THIRD READING  

Bill No: ACR 64

Author: McCarty (D), et al.

Amended: 4/25/19 in Assembly

Vote: 21

SENATE EDUCATION COMMITTEE: 7-0, 7/10/19

AYES: Leyva, Wilk, Chang, Durazo, Glazer, McGuire, Pan

SENATE APPROPRIATIONS COMMITTEE: 4-1, 8/30/19

AYES: Portantino, Bradford, Durazo, Hill

NOES: Jones

NO VOTE RECORDED: Bates, Wieckowski

ASSEMBLY FLOOR: Read and adopted, 6/6/19

SUBJECT: California State University and University of California: SAT and ACT

SOURCE: Author

DIGEST:

This resolution requests the Trustees of the California State University (CSU) and the Regents of the University of California (UC) to conduct a study on the usefulness, effectiveness, and need for the Scholastic Aptitude Test (SAT) and the American College Test (ACT) to determine student admissions, including the evaluation of specified matters and recommendations, and a plan, if determined to be necessary, for phasing out the use of the SAT and ACT as a basis for admission.

ANALYSIS:

Existing law:

1) Establishes UC, to be administered by the Board of Regents, with full powers of organization and government, subject only to such legislative control as may be necessary to insure the security of its funds and compliance with the terms of the endowments of the university and such competitive bidding procedures as may be made applicable to the university by statute for the letting of construction contracts, sales of real property, and purchasing of materials, goods, and services. (California Constitution Article IX, Section 9)

2) Establishes the CSU, governed by the Board of Trustees with respect to educational policy, finance, employee relations, campus planning, and facilities, among other areas. (Education Code § Section 89500, et seq.)

3) Imposes a number of requirements on test sponsors (defined as any individual, partnership, corporation, association, company, firm, institution, society, trust, or joint stock company) that develop, sponsor or administer standardized tests (defined as any test administered in California at the expense of the test subject and used for purposes of admission to, or class placement in, postsecondary institutions or their programs, or preliminary preparation for those tests). These requirements include specified reporting requirements, specified administration and financial data and information, technical psychometric data, test descriptions with specified information to be provided to test subjects, and other miscellaneous items. (EC § 99150, et seq.)

This resolution requests the Trustees of the CSU and the Regents of the UC to conduct a study on the usefulness, effectiveness, and need for the SAT and ACT to determine student admissions, including the evaluation of specified matters and recommendations, and a plan, if determined to be necessary, for phasing out the use of the SAT and ACT as a basis for admission. Specifically, this resolution:

1) Makes numerous declarations and findings, including:

a) The SAT tests reward costly test preparation rather than hard work and merit;

b) Wealthier students tend to do, on average, 400 points better than low-income students on the SAT;

c) Male students tend to receive much higher SAT math scores than female students, and slightly higher SAT writing scores than female students;

d) Students who generally do well in classes may test poorly in stressful conditions, such as testing to determine college entry;

e) The SAT emphasizes speed, quick recall, and time management over subject matter knowledge; and,

f) On average, White and Asian students do better than Black and Hispanic students.

2) Requests the Trustees of the CSU and the Regents of the UC conduct a study on the usefulness, effectiveness, and need for the SAT and ACT to determine student admissions.

3) Requests that the study include, but not be limited to, evaluation of norm-referenced versus criterion-referenced tests, test outcomes gaps based on ethnicity or income, test anxiety, test bias, and use of other multiple measures to determine student eligibility and qualifications such as Advanced Placement test results, International Baccalaureate (IB) test results, IB Diploma Programme completion, extracurricular activities, personal essays, teacher recommendations, submissions of creative works, and cumulative grade point average.

4) Requests that the study include recommendations and, if determined necessary, a plan for phasing out the use of the SAT and ACT as a basis for admission.

5) Requires the Chief Clerk of the Assembly to transmit copies of this resolution to the Trustees of the CSU, to the Regents of the UC, and to the author for appropriate distribution.

Comments

1. Need for the bill. According to the author, “recently, it was uncovered that wealthy parents are buying their children’s way into elite colleges and universities including two universities that are part of the University of California system. We all watched in complete disgust as the fraud committed in this recent college admissions scandal unfolded. California seems to be the epicenter of the national scandal as 25 of the 33 families in the initial indictment are from California, and 10 of the 17 corrupt coaches and university officials were based at California colleges and universities.

“This scandal not only undermines the public’s trust in the college admissions process, but it further perpetuates the opportunity gap in our college system. Equally disturbing is the fact that qualified California students were undoubtedly squeezed out and denied admission. For every student admitted through bribery and fraud, there was an honest and talented student that was rejected.

“The scandal also shed light on the many legal ways that wealth and social connections skew the college admissions process. This scandal, “Operation Varsity Blues,” and the subsequent investigation resulted in dozens of bribery and fraud charges against wealthy parents willing to break the law to get their children into an elite university, including fraudulent testing practices with the SAT and ACT tests.”

2) The Scholastic Aptitude Test (SAT). The SAT is a commonly administered college admissions exams.

