Transcript PEPG - Harvard University

Achievement Growth:
Hypotheses about New Jersey’s Performance
ANDY SMARICK, DEPUTY COMMISSIONER
NEW JERSEY DEPARTMENT OF EDUCATION
JULY 27, 2012
Findings from the Report
 NJ ranked 7th among 41 states in improving student
performance
Source: http://www.hks.harvard.edu/pepg/PDF/Papers/PEPG12-03_CatchingUp.pdf
What Are the Potential Causes?
 Demographic changes over the last 20 years
 Changes in standards, assessments, and
accountability
 Changes in spending (Abbott)
 Human capital policies
Changes in NJ’s Composition
(1990 – 2010)
1990
2010
New Jersey
US
New Jersey
US
79%
80.3%
68.6%
72.4%
African
American
13.4%
12.1%
13.7%
12.6%
Hispanic
9.6%
9.0%
17.7%
16.3%
Asian
American
3.5%
2.9%
8.3%
5.6%
White
Sources: http://lwd.dol.state.nj.us/labor/lpa/census/2kpub/njsdcp2.pdf (1990 Data)
http://2010.census.gov/2010census/data/ (2010 Data)
Growth in Median Household Income in NJ and US
(1990 – 2010)
80,000
70,000
60,000
50,000
New Jersey
40,000
United States
30,000
20,000
10,000
0
Source: http://www.census.gov/hhes/www/income/data/statemedian/index.html
Difference between NJ Median Household Income
and US Median Household Income (1984 – 2010)
25,000
20,000
15,000
$14,095
Difference
10,000
$8,791
5,000
Source: http://www.census.gov/hhes/www/income/data/statemedian/index.html
2010
2009
2008
2007
2006
2005
2004
2003
2002
2001
2000
1999
1998
1997
1996
1995
1994
1993
1992
1991
1990
0
% of NJ Population with a College Degree vs.
% of US Population with a College Degree
100
90
82.1
87.4
High School
Year
Gap (% pts)
1990
1.5
60
2000
1.7
50
2010
2.4
80
76.7
70
75.2
80.4
40
30
85
34.4
29.8
College
24.9
20
20.3
24.4
27.7
10
0
1990
2000
High School Diploma and Some College NJ
High School Diploma and Some College US
2010
Year
Gap (% pts)
1990
4.6
2000
5.4
2010
6.7
Bachelor's Degree or Higher NJ
Bachelor's Degree or Higher US
Source: http://www.census.gov/compendia/statab/2011/tables/11s0229.pdf
Major State Reform Initiatives 1970s - Present
 Standards, Assessments, Accountability
 Introduction of statewide assessments and alignment with
statewide standards
 Spending: The Abbott Era
 Rising funding levels
 Results?
 Human Capital Policies
 Where we’ve been
 Where we’re going
Recent History of Standards & Assessments
1978
First statewide assessment (Minimum Basic Skills Test in grades 3, 6, and 9)
1985-2000 High School Proficiency Test is made into a graduation requirement
1988
High School Proficiency Test moved to grade 11
1991
Early Warning Test is introduced for grade 8 as an early benchmark assessment
1996
“Core Curriculum Content Standards” adopted (first statewide standards)
Informed the development of 3 assessments:
1999 – 2001/02
1999– 2007/08
2001 – today
Elementary School Proficiency Assessment (4th grade only)
Grade Eight Proficiency Assessment (replaces EWT)
High School Proficiency Assessment
2003
ESPA replaced with NJASK in response to NCLB (3rd and 4th)
2006
NJASK expands to include 5 - 7
2008
NJASK 8 replaces GEPA
http://www.state.nj.us/education/assessment/history.shtml; http://www.nj.gov/education/assessment/ms/; http://www.state.nj.us/education/assessment/hs/hspt/
Standards & Assessments Lessons
 NJ was an early adopter of a high school assessment
(1981), made it a graduation requirement in 1985, and
has had one every year since
 NJ created an 8th grade assessment in 1991 and has
had one every year since
 NJ was late to adopt statewide standards
 NJ didn’t have 3rd & 4th grade tests in place until 2003
Consequence: 8th Grade improvement?
