By Helen Zelon
The New York City public school system has always been led by teachers. Until the chancellorship of Joel I. Klein.
When Mayor Michael Bloomberg was elected, he vowed to improve the city’s
schools, initiating far-reaching overhauls that began with mayoral control: The
demolition of the independent and often mayor-opposing Board of Education, the
creation of a Department of Education, and the formation of the mayor-vetted
Panel for Educational Policy. Critical to Bloomberg's vision was his appointment
of Schools Chancellor Joel I. Klein, the former head of publishing giant
Bertelsmann and U.S. Department of Justice antitrust attorney who sued Microsoft
– and won.
Historically, educators lead departments of education. But of the 16 individuals
on Klein’s leadership team, only two are educators. In the Bloomberg era,
lawyers and MBAs dominate: not only did Klein have a career in law, James
Liebman, the Chief Accountability Officer who developed the school progress
reports that now drive school survival and principals' job security, is a law
professor at Columbia. Stephanie Dua, who heads the Office of Strategic
Partnerships – and is CEO of the DOE-linked Fund for Public Schools – worked as
a management consultant at the global business consultancy McKinsey & Company.
Garth Harries, former Chief Executive of Portfolio now charged with reviewing
special education services, came to the department via Stanford Law and
McKinsey. Deputy Chancellor Christopher D. Cerf trained as a lawyer and worked
with the Edison Learning Company, in 2006 the world’s largest for-profit schools
network.
Others come from the political sphere: Micah Lasher, the department’s chief
lobbyist, founded the KnickerbockerSKD political communications firm, with
clients including Caroline Kennedy, Andrew Cuomo and the Fund for Public
Schools. Brian Ellner was a Bloomberg campaign staffer and one-time Manhattan
Borough President hopeful who now serves as Klein’s director of Public and
Community Affairs.
“I was elected largely on the basis of my business background. I think New
Yorkers expect me to run city government in much the same way I ran my company,"
said Bloomberg in his 2003 State of the City speech, with “the incentive and
desire to do more, do it better, and do it with less.”
Under his leadership, the art and practice of education has shifted perceptibly
to the business of education – market-driven, "incentivized" and data-steeped.
Enter the Microsoft slayer
“It’s not an accident that the mayor selected the country’s leading antitrust
litigator and not a teacher” to lead the DOE, says Eric Nadelstern, who holds
the title of Chief Schools Officer. “What the mayor understood [is that] when
you have a system with so much vested interest, somehow, you have to break
through that.”
Klein’s nomination as chancellor required special state waivers, to permit him
to assume the post without advanced academic credentials in education or
experience in education leadership. “You can make the argument that the head of
the schools should be an experienced pedagogue,” Klein said at an education
journalists' roundtable last fall. But fixing the schools posed “a massive
management challenge," he said, and the mayor needed “to try outside
strategies.”
So Bloomberg “hired the Microsoft guy,” is how a former member of the DOE
cabinet under Klein summed it up. “He’s a guy who breaks up monopolies. The
problem was the problem of monopolies – the lack of competition, market failure.
The whole thing had to be blown up.”
Klein doesn’t disagree: “The DOE was fundamentally a monopoly,” he explained at
the roundtable. “The mayor wanted someone who was not a career educator, not a
captive to the organization.” The mayor got what he wanted – Klein's seven-year
tenure is the longest chancellorship in memory.
Product over process
It's not as though the city's public schools were perfect when teachers rose to
the highest levels of leadership. School quality and safety varied wildly by
neighborhood. Local political clubs controlled school boards. Bureaucracy was
impenetrable to all but the most crafty or connected. Teachers were grossly
underpaid; their professional growth was hobbled. And most critically, students
were failing by the tens of thousands: dropping out, or being neglected by
low-functioning schools.
Bloomberg spelled out the first phase of his school reform agenda in a major
education address on Martin Luther King Jr. Day in 2003. “Woefully inadequate”
public schools that failed too many students presented “the opportunity to
rewrite that bleak scenario and chart a new course of success,” the mayor said.
