Choosing integration

In a district aiming for integration, can New York City sway parents’ school choices?

PHOTO: Christina Veiga
Carry Chan, left, will become acting superintendent in District 1 when Daniella Phillips, right, leaves this month to join the central education department.

New York City officials are hoping that an unused corner of a Lower East Side elementary school will help achieve what has long eluded this otherwise diverse Manhattan neighborhood: integrated schools.

They have converted a sunny section of P.S. 15 Roberto Clemente into a “Family Resource Center,” a hub for information about public schools in District 1. With slick posters and folded brochures, the district is hoping parents will reconsider schools they previously overlooked or even shunned.

That will require more than simply spreading the word about a school’s new gifted program or particular teaching style — it will also necessitate changing mindsets. The challenge is formidable, but it is an essential one to overcome if a new admission system the city created to better integrate the neighborhood’s schools is going to work.

“Too often we have coded messages, that this particular subset of schools is good for ‘those’ families,” said Daniella Phillips, District 1’s superintendent. “We’re trying to break open those stereotypes.”

To do that, the city is counting on a scattershot of approaches: Along with the new admissions system and center, the district is pouring resources into a long-struggling school to make it more appealing to middle-class families, and individual schools are taking their own small steps to welcome a different set of families than they’re used to serving — all in the hope of opening parents’ minds to a wider set of schools.

“I know habits are formed and they’re hard to break,” said Naomi Peña, a member of the district’s parent council who has been one of the most vocal advocates for integration plans. “But we have to start telling people in this community that there are other schools that aren’t being looked at.”

Unlike in most areas of New York City, District 1 families are not bound by attendance zones in elementary school. Instead, they must rank their choice of local schools and are matched to one.

The system has been in place since 1991 when the district did away with zone lines and many schools adopted admissions policies that weighed student diversity. As more white and affluent families moved in, the choice system was supposed to free students from their segregated neighborhoods and give everyone a chance to attend the same schools.

But over time, the city stripped away the diversity measures, leaving an unregulated choice process in place. Before the change, only one school enrolled a radically different student body from the rest of the district, according to a report commissioned by local parents. Since then, the district’s schools have grown more and more segregated.

District 1 spans the Lower East Side, East Village, and a sliver of Chinatown. As a whole, the student body is diverse: 16 percent are black, 41 percent are Hispanic, 22 percent are Asian, and 18 percent are white. Almost 70 percent of students are considered poor.

Yet few schools reflect that diversity. About 65 percent of white students attend just a quarter of the district’s elementary schools, which also enroll far fewer poor students.

For years, advocates in the district have pushed for a return to an admissions system that factors in diversity, but city officials were reluctant to rein in parent choice. Now, they plan to turn that choice into a tool for integrating the district’s 16 traditional elementary schools.

Starting this year, the new admissions system will give children who are poor, homeless, or not fluent in English priority for two-thirds of seats at district schools in kindergarten and pre-K — a target designed to bring each school’s population in line with the demographics of last year’s overall applicant pool in the district. Students with disabilities will also receive a preference. Those who don’t fall into any of those categories get priority for a third of spots.

But there’s a catch.

The new rules make a difference only if enough families from either priority group apply to a particular school. If, for example, few poor families rank a school, that school will simply admit more middle-class applicants from its pool.

That’s where the resource center comes in: City leaders and advocates believe that if they arm parents with accurate, consistent information about all the district’s schools, they will consider applying to a wider range of choices.

However, convincing parents to expand their horizons also means combating stereotypes that harden around schools, since many parents rely as much on word of mouth as data when selecting schools.

Allison Roda, a researcher who has studied how parents choose schools for their children, said families often turn to social networks to learn which schools are desirable. On the playground and in apartment lobbies, families swap stories about which schools have daily recess and the how much money their PTAs raise.

Getting families to give different schools a chance is no easy feat.

“Schools need to change their reputations,” Roda said. “And they need a group of parents to take a leap of faith and try it out.”

To that end, individual schools are thinking about how they can make themselves attractive to more families.

