Steel City Turnaround: Part 1

As the state’s accountability clock ticks down, a district struggles to move forward

PHOTO: Nicholas Garcia
Julianne Williamson spreads out her children's academic awards from the Bessemer Academy in her living room in Pueblo. With her are her children Trinity, who will enter kindergarten this upcoming school year, Jacob, a third grader, and Ryane.

PUEBLO — There’s little carpet visible in the modest living room of the row house in the shadow of Pueblo’s steel mill after Julianne Williamson spreads out all of her children’s academic awards.

“My daughter is so smart,” said Williamson, the mother of a sixth-grade daughter and third-grade son at the city’s Bessemer Academy. “She’s going to be outsmarting me soon. My son, he reads like an adult.”

But recently, Williamson’s children haven’t been bringing home awards as often, and she’s worried that the school’s chaotic environment might be hurting their learning. The list of questions she has for Pueblo’s school officials is growing long:

Why has Bessemer Academy had three principals in as many years? Why was her son shuffled between two different teachers this school year? Why can’t the adults in the building control the students’ behavior?

She also has questions that reach beyond Bessemer’s four walls:

What are Pueblo officials doing about the school’s state designation as a “turnaround” school, a marker that gives Bessemer two more years to improve or face state intervention? What happens if the school doesn’t make the deadline?

“What’s going to happen to my kids?” she asked.

Turnaround tension

Williamson’s question is shared by many parents in Pueblo. A third of the public schools in the city are failing, according to state ratings.

And if the district doesn’t improve its students’ academic performance soon, Pueblo could pose the first big test of Colorado’s school accountability system, which gives struggling schools and districts five years to improve or face sanctions.

The district, which enrolls nearly 18,000 students, is the largest in the state to near the end of that timeline. Unless Pueblo’s most recent test scores — which will be released later this week — reflect significant gains, officials will have just a year to get the district into the state’s safe zone.


If they fall short, the next steps are uncertain, fueling the anxiety of educators and parents like Williamson. Colorado law requires state officials to strip the district of its accreditation, which could leave graduating students ineligible for college scholarships. The district could also lose significant amounts of federal funding.

Individual schools that don’t improve in time may be asked to replace their principal and teaching staff, be turned over to a charter operator, or be closed altogether.

But some observers question whether the state has the political will or the capacity to enact dramatic changes in districts like Pueblo — and nearly a dozen others — that are close to the deadline.

In Denver, questions about the state’s ability to impose changes come mostly from people who want to see the state step in. But in Pueblo, those questions come from a deep-seated skepticism of outsiders and a belief that local problems call for local solutions.

Even as a small but influential group of Pueblo community leaders have recognized the scale of the challenge and are doing what they can outside of school walls to improve student achievement, they remain resistant to seeing the state get involved. In fact, they are skeptical that the state’s intervention would bring any improvements.

“If the state has all the answers, why are they waiting for five years?” Rod Slyhoff, president of the Greater Pueblo Chamber of Commerce, asked. “Why didn’t they just come in year one?”

District officials and city leaders claim they’re on the right path to beat the clock. And state officials agree that beating the clock is possible. Pueblo has already climbed the state’s rankings for two consecutive years.

“It is within striking distance,” said Keith Owen, the state’s deputy commissioner of education and a former Pueblo elementary school principal.

But following the retirement of the district’s superintendent in June, many in Pueblo fear that a leadership transition might trigger a backward slide just as the state’s deadline closes in.

This spring and summer, to better understand how a school system that primarily serves low-income and Latino students and its city are affected by and driven to improve under immense pressure of a ticking clock, Chalkbeat interviewed dozens of students, teachers, parents, district leaders, and observers in Pueblo. We also reviewed dozens of public documents and district data that detail the conditions of the city’s neediest schools.

Over the next three days, we will explore the bureaucracy still struggling with change revealed in those interviews and documents. While Pueblo’s school improvement efforts have been undertaken by a group of well-intentioned individuals fighting against the odds of high poverty and shrinking budgets, not everyone is on the same page.

District officials and teachers are both mentally and physically worn.

And several of the district’s neediest schools still lack consistent quality instruction and the robust school culture that turnaround experts believe is necessary to drive student achievement.

As Bessemer goes, so goes the city

The academic rise and fall of Bessemer Academy parallels that of the Pueblo City Schools system as whole.

In the early 2000s, Bessemer, a kindergarten through 8 public school in one of the poorest parts of this Southern Colorado town, was nothing short of a modern education reform miracle, observers said.


Results from the state’s first-ever round of third-grade reading exams found, in 1997, barely one in 10 students was reading at grade level. But by 2000, the percentage of students that passed the fourth-grade test had increased; seven in 10 students tested at grade level.