The SAT includes a Reading Test, Writing and Language Test, and a Math Test. There is also an option SAT Essay. According to the College Board, “In the Reading Test, students will encounter questions like those asked in a lively, thoughtful, evidence-based discussion.” The Reading Test measures command of evidence, words in context, and analysis in History/Social Studies and in Science. The Writing and Language Test asks students “to be an editor and improve passages that were written especially for the test—and that include deliberate errors.” The Writing and Language Test also measures command of evidence, words in context, and analysis in History/Social Studies and in Science. Finally, the Math Test “covers a range of math practices, with an emphasis on problem solving, modeling, using tools strategically, and using algebraic structure.” The Math Test measures fluency, conceptual understanding, and applications. The redesigned SAT Essay “asks you to use your reading, analysis, and writing skills.” The SAT is a timed, paper exam.

3) The American College Test (ACT). According to the ACT, The ACT Exam “test scores reflect what students have learned throughout high school and provide colleges and universities with excellent information for recruiting, advising, placement, and retention.” The ACT contains four multiple-choice tests—English, mathematics, reading, and science—and an optional writing test. According to ACT, “these tests are designed to measure skills that are most important for success in postsecondary education and that are acquired in secondary education. The ACT English test measures understanding of the conventions of standard English, production of writing, and knowledge of language. The ACT mathematics test assesses the skills students typically acquire in courses taken through grade 11.

The ACT reading test measures reading comprehension. The ACT science test measures the interpretation, analysis, evaluation, reasoning, and problem-solving skills required in the natural sciences. The optional ACT writing test is an essay test that measures writing skills taught in high school English classes and entry level college composition courses.” The ACT is a timed, paper exam.

4) Test optional policy study. Defining Access: How Test-Optional Works, a 2018 study that offered data from 28 colleges and universities and 955,774 applicants over multi-year periods for each of those institutions, found that tests often fail to identify talented applicants who can succeed in higher education - and that applicants who opt not to submit scores are in many cases making wise decisions.

Among the findings from the sample studied:

a) The years following adoption of a test-optional policy saw increases in the total number of applications - by an average of 29 percent at private institutions and 11 percent at public institutions.

b) While the degrees varied, institutions that went test optional saw gains in the numbers of black and Latino students applying and being admitted to their institutions.

c) About one-fourth of all applicants to the test-optional colleges opted not to submit scores. (All of the colleges studied consider the SAT or ACT submitted by applicants.)

d) Underrepresented minority students were more likely than others to decide not to submit. Among black students, 35 percent opted not to submit, did not, while only 18 percent of white students did not submit. (Women were more likely than men to decide not to submit scores.)

e) "Non-submitters" (as the report termed those who didn't submit scores) were slightly less likely to be admitted to the colleges to which they applied, but their yield (the rates at which accepted applicants enroll) was higher.

f) First-year grades were slightly lower for non-submitters, but they ended up highly successful, graduating at equivalent rates or -- at some institutions -- slightly higher rates than did those who submitted test scores. This, the report says, is "the ultimate proof of success."

As noted by the Assembly Higher Education Committee, “More than 1,000 universities across the country, and nearly 100 higher education institutions in California, have adopted policies that either do not require test scores to be submitted, or have otherwise de-emphasized the use of standardized tests by making admissions decisions "test optional" or "test flexible." Nineteen of CSU’s 23 campuses are included in the list of 100 California institutions referenced above. These campuses have a policy that may require SAT/ACT scores, but only the scores are considered when minimum grade point average and/or class rank is not met.”

5) UC task force. The UC has formed the Standardized Testing Task Force to evaluate “whether the University and its students are best served by our current testing practices, a modification of our current practices, another testing approach altogether, or perhaps even no testing at all. The goal of the Task Force is to develop recommendations for implementation in UC undergraduate admissions…” The Task Force has been asked to focus on the following questions:

a) How well do the UC current standardized testing practices assess entering high school students for UC readiness?

b) How well do the UC current standardized practices predict student success in the context of our holistic, comprehensive review process?

c) Should UC testing practices be improved, changed or eliminated?

d) Do standardized testing assessments fairly promote diversity and opportunity for students applying to UC?

e) Does UC’s use of standardized tests enhance or detract from UC academic eligibility for high school students?

The scope of the Task Force is the full range of standardized tests used by UC for undergraduate admissions, but focus will likely be directed to SAT and ACT tests.

Related/Prior Legislation

AB 751 (O’Donnell, 2019) requires the Superintendent of Public Instruction to approve one or more nationally recognized high school assessments that a local education agency may, at its own discretion, administer in lieu of the grade 11 Smarter Balanced Summative Assessment, commencing with the 2021-22 school year. AB 751 is pending on the Senate floor.

