ILLINOIS STATE BOARD OF EDUCATION

Professional Preparation

217557-0643

DATE: December 23, 1999

TO: The Honorable James "Pate" Philip, Senate President

FROM: Glenn W. M^cGee

SUBJECT: Improvements to the Illinois Certification System: Annual Report

This report is submitted in compliance with Public Act 90-548 (105 ILCS 5/21-1a). The statute requires the State Board of Education to prepare a report to the Illinois General Assembly and the Governor on teacher certification, with recommendations for improvements to the system. The document is to be submitted annually on January 1, 1999, through January 1, 2001.

The first report was provided to the General Assembly and the Governor on January 1, 1999. This report offers an update on the efforts of the State Board of Education to implement statutes intended to ensure a quality educator in every classroom. The document also details initiatives designed by the State Board to provide a continuum of professional practices from preservice training through advanced certification.

The State Board of Education looks forward to working with its educational partners, the General Assembly, and the Governor in assuring caring, competent teachers for Illinois students.

cc: Governor George Ryan

Tony Rossi, Clerk of the House

Jim Harry, Secretary of the Senate

Legislative Research Unit

State Government Report Center

This report is submitted in compliance with 105 ILCS 5/21-1a. The law states:

In 1996, the Illinois State Board of Education adopted the policy initiatives identified in the Illinois Framework for Restructuring the Recruitment, Preparation, Licensure, and Continuing Professional Development of Teachers. Many of the reform items found in the Framework were also detailed in the What Matters Most: Teaching for America's Future, published two months earlier by the National Commission on Teaching and America's Future. Consonant with the reform directions articulated in these two documents, the State Board of Education created several advisory panels to recommend the design and implementation of policy directions described in the Framework. In November 1997, the panels, composed of representatives from across the education community, parents, business, and students, issued to the State Board of Education their recommendations in Preparing Educators for the 21^st Century.

Reforms recommended by the State Board of Education in the Framework and Preparing Educators reports called for:

• a teacher preparation and institutional accountability process led by standards;
• a multi-tiered certification system;
• professional development expectations for certificate renewal;
• an induction experience for novice teachers; and
• alternative routes to the profession.

In December 1997, Public Act 90-548 (House Bill 452), which codified many of the Board initiatives cited above, was signed into law. The law and subsequent amendments launched dramatic reforms in the preparation, certification, and continuing professional development of educational personnel. The State Board of Education, in consultation with the State Teacher Certification Board, was charged with the design and implementation of these measures consistent with timelines identified in the statute.

The law further required the State Board to submit an annual report on the provisions of the law to the Governor and the Illinois General Assembly. Recommendations for other modifications to the preparation and certification of teachers and other educational personnel also were encouraged in the statute. This report, the second under the provisions of the law, updates the progress on these measures and identifies complementary changes important to the implementation of the legislation.

Public Act 90-548 established a multi-tiered certification system for teachers. In the establishment of the Standard Teaching Certificate, the law indicated it was renewable based on evidence of continuing education or professional development. Subsequently, Public Act 91-102 identified continuing professional development expectations and procedures intended to operationalize the certificate renewal process. This statute becomes effective on February 15, 2000 and the first cycle of certificate renewal requirements will begin on July 1, 2000.

To develop the rules necessary to guide implementation of this new system, the State Board has developed a three-phase process. During the first phase, a draft of the rules has been completed by the State Board of Education (ISBE) in collaboration with the State Teacher Certification Board. The Illinois Federation of Teachers (IFT) and the Illinois Education Association (IEA) provided input for that document. In Phase II, the draft rules were sent to interested organizations and associations for additional review and comment. This was an unprecedented move to involve more of the public in the early stages of the process and is still underway at the time of this report's submission. In the final phase of the process, the State Teacher Certification Board and the State Board will review the revised drafts of the rules. A 45-day public comment period in March and April will be supplemented with public hearings around the state. The rules will be presented with a request for adoption to the State Board at the May meeting. Pending adoption by the Board, the rules will be submitted to the Joint Committee on Administrative Rules (JCAR) in June.

The certificate renewal law, effective February 15, 2000, requires certificate holders who wish to maintain a Standard Teaching Certificate to complete a Certificate Renewal Plan that documents three individual improvement goals. The plan must a) advance the holder's knowledge and skills as a teacher consistent with teacher standards and content standards in his or her areas of certification, endorsement, or teaching assignment; b) develop the certificate holder's knowledge and skills in the ISBE "state priorities" areas [as determined every five years]; c) advance knowledge and skills of the certificate holder's school improvement plan; and may d) expand knowledge and skills in an additional teaching field or toward acquisition of another teaching certificate, endorsement, or relevant education degree. At least 50 percent of the credits must address "a" and "b" above.

To define the "credit" value of specific professional development activities, the State Board convened a Professional Development Activities Task Force. Consistent with the statutory requirement, this group was comprised of three representatives each from the IFT and the IEA, and six appointees from ISBE. The task force was charged with recommending the maximum number of Continuing Professional Development Units (CPDUs) to be awarded for each category of professional development activities. Meetings began in October and the group successfully completed its work in mid-November. The report containing recommendations for those credits has been submitted to the State Teacher Certification Board and the State Board.

Each Certificate Renewal Plan must be approved by a Local Professional Development Committee (LPDC) consisting of three classroom teachers chosen by the exclusive representative, one superintendent or chief administrator or a designee, and one at-large member who is a parent, community member or member of the business community, chosen by the local school district. These committees will review and approve individual Certificate Renewal Plans and record the credits based upon successful presentation of evidence by the certificate holders.

Teachers holding Standard Teaching Certificates have five years to complete the professional development requirements by accumulating 8 semester hours of coursework from an accredited college or university, or 24 Continuing Education Units (CEUs) or 120 Continuing Professional Development Units (CPDUs) or any combination of the above. Teachers who earn certification from the National Board for Professional Teaching Standards will be issued a Master Teaching Certificate that is valid for ten years. The State Board and the State Teacher Certification Board will jointly approve providers of these professional development activities. The names of all approved providers will be listed on the State Board website.

To provide an understanding of this complex process, a "Question and Answer" document was established on the ISBE homepage in August, and brochures based on this document have been distributed statewide. There is a "Discussion Group" on the agency's website to allow the public to ask questions and make comments and receive responses from State Board staff. In addition, recent issues of the Superintendent's Bulletin contained articles on the new certificate renewal process. A letter from the State Superintendent was also sent to all public school teachers offering information about the process and how and when certificate holders would be affected.

A "Training Manual" for Local Professional Development Committees is currently being developed with distribution scheduled for March 2000. Regional Offices of Education and Intermediate Service Centers will be working collaboratively with the State Board to ensure training and information are available to all who desire it.

Since the submission of the January 1999 report, the State Board has developed and implemented several measures designed to enhance teacher quality. Rules requiring greater accountability from teacher education institutions were adopted in July 1999. These are aligned with the standards and procedures of the National Council for the Accreditation of Teacher Education (NCATE). Although teacher preparation institutions are not required to seek NCATE accreditation, they are expected to meet standards based on best practice and research.

Modifications to the present teacher certification general education and professional education requirements are underway. This shift was motivated in part by the State Board's adoption of a standards-based system of teacher preparation and certification. Furthermore, general studies and professional education expectations demanded by the NCATE standards significantly exceed those required by the State, and the National Council's work includes an emphasis not only on knowledge but performance expectations. Selected modifications, particularly in the professional education requirements, will entail some statutory changes.

