
government and the schools.
in 1971-72:
During 1971 the State Board of Education
1. Department and Board reorganization
concerned itself with such major issues as a
2. Curriculum development and textbook selec-
revamping of public school finance in California;
tion procedures
establishing guidelines for teacher tenure and
3. School district management review and
evaluation; and reconstructing the entire system of
assistance
advisory commissions and committees. In the area
4. Basic skills
of instruction, the Board took major steps in such
5. Career education
areas as implementation and evaluation of
6. School finance and efficiency
statewide curriculum; improved textbook develop-
7. Drug abuse and preventive education
ment and selection procedures; studies regarding
8. Early childhood education
the statewide testing program; and program and
9. Bilingual-bicultural education
cost-effectiveness. Other areas included moral
guidelines development, drug abuse education, and
Progress has been made in each of the nine
venereal disease control.
priority areas in 1971-72 through the establish-
Some other major activities of the Board
ment of a more flexible organizational pattern than
included the development of state guidelines for
the Department of Education's earlier organiza-
bilingual education; a student bill of rights,
tional structure. The new structure has ensured
guidelines for student expression, and distribution
that the following take place: (1) specific problems
of publications on campuses; migrant education;
are defined; (2) the problems are reviewed, and
and guidelines for vocational education regional
plans of action are developed by ad hoc teams or
occupational centers.
task forces; and (3) programs are modified, as
19
20
necessary, to solve problems. Figure 1 identifies
efforts of persons serving in 394 professional
the types of units assigned to work on the
positions in the Department of Education. This
priorities and the source of funds for each unit's
facilitated the rapid establishment of a number of
operations. The reader will note that eight of the
task forces to deal with specific problem areas. The
priorities are to be continued in 1972-73.
composition of the task forces has varied: Some
task forces have been made up of Department of
Department and Board Reorganization
Education personnel only; some have been
The need to reorganize California's educational
composed of educational experts from outside the
leadership structure to respond more effectively to
Department and lay members who have served on a
the needs of the state has long been recognized;
voluntary basis; and some have included represen-
thus, this became a high priority item for 1971-72.
tatives from a number of agencies. All of these
The overriding goal in this respect was to
groups, however, have had the following elements
reorganize the administrative and decision-making
in common: a specific set of assignments in an area
structure into a clear and orderly system which was
of public concern and a timetable which was
sufficiently flexible to respond to the priority
designed to lead to recognizable improvements in
problem areas in a timely fashion.
public education.
During 1971-72 the Superintendent was pro-
In addition to creating task forces to seek
vided, through a provision in the Governor's
solutions to specific problems, the Superintendent
budget, administrative flexibility to redirect the
established three new offices in 1971 to coordinate
Unit Assigned Priority and Financial Support
1971-72
1972-73
PRIORITIES 1971-72
unit
support
unit
support
1. Department and Board Reorganization
2. Curriculum Development and Textbook Selection
3. School District Management, Review and Assistance
Reading
4. Basic Skills
Mathematics
5. Career Education
6. School Finance and Efficiency
7. Drug Abuse Preventative Education
8. Early Childhood Education
9. Bilingual-Bicultural Education
KEY:
State Funds
Federal Funds
Task Force
Regular Program
Special Project
Fig. 1. Board of Education and Department of Education Priorities
for 1971-72 and Those to Be Continued in 1972-73
21
the Department's responsibilities in areas of critical
identify and recruit the most talented
concern:
individuals to fill available positions
1. The Office of Program Planning was made
Structural redirection: the development of a
responsible for long- and short-range planning
program for structural changes in the
regarding the problems of public education.
organization of the Department to facilitate
2. The Office of Program Evaluation was made
administrative direction and flexibility
responsible for objectively determining the
Curriculum Development and Textbook
results of ongoing and special programs.
Selection Procedures
3. The Office of Legislation Coordination was
A significant problem which has troubled
made responsible for maintaining liaison with
educational decision makers for some time has
the legislative and executive branches of
been the lack of an effective system to influence
government on matters of concern to public
and to improve continuously the quality of public
education.
school curriculum while avoiding the need for
One of the most immediate problems of
organization was outlined in the Superintendent's
prescriptive mandates. The existing procedures for
curriculum development and textbook adoption
priority message of 1971: the confusion created by
the proliferation of statutory commissions and
simply do not meet the needs of modern school
committees. Legislation designed to correct this
programs.
situation was introduced by Assemblyman Walter
Based on these needs, the Department has been
J. Karabian, and it was adopted. Through the
developing a plan which will strengthen the process
passage of Assemblyman Karabian's bill (AB
of curriculum framework development and text-
book selection. A task force will have prepared by
2800), 14 of the existing bodies were consolidated
June 30, 1972, a complete plan for the
into six new advisory groups, and an orderly plan
development, implementation, and evaluation of
was developed for these groups' working relations
curriculum frameworks. The objective of this plan
with the State Board and the Department. The
will be to strengthen the frameworks - to make
Department has developed a comprehensive plan to
them blueprints for leadership in educational
implement this legislation shortly after its effective
programs.
date in March, 1972.
