The State of New York s Failing Schools

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1 The State of New York s Failing Schools 2015 Report Office of Governor Andrew M. Cuomo

2 Report was prepared by the Policy Office, Education Team and the Division of Budget.

3 The State of New York s Failing Schools 2015 Report Governor Cuomo is committed to providing access to high quality education for all New Yorkers, no matter who are they are or where they live. Education is the cornerstone of our democracy and paves the way to increased social and economic opportunity. The Governor believes that all of our children deserve a high quality public education that will help them lead successful, fulfilling lives. In his first term Governor Cuomo implemented a series of policies to increase access to early education, equip schools with 21 st century learning technology and internet connectivity, and recognize and reward our best teachers. Although these steps have been important, our public education system requires further reform. Part One: Our Schools and Students There are 68 school districts in New York with 4,530 public and charter schools that enroll 2. million students. New York is also home to 1,68 private schools. 1 Our schools serve a diverse student population: Students by Ethnicity ( School Year) Black or African American 18% Hispanic or Latino 25% White 46% Asian or Native Hawaiian/Pacific Islander % American Indian or Alaska Native 1% Multiracial 1% Data from New York State Education Department Other Groups ( School Year) Limited English Proficient Students 8% Students with Disabilities 16% Economically Disadvantaged Students* 53% Data from New York State Education Department *Economically disadvantaged students are defined as those who participate in, or whose families participate in, economic assistance programs, such as the free or reduced-price lunch programs, Social Security Insurance (SSI), Food Stamps, Foster Care, Refugee Assistance (cash or medical assistance), Earned Income Tax Credit (EITC), Home Energy Assistance Program (HEAP), Safety Net Assistance (SNA), Bureau of Indian Affairs (BIA), or Family Assistance: Temporary Assistance for Needy Families (TANF). 1 New York State Department of Education, Information and Reporting Services. See 3

4 Part Two: The State s Financial Commitment New York's average spending per pupil spending grew from $11,546 in to $1,552 in As of today, New York spends more than any other state on a per pupil basis and per pupil spending is 84 percent higher than the national average of $10, New York has been the highest spending state in every school year since , when the state surpassed New Jersey. In addition, our education spending tops that of every other nearby state by a significant margin: it is 13 percent greater than New Jersey's, 20 percent greater than Connecticut's, 38 percent greater than Massachusetts's and 4 percent greater than Pennsylvania's. Not one New York school district spent less than the national average; most spent considerably more. $25,000 New York State Spending Per Pupil $20,000 $15,000 $15,81 $1,13 $18,126 $18,618 $1,06 1,552 $10,000 $5,000 $ Data from the U.S. Census Bureau. Data as of May State support has financed much of New York s spending growth. For example, school district expenditures more than doubled between 1-8 and , growing from $2.6 billion to $58.3 billion. 4 Over the same 15-year period, district revenues increased by $31.2 billion. 2 Data from the United States Census Bureau. 3 Data from the United States Census Bureau. 4 New York State Education Department. 4

5 Total Percentage Increase in Spending vs. CPI 1-8 to % 100.0% 80.0% 60.0% 40.0% 20.0% 0.0% School Spending CPI The distribution of this increase almost exactly mirrors that of school districts' total revenues in ; even in the face of significant economic and policy challenges the State has maintained its commitment to funding education. Although comprehensive financial data is not yet available for the and school years, it is expected that these years will ultimately show education spending has grown to surpass $60 billion statewide. The State's last two Enacted Budgets contained School Aid increases totaling approximately $2.1 billion, bringing School Aid to its highest annual level in history at $22.2 billion in In addition, these two years saw independent school districts present voters with budgets seeking the levy of $1.0 billion of additional property taxes. New York State s School Aid funding is progressive. For example, under the Enacted Budget, New York State provides nearly three times as much aid per pupil to high-need school districts ($,63) as to low-need districts ($3,31). Excluding New York City, which has significantly more income and property wealth than most high-need districts, the State provides $12,634 of aid per pupil to highneed districts. Because of this progressive formula, in State aid provided the 20 percent of school districts with the lowest fiscal capacity with almost 0 percent of their total revenues on average, compared to less than 1 percent for the 20 percent of districts with the greatest fiscal capacity. 5