Other State Board activities over the past year include the finalization of professional preparation standards for teachers and administrators. Developed by 17 advisory panels composed of more than 500 teachers, administrators, parents, and university personnel, the standards for the first time link teacher preparation in Illinois with national standards and the Illinois Learning Standards for students.

The development of standards to guide the preparation of teachers and other educational practitioners is nearing completion. While the adoption of NCATE standards demands quality among teacher education institutions, standards for the training of educational personnel impose a similar demand for quality on candidates. The work of advisory panels in various teaching and administrative fields defines the knowledge and performance standards for programs that prepare educators.

Convened first in the summer of 1998, the 17 panels devised recommended standards for early childhood education, elementary education, mathematics, science, foreign language, principals, superintendents, chief school business officers, social studies, and eight other specializations. The efforts of the panel members provide a link with the national standards developed by professional organizations as well as the Illinois Learning Standards for students. These two associations have never existed before.

Recently, standards for special educators have been released and shared with the public, the State Teacher Certification Board, and the State Board. Two advisory groups worked for nearly two years on the redesign of special education programs and the certificate structure. The efforts of the panels are consistent with a standards-led system of initial preparation and continuing professional growth and development, and reflect the practices of many other states. Moreover, the recommendations address critical features of federal legislation (i.e., IDEA 97), particularly in serving exceptional learners in least restrictive environments and affording greater access to the general curriculum. Finally, the work of the panels also attempts to satisfy the terms of the Corey H. Settlement Agreement.

Additional advisory panels, composed of public school practitioners, higher education faculty, and other critical members of the education community, will be convened soon to develop standards for educators in the School Service Personnel fields of school social work, school psychology, school nursing, and guidance. Other groups, too, will be formed to identify appropriate and rigorous standards for special education directors, prospective computer science teachers, and more.

The design of the first supply and demand study required by Public Act 91-102 is nearing completion. The findings will allow the State Board of Education, the Illinois Board of Higher Education, the Illinois Community College Board, regional offices of education, and local school districts to focus on strategies to address teacher shortages. To supplement this effort, the State Board is developing a task force to recommend creative measures to attract qualified candidates to the teaching profession.

Public Act 91-609 removed the provision of the Alternative Certification Program that limits its teacher graduates to employment in the Chicago Public Schools. Candidates who successfully complete the Northwestern University/Golden Apple Foundation program will have the opportunity, after four years of teaching, to apply for a statewide Standard Teaching Certificate in their area of preparation. The Standard Alternative Teaching Certificate valid only in Chicago will no longer be issued after February 15, 2000.

In December 1999, the State Teacher Certification Board approved the first non-Chicago alternative route to teacher certification program, with other alternative route proposals scheduled for Board recognition in early 2000. The Governors State University alternative program in elementary education seeks to address the needs of several south suburban school districts. The model is rigorous, consistent with the statute, and self-supporting. An alternative route to administrative certification submitted by Western Illinois University has been approved and will admit its first candidates in the spring 2000. Another institution in southern Illinois has expressed an interest in designing alternative offerings for school administrators and prospective teachers. By the close of 2000, the State Board expects to have four or five alternative route programs operational.

Ensuring a quality educator in every classroom is a State Board of Education initiative that requires the creation and coordination of multiple reform measures. As noted in the previous section, Illinois has made progress. Accountability is now demanded of teacher training institutions, rigorous standards are being set for teachers and other educational personnel, and alternative routes to the profession have been established. However, there are a number of other quality educator issues that need attention. These include

• mentored induction experiences for novice teachers;
• a focus on middle grade education;
• recruitment to the profession;
• an expansion of opportunities for qualified teachers to secure advanced certification from the National Board for Professional Teaching Standards; and
• revised certification assessment practices that assure rigor, evidence of content knowledge, and the affirmation of performance competencies.

Current research on the quality of teaching finds few characteristics of a teacher's professional development continuum as important as induction to the profession. Induction is defined as the provision of assistance during the four-year transitional period between initial and standard certification. Upon entering the teaching profession, novice teachers are seldom provided the support and guidance necessary to deal effectively with the challenges of their new responsibilities. Experienced teachers trained as mentors afford a critical element of successful induction programs. Mentors facilitate the growth of the newly employed teacher toward the highest levels of professional and personal development.

Research indicates that mentored novice teachers remain in teaching at a greater rate, and that induction programs complete with mentoring positively impact teaching. National studies have affirmed the central importance of effective support and feedback during the first years of teaching. Studies estimate that as many as 30% of beginning teachers leave the profession during the first two years, and as many as 40% may leave within the first five years. For urban teachers, the attrition rate is even higher.

Research validates that beginning teacher induction programs improve the retention rate of effective teachers and promote the quality of teaching performance. By 1998, over 30 states had implemented some form of induction/mentoring initiative to ensure the quality and support of teachers entering the classroom. An informal survey in Illinois produced over 50 induction/mentoring sites either in partnership with local colleges or universities, regional offices of education, or stand-alone district models.

Sound induction programs coupled with mentoring, according to research, encourage teachers to remain in the classroom. Linda Darling-Hammond on the National Commission on Teaching and America's Future reports that school districts in Cincinnati, Columbus, and Toledo, Ohio and Rochester, New York, have reduced attrition rates of beginning teachers by more than two-thirds through comprehensive induction programs. Providing expert mentors with release time to coach novices in their first year on the job has resulted in attrition rates decreasing from levels exceeding 30% to rates under 5%. Another significant benefit of induction programs indicates that 95% of inducted teachers remain in the profession after three years and demonstrate competent practices more quickly than those who learn by trial and error.

In Illinois, the districts in the South Chicago Metro Region, located in South and Southwest Cook, Kankakee and Will counties, have been collaborating with Governors State University to provide support for beginning teachers. Over the past seven years, the Beginning Teacher Program has resulted in a dramatic decline in teacher attrition.

A positive impact on supply and demand has been witnessed by other states with formal induction experiences. The Connecticut State Board of Education found that initiating an induction/mentoring program has enhanced hiring practices and elevated the image of the profession. Candidates are attracted to teaching as a profession and a life-long career.

The State Board of Education believes that induction is a critical determinant in ensuring quality educators in every classroom. Moreover, the positive impact on attrition has the potential to be an important component in addressing teacher shortages. For these reasons, the State Board of Education has identified induction as a major legislative priority. Again this year, we are recommending that legislation be adopted to require the development and implementation of a statewide induction/mentoring initiative in Illinois that will provide the support necessary for new personnel to become effective educators and reflective practitioners.

Specific recommendations for a proposed Illinois Induction Initiative were included in the 1998 report and these will form the basis for a legislative proposal for the spring 2000 session. The proposed Illinois Induction Initiative is

• based on the Illinois Professional Teaching Standards, Content Standards in each teaching field, and linked to the Illinois Learning Standards for students;
• modeled on research and best practice;
• guided by a clearly defined set of program purposes;
• designed to assist teachers in their advancement from Initial to Standard certification;
• intended to afford formal staff development for mentors and administrators;
• evaluated on an annual basis; and
• supported by partnerships developed with educational agencies, including regional offices of education, and postsecondary institutions.

Mentoring has commonly been identified as the main component of formal induction programs. It is viewed as having positive outcomes for mentors and beginning teachers. When implemented, the novice teacher, under the supervision of an administrator, works with a mentor teacher. The mentor assists the teacher in developing the skills and competencies necessary for effective classroom practice.

For the induction/mentoring process to be meaningful and effective, the evaluation component must include the use of professional growth portfolios. The portfolio required in a strong induction/mentoring program results in an assessment tool used to evaluate learning, development, and competency with reference to the Illinois Professional Teaching Standards. As an assessment device, it can constitute an important component in the determination of eligibility for the Standard Certificate.

