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