Concurrently, a departmental legislative pro-
To meet the Department's long-term need for
posal for improving textbook selection procedures
revitalizing its hiring and promotion policies, the
is being developed. The proposal will recommend
Superintendent appointed a special study group of
the following changes in the system:
experts to make recommendations regarding such
1. Inclusion of comprehensive educational
policies. In its report this group has outlined a
materials, other than textbooks, in the
program which is designed to achieve flexibility
adoption process
and maximum use of personnel resources. The
2. The establishment of a curriculum framework
planning for long-term reorganization within the
at least one year in advance of the initiation
Department is the responsibility of the task force
of textbook adoption procedures
on organizational redirection. At the Superin-
3. A greater flexibility for districts to make local
tendent's direction, this task force has been
choices in the selection of supplementary
developing a working plan for the systematic
materials.
reorganization of the Department which is
4. The establishment of an annual state instruc-
consistent with the hiring and promotion study
tional materials budget computed on a
group's recommendations; the plan will be
per-pupil basis, with the monies deposited in a
completed and presented to the State Board of
state instructional materials fund for the
Education and appropriate state agencies by June,
acquisition, replacement, and distribution of
1972. The plan will emphasize the following:
materials
Team building: the development of a more
thorough understanding and commitment to
School District Management Review and Assistance
the major organizational objectives through
The management of public school districts is a
the use of well-planned intraorganizational
complex and demanding responsibility. In fact the
seminars
management problems and concerns that exist
Talent search and recruitment: the develop-
among California's elementary, high school, and
ment of a comprehensive ongoing program to
unified school districts are almost as varied as the
22
number of districts that make up the state's public
be developed, and 20 effective reading program
school system. These problems have resulted in a
models will be identified. In 1972-73 these models
growing concern for the quality of the manage-
will be implemented in 50 school districts with the
ment of the state's public school districts, and the
most significant problems.
Superintendent and the Board placed the matter
on their 1971-72 list of priorities. In response to
Mathematics Task Force
this concern, the Superintendent has established a
Statewide indicators also demonstrate the need
school district management review and assistance
for program improvement in mathematics. The
task force. The purpose of this group is to work
Mathematics Task Force is presently completing an
with districts to assist them in correcting specific
extensive testing of pupils in California schools to
problems and to identify general problems which
determine the strengths and weaknesses of existing
should be made the subject of broader state action.
programs. The results of this assessment of the
The task force team will work with at least 50
status of mathematics education in the state during
school districts in 1971-72 to identify management
1971-72, along with an estimate of needs for
deficiencies, advise the districts on the corrective
program improvements in the computer age, will
measures to be taken, provide necessary inservice
be made available in the spring of 1972.
training, and follow up to determine the
The assessment will emphasize pupil progress at
effectiveness of changes instituted. The team will
the third, sixth, and eighth grade levels based upon
continue this process in 50 additional districts in
state-adopted curriculum at each of those grade
1972-73.
levels. Additional activities of the mathematics task
As a result of the work of the task force, the
force include the identification of exemplary
Department has been overwhelmed with requests
mathematics projects for statewide dissemination
for assistance by other districts. Although it is still
and work with teacher training institutions to
too early to evaluate completely the effectiveness
improve the mathematics preparation of teachers.
of this approach, initial reports indicate that the
process has reduced the level of deficit spending
Career Education
and reporting errors in the districts visited.
When the high school graduate has no idea of
Basic Skills - Reading and Mathematics
the type of work he would like to do, it is a
depressing situation for the graduate; oftentimes it
The ability to read, write, and compute is
represents a failure on the part of the schools.
absolutely essential if a student is to achieve his
Because this happens so often, the Superintendent
full potential in today's complex society. Without
and the Board have placed a high priority on career
gaining proficiency in these skills, he cannot
education.
succeed in school, and he will have great difficulty
The U.S. Commissioner of Education has
in securing employment after school. It was for
proposed "a new orientation of education -
these reasons that basic skills was identified as one
starting with the earliest grades and continuing
of the nine Department priorities for 1971-72.
through high school - that would expose the
Two task forces, one in reading and one in math-
student to the range of career opportunities, help
ematics, are currently involved in projects to
him narrow down the choices in terms of his own
develop methods to improve substantially educa-
aptitudes and interests, and provide him with
tion in the basic skills.
education and training appropriate to his
ambition. It will be the responsibility of the
Reading Task Force
Career Education Task Force to help California
A comprehensive analysis of statewide test
establish in its schools the "orientation" to which
results reveals that large numbers of children are
the U.S. Commissioner has referred.
seriously underachieving in reading. For example,
The career education approach must be broader
in 1969-70 there were 541 schools in which 50
in scope than the college preparation or vocational
percent of the students enrolled could achieve no
education programs, and it must emphasize an
higher than the bottom quartile in reading skills.
individualized program. Career education must
To correct this situation, the task force has
begin early in the child's schooling and progress
developed a comprehensive plan to deal with this
logically from grade level to grade level. The goal
problem on a school by school basis. In 1971-72 a
1 Marland on Career Education," American Education, VII
program to coordinate all available resources will
(November, 1971), 25.
