Sharing, Restructuring High Schools, and School District Reorganization

Maintaining Comprehensive Instructional Programs

Franklin-Essex-Hamilton BOCESOctober 28, 2010

Alan D. PoleEducation Consultant

315-692-4615/polead@yahoo.com

The Perfect Storm

Greater expectations and opportunities for all students

Declining student enrollment in many districts

Precarious financial condition

Business as usual will not be an option

Sharing Opportunities

Shared Administrators

Instructional Leadership:

Special Education

Curriculum/Staff Development

Instructional Technology

Athletics

Business Official

Superintendent

Shared Superintendent…..+/-

• Saves money

• Promotes sharing in other areas

• Twice as many board meetings, concerts and athletic events

• Reduced superintendent tenure• Split community allegiances

• Stressed when a crisis occurs

Shared Management Functions

Staff--Transportation, Custodial/Maintenance, Food Service, Health Care Coordination, Records Management, Safety

Risk Management, Instructional TechnologySubstitute teacher recruitment/callingCentral business officeCooperative purchasingSpecial education financesPrinting and copyingTransportation and maintenanceEnergy managementMaintenance specialists

Shared Facilities

Fuel filling stations

Libraries

Fitness center

Records storage

Special education programs

Restructuring High Schools

Tuitioning Of High School Students

2040-2045 of Education Law and Part 174 of Commissioner’s Regulations

Contract developed to provide high school (7-12)

Requires a referendumContract is for 2-5 yearsSending district is responsible

for transportationTuition is set at or below the

Seneca Falls formula

Pre-Referendum Study

Enrollment projectionsInstructional programExtra-curricular opportunitiesStaffingTransportationFacilitiesFinancesCommunity perception survey ???

Advantages/Disadvantages of Tuitioning High School Students

Maintain school district identityMaintain school district governance structureIncreased academic and extra-curricular

opportunities for studentsLoss of high school identity and programsLoss of high school as a community facilityLonger bus ride for high

school studentsFinances (???)

Regional High School Study(Wayne County, New York)

Maintain 11 school districts, 11 boards of education, and 11 superintendents

Maintain the existing elementary and middle schools in the 11 school districts

Transition from 11 high schools to 4 high schools

Current high schools

average 470 students

Motivation for the Study

Desire to provide a “world class” education for the students

High school enrollment has been declining (8.3% since 2005-06)

County study identifying

Wayne County taxes as the

highest in the nation

Sharing Opportunities

Wayne Student Exchange Programs

New Vision Programs

Thematic High School Programs

Electronic Learning Programs

Alliance High School Program

Regional High School Study Findings

Estimated average decline in high school enrollment of 19.8% through 2018-19 (4 districts between 25-30%)

Larger high schools provide more opportunities for students

More cost effective to add on to/renovate existing high schools than build new high schools

Some high school students will have longer bus rides Annual cost savings of approximately 3% with 4

regional high schools The public likes their high

schools very much!

RecommendationsNeed for State legislationNeed for financial incentivesNeed for community dialog about the futureNeed for more compatible high school

schedulesNeed for more collaboration/new rules for

inter-scholastic athleticsNeed more sharingNeed for follow up to study

School District Reorganization

Why Consider Merger?Increase course offerings for studentsTeachers teach only in their area of specializationUpgrade facilities and equipment Provide equitable salaries and benefits to

employeesMore cost effective administrative structureEliminate duplication of facilities, equipment, and

staffConsolidate and coordinate support functionsReduce taxes

Why Merger May be Difficult

Fear of losing local identityPerception that the communities are

incompatibleUncertainty over board representationLess personal attention for studentsBusing time for students will be

increasedFear of losing job security by staffNatural resistance to change

Types of Reorganization

Centralization-New district created with a new name and a new board of education

Annexation-One district takes over the other district with the annexing board of education, administration,

policies, district name, etc.

remaining in place

Two Steps in the Merger Process

The Study-Conducted by consultants with oversight by a local committee to provide information to the boards, the administration, and the communities

The Vote-Facilitated by the State Education Department and the District Superintendent, boards sanction two public referenda, one that is advisory and the next one that is final

Components of the Study

Enrollment Projections

Instructional and Extra-curricular Program

Finance

Facilities

Transportation

Staffing

The Merger StudyProvides information for school district officials, the

communities, and the Commissioner on enrollments, staffing, curriculum, transportation, facilities, finances, etc.

Facilitated by consultantsOverseen by school/community advisory committee

of 18-22 peopleReport is the responsibility of the consultantsBoth boards of education decide how to proceed with

the final study

Time Line for the Study/Merger September-Boards meet to discuss studyNovember-Committee appointedMay-Study completed June-Study reviewed by S.E.D. August-Study presented to boards September-Public information and discussionNovember-Boards decide to go forth December-Advisory referendum January-Final referendum April-Vote for new board membersMay-Budget vote July 1-New district begins operation with

the new board of education

Mergers-What Research Tells Us

Curriculum opportunities for students will be enhanced

Extra-curricular opportunities for students will be enhanced

School buildings will be enhancedSome students will have a longer bus ride Class sizes tend to get largerTax rates on true value declineSchool district spending increasesStudent achievement will not

necessarily increase

The Finances of Merger-Part 1

Incentive Operating Aid

Combined operating/foundation aid for both districts combined is increased as follows:

Year 1-40% Year 6-36% Year 11-16%Year 2-40% Year 7-32% Year 12-12%Year 3-40% Year 8-28% Year 13-8%Year 4-40% Year 9- 24% Year 14-4%Year 5-40% Year 10-20% Year 15-0%

The Finances of Merger-Part 2

Incentive Building AidAdditional 30% on top of the higher district’s

selected building aid ratio up to 95% (98% for high needs districts) for 10 years for any new construction

Existing debt is aided at the higher of the previous districts’ selected building aid ratios

The 1/3, 1/3, 1/3 Guideline for Incentive Operating Aid

1/3 to finance transition costs to the merged district

1/3 in reserves for long term fiscal stability

1/3 to reduce taxes

History of School DistrictReorganization in New York State

Year Number of Districts Decrease1870 11,3721890 11,216 1561910 10,565 6511930 9,118 1,4471940 6,397 2,7211950 3,189 3,2081960 1,293 1,8961970 760 5331980 739 211990 720 192000 704 162010 697 7

School Districts in New York State-2010

Size of District Number EnrollmentBelow 300 21 4,295300-599 66 29,919600-899 58 43,154

900-1199 88 91,3881200-1499 59 78,3951500-1999 78 135,0922000-4999 182 590,0785000-9999 70 474,394

10000 + 17 1,279,383

The Past………The FutureThe structure of school districts has changed

dramatically in the past centurySchool enrollments are projected to continue

to decline for at least the next 10 yearsMore will be required of our students in order

for our state and country to be leadersThe financial support for public schools will be

challenged in new and different waysBusiness as usual will not

be an option