The school headed into the new century either meeting or beating the state’s average on its standardized tests. And everyone from Gov. Bill Owens to President George W. Bush was paying attention to the little Southern Colorado school district that could — and did.

As Bessemer held its significant academic gains and other schools’ scores also rose, district officials were invited to Denver and Washington, D.C., to share the secret to their formula.

Then-superintendent Joyce Bales told the President’s Commission on Excellence in Special Education in 2002 that Pueblo’s success was based on its focused mission and high quality teachers. She also cited teachers’ professional development tools, organizational systems, and their use of data to inform their instruction. The district also used a literacy program called Lindamood-Bell, a renowned and expensive phonics-based program.

Less than a decade later, Bales was gone and, according to present-day Pueblo officials, so were all of her systems and the Lindamood-Bell program.

New leadership and budget cuts forced Pueblo City Schools to abandon the literacy program and instead chase instructional grants haphazardly.

Today, 46 percent of the district’s students are reading on grade level and 28 percent write proficiently, according to the state’s literacy exams. (Comparatively, the state averages about 70 percent of students reading at grade level and 55 percent of student writing at grade level.)

It’s a big improvement from the late 1990s, when only 12 percent of its fourth grade students were reading at grade-level and just 2 percent could write on that level. But it’s also a big drop from Bales’ heyday.

And neither Bessemer nor the district — which has not experienced any radical demographic shifts since the early 2000s — are meeting the state’s expectation for student growth, the measure of how much a student learned from year to year compared to his or her academic peers.

The most conservative interpretation is that growth is flat. Students who have been designated as below proficient on state tests are staying behind. And those who are considered proficient are barely hanging on.

At Bessemer, while some classes of students are posting slow but steady growth, others fluctuate every year, moving between minimal and fairly large gains.

So close, yet so far away

Right now, Pueblo is just three points shy of the 52 points out of 100 on the state’s annual school review scoring system to get itself off the state’s accountability watch list.

Pueblo City Schools board members Mike Colucci, left, and Kathy DeNiro and Superintendent Maggie Lopez recite the school district's mission before a school board meeting in April. School officials are confident they're on the right path to beat the state's accountability clock.
PHOTO: Nicholas Garcia
Pueblo City Schools board members Mike Colucci, left, and Kathy DeNiro and Superintendent Maggie Lopez recite the school district’s mission before a school board meeting in April. School officials are confident they’re on the right path to beat the state’s accountability clock.

And Pueblo officials are confident their efforts have been enough to push the district across that threshold, if not this year, by 2015.

“We’ve flown through some turbulence — but we continue to fly,” Superintendent Maggie Lopez, who retired at the end of June, told State Board of Education members in April. “Achievement is beginning to take a turn.”

The district, officials told the State Board, has aligned their standards and created a single instructional roadmap for all of its schools. They’ve instituted interim assessments to monitor student progress. Principals are now trained to be leaders, not managers. Teachers are working together in communities, not isolated in their classrooms. And a team of district administrators has been created to respond directly to individual classroom needs.

“As a district we are far more timely and responsive to meeting the schools’ needs than we have ever been,” said Brenda Krage, then the assistant superintendent of learning services.

The district has also put an emphasis on school choice. It’s closed some low-performing schools — mostly for budgetary, not academic, reasons. And it has created a path for students on the city’s East side to access the International Baccalaureate curriculum at each grade.

District leaders have also elected to provide more autonomy to three of Pueblo’s most troubled middle schools by designating them “innovation schools.”

A 2008 state law created the innovation schools designation. Schools granted innovation status are freed from many central administration policies such as budget rules, curriculum mandates, and teacher contracts. Architects of the law believed that granting such freedoms could accelerate academic achievement.

But early anecdotal reports from those schools — the Roncalli STEM Academy, Risley International Innovation Academy, and the Pueblo Academy of the Arts (formerly known as Pitts Middle School) — suggest that results are mixed.

And if third grade reading scores from last spring’s standardized tests are any indication on whether Pueblo’s efforts have paid off — and, depending on who you ask, they are or are not — the news isn’t good for Pueblo. As a whole, the district saw its scores drop by more than 3 percentage points, while the state remained relatively flat.

At Bessemer Academy there was a double digit drop.

According to reading scores released in May, just one in three of the kids at the school can read at grade level.

Watching, waiting

With those dismal academic results and increasing discipline and leadership issues at Bessemer, the Williamson family’s frustration is rising.

This year, the school is getting its fifth new principal since 2007. At the last awards assembly she and her husband attended, Williamson said, it took 20 minutes for the teachers and administrators to gain the student’s attention. And there appears to be no clear discipline protocol. As punishment for acting out, one teacher made students make her coffee, missing valuable lessons.

