Posts Tagged ‘school consolidation’

Local School Districts mean Better Education

Tuesday, April 7th, 2009

Is bigger really better?  This is the crucial question facing New Jersey’s schools as the state moves toward a consolidated county-wide school district framework.  The proposed consolidation would eliminate local school district administrative personnel and centralize the operation of each of the county’s schools within one county-wide district such as the model used in Maryland (Enlighten-New Jersey, 2006).  As a result, all decisions concerning local school functions would be made at the county level with little local recourse. 

 

While consolidation may sound tempting, because it is based on a presumption of economies-of-scale leading to assumed lower operating costs as well as improved administrative efficiencies which, in turn, are expected to result in lower property taxes plus greater parental engagement, the reality is much different, however.  It has been shown that county-wide districts often result in increased costs, increased bureaucracy, students being so remote that parents are less engaged, and increased special interest group control of the agenda, curriculum as well as the distribution of funds (Wenders, 2005).  

 

County-wide school districts tend to expand the county departments of education into unwieldy bureaucracies (Wenders, 2005).  These bureaucracies often become so large that their administrative costs exceed the combined cost of the local administrative personnel, including but not limited to superintendents, business administrators and directors of special education, they are supposed to replace.  Moreover, because these county departments of education are staffed largely by political appointees, they tend to operate without the essential public feedback that is the backbone of local boards of education. 

 

At the outset, New Jersey’s legislators used Maryland’s experience (School Board Notes, 2006) as a benchmark for the expected savings and efficiencies for New Jersey’s consolidation.  However, during her testimony to a panel of New Jersey state senators, Ms. Marie S. Bilik (2008), Executive Director of the New Jersey School Boards Association, demonstrated that the total state-wide administrative costs of the Maryland school system exceed those of New Jersey’s.  While testifying in front of the New Jersey Senate Budget and Appropriations Committee on March 20, 2008, Ms. Bilik referenced an U.S. Department of Education report (2006), “A recent report by the U.S. Department of Education ranks New Jersey 38th among the states and District of Columbia in the percentage of current expenditures devoted to administration.  That means 37 other states – including Maryland and Pennsylvania – spend more on administration than New Jersey.”  In addition, enrollment in New Jersey’s public schools was over fifty percent greater than that of Maryland during the same period and continues to exceed Maryland’s enrollment by similar margins.  Thus, rather than removing administrative costs, the Maryland model has actually added costs and administrative overhead (Bilik, 2008). 

 

While New Jersey has not yet moved to a complete county-wide model, its recent school consolidation legislation has significantly increased the power of the politically appointed Executive County Superintendent.  Among these expanded powers is the ability to compel the creation or expansion of regional school districts with the ultimate goal of consolidating the regionalized districts into one county-wide school district in every county.  New Jersey’s county-wide school districts would be run by Executive County Superintendents, political appointees, who would not be accountable to the voters but rather would serve at the discretion of partisan political forces. 

 

But consolidation of local school districts into county level districts also tends to result in more of a traditional military-type command-and-control decision making process rather than a process controlled by local school districts with the active participation of local constituencies most notably local parents.  In a command-and-control model, while the state and federal policy makers develop the overall strategy for policy implementation (Fusarelli and Cooper, 2009), it is the county-wide school districts that combine these policies with their political directives to determine the curriculum, priorities and budget for each school.  However, because the county level is too distant from where education actually takes place and is more easily influenced by special interest groups, the result is often less parental engagement. 

 

Concentrating the school system at the local district level rather than at the county level will not only enable more resources to be focused on those most affected by education, the students, but also enable those most intimately involved in providing education, the teachers, to provide better instruction.  But the rise of county departments of education will also cause the local school districts to spend less time on students as well as parents because more time will be required to be spent on bureaucratic obligations thereby decreasing parental engagement which is a key component in improving student performance.  It is the local districts that not only are closest to the students but also have the necessary local expertise to most effectively decide how to provide a quality education. 

 

Indeed, it seems as if the reason for preventing or eliminating county-wide school districts is embodied in the landmark Brown v. Board of Education case.  In Brown v. Board of Education, the Supreme Court not only ruled against school racial segregation by striking down the practice of separate but equal but also established the right of all students to attend their neighborhood school.  Consistent with this ruling, it is essential that every child be able to attend their neighborhood school within a local school district free from the burden of county level bureaucracies so that the schools are better able to concentrate on improving every student’s performance. 