Current middle grade teachers must be appropriately endorsed to teach in grades 5 through 8. This endorsement, issued on an elementary or secondary certificate, requires the equivalent of three semester hours of middle-grade philosophy, curriculum, instruction and methods and three semester hours of early adolescent psychology and the role of the middle-grade teacher in assessment, coordination and referral of students to health and social services. In addition, 18 semester hours of study in the subject-matter area of the major teaching assignment is required.

The State Board of Education and the professional education associations recognize that the current endorsement clearly falls short of what current research and state and national professional organizations indicate are essential qualifications for teaching in grades 5-8. For instance, the requirement of six semester hours of coursework coupled with certification programs that do not have a middle-grade focus dissipates the preparation efforts. The overlapping of K-9 (elementary) and 6-12 (secondary) certificates creates confusion and inadequate training for middle-grade teachers. Teachers with K-9 certificates see themselves as elementary teachers while those with 6-12 certificates view themselves as high school teachers. With no clinical requirement linked to the current endorsement, young teachers generally receive no preservice experience in the middle grades.

In 2000, the State Board of Education will launch a study of middle school certification. This effort will study middle-level teacher training and certification programs in other states and seek comments from educational professionals in Illinois. The intent of this effort is to grant consideration to the design of a certificate specific to middle grade instruction.

Research suggests such a certificate should require training in middle-grades theory and provide developmentally appropriate instructional approaches in the content area. Methods preparation, according to research, should include parent/community involvement practices, advisement for middle-school students, and middle-level classroom management strategies. The Carnegie Foundation recommends middle-grade preparation focus on creating a community for learning, teaching a core of common knowledge, ensuring success for all students, empowering teachers and administrators, improving academic performance through better health and fitness, re-engaging families in the education of young adolescents, and connecting schools with communities. A distinct middle-grade certificate should also demand clinical experiences and student teaching assignments in middle-level classrooms.

Evidence of teacher shortages in school districts across the state affirms a continuing imbalance between supply and demand, particularly in fields such as special education, mathematics, science, media, and counseling. Moreover, it is clear that shortages in one geographic region of the state are not reflected in other areas. Indeed, in some areas, such as speech-language pathology, more candidates have been prepared than vacancies exist. In these instances, the problem is one of distribution rather than supply. Nevertheless, vacancies exist, and as employers scramble to fill these positions, the quality of the candidate is too often relegated to a lesser need.

For years, Illinois has been an exporter state, with as many as 40% of teacher candidates from public colleges and universities seeking and finding employment elsewhere. This past fall, Massachusetts sought to recruit prospective teachers from Northwestern University and the University of Chicago by offering a $20,000 "signing bonus." Furthermore, the loss of as many as 40% of young teachers during their first four years in the profession, exacerbates the supply and demand issue.

In early 2000, the State Board of Education will convene an advisory body to study supply and demand data and to recommend measures to redress the imbalance. Representatives from the business community, particularly human resources, local school districts and regional offices of education, teacher training institutions, and other state agencies (e.g., the Illinois Board of Higher Education, the Illinois Community College Board, the Illinois Student Assistance Commission, etc.) will be charged with identifying and designing strategies to attract qualified individuals to the profession, with a particular emphasis on people of color. The panel members will consider financial incentives, alternative pathways, paraprofessionals and more.

The advisory body will define other conditions that contribute to the shortages. National studies suggest salary discrepancies, particularly with other professions, working conditions, classroom management and discipline issues, and a multitude of other factors serve as a disincentive to potential candidates. For those who leave the profession early, their decisions are frequently motivated by these factors. Moreover, those interested in teaching are often deterred by these conditions.

By August 2000, the panel will prepare and publish a formal report on their findings and recommendations for the State Teacher Certification Board and the State Board of Education. The efforts of the panelists also will be shared with the Governor's Office and the General Assembly.

Public Act 90-548 established the Master Certificate and limited its eligibility to individuals who achieved certification from the National Board for Professional Teaching Standards. Recent legislation extended the term of the Illinois Master Certificate from seven to ten years, bringing it into alignment with all NBPTS certificates. Statute also stipulates that completion of the NBPTS certification process shall serve as total fulfillment of the continuing professional development requirements for renewal of a Standard Certificate for one five-year cycle.

For two years, the State Board of Education has conducted a support program for teachers seeking national certification. The agency has subsidized the $2000 application fee, offered regional and statewide workshops, and identified Board certified teachers to serve as mentors to candidates. The State Board has provided materials at no cost and actively promoted the benefits of National Board certification to teachers, school administrators, regional offices of education, and the business community.

When the State Board commenced this support program in FY98, Illinois had 16 teachers certified by the National Board. In 1998, that number increased to 35 and recently it has risen to 88, with 53 teachers successful in 1998-1999. With 53 teachers earning certification, Illinois ranked ninth in the number of successful candidates, placing us ahead of such states as Texas, New York, Wisconsin, Indiana, and Missouri, among others. Also, the Illinois pass rate on the rigorous assessment continues to exceed the national average by nearly 15 percentage points; a clear indication that our training and mentoring affords an advantage to Illinois candidates. In the 1999-2000 year, the agency is sponsoring a "class" of more than 160 candidates.

Legislative action has established financial incentives for Illinois National Board certified teachers. Any teacher holding a Master Certificate who is employed by an Illinois school district is eligible for a one-time $3000 stipend. These teachers may elect to serve as mentors, providing professional development to new or experienced classroom teachers or working with teachers who are seeking NBPTS certification. Compensation for teachers providing 60 hours of mentoring in schools on the Academic Early Warning List and/or schools with a 50% or greater low-income pupil concentration will be $3000. Teachers working with classroom teachers in other districts will be paid $1000 for 60 hours of mentoring. However, this important legislative initiative was not funded in FY2000.

The State should be justly proud of the teachers who have achieved this national distinction. Colleges and universities, regional offices of education, and local school districts have provided financial and other forms of support to candidates. However, to continue to expand the number of Master Certificate holders requires funding. While the agency has been able to reallocate funds in the past two years to support this quality educator initiative, this may not be possible in coming years. Moreover, the National Board next year will increase its application fee to $2300.

By linking its Master Certificate to National Board certification, the State of Illinois has made a strong statement in favor of demonstrated levels of excellence in teaching. The State now needs to take the next step and provide funding for the incentives adopted last year, and for the State Board's NBPTS candidate support program.

Public Act 90-548 requires the assessment of teacher candidates at two stages -- prior to the receipt of the Initial Certificate and then prior to issuance of the Standard Certificate. It is understood that these assessments must reflect the recently adopted Illinois Professional Teaching Standards and the content- specific teaching standards which are nearing completion. However, for advice on the many other issues associated with ensuring the appropriate assessment of candidates at these two junctures, e.g., type and nature of examination to be used, etc., the State Board of Education established an advisory panel.

The panel, representing teachers, administrators, regional offices of education and higher education, was charged with developing recommendations for the assessment of preservice and novice teachers. It was directed to (1) verify assessment points mandated by Public Act 90-548 and recommend types of assessments that might occur at each point; (2) examine existent assessment models developed by testing agencies as well as a consideration of models presently under development; (3) examine assessment practices and models employed by other states; and (4) consider cost factors associated with assessment design, implementation, and scoring.