6 Part Three: Student Achievement New York students in third through eighth grades must demonstrate proficiency in math and English language arts (ELA) on two separate statewide standardized tests. The tests measure student proficiency in these subjects on a four-point scale. To be considered proficient, a student must score a 3 or 4. According to the most recent scores available, in 2014, only 35.8 percent of students were proficient in math and 31.4 percent were proficient in ELA. 5 Thus approximately two-thirds of students are NOT proficient in these two subjects. Nationally, New York is ranked 32 nd in both 4 th and 8 th grade math scores; and 20 th and 32 nd in 4 th and 8 th grade ELA scores, respectively. 6 For high school students, statewide achievement is measured by graduation rates and measures of college readiness. For the 2010 cohort, 6.4 percent of students graduated from high school in four years. Using the most recent available national data (from the school year), New York s graduation rate ranked the state 33 rd in the country. Students in the largest school districts graduate at much lower rates than the statewide average. College readiness is measured by students graduating with at least a score of 5 on the English Regents and 80 on the Math Regents, which correlates with success in first-year college courses without the need for remediation. 8 In 2014, 38 percent of our high school graduates were deemed college ready. Low as this number is, it should be noted that the definition of college readiness is not even universally accepted by the higher education community. Faculty members at SUNY colleges use a variety of assessments and scores to determine whether students are ready for college-level work, and often find that students who meet the SED threshold for college readiness nonetheless require remediation in at least one area. 5 New York State Department of Education, Information and Reporting Services. See 6 National Center for Education Statistics. For the school year, SED reported a graduation rate of 4. percent. 8 New York State Department of Education. See: 6

7 Part Four: Two years ago, Governor Cuomo took steps to ensure that every school district in the state enacted a teacher evaluation system to measure the effectiveness of our teachers and principals. The current system is: percent of the overall score based on "student growth" on assessments/tests. At least 20 percent must be based upon state tests for teachers in tested grades and subjects or other comparable measures if a state test is not available. And up to 20 percent for locally determined measures of student achievement. Districts can allocate all 40 percent to state assessments but must use a different growth measure for the second 20 percent percent of the overall score based upon qualitative measures of effectiveness (e.g. observations) that vary across districts. Despite the implementation of a teacher evaluation system aimed at identifying effective teachers, providing support to those who need it, and increasing student achievement levels, since the system took effect, the state s students have continued to underperform while our teachers have received the highest ratings. The system rates teachers in one of four categories: Ineffective, Developing, Effective and Highly Effective, across three different system components that yield one summative score for every teacher. In its first year, the school year, the teacher evaluation system resulted in the following ratings: 4.5 percent of teachers were rated Highly Effective and Effective 4.5 percent of teachers were rated Developing 1.0 percent of teachers were rated Ineffective In the school year, the teacher evaluation system resulted in the following ratings: 5.6 percent of teachers were rated Highly Effective and Effective 3. percent of teachers were rated Developing 0. percent of teachers were rated Ineffective It is incongruous that % of teachers were rated effective 10, while only 35.8 percent of our students are proficient in math and 31.4 percent in English language arts. How can so many of our teachers be succeeding when so many of our students are struggling? 10 Received ratings of highly effective, effective or developing.

