Te State of Public Education in New Orleans A Report Prepared by Te Boston Consulting Group for Te Greater New Orleans Education Foundation Scott S. Cowen Institute for Public Education Initiatives June Tfff Te New Orleans City Council Education Committee  SponSorS of the ASSeSSment the Greater new orleans education foundation The Greater New Orleans Education Foundation (GNOEF), a nonproft organization of business, education, civic, and political leaders, was formed in March 1998 in response to the city’s need to reform its failing public schools. The purpose of GNOEF is to ensure a high-quality education for every child in the fve-parish region of New Orleans with a primary focus on Orleans Parish. Scott S. Cowen Institute for public education Initiatives at tulane University Founded in December 2006, the Scott S. Cowen Institute for Public Education Initiatives is dedicated to the reform of public education in New Orleans. As a major research and academic institution, Tulane University is uniquely qualifed to play a leading role in the transformation effort. Its ultimate goal is to support the public education system and turn it into a model of success. the new orleans City Council education Committee The New Orleans City Council Education Committee seeks to offer assistance and input to local agencies and school districts to maximize the quality of public education throughout Orleans Parish. the Boston Consulting Group Since its founding in 1963, The Boston Consulting Group (BCG) has focused on helping clients achieve competitive advantage. Our frm believes that best practices or benchmarks are rarely enough to create lasting value and that positive change requires new insight into economics and markets and the organizational capabilities to chart and deliver on winning strategies. We consider every assignment to be a unique set of opportunities and constraints for which no standard solution will be adequate. BCG has 64 offces in 38 countries and serves companies in all industries and markets. For further information, please visit our Web site at www.bcg.com.  In the nearly two years since Hurricane Katrina devastated our beloved city, a fundamentally diferent public education system has emerged. Tis new system, although struggling, ofers New Orleans the opportunity to transform and improve public education for every student in every public school. Never before have so much national and local attention and support been focused on public education in New Orleans. To take full advantage of this support, we must come together as a city and support actions, initiatives, and plans that will improve education for all public school students, regardless of race or socioeconomic background. Te State of Public Education in New Orleans is an assessment that provides a baseline of information about how the current system is doing and outlines a set of immediately actionable recommendations for the city that will help achieve the goal of quality education for all public school students. Tese recommendations are created to support transformation eforts over the next two to three years with the assumption that during this period the system’s structure will remain largely unchanged. Although the agenda for the next few years is ambitious, requiring national, state, and local support, it can be achieved. We have heard from many community members that the silver lining of Hurricane Katrina is the opportunity to rebuild and improve our public schools so that all students are provided a high-quality academic and developmental experience. Te future of New Orleans rests in its children — therefore, it is our moral, civic, and economic responsibility to improve education for the next generation. Tis goal will not be achieved overnight, but with patience and perseverance it is possible. Tank you for letting us be a part of the ongoing transformation eforts, and thank all of you who have supported this efort and will continue to support public education throughout the city. Sincerely, Robert “Bob” Reily Scott S. Cowen Cynthia Hedge-Morrell Chair President Chair, Education Committee Greater New Orleans Tulane University New Orleans City Council Education Foundation pre-hurricane Katrina  Te State of Public Education in New Orleans EXECUTIVE SUMMARY .....................................................................................2 THE OBJECTIVE OF THE ASSESSMENT ..........................................................4 THE STATE OF PUBLIC EDUCATION IN NEW ORLEANS BEFORE HURRICANE KATRINA .....................................7 A NEW MODEL FOR PUBLIC EDUCATION EMERGED AFTER HURRICANE KATRINA .................................................. .10 ASSESSMENT OF THE CURRENT SYSTEM .....................................................15 .1.. Te.new.“system.of.schools”.is.struggling,.but.there.are.some.early.signs.of.progress.... .15 .2.. Some.building.blocks.for.transformation.are.emerging...............................................23 .3.. System-level.coordination.is.currently.limited............................................................ .31 .4.. Te.New.Orleans.community.supports.public.education.and.hopes.it.will.improve.... .36 CALL TO ACTION ........................................................................................... .39 RECOMMENDATIONS ................................................................................... .43 .1.. Ensure.adequate.capacity.for.the.2007–08.school.year...............................................44 .2.. Equip.and.empower.all.families.to.choose.the.best.public.schools.. for.their.children.from.a.range.of.high-quality.school.options....................................45 .3.. Strengthen.the.Recovery.School.District................................................................... .49 .4.. Attract,.develop,.and.retain.high-quality.school.principals,.. teachers,.and.staf.for.all.public.schools.......................................................................52 .5.. Support.school-.and.system-level.excellence.for.all.public.schools............................. .54 .6.. Create.and.endorse.a.short-term.action.plan.and.a.long-term.. strategic.plan.for.public.education............................................................................. .56 CONCLUSION .................................................................................................. .58 APPENDIX ....................................................................................................... .59 . . Endnotes.....................................................................................................................60 . . Public.Schools.in.New.Orleans................................................................................... .62 . . Acknowledgments...................................................................................................... .64 . . Glossary.and.abbreviations.and.acronyms....................................................................66 table of contents  Executive Summary Before Hurricane Katrina, New Orleans Public Schools ranked as one of the lowest-performing school districts in the country. Te district faced signifcant fnancial problems and was on the verge of bankruptcy. Te physical condition of the school buildings was poor, with many in desperate need of long-overdue repairs and renovations. In August 2005, Hurricane Katrina physically and fnancially devastated the city of New Orleans and its public schools. It displaced all 64,000 students and 7,500 public school employees. In the aftermath, a new “system of schools” emerged. Tis new system, while struggling, has the potential to fundamentally transform public education in the city. If it can, New Orleans will be able to provide every public student in every school with the opportunity for a high-quality education. THE NEW MODEL THE STATE OF enrollment policies, and improved PUBLIC EDUCATION fnances. Some charter schools initially Since Hurricane Katrina, a new model appear strong; others are struggling. for public education has emerged. Te Te new “system of schools” is Yet without comparable information 58 public schools in New Orleans are struggling, but there are some on student academic achievement, it now governed by two boards. Te early signs of progress. Reopening is still too early to evaluate how well Orleans Parish School Board (oPsB), 58 schools in 20 months, after a major schools are helping students grow the local governing entity for all natural disaster, has been an enor- academically and developmentally. schools before the storm, has retained mous challenge. Operational problems control of 17 schools: 5 managed by in facilities, transportation, and meal Some building blocks for trans- the district and 12 charter schools — service continue to plague the schools. formation are emerging. Te public schools that are given increased School operators have had mixed emergence of public school choice autonomy in exchange for more success dealing with these issues. is a promising element of the new accountability for student performance. Te rsD and the schools it operates system, although it is currently Te state-run Recovery School District have been hampered by operational constrained by a lack of schools, (rsD) operates 39 schools: 22 district disadvantages, inexperenced leader- inequitable access for students, and run and 17 charters. New Orleans has ship, and insufcient district staf. Te limited information. For many 57 percent of its students in charter oPsB appears to be doing better than schools, the increased school-level schools — the largest percentage of before Hurricane Katrina due to its autonomy — the ability to make any district across the country. signifcantly smaller scope, selective budgeting, stafng, and curriculum  the state of public education in new orleans  decisions at the school level RECOMMENDATIONS and build the expertise of school — granted in exchange for greater administrators and teachers. Last, the Based on these fndings, we make six accountability appears to have Board of Elementary and Second- short-term, actionable recommenda- sharpened the focus on improving ary Education, the rsD’s governing tions focused on improving educa- student achievement. In addi- board, should create a process and tion for all public school students. tion, the vast majority of public timetable for returning public schools school operators have shown an 1. Ensure adequate capacity for the in New Orleans to local control. initial commitment to developing 2007–08 school year. Since the rsD is 4. Attract, develop, and retain high- the knowledge and skills of both responsible for opening and operat- quality