 

Consolidating local school districts into larger county-wide districts removes decision making authority from those most affected by educational policy decisions:  the individual student as well as his/her parents, school and district.  It also concentrates policy formulation and decision making at a centralized level where special interest groups have greater leverage on the policy makers and, as a result, greater control of the policy outcomes including local school budgets.  Moreover, consolidation of local school districts into county level districts while fewer in number tends to result in higher state-wide total administrative costs due to the lack of accountability, more political patronage and reduced local parental input. 

 

_______________________________

References

Bilik, M. S. (2008).  Testimony: FY09 State Budget, Senate Budget and Appropriations Committee, Senate Annex, Committee Room 4, Trenton, New Jersey, March 20, 2008.   

Enlighten-New Jersey, (2006).  Is School Consolidation The Answer To New Jersey’s Property Tax Crisis?  August 9, 2006, Retrieved from http://www.enlightennj.com. 

Fusarelli, B. C. and Cooper, B. S., (2009).  The Rising State: How State Power Is Transforming Our Nation’s Schools, State University of New York Press, Albany.   

School Board Notes, (2006)  New Jersey vs. Maryland: The Facts,  September 14, 2006, Retrieved from http://www.njsba.org Trenton, New Jersey: New Jersey School Boards Association. 

U. S. Department of Education, National Center for Education Statistics (2006).  Common Core of Data, August, 2006.  

Wenders, J. T., (2005)  Deconsolidate Oregon’s School Districts  March 21, 2005, Retrieved from http://www.cascadepolicyinstitute.org. 

 

 

 

 

Creating Self-Governing Independent Public Schools

Sunday, January 11th, 2009

Our public schools must be given the choice of becoming self-governing so that they can be free to provide a top quality educational system.  A self-governing public school district is free of state control as well as federal intervention.  Therefore, it would be independent of the state system but remain a public school district serving the same local community rather than a charter school or a private school or a school run in full or in part by a private company.  While public school districts could elect to stay within the state system and continue to abide by all mandates, all districts should be given the opportunity to legally opt out.  The ability to opt for self-governance would be supported by legislation.  

 

Self-governance would provide public schools with the authority to improve education consistent with the priorities of their local school communities as well as the flexibility to innovate rather than be forced to march in lock-step to the state’s one size fits all mandates.  Public schools choosing to opt out would be independent public schools free of all state mandates except for perhaps reporting test results but they would also forgo all state aid.  Opting out of the state system would restore decision-making to the local school district level.  Because decisions guiding the operations of self-governing schools would no longer be made largely at the county or state level, parents, teachers, school administrators, boards of education, and local taxpayers would be better able to shape the quality of education which their students receive in their local schools. 

 

A public school district would become self-governing when a simple majority of the registered district voters who voted in a district-wide vote approved of the change.  While these votes would comply with the laws governing ballot procedures, campaigns and elections, they would be held in April so as to provide sufficient lead time to convert to self-governance by July 1, the beginning of the new fiscal year.  Once the district community voted to authorize the school district to become self-governing, it would be governed solely by its board of education.  Board of education members would be chosen from among the registered voters in the school district.  Municipal, county, state and federal governments would no longer play any role in the governance or management of self-governing school districts.  Therefore, boards of school estimate would no longer have any role vis-à-vis appointed boards of education. 

 

Local property tax levies rather than tuition would continue to be the primary source of funding for self-governing public school districts.  Still, these districts would be eligible to receive appropriate state or federal grants.  The annual operating budget and debt authorizations for a self-governing public school district would be decided by its board of education rather than be subject to district-wide public votes.  Indeed, this would be consistent with the fact that the annual operating budgets of municipal, county, state and federal governments are not subject to approval through a vote of their respective electorates.   

 

Becoming self-governing would enable a school district to operate more efficiently and cost-effectively through the exercise of many new choices.  A self-governing school district would be free to choose whether to have unions.  If it chooses to be union-free, it would be no longer subject to such legislative restrictions as the New Jersey Employer-Employee Relations Act which is commonly referred to as the “PERC law” (Strassman, Vogt and Wary, 1991.)  If the district elected not to have unions, then all union contracts such as those with its teachers would be dissolved and renegotiated once the district became self-governing. 

