MMSD Administrative Analysis of Madison Prep and a Rumor

The Staple Singers – “This May Be The Last Time” (click to listen or download)

The required Administrative Analysis of the Madison Preparatory Academy charter school proposal  by the Madison Metropolitan School District staff has been posted, and it doesn’t bode well for approval.  The analysis identifies causes for concern and unanswered questions in many areas, including finances, staffing, governance, educational plans, single-sex segregation and many more.   There are some very strong things in the Analysis and to be honest I was slightly and pleasantly surprised by this strength.   [Update: Appendices have also been posted here   —  Appendix A – 9/20/11 WI Department of Public Instruction memo ; Appendix B – Personnel Costs; Appendix C – Summary Table Costs for Madison Prep Proposal Becoming an Instrumentality; Appendix D – Madison Prep Final Budget Proposal Instrumentality Analysis and Cost.] A long  excerpt and initial observations below, but first the rumor.

The (well-sourced) word I am hearing is that the Urban League of Greater Madison’s response to the matters raised or detailed in the analysis will be to seek a non-instrumentality, non union charter.  From another source comes the word that ULGM will announce a decision on Wednesday.  This change  may address some of the issues, but it raises others that will need attention.  The Analysis is based on the instrumentality proposal, so a new analysis may be required if the rumor is true

Many of the questions I am hearing assume the rumor is true and concern “what next?”.  As I see it there are three two possibilities.  The first is that the Board votes on November 28 as planned.    This may be preceded by altered submissions by The Urban League of Greater Madison on instrumentality status or other things and as noted above the need for aq new analysis may render this timeline impossible.  If the rumor is true and there is a change on instrumentality, I would not expect the Board to vote on November 28 unless A)Non-instrumentality is a deal killer (which it might be); or B) Other portions of the proposal and analysis unrelated to instrumentality status lead to a majority “no” vote.    So the second possibility, that the timeline gets extended, that there is a revised proposal and likely a new Administrative Analysis seems most likely to me.  More staff, Board and community time to be spent on something that even if approved seems to promise few benefits to those who are struggling most.

Now to the excerpt from the conclusion  (this is long):

CONCLUSION AND RECOMMENDATIONS

Conclusion and Recommendations

Over the past year, a very important conversation has taken place within our community about the achievement gaps we face as a District. While the Madison Metropolitan School District has been committed to closing its achievement gaps for many years and is a founding member of the Minority Student Achievement Network, the Urban League of Greater Madison should be credited for raising this dialogue to a new level within our community.

Simply put, the achievement gaps for low-income students, students of color, students with disabilities, and English Language Learners must be eliminated, and if any community is able to do so, this community can. This summary section of the administrative analysis for the Madison Preparatory Academies for Young Men and Young Women begins with a thank you to the Urban League for its persistent advocacy for our young people and for elevating the dialogue within our community. While this conversation has not been the without strain, it needed to take place, and it needs to continue.

Throughout the District’s discussions with the Urban League, three prominent issues have emerged:

  • the status of Madison Prep’s proposal as an instrumentality or non-instrumentality of the
  • District;
  • the costs of the proposed program; and
  • issues related to the single gender aspects of the Madison Prep proposal.

Instrumentality/Non-Instrumentality

The proposal submitted to the District by Madison Prep is an instrumentality proposal. By statute, as an instrumentality, all personnel must be employed by the District. As a result, involved employees become members of various collective bargaining units, subject to collective bargaining agreements.

Costs

Madison Prep submitted their budget plan to the District on October 30, 2011. Throughout the process of finalizing the plan, it has been apparent to the administration that the submitted budget did not take into account the fact that all personnel would be employees of the District, and the costs associated with this employment as required by Madison Prep’s proposal as an instrumentality. As a result, staffing costs have been recalculated with the result being a higher per pupil cost, a greater gap between the dollar amount the District could transfer from its other schools, without impacting programs, and the full costs to implement the program as an instrumentality. The current gap amount over a five year period of time within the administrative analysis is over $13 million on a break even analysis.

Gender

The administrative analysis has pointed out that there are concerns for the District should Madison Prep’s schools be implemented using a gender segregated model.

Recommendations

The achievement gaps we face must be eliminated. As we work with more urgency to identify and implement multiple strategies, this District has an interest in any proposal that provides additional, effective strategies to eliminate this unacceptable gap. Strategies like the International Baccalaureate Program, longer school days and a longer school year, mentoring support and the proposed culture of the school, as included in Madison Prep’s proposal, are all strategies we are interested in. However, we are also charged with considering the impact on all of our programs as we analyze the specifics of this proposal.