FISCAL EFFECT: Appropriation: No Fiscal Com.: Yes Local: No

According to the Senate Appropriations Committee:

• “The CSU estimates one-time General Fund costs of about $1 million to conduct a valid and anti-bias study of the 23 campuses’ admission requirements and to include the parameters suggested by this measure. This cost is comparable to the cost of the most recent Higher Education Eligibility Study required by SB 103 (Committee on Budget and Fiscal Review, Chapter 324, Statutes of 2015), and includes the cost to retain an outside research firm.”
• “The UC indicates General Fund costs of approximately $250,000 to complete the study.”

SUPPORT: (Verified 8/29/19)

California Association for Bilingual Education
California Community Colleges Chancellor's Office
Public Advocates, Inc.
San Francisco Unified School District
The Education Trust—West
University of California Student Association

OPPOSITION: (Verified 8/29/19)

None received

Prepared by: Brandon Darnell / ED. /

8/31/19 11:33:38

**** END ****

SENATE COMMITTEE ON

Senator Anthony Portantino, Chair

2019 - 2020 Regular Session

ACR 64 (McCarty) - California State University and University of California: SAT and ACT

Bill Summary:

This resolution requests the Trustees of the California State University (CSU) and the Regents of the University of California (UC) to conduct a study on the usefulness, effectiveness, and need for the Scholastic Aptitude Test (SAT) and the American College Test (ACT) to determine student admissions, including the evaluation of specified matters and recommendations, and a plan, if determined to be necessary, for phasing out the use of the SAT and ACT as a basis for admission.

Fiscal Impact:

• The CSU estimates one-time General Fund costs of about $1 million to conduct a valid and anti-bias study of the 23 campuses’ admission requirements and to include the parameters suggested by this measure. This cost is comparable to the cost of the most recent Higher Education Eligibility Study required by SB 103 (Committee on Budget and Fiscal Review, Chapter 324, Statutes of 2015), and includes the cost to retain an outside research firm.
• The UC indicates General Fund costs of approximately $250,000 to complete the study.

Background:

The SAT is a commonly administered college admissions exams. The SAT includes a Reading Test, Writing and Language Test, and a Math Test. There is also an option SAT Essay. According to the College Board, “In the Reading Test, students will encounter questions like those asked in a lively, thoughtful, evidence-based discussion.” The Reading Test measures command of evidence, words in context, and analysis in History/Social Studies and in Science. The Writing and Language Test asks students “to be an editor and improve passages that were written especially for the test—and that include deliberate errors.” The Writing and Language Test also measures command of evidence, words in context, and analysis in History/Social Studies and in Science. Finally, the Math Test “covers a range of math practices, with an emphasis on problem solving, modeling, using tools strategically, and using algebraic structure.” The Math Test measures fluency, conceptual understanding, and applications. The redesigned SAT Essay “asks you to use your reading, analysis, and writing skills.” The SAT is a timed, paper exam.

The ACT Exam is intended to reflect what students have learned throughout high school and provide colleges and universities with information for recruiting, advising, placement, and retention. The ACT contains four multiple-choice tests—English, mathematics, reading, and science—and an optional writing test. According to ACT, “these tests are designed to measure skills that are most important for success in postsecondary education and that are acquired in secondary education. The ACT English test measures understanding of the conventions of standard English, production of writing, and knowledge of language. The ACT mathematics test assesses the skills students typically acquire in courses taken through grade 11.

The ACT reading test measures reading comprehension. The ACT science test measures the interpretation, analysis, evaluation, reasoning, and problem-solving skills required in the natural sciences. The optional ACT writing test is an essay test that measures writing skills taught in high school English classes and entry level college composition courses. The ACT is a timed, paper exam.

Proposed Law:

This bill requests the Trustees of the CSU and the Regents of the UC conduct a study on the usefulness, effectiveness, and need for the SAT and ACT to determine student admissions. The study shall include, but not be limited to, evaluation of norm-referenced versus criterion-referenced tests, test outcomes gaps based on ethnicity or income, test anxiety, test bias, and use of other multiple measures to determine student eligibility and qualifications such as Advanced Placement test results, International Baccalaureate (IB) test results, IB Diploma Programme completion, extracurricular activities, personal essays, teacher recommendations, submissions of creative works, and cumulative grade point average.

This bill requests that the study include recommendations and, if determined necessary, a plan for phasing out the use of the SAT and ACT as a basis for admission.

This bill requires the Chief Clerk of the Assembly to transmit copies of this resolution to the Trustees of the CSU, to the Regents of the UC, and to the author for appropriate distribution.

Related Legislation:

AB 751 (O’Donnell, 2019) requires the Superintendent of Public Instruction to approve one or more nationally recognized high school assessments that a local education agency may, at its own discretion, administer in lieu of the grade 11 Smarter Balanced Summative Assessment, commencing with the 2021-22 school year. AB 751 is scheduled to be heard by this Committee on August 12, 2019.

