Observations on School Reorganization Kent Gardner, PhD President & Chief Economist.

Observations on School Observations on School ReorganizationReorganization

Kent Gardner, PhDKent Gardner, PhDPresident & Chief EconomistPresident & Chief Economist

Center for Governmental Center for Governmental Research (CGR)Research (CGR)

Independent, objective nonprofit Independent, objective nonprofit dedicated to the public interestdedicated to the public interest

Founded in 1915 by Eastman Kodak’s Founded in 1915 by Eastman Kodak’s George EastmanGeorge Eastman

Provide decision support for Provide decision support for government, business and nonprofit government, business and nonprofit leaders through research and analysisleaders through research and analysis

Active throughout NYS; some activity Active throughout NYS; some activity in other states (currently NJ, MA, PA, in other states (currently NJ, MA, PA, AZ)AZ)

Our ContextOur Context Deeply involved in municipal reorganization Deeply involved in municipal reorganization

discussion—40+ communities in NYS, NJ, MA during discussion—40+ communities in NYS, NJ, MA during previous 5 years; general purpose municipalities previous 5 years; general purpose municipalities (village/town/city/county) predominate(village/town/city/county) predominate

Public educationPublic education Cost comparison: Long Island v. Northern VA (Rauch Cost comparison: Long Island v. Northern VA (Rauch

Foundation)Foundation) Central business office opportunities (Sullivan, B-T, SCT Central business office opportunities (Sullivan, B-T, SCT

BOCES)BOCES) Various service sharing studies (Nassau County, Addison, Various service sharing studies (Nassau County, Addison,

Orchard Park, Tonawanda, WSWHE BOCES)Orchard Park, Tonawanda, WSWHE BOCES) Currently: Supporting RCSD strategic plan; exploring Currently: Supporting RCSD strategic plan; exploring

regional HS for Ontario County (Wayne-FL BOCES)regional HS for Ontario County (Wayne-FL BOCES) 1993: Studied reorganization statewide on behalf of NYSED1993: Studied reorganization statewide on behalf of NYSED

ObservationsObservations School district mergers don’t save moneySchool district mergers don’t save money

Maxwell analyses of “potential cost savings” & common sense Maxwell analyses of “potential cost savings” & common sense suggest that they could. To date, they have not.suggest that they could. To date, they have not.

Why not? These are disruptive & unpopular—we buy off the Why not? These are disruptive & unpopular—we buy off the opposition to achieve them.opposition to achieve them.

Generalizations about NYS districts are dangerousGeneralizations about NYS districts are dangerous NassauNassau

• Of 53 unified/ES districts, 31 contain 5 sq mi or lessOf 53 unified/ES districts, 31 contain 5 sq mi or less• 3,500 students per district—ranging from 674 (Island Park) to 3,500 students per district—ranging from 674 (Island Park) to

8,149 (Massapequa)—2009 8,149 (Massapequa)—2009 • CWR varies by factor of 8.6: .541 (Hempstead) to 4.655 (Oyster CWR varies by factor of 8.6: .541 (Hempstead) to 4.655 (Oyster

Bay)Bay) GreeneGreene

• 7 districts: Smallest is 65 sq mi (Coxsackie-Athens); largest is 174 7 districts: Smallest is 65 sq mi (Coxsackie-Athens); largest is 174 sq mi (Hunter-Tannersville)sq mi (Hunter-Tannersville)

• 1,200 students per district—ranging from 411 (Windham-Ashland-1,200 students per district—ranging from 411 (Windham-Ashland-Jewett) to 1,715 (Catskill)—2009 Jewett) to 1,715 (Catskill)—2009

• CWR varies by factor of 2.6: .565 (Cairo-Durham) to 1.511 (Hunter-CWR varies by factor of 2.6: .565 (Cairo-Durham) to 1.511 (Hunter-Tannersville)Tannersville)

Observations Observations (cont.)(cont.) State’s diversity suggests that differences between State’s diversity suggests that differences between

districts make general statements difficult; in our districts make general statements difficult; in our experience, idiosyncratic factors swamp experience, idiosyncratic factors swamp commonalitycommonality

Conclusions from research? Can’t make bricks Conclusions from research? Can’t make bricks without straw . . .without straw . . . Duncombe & Yinger school cost study: 12 consolidations Duncombe & Yinger school cost study: 12 consolidations

b/n 87 and 95b/n 87 and 95 Hue & Yinger property value study: 15 consolidations b/n Hue & Yinger property value study: 15 consolidations b/n

90 and 0090 and 00 Few observations limits power of formal analysisFew observations limits power of formal analysis

Conclusion: The value of further study of past Conclusion: The value of further study of past consolidations is limitedconsolidations is limited

Focus on new structures/alternative modelsFocus on new structures/alternative models

What’s the Objective?What’s the Objective? We seek to improve educational outcomes in an We seek to improve educational outcomes in an

environment of shrinking resourcesenvironment of shrinking resources Follow the money: Evidence suggests that Follow the money: Evidence suggests that

structure is less important than productivity in structure is less important than productivity in the classroomthe classroomRather than re-arranging the desk chairs, let’s focus on Rather than re-arranging the desk chairs, let’s focus on improving the productivity of teachers, e.g. teacher education, improving the productivity of teachers, e.g. teacher education, recruitment, mentoring, evaluation, professional development, recruitment, mentoring, evaluation, professional development, compensationcompensation

Perfect is the enemy of the good: Perfect is the enemy of the good: Recognizing the role that district boundaries Recognizing the role that district boundaries play in defining community identity & the play in defining community identity & the power of the power of the status quostatus quo, let’s focus our , let’s focus our research on improving efficiency WITHOUT research on improving efficiency WITHOUT eliminating districtseliminating districts

Blur the BoundariesBlur the Boundaries Expand use of distance learning tools/alternative Expand use of distance learning tools/alternative

settings (particularly for rural districts); use settings (particularly for rural districts); use technology to achieve gains from consolidation w/o re-technology to achieve gains from consolidation w/o re-drawing boundariesdrawing boundaries

Reform incentives for use of BOCESReform incentives for use of BOCES BOCES aid intended to differentially subsidize poor districts, BOCES aid intended to differentially subsidize poor districts,

but also distorts price signals: Encourages use of BOCES even but also distorts price signals: Encourages use of BOCES even at higher costat higher cost

Limits on what is “BOCES aidable” can leave BOCES on Limits on what is “BOCES aidable” can leave BOCES on sidelines where true efficiencies can be achievedsidelines where true efficiencies can be achieved

Consider converting BOCES aid to “block grant”Consider converting BOCES aid to “block grant” Encourage service sharing across BOCES bordersEncourage service sharing across BOCES borders

Consider whether school governance should be Consider whether school governance should be restructured—has the local school board outlived its restructured—has the local school board outlived its usefulness?usefulness?

Questions?Questions?