23
of such programs will be to provide an opportunity
Recognizing the need to develop a plan which
for the student to assess realistically his personal
can receive the support of a broad segment of the
attributes and aspirations in light of occupational
parties of interest, the State Board of Education
opportunities and to receive an education appro-
has appointed a special committee to develop a
priate to his needs. This will mean that by the time
plan which will (1) meet the requirements of the
the student leaves the twelfth grade, he will have
court decision; and (2) provide an equitable
developed a salable skill.
funding structure. This committee represents not
To meet the needs for statewide leadership in
only the educational community but also business,
this area, the Department has created a career
labor, and governmental agencies. The work of the
education task force to do the following:
committee will be completed in time so that its
1. Determine and disseminate information on
plan may be submitted to the Legislature at its
the most promising practices in career
1972 session.
education.
The objective of this special committee will be
2. Develop and implement a plan of action for
to develop a plan which does the following:
support services.
Guarantees a level of financial support
3. Develop a state model for career education
necessary to provide an adequate education
programs.
for all children in the state
4. Recommend changes in existing law, regula-
Eliminates the discriminatory effects of the
tions, and policies to facilitate the establish-
property tax
ment of programs.
Provides for a strong element of local control
In 1972-73 the task force will be working with
15 school districts to implement programs and to
Drug Abuse and Preventive Education
identify the most successful programs. The
The misuse and abuse of drugs has reached
experience gained in this approach will then be
epidemic proportions in this country and has been
used to develop a broad state program.
identified by local, state, and national authorities
School Finance and Efficiency
to be one of the most critical problems we face
The financial crises in California's public schools
today. Although no reliable way has yet been
should receive first priority for attention by the
found to determine exactly how many young
Legislature at its 1972 session. This is because the
persons are misusing drugs, arrest records, mortal-
existing system does not provide adequately for all
ity rates from drug overdose, and student and
children, and it is too heavily dependent on the
public surveys indicate large numbers of young
local property tax for support. Consequently, it
people and their families are suffering undue harm
has allowed wide variations to exist among districts
because the drug problem has not been solved.
in terms of their ability to raise revenue to support
The solution to this problem can only come
programs. The California Supreme Court found in
through a total coordination of the efforts of the
its historic Serrano VS. Priest decision that the
home, school, and community. The school must be
system denied children the constitutional guaran-
capable of providing the student with knowledge
tees of equal protection of the law:
and understanding of the dangers of drug abuse
We have determined that this funding scheme
and of assisting him in dealing with his problem.
invidiously discriminates against the poor because it
To meet the challenges presented by the growing
makes the quality of a child's education a function of
use and misuse of drugs, the Department has
the wealth of his parents and neighbors. Recognizing as
established a task force on drug abuse education.
we must that the right to an education in our public
The goal of this group is to reach the school
schools is a fundamental interest which cannot be
districts in the state with information which will
conditioned on wealth, we can discern no compelling
assist them in the development or modification of
state purpose necessitating the present method of
financing.
2
drug education programs.
During 1971-72 this group has been operating a
This finding is supported by similar decisions in
very effective state drug education training
Minnesota, New Jersey, and Texas, all of which
program. As a result of this program, the current
indicate that basic reform in the way we support
status of drug education and types of assistance
our schools must be started immediately.
needed have been identified, and intensive inservice
2 Serrano V, Priest, California Supreme Court, 5 Cal. 3d 584
training programs have been held with school
(1971).
personnel. To assist in this process, a depository of
24
drug information has been established in the
5. An environment appropriate for primary education
Department, which includes relevant information
must reflect the nature and needs of the young child.
regarding teaching strategies, drug curricula, sample
6. The preparation of staff for early childhood
programs, and selected research; the materials in
education should receive continued emphasis in
California.
the depository have been made available for
7. Adequate funds must be allocated for the successful
district use.
operation of the proposed expanded primary school. 3
Department-sponsored legislation designed to
strengthen the drug education program was passed
Based on the work of this group, an
and signed at the 1971 legislative session (AB
intradepartmental task force has been assembled to
1359, introduced by Assemblyman Wadie P.
formulate the master plan; when completed, the
Deddeh, and AB 2544, introduced by Assembly-
plan will identify: (1) the state and local
man John F. Dunlap). Through the passage of
responsibilities for improved educational programs;
these measures, increased numbers of drug
(2) an implementation phase; (3) the resources
education materials will be made available to
required; and (4) the necessary legislation. The
school districts, and a comprehensive statewide
plan will be available for the Legislature's
program on drug education will be established.
consideration in 1972.