At East Village Community School, which enrolls the most white students of any elementary school in the district, the parent association stopped charging a fixed admissions price for fundraisers and money is going towards stocking classroom libraries with books that feature protagonists of color. Other schools that share buildings but serve starkly different student bodies — such as The Neighborhood School and P.S. 63 STAR Academy — have offered joint tours for prospective parents.

“We want all of our schools to reflect the dynamic, diverse, rich culture that we have in District 1,” Darlene Cameron, principal of P.S. 63, said at a recent public meeting. “We’re all going to do that work together.”

The city is also showering extra resources into some schools to give parents a new reason to choose them.

For years, P.S. 15 has served mostly students with intense needs: Last year, 40 percent of students were homeless. With help from a state integration grant and the city’s program for struggling schools, it has added a raft of enhancements. It launched a gifted program and adopted a new teaching style that allows students to explore their own interests. It also converted a corner of the library into a “maker space” where students can tinker with technology.

Whether the city’s efforts to get parents to think differently will pay off remains to be seen. Families must submit their choices for kindergarten by January 12, and they’ll find out in March where their children will attend kindergarten.

Officials expect only modest changes at first, with the number of schools meeting their diversity targets going from three to six in the first year — leaving a majority still segregated. But with the resource center up and running, officials hope to see a bigger shift than the preliminary numbers show.

They point to Cambridge, Massachusetts, as proof that the new system could have wider impact.

After decades of controlled-choice admissions, 84 percent of Cambridge students now attend racially balanced schools, according to a recent report by The Century Foundation, a think tank that promotes school integration. That city has served as an inspiration for District 1. Michael Alves, who is credited with creating the controlled choice model in Cambridge, served as a consultant to New York City. And District 1 parents visited the city — and its Family Resource Center — to learn more.

Unlike New York City’s center, parents in Cambridge have to visit the center to sign up for kindergarten and pre-K. But even with that requirement potentially giving the district a greater opportunity to steer parents’ choices, it still can’t get middle-class families to choose certain schools, according to Jeff Young, Cambridge’s former school superintendent. Seats in some of the city’s lowest-performing schools often go unfilled because parents won’t send their children there, he said.

Back in District 1 — where the services schools provide often reflect the needs of the families who choose them — it may be difficult to quickly break up the district’s longstanding enrollment patterns.

For instance, P.S. 110 Florence Nightingale enrolls a racially and socioeconomically diverse population. But its class diversity, in particular, means the school may have fewer resources for low-income families than ones where the majority of families are poor. Because fewer than 60 percent of P.S. 110 students qualify for subsidized lunch, the school does not receive extra federal funding reserved for high-poverty schools.

That has left parents like Marqui Smith, a self-employed marketing worker whose daughters attend P.S. 110, wondering if the school is right for her family.

“Now I’m in a school where most of the parents are not lower-income, so everything from school parties we cannot afford to go to, school trips are higher,” Smith said.

Crystal Perry, a parent of two children at East Village Community School, said it will be difficult for schools without the extra resources that P.S. 15 has amassed to woo families. Affluent families have options, she said, including enrolling their children next door, in one of the city’s wealthiest school districts.

“Parents still won’t send their kids to those schools that are struggling,” Perry said. “And if they’re forced into it by the DOE, they’ll simply redistrict. They’ll go to District 2.”

Still, school officials say they are optimistic that efforts the city is undertaking now will pay off in the future with more integrated schools in one of the most diverse corners of the city.

“It’s a process that happens over time,” said Irene Sanchez, P.S. 15’s principal. “As we get the word out, and families hear about what’s actually happening — not the rumor they heard three years ago — we should begin to see that change start to happen.”

Correction: This story previously incorrectly stated that P.S. 110 does not offer free after-school programming.

The big sort

Do selective admissions actually help middle schools choose the best students? This Manhattan dad says no.

PHOTO: Christina Veiga
Parents in Manhattan's District 3 recently gathered to learn about the middle school admissions process. Eric Goldberg wants District 2 to end selective admissions methods that many middle schools use determine admissions.

Eric Goldberg wants to change the debate around whether public schools should be allowed to select their students based on test scores, report card grades, and other factors.