Staff Comments: The UC has formed the Standardized Testing Task Force to evaluate “whether the University and its students are best served by our current testing practices, a modification of our current practices, another testing approach altogether, or perhaps even no testing at all. The goal of the Task Force is to develop recommendations for implementation in UC undergraduate admissions…”

-- END --

SENATE COMMITTEE ON EDUCATION

Senator Connie Leyva, Chair

2019 - 2020 Regular

Bill No: ACR 64 Hearing Date: July 10, 2019

Subject: California State University and University of California: SAT and ACT

SUMMARY

This resolution requests the Trustees of the California State University (CSU) and the Regents of the University of California (UC) to conduct a study on the usefulness, effectiveness, and need for the Scholastic Aptitude Test (SAT) and the American College Test (ACT) to determine student admissions, including the evaluation of specified matters and recommendations, and a plan, if determined to be necessary, for phasing out the use of the SAT and ACT as a basis for admission.

BACKGROUND

1) Establishes UC, to be administered by the Board of Regents, with full powers of organization and government, subject only to such legislative control as may be necessary to insure the security of its funds and compliance with the terms of the endowments of the university and such competitive bidding procedures as may be made applicable to the university by statute for the letting of construction contracts, sales of real property, and purchasing of materials, goods, and services. (California Constitution Article IX, Section 9)

2) Establishes the CSU, governed by the Board of Trustees with respect to educational policy, finance, employee relations, campus planning, and facilities, among other areas. (Education Code § Section 89500, et seq.)

3) Imposes a number of requirements on test sponsors (defined as any individual, partnership, corporation, association, company, firm, institution, society, trust, or joint stock company) that develop, sponsor or administer standardized tests (defined as any test administered in California at the expense of the test subject and used for purposes of admission to, or class placement in, postsecondary institutions or their programs, or preliminary preparation for those tests). These requirements include specified reporting requirements, specified administration and financial data and information, technical psychometric data, test descriptions with specified information to be provided to test subjects, and other miscellaneous items. (EC § 99150, et seq.)

ANALYSIS

This resolution requests the Trustees of the CSU and the Regents of the UC to conduct a study on the usefulness, effectiveness, and need for the SAT and ACT to determine student admissions, including the evaluation of specified matters and recommendations, and a plan, if determined to be necessary, for phasing out the use of the SAT and ACT as a basis for admission. Specifically, this resolution:

1) Makes numerous declarations and findings, including:

a) The SAT tests reward costly test preparation rather than hard work and merit;

b) Wealthier students tend to do, on average, 400 points better than low-income students on the SAT;

c) Male students tend to receive much higher SAT math scores than female students, and slightly higher SAT writing scores than female students;

d) Students who generally do well in classes may test poorly in stressful conditions, such as testing to determine college entry;

e) The SAT emphasizes speed, quick recall, and time management over subject matter knowledge; and,

f) On average, White and Asian students do better than Black and Hispanic students.

2) Requests the Trustees of the CSU and the Regents of the UC conduct a study on the usefulness, effectiveness, and need for the SAT and ACT to determine student admissions.

3) Requests that the study include, but not be limited to, evaluation of norm-referenced versus criterion-referenced tests, test outcomes gaps based on ethnicity or income, test anxiety, test bias, and use of other multiple measures to determine student eligibility and qualifications such as Advanced Placement test results, International Baccalaureate (IB) test results, IB Diploma Programme completion, extracurricular activities, personal essays, teacher recommendations, submissions of creative works, and cumulative grade point average.

4) Requests that the study include recommendations and, if determined necessary, a plan for phasing out the use of the SAT and ACT as a basis for admission.

5) Requires the Chief Clerk of the Assembly to transmit copies of this resolution to the Trustees of the CSU, to the Regents of the UC, and to the author for appropriate distribution.

STAFF COMMENTS

1. Need for the bill. According to the author, “recently, it was uncovered that wealthy parents are buying their children’s way into elite colleges and universities including two universities that are part of the University of California system. We all watched in complete disgust as the fraud committed in this recent college admissions scandal unfolded. California seems to be the epicenter of the national scandal as 25 of the 33 families in the initial indictment are from California, and 10 of the 17 corrupt coaches and university officials were based at California colleges and universities.

This scandal not only undermines the public’s trust in the college admissions process, but it further perpetuates the opportunity gap in our college system. Equally disturbing is the fact that qualified California students were undoubtedly squeezed out and denied admission. For every student admitted through bribery and fraud, there was an honest and talented student that was rejected.

The scandal also shed light on the many legal ways that wealth and social connections skew the college admissions process. This scandal, “Operation Varsity Blues,” and the subsequent investigation resulted in dozens of bribery and fraud charges against wealthy parents willing to break the law to get their children into an elite university, including fraudulent testing practices with the SAT and ACT tests.”

2) The Scholastic Aptitude Test (SAT). The SAT is a commonly administered college admissions exams.

The SAT includes a Reading Test, Writing and Language Test, and a Math Test. There is also an option SAT Essay. According to the College Board, “In the Reading Test, students will encounter questions like those asked in a lively, thoughtful, evidence-based discussion.” The Reading Test measures command of evidence, words in context, and analysis in History/Social Studies and in Science. The Writing and Language Test asks students “to be an editor and improve passages that were written especially for the test—and that include deliberate errors.” The Writing and Language Test also measures command of evidence, words in context, and analysis in History/Social Studies and in Science. Finally, the Math Test “covers a range of math practices, with an emphasis on problem solving, modeling, using tools strategically, and using algebraic structure.” The Math Test measures fluency, conceptual understanding, and applications. The redesigned SAT Essay “asks you to use your reading, analysis, and writing skills.” The SAT is a timed, paper exam.

