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    • Last reviewed August 2023

    Minnesota Issue Guide
    Academic Standards

    This guide is compiled by staff at the Minnesota Legislative Reference Library on a topic of interest to state legislators. It introduces the topic and points to sources for further research. It is not intended to be exhaustive.

    Legislative History • Books and Reports • Articles • Additional Library Resources • Groups

    Historically, Minnesota high schools awarded diplomas based on Carnegie units ("seat time requirements") or course credits completed by students. Critics maintained that this system provided no statewide standards on subject content and no statewide assessment of what students had learned.  

    In the early 1990's, the Minnesota Legislature, the now defunct Minnesota State Board of Education, and the Minnesota Department of Children, Families & Learning (now known as the Department of Education), worked together to develop a more rigorous K-12 education system that standardized curriculum and testing in the state. The resulting graduation rule had two distinct components: Basic Skills Tests and the Profile of Learning standards (Laws of Minnesota 1993, chapter 224, article 7, section 27).  

    The Profile of Learning standards contained 10 learning areas, plus a requirement for vocational education. Detailed content standards were developed for each learning area. Elementary and middle school students had to master preparatory content standards, while high school students had to complete 24 of 48 high school content standards. Basic Skills Tests in reading, writing, and mathematics were developed to ensure that students acquired the basic level of knowledge needed to function in a literate society. Under this new system, students had to meet two general requirements to graduate: pass the Basic Skills Tests and successfully complete a minimum number of Profile of Learning standards.

    Standards

    The development and implementation of the Profile of Learning standards generated much debate. Concerns with the content of the standards and with how the standards were taught led to a compromise which gave local school boards the authority to decide which content standards students had to complete and how many standards were required for graduation. Districts were also able to select the assessment tools used to measure student performance (Laws of Minnesota 2000, chapter 500). 

    Continuing dissatisfaction with the Profile of Learning led to its repeal in 2003. It was replaced with the Minnesota Academic Standards (Laws of Minnesota 2003, chapter 129). The new law defined five core academic content standards areas: language arts, mathematics, science, social studies, and arts. Standards for mathematics, language arts, and arts were adopted in the 2003 law. The law allowed school districts to use either the statewide arts standards or locally-developed arts standards. The 2004 Legislature adopted science and social studies standards (Laws of Minnesota 2004, chapter 294, article 6). In 2023, the Legislature eliminated the option for school districts to use a locally-developed arts standard. Schools are now required to use the Minnesota Academic Standards in the Arts (Laws of Minnesota 2023, chapter 44, article 2, section 4).  Per Minnesota Statute 120B.021, schools are required to use state standards in English language arts, mathematics, science, social studies, physical education, and the arts. 

    Each of the academic standards are supplemented by grade-level benchmarks. These benchmarks specify the academic knowledge and skills that students must achieve to complete a state standard. In addition to the core academic standards areas, there are several elective subject areas. School districts are required to create local elective standards and offer elective courses covering health, world languages (using world languages standards developed by the American Council on the Teaching of Foreign Languages), and career and technical education.

    Standards are reviewed and revised on a ten-year cycle. The Minnesota Department of Education provides more details about current Academic Standards and the review and revision process. See the legislative history section below for additional details.

    Assessment

    The state's assessment system has evolved over the years. In 2005, the Basic Skills Tests (BST) were replaced by the Minnesota Comprehensive Assessments (MCA) (Laws of Minnesota 2005 First Special Session, chapter 5, article 2).  The MCAs were developed to help schools and districts measure student progress in mastering the state's new reading, writing, and mathematics standards. The MCAs would first be administered in third grade and in selected years through 8th grade. Students' performance on these tests would be one of the factors used to determine grade promotion or retention. As a graduation exam, the MCA writing test would be administered in 9th grade, the MCA reading test in 10th grade, and the MCA mathematics test in 11th grade. All public schools and charter schools were required to administer the tests. (For additional information see, Minnesota Assessment System History.) 

    The 2005 legislation establishing the MCA created a transition process for schools and students. Students who entered 8th grade in the 2004/2005 school year (or earlier) were required to pass the Basic Skills Tests; starting with the class of 2010 (students who entered 8th grade in the 2005/2006 school year) students were required to pass the MCA (Laws of Minnesota 2005, 1st Special Session, chapter 5, article 2). 