Williamson would consider sending her children to a different — better — school. But with only one car for her family of five, that’s not possible.

And Jacob, the third grader, would be devastated, she said. He thinks the test scores don’t reflect how hard the kids are working.

“They think the school is dumb,” he said. “But if they were to watch a class for a full day, they’d see how much we learn and pay attention.”

Like the local leaders who want to keep the solutions local, Jacob believes that his and his classmate’s hard work will eventually be clear. But Williamson is more worried about the work that school officials are doing — and, like the state officials who are watching Pueblo closely, she is anxiously waiting to see whether the work will pay off.

“I know there has been a lot of turnover as far as the staff and principal goes,” Williamson said. But she doesn’t think those reasons are excuses for the school’s struggles. “I can’t think of anything that could justify it.”


The New Chancellor

Tell us: What should the new chancellor, Richard Carranza, know about New York City schools?

PHOTO: Christina Veiga
A student at P.S. 69 Journey Prep in the Bronx paints a picture. The school uses a Reggio Emilia approach and is in the city's Showcase Schools program.

In a few short weeks, Richard Carranza will take over the nation’s largest school system as chancellor of New York City’s public schools.

Carranza, who has never before worked east of the Mississippi, will have to get up to speed quickly on a new city with unfamiliar challenges. The best people to guide him in this endeavor: New Yorkers who understand the city in its complexity.

So we want to hear from you: What does Carranza need to know about the city, its schools, and you to help him as he gets started April 2. Please fill out the survey below; we’ll collect your responses and share them with our readers and Carranza himself.

The deadline is March 23.

buses or bust?

Mayor Duggan says bus plan encourages cooperation. Detroit school board committee wants more details.

PHOTO: Denver Post file
Fourth-graders Kintan Surghani, left, and Rachel Anderson laugh out the school bus window at Mitchell Elementary School in Golden.

Detroit’s school superintendent is asking for more information about the mayor’s initiative to create a joint bus route for charter and district students after realizing the costs could be higher than the district anticipated.

District Superintendent Nikolai Vitti told a school board subcommittee Friday that he thought the original cost to the district was estimated to be around $25,000 total. Instead, he said it could cost the district roughly between $75,000 and a maximum of $125,000 for their five schools on the loop.

“I think there was a misunderstanding….” Vitti said. “I think this needs a deeper review…The understanding was that it would be $25,000 for all schools. Now, there are ongoing conversations about it being $15,000 to $25,000 for each individual school.”

The bus loop connecting charter and district schools was announced earlier this month by Mayor Mike Duggan as a way to draw kids back from the suburbs.

Duggan’s bus loop proposal is based on one that operates in Denver that would travel a circuit in certain neighborhoods, picking up students on designated street corners and dropping them off at both district and charter schools.

The bus routes — which Duggan said would be funded by philanthropy, the schools and the city — could even service afterschool programs that the schools on the bus route could work together to create.

In concept, the finance committee was not opposed to the idea. But despite two-thirds of the cost being covered and splitting the remaining third with charters, they were worried enough about the increased costs that they voted not to recommend approval of the agreement to the full board.  

Vitti said when he saw the draft plan, the higher price made him question whether the loop would be worth it.

“If it was $25,000, it would be an easier decision,” he said.

To better understand the costs and benefits and to ultimately decide, Vitti said he needs more data, which will take a few weeks. 

Alexis Wiley, Duggan’s chief of staff, said the district’s hesitation was a sign they were performing their due diligence before agreeing to the plan.

“I’m not at all deterred by this,” Wiley said. She said the district, charters, and city officials have met twice, and are “working in the same direction, so that we eliminate as many barriers as we can.”

Duggan told a crowd earlier this month at the State of the City address that the bus loop was an effort to grab the city’s children – some 32,500 – back from suburban schools.

Transportation is often cited as one of the reasons children leave the city’s schools and go to other districts, and charter leaders have said they support the bus loop because they believe it will make it easier for students to attend their schools.

But some board members had doubts that the bus loop would be enough to bring those kids back, and were concerned about giving charters an advantage in their competition against the district to increase enrollment.

“I don’t know if transportation would be why these parents send their kids outside of the district,” Angelique Peterson-Mayberry said. “If we could find out some of the reasons why, it would add to the validity” of implementing the bus loop.

Board member LaMar Lemmons echoed other members’ concerns on the impact of the transportation plan, and said many parents left the district because of the poor quality of schools under emergency management, not transportation.

“All those years in emergency management, that drove parents to seek alternatives, as well as charters,” he said. “I’m hesitant to form an unholy alliance with the charters for something like this.”