8 Statewide Teacher Evaluations 11 Rating Percent of Teachers Percent of Teachers Highly Effective 51.2% 41.% Effective 43.3% 53.% Developing 4.5% 3.% Ineffective 1% 0.% TOTAL 100.0% 100.0% Data from New York State Education Department. Data as of December SED has not yet released district-level teacher evaluation details for the school year except for New York City. The statewide rating breakdowns are expected to be even less distributed than they were in the school year. Part Five: Failing Schools Today there are 18 priority or failing schools in 1 school districts in New York. These schools have been in a monitored or accountability status pursuant to SED regulations for the last three school years and have been among the bottom five percent in the state in ELA and math performance or have graduation rates below 60 percent. 12 There are currently 10,000 students enrolled in these failing schools. Of the 18 schools, have been failing for a decade. More than 250,000 students 13 have passed through these schools in the past ten years. That represents 250,000 students who did not have access to the high quality public education that they deserved. Moreover, we are failing the kids who need us most. Ninety-three percent of students in failing schools are students of color and 82 percent of these students are eligible for free or reduced price lunch. Student achievement today at failing schools lags behind state averages in every category. 11 This summary reflects the data that were reported to the Department by districts, BOCES, and charter schools with approved APPR plans as of the 10/1/2014 deadline. 186,8 teachers were reported with 3 complete subcomponents and an overall composite rating. New York City did not have a system in place for the school year, but is included in Division of Budget estimates based on historic enrollment data from SED. 8

9 Student Achievement Failing Schools Statewide ELA Proficiency 5.% 31.4% Math Proficiency 6.2% 35.8% Graduation Rate 46.6% 6.4% Data from New York State Education Department. Despite the fact that districts with failing schools receive more State funding than other districts, these schools are delivering unacceptable results. For example, the Enacted Budget provides the 1 school districts containing these failing schools with $,000 of School Aid per pupil on average, or 11 percent more than the statewide average of $8,114. The 16 school districts outside New York City, meanwhile, receive $12,33 of School Aid per pupil on average, or 5 percent more than the statewide average. These statistics and more are summarized in the school snapshots contained in the Appendix to this report. 14 Part Six: Conclusion The statistics and facts contained in this report and its Appendix expose a public education system badly in need of change. Our levels of achievement must increase if we want to ensure bright futures for all New Yorkers. This is why Governor Cuomo has proposed an ambitious education reform agenda in his Executive Budget that addresses key areas including teacher preparation, certification, evaluation and tenure and the transformation of our failing schools. Our students deserve nothing less. 14 This Appendix contains snapshots for 1 of the 18 failing schools in the state. The Greenburgh Eleven Middle School, identified by the State Education Department as a Priority School, is not included in this Appendix since it is a part of the Greenburgh Eleven Union Free School District (a Special Act School District) and comparable data is not available in all categories. Special Act School districts were created by special action of the legislature for the purpose of providing education services to students who reside in child care institutions.

10 The State of New York s Failing Schools Appendix Albany City School District Amsterdam City School District Buffalo City School District Central Islip Union Free School District Hempstead Union Free School District Mt Vernon School District Newburgh City School District New York City School District... 5 Poughkeepsie City School District Rochester City School District Roosevelt Union Free School District Schenectady City School District Syracuse City School District Troy City School District Utica City School District Wyandanch Union Free School District... 1 Yonkers City School District

11 Glossary of Terms & Data Sources Spending Per Pupil: Census reported Current Spending per pupil from all sources (federal, state and local.) The Census defines current spending as current direct expenditure for salaries, employee benefits, purchased professional and technical services, purchased property and other services, supplies. It includes gross school system expenditure for instruction, support services, and non-instructional functions. It also includes payments made by the state government on behalf of school systems, and transfers made by school systems into their own retirement funds. It excludes expenditure for debt service, capital outlay, and reimbursement to other governments (including other school systems). Also excluded are payments made on behalf of the school system by other governments including employee retirement payments made by state governments to state retirement funds and to social security. Employer contributions made by those few school systems that have their own retirement systems into their own retirement funds are excluded. Source: United State Census Bureau "Public Elementary Secondary Education Finance Data." Individual Unit Tables. Grades 3-8 ELA Proficiency: Percent of Students to have scored a 3 or a 4 on the Grades 3-8 English Language Arts State Exam. Source: New York New York State Education Department, Release of Data--August 14,2014. "Media File Grades 3-8 ELA and Mathematics." Grades 3-8 Math Proficiency: Percent of Students to have scored a 3 or a 4 on the Grades 3-8 Mathematics State Exam. Source: New York New York State Education Department, Release of Data--August 14,2014. "Media File Grades 3-8 ELA and Mathematics." Graduation Rate: The June 4 year Graduation Rate for the 2010 cohort. New York State Education Department, Graduation Rate Data--December 18, 2014 "Rate and Enrollment Outcomes by Student Subgroup." In Accountability Status since : School identified by New York State Education Department to be in a standing other than "In Good Standing" since State Source: New York Education Department, Accountability Data. 11