Primary among his goals was “ending the bureaucratic sclerosis” with “one
unified, focused, streamlined chain of command ... freed from the dead hand of
bureaucracy.”
The chancellor sits at the top of that chain, Bloomberg said, and “will dictate
the curriculum and pedagogical methods” for the city’s schools. He dismissed
Klein’s inexperience in education, touting instead his legal prowess: “No one is
better qualified to navigate the legal labyrinth that constantly frustrates
change.”
“Bloomberg came from Wall Street and the business community,” said the former
DOE cabinet member, who, like many current or former educators interviewed, did
not want to be named for fear of professional or personal retribution. “They
think entirely differently about organizational structure and dynamics. They
needed the market approach to shake things up. In that respect, Joel delivered
exactly what he promised.”
Yet the wholesale restructuring in 2003 that eliminated the city’s 32 districts,
substituting 10 regions in their place, gutted existing structures for
communication and professional development, say school leaders and education
advocates. Reforms were needed, but went too far, spearheaded initially by
consultants from McKinsey and later by Ron Beller, a former Goldman Sachs
partner who was considered “their hit guy,” said the former DOE cabinet member,
who worked with Beller during the reorganization. “There’s nothing like a trader
at an investment bank for the sharp, bright edge of the marketplace – a brutal
clarity, applied to the school system.”
CEOs and investment bankers allied forces with Klein, as did business titan Jack
Welch and high-profile management consultants like Noel Tichy, who with Welch
created the GE corporate training center that later served as a model for the
NYC Leadership Academy for school principals. Sir Michael Barber, former advisor
to Tony Blair, also joined the effort, as did activist philanthropists like Eli
Broad and later, Bill Gates. More than a dozen private-sector business leaders
participated in the Klein-Bloomberg reform efforts, in a kind of “patrician
liberalism,” according to United Federation of Teachers Vice President Leo
Casey, citing a long American tradition “of elite reform from above” by
individuals sincerely motivated to serve the greater good, but with little
personal stake in the system, in the form of their own children in the public
schools, for example.
“Their theory of change is one that distrusts educators,” says Casey. “You don’t
work with people in schools but impose various frameworks upon them and
experiment. It’s a system designed for noneducators to be able to manage that
system.” The new system focuses more on the "product" of greater efficiency,
better graduation rates and higher test scores, than the process of teaching and
learning.
“For the longest time, the people who ran the education department were
educators,” Casey says. “These folks aren’t educators. They don’t know how to
have education conversations. They’re lawyers and MBAs who never spent a day in
the classroom or running a school.”
“When you have folks who don’t know or understand education, they think the
union is trying to trick them,” says Casey. “What was a common language, and a
common ground for conversation between the union and civic leaders, is not
there.”
~
Teaching and learning downgraded
The 2003 restructuring centralized processes at the DOE, only to be undone in a
second wave of reorganization in 2006.
“Phase I involved depoliticizing the system, building coherence, and building
capacity,” Klein said in September. Dissolving districts to create far larger
regions shattered previous structures. Imposing a universal curriculum
standardized content and teaching practices citywide. And developing like-minded
teachers, principals and leadership expanded the DOE’s ability to bring its
vision to the schools. “We built a system we knew would migrate to a very
different state,” he added, which led to the second wave of reorganization at
the DOE, in 2006, which decentralized power (in particular, the power of the
principal’s pocketbook) out of DOE and to the individual schools, creating the
empowered “principal as CEO” model that is the norm in schools today.
“It’s a social-Darwinistic view of schools,” says UFT VP Casey. “They talk about
'empowerment.' A more accurate characterization is the devolution of
responsibilities onto a school – if a school’s not functioning, it has to be the
responsibility of the people in the school” and not the DOE.
The position of Deputy Chancellor for Teaching and Learning, long a premier post
in the education universe, has lost its luster and its strength in the
Bloomberg-Klein reforms, critics say. “That position is the one that keeps
turning over,” says Pedro Noguera, Professor of Teaching and Learning at NYU’s
school of education, who also chaired a city task force on middle school
performance. “That position doesn’t have a lot of power. It’s almost
superfluous, now.”