A parent leader on the Community Education Council in District 2, Goldberg is proposing a resolution to put a hold on that that practice, known as “screening,” across the district’s middle schools. District 2 stretches from Lower Manhattan to the Upper East Side.

Many question whether sorting students by academic ability is fair, and critics say it exacerbates segregation. Goldberg’s criticism is different: He questions whether the sorting mechanisms actually work to distinguish among students and pick those with the most academic potential. 

“From the basic design to the implementation, this process is riddled with issues,” he said. “It makes it essentially worthless.”

His resolution would be merely symbolic but would add to the growing criticism of the methods many New York City schools use to select students. Community leaders in one Brooklyn district have called for an end to selective admissions in their middle schools, and Chancellor Richard Carranza recently called screening “antithetical” to public education.

Like other critics of the screening process, Goldberg is worried about whether the current system is equitable. But he also thinks that starting with more basic questions is a better way to convince parents that something has to change.

“We’ve set up this tension between a system that values merit and a system that values diversity,” he said. “But we haven’t asked… is this system actually determining who has merit?”

Goldberg said he has some support from fellow council members, who are expected to vote on the resolution this fall after a series of community discussions. Ultimately, the council doesn’t have the power to change admissions in the district — that’s up to the Department of Education and local school leaders. But parent buy-in has proven integral to pushing integration efforts elsewhere, and a show of support for such a dramatic step could serve as an important signal to city officials.

When talking to Chalkbeat, Goldberg had this to say about the flaws he sees in the system, and what he thinks it will take to accomplish meaningful change.

Responses have been edited for length and clarity.

What are you proposing for District 2 middle schools?

We would like District 2 to place a moratorium on screening until we can have a full assessment of the process, because our belief is that it is unfair to keep it in place and subject another set of students to a deeply flawed process.

In your view, what are the flaws?

There’s no standardized grading system in place. One school could have a scale of 1 to 4 for grading, another school could have a scale of 1 to 100. There is no oversight in place to ensure that grade distribution within schools, within a classroom, is somewhat standardized — let alone across schools.

If you look at other aspects like testing, it’s clear and it’s known that many students are tutored for the [state] test. It’s clear that these tests were designed as diagnostic assessments rather than assessments to be used for selection. We’ve pushed back on whether these state tests should be used for teacher evaluations, but yet, for some reason, we sit on the sidelines and allow our students to be assessed by them.

If you go to attendance — which to me is probably the most pernicious of all — attendance for 10-year-olds is schools choosing families…For a 10-year-old to get to school on-time, they are fully dependant on their caregiver.

The last area is school-based assessments and interviews. Many of the schools administer their own math or English tests and assessments. But no one has reviewed those tests to make sure that they’re up to standards in terms of being reliable and valid indicators of student performance. Many of these schools also do interviews, but yet, the interviewers have had no training, and there’s no standards in place for how those interviews are run. They don’t have unconscious bias training. And there’s really no transparency around what questions are asked and whether or not they’re valid.

Why are you focusing on whether this process is reliable, rather than on whether it’s fair — as other critics are doing?

There will be a lot of discussion and tension around the rationale for screens and what purpose they serve, around the impact that screens have and whether that impact is fair and equitable. But I think, at the most basic level, we should have more agreement and unanimity to see the flaws in this process. My belief is that as people understand how deeply flawed this process is, that they will take a step back and assess screening as a whole.

So is this just the first step before diving into the bigger question of whether screening is fair?

Those are conversations that we certainly should be having as a school system and as a community. But I think it takes away some of the pressure and high-stakes nature of that conversation if we can get consensus that this system is flawed in terms of its design and implementation, and we should end a flawed system.

District 2 has been debating how to make its schools more diverse for some time now. What have you accomplished so far?  

The way District 2 has made progress is, first, around transparency. The fact that schools are actually sharing (admissions) rubrics today is a big change from where we were two or three years ago. But there’s still a huge gap because the schools still don’t share what score on a rubric actually led to an admission.

We’ve been able to engage schools and principals in a deeper conversation around middle school admissions, and some of the schools have taken what I think are big steps around applying for, and now implementing, diversity in admissions set-asides for low-income students at three of our most selective schools.