(See Education Code sections 8751-8766 and
9304.1-9304.5.)
Bilingual-Bicultural Education
The California population is drawn together
Early Childhood Education
from a wide variety of ethnic backgrounds. While
The early years are particularly important to
this contributes to the high cultural heritage of the
every child's educational achievement. Research
state, it can present difficult problems to an
indicates that 50 percent of a child's intellectual
educational program which is geared to the
potential is developed before the child reaches five
English-speaking entity, particularly to those
years of age and that 80 percent is developed prior
whose primary language is other than English. As a
to his becoming eight years old. Unfortunately,
result of studies pursuant to Assembly Concurrent
existing state educational efforts have been
Resolution 153, the Department of Education
fragmented to the point that a comprehensive
found in 1969 that 432,772 students spoke at
approach to meet the needs of children at this age
home a language other than English. This did not
level has become almost impossible; thus, the
mean that all of these students could not
Superintendent and the Board identified early
communicate in English; but when the
childhood education as one of the 1971-72
Department's findings were coupled with
priorities. To correct the current weaknesses in the
information from school districts, it did indicate
education of children in their very early years, the
that a significant number of these students were
Department has begun the development of a
experiencing special problems in school. Thus, the
master plan for early childhood education which
problem was given priority status for 1971-72.
will systematically provide for program develop-
To attack the problem, the Department has
ment, administration, evaluation, and funding.
established the Bilingual-Bicultural Task Force.
The first phase in the development of a master
During 1971-72 the task force is developing a
plan has been completed. Twenty-four experts
master plan which will provide for Indian
from throughout the state were asked to study the
education, bilingual-bicultural programs, and
problem and to propose solutions. The group has
foreign language instruction.
made the following recommendations:
During 1972-73 the task force will begin to
1. All children in California between the ages of four
make the master plan operational through the use
and eight should have the opportunity to be served
of pilot models. The results of this work will lead
by a publicly supported primary school.
2. The primary school must become a community
to the statewide implementation of a program
educational center, focusing all the resources of the
which will effectively meet the needs of
family and the community in order to serve children
California's bilingual-bicultural population.
and their parents.
3. Goals must be clearly defined so that outcomes can
3
be evaluated.
Report of the Task Force on Early Childhood Education to
Wilson Riles, State Superintendent of Public Instruction, and the
4. Medical, dental, and nutritional needs should be met,
State Board of Education." Prepared by the Task Force in Early
and social services, day care, and counseling must be
Childhood Education. Sacramento, California State Department of
made accessible.
Education, November 26, 1971, pp. 3 and 4.
Priorities of the State Board of Education
and Superintendent, 1972-73
Eight of the nine 1971-72 priorities, which were
5. Intermediate school education
identified in the preceding section of this report,
6. Master plan for special education
will be maintained as priorities in 1972-73 by the
7. Programs to prevent conflicts on junior high
State Board, the Superintendent, and the
and high school campuses
Department of Education. The work on curriculum
8. Conservation education
development and textbook selection procedures
Although the priorities do not represent all the
will have been completed by June of 1972. In
problem areas in education in California, they do
addition to continuing their work on the remaining
represent those creating the most pressing needs.
eight priorities, the state-level administrative
Therefore, the Superintendent, the Board, and the
agencies for public education will add the
Department will give unified major attention to
following priorities to their 1972-73 workload:
these areas in 1972-73, and solutions will be sought
1. Teacher evaluation
to the problems inherent in these priorities, which
2. Urban education
are discussed in this section of the annual report.
3. Analysis and applicability of testing
The types of units assigned to work on the
procedures
priorities and the source of funds for each unit's
4. Improvement of guidance and counseling
operations are identified in Figure 2.
services
Unit Assigned Priority
and Financial Support
PRIORITIES 1972-73
unit
support
1. Teacher Evaluation
2. Urban Education
3. a. Analysis and Applicability of Testing Procedures
b. Improvement of Guidance and Counseling Services
C. Master Plan for Intermediate School Education
4. Master Plan for Special Education
5. Programs to Prevent Conflicts on Junior and Senior High School Campuses
6. Conservation Education
KEY:
State Funds
Federal Funds
Task Force
Regular Program
Special Project
Fig. 2. New Board of Education and Department of Education Priorities for 1972-73
25
26
Teacher Evaluation
costly living conditions, delinquency, crime, and
At its 1971 session, the Legislature adopted
unemployment. These factors and many others
Assembly Bill 293, which calls for the
confront the state's urban school districts with two
establishment of a uniform system of evaluation
significant types of problems: educational and
and assessment of the performance of school
financial.
district certificated personnel.¹ The bill provides
The educational problems in these urban dis-
that such evaluation shall include:
tricts are the result of (1) their being situated in
areas of high social tension; and (2) their having
(a) The establishment of standards of expected
high concentrations of children from low-income
student progress in each area of study and of techniques
families that are less well prepared for participation
for the assessment of that progress.
