'leap of faith'

Denver Public Schools wants to give more autonomy to more schools through expanding “innovation zone” experiment

PHOTO: Rachel Greiman/Green Chair Stories
Ashley Elementary is one of four Denver schools in the innovation zone.

A bold experiment in giving non-charter schools near-charter-like levels of autonomy could be expanded if a recommendation by Denver Public Schools becomes reality.

At a school board work session Monday, DPS staff recommended the state’s largest school district solicit applications for more “innovation zones,” as well as applications to expand the district’s first zone, which is made up of four schools and was created earlier this year.

The board and staff did not agree on a timeline for soliciting the applications, opting to revisit the issue in January for further discussion. However, board president Anne Rowe said, “I think what you heard is a sense of urgency to move forward as quickly as can be done as well as we can.”

The first zone was created in April by a unanimous vote of the board. Officially known as the Luminary Learning Network, it’s made up of two schools in northeast Denver — Ashley Elementary School and Cole Arts & Science Academy, also an elementary — and two schools in southeast Denver: Denver Green School, which serves kids in kindergarten through eighth grade, and Creativity Challenge Community, an elementary school known as C3.

The four schools were already innovation schools, which meant they had waivers from certain district and state rules. But forming a zone granted them even more autonomy, especially over their budgets. The schools can now “opt out” of a wider menu of district services, such as some of those provided by an office that helps schools with family engagement, and keep that money.

This year, that amounted to an average of an extra $425 per student.

The schools spent much of that money on personal coaches for the school leaders, training for teachers and hiring more staff. C3 increased its school nurse from one day a week to three. Denver Green School upped its school psychologist to full-time. Ashley hired another part-time special education teacher. And Cole brought on an in-house substitute teacher.

“It causes less disruption for us when we have people who know our scholars,” Cole principal Jennifer Jackson told the school board last month in an update on the zone’s launch.

But the biggest benefit, school leaders said, has been the increased amount of time they’re able to spend in their buildings. No longer are they required to attend budget sessions or meetings with DPS principal supervisors, known as instructional superintendents.

“Those were great opportunities, some of which aligned to what I needed and others not so much,” said Zachary Rahn, principal at Ashley. “But now I feel my coach and I are in charge of my development. It’s much more tailored to what I need as a professional.”

However, launching the zone has presented challenges, as well. Rahn originally planned to step into the role of zone executive director this year but changed his mind when his assistant principal was tapped for an interim principal job at another school.

“Without that person in the building, I did not feel comfortable to be able to leave my position,” Rahn said.

Of the four schools, Ashley has the lowest rating. It dropped this year from “yellow” to “orange,” the second-lowest rating on the district’s color-coded scale, partly due to a decline in student academic growth on state tests. Each zone school has pledged to move up one color in three years in exchange for more autonomy.

The zone hired a new executive director, Jessica Roberts, who previously worked for the Texas charter school network YES Prep. But she didn’t officially start until October 1. She has spent much of her time ironing out the logistics of how the zone should work, meeting weekly with DPS officials to ensure the zone schools are complying with district requirements.

From the district’s perspective, one of the biggest issues has been making sure staff understand the services the zone schools have opted out of and those they’re still entitled to.

“When our office gets phone calls from LLN teachers and leaders, we have to make sure those aren’t services they’ve opted out of,” said Jennifer Holladay, executive director of DPS’s Portfolio Management Team, which authorizes new schools and holds them accountable. “We’re used to saying yes. Sometimes we have to say no.”

Some of the decisions to opt out of district services have had unintended consequences. For instance, the zone schools originally opted out of the services the Portfolio Management Team provides to charter and innovation schools to help them navigate the district’s systems, which allowed the schools to retain about $1 per pupil. But school leaders quickly realized that Portfolio Management was their main point of contact with DPS and they ended up buying back those services, Holladay and the leaders said.

Holladay’s office is currently working on a more granular list of services provided by each department — “a menu of services we can all understand,” she said — so the opt-out process and its aftermath will be clearer for both the schools and for district staff.

The district is also wrestling with how and when to expand the zone. Roberts told the school board last month that for the zone to be sustainable, it needs to grow to eight to 10 schools.

Part of the reason is financial and part is philosophical, she said. While the zone only has one employee — her — it has incurred the same startup costs many nonprofits face: legal fees, the expense of setting up accounting and human resources systems and the like. And though it has benefited from the support of philanthropic foundations, she and others acknowledged those dollars won’t last forever.