 

Free of outside governmental intrusion such as the No Child Left Behind (NCLB) Act, the district also would be free to determine its teacher licensing requirements including training, education and experience.  Because the district would no longer be subject to the New Jersey Core Curriculum Content Standards (CCCS,) it would be free to develop and determine its own curriculum.  The district also would be free to determine whether or not to offer special education because the Individuals with Disabilities in Education Act (IDEA) and state special education requirements would no longer apply.  If the district chooses to provide special education, then it would have sole discretion over what level and kinds of special education it offered.  

 

A self-governing public school district would be held harmless from frivolous lawsuits through its enabling legislation.  This would help to greatly minimize escalating legal expenses.  Law suits filed against the district would be heard first by one of several newly created arbitration panels.  Arbitration panel members would be appointed by a newly created state-wide association of self-governing public school districts. 

 

By changing to self-governance, a school district would be able to cut unnecessary expenses through the elimination of special education-based lawsuits with the ever increasing costs arising from such litigation.  As parents have become more knowledgeable about what constitutes special education programs and services, they have increased their demands to have their children receive not only more intensive services as well as increasing their children’s classification but also more placements in private schools which have resulted in more parents suing school districts for these additional benefits.  New Jersey’s legal system, however, operates according to a fee shifting principle in which a school district losing in an administrative court not only must pay all of the judgment costs but also all of the plaintiff’s legal costs including those for their attorneys and expert witnesses regardless of the length of the trial. 

 

Litigation for special education proceedings often takes longer than civil law suits which increase legal fees and court costs.  In addition, there is the cost resulting from the amount of time required of teachers, child study teams and administrators to appear in court rather than in school.  While school districts do settle a number of cases rather than run the risk of potentially more expensive outcomes, these settlements fuel the cost of providing special education.  Holding New Jersey school districts harmless from such law suits would be another way in which to enable school districts to allocate more of their scarce resources to student instruction.

 

The ever increasing cost of unfunded and under funded mandates is not only forcing school districts to cut regular education programs and, therefore, leveling down student achievement but also increasing property taxes.  But New Jersey’s public school districts can no longer afford to pay for these unfunded and under funded mandates because most school districts are forced to spend disproportionately more to meet the requirements of these mandates than these districts receive in total state and federal financial aid.  If local school districts opted for self-governance, therefore, they would eliminate the excessive financial and administrative burdens imposed by the county, state and federal governments. 

 

Opting for self-governance would increase the financial resources available for the classroom because it would be much more cost effective for local school districts to provide educational programs and services without the administrative burden of state requirements.  The funds that are currently used for regulatory compliance with state mandates could be redirected to improving student learning and achievement, which after all is the real mission of our schools.  Changing our state’s educational system in this way would not only improve the quality of education but also increase property taxpayers’ return on investment.  But Trenton continues to blame school districts for property tax increases rather than take responsibility for their role in keeping property taxes high.  Instead of fully funding their mandates to reduce the property tax burden which drives up the cost of public education, Trenton focuses largely on constricting school district funding, budgets, operations and the independence of local school districts.   

 

The state’s flawed approach is demonstrated in the new funding formula as contained in the New Jersey School Funding Reform Act (SFRA) of 2008 as well as its predecessor the Comprehensive Education Improvement and Financing Act of 1996 (CEIFA,) which caused higher property taxes and cuts in regular education.  Dr. Reock, Rutgers University Professor Emeritus, studied the financial impact on school districts of the state’s failure not only to not fully enact CEIFA but also to freeze most CEIFA funding beginning with the 2002-03 school year and reached a profound conclusion (Reock, 2007.) 

 

Based on his study (Sciarra, 2008), Dr. Reock found that “the state aid freeze caused massive under-funding of many school districts throughout the state, especially poor non-Abbott districts, and contributed to the property tax problem in the state.”  Instead of fully funding the CEIFA school funding formula as required by law, the state froze financial aid to schools at their 2001-02 school year levels regardless of any increases in enrollment, rising costs as well as state and federal unfunded mandates.  The shortfall was hardest on those districts that were most dependent upon state aid.  During the 2005-06 school year the statewide shortfall amounted to $846 million which translated into per pupil shortfalls of $1,627 in non-Abbott DFG A and B districts, $758 in DFG C through H districts, $386 DFG I and J districts, and $188 in Abbott districts. 