    In 2007, the Minnesota Legislature passed a law creating the Graduation Required Assessment for Diploma (GRAD) (Laws of Minnesota 2007, chapter 146, article 2). The law required in order to graduate from high school, a public-school student had to pass GRAD tests in writing, reading, and mathematics. The GRAD reading and mathematics test items were embedded in the reading and mathematics MCAs (MCA-Series II). The test scores of the two were reported separately. GRAD scores were used to determine a student’s edibility to graduate, and the MCAs were used to determine if academic standards are being met. See the 2009 House Research document, Minnesota’s High School Graduation Requirements.  

    A 2009 law modified the graduation requirements related to the mathematics test, providing alternate assessment options for students who did not pass the mathematics GRAD test (Laws of Minnesota 2009, chapter 96, article 2). 

    In 2013, the Legislature altered the testing laws in several ways. Testing requirements for high school graduation were changed by adding alternative assessment options for students who do not pass the GRAD tests. The law also required the development of new assessments that are aligned with the academic standards but that also include career and college readiness benchmarks (Laws of Minnesota 2013, chapter 116, article 2).

    As of the 2021-2022 school year, the Commissioner of Education must establish the testing period as late as possible each school year and publish the testing schedule at least two years prior to the beginning of the test period (Laws of Minnesota 2019, chapter 11, article 2, section 3). See the legislative history section below for additional details.

    Graduation Requirements

    To graduate from high school in Minnesota, students must satisfy the credit requirements under Minnesota Statute 120B.024. A school must adopt graduation requirements that meet or exceed the state graduation requirements in law or administrative rule. Please see the Minnesota House Research Department publication, Minnesota’s Graduation Requirements, for more information. 

    In 2023, the Legislature added civics and personal finance courses as high school graduation requirements. Schools will be required to teach courses on the Holocaust and genocide studies starting in the 2026-2027 school year, and all grade levels must offer ethnic studies courses. Furthermore, K-12 teachers renewing their license must be trained in Native American history and culture. In addition to the new required courses and training, the Legislature passed The READ Act ("Reading to Ensure Academic Development Act"), which made changes to reading instruction in the state. The Minnesota Department of Education provides more information about the implementation of the READ Act. See the legislative history section below for additional details. 

    Legislative History

    Current Minnesota Statutes and Administrative Rules

    Note: There may be additional statutes and rules that are not included here.

    Session Laws

    Significant Books and Reports

    Reports published after 2002:

    Assessment Advisory Committee Report, 2008. St. Paul: Minnesota Department Education. (LB3052.M6 A87) (Required by Laws of Minnesota 2003, chapter 129, article 1, section 11)

    Bybee, Rodger. Minnesota Academic Standards in Science (Draft of Revision): An External Review for the Minnesota Department of Education. Roseville: Minnesota Department of Education, 2008. (LB3052.M6 B93 2008)

    Champagne, Audrey B. Minnesota Standards Review. Roseville: Minnesota Department of Education, 2008. (LB3052.M6 C43 2008)

    Documents Relating to the Drafting Process of the Minnesota Academic Standards for Science, History, and Social Studies, 2004. (Required by Laws of Minnesota 2003, chapter 129, article 1, section 3)

    Drafting Documents for the Minnesota Academic Standards for History and Social Studies. 2004. (Required by Laws of Minnesota 2003, chapter 129, article 1, section 3.)

    Drafting Documents for the Minnesota Academic Standards for Science (K-12). 2003-2004. (Required by Laws of Minnesota 2003, chapter 129, article 1, section 3)

    Larson, Lisa. World Language Proficiency for High School Students. St. Paul: Minnesota House of Representatives, Research Department, 2015.

    Lombard, Thomas J. An Alignment Study of the Minnesota Comprehensive Assessment-II With State Standards in Mathematics for Grades 3-8 and 11. Roseville: Minnesota Dept. of Education, 2006. (LB3052.M6 L66 2006)

    Lombard, Thomas J. An Alignment Study of the Minnesota Comprehensive Assessment-II With State Standards in Reading and Literature for Grades 3-8 and 10. Roseville: Minnesota Dept. of Education, 2006. (LB3052.M6 L662 2006)

    Minnesota Academic Standards: Arts K-12 (2003). Roseville: Minnesota Dept. of Education, 2003. (LB1629.M6 M574 2003) (Required by Laws of Minnesota 2003, chapter 129, article 1, section 3)

    Minnesota Academic Standards: Arts K-12 (2008). Roseville: Minnesota Dept. of Education, 2009. (LB1629.M6 M574 2009) (Required by Laws of Minnesota 2003, chapter 129, article 1, section 3)

    Minnesota Academic Standards: Kindergarten (2015). Roseville: Minnesota Dept. of Education, 2015. (LB1629.M6 M578 2015).