3) The American College Test (ACT). According to the ACT, The ACT Exam “test scores reflect what students have learned throughout high school and provide colleges and universities with excellent information for recruiting, advising, placement, and retention.” The ACT contains four multiple-choice tests—English, mathematics, reading, and science—and an optional writing test. According to ACT, “these tests are designed to measure skills that are most important for success in postsecondary education and that are acquired in secondary education. The ACT English test measures understanding of the conventions of standard English, production of writing, and knowledge of language. The ACT mathematics test assesses the skills students typically acquire in courses taken through grade 11.

The ACT reading test measures reading comprehension. The ACT science test measures the interpretation, analysis, evaluation, reasoning, and problem-solving skills required in the natural sciences. The optional ACT writing test is an essay test that measures writing skills taught in high school English classes and entry level college composition courses.” The ACT is a timed, paper exam.

4) Test optional policy study. Defining Access: How Test-Optional Works, a 2018 study that offered data from 28 colleges and universities and 955,774 applicants over multi-year periods for each of those institutions, found that tests often fail to identify talented applicants who can succeed in higher education - and that applicants who opt not to submit scores are in many cases making wise decisions.

Among the findings from the sample studied:

a) The years following adoption of a test-optional policy saw increases in the total number of applications - by an average of 29 percent at private institutions and 11 percent at public institutions.

b) While the degrees varied, institutions that went test optional saw gains in the numbers of black and Latino students applying and being admitted to their institutions.

c) About one-fourth of all applicants to the test-optional colleges opted not to submit scores. (All of the colleges studied consider the SAT or ACT submitted by applicants.)

d) Underrepresented minority students were more likely than others to decide not to submit. Among black students, 35 percent opted not to submit, did not, while only 18 percent of white students did not submit. (Women were more likely than men to decide not to submit scores.)

e) "Non-submitters" (as the report termed those who didn't submit scores) were slightly less likely to be admitted to the colleges to which they applied, but their yield (the rates at which accepted applicants enroll) was higher.

f) First-year grades were slightly lower for non-submitters, but they ended up highly successful, graduating at equivalent rates or -- at some institutions -- slightly higher rates than did those who submitted test scores. This, the report says, is "the ultimate proof of success."

As noted by the Assembly Higher Education Committee, “More than 1,000 universities across the country, and nearly 100 higher education institutions in California, have adopted policies that either do not require test scores to be submitted, or have otherwise de-emphasized the use of standardized tests by making admissions decisions "test optional" or "test flexible." Nineteen of CSU’s 23 campuses are included in the list of 100 California institutions referenced above. These campuses have a policy that may require SAT/ACT scores, but only the scores are considered when minimum grade point average and/or class rank is not met.”

5) UC task force. The UC has formed the Standardized Testing Task Force to evaluate “whether the University and its students are best served by our current testing practices, a modification of our current practices, another testing approach altogether, or perhaps even no testing at all. The goal of the Task Force is to develop recommendations for implementation in UC undergraduate admissions…” The Task Force has been asked to focus on the following questions:

a) How well do the UC current standardized testing practices assess entering high school students for UC readiness?

b) How well do the UC current standardized practices predict student success in the context of our holistic, comprehensive review process?

c) Should UC testing practices be improved, changed or eliminated?

d) Do standardized testing assessments fairly promote diversity and opportunity for students applying to UC?

e) Does UC’s use of standardized tests enhance or detract from UC academic eligibility for high school students?

The scope of the Task Force is the full range of standardized tests used by UC for undergraduate admissions, but focus will likely be directed to SAT and ACT tests. The committee may wish to consider whether this resolution is premature, given the UC’s task force.

6) Related legislation. AB 751 (O’Donnell, 2019) requires the Superintendent of Public Instruction to approve one or more nationally recognized high school assessments that a local education agency may, at its own discretion, administer in lieu of the grade 11 Smarter Balanced Summative Assessment, commencing with the 2021-22 school year. AB 751 is pending in the Senate Appropriations Committee.

SUPPORT

Public Advocates

San Francisco Unified School District

OPPOSITION

None received

-- END --

ASSEMBLY THIRD READING

ATR Bill Id:ACR 64

Author:(McCarty)

As Amended Ver:April 25, 2019

Majority vote

SUMMARY:

Requests the Trustees of the California State University (CSU) and the Regents of the University of California (UC) to conduct a study on the usefulness, effectiveness, and need for the SAT and ACT to determine student admissions, including evaluation of specified matters and recommendations and a plan for phasing out the use of the SAT and ACT as a basis for admission.

