In a major reversal, Chicago Public Schools on Monday said it will administer a controversial new standardized test to all 230,000 eligible students in the coming days.
The decision was made under pressure from state education officials who said millions of dollars of funding would be withheld if the district spurned a federal mandate to administer the Partnership for Assessment of Readiness for College and Careers (PARCCC) exams to all eligible students. The district in January said it would give the test in only about 10 percent of schools.
On Friday, state education officials told the district they were not backing down in demands the test be given to all eligible students. A district spokesman said the district window to begin testing opens March 9.
"There are huge, huge financial sanctions that have been very clearly delineated to us," CPS CEO Barbara Byrd-Bennett told reporters Monday. "It would be irresponsible for me to even put us in that position of danger, of losing the funds, given our financial conditions now."
"I continue to personally and professionally believe that to administer PARCC this year is absolutely not in the best interests of our students," Byrd-Bennett said. "However, given the threat from (the Illinois State Board of Education), there is absolutely no choice that I can present to this board and to our community."
Statewide, almost 1.1 million students in third through eighth grades, as well as some high school students, are expected to take the exams, with about 75 percent taking computer-based tests. About 280,000 students are expected to take the paper-and-pencil test.
CPS drew national attention in January when it announced it would not give the assessment to most schools, which it said was necessary because of a lack of technology needed for the computer-driven exam.
Instead, the district began an effort to administer the test to just 66 of its more than 600 schools. All schools were still told to prepare for the test, while a district spokesman insisted through late last week that CPS was still pursuing the limited roll-out.
But at a sometimes heated hearing in Springfield last week, a CPS official said all but about two dozen schools have the technology to give the computer-based test.
Still, CPS accountability officer John Barker told lawmakers: "We feel like the implementation of PARCC for this year is going to be extremely problematic for our district and others across the state."
Parent groups and the Chicago Teachers Union have opposed the exam, amid broad debate over rigorous Common Core educational standards and so-called high-stakes testing.
"It's going to be a mess, no, it's going to be a disaster," Chicago Teachers Union Vice-President Jesse Sharkey predicted for the test's implementation.
The union is urging parents to have their children skip the exam.
"My advice to parents is, in your school, your teacher is being forced to work in a testing factory. But in your teacher's heart, that's not what they want to do You should do both your kid and your kid's teacher a favor and take them out of this dumb test," he said, encouraging parents to send principals a letter saying their students would sit out the exam.
Wendy Katten, director of the Raise Your Hand parent group that opposes the test, promised many parents would keep their students from taking the exam.
"We won't be bullied by state education agencies, or the Department of Education into forcing our kids to take a test that is not ready, has major technical glitches, and is two years above average reading level. No state has ever lost federal funding due to student opt-outs," Katten said.
"While we are not that surprised that CPS has caved to these threats, the timing is horrible, and CPS should be offering a refusal policy for students and parents," she said. "Either way, we'll be sharing test refusal information with parents all week."
Byrd-Bennett said it would soon issue testing guidelines to schools.
"We're going to encourage our students to participate," she said. "Without specific guidelines from ISBE on this issue, we put the burden of that (opt-out) decision on an 8-year-old, on a 10-year-old. And that's pretty unfair. So we are going to have to guide our parents and our students in the very best way that we can."
CPS' reversal came after an exchange of letters last week between the district and the Illinois State Board of Education, with CPS for the first time quantifying the heavy losses that could be incurred if the state penalized the district for not testing.
For example, CPS officials wrote that more than 1,500 teaching positions could be eliminated if the state wiped away some $300 million in Title 1 funding for schools with high poverty populations, and $100 million for special education programs.
Also at risk would be $1-billion in general state aid - the main state funding source for schools - which "would jeopardize our ability to fund thousands of teaching and instructional support positions as well as our ability to pay our pension obligations," according to the Feb. 24 letter written by Byrd-Bennett and Chicago Board of Education President David Vitale.
In the letter, CPS officials asked the state to "strongly consider" allowing the district to test only a 10 percent sample of schools rather than all students in 3rd through 8th grade and some in high school, as required by federal law.
CPS said its primary concern about administering the test was that the testing would essentially "measure our students' ability to navigate the PARCC software and not their content knowledge" of standards that children need to know.
That echoes the refrain from dozens of other districts that have switched to giving the test in paper and pencil.
In a strongly-worded response Feb. 27 from the state board of education, officials made clear that, "the board simply does not have authority to permit school districts to violate state and federal law."
If CPS fails to test students, it could not only lose Title 1 and special education funding, but could immediately be placed on probation - a step that could lead to yanking general state aid dollars, wrote State School Supt. Christopher Koch and state board chairman James Meeks.
"Please be clear that loss of these funds is entirely within the control of CPS," the letter stated. "If CPS administers the PARCC assessment, like every other district within the state, it will not be sanctioned in this way.
We know that the Chicago Board of Education will do the right thing for the students of the district and will administer the PARCC assessment."
With the main spring testing season just days away, hundreds of Illinois schools are eschewing the PARCC computer exams that include videos, drop-down menus, drag-and-drop exercises and other online functions, adding to the brewing controversy over state testing here and across the country.
In Illinois, about 1 in 4 students are expected to take paper-and-pencil exams beginning this week in some districts and March 9 in most others, according to the Illinois State Board of Education. A handful of year-round schools started their state exams last week.
The switch to paper and pencil will push up the statewide price tag for testing by about $2.4 million, officials estimated, because paper exams are more expensive than online tests.
The PARCC exams cover tougher Common Core standards that students have been preparing for over the past several years. But the computer-driven format of the tests can be unnerving for some children who aren't savvy online or may not have the same access to computers as their peers, educators say.
The sprawling Algonquin-based Community Unit School District 300 has a diverse student body, and officials are concerned about disparities in computer access and experience between well-off and low-income students, said spokesman Anthony McGinn. "We just felt like paper and pencil would be a better reflection of academic achievement."
Districts have long had the option to administer paper-and-pencil exams, and some decided early on to go that route.
Earlier this month, the Illinois State Board of Education gave districts another opportunity to switch from the computer exams, after hearing from school administrators wary about potential technology problems on test days.
Byrd-Bennett said state authorities had still been inflexible and unwilling to compromise.
"We've just put forth so many opportunities, alternatives, options, compromises," she said. We really thought we would end up at a place where there was a compromise in the best interests of the children. That did not occur."
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