 

The impact of the CEIFA funding shortfall was minimized on the Abbott districts largely due to their “parity-plus” court mandated protection.  State law forbids the budget of an Abbott district from falling below its level of the prior school year (Hu, 2006.)  Furthermore, under state law, if an Abbott district increases local property taxes without a state directive to do so, it will lose a similar amount of state aid. 

 

The CEIFA funding shortfall also caused serious imbalances between local school districts.  During the 2005-06 school year Abbott districts received approximately 58% of all state financial aid while educating only 23% of New Jersey’s K to 12 student enrollment.  This meant non-Abbott districts were educating 77% of New Jersey’s students with only 42% of state aid.  This imbalance has continued to widen under SFRA with Abbott aid increasing to approximately 60% of all state aid or $4.64 billion.  State aid reductions and the ever increasing unfunded state mandates force non-Abbott districts to balance their budgets by raising property taxes, increasing class sizes as well as cutting regular education programs and services.   

 

As part of his statement of New Jersey Supreme Court certification in support of the Plaintiffs’ opposition to the School Funding Reform Act (SFRA) of 2008, Dr. Reock concluded (Sciarra, 2008) that “the State’s failure to fund CEIFA for the past six years directly resulted in an enormous shortfall of funding in districts across New Jersey.”  He went further to state, “By 2007-08, the sixth year of the CEIFA “freeze,” the total under-funding of state aid had reached $1.326 billion annually, despite the introduction of several new, smaller aid programs.”  The result was a state-driven increase in local property taxes within non-Abbott districts to make up for the shortfall. 

 

Creating state-wide self-governing public school districts free of state control is the solution that will lead to a top quality, cost-effective educational system while Trenton continues to force local school districts to pay for its under-funded and unfunded mandates that unnecessarily increase the cost of providing education and drive up property taxes.  By forcing school districts to divert necessary resources to paying for the escalating costs of the State of New Jersey’s mandates rather than investing these scarce resources in the classroom where they are needed most, the State of New Jersey harms the quality of education.  Local school districts, therefore, would be able to operate more cost-effectively with lower property taxes and earn a higher rate of return on their educational investment if they became self-governing by opting out of the state system. 

 

 _______________________________

References

Hu, W., (2008) In New Jersey, System to help Poorest Schools Faces Criticism, New York Times, October 30, 2006. 

Reock, E. C. Jr., (2007) Paper, Estimated Financial Impact of the ‘Freeze’ of State Aid on New Jersey School Districts, 2002-03 to 2005-06,” Institute on Education Law and Policy, Rutgers University, Newark, http:// ielp.rutgers.edu/docs/CEIFA_Reock_Final.pdf  

Sciarra, D. G., (2008) Certification of Dr. Ernest C. Reock, Jr. for the Supreme Court of New Jersey in support of the Plaintiffs’ opposition to the School Funding Reform Act of 2008, Education Law Center, Newark New Jersey, http://www.edlawcenter.org/ELCPublic/elcnews_080521_ReockCertification.pdf

Strassman, E. R., Vogt, K. R., and Wary, C. S., (1991). The Public Employment Relations Law, Trenton, New Jersey: New Jersey School Boards Association.    

 

 


Local School Districts mean Better Education: Why county-wide school consolidations increase costs and special interest group control

Sunday, December 28th, 2008

Is bigger really better?  This is the crucial question facing New Jersey’s schools as the state moves toward a consolidated county-wide school district framework.  The proposed consolidation would eliminate local school district administrative personnel and centralize the operation of each of the county’s schools within one county-wide district such as the model used in Maryland.  As a result, all decisions concerning local school functions would be made at the county level with little local recourse. 

 

While consolidation may sound tempting, because it is based on a presumption of economies-of-scale leading to assumed lower operating costs as well as improved administrative efficiencies which, in turn, are expected to result in lower property taxes plus greater parental engagement, the reality is much different, however.  It has been shown that county-wide districts often result in increased costs, increased bureaucracy, students being so remote that parents are less engaged, and increased special interest group control of the agenda, curriculum as well as the distribution of funds.  