Major Provisions

Makes numerous declarations and findings, including: 1) The SAT tests reward costly test preparation rather than hard work and merit; 2) Wealthier students tend to do, on average, 400 points better than low-income students on the SAT; 3) Male students tend to receive much higher SAT math scores than female students, and slightly higher SAT writing scores than female students; 4) Students who generally do well in classes may test poorly in stressful conditions, such as testing to determine college entry; 5) The SAT emphasizes speed, quick recall, and time management over subject matter knowledge; and, 6) On average, White and Asian students do better than Black and Hispanic students.

Requests the Trustees of the CSU and the Regents of the UC conduct a study on the usefulness, effectiveness, and need for the SAT and ACT to determine student admissions. Requests that the study include, but not be limited to, evaluation of norm-referenced versus criterion-referenced tests, test outcomes gaps based on ethnicity or income, test anxiety, test bias, and use of other multiple measures to determine student eligibility and qualifications such as Advanced Placement test results, International Baccalaureate (IB) test results, IB Diploma Program completion, extracurricular activities, personal essays, teacher recommendations, submissions of creative works, and cumulative grade point average.

Requests that the study include recommendations and a plan, if deemed necessary, for phasing out the use of the SAT and ACT as a basis for admission.

COMMENTS:

More than 1,000 universities across the country, and nearly 100 higher education institutions in California, have adopted policies that either do not require test scores to be submitted, or have otherwise de-emphasized the use of standardized tests by making admissions decisions "test optional" or "test flexible."

Nineteen of CSU's 23 campuses are included in the list of 100 California institutions referenced above. These campuses have a policy that may require SAT/ACT scores, but only the scores are considered when minimum grade point average and/or class rank is not met.

The California Community Colleges (CCC) have an open admissions standard, and no standardized test scores are required for admission. CCC Chancellor Eloy Ortiz Oakley, also a member of UC Board of Regents, was quoted by the Los Angeles Times as saying that tests like SAT and ACT are "…more of a measure of wealth than it is of preparedness…it has created a whole industry around test prep, and it really does nothing to help a university determine who is the best applicant - so I think it should just be gone."

According to the Author:

According to the author, "…recently, it was uncovered that wealthy parents are buying their children's way into elite colleges and universities including two universities that are part of the University of California system. We all watched in complete disgust as the fraud committed in this recent college admissions scandal unfolded. California seems to be the epicenter of the national scandal as 25 of the 33 families in the initial indictment are from California, and 10 of the 17 corrupt coaches and university officials were based at California colleges and universities."

"This scandal not only undermines the public's trust in the college admissions process, but it further perpetuates the opportunity gap in our college system…the scandal also shed light on the many legal ways that wealth and social connections skew the college admissions process…the 'Operation Varsity Blues' investigation resulted in dozens of bribery and fraud charges against wealthy parents willing to break the law to get their children into an elite university, specifically with regard to SAT and ACT testing fraud."

"This Assembly Concurrent Resolution will request the Trustees of the CSU and the Regents of the UC to conduct a study on the effectiveness, usefulness and need of the SAT and the ACT to determine student admissions to their respective systems."

Arguments in Support:

None on file.

Arguments in Opposition:

None on file.

FISCAL COMMENTS:

The Assembly Appropriations Committee notes one-time General Fund costs in the hundreds of thousands of dollars for the study. To the extent a current study underway by the UC would fulfill some of the bill's requirements, costs would be lower.

VOTES:

ASM HIGHER EDUCATION: 9-1-2

YES: Medina, Quirk, Bloom, Gabriel, Irwin, Levine, Low, Santiago, Weber

NO: Choi

ABS, ABST OR NV: Kiley, Patterson

ASM APPROPRIATIONS: 13-3-2

YES: Gonzalez, Bloom, Bonta, Calderon, Carrillo, Chau, Eggman, Gabriel, Eduardo Garcia, Maienschein, Petrie-Norris, Quirk, Robert Rivas

NO: Bigelow, Brough, Obernolte

ABS, ABST OR NV: Diep, Fong

UPDATED:

VERSION: April 25, 2019

CONSULTANT: Kevin J. Powers / HIGHER ED. / (916) 319-3960 FN: 0000762

Date of Hearing: May 8, 2019

ASSEMBLY COMMITTEE ON APPROPRIATIONS

Lorena Gonzalez, Chair

ABPCA Bill Id:ACR 64

Author:(McCarty) – As Amended Ver:April 25, 2019

Urgency: State Mandated Local Program: Reimbursable: No

SUMMARY:

This measure requests the California State University Trustees and the University of California regents to conduct a study on the usefulness, effectiveness and need for the SAT and ACT to determine student admissions. The measure also requires the study to include recommendations and, if determined necessary, a plan for phasing out the use of the SAT and ACT as a basis for admission.

FISCAL EFFECT:

One-time General Fund costs in the hundreds of thousands of dollars for the study. To the extent a current study underway by the UC would fulfill some of the bill’s requirements (described below), costs would be lower.

