funding dance

City plans to slash funding from Young Adult Borough Centers — a last resort option for students

PHOTO: Patrick Wall
Boys and Girls High School has seen two principals depart since the Renewal program started.

Evening programs that offer students who struggled in high school another chance to graduate may soon face steep funding cuts from the city’s education department.

Education officials plan to reduce funding directed to the city’s 23 Young Adult Borough Centers by an average of $254,000 each, and will shift the money to transfer schools, which also help students who have fallen behind in traditional schools.

The funding in question is used to hire counselors who help keep students engaged in school, offering career and academic support, and to pay students to complete internships. City officials are planning to shift funding so that more transfer schools — serving more students — can get those benefits.

But the move could leave schools that serve some of the city’s most vulnerable students with fewer resources to get them to graduation, some observers said, all while Mayor Bill de Blasio has vowed to increase the city’s graduation rate to 80 percent. Several agencies that provide those services in schools argue the funding shift will have dire consequences for YABCs.

The cuts will be “devastating [and] would fundamentally change the program,” said Michelle Yanche, director of government and external relations at Good Shepherd Services, a nonprofit organization that helps run the program in a dozen YABCs. “It shouldn’t be taken from Peter to pay Paul.”

Young Adult Borough Centers, which serve about 4,800 students citywide, are night programs rather than standalone schools. Transfer schools, meanwhile, are actual schools that run classes during the day, serving about 13,000 students. In both, students who have fallen behind in high school work toward high school diplomas.

The funding stream the city plans to shift from YABCs to transfer schools is dedicated to a program called Learning to Work. Education officials are actually increasing the amount of money spent on that program by $3.7 million. But because the city is planning to expand it to 18 more transfer schools, the average transfer school will see about a $7,000 bump, while YABCs each lose roughly $250,000.

City officials said the exact changes in funding will depend on student enrollment and need, and stressed that the funding changes are estimates. Overall, the changes are a positive, they said, since they provide more funding and will reach more students.

“Expanding Learning to Work to all eligible transfer schools is what’s best for students and families, and will support approximately 5,000 more high-needs students on their path to college and careers,” said education department spokesman Will Mantell.

Helene Spadaccini, principal of a transfer school in the South Bronx, said her school has used the program to place students in internships in fields like retail and construction.

“It’s been extremely powerful in working with our students, which is why I’m really glad it’s spreading,” Spadaccini said.

But the shift will mean YABCs lose about a third of their current funding, and will result in staffing reductions. The staff-to-student ratio at YABCs is expected to balloon from one staff member per 34 students to one per 55, according to a Department of Education document obtained by Chalkbeat.

The change in staffing levels could have a major effect on the program’s quality, multiple providers said. “What makes the difference for our students is if they have individual adults who are like clams holding on to them, who know if they are going to school every day, and reach out if they don’t,” Good Shepherd’s Yanche said. “That relationship is the most pivotal factor.”

Sheila Powell, who has two children who graduated with the help of YABCs, has seen that firsthand. In the YABCs, unlike in larger high schools, teachers ensured her children didn’t slip through the cracks, Powell said. They also called her multiple times each week to check in.

“They loved my daughter, they loved my son,” Powell said. “They were really concerned, genuinely concerned, about my kids and they didn’t give up on them.”

Several providers and advocates said they supported the expansion of Learning to Work into more transfer schools — just not at the expense of other programs that serve the city’s most vulnerable students.

“New York City continues to see increased graduation rates, and the range of programs [for over-age and under-credited students] are a big reason why,” said Lazar Treschan, director of youth policy at the Community Service Society. “Moving any funding out of YABCs seems very short-sighted.”

getting to graduation

A capstone project before graduation? New York debates new ways to earn a diploma

PHOTO: Brad Vest/The Commercial Appeal
Booker T. Washington High School seniors toss their graduation caps into the air last spring at the conclusion of their graduation ceremony at the Orpheum Theatre.

As New York continues to rethink what students must do to graduate high school, state policymakers floated their latest idea Monday: Let some students complete a “capstone project” on their path to a diploma.

State education officials have long grappled with graduation requirements. Traditionally, students have had to pass five “Regents” exams in order to graduate. But in recent years, the state has created additional options after policymakers argued that strict test-score requirements can hold some students back.

The debate in New York comes as several states have decided to drop or deemphasize their own exit exams. In New York, policymakers are caught between two cross-currents, said Bob Lowry, deputy director of the New York State Council of School Superintendents.

“One is assuring students a fair chance at earning a diploma,” he said. “The other current is to try and ensure a diploma means something.”

New York is one of only two states that require five or more exams to graduate. Several states have moved away from exit exams. Just last week, California’s governor officially abolished theirs.

New York currently allows students to replace one of the Regents exams with alternative assessments, including a career-focused exam or an arts test. The state has also made exceptions for students with disabilities, who only need to pass two Regents exams to graduate.

Last year, the state Board of Regents discussed allowing students to substitute a project-based assessment for a failed Regents exam. Allowing students to swap in a capstone project for a Regents exam would fit that trend.

