After consulting these appendices, you will see that — at the time they were chosen — the cut scores for the 11th grade math test put 46.5% of all test takers in the “substantially below proficient” category (see page 19 of Appendix F 2007-08). This is almost four times as many students as were in that category for the 11th grade reading test and more than twice as many for any other NECAP test in the other grades.
Tom also explains at length the difference between "a test like NECAP, designed to rank schools and students, and a test designed to evaluate student proficiency," but to me the bottom line is the cut scores.
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