Going forward, 100 percent of the money to pay her salary and keep the zone going will have to come from the schools, Roberts said. Running it with just four schools wouldn’t be impossible, she said, but it wouldn’t be ideal; the zone could do much more if there were eight to 10.

Roberts and the school leaders said having additional schools in the zone would allow for even greater collaboration and economies of scale.

“It would be great to have a bigger and more diverse learning community,” said Frank Coyne, lead partner at Denver Green School. “Our four schools are all so different. There’s key things we can learn from each other, which we’re doing now, but we’d like to deepen that.”

And they’d rather not wait, even though the zone hasn’t existed long enough to see if the increased autonomy is trickling down to students and accelerating their learning.

“In our mind, we don’t need to wait to see if student achievement accelerates,” Roberts said. With an innovation zone, “you’re really empowering leaders.”

Several school board members at Monday’s work session expressed interest in taking what one described as a “leap of faith” and betting that the innovation zones will work — despite the fact that the rollout of the first zone hasn’t been smooth.

“This hasn’t been done before,” school board member Mike Johnson, who also serves as the school board representative on the zone’s board of directors, said before the meeting.

“From my perspective, what’s really important isn’t whether I think or the (DPS) board thinks there have been successes,” he added. “It’s what the school leaders think. … Everything I’ve heard is it’s very positive. … That’s exactly what we’re supposed to be doing is empowering school leaders and people in the building to really focus on their kids.”

early running

Denver school board race opens up as Rosemary Rodriguez announces she won’t seek re-election

PHOTO: Nicholas Garcia
Board member Rosemary Rodriguez speaks at Abraham Lincoln High (Chalkbeat file)

Denver school board member Rosemary Rodriguez said Wednesday that she is not running for re-election, putting her southwest Denver seat up for grabs in what will likely be a contentious school board campaign this fall with control of the board at stake.

Rodriguez told Chalkbeat she is retiring from her job as senior advisor to Democratic U.S. Senator Michael Bennet and plans to sell her home and buy a smaller one that belonged to her grandparents.

That home is not in her school board district, District 2, but in the district represented by board member Lisa Flores. With the exception of at-large members, Denver school board members must live in the districts they represent.

“If it weren’t the case, I would still be running,” Rodriguez said.

During her four-year tenure, Rodriguez worked with community groups and others to spotlight student achievement in southwest Denver, leading to new schools and better transportation.

Former Denver Public Schools teacher and Denver native Angela Cobian announced Wednesday that she is running for the seat. Rodriguez has endorsed Cobian, a political newcomer who works for the nonprofit Leadership for Educational Equity, which helps Teach for America members and alumni get involved in politics and advocacy.

All seven current board members support Denver’s nationally known brand of education reform, which includes a “portfolio” of traditional district-run, charter, magnet and innovation schools.

With four of the the board’s seats up for grabs this November, the campaign presents an opportunity for opponents of those reforms to again try to get a voice on the board.

The field is still very much taking shape. The most competitive race so far involves District 4 in northeast Denver. Incumbent Rachele Espiritu, who was appointed to the seat last year, announced her campaign earlier this month. The board chose Espiritu after its initial pick, MiDian Holmes, withdrew after a child abuse case came to light and she was not forthcoming with all the details.

Also filing paperwork to run in District 4 is Jennifer Bacon, who was a finalist in the process that led to the board picking Espiritu. Auontai “Tay” Anderson, the student body president of Manual High School, declared his candidacy for the northeast Denver seat in April.

Incumbents Mike Johnson and Barbara O’Brien have not yet filed election paperwork with the state. Two candidates have declared for O’Brien’s at-large seat: Julie Banuelos and Jo Ann Fujioka.

two hats

Denver Public Schools’ glaring conflict: both authorizing and operating schools

Students at Greenlee Elementary School in northeast Denver last month (Eric Gorski, Chalkbeat).

Right after school let out, a line formed outside the second-floor staff room at Greenlee Elementary School in Denver. Teachers, staff, janitors and union representatives all crammed into the space to learn the fate of a school that had been on the ropes academically for years.

Denver Public Schools officials delivered the blow: The school would likely close after 2017-18 and be “restarted” with a new program.

What happened next at the meeting last fall epitomizes the challenges facing the state’s largest school district as it juggles two conflicting roles.