However, when asked about the proposal, State Education Commissioner MaryEllen Elia said students would be able to complete it in addition to the exit exams — not in lieu of them.

“It would not replace Regents exams,” she told Chalkbeat. “Be real clear about that.”

But if Elia is cautious about replacing Regents exams, some board members want to radically rethink the state’s graduation requirements.

Regent Roger Tilles said Monday that the exit exams might be “holding students back as opposed to helping” them. In the past, he has said the state should “start from scratch” and come up with a totally new path to a diploma. (Another board member, Lester Young, proposed on Monday creating a commission to study alternative graduation options.)

Tilles’ remarks earned a round of applause from a group of parents who have been attending meetings to push for more diploma options. One parent advocate, Wendy Harnisher, said Elia should not rule out making the capstone project one option for students who are struggling to graduate.

“For her to say no,” Harnisher said, “I think that’s closing a door on an opportunity that could potentially help a lot of kids.”

The state education department has not made a final decision about the capstone project proposal, and will solicit public feedback before doing so, said spokeswoman Emily DeSantis, adding that the state is committed to giving students multiple ways to graduate.

“This is not about changing our graduation standards,” she said. “It’s about providing different avenues – equally rigorous – for kids to demonstrate they are ready to graduate with a meaningful diploma.”

diploma dilemma

New York’s graduation rate could drop under new federal education law

PHOTO: Christina Veiga

New York state’s high school graduation rate may take a hit due to an under-the-radar provision in the new federal education law.

The Every Student Succeeds Act, or ESSA, requires states to count only “standard” diplomas earned by a “preponderance” of students or honors diplomas in their federal graduation rate. It’s possible that definition would exclude New York’s “local” diploma, a less rigorous option earned by only about 4 percent of graduating students. (Most students earn a “Regents” diploma, which requires higher exit-exam scores than the local version.)

The U.S. Education Department is currently reviewing New York’s ESSA plan. It’s unclear how the federal agency will enforce the graduation rule — and whether New York’s local diploma will pass muster — but experts say it does not appear to meet the requirements of the law. If so, New York may be forced to lower its graduation rate or report separate state and federal rates.

“The law is really clear about what can be counted,” said Anne Hyslop, an education consultant who formerly worked as a senior policy advisor at the U.S. Department of Education. “As long as the Regents is the standard diploma, the only diploma that can be counted is a higher, more rigorous diploma.”

U.S. education department officials declined to say whether New York’s local diploma will count towards the state’s graduation rate under ESSA. New York officials noted that their plan is still under review.

Indiana has already felt the effects of the new rule.

Indiana’s education department announced that in response to the federal law its “general” diploma which is earned by about 12 percent of Indiana graduates who struggle academically or have a disability will no longer be included in its federal graduation rate.

The federal rate is used to hold schools accountable for their performance. States must target any school with a graduation rate below 67 percent for improvement, though states can decide which interventions to use. (New York’s plan allows schools to use their six-year graduation rates to meet that benchmark.)

In response to the new rule, Indiana officials are considering using two different graduation rates: one for the federal accountability system and the other for the state’s. In practice, that would mean different sets of criteria for when state and federal school interventions kick in.

New York could theoretically use two separate counts as well. In that scenario, it would use the lower federal rate for ESSA accountability purposes, such as identifying low-performing schools. But it would still maintain a state rate that factors in local diplomas — a move that would enable students to keep earning the local diploma, which is recognized by colleges and the military.

“The local diploma can still be awarded,” Hyslop said. “That diploma still carries meaning.”

But reporting two separate graduation rates has drawbacks particularly for anyone who wants to understand how schools are performing, said Michael Cohen, president of the nonprofit Achieve, which helps states work on academic standards.

“It would be confusing to anyone who wants to know what the actual graduation rate in the state is,” Cohen said. “If I were a resident in a state that did that I would wonder what’s going on.”

The intent of ESSA’s “preponderance” rule is to push states to issue a single diploma option without lowering the bar for any students, including those with disabilities. Many advocates think if states create easier options it will lower expectations for some students.

“We do believe that students with disabilities largely can achieve the regular standards diploma options,” said Melissa Turner, senior manager for state policy at the National Center for Learning Disabilities.

But sticking to a single graduation cutoff inevitably means leaving some students without a diploma, which can thwart their job or college ambitions.

Rather than withhold a diploma from students who score below the cutoff, New York created the local diploma option. It functions as a safety net for students who are struggling academically, still learning English or have disabilities. There are several ways students with disabilities can earn the credential, but the most recent option allows students to graduate by passing only the math and English Regents exam.

“It’s about providing different avenues – equally rigorous – for kids to demonstrate they are ready to graduate with a meaningful diploma,” said state education department spokeswoman Emily DeSantis, adding that officials would include ESSA in their graduation discussions over the coming months.

Still, experts warned that New York’s alternative diploma options may run afoul of ESSA.

If New York was “really following the letter of the law they would just drop their graduation rates,” by a few percentage points, said Monica Almond, the senior associate for policy development and government relations at the Alliance for Excellent Education.