COMMENTS:

1. Background. The SAT and ACT exams are standardized tests many students take as they prepare their college applications because many colleges consider scores on the tests in their admissions decisions. Recently, some colleges in other states have stopped considering the tests in their admissions decisions.

California’s higher education segments have begun to study the efficacy of standardized testing as a requirement for admission. In September of 2018, UC faculty leaders announced they were commissioning a study to determine whether SAT and ACT tests accurately predict college success.

1. Related Legislation. AB 697 (Ting), of this session, requires a postsecondary educational institution to report information about admissions of applicants with a relationship to a donor or alumni of the institution. This bill is pending before this committee.

AB 751 (O’Donnell), of this session, allows high schools to administer the SAT or ACT in lieu of the state’s grade 11 standardized tests. The bill is on this committee’s Suspense File.

AB 1383 (McCarty), of this session, establishes a process for the UC and the CSU to use in granting “admissions by exception.” The bill is pending before this committee.

Analysis Prepared by: Natasha Collins / APPR. / (916) 319-2081

Date of Hearing: April 23, 2019

ASSEMBLY COMMITTEE ON HIGHER EDUCATION

Jose Medina, Chair

ABPCA Bill Id:ACR 64 (

Author:McCarty) – As Introduced Ver:April 2, 2019

SUBJECT: California State University and University of California: SAT and ACT

SUMMARY: Requests the Trustees of the California State University (CSU) and the Regents of the University of California (UC) to conduct a study on the usefulness, effectiveness, and need for the SAT and ACT to determine student admissions, including evaluation of specified matters and recommendations and a plan for phasing out the use of the SAT and ACT as a basis for admission. Specifically, this bill:

1. Makes numerous declarations and findings, including:
2. The SAT tests reward costly test preparation rather than hard work and merit;
3. Wealthier students tend to do, on average, 400 points better than low-income students on the SAT;
4. Male students tend to receive much higher SAT math scores than female students, and slightly higher SAT writing scores than female students;
5. Students who generally do well in classes may test poorly in stressful conditions, such as testing to determine college entry;
6. The SAT emphasizes speed, quick recall, and time management over subject matter knowledge; and,
7. On average, White and Asian students do better than Black and Hispanic students.
8. Requests the Trustees of the CSU and the Regents of the UC conduct a study on the usefulness, effectiveness, and need for the SAT and ACT to determine student admissions.
9. Requests that the study include, but not be limited to, evaluation of norm-referenced versus criterion-referenced tests, test outcomes gaps based on ethnicity or income, test anxiety, test bias, and use of other multiple measures to determine student eligibility and qualifications such as Advanced Placement test results, International Baccalaureate (IB) test results, IB Diploma Programme completion, extracurricular activities, personal essays, teacher recommendations, submissions of creative works, and cumulative grade point average.
10. Requests that the study include recommendations and a plan for phasing out the use of the SAT and ACT as a basis for admission.
11. Requires the Chief Clerk of the Assembly to transmit copies of this resolution to the Trustees of the CSU, to the Regents of the UC, and to the author for appropriate distribution.

EXISTING LAW:

1. Establishes UC, to be administered by the Board of Regents, with full powers of organization and government, subject only to such legislative control as may be necessary to insure the security of its funds and compliance with the terms of the endowments of the university and such competitive bidding procedures as may be made applicable to the university by statute for the letting of construction contracts, sales of real property, and purchasing of materials, goods, and services. (California Constitution Article IX, Section 9)
2. Establishes the CSU, governed by the Board of Trustees with respect to educational policy, finance, employee relations, campus planning, and facilities, among other areas. (Education Code (EDC) Section 89500, et seq.)
3. Imposes a number of requirements on test sponsors (defined as any individual, partnership, corporation, association, company, firm, institution, society, trust, or joint stock company) that develop, sponsor or administer standardized tests (defined as any test administered in California at the expense of the test subject and used for purposes of admission to, or class placement in, postsecondary institutions or their programs, or preliminary preparation for those tests). These requirements include specified reporting requirements, specified administration and financial data and information, technical psychometric data, test descriptions with specified information to be provided to test subjects, and other miscellaneous items. (EDC Section 99150 et seq.)

FISCAL EFFECT: Unknown.

COMMENTS: Need for the bill. According to the author, “…recently, it was uncovered that wealthy parents are buying their children’s way into elite colleges and universities including two universities that are part of the University of California system. We all watched in complete disgust as the fraud committed in this recent college admissions scandal unfolded. California seems to be the epicenter of the national scandal as 25 of the 33 families in the initial indictment are from California, and 10 of the 17 corrupt coaches and university officials were based at California colleges and universities.”

“This scandal not only undermines the public’s trust in the college admissions process, but it further perpetuates the opportunity gap in our college system…the scandal also shed light on the many legal ways that wealth and social connections skew the college admissions process…the ‘Operation Varsity Blues’ investigation resulted in dozens of bribery and fraud charges against wealthy parents willing to break the law to get their children into an elite university, specifically with regard to SAT and ACT testing fraud.”