 

County-wide school districts tend to expand the county departments of education into unwieldy bureaucracies.  These bureaucracies often become so large that their administrative costs exceed the combined cost of the local administrative personnel, including but not limited to superintendents, business administrators and directors of special education, they are supposed to replace.  Moreover, because these county departments of education are staffed largely by political appointees, they tend to operate without the essential public feedback that is the backbone of local boards of education. 

 

At the outset, New Jersey’s legislators used Maryland’s experience as a benchmark for the expected savings and efficiencies for New Jersey’s consolidation.  However, during her testimony to a panel of New Jersey state senators, Ms. Marie S. Bilik, Executive Director of the New Jersey School Boards Association, demonstrated that the total state-wide administrative costs of the Maryland school system exceed those of New Jersey’s.  While testifying in front of the New Jersey Senate Budget and Appropriations Committee on March 20, 2008, Ms. Bilik referenced an U.S. Department of Education report (2006), “A recent report by the U.S. Department of Education ranks New Jersey 38th among the states and District of Columbia in the percentage of current expenditures devoted to administration.  That means 37 other states – including Maryland and Pennsylvania – spend more on administration than New Jersey.”  In addition, enrollment in New Jersey’s public schools was over fifty percent greater than that of Maryland during the same period and continues to exceed Maryland’s enrollment by similar margins.  Thus, rather than removing administrative costs, the Maryland model has actually added costs and administrative overhead. 

 

While New Jersey has not yet moved to a complete county-wide model, its recent school consolidation legislation has significantly increased the power of the politically appointed Executive County Superintendent.  Among these expanded powers is the ability to compel the creation or expansion of regional school districts with the ultimate goal of consolidating the regionalized districts into one county-wide school district in every county.  New Jersey’s county-wide school districts would be run by Executive County Superintendents, political appointees, who would not be accountable to the voters but rather would serve at the discretion of partisan political forces. 

 

But consolidation of local school districts into county level districts also tends to result in more of a traditional military-type command-and-control decision making process rather than a process controlled by local school districts with the active participation of local constituencies most notably local parents.  In a command-and-control model, while the federal and state policy makers develop the overall strategy for policy implementation, it is the county-wide school districts that combine these policies with their political directives to determine the curriculum, priorities and budget for each school.  However, because the county level is too distant from where education actually takes place and is more easily influenced by special interest groups, the result is often less parental engagement. 

 

Concentrating the school system at the local district level rather than at the county level will not only enable more resources to be focused on those most affected by education, the students, but also enable those most intimately involved in providing education, the teachers, to provide better instruction.  But the rise of county departments of education will also cause the local school districts to spend less time on students as well as parents because more time will be required to be spent on bureaucratic obligations thereby decreasing parental engagement which is a key component in improving student performance.  It is the local districts that not only are closest to the students but also have the necessary local expertise to most effectively decide how to provide a quality education. 

 

Indeed, it seems as if the reason for preventing or eliminating county-wide school districts is embodied in the landmark Brown v. Board of Education case.  In Brown v. Board of Education, the Supreme Court not only ruled against school racial segregation by striking down the practice of separate but equal but also established the right of all students to attend their neighborhood school.  Consistent with this ruling, it is essential that every child be able to attend their neighborhood school within a local school district free from the burden of county level bureaucracies so that the schools are better able to concentrate on improving every student’s performance. 

 

Consolidating local school districts into larger county-wide districts removes decision making authority from those most affected by educational policy decisions:  the individual student as well as his/her parents, school and district.  It also concentrates policy formulation and decision making at a centralized level where special interest groups have greater leverage on the policy makers and, as a result, greater control of the policy outcomes including local school budgets.  Moreover, consolidation of local school districts into county level districts while fewer in number tends to result in higher state-wide total administrative costs due to the lack of accountability, more political patronage and reduced local parental input. 

 

_______________________________

References

Bilik, M. S. (2008).  Testimony: FY09 State Budget, Senate Budget and Appropriations Committee, Senate Annex, Committee Room 4, Trenton, New Jersey, March 20, 2008.   

U. S. Department of Education, National Center for Education Statistics (2006).  Common Core of Data, August, 2006.