12 : Number of Years a school has been identified by New York State Education Department to be in a standing other than "In Good Standing" since Source: New York State Education Department, Accountability Data. : A measure of a district's ability to meet the needs of its students with local resources. Is the ratio of the estimated poverty percentage (expressed in standard score form) to the Combined Wealth Ratio (expressed in standard score form). A district with both estimated poverty and Combined Wealth Ratio equal to the State average would have a need/resource capacity index of 1.0. Need/Resource Capacity (N/RC) categories are determined from this index using the definitions provided by the New York State Education Department in the table located here: Percent of Free or Reduced Price Lunch Students: The three-year average computed as: (a) the number of K-6 public school pupils in the district who were eligible applicants for Free and Reduced-Price Lunch Program as of October 2010, 2011 and 2012 divided by (b) the full day K-6 enrollment of pupils on a regular day school register as reported in the Fall 2010, 2011 and 2012 Basic Education Data System (BEDS). Source: New York New York State Education Department, February Percent of Free or Reduced Price Lunch Students for a School: Percent of students identified as receiving free or reduced lunch in the school year. Source: New York State Education Department " Report Card Database." Percent Minority Students: The Percent of the enrollment in a school identified as any ethnicity other than "white" in the school report card dataset. Source: New York State Education Department " Report Card Database." Percent of Students English Language Learners: Computed as (a) the number of pupils served in the base year in programs for pupils with limited English proficiency in accordance with regulations adopted for such purpose (used in the calculation of Foundation Aid) divided by (b) the estimated Fall 2013 public school enrollment for State Aid which includes equivalent attendance, students with disabilities attending BOCES full time, homebound students educated at a district expense and charter school enrollment (excluding students with disabilities attending private and State operated schools. Source: New York State Education Department, February

13 Priority School: School identified as being in Priority Status. Priority Schools are among the lowest five percent in the State in terms of combined English language arts and mathematics performance that are not making progress, as well as those schools that have graduation rates below 60% for the last several years. Schools that were previously identified as Persistently Lowest Achieving and received School Improvement Grants in the school year were also identified as Priority Schools. Source: New York State Education Department, "Accountability designation , Web Posting Overview." : The percentage of teachers identified at each level in the Annual Professional Performance Review for the school year (not including suppressed data.) Source: New York New York State Education Department, Educator Data "Annual Professional Performance Review Ratings." : The percentage of teachers identified at each level in the Annual Professional Performance Review for the school year for New York City (not including suppressed data). Source: New York New York State Education Department, "2014 Statewide Evaluation Results--Preliminary Results", pg., December, Total School Enrollment through : New York State Education Department, " Report Card Database" " Report Card Database" " Report Card Database" " Report Card Database" " Report Card Database" " Report Card Database" " Report Card Database" Enrollment may be labeled as N/A if the school was not operating in a particular school year, or if the data is unavailable. Total School Enrollment : New York State Education Department, "NY STATE Public School Enrollment ( )." Total School Enrollment : New York State Education Department, "NY STATE Public School Enrollment ( )." 13