“This Assembly Concurrent Resolution will request the Trustees of the CSU and the Regents of the UC to conduct a study on the effectiveness, usefulness and need of the SAT and the ACT to determine student admissions to their respective systems.”

SAT and ACT Exams. The SAT and ACT exams are the two standardized tests referenced in ACR 64. The SAT exam - owned, developed, and published by the nonprofit College Board - was established in 1926 and is typically taken by high school juniors and seniors. The ACT exam – owned, developed, and published by ACT, Inc. – was introduced in 1959 as a competitor to the SAT exam, and serves the same student population. More than two million students in the class of 2018 took the SAT, while ACT had 1.9 million test-takers. Many students take both exams as they prepare their college application.

Standardized testing questions. California’s higher education segments have already begun to study the efficacy of standardized testing as a requirement for admission. In September of 2018 UC faculty leaders announced that they would launch a study aimed at finding out whether SAT and ACT tests accurately predict college success.

This decision to study SAT and ACT testing followed the April 2018 release of Defining Access: How Test-Optional Works, a study that offered data from 28 colleges and universities and 955,774 applicants over multi-year periods for each of those institutions. The study found that tests often fail to identify talented applicants who can succeed in higher education - and that applicants who opt not to submit scores are in many cases making wise decisions.

Among the findings from the sample studied:

The years following adoption of a test-optional policy saw increases in the total number of applications - by an average of 29% at private institutions and 11% at public institutions.

1. While the degrees varied, institutions that went test optional saw gains in the numbers of black and Latino students applying and being admitted to their institutions.
2. About one-fourth of all applicants to the test-optional colleges opted not to submit scores. (All of the colleges studied consider the SAT or ACT submitted by applicants.)
3. Underrepresented minority students were more likely than others to decide not to submit. Among black students, 35 percent opted not to submit, did not, while only 18 percent of white students did not submit. (Women were more likely than men to decide not to submit scores.)
4. "Non-submitters" (as the report termed those who didn't submit scores) were slightly less likely to be admitted to the colleges to which they applied, but their yield (the rates at which accepted applicants enroll) was higher.
5. First-year grades were slightly lower for non-submitters, but they ended up highly successful, graduating at equivalent rates or -- at some institutions -- slightly higher rates than did those who submitted test scores. This, the report says, is "the ultimate proof of success."

More than 1,000 universities across the country, and nearly 100 higher education institutions in California, have adopted policies that either do not require test scores to be submitted, or have otherwise de-emphasized the use of standardized tests by making admissions decisions "test optional" or "test flexible."

Nineteen of CSU’s 23 campuses are included in the list of 100 California institutions referenced above. These campuses have a policy that may require SAT/ACT scores, but only the scores are considered when minimum grade point average and/or class rank is not met.

The California Community Colleges (CCC) have an open admissions standard, and no standardized test scores are required for admission. CCC Chancellor Eloy Ortiz Oakley, also a member of UC Board of Regents, was quoted by the Los Angeles Times as saying that tests like SAT and ACT are “…more of a measure of wealth than it is of preparedness…it has created a whole industry around test prep, and it really does nothing to help a university determine who is the best applicant - so I think it should just be gone.”

Background on Admissions. In 1960, California adopted a unique framework document – the Master Plan for Higher Education - intended to guide the state through the ensuing decades of intense demand for college education. The original 1960 Master Plan report and subsequent reviews are not themselves in state law. Instead, they are reports that were commissioned by the Legislature.

Many significant principles expressed by the Master Plan, however, have been adopted in statute. The Donahoe Higher Education Act (1960) codified many Master Plan recommendations, such as defining the distinct missions of the three public segments, establishing a Board of Trustees for CSU, and creating a coordinating council for higher education. Significant principles from the original Master Plan remain uncodified, however, including the eligibility targets for admission to UC and CSU. These eligibility policies require UC and CSU to admit freshmen students from among the top 12.5 percent and 33 percent, respectively, of the state’s high school graduates.

Committee Comments. Moving forward, the author may wish to expand upon many of the “Whereas” clauses in ACR 64. Additional detail will help to better justify why a review of the SAT and ACT is necessary – even as the segments seem to already be studying their testing policies or enacting admissions standards that deemphasize standardized tests.

The committee recommends, and the author has agreed, to amend the bill to read, “Resolved, That the study should additionally include recommendations and, if deemed necessary, a plan for phasing out the use of the SAT and ACT as a basis for admission.” Due to time constraints, these amendments will be processed in the Assembly Appropriations Committee.

Related legislation. AB 697 (Ting), also on today’s committee agenda, prohibits a postsecondary educational institution from participating in the Cal Grant program if the institution provides preferential treatment in admissions to an applicant with a relationship to a donor or alumni of the institution.

AB 1383 (McCarty), also on today’s committee agenda, establishes a process for the UC and the CSU to use in granting admissions by exception.

REGISTERED SUPPORT / OPPOSITION:

Support

None on file.

Opposition

None on file.

Analysis Prepared by: Kevin J. Powers / HIGHER ED. / (916) 319-3960