I also think we’ve made strides in having conversations with the community, but we haven’t been able to drive to more significant structural changes. One of the tensions that we see — and that probably a lot of districts see — is do we work toward incremental change, or do we work on holistic, system-wide changes?

Given that tension, what do you think needs to happen?

First and foremost, it’s really our middle school principals, and District 2 administration, and the DOE, who right now have the sole discretion, power, and authority to set the admissions standards for District 2.

Second is continuing to build support within the parent community in District 2 around changes to the middle school admissions process. One of the difficulties there is that constituency, which often are fourth-grade parents, is that once they’re through the process, if you ask them to reflect on the process, they would have significant issues with how it affected their kids. But once they pass through and move on to middle school, then it recedes into the background.

I think there’s also a message that’s being sent by the new chancellor that this is a deeply flawed system and many of the commonly held assumptions that we have in place, we need to question and challenge. Our principals and administrators need to bring that message forward to action.

Within the parent community, there will be debate, discussion, and contention. Our school leaders, people look to them for guidance, and they have the respect and reputation within the community to actually drive change. My hope is that Chancellor Carranza is giving all them more space to speak on and advocate for what they think is right.

What would a better middle school admissions system look like in District 2?

I think that this should be a collaborative development of a system that values our students and values the education environment that we want. I look to the community to come up with ideas.

I want to maintain student choice but I don’t believe there’s any value in assessment and selection of our students. So I don’t believe there should be any screens in place.

This system continues to work for select people and select subgroups, and those are the people who want us to perpetuate [it]. They are people of financial means, people with time resources, people with social capital. They are resourced in a way that works for them. But for 10- and 11-year-olds, we need a system that works for everyone.

Is there anything else you’d like to add?

Each of these 10-year-olds has incredible potential. This screening system asks us to make distinctions around potential with tools that tell us nothing. At best, they’re telling us about their past performance, their family support, and maybe what they’ve been exposed to outside of school.

$1 billion

The tension between CPS enrollment declines and new schools

PHOTO: Tim Boyle/Getty Images
The West Loop neighborhood on the Near West Side is booming with new residents and corporate headquarters.

Chicago plans on opening a handful of schools in the next several years. But for whom?

Chicago Public Schools faces a critical decline in enrollment and is closing or phasing out four more schools on the city’s South Side as a result.

Yet the district just unveiled a new $1 billion capital plan that adds schools: an open-enrollment high school on the Near West Side and an elementary school in the Belmont Cragin community on the Northwest Side. That’s in addition to repurposing two old buildings to open classical schools in Bronzeville on the Near South Side and West Eldson on the Southwest Side.

CPS is soliciting feedback about the plan this Thursday ahead of next week’s board of education vote, but community organizers say the proposal shows a bias toward investments in or near high-growth, gentrifying areas of the city. Some complain the new schools will siphon enrollment and resources from current neighborhood options, and worry the schools are an election-year ploy that will exacerbate or enable gentrification. Others contend that the district’s spending still prioritizes white and mixed communities near downtown and on the North Side as opposed to majority black and Latino communities on the South and West sides.

Despite the criticism, and despite declines in city population and enrollment, CPS said it is taking a neighborhood-by-neighborhood approach to to creating new schools and academic opportunities. In a statement to Chalkbeat Chicago, CPS defended its decision to open new schools, despite enrollment declines, by citing community demand. And CPS CEO Janice Jackson told a room of business and nonprofit executives at the City Club of Chicago on Monday, “we can’t do great work without investing” — and not just in school staff, but in buildings themselves.

At a budget hearing later in the day, Chicago Board of Education President Frank Clark stressed the money was being allocated “with a great deal of focus on local schools that in the past had legitimate reason to feel that they were not prioritized as they should (be).”

The problem, still, is fewer and fewer families are enrolling their students at CPS.

Enrollment is declining at Chicago Public Schools.

The roughly 371,000 students enrolled at CPS this year is a 15 percent decrease compared with the year 2000, when enrollment topped 435,000, according to CPS data. And there’s no sign the numbers will trend upward soon:  The district projects about 20,000 fewer students to enroll in the next three years. The trends mirror population drops in Chicago, which has about 182,000 fewer residents than it did 18 years ago, according to Census data. More than 220,000 black residents have left since the year 2000.