Turnover in the role has been steady under Klein. His first pick for Deputy
Chancellor, Diana Lam, was forced to resign following an investigation for
nepotism. His second nominee, Michele Cahill, was thwarted when the state denied
her the same waiver of educational credentials that it had granted Klein.
Finally the post went to Carmen Fariña, a respected longtime educator who rose
through the leadership ranks. With nearly four decades of service in the city’s
schools, Fariña brought enormous credibility to the position, and helped to
advance and defend reforms like the universal curriculum and the DOE’s plan to
end social promotion.
Yet she did not participate in planning meetings, or help to develop the
"blueprint" reforms she was asked to execute and present to the public. And she
was discouraged from going out to spend time in the schools. Instead, Fariña was
expected to manage Teaching and Learning from her desk at Tweed Courthouse. (As
a local superintendent, Fariña routinely visited four schools a week.)
“To me, the only thing I can judge is what you can see in the classroom,” said
Fariña, who retired in 2006. “Schools doing excellent work in class instruction
don’t always see it reflected in their Report Card.”
Her successor, Marcia Lyles, recently accepted a position as head of a small
school district in Delaware, leading Klein to appoint his fifth Deputy
Chancellor in seven years: Santiago Taveras, who is considered "interim."
(Leaders at a Manhattan high school where Taveras once worked have spoken of his
shortfalls in curriculum planning, even with “a great deal of support.”)
'Contempt for the profession'
The DOE’s increasing focus on data management as an instructional tool, and as a
tool to motivate and reward leadership, in the form of $25,000 bonuses for
principals at the schools making the greatest gains on state standardized tests,
means that teachers have become technicians, according to the founding principal
of a highly regarded and high-performing elementary school in Manhattan.
“Education is a communal effort – it’s a people business, it’s all about
relationships. Data is one small piece of it,” said the principal.
“The brightest college graduates” – the same students sought by Klein-favored
teacher-training programs Teach for America and New York City Teaching Fellows –
“don’t want to become teachers because it’s so scripted, so formulaic,” she
added. “There’s too much structure; they’re expected to become technicians.
Teachers want to be decision-makers, find the teachable moments, explore the big
ideas. If you’re driven to follow someone else’s agenda, you’re not honoring the
child. Eyes only on test scores means no eyes on the children.”
“There’s not enough focus on access to good teaching,” said NYU’s Noguera.
“Higher-order thinking, the ability to write well, the ability to read and
analyze complex text. The real issue is how to make sure kids are getting good
instruction. With pay pegged to [test] scores, the drive is to test prep.
Assessment is a tool, not the solution.”
The extent of the reforms, many say, is a direct reflection of the diminished
role of educators in the upper echelons of the DOE. Consider the department’s
endorsement of unconventional educator-training programs, for example, which one
veteran high school principal says shows "contempt for the profession." Teach
for America and the city's Teaching Fellows program both recruit top grads and
career-changers and thrust them into the classroom while earning their Masters
degrees in education. Many of these unorthodox recruits end up teaching only
briefly, studies show, before going on to other career options. “The idea that
teaching is charity work, where young people parachute in for two or three years
– what does that do for children?” the principal asked.
“They have no idea of the human relationships and of the community educators
need,” said the Manhattan principal. “That’s not a business model. Business is
about selling things, not about people.”
“Klein’s vision of the public schools is not one of a lifetime career, where you
work with children all your professional life,” says UFT Vice President Leo
Casey. “It’s a Peace Corps mentality – you spend two years teaching, then you’re
off to your ‘real’ career.”
In fact, Klein himself did a brief stint as a math teacher, during a break from
law school in 1969. He also has spoken out often on teaching reform – and
recently shared with the New York Times his desire to “slowly, over time,”
reduce the numbers of teachers by 30 percent, while raising teacher salary by 30
percent as well. (The teachers' contract will expire in October.)
Klein recognized teachers as "welcome assets" to learning, but envisions an
education world where students will “basically work it out on their own,” and
where, in two or three decades, schools will be “a hybrid model where there is a
physical school, a place where they go and have clubs and sports activities and
drama, but then, for their academic course work, they might take most of it
online.”