Deputy Superintendent Susana Cordova, whose mother attended Greenlee and who still has family in the neighborhood, got emotional as she told the room that district officials shared responsibility in Greenlee’s situation. Cordova pledged to support Principal Sheldon Reynolds’ application to run a replacement program at Greenlee, building on recent gains there.

Superintendent Tom Boasberg, also in the room, made clear that the competition to replace Greenlee would be open, and that he would play no favorites. It will be Boasberg’s job to recommend to the school board next month which applicants should run new programs at Greenlee and another DPS school being closed for poor performance: Amesse Elementary.

“That meeting was a great encapsulation of what it’s like — especially for me, but also for Susana — to be very explicit that we do wear two hats,” Boasberg told Chalkbeat. “It was a very important and challenging conversation.”

Those two hats are school authorizer and school operator. DPS says it has a “firewall” separating those who help run and support district-managed schools, and those who approve schools that make up the district’s nationally recognized “portfolio” of traditional district-run, charter, innovation and magnet schools.

Managing that separation can be complicated, messy and — this year — tension-filled.

Slower enrollment growth, scant opportunities to locate in a district-owned building, more high-quality district-run proposals and other factors have contributed to a contentious process.

In a district that has long supported charter schools, it is charter schools that are leading the criticism. Even after DPS took extra steps this year to address the operator/authorizer conflict, charter operators are saying the restart competitions have not been fair.

Such tensions are not uncommon in school districts, especially at those with significant charter school growth, said Robin Lake, director of the Center on Reinventing Public Education, a research and policy group at the University of Washington.

Bias may not be intentional — especially in districts like Denver committed to different governing structures — but it can be damaging to promoting great schools without labels, she said.

“There can be an internal schizophrenia in the main office about what its core job is,” Lake said.

Tensions are running highest in DPS over the competition for the Amesse restart in northeast Denver.

All three applicants are considered strong: local college-prep charter networks STRIVE Prep and University Prep, and a proposed district-run partnership between nearby McGlone Academy and existing Amesse staff called the Montbello Children’s Network.

University Prep remains an applicant but is no longer in the running after a DPS review found that its plans did not meet the requirements of a court order dictating how English language learners must be educated.

Before that development, University Prep CEO David Singer in an interview with Chalkbeat voiced concerns about how DPS is navigating the operator/authorizer conflict.

“There needs to be a level playing field where families can engage in a process that is not biased in one direction or another,” Singer said. “The process doesn’t feel like it’s in the right place yet.”

STRIVE was more pointed — and specific. Dani Morello, STRIVE’s outreach and engagement manager in far northeast Denver, said in written testimony at a school board meeting last month that the district being “both an authorizer and a restart competitor has been challenging and confusing.”

She said a lack of clear messaging has “led to the narrative within the school community that this process is a choice between applicants looking to change the school and those looking to keep it the same — which we find confusing and misrepresentative of all applicants.”

Morello also cited “differential access” to families and staff — including lists of family contact information made available to the district applicant long before the charter applicants.

STRIVE sees the conflict most evident in the decision to allow DPS’s Office of Family and Community Engagement “to directly organize for the district applicant,” Morello said.

“While we believe this effort is well-intentioned, it has the consequence of parents experiencing messages from district staff in an official capacity speaking about only one applicant, which has exacerbated confusion among families,” she said.

Both district officials and Sara Gips Goodall, principal of McGlone and proposed leader of the Montbello Children’s Network, disputed the STRIVE criticisms.

Goodall said that DPS is not spearheading her school’s application, and that she is “100 percent sure that no parents have experienced a single message from district staff in an official capacity speaking about one applicant.”

Goodall said her team did community outreach early on to gauge interest and incorporate community input into its plan. She said STRIVE, which has been seeking to build support to open a school in the neighborhood for the past couple of years, has been targeting parents aggressively.

“This is also what makes me sad: I actually view University Prep and STRIVE as some of our partners,” Goodall said. “One reason I moved back to Denver (to help lead McGlone in turnaround efforts) is because I loved the idea that charter-public was a collaboration and not competition.”

Charter schools have “huge” advantages as school applicants, Goodall said, including network staff who have experience navigating the process.

“I’m writing those plans on the weekend at a coffee shop,” she said.