2nd!
Source: http://www.hks.harvard.edu/pepg/PDF/Papers/PEPG12-03_CatchingUp.pdf
Consequence: 4th Grade improvement?
17th!
Source: http://www.hks.harvard.edu/pepg/PDF/Papers/PEPG12-03_CatchingUp.pdf
Equity Funding: Abbott Litigation History
Date
Events
1875
The New Jersey constitution is amended requiring the
Legislature to establish a system of "thorough and efficient
education."
Feb. 1970
Robinson v. Cahill is a lawsuit brought on behalf of urban
school children, charging that the state's system for funding
schools discriminated against poorer districts and created
disparities in education.
Apr. 1973
The NJ Supreme Court rules that heavy reliance on property
taxes for education discriminates against poor districts
Jul. 1975
The Public School Education Act, Chapter 212, created a new
state funding formula for public schools, but lawmakers did
not raise taxes to pay for it.
Source: http://www.state.nj.us/education/archive/abbotts/chrono/
Equity Funding: Abbott Litigation History
Date
Events
Jul. 1976
The NJ Supreme Court shut down the public schools for eight
days because the Legislature failed to fund the new formula.
The first New Jersey state income tax is then enacted.
Feb. 1981
The Education Law Center (ELC) files Abbott v. Burke on
behalf of urban school children, challenging the 1975 Act as
inadequate to assure a thorough and efficient education.
1985
NJ Supreme Court issues Abbott I, remanding case to Office
of Administrative Law and ruling that to satisfy the
Constitution, the state must ensure urban children an
education enabling them to compete with their suburban
peers.
1986-87
Trial in Abbott takes place over a nine-month period before
Judge Steven LeFelt
Source: http://www.state.nj.us/education/archive/abbotts/chrono/
Equity Funding: Abbott Litigation History
Date
Events
Aug. 1988
Judge LeFelt issues a 600-page initial decision, finding for plaintiff
and recommending a complete overhaul of state's system of providing
urban education.
Feb. 1989
Education Commissioner Saul Cooperman rejects Judge LeFelt's
decision. He says the existing funding system provides equal
education opportunities.
May 1990
Governor James Florio introduced the Quality Education Act in
anticipation of a NJ Supreme Court decision in favor of the Abbott
children and introduced a $2.8 billion state tax increase to pay for the
new law and the budget deficit he inherited.
Jun. 1990
The NJ Supreme Court rules in Abbott v. Burke II that inadequate
and unequal funding denies students in urban districts a thorough
and efficient education and requires the state to equalize funding
between suburban and urban districts for regular education and to
provide extra or "supplemental" programs to "wipe out disadvantages
as much as a school district can."
Source: http://www.state.nj.us/education/archive/abbotts/chrono/
Equity Funding: Abbott Litigation History
Date
Events
Mar. 1991
Governor Florio signs an amendment to the Quality Education Art
diverting $360 million to property tax relief.
Jul. 1992
ELC reactivates the Abbott case charging that the Quality Education
Act fails to comply with the 1990 Abbott II ruling.
Jul. 1994
The NJ Supreme Court, in Abbott III, declares the Quality Education
Act unconstitutional because it does not equalize funding or
guarantee needed supplemental programs. The court gives the state
until 1997 to fully comply.
Feb. 1995
The NJ Department of Education releases a rough blueprint designed
to achieve equalization between suburban and urban districts by
reducing spending in the suburban districts.
Nov. 1995
Gov. Christine Todd Whitman unveils a plan to change the school
funding formula by capping spending in suburban districts at a
minimum level by directing implementation of the NJ Core
Curriculum Content Standards.