(b) Assessment of certificated personnel competence
in an educational program than students from
as it relates to the established standards.
more affluent backgrounds.
(c) Assessment of other duties normally required to
The financial problems of the urban school
be performed by certificated employees as an adjunct to
districts result from the high cost of living associ-
their regular assignments.
ated with urban areas. This is compounded by the
(d) The establishment of procedures and techniques
wide variety of metropolitan services which must
for ascertaining that the certificated employee is
be supported from a limited property tax base.
maintaining proper control and is preserving a suitable
In response to these problems, the Superinten-
learning environment.²
dent and the Board of Education will give a high
To assist school districts in the development of
priority to urban education in 1972-73, and a task
such procedures, the Legislature instructed the
force will be appointed to focus on the needs of
State Board of Education, through the passage of
urban areas. In the coming year this group will do
Assembly Bill 2999 (now Education Code Section
the following:
161), to develop guidelines which districts may use
Document the need and problems of urban
in the evaluation of certificated personnel. These
education.
guidelines, which were adopted by the State Board
Identify the resources available to meet the
of Education, have been published and distributed
financial needs of urban programs.
to the school districts. 3
Determine the most reliable educational
In 1972-73 the Department will prepare a
strategies for working with pupils in urban
coordinated plan for inservice training which will
school districts.
be designed to improve teacher instructional capa-
Work to develop broad-based educational
bilities. This will emphasize the identification of
planning involving all appropriate agencies.
existing activities, a needs assessment, and a
comprehensive plan. This will be supplemented by
Analysis and Applicability of Testing Procedures
a thorough evaluation of the effect of the program.
California's two required statewide testing pro-
Urban Education
grams for public school pupils, which were dis-
cussed earlier in this report, are reading achieve-
The inner cities of urban areas are confronted
ment tests for grades one through three under the
with unique problems resulting from concentra-
Miller-Unruh Basic Reading Act of 1965 and the
tions of educationally disadvantaged pupils, an
scholastic aptitude and basic skills achievement
inordinate number of health and nutritional issues,
tests required under the California School Testing
Act of 1969. The objective of these acts is to
¹As a result of the passage of Assembly Bill 293, Education
provide the public, which invests $4 billion annu-
Code sections 13403, 13404-13410, 13412, and 13439 have been
ally in tax dollars in the public school system, with
amended; sections 13485-13489 have been added to the code; old
an overall assessment of the quality of school
sections 13413 and 13414 have been repealed, and new sections
have been added, using those same numbers; and sections
programs. Unfortunately, the existing testing
13415-13438 and 13440 have been repealed.
programs have done more to raise questions than
2 Education Code Section 13487. Sacramento: State of
to provide answers. The testing program (1) does
California, 1971.
little to indicate directions for program improve-
ments; (2) is insensitive to the differing goals and
3 California State Board of Education Guidelines for School
objectives of the instructional programs among
Districts to Use in Developing Procedures for Evaluating Certificated
districts; (3) is disproportionately expensive in
Personnel. Sacramento: California State Board of Education and the
State Department of Education, 1972.
comparison to the amount of information pro-
27
vided; and (4) discriminates against children with
approaches to follow in programs initiated under
special problems. Therefore, in 1972-73 a high
the Early Childhood Education Master Plan.
priority will be assigned the analysis and applica-
bility of testing procedures.
Master Plan for Special Education
As a preliminary step to solving the problems
Approximately 450,000 children in California are
inherent in this priority, an ad hoc advisory
participating in programs designed to serve the
committee of experts has been established to
physically handicapped, mentally gifted, and multi-
recommend changes that (1) will strengthen the
handicapped, mentally gifted, and multi-
existing system of testing; and (2) will rechannel
handicapped. The historical development of these
the efforts of the many involved into a diagnostic
programs has resulted in a myriad of laws, regula-
and prescriptive evaluation system which will be an
tions, and policies. The complex and confusing
aid to the improvement of educational programs.
nature of these provisions forms a roadblock to
This group will review the current testing require-
systematic program planning, implementation, and
ments and recommend alternative approaches
evaluation.
which will do the following:
To provide the best opportunity for all excep-
Provide the public with essential information
tional children to receive appropriate educational
about the quality of their schools.
opportunities, the Department is developing a
Yield information which can aid in program
master plan for special education. The goal of this
improvement.
plan will be to streamline, simplify, and reorder
Relate more directly to the objectives of
special educational programs through the improve-
instruction of individual school districts.
ment of program options. This plan will provide a
Provide greater flexibility in the administra-
program for dealing with the following:
tion of tests and use of results.