    Minnesota Academic Standards: Language Arts K-12 (2003). Roseville: Minnesota Dept. of Education, 2003. (LB1629.M6 M572 2003) (Required by Laws of Minnesota 2003, chapter 129, article 1, section 3)

    Minnesota Academic Standards: Mathematics K-12 (2003). Roseville: Minnesota Dept. of Education, 2003. (LB1629.M6 M573 2003) (Required by Laws of Minnesota 2003, chapter 129, article 1, section 3)

    Minnesota Academic Standards: Mathematics K-12 (2007). Roseville: Minnesota Dept. of Education, 2007. (LB1629.M6 M573 2007) (Required by Laws of Minnesota 2003, chapter 129, article 1, section 3)

    Minnesota Academic Standards: Science K-12 (2003). Roseville: Minnesota Dept. of Education, 2003. (LB1629.M6 M575 2003) (Required by Laws of Minnesota 2003, chapter 129, article 1, section 3)

    Minnesota Academic Standards: Science K-12 (2009). Roseville: Minnesota Dept. of Education, 2009. (LB1629.M6 M575 2009) (Required by Laws of Minnesota 2003, chapter 129, article 1, section 3)

    Minnesota Academic Standards in History and Social Studies (2004). Roseville: Minnesota Dept. of Education, 2004. (LB1629.M6 M576 2004) (Required by Laws of Minnesota 2003, chapter 129, article 1, section 3)

    Minnesota's K-12 Academic Standards and Assessments. St. Paul: Minnesota House of Representatives, Research Department, 2006. (HN79.M6 S56 2006)

    Minnesota K-12 Academic Standards in Social Studies (2011). Roseville, MN: Minnesota Dept. of Education, 2012. (LB1629.M6 M577 2012) (Required by Laws of Minnesota 2003, chapter 129, article 1, section 3)

    Minnesota’s Graduation Requirements. St. Paul: Minnesota House of Representatives, Research Department, 2022. (LB3065 .M566 2022) 

    Peterson, Kristin A. Computerizing Statewide Educational Assessments in Minnesota: A Report on the Cost and Feasibility of Converting the Minnesota Comprehensive Assessments to a Computerized Adaptive Format. Minneapolis, MN: Office of Educational Accountability, College of Education and Human Development, University of Minnesota, 2005. (LB3052.M6 P48 2005) (Required by Laws of Minnesota 2004, chapter 294, article 2, section 33)

    Recommendations: Minnesota's High Academic Standards: Report to the Legislature. Roseville, MN: Minnesota Department of Education, 2004. (LB1629.M6 R433 2004) (Required by Laws of Minnesota 2003, chapter 129, article 2, section 2)

    Welty, Kenneth. [Review of Minnesota Academic Standards in Science]. Roseville: Minnesota Department of Education, 2008. (LB3052.M6 R48 2008)

    Reports published prior to 2003:

    1998 Report on Graduation Standards. St. Paul: State Board of Education, Minnesota Department of Children, Families & Learning, 1998. (LB1629 .M6 N56 1998) (Required by Minnesota Statutes, section 121.11, subdivision 7c.) (Text of report: Part 1, Part 2)

    Avery, Patricia G. et al. The Impact of Minnesota's Profile of Learning on Teaching and Learning in English and Social Studies Classrooms. Minneapolis: University of Minnesota, College of Education and Human Development, Department of Curriculum and Instruction, 2002. (LB1629.M6 A83 2002)

    Commissioner's Action Plan for Refining the Profile of Learning. St. Paul: Minnesota Department of Children, Families & Learning, 2001. (LB1629.M6 C66 2001)

    Final Report: Projected Costs to School Districts in Minnesota and to the State Associated with Implementing the Profile of Learning in 1998-99 and 1999-2000. Denver, CO: Augenblick & Myers, 1997. (LB1629. M6. F56 1997)

    The Graduation Standards: January 15, 1997 Annual Report to the Minnesota State Legislature as Required in M.S. 121.11, subdivision 7c. St. Paul: Minnesota State Board of Education: Minnesota Department of Children, Families & Learning, 1997. (LB1629.M6 G73 1997) (Required by Minnesota Statutes, section 121.11, subdivision 7c)