school principals, teachers, principals and teachers, which ulti- ing the majority of schools, it should and staf for all public schools. Pub- mately should translate into take the lead on creating a team and lic schools in New Orleans should improved classroom instruction. plan to ensure enough schools are work together to create innovative ready to open in August. Tis plan System-level coordination is cur- recruitment and retention strategies should include an aggressive strategy rently limited. A system with mul- aimed at high-quality principals, to recruit and retain teachers and staf, tiple operators can beneft students, teachers, and school staf. In addition, a process to streamline procurement, parents, and school leaders by foster- schools should expand professional and an evaluation of innovative ways ing innovation and allowing those development opportunities that sup- to ensure there are enough schools for closest to the classroom to make key port efective classroom instruction. all students. decisions. However, without sufcient 5. Support school- and system-level support structures, individual schools 2. Equip and empower all families excellence for all public schools. are not in a position to overcome the to choose the best public schools Public education in New Orleans systemwide challenges that afect for their children from a range needs a group or groups focused all of them, notably in the areas of of high-quality school options. exclusively on supporting initiatives facilities and fnances. Also, without To make choices available for all that beneft all public schools. Re- a single vision, unifed plan, or entity students, families must have easy- sponsibilities would include securing guiding the long-term transforma- to-understand information about and marshalling resources, facilitat- tion of the system, many measures public schools and all students must ing collaboration, and building local that could beneft all public school have access to diverse, high-quality and national relationships to support students have not been implemented. options. Enrollment barriers should school transformation. be limited, and there should be open- Te New Orleans community sup- access schools in every neighborhood. 6. Create and endorse a short- ports public education and hopes Additionally, resources must be term action plan and a long-term it will improve. Te New Orleans adequately and fairly distributed to strategic plan for public education. community, nonprofts, and local all schools. Education and community leaders universities have become increasingly should create a short-term action plan involved and supportive of public 3. Strengthen the RSD. Te rsD to priortize key systemwide initiatives education. Individuals and groups must strengthen the capabilities of that require immediate action. In have worked tirelessly to rebuild district leadership, develop a 100-day addition, New Orleans should create and improve the schools. Although turnaround plan to improve its opera- a long-term plan for public education public opinion is mixed on whether tions, and develop and implement that includes input from the commu- public schools are currently better plans to improve special education, nity and builds on previous planning than before Hurricane Katrina, there student discipline, and student processes. Tis plan should be widely is a strong belief that public schools mental health services. In addition, it endorsed and communicated. should and will improve. should evaluate ways to engage the community, create school networks, executive summary  Te Objective of the Assessment The PuBlic school system in New Orleans stands at a critical junc- tion. Since Hurricane Katrina, substantial changes have occurred at both the system and school levels. Many of these changes have provided New Orleans with the building blocks to create an excellent public education system. Yet with change come challenges. Public education has many substantial obstacles to overcome before it can provide all students with a high-quality educational and developmental experience. Te objective of this report is to present an accurate and objective assessment of the prog- ress made by, and the current challenges facing, the public schools in New Orleans since Hurricane Katrina. It highlights specifc opportunities and successes as well as identifes barriers to progress and improvement. Tis report is intended to inform and engage the New Orleans community; local education, civic, and nonproft leaders; and local, state, and federal legislators. It should serve as a starting point for a continued conversation focused on transforming public schools in New Orleans. Te report provides the New Orleans community and education leaders with a beginning set of realistic and actionable recommendations that are motivated by a strong desire to give every student in every public school the opportunity to achieve his or her potential. Te recommendations focus on building on current system successes and addressing critical and immediate needs. Te recommendations do not provide a long-term strategy or vision for New Orleans. Instead, they serve as a roadmap to get the system on the right path for the next two years.  