The unserved population. At present, approxi-
Reduce the overall cost of the program.
mately 50,000 pupils are on waiting lists for
the existing programs.
Improvement of Guidance
The need for systematic planning develop-
and Counseling Services
ment and evaluation. The overlap and con-
The complex problems of society present sig-
fusion among programs must be resolved.
nificant obstacles to the education of young adults.
The shortage of qualified personnel. A tre-
Because of the problems, these young people find
mendous shortage of classroom teachers exists
it difficult to answer important questions regarding
in certain special education programs, and a
career selection and academic preparation, inter-
similar shortage of support personnel, super-
personal relations, and personal goals. The first line
visors, psychologists, and therapists also
exists.
of assistance to students with questions regarding
these matters is the school guidance and counseling
The need for reform in the support system. A
program. However, existing approaches to student
system is required that will ensure adequate
problems are insufficient to cope with today's
support for programs while providing guaran-
tees for the wise use of resources.
needs.
Consequently, the Superintendent intends to
The changing program requirements. Modern
initiate in the Department of Education in 1972-73
practices and techniques require a rethinking
a program to revitalize school guidance and coun-
of the approaches used in these programs.
seling programs. Initial plans in this area include
During 1972-73 the Department will develop the
inservice training, a series of pilot projects to
master plan for special education in time for it to
improve career guidance, and a sequential career
be reviewed by the Legislature at its 1973 session.
guidance program, which will supplement the
The plan will include a system for the identifica-
Department's work on career education.
tion of pupils, model programs, personnel needs,
and financing.
Intermediate School Education
During 1972-73 the Department will make a
Programs to Prevent Conflicts on Junior High
comprehensive review of the status of educational
and High School Campuses
programs in grades four through eight in the school
In recent years the number of incidents of
districts of the state. The objective of this task will
violent conflict has been increasing among students
be to find the most appropriate instructional
on junior high and high school campuses. Many
28
incidents have resulted in bodily injury to students
Identify structural and program changes
and staff, interruption of the educational program
which are required to implement an effective
for extended periods, and damage to property. To
and coordinated attack on this problem.
date, however, no comparative examination has
Conservation Education
been made of the characteristics of schools where
such disturbances have occurred with similar
In recent years the public has become increas-
schools where they have not. Furthermore, no
ingly aware of its environmental problems. To
systematic method has been developed for the
solve these problems, educational programs must
state to provide assistance in the resolution of such
be provided in California schools which will help
problems.
the people develop the knowledge, skills, and
In 1972-73 the Superintendent will organize in
attitudes they need to conserve their natural
the Department a task force to examine the
resources and maintain a clean and healthful
characteristics of schools in which conflicts have
environment.
occurred with those in which conflicts have not
In 1972-73 the Department will be working to
occurred. In addition the group will work directly
improve student understanding of the environment
with school districts to solve those problems which
by doing the following:
have created or could create campus difficulties.
Improve teacher skills through a specially
Specific plans include:
designed training program.
Develop and utilize community resources
Work with a number of districts to prevent or
through comprehensive planning.
resolve conflicts and tension through on-site
Improve the quality of conservation educa-
assessment.
tion materials by working with concerned
Develop procedures to determine the ele-
groups.
ments which are effective in preventing inter-
Institute an evaluation system to determine
group conflict.
the effectiveness of local programs.
Other Areas of Interest in California Education, 1971-72
The State Department of Education was created
additional priorities will be given special attention
in 1921 for the purpose of carrying out "a wise,
in 1972-73; and these priorities were discussed in
intelligent, and constructive state educational
the preceding section of this annual report.
policy, based on a careful study of conditions and
However, even though the Department has been
needs and the best of administrative experience.'
giving major attention to nine priority areas in
In addition, the 1920 legislative committee which
education in 1971-72 and will be focusing atten-
recommended the creation of the Department said:
tion on seven more in 1972-73, it is not neglect-
It is also the business of the state to study the
ing its ongoing responsibilities nor other areas
changing conditions within the state, and the
of concern in education. The Superintendent,
educational needs of the state, and from time to time to
the Board, and the Department recognize that the
advance the minimum standards which it will permit. To
mark of a good organization is its ability to
do this intelligently, the Legislature, acting for the state,
maintain regular operations, to respond to the
needs advice based on careful study of conditions and
special needs of the times, and to make adjust-
needs, and this it should be the business of such a State
ments in its organizations so that it is pre-
Department of Education to supply. 2
pared to meet the demands of tomorrow. Thus,
This responsibility of the Department of
the organization should be responsive, accountable,
Education and its policy-making body, the State
and flexible.