    Graduation Standards: Report to the Legislature as Required by M.S. 120B.02. Roseville, MN: Minnesota Department of Children, Families & Learning, 2000. (LB1629.M6 G78 2000) (Required by Minnesota Statutes, section 120B.02)

    Graduation Standards Advisory Panel Recommendations: Report to the Governor and CFL Commissioner as Required by Minnesota Laws 1998 Chapter 398 Article 5 Section 9. Roseville, MN: Minnesota Department of Children, Families & Learning,1998. (LB1629.M6 G75 1998) (Required by Laws of Minnesota 1998, chapter 398, article 5, section 9)

    Graduation Standards Expenditures, FY1994-FY2001. St. Paul: Minnesota Senate. Office of Senate Counsel and Research, 2000. (LB1629.M6 G734 2000)

    Graduation Standards Update. St. Paul: Minnesota Department of Children, Families & Learning, 1996. (LB 3051.G73 1996) (Alternate report title: Progress Report of Graduation Standards Project.) (Includes drafts of standards.) (Text of report: Part 1, Part 2)

    Kersten, Katherine A. Minnesota's Profile of Learning: The Radical Mutation of a Good Idea. Minneapolis: Center of the American Experiment, 1999. (LB1629.M6 K47 1999)

    Larson, Lisa. Profile of Learning: Legislative Action in 1999 and 2000. St. Paul: Minnesota House of Representatives, Research Department, 2000. (LB1629.M6L372 2000)

    Larson, Lisa. Profile of Learning and the State's High School Graduation Rule. St. Paul: Minnesota House of Representatives, Research Department, 1998. (LB1629.M6 L377 1998)

    Manno, Bruno V. Outcome-Based Education: Has It Become More Affliction Than Cure? Minneapolis: Center of the American Experiment, 1994. (LC1032 .M36 1994) (Contains a well-documented chronology of the development of Minnesota's "results-oriented" graduation rule, including summaries of the various drafts of the rule.)

    Minnesota Graduation Standards Implementation: How it Looks From Where It's Happening. Roseville, MN: Minnesota Department of Children, Families & Learning, 2000. (LB1629.M6 M55 2000)

    Recommendations for Continuous Improvement of the Profile of Learning: A Report Presented by the Academic Panel to the Commissioner of the Department of Children, Families & Learning Consistent with Minnesota Session Laws 2000, chapter 500, section 14, subdivision 12. Minnesota: Academic Panel, 2001. (LB1629.M6 R43 2001) (Required by Laws of Minnesota 2000, chapter 500, section 14, subdivision 12)

    Technical and Vocational Education under Minnesota's Graduation Standards: Report to the Legislature 2001 as required by Senate File 3286 Section 18. Roseville, MN: Minnesota Department of Children, Families, & Learning, 2001. (LB1629.M6 T43 2001) (Required by Laws of Minnesota 2000, chapter 500, section 18)

    Significant Articles

    (articles in reverse chronological order)

    Griffith, Michelle. “Minnesota implements new Native American history requirement for K-12 teachers.” Minnesota Reformer, August 1, 2023. 

    Faircloth, Ryan. “Minnesota’s new graduation requirements: Learn how to manage money and participate in democracy.” Star Tribune, June 22, 2023. 

    Shockman, Elizabeth. “Experts say Read Act is a major investment in literacy education.” Minnesota Public Radio, May 19, 2023. 

    Verges, Josh. “Here’s what’s in the giant education bill that passed the MN House and Senate.” St. Paul Pioneer Press, May 18, 2023. 

    Levine, Rob. “Phonics Fundamentalism comes to Minnesota: Inside the perils of legislating literacy with suspect science.” Racket MN, April 26, 2023. 

    Shockman, Elizabeth. “Legislators consider bill requiring ethnic studies in Minnesota high schools.” Minnesota Public Radio, March 23, 2023. 

    Abrams, Steve. “Lawmakers hear plan to fund, provide American Indian education to all Minnesota students.” Session Daily, March 16, 2023. 

    Abrams, Steve. “Holocaust survivor urges lawmakers to mandate genocide studies in Minnesota classrooms.” Session Daily, March 15, 2023. 

    Shearer, Jordan. “Rochester Public Schools starts planning for new environmental science course to meet state standards; The course will be required of ninth-graders starting in the year 2024-25.” Rochester Post-Bulletin, March 8, 2023. 

    Derosier, Alex. “As US schools struggle, Minnesota eighth-grade math scores lowest in decades.” Alexandria Echo Press, October 24, 2022. 