The Assessment Advisory Panel has completed its charge, and the recommendations (see attached report) have been received by the State Teacher Certification Board and the State Board of Education. In summary, the panel recommended that prior to receiving an Initial Certificate, the teacher candidate should successfully complete assessments of basic skills, pedagogy (the knowledge of teaching) and content knowledge. During the next few months, the State Board will review and make decisions about the many issues associated with teacher assessment. These decisions will trigger actions to assure that all of these assessments will be available for implementation by the statutory date of July 1, 2003.

With respect to the second-level assessment required prior to issuance of the Standard Certificate, the Assessment Advisory Panel recommended candidates complete a portfolio assessment. A portfolio is a collection of various artifacts which document the individual's teaching ability, and typically includes items such as a description of the individual's teaching context, records of instructional design and delivery, copies of student work, and videotapes of classroom teaching. The portfolio reflects not only the teacher's understanding of content, but also his or her ability to teach the content.

The panel qualified this recommendation, however, and stipulated that portfolio assessment should be required of candidates for the Standard Certificate only if accompanied by a strong induction program for novice teachers. This insistence was based on the widely accepted recognition that for a portfolio assessment system to be effective and positively impact teacher quality--and thereby student achievement--teachers in the induction period need knowledgeable support at the local school level. The panel asserted that induction programs are an investment in teaching quality and new teacher retention and, therefore, promote student achievement. The panel acknowledged that this type of assessment is potentially very effective, and it is extremely costly to administer. The panel recommended that the cost to the candidate be limited to no more than $200, and that the state assume any additional cost.

Beyond assessments for Initial and Standard certification, Public Act 91-370 requires, the State Board of Education to design and implement tests to assess the speaking, reading, writing and grammar skills of candidates for the Transitional Bilingual Certificate. The law requires that candidates demonstrate proficiency in English and in the language in which certification is sought. To meet this mandate, the State Board has begun development of an English language proficiency test with accompanying assessments in 14 target languages. These examinations will be available and required of candidates for the Transitional Bilingual Certificate beginning July 1, 2001.

Teacher certification assessments to date have been high-stakes assessments for individual teacher candidates. With the passage of the federal Higher Education Reauthorization Act, they become high-stakes assessments for teacher preparation programs as well. In October 1998, the U.S. Congress enacted legislation that requires institutions of higher education and states to report on candidate performance on state teacher certification assessments.

Each institution of higher education that conducts a teacher preparation program and enrolls students receiving federal funds under the Act must report on measures of program performance to the state and the general public. The state, in turn, must report annually to the U.S. Secretary of Education on the quality of teacher preparation programs in the state and on state policies and procedures for assuring teacher quality. These reports are commonly referred to as the Title II institutional and state report cards. States must also have in place a procedure to identify and assist, through the provision of technical assistance, low-performing programs.

In April 1999, the State Board of Education submitted the required initial state report card, which by law was limited in scope. Final rules from the U.S. Department of Education governing the specific content and submission dates of future state and institutional report cards have not yet been filed. It is anticipated that October 2000 is the earliest the institutional report cards will be due. The state report cards will be submitted to the U. S. Secretary of Education six months after that date.

The State Board of Education, in cooperation with the Board of Higher Education and several institutions of higher education, has begun development of the process for the collection and reporting of the required institutional and state reports. In addition to reporting on performance on the teacher assessments, the report cards will include other information deemed to be important by the State of Illinois. This would include contextual information recognizing the diversity of the teacher preparation institutions (e.g., university mission, student demographics, etc.).

A growing body of research indicates that the competence of the classroom teacher is a most critical factor in determining student achievement. It is therefore essential that Illinois engage in a systematic effort to reform teacher education standards and expectations, to demand accountability from teacher training colleges and universities, and to expect that classroom educators grow as professionals and remain current in their teaching specializations. The redesign measures identified in this report are directed toward the preparation and continued professional development of quality teachers.

Recruitment to the profession, a data-driven understanding of supply and demand, and the establishment of rigorous assessment procedures that evaluate knowledge and performance further the State's teacher quality agenda. A comprehensive induction system that includes mentoring for novice teachers is intended to reduce the attrition of young teachers and to prepare them more thoroughly as professionals. The recommendations pertaining to middle-grade education focus intently on this critical period of education frequently neglected in the existent certificate structure.

Finally, certification by the National Board for Professional Teacher Standards represents the epitome of teacher quality. In the past few years, the number of Board certified Illinois educators has increased by nearly 500%. The State Board is committed to increasing this number in the coming years by continuing to financially support qualified teachers seeking national certification. A National Board certified teacher in every district is an appropriate correlate to a competent, caring, qualified teacher in every classroom.

Definition of Terms

Tables and Appendices

Assessment Advisory Panel Final Report

September 8, 1999

With the adoption, in November 1996, of the Illinois Framework for Restructuring the Recruitment, Preparation, Licensure and Continuing Professional Development of Educators, the State Board of Education initiated a comprehensive effort to restructure the state's system for preparing, licensing and providing for the continuing professional development of teachers. The goal of the Framework was, "All Illinois public school students will have access to schools and classrooms with highly qualified and effective professionals who ensure that students achieve high levels of learning." The Framework recommendations adopted by the Board were consistent with the work of the National Commission on Teaching and America's Future, i.e., advocating a standards-based system for the preparation, certification and continuing professional development of teachers.

The work of the advisory groups and the personnel reform efforts initiated by the State Board were accelerated in December 1997 when Illinois enacted Public Act 90-548 which authorized the State Board of Education to develop a standards-based teacher certification system. The confluence of the State Board of Education reform framework, the recommendations of the state-wide advisory groups and the passage of Public Act 90-548 led to the next phase of the project, including addressing the issue of assessment.

Thus, in October 1998, the State Board of Education appointed an Assessment Advisory Panel and charged the panel with developing recommendations on various assessment models to be used at different points in the new standards-based certification system. Specifically, the charge to the panel was:

The panel was further directed to:

1. Verify assessment points mandated by Public Act 90-548 and recommend types of assessments that might occur at each point.
2. Examine existent assessment models developed by testing agencies as well as a consideration of models presently under development.
3. Examine assessment practices and models employed by other states.
4. Consider cost factors associated with assessment design, implementation, and scoring.

The Assessment Advisory Panel, whose members represent teachers, administrators, higher education, regional offices of education and professional associations, met six times between October 20, 1998, and December 12, 1998. In early 1999, the panel submitted a preliminary report of its findings and recommendations to the Illinois State Board of Education. After receiving feedback on those preliminary recommendations from the State Teacher Certification Board, the State Board of Education and other interested groups, the panel met three more times to consider the input and finalize its recommendations.

This document represents the final recommendations of the Assessment Advisory Panel. It is divided into the following sections: (1) Background-describes the contextual background in which these recommendations were formulated; (2) Existing Models/Resources-briefly describes the existing models and resources reviewed by the panel in its deliberations; (3) Findings-presents the conclusions reached by the panel in its review; and (4) Recommendations -contains the specific recommendations regarding what should be assessed, by whom and at what point in the certification process. Included as appendices are a list of panel members, a list of the resources reviewed by the panel, and a summary of the State Board of Education's Induction Advisory Panel's recommendations.

Public Act 90-548 was signed into law in December 1997, and, among other things, mandated that the State Board of Education develop a standards-based, multi-tiered system of certification. Further, it specified that effective January 1, 1999, the State Board of Education would begin issuing three levels of teaching certificates--initial, standard and master. Public Act 90-811, signed into law January 26, 1999, moved the effective date of Public Act 90-548 to July 1, 1999. Subsequent to that action, Public Act 91-102, signed into law on July 12, 1999, changed the effective date of Public Act 90-548 to February 15, 2000.