One expert on neighborhood change in Chicago, Alden Loury of the Metropolitan Planning Council, said building new schools shouldn’t be part of a broad policy given the city’s population declines. However, he said new schools may make sense in certain areas.

“You may see pockets within the city where there’s a very clear difference happening,” he said.

Demographer Rob Paral, who publishes Chicago demographic data on his website, said while the city’s population might be down, some parts of the city that have grown, especially areas that are gentrifying and former white ethnic enclaves transformed by Latinos and immigrants.

“Chicago has got these microclimates when it comes to neighborhood change,” Paral said.

You’ll see what he’s saying in Belmont Cragin, a community just west of one of Chicago’s most popular gentrifying communities, where the population has ballooned as the overall city population has dropped.

A new elementary school for Belmont Cragin

Belmont Cragin is a quiet, working-class neighborhood full of single-family brick bungalows and two-flat apartments. Taquerias, Mexican boutiques, hair salons and auto bodies dominate commercial corridors that used to serve more Polish residents, who are concentrated on the northern end of the community.  Since 1990, Belmont Cragin’s population has increased 40 percent to 80,000 and changed from two-thirds white to 80 percent Latino. Paral said Latinos have moved from communities like Logan Square to the east, where gentrification pushed them out, and replaced aging white populations. Latinos have similarly transformed former enclaves for European immigrants on the Southwest Side, like West Eldson and Gage Park.

CPS said in its statement that community groups and leaders in Belmont Cragin advocated for the elementary school, and that CPS “shares these communities’ vision of expanding high-quality educational opportunities to children of all backgrounds.”

CPS wouldn’t say who in the Belmont Cragin community had asked for a new school. It wasn’t Rosa Reyes or Mariana Reyes (no relation). They said their children’s school, Burbank Elementary, is losing students and needing improvements to its roof, heating and cooling systems. The district labels Burbank, like most schools in Belmont Cragin, as efficiently using its space and not yet suffering  from under-enrollment — yet. Still, its student body is shrinking. Latino enrollment at CPS seems to be falling, too. Experts note that immigrants are coming to the city at much lower rates than in the past when they offset black population loss, and that birth rates have declined across the board. 

The mothers said CPS allowed a Noble Charter Network to open in 2014 that exacerbated enrollment declines at Steinmetz High School, and that the same happened to Burbank in 2013, when an UNO charter elementary opened a few blocks west of the school.

Steadily losing students costs Burbank funding, doled out per-pupil. That’s why they the parents don’t support CPS’ new school proposal.

“It will be taking from the local schools,” Rosa Reyes said.

A push for a Near West Side high school

Drive west from Chicago’s central business district and you’ll pass through the Near West Side, one of the city’s 77 official community areas. However, those official boundaries also contain a racially and economically diverse mix of neighborhoods. East of Ashland, you’ll see the West Loop, home to mostly white and affluent residents, pricy condos, trendy restaurants, and a booming business community that includes corporate headquarters for Google and McDonalds.

But west of Ashland, as you approach the United Center where the Chicago Bulls play, you’ll find more low-income residents, public housing, and African-American residents. Like Belmont Cragin, the Near West Side has witnessed immense population growth in recent decades. White people have flocked to the area, especially the affluent West Loop, while the black population has plummeted. In 1990, about 66 percent of Near West Side residents were black and 19 percent were white. Nearly 20,000 new residents have moved in since then. Today, the Near West Side is 30 percent black and 42 percent white. An analysis by the Metropolitan Planning Council found that most African-Americans leaving Chicago are under 25, and low-income. Alden Loury, the council’s research director, said the city is struggling to retain young black people who might eventually establish families, and that many black Chicagoans have left seeking better job markets, more affordable housing, and higher quality schools.

CPS hasn’t announced where on the Near West Side it will put its proposed $70 million high school – but the community groups calling loudest for it are pro-business groups and neighborhood organizations led by mostly white professionals. The community group Connecting4Communities and the West Loop business organization the West Central Association have advocated for a new high school and see the mayor’s proposal as responsive to the growing community.