    Verges, Josh. “After uproar, second draft of MN math standards shows 1% of learning benchmarks would address tribes, cultures.” St. Paul Pioneer Press, May 19, 2022. 

    Verges, Josh. "Minnesota Teachers, Parents Criticize 'Awkward' Tribal References in Proposed Math Standards." St. Paul Pioneer Press, March 29, 2022.

    Campuzano, Eder. "Minnesota's Proposed Social Studies Standards are Under Legal Review as Debate Over Ethnic Studies Swirls." Star Tribune, February 6, 2022. 

    Eischens, Rilyn. "Latest Social Studies Standards Draft Urges Ethnic Studies Focus.” Minnesota Reformer, November 19, 2021.  

    Editorial. "Our View: MCAs Test Results Just a Piece of the Educational Puzzle: Why it Matters: Recent State Test Results Are Just One Imperfect Element of Figuring Out What Student Needs Are as the Pandemic Continues." Mankato Free Press, September 1, 2021.

    Guerry, Matthew. “Minnesota Testing Results Show Sharp Drop in Math, Reading Scores During Pandemic: Education Officials Pledge to Help Students Recover from Pandemic Learning Disruptions.” Rochester Post-Bulletin, August 27, 2021.

    Golden, Erin and MaryJo Webster. "More Minnesota Students Opting Out of State Tests." Star Tribune, September 14, 2019.

    "Minnesota Science Teachers Invited to Weigh in on New Standards." Minnesota Educator, April/May 2019, p. 3.

    Magan, Christopher. "Deep Dive Into MN Student Test Scores Shows Progress Not Shared By All." St. Paul Pioneer Press, September 3, 2018.

    Lonetree, Anthony. "Audit: Standardized School Tests Costly But Inconsistently Useful." Star Tribune, March 7, 2017.

    Magan, Christopher. "Bill Would Delay Review of Minnesota Math Benchmarks." St. Paul Pioneer Press, February 12, 2015.

    Ragsdale, Jim. "Minnesota Judge Oks New Social Studies Standards." Star Tribune, March 24, 2013.

    Hawkins, Beth. "Few Would Likely Mourn an End to Minnesota's High-School Exit Tests." MinnPost, December 6, 2012.

    Boldt, Megan. "Minnesota Educators Say No to Joining the Crowd: Minnesota Breaks With Much of the Rest of the Country and Decides Against Adopting National Standards to Measure Student Achievement." St. Paul Pioneer Press, August 1, 2010.

    Boldt, Megan. "Minnesota Launches Science Test This Year." St. Paul Pioneer Press, September 3, 2007.

    "Minnesota Assessment System History." In: Minnesota Assessments Technical Manual, 2006-2007. Roseville, MN: Minnesota Dept. of Education, 2007. (C08-0002).

    Boldt, Megan. "Skills Exams May Get Tougher: State Raises Standards on Annual Assessment." St. Paul Pioneer Press, February 12, 2006.

    Boldt, Megan. "Do-Over Near for Minnesota's Student Testing: Grad Requirement Likely to Shift from Basic Skills to Tougher Exam." St. Paul Pioneer Press, May 30, 2005.

    "Special Report: Minnesota's Academic Experiment: New Standards." St. Paul Pioneer Press, August 31, 2003.

    Draper, Norman. "Few Shed Tears Over Demise of the Profile: Some Express Fears About the New Rules for Schools." Star Tribune, May 25, 2003.

    Welsh, John. "Has Profile Produced Dumber Students? It Depends -- But Test Scores Do Show Achievement." St. Paul Pioneer Press, May 15, 2003.

    Kersten, Katherine A. "Minnesota's Profile of Learning: A Primer on Why it Still Flunks." American Experiment Quarterly, Winter 2002-2003, p. 37-51.

    Ravitch, Diane. "A Century of Failed School Reforms: The Case of Minnesota's Profile of Learning." American Experiment Quarterly, Spring 2001, p. 13-25.

    Additional Library Resources

    For historical information, check the following codes in the Newspaper Clipping File and the Vertical File:

    • Codes for clippings from 1999 to date and the Vertical File:
      E12.133 Education - Testing and Standards, E12.69 Outcome-based Education
    • Codes for clippings prior to 1999:
      E12.186 Educational Tests and Measurements, E12.69 Outcome-based Education

    For additional reports at the Legislative Reference Library, use these Library catalog searches:
    Education Standards; Profile of Learning

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