Source: http://www.state.nj.us/education/archive/abbotts/chrono/
Equity Funding: Abbott Litigation History
Date
Events
Dec. 1996
Gov. Whitman signs into law the Comprehensive Education
Improvement and Financing Act (CEIFA) that incorporates her plan
without the spending caps in suburban districts. CEIFA authorizes
spending in suburban districts at existing levels and limits spending
in urban districts at $1200 per pupil below the suburban average.
Jan. 1997
ELC returns again to the NJ Supreme Court to challenge the failure of
CEIFA to comply with the 1990 and 1994 Abbott rulings.
May 1997
The NJ Supreme Court, in Abbott v. Burke IV, declares CEIFA
unconstitutional and orders state officials to immediately increase funding
for urban schools to achieve parity with suburban schools. The court also
orders a special hearing before a Superior Court judge to determine the
supplemental programs needed by disadvantaged children and to
determine facility needs in urban districts.
Sep. 1997
The state allocates $246 million to the Abbott districts to comply with the
Abbott v. Burke IVruling. 1997-98 marks the first school year in which
funding for education is equalized between urban and suburban school
districts.
Source: http://www.state.nj.us/education/archive/abbotts/chrono/
Equity Funding: Abbott Litigation History
Date
Events
Jan. 1998
After two months of hearings, Remand Judge Michael Patrick King
recommends to the NJ Supreme Court implementation of a package
of supplemental programs, including preschool, at an additional cost
of $312 million a year, and a program to renovate or replace urban
school facilities.
May 1998
The NJ Supreme Court issues Abbott v. Burke V and orders an
unprecedented series of entitlements for urban school children including:
whole school reform, full-day kindergarten and preschool for all three- and
four-year-olds, and a comprehensive state-managed and funded facilities
program to correct code violations, to eliminate overcrowding, and to
provide adequate space for all educational programs in the Abbott schools.
Other supplemental programs are also required such as health and social
services, increased security, technology alternative education, school-to
work, after-school and summer-school programs.
Jul. 1999
ELC returns again to the NJ Supreme Court to challenge the state's
failure to implement well-planned, high-quality preschool education
for all children in the Abbott districts.
Source: http://www.state.nj.us/education/archive/abbotts/chrono/
Equity Funding: Abbott Litigation History
Date
Events
Mar. 2000
NJ Supreme Court, in Abbott v. Burke VI, rules that the state had
failed to implement preschool education as directed and orders NJ
Dept. of Education to overhaul the program for 2000-01.
May 2000
NJ Supreme Court, in Abbott v. Burke VII, reaffirms its prior ruling
that the state must fully fund the Abbott school construction program.
Jul. 2000
Legislature enacts the Educational Facilities Construction and
Financing Act authorizing school construction program for Abbott
districts and other school districts statewide.
Apr. 2001
Administrative Law Judge Masin rules that the state had failed again
to properly implement the Abbott preschool program, as required in
Abbott v. Burke V and Abbott v. Burke VI.
Sep. 2001
NJ Supreme Court hears argument on state's continuing failure to
implement preschool.
Source: http://www.state.nj.us/education/archive/abbotts/chrono/
Equity Funding: Abbott Litigation History
Date
Events
Oct. 2001
Appellate Division of Superior Court hears arguments on the failure
of the state to establish clear, effective and comprehensive guidelines
for local school and district implementation of Abbott programs and
reforms.
Oct. 2001
Supreme Court issues first half of Abbott v. Burke VIII, directing timely
state decisions of preschool plans and budget and expected administrative
appeal process to resolve disputes between districts and DOE over plans
and budgets.
Feb. 2002
Supreme Court issues second half of Abbott v. Burke VIII, further
clarifying requirements for state implementation of the Abbott V
preschool mandate, as augmented by Abbott VI.
Feb. 2002
ELC and McGreevey Administration establish the Abbott Implementation
and Compliance Coordinating Council, pursuant to Executive Order #6,
bringing together the parties to Abbott, including ELC, Governor's office,
Attorney General, Commissioners of Education, Human Services, Higher
Education, and Economic Development Authority to identify
implementation problems and solve them.