With respect to the assessment of candidates for teacher certification, Public Act 90-548, as amended by Public Act 90-811 and Public Act 91-102, specifically requires:

The State Board of Education, recognizing that development of valid and reliable assessments would take time and also that any required assessment must reflect prevailing requirements, adopted Administrative Rules providing that: (1) Through June 30, 2003 the tests required for the Initial Certificate will be the current Illinois Certification Testing System Basic Skills test and the appropriate test of subject matter knowledge; and, (2) New assessments for the Initial and Standard Certificate will be in place July 1, 2003.

In July 1997, the State Board of Education adopted the Illinois Learning Standards for elementary and secondary students. The learning standards define what Illinois citizens believe all K-12 students should know and be able to do as a result of their public schooling. These student standards have been developed for the fundamental learning areas: English/language arts; mathematics; science; social science; physical development and health; fine arts; and, foreign languages.

In January 1995, the Joint Education Committee of the State Board of Education and the Board of Higher Education identified key variables that defined new directions Illinois was to take for professional development and licensure of teachers. One of those variables postulated that what teachers know and are able to do is the most important determinant of what students learn.

Further, as A Nation at Risk focused attention on issues related to schools and student achievement, What Matters Most: Teaching for America's Future (1996) was a catalyst for nation-wide examination and discussion related to the quality of teachers in the past decade. A growing body of research, e.g., Good Teaching Matters...A Lot by Kati Haycock, provides evidence that teacher quality has a direct impact on student achievement.

In Preparing Educators for the 21st Century, the Advisory Groups recommended that the State of Illinois move from a licensure system based on inputs, i.e. specific courses and/or semester hours, toward a system based on professional standards or outcomes. Specifically, the Advisory Groups called for adoption of professional standards for teachers--standards that clearly indicate what teachers are expected to know and be able to do.

The foundation of that standards-based system was laid with the development and adoption by the State Board of Education of a set of eleven professional standards known as the Illinois Professional Teaching Standards and based upon the national Interstate New Teachers Assessment and Support Consortium (INTASC) model standards for beginning teachers. These "common core" standards have been adopted as part of the Administrative Code of Illinois; and, effective July 1, 2003, all candidates for teaching certificates must demonstrate they meet those standards.

In late summer of 1998, the State Board of Education convened 14 Content Standards panels in the teaching fields: early childhood, elementary education, English language arts, mathematics, science, social science, physical development, health, fine arts, foreign language, career and technical education, bilingual education, special education, and technology. The panels were charged with developing discipline-specific content standards for teachers that were aligned with the Illinois Learning Standards---the K-12 student standards---and when appropriate, national association standards. The first drafts of those content standards were released in early 1999 for public comment. The content panels will reconvene to review the comments received, and as appropriate, revise the standards with an anticipated completion date of fall 1999.

While Public Act 90-548 created a multi-tiered certification structure, it was silent on the issue of the induction of new teachers-those first years of teaching between when an individual receives an Initial Certificate and before he or she qualifies for the Standard Certificate. However, prior to the passage of Public Act 90-548 the State Board of Education convened an advisory panel to address the issue of new teacher induction.

In its October 1998 report, the Induction Advisory Panel recommended that each local school district should, in order to support teachers with initial certification, participate in an approved induction/mentorship program. The panel further recommended those programs be "... designed to maximize the development of the skills described in the Illinois Professional Teaching Standards so that teachers with Initial Certificates may advance to Standard Certification." A summary of the Induction Panel's recommendations is found in Appendix C.

Traditional candidates for Illinois certification include those who complete traditional approved teacher education programs in Illinois or in another state; and, certified, experienced teachers seeking additional certification through an evaluation of their qualifications for a determination as to whether they meet the minimum requirements for the certificate.

Public Act 90-548 authorized alternative routes to the same teaching certificates as those issued to traditional route candidates. Public Act 89-708 provided for alternative teaching certificates to be issued to individuals completing alternative programs to prepare to teach in the City of Chicago. These two developments, alternative teaching certificates and alternative routes to teaching certificates, allow institutions to offer post-baccalaureate candidates an opportunity to become certified through completion of three phases of preparation: 1) an intensive course of study in professional education theory, methods and practice; 2) one year of supported teaching; and, 3) a comprehensive assessment of teaching performance.

The State Board of Education is responsible for approving all teacher education programs offered by Illinois colleges and universities. As a part of its teacher education reform effort, the State Board recently adopted National Council for Accreditation of Teacher Education (NCATE)-aligned standards and procedures for the approval of all teacher education programs. NCATE, recognizing the importance of teacher candidate performance, not just curriculum and evidence that certain courses and subjects are included in a program, is developing a new performance-based accreditation system. The central feature of the system will be performance-based standards.

In August 1995, Illinois joined the Interstate Agreement to which some 30 other states belong. As a part of this agreement, applicants for Illinois certification who are from out of state receive teaching certificates through reciprocity if they:

1. possess a valid, comparable teaching certificate from a member state;
2. have completed a state-approved teacher education program or have appropriate teaching experience; and
3. have successfully met the testing requirement.

Out-of-state candidates who do not qualify through the interstate agreement may qualify through the process of transcript evaluation. They, too, must successfully complete any required assessment.

The Test for Teaching Knowledge (TTK) is a written assessment being developed for the Interstate New Teacher Assessment and Support Consortium (INTASC) by Educational Testing Service. It is intended to assess the pedagogical knowledge of the beginning teacher, either prior to issuance of an initial certificate or before the second year of teaching. The TTK is based upon the INTASC standards for beginning teachers---the standards upon which the Illinois Professional Teaching Standards were modeled. The TTK is being developed for three certificate levels: Elementary (K-8), Middle School (5-8) and Secondary (8-12). Each assessment is a four-hour test consisting of short, medium and long constructed response items. These tests are scheduled to be available for state validation and pilot testing in December 1999. It is estimated the cost to administer and score the TTK for one examinee is $150-$200.

The Performance Assessment Development Project of INTASC is developing portfolio assessments in various curriculum areas. These model portfolios are intended to be used by states to assess the performance of beginning teachers. The portfolios, which rely heavily upon teacher reflection, consist of: a description of the individual's teaching context, 1-2 weeks of instructional design, copies of student work, and two 10-20 minute videotapes of classroom teaching. Assessments have been developed in the areas of English/language arts, mathematics, and science and are under development in elementary education, social science, fine arts and vocational education.

Portfolios are typically scored by two trained evaluators, one of whom is a content specialist. A third evaluator is used in cases of significant scoring disagreement of the first two evaluators. All scorers must undergo extensive training and procedures must be in place to ensure inter-rater reliability. Estimates of the cost of portfolio assessments based on the INTASC models range from $400 to $500 per portfolio.

The tests of the Illinois Certification Testing System (ICTS) currently required for Illinois certification were custom designed for Illinois by National Evaluation Systems in 1986-88 and were last updated in 1995. The ICTS Basic Skills test is a written assessment designed to assess whether an individual has the minimum basic skills necessary to begin teaching. It consists of three multiple-choice subareas (grammar, reading and mathematics) and a fourth subarea that assesses writing through a performance component. The ICTS Basic Skills test was designed so it also may be used by Illinois colleges and universities as a requirement for admission to teacher preparation programs and is used by several institutions for that purpose.

The 53 ICTS content-area tests are multiple-choice examinations that assess an individual's specific content knowledge. These content tests were developed to align with the current certification requirements, Illinois' current approved teacher preparation programs, and the Illinois State Goals for students (the predecessor to the Illinois Learning Standards) that were developed in the mid-1980's. The cost to the examinee is $44 per test.