Board of Education, has not changed since 1921.
Therefore, in addition to maintaining regular
They, along with the Superintendent of Public
operations and giving special attention to several
Instruction, still have the responsibility for pro-
priorities, the Superintendent, the Board, and the
viding the Legislature with good, sound advice
Department are responding to these concerns:
so that quality education is ensured for the citizens
Venereal disease education
of this state.
Early in 1971 the state's twenty-second
Field Act (earthquake standards for school
Superintendent took office and, with the State
buildings)
Board of Education, identified for the Depart-
Year-round school
ment of Education nine priorities, which were
Twelfth year of school
of paramount importance in meeting the educa-
Eighteen-year-old vote
tional needs of over 4.5 million students in
Administration-Teacher conflicts
California, grades one through twelve; the nine
Education Code revision
priorities were discussed in detail earlier in this
report. Late in 1971 the Superintendent and the
Free and reduced-cost food programs in the
Board identified seven more priorities which they
schools
believed should be included in the original list of
Textbook delivery
major educational concerns. Therefore, the seven
Report on positive accomplishments in the
schools
1 Report of the Special Legislative Committee on Education,
Authorized by Senate Concurrent Resolution No. 21 by the
The Department's ability to respond to these
Forty-third Session of the Legislature of California (popularly
and other areas of concern is often affected by the
known as the "Jones Report"). Sacramento: State of California,
number of people it has available to work on state
1920, p. 29.
supported or federally supported activities, as
2 Ibid., p. 30.
shown in Figure 3.
29
30
Federal
76%
264 Professional Man Years
State
24%
85 Professional
Man Years
1972-73
Professional Staff* Positions By Division
DIVISION
NUMBER OF POSITIONS
5
KEY:
5 Positions
Executive
35
State Funds
Departmental
Administration
Federal Funds
2
31
School Administration
and Finance
14
18.4
Instruction
156
21
Special Education
11
Compensatory
9.5
Education
46
*Professional Staff: consultants, field representatives, project specialists, and vocational education supervisors
Fig. 3. Federal and State Support for the Department of Education's Professional Staff, 1972-73
31
Venereal Disease Education
large district or a district with high assessed
Nationally, venereal disease is the second most
valuation to raise the tremendous amounts of
communicable disease in the country, outranked
revenue needed for construction. Even then the
only by respiratory disease. The disease is
burden falls on relatively few taxpayers during a
concentrated among the young, many of them high
short period of time when compared with the bond
school age or younger. A physician told the State
approach.
Board of Education last year that at the present
Year-round School
rate, one out of every two teenagers in 1980 will
By a year-round use of the school plant, an
have VD before leaving high school. Recently, the
estimated 25 percent more students can be
physician said, California accounted for one out of
accommodated than under the traditional nine
every six cases in the country.
months use. This increased use of facilities can lead
The Department has accelerated its effort in an
to capital outlay and textbook savings; however, it
attempt to find ways to stem this epidemic.
also can lead to accelerated plant depreciation of
Venereal disease education guidelines have been
existing facilities, and families may resist the
sent to administrators of all junior high and high
scheduling of vacations at unconventional times of
schools in the state. The Department of Education
the year.
also is working with the State Department of
Nationally, the evidence with respect to dollar
Public Health to conduct workshops on venereal
savings from the operation of year-round schools
disease education for teachers, administrators, and
is inconclusive and contradictory. Experiments in
members of local governing boards. Additional
Pennsylvania and Connecticut led to savings while
sources of funding and personnel are being sought
those in Georgia and Wisconsin actually had
to strengthen the Department's efforts in this
increased costs. As of July 1, 1971, several
critical area.
California school districts were experimenting with
year-round schools, but complete results are not
Field Act Impasse
available at this time.
As of January 1, 1971, a total of 1,700 school
Recently signed legislation for establishing
buildings in California did not meet the
additional pilot projects on year-round school
earthquake-safe standards of the Field Act. Those
operations in the state will increase the documenta-
buildings must be strengthened or abandoned by
tion on this approach. The legislation, Assembly
July 1, 1975. (See Section 15516 of the Education
Bill 331, was first introduced by Assemblywoman
Code.) To strengthen the buildings will cost
March K. Fong, and it now appears in the Education
between $650 million and $1 billion. To abandon
Code as sections 7475 through 7493.
them means placing more students into already
Referring to the four-quarter plan authorized
crowded facilities, possibly with double sessions.
under Assembly Bill 1971 from the 1968 legislative
If Proposition Number 2 on the June ballot of
session (Education Code Section 7495.11),
this year is passed, a $350 million bond would be
Hayward Unified School District has reported to
approved to help alleviate the situation. Of this
the Legislature that "the feasibility of the
bond money, $250 million would be used for
organizational plan and curriculum design of the
earthquake safety construction loans. But even
extended school year at an elementary level has
with the bond money, the Field Act and the school
been shown."
districts are headed on a collision course.