Source: http://www.state.nj.us/education/archive/abbotts/chrono/
Equity Funding: Abbott Litigation History
Date
Events
Mar. 2002
ELC agrees to support McGreevey Administration application before
the Supreme Court for a one-year freeze on further implementation of
Abbott remedies at 2002-03 levels. In exchange, Governor
McGreevey agrees to boost preschool spending by $150 million and
maintain parity with an additional $83 million in a year when budget
deficits require flat state funding to all other school districts.
Jun. 2002
Supreme Court issues order in Abbott v. Burke IX directing the oneyear freeze on further implementation of Abbott remedies.
Jul. 2002
McGreevey issues Executive Order #24 establishing the Schools
Construction Corporation and calling for building "highperformance" schools.
Dec. 2002
Abbott Implementation and Compliance Coordinating Council stops
meeting amid strong rumors the McGreevey Administration will seek
a second-year freeze on funding Abbott and will further seek to roll
back the Court-ordered mandates.
Source: http://www.state.nj.us/education/archive/abbotts/chrono/
Equity Funding: Abbott Litigation History
Date
Events
Mar. 2003
McGreevey Administration applies to the NJ Supreme Court to
remove the mandates for whole-school reform and supplemental
programs.
Apr. 2003
Supreme Court directs the parties to mediate the disputed matters
before Judge Philip Carchman.
May 2003
ELC and the DOE conclude ten days of mediation and Judge
Carchman sends a report to the court.
Jun. 2003
Supreme Court accepts the mediation agreement, settling all matters
except the DOE's request for a second-year freeze on state funding of
Abbott districts and issues the first half of Abbott v Burke X
(Mediation Agreement Order).
Jul. 2003
Supreme Court directs the DOE to fund the districts at amounts
sufficient to maintain expenditures authorized in the 2002-03
budgets.
Source: http://www.state.nj.us/education/archive/abbotts/chrono/
Equity Funding: Abbott Litigation History
Date
Events
Jul. 2003
Cooperative Rulemaking group ordered in Abbott X concludes its
work on new Abbott regulations and results in DOE’s accepting some
recommendations and ignoring others.
Aug. 2003
Cooperative Rulemaking group ordered in Abbott X concludes its
work on new Abbott regulations and results in DOE’s accepting some
recommendations and ignoring others.
Jan. 2004
Appellate Division hears appeals by 21 districts challenging the state's
failure to provide $150 million in disputed state aid.
Jan. 2004
Secondary workgroup ordered in Abbott X begins meeting to develop
research- based reform initiatives for Abbott middle and high schools.
Feb. 2004
Evaluation workgroup ordered in Abbott X begins meeting to develop
protocols for independent evaluation of Abbott implementation,
ordered in Abbott V but not delivered by the DOE.
Source: http://www.state.nj.us/education/archive/abbotts/chrono/
Equity Funding: Abbott Litigation History
Date
Events
Jun. 2004
Governor McGreevey signs a bill designating the Salem City public
schools as the thirty-first Abbott district, implementing a February
2003 decision by Commissioner Librera in Bacon v. NJ Department
of Education.
Oct. 2004
The Washington, DC-based Education Trust issues a report, "The
Funding Gap 2004," showing New Jersey to be a national leader in
providing equitable school funding for poor and minority students.
May 2005
Commissioner Librera launches the Abbott Secondary Initiative, an
ambitious program of middle and high school reform in Abbott
districts.
May 2005
In a unanimous decision , the NJ Supreme Court directs the state to
"ensure that full funding is available" for preschool programs for
three- and four-year-olds in NJ's Abbott districts.
Aug. 2005
In response to a lawsuit by ELC, Superior Court Judge Neil Schuster
orders DOE to prepare a plan to manage implementation of the
Abbott reforms for the years 2006 and 2007.