Praxis is a series of commercially available teacher certification tests developed by Educational Testing Service. Praxis I is a series of multiple-choice tests that assesses reading, writing, and mathematics and is designed for use at either time of entry to the teacher preparation program or upon entering the profession. Praxis II consists of written assessments that measure pedagogy and content knowledge in about one hundred subject areas. Praxis II tests, which consist of multiple choice and some constructed response items, are designed to be used at time of licensing. Prior to use in any state, Praxis II assessments must be validated for that purpose and each state then sets its own minimum passing score. Praxis III is an assessment of classroom performance and is intended to be used on site in a teacher's classroom. Praxis III is not currently used as an assessment for certification in any state but is in a fourth year of pilot testing for that purpose in the state of Ohio.

The cost to take one or more of the Praxis tests varies depending upon the number and combination of tests taken at one test administration. The cost for the Praxis I reading, writing and mathematics tests ranges from $89 to $110. The cost of the Praxis II tests ranges from $80 for a one-hour multiple-choice subject assessment to $100 for a 2-hour combined multiple-choice and constructed-response subject assessment.

In response to the panel's charge to examine assessment practices and models employed by other states, the panel found there is no one assessment or set of assessments required by most states. However, of the states that require testing for teacher certification---and the great majority do---most require written assessments of basic skills, pedagogical knowledge, and/or subject-matter knowledge.

The panel found that two companies dominate the administration of teacher certification assessments--Educational Testing Service, which produces the commercially available Praxis series and National Evaluation Systems, which develops state-specific custom-designed teacher certification assessments. Two states---Alabama and Florida---use assessments developed and/or administered by a higher education institution.

Several states use either Praxis I or II or a combination of those, but exactly which Praxis tests are required, varies from state to state. Further, because each state sets its own passing score for the Praxis exams, what is considered passing in one state may not be considered passing in another state. States using one or more Praxis exams are: Arkansas, Connecticut, Delaware, Georgia, Hawaii, Indiana, Kansas, Kentucky, Louisiana, Maine, Maryland, Minnesota, Missouri, Mississippi, Nevada, New Jersey, North Carolina, Ohio, Oregon, Pennsylvania, Rhode Island, South Carolina, Tennessee, Virginia and Wisconsin.

States, in addition to Illinois, that use assessments custom-designed by National Evaluation Systems, include: Arizona, California, Colorado, Massachusetts, Michigan, New York, New Mexico, Oklahoma, Texas and West Virginia. To further complicate the picture, some states use a combination of custom-designed examinations and one or more of the Praxis exams.

The panel also found that the national movement toward standards-based teacher certification, driven in large part by the work of the National Board for Professional Teaching Standards, has prompted considerable interest on the part of many states in the implementation of "performance-based" assessments for teacher certification. The recency of these efforts, and thus the dynamic nature of the field, makes it difficult to obtain current, accurate reports of the performance assessments required by other states. The panel was fortunate to have the benefit of a prepublication draft of Beginning Teacher Performance Assessment: A Report to the California Commission on Teacher Credentialing (Wurzbach, 1998), a survey of current practices in teacher performance assessments.

In Beginning Teacher, Wurzbach defines teacher performance assessment as the "process of inferring the quality and effectiveness of teaching performance through direct or indirect evidences of teacher knowledge and skill." She classifies any assessment, other than tests such as multiple-choice or true-false formats, administered at any time during teacher's career, as a teacher performance assessment and identifies the following four types:

• Constructed response: written compositions responding to a hypothetical stimulus or problem and administered in a testing situation;
• Observation: an assessment system in which a trained observer visits a class and records and analyzes teacher and student behaviors;
• Video-based observation: an assessment system in which a teacher submits one or more videotapes demonstrating specific teaching performance(s);
• Portfolio assessment: a largely teacher-selected representation of teaching and learning through a collection of specific multiple evidences and reflections.

While several states are in the planning or discussion stage of requiring some type of performance assessment, Wurzbach found, with the exception of constructed response items, few states required state-administered performance assessments for certification. Two states-Connecticut and North Carolina have very recently begun to use portfolio assessments. New York requires a video-based observation. The Praxis II exams and Oklahoma and Colorado's state assessments include constructed response items.

The Assessment Advisory Panel reviewed numerous documents and resources related to the issue of assessment in the course of its deliberations. A complete listing of those documents is included in Appendix B.

Standards-based System____________________________________________________

During the last several years, the State Board has initiated a comprehensive effort to restructure the state's system for teacher preparation, licensure, and continuing professional development. The agency has advocated a standards-based system to address these needs. The adoption of the Framework and the Illinois Professional Teaching Standards, the application of the NCATE standards to the teacher preparation programs, and the development and ratification of the Illinois Learning Standards for students indicate there should be standards to which teachers will be held. That is, teachers should know and understand what is expected of them and then should be held accountable for reaching those standards and expectations.

Teacher Standards Linked to Student Standards________________________________

Because student achievement is assessed relative to the student standards, it is only logical that expectations for what teachers should know and be able to do are aligned with what we expect of students-the Illinois Learning Standards. There must be a direct link between our expectations and standards for student learning and our expectations and standards for teachers. The content standards for teachers, currently under final development, will reflect the appropriate K-12 student standards.

Basic Skills Assessment____________________________________________________

Illinois' former program approval process required teacher preparation programs to assess students' basic skills at time of entry into the program. The recently adopted NCATE or NCATE-aligned teacher education program approval process calls for basic skills competency of students admitted to teacher preparation programs. Thus, any current or recent graduate of an approved program in Illinois will have demonstrated competency in basic academic skills. Similarly, any graduate of an NCATE-approved or aligned program from outside of Illinois will also have demonstrated competency in basic skills. However, while a graduate of a program may have demonstrated competency in basic skills acceptable to his or her institution it would not be clear whether the individual demonstrated competency in the basic skills acceptable for certification in Illinois.

The basic skills test currently required for Illinois certification has received some criticism that it lacks rigor. Likewise, the Education Trust in its study of teacher licensing tests has commented that the basic skills tests used by many states assess skills at only the 10^th grade level.

Content-Area Assessment___________________________________________________

As demonstrated by research findings on teacher competence, there is a significant need for teachers to demonstrate competence in the content area of their selected certification area. Further, the development and adoption of the Illinois Professional Teaching Standards represent the view that Illinois teachers should be competent in each of those standards. The first of those eleven standards addresses content-area knowledge: "The teacher understands the central concepts, methods of inquiry, structures of the discipline(s) and creates learning experiences that make the content meaningful to all students."

The current Illinois content-area tests may not be aligned with the new Illinois Learning (student) Standards or the content-area standards for teachers currently under development and effective July 1, 2003. The Praxis II content tests also may not be aligned with the Illinois K-12 student standards, the new teacher content standards or Illinois' new certificate/endorsement areas.

Further, the Education Trust recently critiqued the content-area assessments of the 29 states that assess teacher candidates' content knowledge and commented that all of the tests (Praxis II and the individual states' tests) are far too elementary in nature.

Assessment of Pedagogy___________________________________________________

Research indicates that knowledge of the teaching profession and appropriate teaching strategies and skills will result in improved student achievement. The current certification assessments do not focus on pedagogy to the degree necessary to assess the pedagogical knowledge required by the new teaching standards. It is reasonable for the state to assess the quality of each new teacher's pedagogical knowledge. Such a focused assessment would be an advancement over current teacher assessment requirements.