The Department will continue to watch these
Bond elections failed during 1970-71 at a rate of
national and state programs with interest. It may
75 percent. This was a result, in part, of the
well be that the year-round concept could assist
constitutional requirement of two-thirds voter
schools in satisfying the Field Act requirements.
approval. If the requirement had been a simple
Twelfth Year of School
majority, as it is with tax overrides, 76.7 percent of
the bond elections would have passed.
The senior year in high school is often
Tax overrides do not offer a viable alternative to
considered to be a wasted year in the educational
bond elections. By using tax overrides, it takes a
program. At many schools students spend this year
satisfying technical graduation requirements, which
leaves many of the students restless and bored.
3 Cracks in the Belfry. Prepared by the Bureau of School
Planning. Sacramento: California State Department of Education,
There has been discussion nationally on the need
1969, p. 11.
to make the senior year much more meaningful
32
and productive than it is now in most high schools
bearing on the problem (see Education Code
across the country. Among the options that have
sections 13080-13089).
been discussed are specialized career training and
courses given for college credit. Some California
Education Code Revision
schools are already offering their students such
The Department of Education believes the
courses.
fundamental design of the Education Code should
The State Department of Education is exploring
be permissive, not prescriptive. That is, the premise
these and other options for the seniors in high
should be that a school district governing board
school. The Department's findings may be useful in
should be free to take an action unless the
helping school districts adjust their programs to
Education Code specifically prohibits that action.
meet the needs of the times. In today's world
Presently, governing boards cannot take action
students of all ages are exposed to greater learning
unless the code specifically permits the action. This
opportunities earlier than was true when much of
greatly hampers flexibility, initiative, and
the educational coursework was first developed.
creativity. Ideally, the principal, teachers, students,
and parents at the school site should be the key
Eighteen-year-old Vote
decision makers in the educational process.
Eighteen-year-olds now have the right to vote.
This change in the law represents a new, vital
Free and Reduced-cost Food Programs
responsibility for the schools: to prepare these
in the Schools
young voters to exercise their newly acquired
An estimated 800,000 needy children attend
franchise.
California's public schools. In December, 1970, a
The Department will be exploring what
total of 396,506 children were receiving free or
assistance it can render statewide in helping schools
reduced-cost lunches. Through the use of federal
design curriculum to meet their students' needs as
and state funds, and with encouragement to school
voters. Among the considerations will be a set of
districts from a special Department food services
mutually derived nonpartisan guidelines for voter
task force, the number of children being served as
education.
of December, 1971, was 556,143. The task force
Administration-teacher Conflicts
hopes to move that figure closer to 725,000 in
1972-73.
On September 8, 1971, a total of 227 teachers
Through an auxiliary free or reduced-cost
of the Jefferson Elementary School District in
nutritious breakfast program, approximately
Daly City (San Mateo County) began a strike that
58,000 needy children are also being fed.
went on for over a month. At issue was a proposed
employment agreement. Upon request, the Depart-
Textbook Delivery
ment sent two observers to the scene of the strike.
Their assignment was not to determine who was
In the fall of 1971, state textbooks were sent to
right or wrong nor to act as negotiators; it was to
schools on time for the opening of school. This was
provide some neutral meeting ground, hopefully to
the first time this had occurred since 1914, when
clarify the issues and to begin steps toward a
elementary textbooks were first made available to
resolution of the problem.
the schools by the state.
The Superintendent had to release both staff
This textbook delivery was made possible
members from their full-time responsibilities in the
through advance planning and coordination with
Department to go to Daly City. The Department's
other agencies by managerial and clerical staffs and
flexibility in helping out in situations like this one
through the extraordinary efforts of 15 ware-
is, thus, limited. Yet, these conflicts may be on the
housemen putting in 1,087 hours of overtime.
increase for some time, and the need for help may
become even greater.
Report on Positive Accomplishments in the Schools
The Superintendent and the State Board of
While the most pressing problems in the schools
Education will be working to determine the needs
demand attention, the quieter, steadier, positive
and possibilities of establishing in the Department
programs that are going on continuously often go
a professional capability that can be of help in
unnoticed. There is much talk of failing bond
these conflicts. The Winton Act, the principal state
elections and campus conflicts; but there is too
statute governing school employer-employee
little recognition of the many very sound
relationships, also is being studied to determine its
educational programs going on.
33
One of the roles of a state education department
to expand that capability in 1972-73. By
should be to locate and applaud these positive
establishing an information dissemination capa-
efforts. The California State Department of
bility, the Department will be in a better position
Education has begun to establish within its
to provide the state with the information that is
organization the capability of serving the state as
needed to identify our educational system's strong
an educational information center; it will attempt
programs as well as its weaknesses.
71-80 3-72 300