the state of public education in new orleans   OVERVIEW OF THE ASSESSMENT PROCESS More than 2,000 New Orleanians Tis report is based on a comprehensive fact base and a thorough analysis of public Answered Our education compiled by a team from Te Boston Consulting Group (BcG). Tis assess- Community Survey ment captures the views, concerns, and hopes of New Orleans parents, students, teachers, principals, community members, and education, civic, and business leaders. Survey respondents During the assessment process, input from more than 3,000 New Orleanians was used to by affliation develop the report. More than 2,000 parents, students, teachers, and community mem- Other bers flled out surveys that were available both online and in paper form through schools, Community respondentsi members n oregigahnbizoarthionosd a gnrdo uaplls ,5 8a npdu blolicca sl cnhoonoplsr owfetr eo ragsakneidz attoi opnasr.t iMcipoarete t hina nth 1e0 a0s sceosmsmmeunnt.i tFyo r six 5% Teachers weeks beginning in March 2007, researchers met with approximately 1,000 community 18% members through a series of community meetings, including: 33%  Two communitywide town hall meetings open to the public;  15 meetings with neighborhood groups and associations across the city; and 21%  10 school meetings with teachers, parents, and students across the Recovery School 23% District (rsD), the Orleans Parish School Board (oPsB), and charter schools. Parents Students Note: Respondents include current and former Orleans Parish residents. i “Other respondents” include survey respondents that did not identify themselves as current or former Orleans Parish residents. Source: BCG community survey. We Engaged Nearly 1,000 Community Members through 25 School and Neighborhood Meetings BAYOU 47 10 N WSAAITLVIDOALGNIFEAEL LAKE PONTCHARTRAIN REFUGE 310 10 MSCETED. NJIUCTDEAREL EKSPELANNMJEATNFAHDFLRELARCRSOE NTR DAOCKWN4S9 CSLHCEOEANPRTPVEeINtEReWGrans MemorialL CHFAIAwKTTyEMYSAIDLEL HYCarcibthyotr E . L PCAVLIITRASYKTEA UNNEIWVE ORRSGILTEYAN ONTFSI LLY PUOC.N AOETMAFCPS PHNATURA.OSKRT. RAINLAKAEIFRRPONR3T1431770 90 PLTAHZAE LOSUCISEINANCAE CNEANTTUTPERLHRAEZ &A 54170 90 ANS.ASE.SM.AB. LMY IFCAHCOILUITDY Neighborhood/ 48 A6M1 A J 1IN8NTEEWARTI RENRORPA RMOTLIRINEOTANLNASL RIDVEGRELA FPRAER 4NK8IERE 1HL0A6OK1SEPSIITDAEL 48ME4JE8FT3F1JEA93eR09 9EfSIe0faAOeRrihrNlasinIrote E EnHx pwwHyywy CMOECUTLANUITBRRIEY LOCNAMENGUEMUDNTEOEAU IGVT IDLVERDEACU RIREGENSOESYLDOT9EI GLHTAE0RLAYNDOEMDSGIULOESEMEY10 FAOMIFRU GAS9ER0UTOAMURMNSLSD69OUTL10SPOPUAU09EUBNIRDNSUR0IGKSISIDIALVONLEARAMRQ1SFEDI0TURNCYEAOENWRNTCTV OEHRNROALTELIOAGRNINSELR4ESE6R3WUEA9S.SE.RN NVAVTSAOLN BNGAUARTARINROADANCTCAKAIAOJLSERLNAMANAEBL4 LT 6IHATFIESI TUTT.N EPIATRK-39 47 RPVAEAIRSLKS cSochmomolu mnietye tminegeting MS AWARAILENVDAL9DGI0FOEMR ENT CataLoaukaetche WAGGAMAHNAR1A8HANV9O0NDALEBRCIDTGYSEBSGPATANYAROETKTEUTE18WAEISRB9TUP0WSOWERGETOSTWAZUOEPDAOGUREBOKSOWT1N8EeL4sLUMLt5ON EBYIAVO.LRARE31R3O45 BPHIHNREAOSLOVTPL1ME.E8NHEDGNAIASRDRTVEDREIECYHNTISTSGOR3RCEI0TICEN1ATA7LY GREGTRPCANEITRTAYNKTAICM9BOU0CBSUELNURLTB ARBNYlE 2T3ER4R32Y08T1O7BPNWSARATRENVAUKCABTH.GOBASLCIAOTUOR. LYAELNRUONFCLOITBE CURUC&OR4RFBRHYR 2LH4EO L8LA0OELAS6GSLSLDYESEYE23 CHALSM3TCS1URAET3LCE.AR7TE SENCSENTEADCL3ET UGREONUA9EACGURNRLILHRNLINBEVISTSE.RHR- Y AT CUILTRUNHB WAITE ME4RE0CAWN6AUGILEaDXPISAREHRN KNTAEUSRSNVOSNSTPT. AOBVTEYRI ODNPA43ALR96EKADTSthe objective of the assessment  M R o b e r t l a i b o r S t. C laud e efreson Hwy E V R n l s i Av vA e C n St. B e r L a p a l clB o l c o B p i s s i s a EB l Tulane Av nereaDlG r delelu Ga 4th St p R d a u G .l f C Ra ni pa l E h a r t r h a s e H w y H uey P. Long L a r S tPwe .re zg DB redr n . Ja rud H B e l l e C rB R i v e SSIS S I y M R E V I R IPPI NInanve. rC Hharnbnoerl M w kP Hickory Av Barataria Bl Clea r v i e wy Central Av Paris Rd a Woodland Hwy n i t S Pontchartrain Causeway Causeway Bl Pontchartrain Bl Behrman Hwy R d W illi a m s Bl P a r i s Paris Rd o n Hwy Louisiana St e i B s A v Broad Av Rampart St B n i R e f f e r G a s t rn ExpwyF o n e re s e t B a a a Intercoastal Waterway p dR r e v C Hayne Bl n a J e H wy k E e o r a v r a t a r i a B l l Airline H w y SIM l . l i n t L B a o e e Chef Menteur i nu b y 4th St L c H w y i D L e o S B C r h e f P I S S IS l I ntMerecnotaesutra lH Wwy aterway u S . C l k E xpwy d e o mn e y B ll I P d R iver R a n o r In addition to the extensive community engagement process, BcG researchers:  Created a survey specifcally designed for school leaders and distributed it to all public schools in New Orleans;  Conducted in-depth interviews with the Louisiana Department of Education (lDe), oPsB, rsD, and charter school leaders;  Heard from more than 50 local education, civic, business, neighborhood, and non- proft leaders through a series of forums on education and interviews; and  Reviewed research from focus groups in Treme and Algiers conducted by Dr. Silas Lee and Associates. Trough these interviews and meetings, researchers met with a diverse group of individuals with connections to every reopened public school in the city of New Orleans. BCG also sought input from locally and nationally recognized experts in such felds as urban education reform, capacity building, and equity in education. Feedback from these experts was incorporated into the recommendations to ensure they were supported by national education best practices.  the state of public education in new orleans 