“He is so enraptured with accountability, Report Cards, and driving the test
scores up that he’s forgotten that the primal scene for all education reform is
in the classroom,” said Manhattan Institute senior fellow Sol Stern, who writes
frequently on local education. “It matters what you do in a classroom. Teacher
quality and a curriculum stressing strong content knowledge are the keys to
raising achievement.”
Fewer teachers earning more may personify the business-efficiency model, but
“teachers are not like lawyers or MBAs,” says Casey. “They’re not motivated by
money or power. They want to make a difference in the lives of kids.”
“Teachers are viewed by the chancellor as the problem, not the solution,” said a
former Klein cabinet member. “He’s always been averse to having people with
education experience around him. You don’t need teachers at the table to fix the
school system.”
But businesses have gone bust
Mayor Bloomberg first took office in the city’s boom years, when business
culture dominated. Now, as financial edifices topple daily, many ask whether the
paradigm of competition, incentives, and free-market reform still pertains. “The
Mayor’s alliances cross political lines, from corporate leaders, through the
financial and publishing industries, real estate, insurance, technology. He
relies on, and rewards, corporate leaders for education initiatives,” says one
prominent scholar. “Why should we have such respect for the business model,
given the chaos it’s created in the country at large?”
“Bloomberg and Klein are geniuses at marketing their products,” says Stern, of
the Manhattan Institute. “But then, so was Enron. If all these investment banks
were cooking the books, it's becoming clearer to me that this is also happening
in the education world.”
“It is absolutely bizarre that the head of the DOE has no education background
or experience,” said State Assembly Member Rory Lancman of Queens, sponsor of a
bill to make the DOE a city agency subject to local laws, which do not now
pertain to the mayorally-controlled entity. “No one would accept a police
department head without a background in law enforcement. The Chancellorship
should not be someone’s first job in education.”
Klein’s long-term goal is a financial one, according to one veteran
administrator: "Half the number of public schools, double the number of charter
schools – there will be less people in pension plans, and less money spent per
capita each time a charter school opens."
“There is no other agency that’s so out of whack, in terms of who runs it and
what the agency is for,” says State Senator Bill Perkins of Harlem, whose
district has experienced conflict over the number of charter schools versus
traditional public schools. “People with no credentials whatsoever regarding
education are in charge of the system and telling people how it should be run.”
- Helen Zelon
Editor's Note: In preparing this article, City Limits spoke with former and
current DOE staffers and cabinet members, former and current school principals,
academics, and critics on the left and right of the political spectrum, nearly
all of whom requested anonymity out of concern for possible detrimental
consequences for speaking candidly on the record on a sensitive issue. “The
incredible concentration of political and financial power leaves no room for
dissent or difference,” said one person.
Many expressed worry that their schools might suffer or their programs might be
jeopardized, given the depth and reach of Bloomberg-funded civic and
philanthropic projects citywide. The mayor’s broad and deep connections across
political, financial, social and philanthropic networks limit comments to those
kept off the record – and, critics say, strongly influence largely favorable
coverage in the mainstream media.
The DOE, despite prior verbal agreement to review and consider questions related
to this article, declined comment, and would not address the near-universal
desire for anonymity.
4 comments:
Do you have any of the stats regarding education improvements since the system was transformed(i.e. test scores & graduation rates)? I think those should be the key measures of success. Higher graduation rates and tests scores are the ultimate success factors that should be considered when passing judgment on NYC's education reform.
Not when the stats are juked by artificially pumped up test scores and credit recovery push out grads. You must be a data muncher but when you munch artificially created data, you end up with indogestion.
That's the most one-sided piece of reporting
I've seen in a long time. For years and years the city school system was run by "educators" who did little but empower themselves, leaving a legacy of horrible schools and un-educated students. While I don't believe the "business model" translates directly to education, I do think outcomes matter. Where in this article is there any mention of whether students are any better off since Bloomberg and Klein took over.
I also think that it is the most one-sided piece of report which i have seen after a long time and it's bad time for teachers of New York Public school.
International Business School
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