14 14 Albany City School District

15 Albany High School Albany City School District - Albany County Assembly District 10 Senate District 44 Patricia Fahy Neil Breslin Yes % 50.6%.6% 3-8 Math 35.8% N/A 3-8 ELA 31.4% N/A Grad. Rate 6.4% 51.% ,824 2,56 2,840 2,668 2,58 2,50 2,236 2,214 2, Enacted School Aid $8,815, Enacted School Aid $88,456,588 5 $ Change + $,641,133 % Highly Effective 12% 6 % Change % % Effective 88% % Developing 0% Estimated Public Enrollment 10,640 % Ineffective 0% Formula Based State Aid Per Pupil $8, Spending Per Pupil: All Sources (Census) $1,81 % Above National Average + 8.5% High Need Urban Suburban % Free or Reduced Price Lunch (FRPL) Students 6.% % Students English Language Learners (ELL) 6.%

16 P J Schuyler Achievement Academy Albany City School District - Albany County Assembly District 108 Senate District 44 John McDonald Neil Breslin No % 4.% 3.% 3-8 Math 35.8% 5.% 3-8 ELA 31.4% 2.4% Grad. Rate 6.4% N/A Enacted School Aid $8,815, Enacted School Aid $88,456,588 5 $ Change + $,641,133 % Highly Effective 12% 6 % Change % % Effective 88% % Developing 0% Estimated Public Enrollment 10,640 % Ineffective 0% Formula Based State Aid Per Pupil $8, Spending Per Pupil: All Sources (Census) $1,81 % Above National Average + 8.5% High Need Urban Suburban % Free or Reduced Price Lunch (FRPL) Students 6.% % Students English Language Learners (ELL) 6.%

17 William S Hackett Middle School Albany City School District - Albany County Assembly District 108 Senate District 44 John McDonald Neil Breslin Yes % 2.0% 80.% 3-8 Math 35.8% 6.2% 3-8 ELA 31.4% 16.2% Grad. Rate 6.4% N/A Enacted School Aid $8,815, Enacted School Aid $88,456,588 5 $ Change + $,641,133 % Highly Effective 12% 6 % Change % % Effective 88% % Developing 0% Estimated Public Enrollment 10,640 % Ineffective 0% Formula Based State Aid Per Pupil $8, Spending Per Pupil: All Sources (Census) $1,81 % Above National Average + 8.5% High Need Urban Suburban % Free or Reduced Price Lunch (FRPL) Students 6.% % Students English Language Learners (ELL) 6.%

18 Amsterdam City School District 18

19 William B Tecler Arts In Education Amsterdam City School District - Montgomery County Assembly District 111 Senate District 46 Angelo Santabarbara George A. Amedore, Jr. No % 66.0% 44.6% 3-8 Math 35.8% 11.2% 3-8 ELA 31.4% 11.0% Grad. Rate 6.4% N/A Enacted School Aid $31,468, Enacted School Aid $40,20,30 5 $ Change + $8,41,531 % Highly Effective 0% 6 % Change + 2.8% % Effective 100% % Developing 0% Estimated Public Enrollment 3,06 % Ineffective 0% Formula Based State Aid Per Pupil $10, Spending Per Pupil: All Sources (Census) $14,3 % Above National Average % High Need Rural % Free or Reduced Price Lunch (FRPL) Students 5.2% % Students English Language Learners (ELL) 3.2%

20 20 Buffalo City School District

21 Bennett High School Buffalo City School District - Erie County Assembly District 141 Senate District 63 Crystal Peoples-Stokes Timothy Kennedy Yes % 86.4% 5.3% 3-8 Math 35.8% N/A 3-8 ELA 31.4% N/A Grad. Rate 6.4% 36.% , Enacted School Aid $612,363, Enacted School Aid $65,01,882 5 $ Change + $62,28,106 % Highly Effective 5% 6 % Change % % Effective 32% % Developing 5% Estimated Public Enrollment 41,4 % Ineffective 4% Formula Based State Aid Per Pupil $16, Spending Per Pupil: All Sources (Census) $18,1 % Above National Average + 8.8% High Need Large Cities % Free or Reduced Price Lunch (FRPL) Students 84.1% % Students English Language Learners (ELL) 10.8%

