A new report from ACT says the composite average for Indiana students was 21.9 out of a maximum score of 36 this year.
Tony Bennett, who resigned as Florida's schools chief over allegations of wrongdoing in Indiana, is working for ACT Inc. on a new Common Core test.
The testing company says only about a quarter of high school students are reaching benchmark scores that correlate with college success.
An Indiana University researcher found that students who attend schools where scores are improving do not do better on the ACT college entrance exam.
The photo ID requirement is intended to stop cheating on the tests.