The Test for Teaching Knowledge might be an appropriate measure of an entry-level teacher's knowledge of pedagogy as it proposes to measure, "A beginning teacher's professional knowledge in areas such as child development, theories of teaching and learning, the role of student background in the learning process...", and because it is based on the INTASC common core standards upon which the Illinois Professional Teaching Standards are based. The grade/developmental levels of the three forms of the test being developed, however, are not aligned with Illinois' certificate levels Elementary (K-9), Secondary (6-12) and Special (K-12).

Performance Assessment___________________________________________________

To comply with the NCATE-aligned teacher education program approval process, colleges of education must take responsibility for assessing pre-service teaching performance according to the Illinois Professional Teaching Standards. Such a formative evaluation will likely be conducted on site both through direct observation and portfolio development.

Assessment of the beginning teacher, however, is part of a licensing continuum and is a state responsibility. It requires the assessment of the performance of a new teacher during the first few years in the classroom. A prudent use of limited state resources would allocate those resources strategically between initial and standard certification.

The Assessment Advisory Panel recognized the complexity of developing and implementing a high stakes performance assessment on a statewide basis and devoted considerable time to discussing how this might be accomplished in a realistic, fair, and consistent manner. Among the types of performance assessments discussed by the panel were video assessments, observation, constructed response test items, and portfolio assessments. The panel found the INTASC model portfolio assessments to be the preferred method of assessing the beginning teacher's performance and how well that person met the common core standards. The panel also found the INTASC model portfolio assessments have the greatest likelihood of enhancing the beginning teacher's performance and thereby improving student achievement. However, the panel noted that portfolio assessments are very labor intensive and costly.

Additionally, in order for a portfolio assessment system to be effective and positively impact teacher quality and thereby student achievement, teachers in the induction period need knowledgeable support at the local school level. The beginning teacher's administrator and mentor teacher must understand the portfolio process, the items that can be used as indicators, and how to guide the new teacher towards success in the process. This requires initial and continuing training for administrators and mentor teachers on the appropriate portfolio procedures and facilitative techniques.

Further, research studies show that mentoring programs affect teaching positively and that new teachers who receive mentoring remain in teaching at a greater rate than those who do not. For example, first-year teachers who are mentored begin focusing on their students' learning outcomes earlier than beginning teachers who do not have the benefit of mentors. Thus, induction programs are an investment in teaching quality and new teacher retention and, therefore, promote student achievement.

The combination of the development of a portfolio assessment in order to obtain a standard teaching certificate, together with a strong induction program for the novice teacher, should allow new teachers to learn the skills of the profession with the guidance of trained professionals. The resources devoted to the implementation of a locally developed and organized teacher induction program would benefit not only the teacher candidate, but also the local school and school district, the district's staff development program for current staff, and the profession in general.

Endorsements/Designations/Approvals_______________________________________

The meaning of the terms "endorsement", "approval", and "special certification designation", and the application of those terms, may vary in different circumstances. The commonality of those terms, however, is that they are intended to convey the message that the certificate holder is qualified to teach either a particular subject (e.g., an endorsement in mathematics) or a particular group of students (e.g., a learning disabilities approval).

An endorsement is generally considered to be the written notation entered upon the face of a teaching certificate designating the specific subjects that an individual is qualified to teach. Special certification designation is a new term introduced by the recent legislation creating the new multi-tiered certification system. Its meaning has not yet been clearly defined.

An individual who holds an early childhood, elementary or secondary certificate can, by meeting specific requirements, obtain a special education approval. Special education approvals are awarded in selected areas of disability (learning disabilities, social emotional disorders, educable mentally handicapped, trainable mentally handicapped) and allow the individual to teach students in the specified area of disability. The difference between having a special education approval versus a special education certificate is the grade level of the student with whom the holder of the approval is qualified to work. Special education approvals are limited to the grade level of the certificate upon which they are placed-early childhood (birth-grade 3) elementary (K-9) or secondary (6-12). Special education certificates are valid for the grade range K-12. The qualifications for the certificate versus the qualifications for the approval, however, are vastly different. The special education certificate currently requires 32 semester hours in special education coursework and successful completion of the certification test related to the area of disability. The special education approval requires only four specified courses, no clinical experiences, and no assessment other than the tests required to obtain the elementary or secondary certificate.

Bilingual and English as a Second Language approvals are also given to qualified individuals who hold standard teaching certificates. Qualifications for these approvals include a minimum of 18 semester hours of specific coursework. In that respect they are comparable to some endorsement qualifications. Additionally, either successful completion of a language examination in the target language or demonstration of language proficiency by other specified means is required for the bilingual approval. No assessment is required for the English as a Second Language approval.

It has been the stated intent of much of the reform effort to simplify the certification and endorsement structure. Specifically, it has been suggested that the number of certificates and endorsements should be decreased. However, the legal and professional need to assess teaching candidates on job-related knowledge and skills recommends assessments that are specific to grade level certification, subject matter, and special expertise such as special education. Therefore, assessments are necessary that address general areas of knowledge and skill that all teachers should demonstrate, e.g. basic literacies, pedagogical knowledge, as well as more specific assessments that would demonstrate expertise in specific content areas and job-related responsibilities.

The many different teaching responsibilities characteristic of the professional will necessarily result in a wider variety of assessments and combinations of assessments than we otherwise might wish to see.

The panel found it appropriate to assess a candidate in each area in which he or she seeks such a qualification to teach, be it an approval, endorsement or special designation, but the panel finds a related concern over the number of assessments one candidate might be required to take.

High Stakes Examinations___________________________________________________

An examination used for licensing or certification purposes is a high stakes examination as it is a determining factor in whether an individual is granted a right to employment in the profession. Therefore, it is imperative these examinations meet specific criteria. First, they must be valid-that is, the assessment must assess knowledge and skills that directly relate to the certification classification for which the assessment is required. Further, the assessments must be reliable-that is, they must be consistent and predictable and as free as possible from errors of measurement.

Equally as important, the assessments must be free from bias. They must not discriminate against any individual or group based on race, color, creed, gender, disability, or national origin. The assessments must be administered fairly, equitably, and consistently. Finally, teacher candidates must be provided with the opportunity for a fair and impartial appeal of any unsatisfactory assessment.

Costs of Assessments______________________________________________________

The State Board of Education paid for the initial development and updating of the lCTS basic skills and content area tests. Examinee test fees ($44 per test) support the ongoing operation of the program, including study preparation materials, registration activities, test administration, and score reporting.

The cost of assessment development and administration will increase with the number and type of assessments required for certification. The type of assessments required will also impact the cost of test development and administration. Performance assessments are more costly to score than are multiple-choice examinations. The cost of scoring also varies according to the type of performance assessment used-observation and video-based observation are more costly to score than constructed response items. Portfolios assessments are the most expensive to score.

Assuming that a performance assessment is included in the required examinations of the new certification process, it is also necessary to assume increased costs of assessments. There is a potential increase in costs for both the agency and teacher candidates.

Based upon its review of existing research and resources and statutory and administrative rule requirements; and, in consideration of the policy context in which the recommendations will be received, the Assessment Advisory Panel submits to the State Board of Education the following recommendations for the assessment of pre-service and novice teachers to begin July 1, 2003.

• Basing the assessments on the teacher standards will ensure that the assessments reflect the Illinois Learning Standards (K-12 student standards) with which the content area standards are aligned.
• The content area standards, as developed for each teaching certificate and/or endorsement, should be widely published and described to current Illinois teachers as well as to all teacher preparation programs. Efforts should also be made to distribute the standards to non-Illinois teacher preparation programs.