22 Bilingual Center Buffalo City School District - Erie County Assembly District 142 Senate District 63 Michael Kerns Timothy Kennedy Yes % 85.2%.2% 3-8 Math 35.8% 8.6% 3-8 ELA 31.4% 8.1% Grad. Rate 6.4% N/A Enacted School Aid $612,363, Enacted School Aid $65,01,882 5 $ Change + $62,28,106 % Highly Effective 5% 6 % Change % % Effective 32% % Developing 5% Estimated Public Enrollment 41,4 % Ineffective 4% Formula Based State Aid Per Pupil $16, Spending Per Pupil: All Sources (Census) $18,1 % Above National Average + 8.8% High Need Large Cities % Free or Reduced Price Lunch (FRPL) Students 84.1% % Students English Language Learners (ELL) 10.8%

23 Buffalo Elementary School Of Technology Buffalo City School District - Erie County Assembly District 141 Senate District 63 Crystal Peoples-Stokes Timothy Kennedy Yes % 2.8% 0.5% 3-8 Math 35.8% 3.8% 3-8 ELA 31.4% 3.% Grad. Rate 6.4% N/A Enacted School Aid $612,363, Enacted School Aid $65,01,882 5 $ Change + $62,28,106 % Highly Effective 5% 6 % Change % % Effective 32% % Developing 5% Estimated Public Enrollment 41,4 % Ineffective 4% Formula Based State Aid Per Pupil $16, Spending Per Pupil: All Sources (Census) $18,1 % Above National Average + 8.8% High Need Large Cities % Free or Reduced Price Lunch (FRPL) Students 84.1% % Students English Language Learners (ELL) 10.8%

24 Build Academy Buffalo City School District - Erie County Assembly District 141 Senate District 63 Crystal Peoples-Stokes Timothy Kennedy No % 1.%.8% 3-8 Math 35.8% 1.3% 3-8 ELA 31.4% 2.% Grad. Rate 6.4% N/A Enacted School Aid $612,363, Enacted School Aid $65,01,882 5 $ Change + $62,28,106 % Highly Effective 5% 6 % Change % % Effective 32% % Developing 5% Estimated Public Enrollment 41,4 % Ineffective 4% Formula Based State Aid Per Pupil $16, Spending Per Pupil: All Sources (Census) $18,1 % Above National Average + 8.8% High Need Large Cities % Free or Reduced Price Lunch (FRPL) Students 84.1% % Students English Language Learners (ELL) 10.8%

25 Burgard Vocational High School Buffalo City School District - Erie County Assembly District 141 Senate District 63 Crystal Peoples-Stokes Timothy Kennedy Yes % 81.1% 3.% 3-8 Math 35.8% N/A 3-8 ELA 31.4% N/A Grad. Rate 6.4% 38.6% Enacted School Aid $612,363, Enacted School Aid $65,01,882 5 $ Change + $62,28,106 % Highly Effective 5% 6 % Change % % Effective 32% % Developing 5% Estimated Public Enrollment 41,4 % Ineffective 4% Formula Based State Aid Per Pupil $16, Spending Per Pupil: All Sources (Census) $18,1 % Above National Average + 8.8% High Need Large Cities % Free or Reduced Price Lunch (FRPL) Students 84.1% % Students English Language Learners (ELL) 10.8%

26 Dr Lydia T Wright School Of Excellence Buffalo City School District - Erie County Assembly District 141 Senate District 63 Crystal Peoples-Stokes Timothy Kennedy No % 86.2%.4% 3-8 Math 35.8% 2.3% 3-8 ELA 31.4%.1% Grad. Rate 6.4% N/A Enacted School Aid $612,363, Enacted School Aid $65,01,882 5 $ Change + $62,28,106 % Highly Effective 5% 6 % Change % % Effective 32% % Developing 5% Estimated Public Enrollment 41,4 % Ineffective 4% Formula Based State Aid Per Pupil $16, Spending Per Pupil: All Sources (Census) $18,1 % Above National Average + 8.8% High Need Large Cities % Free or Reduced Price Lunch (FRPL) Students 84.1% % Students English Language Learners (ELL) 10.8%

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