“Most of the high schools that people are comfortable sending their children to, the good ones, are selective enrollment,” said Executive Director Dennis O’Neill of Connecting4Communities.

He said that parents whose children don’t test into those schools—Jones College Prep, Whitney M. Young Academic Center, and Walter Payton College Prep —lack an acceptable option.

“Our neighborhood school, Wells, which is nowhere near our neighborhood, is so under-enrolled, and is not [a school] that people feel comfortable sending their children to,” he said. “When people see a school is so woefully under-enrolled, they just don’t have confidence in it.”

Wells Community Academy High School, which sits near the intersection of Ashland and Chicago avenues, also is mostly black and Latino, and mostly low income.

But O’Neill emphasized that high school request isn’t an effort to exclude any groups. He said the groups have a proposal for a new high school that draws on eight feeder schools, including a school serving a public housing development, to ensure the student body reflects the diversity of Chicago.

Loury of the planning council said it makes sense that as the Near West Side grows there’s a desire to satisfy that growing population. However, he found the idea of low enrollment at a predominately black and Latino school amid a boom in white population to be problematic. Parents might avoid sending their children to certain schools for various reasons, but a new building nearby furthers disinvestment in schools struggling to fill seats.

“It’s a pretty classic story in terms of Chicago and the struggles of integration and segregation,” he said.

A classical debate in Bronzeville

When it comes to CPS’ new school plans, line items don’t always mean new buildings, as evidenced by the two classical schools opening in existing structures in West Eldson on the Southwest Side and in Bronzeville on the South Side.  

Bronzeville Classical will open this fall as a citywide elementary selective enrollment school. Classical schools offer a rigorous liberal-arts curriculum to students who must test in. Last year, more than 1,000 students who qualified were turned away for lack of space, according to CPS, which is spending $40 million to expand three existing classical programs elsewhere.

“The district is meeting a growing demand for classical programs by establishing programs in parts of the city that do not have classical schools, like Bronzeville – making this high-quality programming more accessible to students in historically underserved neighborhoods,” the CPS statement read.

A spokeswoman for Alderman Pat Dowell, in whose ward the school is opening, responded to requests to interview the alderman with an emailed statement supporting the new Bronzeville school.

“It provides another quality educational option for families in Bronzeville and other nearby communities,” read the statement. “No longer will children from near south neighborhoods seeking a classical school education have to travel to the far southside, westside or northside for enrollment.”

However, some South Side residents see the classical school as problematic.

Natasha Erskine lives in Washington Heights on the Far South Side, but is Local School Council member at King College Preparatory High School in the Kenwood community near Bronzeville. She has a daughter enrolled at King, a selective enrollment high school. Before that, her daughter was in a gifted program at a nearby elementary school. Erskine supports neighborhood schools, but struggled finding schools that offered the kind of field trips and world language instruction many selective enrollment schools offer.

“I see the disparity, because it’s one we participate in it whether I like it or not,” she said.

Bronzeville is a culturally rich neighborhood known as Chicago’s “Black Metropolis,” where black migrants from the South forged a vibrant community during the Great Migration, building their own banks, businesses and cultural institutions.

And it retains a resilient core of committed black residents, but has suffered some decline and lost population like other black neighborhoods.  The community area that contains Bronzeville and Douglas has lost about half of its black population since 1990.

But Bronzeville is adjacent to the gentrified South Loop, which is grown increasingly white in recent years. And it’s a short drive  from Woodlawn, where the Obama Presidential Center is slated to be built. Paral, like other observers, predicts the Bronzeville is one of the areas between the South Loop and the Obama Library that will be further gentrified in coming years.

Jitu Brown, a longtime Chicago education organizer and community leader who heads the Journey for Justice Alliance, believes that the investments are an attempt to attract more white families to areas at a time when low-income people and African-Americans are being priced out and leaving the city. Brown added that creating more selective-enrollment schools is a different type of segregation: “You’re segregating talent.”

On Thursday, the district will solicit feedback about the spending plan via simultaneous public hearings at three different sites, Malcolm X College, Kennedy-King College, and Truman College. Here are the details.