Chris Gibbons, CEO of STRIVE, said the school board testimony had nothing to do with McGlone, and that STRIVE’s concerns rest with the district’s management process.

PHOTO: Eric Gorski
Parents pick up their children at Amesse Elementary, one of two schools that will be restarted.

“I would want Sara to know that and anyone to know that,” Gibbons said. “The critique of the process is that charter applicants did not have access to information until (their letters of intent to apply) had been received” by DPS, while the district-run applicant had access earlier.

Boasberg also took issue with some of STRIVE’s claims. He said all Amesse applicants got the same list of family contact information at the same time.

“It is true that one of the applicants did begin to organize and do efforts in the Amesse community earlier,” he said. “But there is nothing that prohibits hard work here.”

Boasberg said DPS’s Office of Family and Community Engagement, or FACE, had “absolutely nothing” to do with the running the process. DPS created a public affairs team in the superintendent’s office this year to communicate with school communities, taking FACE, which has deep relationships with families in schools, out of that process.

Said Cordova: “The whole idea was to not have a process that seems like it’s rigged.”

Gibbons said that STRIVE in its testimony was making reference to district assistance in the early organizing. Boasberg acknowledged that FACE supported McGlone to some extent, including providing examples of engagement and helping with meeting setup.

Overall, Boasberg said DPS has worked diligently to build a wall separating school authorizing — overseen by Jennifer Holladay, executive director of DPS’s portfolio management team — and the school operating role led by Cordova, the deputy superintendent.

DPS also has developed policies meant to bring more clarity — and less politics — to decision-making. In the last two years, DPS has laid out specific criteria for closing schools and for awarding district buildings to schools.

“This is not a new conflict,” Boasberg said. “It’s been with us for some time. I do think we in Denver have been more thoughtful and more proactive than any other district in the country.”

DPS this year formed Community Review Boards for both restarts that will weigh applicants against the district’s building allocation criteria and make recommendations to Boasberg. The boards include parent members, community members, professional reviewers and facilitators.

Boasberg underscored how important that new step will be: “I am going to greatly respect the Community Review Board’s recommendation in making my recommendation,” he said.

How Denver navigates the operator/authorizer conflict bears watching, said Martin West, an associate professor of education at the Harvard Graduate School of Education.

“Legitimate questions can be raised about whether a school district can be even-handed in a competition where it is both a player and referee,” West said. “It wouldn’t necessarily require intentionality to create situations where the district-managed school has a big advantage.”

PHOTO: Greenlee
Students at Greenlee Elementary

The competition for restarting Greenlee Elementary is not nearly as heated as the one at Amesse.

The only charter school to apply was Wyoming-based PODER Academy, and DPS staff this week said its application did not meet the district’s quality standards. The school leader strongly objected to the recommendation that it not be approved.

The restart is all but certain to go to a team led by current Greenlee principal Reynolds, who is proposing a new program called the Center for Talent Development at Greenlee Elementary.

Reynolds’ application promises challenging standards-based instruction, a rich roster of electives and a teacher development pipeline through the University of Colorado Denver.

As Reynolds has emphasized to those doubting whether he should stay at the helm, he is just completing his second year at Greenlee and has seen some positive academic growth after adopting a plan celebrating student accomplishments and strengthening school culture.

Reynolds said he believes the district has approached the process appropriately.

“I’ve definitely had district support, but it’s also been very clear there is a separation between that and them being fair and equitable in the process,” he said.

DPS has been encouraging such entrepreneurial leadership in-house, including replicating successful district-run models in new locations. That deeper pool of district-sponsored applicants is likely a contributing factor to some of the tensions.

Boasberg said he was surprised no local charter network applied for the Greenlee restart, and acknowledged that a perception that Reynolds would prevail likely played a role.

Reflecting on that emotional meeting in the Greenlee Elementary staff room, Cordova said she knows firsthand what happens to communities when things don’t work out. She was part of the team that devised a previous turnaround plan at Greenlee that didn’t succeed.

Cordova emphasized that her primary responsibility as deputy superintendent is to “support and lead our reform efforts in our district-managed schools.”

A few school districts have either relinquished the school operator role or are moving in that direction. Although Denver has experimented with different governance structures — including giving district-run schools more autonomy in a budding “innovation zone” — that is not in the district’s future.

Boasberg said DPS can wear both its operator and authorizer hats.

“It’s absolutely imperative,” he said, “that we do both jobs very well.”