Source: http://www.state.nj.us/education/archive/abbotts/chrono/
Equity Funding: Abbott Litigation History
Date
Events
Jan. 2006
For the second year in a row, the Washington, DC-based Education Trust
issues a report, "The Funding Gap 2005," identifying New Jersey as a
national leader in providing equitable school funding for poor and
minority students.
Jan. 2006
For the second year in a row, the Washington, DC-based Education Trust
issues a report, "The Funding Gap 2005," identifying New Jersey as a
national leader in providing equitable school funding for poor and
minority students.
May 2006
The NJ Supreme Court issues an order granting a one-year Abbott
funding freeze, while ordering the state to work with districts to protect
necessary programs, preserving districts' rights to appeal insufficient state
funding decisions, and requiring the state to conduct fiscal audits and
programmatic evaluations of the Abbott districts and to promulgate
regulations in accordance with the APA.
May 2006
The NJ Supreme Court clarifies its order of May 9, 2006, setting tight
time frames for district budget appeals and directing DOE to fund the
opening expenses for all new and renovated school facilities that come
online in FY 2007.
Source: http://www.state.nj.us/education/archive/abbotts/chrono/
Equity Funding: Abbott Litigation History
Date
Events
Apr. 2007
ELC asks the NJ Supreme Court to order state officials and the
Legislature to provide funding to restart school facilities projects.
May 2007
The NJ Supreme Court rules in Abbott XVII on ELC's request for
additional funds for school construction, finding that the relief sought
by ELC is "premature" since the FY08 budget has not yet been
adopted.
Nov. 2007
Governor Corzine proposes new school funding law that would
eliminate the Abbott distinction. The School Funding Reform Act is
approved in a lame-duck session of the Legislature and signed into
law in January 2008.
Feb. 2008
NJ Supreme Court gives Governor Corzine and legislators another
chance to approve new school construction funds in Abbott XVIII.
Mar. 2008
The state files a motion seeking the state Supreme Court's declaration
that the School Funding Reform Act is constitutional and earlier
Abbott mandates can be eliminated.
Source: http://www.state.nj.us/education/archive/abbotts/chrono/
Equity Funding: Abbott Litigation History
Date
Events
Jul. 2008
Governor Corzine signs legislation to provide $2.9 in state financing
for Abbott school facilities.
Nov. 2008
In Abbott XIX , the Supreme Court remands the new school funding
law case to a lower court for evidentiary hearings, leaving in place the
Abbott remedies.
Mar. 2011
Judge Doyne Remand decision of March 22, 2011.
Source: http://www.state.nj.us/education/archive/abbotts/chrono/
Expenditures and Revenues per-Student
Abbott (III and V)
Abbott (I)
Robinson
NJ
15000
20000
NJ and US, 1970 - 2007
5000
10000
US
1970
1975
1980
1985
current expenditures per pupil (NJ)
1990
1995
2000
2005
local, federal, and state revenues per pupil (NJ)
current expenditures per pupil (US)
Source: http://www.nj.gov/education/stateaid/1213/report.pdf
16000
18000
Real Expenditures per-Pupil in NJ School Districts by District
Factor Group (1992 – 2010)
Wealthiest: J
10000
12000
Budgeted
14000
Poorest: A
1992 1994 1996 1998 2000 2002 2004 2006 2008 2010 2012
Y e
A
GH
B
I
a
r
CD
J
DE
Abbott
FG
Source: http://www.nj.gov/education/stateaid/1213/report.pdf
Is Our Spending Working?
Grade 8 Math, 2002-2007
20
20
Change in percent proficient or higher
40
40
Grade 8 Reading, 2002-2007
0
-40
-20
Camden
-20
0
Elizabeth
Newark
Paterson
Jersey City
Newark
Union Jersey
City Elizabeth
City
Paterson
-10
0
10
20
30
40
50
Percent change in expenditures per pupil
Abbott A
Abbott B
NonAbbott A
60
NonAbbott B
70
-10
0
10
20
30
40
50
Percent change in expenditures per pupil
Abbott A
Abbott B
NonAbbott A
60
NonAbbott B
Little to no relationship between spending gains and
achievement growth among the low-income districts.