1. Recommendation: Prior to Initial Certificate-Assessment of Basic Skills

• The State Board of Education should either revise the current basic skills test to make it more rigorous or select a commercially available test, such as Praxis I, if it is found to be valid for that purpose and determined to be of sufficient rigor.
• The basic skills test that is used for state certification should also be appropriate for institutions to use, if they choose to do so, for assessing an individual's basic skills prior to admission to teacher education programs. If the basic skills test required by the state for certification is used by an institution as a requirement for admission to teacher education, the passing score used by the institution must be the same as the passing score established by the State Board of Education for certification. Institutions using the state's basic skills test for admission purposes, however, should give consideration of conditional admission to a program to those individuals needing a limited amount of time in which to remediate and demonstrate competency in the basic skills.
• Nothing in this recommendation should preclude an institution of higher education from using a different test of basic skills for admission to teacher education programs. However, the teacher candidate would still need to successfully complete the state's basic skills test prior to receiving the Initial Certificate.

1. Recommendation: Prior to Initial Certificate-Assessment of Content Knowledge

• Content knowledge should be demonstrated by successful completion of a written, content-specific examination for each certificate (early childhood and elementary) and/or area of endorsement (6-12 mathematics, middle school mathematics, K-12 physical education, etc.)
• The State Board of Education should develop or select content-area examinations for each certificate or area of endorsement that reflect both the Illinois Learning Standards (the K-12 student standards) and the content area standards (the discipline specific standards for teachers that are aligned with the Illinois Professional Teaching Standards.)

1. Recommendation: Prior to Initial Certificate-Assessment of Pedagogy

• Pedagogical knowledge should be demonstrated by successful completion of a written examination specifically related to pedagogy for the grade levels of each certificate.
• The State Board should develop or select assessments appropriate to the grade levels of each certificate based on the Illinois Professional Teaching Standards, excluding the first standard, which is content knowledge. Consideration should be given to adopting the INTASC Test for Teaching Knowledge (TTK) if it is found to be reliable and valid for the intended purpose.

1. Recommendation: Alternative Routes to Certification and Alternative Certificates

Before any alternative-route or alternative-certification candidate assumes full-time teaching responsibilities, the candidate should pass the same examinations that are required for the Initial Certificate for graduates of traditional route programs.

 

2. Recommendation: Endorsements/Designations/Approvals

• For example, in order for an individual to acquire a special designation or endorsement in social science on a secondary certificate, the individual would be required to complete an examination in social science. Each additional special certification designation and sub-area designation would require an additional content examination, e.g. economics, history, etc. This holds true for all certification designations defined by the content area panels, including special education. However, the total number of content assessments required should be limited whenever possible by combining endorsements as appropriate.
• Bilingual and English as a Second Language approvals should be treated as special certification designations or endorsements and require a written content examination.
• Special education approvals should be eliminated under the new certification structure that is to be in place July 1, 2003. In the event approvals are not eliminated, the same level/type of assessment required for acquiring additional special certification designations should be applied to special education approvals. That is, someone with an Initial or Standard Elementary Certificate applying for an approval in an area of special education would need to successfully complete the content-area examination for that specialty.

• The State Board of Education should employ appropriate procedures to insure these assessment qualities prior to actual test administration.
• All test frameworks, test items and testing procedures must be reviewed for bias during test development and on an ongoing basis thereafter.

1. Recommendation: Cost of Assessments

The costs for the development, administration, scoring and reporting of the basic skills, pedagogy, and content area assessments should be borne by the State Board of Education. The teacher candidate expense to take these assessments should not exceed a fee of more than $50 per individual assessment taken. The costs for the development, administration, scoring and reporting of the portfolio portion of the examination should also be borne by the agency. The teacher candidate expense for the portfolio portion of the process should not exceed $200 per portfolio or section of the portfolio submitted for approval.

2. Recommendation: Involvement of All Stakeholders

While this report provides specific recommendations for implementing a comprehensive system of early-career teacher certification assessments, several decisions remain to be made within the recommended framework. For example, can the Test for Teaching Knowledge appropriately be used for assessing Illinois' candidates pedagogical knowledge; or, if not, can it be revised so that it may be? The State Board should ensure that representatives from a wide range of significant stakeholder groups are involved prior to making these decisions. Stakeholder groups include among others: professional teacher and administrator associations, higher education, parents, the business community, and teacher candidates.

 

3. Recommendation: Periodic Review of Examinations

Administrator

Wheeling School District #21

Wheeling

Chair, Educational Studies Department

Columbia College

Chicago

CTU Quest Center

Chicago

Chair, Education Department

Wheaton College

Wheaton

Roosevelt School

River Forest

Edwardsville Middle School

Edwardsville

Institutional Tech Center

Eastern Illinois University

Charleston

Assistant Superintendent

Regional Office of Education

Bureau/Henry/Stark Counties

Annawan

Student Assessment Unit

Chicago Public Schools

Chicago

Maine East High School

Park Ridge

Chair, Department of Special Education

Illinois State University

Normal

Chair, Professor

Educational Policy Studies

University of Illinois

Chicago

Principal Consultant

Illinois State Board of Education

Springfield

The Assessment Advisory Panel discussed and reached an overwhelming consensus on the necessity and importance of a teacher induction program--the opportunity to learn necessary skills and knowledge during the four years after the acquisition of the initial teaching certificate and before the standard teaching certificate can be acquired. It is during this time that the candidate, working with a mentor teacher and under the supervision of the evaluating administrator, learns the necessary skills and further develops the required content knowledge to perform successfully in the classroom. The ability of the local school and district to provide such a program will be of great significance in the career development of the candidate for the standard certificate. It is for these reasons that the Assessment Advisory Panel supports the recommendations of the State Board's Induction Advisory Panel recommendations, a summary of which follows.

In order to support teachers with initial certification, each district shall participate in an approved induction/mentorship program that is incorporated into its school improvement plan. Research studies show that teachers with mentoring remain in teaching at a greater rate and that mentoring programs affect teaching in a positive manner. Every district shall follow the guidelines as recommended by the Illinois Induction Advisory Panel for the implementation of the program as outlined below. (See "Recommendations from the Illinois Induction Advisory Panel: Phase II" for detailed guidelines.)

State funding of the Illinois Induction Initiative is critical so that beginning teachers may successfully meet the high standards required for attainment of the standard teaching certificate.

A strong, well-planned induction program that involves daily reflection, application of newly honed skills, guidance of a trained mentor, and supervision of an administrator provides the foundation upon which standard certification can be achieved. The professional growth portfolio that a teacher in the induction stage submits to gain standard certification can only be but a sampling of the many skills and abilities that a teacher needs to demonstrate. However, the portfolio can function as the culminating artifact of four years of a strong induction program to determine competency in the Illinois Professional Teaching Standards.

• A committee comprised of teachers, administrators and outside resource individuals will develop and oversee the teacher induction/mentorship program. Outside resource individuals may include parents, representatives from community agencies, university faculty, ROE/ISC staff, or members of the private sector.
• Each school district will develop a written four-year plan, which shall include:

• Each district's induction program shall be designed to maximize the development of the skills described in the Illinois Professional Teaching Standards.
• Each district's induction program will establish formal staff development in effective mentoring processes and practices for both mentors and administrators.
• Districts should consider the benefits of using a partnership with other education agencies and institutions in the development and/or implementation of their induction programs.
• ISBE shall establish a system for leadership development to assist in the design and improvement of induction programs throughout the state.
• Implementation and improvement of the district's induction program will be guided by a clearly defined set of purposes and a system of annual program evaluation.
• A state-wide advisory board will be established to oversee development, operation, and implementation of induction/mentorship programs throughout the state of Illinois.