Analysis in this report is based on Madison Prep’s proposal as submitted. The purpose of this report is to provide analysis on that proposal without making programmatic changes, but as noted above, costs have been calculated to accurately reflect requirements as an instrumentality.

Madison Prep’s plan as submitted has an outstanding gap of over $13 million over the next 5 years. To fill that gap would require the District to make an investment of $15,000 – $17,000 per pupil per year. I cannot recommend that the District fund this proposal to that level. I can, however, recommend that MMSD fund Madison Prep to an amount equal to the funding we receive for every child under state revenue limits. That is a per pupil per year investment of $10,589 (2012-13 school year) – $11,389 (projected for 2016-17 school year).

This reflects an additional investment of over $5 million over the break even analysis. However, it still leaves a gap of approximately $8 million for Madison Prep’s current proposal. We are willing to work with Madison Prep to identify cost savings. As an instrumentality, we may be able to offer additional efficiencies, and are willing to continue that discussion if the Board so advises.

In addition to financial considerations, the Board must also consider the legal risks associated with Madison Prep’s single-gender proposal and the possibility of litigation.

If the Board votes to approve Madison Prep’s proposal, the following conditions should also be met.

  1. The recommendations found throughout the administrative analysis should be reviewed and discussed in development of a contract.
  2. All personnel will be employed by the District in collaboration with Madison Prep.
  3. All provisions related to collective bargaining agreements with MTI and AFSCME are followed.
  4. The budget as outlined by the District in addition, the management fee and the amount budgeted or an annual surplus should be eliminated with the surplus replaced with the amount each of the District’s middle schools is allowed to carry over, year to year ($20,000 per middle school and $40,000 per high school).
  5. The admissions process should follow the District’s enrollment timeline and acceptance into the program should be based on the lottery only. This does not prevent Madison Prep from utilizing an interview to get to know the selected students and the interview should occur after students are selected through the lottery.
  6. An ongoing bridging committee should be established to address issues that will occur when the schools are implemented.
  7. Relative to the proposal to have all board policies waived with the exception of those related to health and safety, we recommend conducting a detailed review of all Board policies to assess which should be waived and which should not.

We know more needs to be done as a District and a community to eliminate our achievement gaps, but we are also confident in our community’s ability to do so. If the Board so advises, we are willing to continue the discussions with Madison Prep and work to identify ways that costs of this proposal can be lowered, or to identify on our part, other things that we need to be doing as a school District and community to eliminate achievement gaps. These discussions need to continue on behalf of the children of this community.

Very quick observations (I want to get this up, in such a hurry I’m not even going to offer a song with this post, maybe I’ll add one later — did that, added a song).

First, a very good case can be made that Madison Prep has had their bite at the apple and failed to present a reasonable proposal in a reasonable time frame.  There is simply too much that is unresolved, uncertain, unanswered.  As I noted before, the simple requirements for a “detailed proposal” have not been met and as item #7 indicates, they still have not been met.  Despite the wishes of some, the burden is on the proposer to make their case for their plan and ULGM has not done that.

Second, the Administration floats the idea of using some of the unused levy authority to meet part of the budget gap for Madison Prep.  As one who has advocated tirelessly to get MMSD to use this authority in ways that all agree will help many students in our district schools (and has been attacked for this), I find it disturbing that the Administration — which has been recommending under-levies — now changes direction in order to fund a charter school that by their own analysis is of questionable merit.

Now in praise of the Administration for pages (4-7 and elsewhere), countering the falsehoods that MMSD cares little and does even less to address  the achievement of poor and minority students.  For a similar list, see this recent Wisconsin State Journal editorial

I’m going to close by saying that I was also very, very glad to see this from the Administration:

Simply put, the achievement gaps for low-income students, students of color, students with disabilities, and English Language Learners must be eliminated, and if any community is able to do so, this community can. (emphasis added).

And add that it was exactly that sentiment that has informed my advocacy and the advocacy of many others on budget and other matters.  Madison is place where we can achieve equitable educational opportunities, quality education, and real learning for all our students in our district schools.  We need to do this, we can do it.

What we don’t need is a charter school that embodies most of the worst policies and practices being pushed by those whose interests lay in convincing people that public education is a failure, that even in Madison, we can’t.

We can.

Thomas J. Mertz

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