Source: http://www.nj.gov/education/stateaid/1213/report.pdf
70
No Correlation between Spending and Gains in
Test Scores
Source: http://www.hks.harvard.edu/pepg/PDF/Papers/PEPG12-03_CatchingUp.pdf
Is Our Spending Working?
District
% FRPL
(2010-2011)
Spending Per
Pupil
(2010-2011)
LAL Proficiency
Grade 8 2011
Camden
83.1%
$22,306
30.9%
Newark
87.1%
$21,706
53.4%
Paterson
86.1%
$19,042
50.9%
Jersey City
77.5%
$22,397
58.1%
79%
$16,878
73.3%
North Star Academy
(2009)
Sources:
FRPL: http://www.state.nj.us/education/data/enr/enr11/district.htm
North Star (2009): http://www.state.nj.us/education/chartsch/annrep/2010/7320.pdf
Spending: http://www.nj.gov/cgi-bin/education/csg/dist.pl?string=co_code&maxhits=1000&datafile=2012/codes.txt&title=2012
LAL: http://www.state.nj.us/education/schools/achievement/2012/njask8/
Our Achievement Gap
NJ ranks between 2nd and 4th in overall attainment on the four NAEP tests.
However, only one state had a larger achievement gap between lowincome and high-income students in the 8th grade.
Source:
Graphs: http://www.nj.gov/education/news/2012/0201test.htm
Stat: http://www.nj.gov/education/news/2012/0209gap.htm
Educator Effectiveness Policies:
Much Room for Progress
Limited ability to
track statewide hiring
needs
We don’t know which
people are likeliest to
become great
educators
Recruitment
Licensure system only
loosely based on
effectiveness
Little
understanding of
what works
Low cut scores for Praxis
II subject tests; set at or
below the 25th percentile
of test takers nationally
100-hour rule;
indiscriminate
about what counts
Delays in certification
process that affect timeto-hire and customer
service
Preparation
Certification
Unknown effectiveness of
educator preparation
programs
Use inputs for program
approvals
LIFO since 1951
Limited ability to
customize PD to
meet individual
needs, as indicated
by evaluations
Evaluation
Summative ratings
have not
historically
differentiated
among educators
Professional
Development
Retention
Pay
Rigid salary
schedules
Exit
Nation’s oldest
tenure law
Educator Effectiveness Policies:
Progress Made and on the Way
•
•
Created a new Human Capital Division led by a Chief Talent Officer
Charged with helping NJDOE lead on each of these and integrating all of the work
•Significant regulatory power
•New Office of Recruitment and
Preparation and Director
•Create new pipelines
•Link student performance to
teachers to programs
•Strengthen alt routes
•Strengthen pre-service training
•Gather metrics on staffing,
placement and performance as they
relate to preparation pipelines
Recruitment
•New Office of Educator Evaluations
•Task Force and report
•Pilots
•Statewide implementation 13-14
•RTTT3
•Tenure reform legislation!
•Regulations on the way
•LIFO remains
•Mostly district policies
•New Report…*
Retention
TIF grant with
Camden
Preparation
Certification
Evaluation
Professional
Pay
Development
•Major regulatory power
•Changing regulations
•Toughen entrance requirements
•Work in progress...
•Tie performance to acquisition,
Exit
•CAO-CTO?
maintenance, and revocation
•CC-PARCC-model curriculum
•New endorsements/certificates
•Tenure reform
•Aligning PD to individual needs
•Revamped call center and streamlined
•Now the hard part…
identified by evaluation
certification
Tentative Conclusions
 Demographics not too much of a story
 Standards/assessments might be part of the answer
 Equity/adequacy funding alone was not the answer
 Educator policies improving