The history of bilingual education in Massachusetts since its first bilingual education law in 1971 is examined and compared to the experience of California, which is offered as an example of how bilingual education policy and practice may evolve in other states. It is suggested that Massachusetts has paralleled the California experience in failing to collect student performance data over the last two decades, to demonstrate good or bad results of transitional bilingual education programs. The reading test administered to third-graders across Massachusetts in 1997 and 1998 is proposed as an example of this resistance to accountability. Increased flexibility in local program choice and participation of English language learners in the assessment process is recommended for Massachusetts. (MSE)