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| Financing Special Education in New Jersey |
Financing Special Education in New Jersey
Successful Special Ed Lessons Honored
| By Frank Belluscio
To the people of New Jersey who care about kids and their education, it’s a point of pride: Our state remains a leader in services for physically and learning-disabled students. Today, more than 230,000, or 16 percent, of our state’s school-age children receive special education. Services range from speech therapy to high-intensity occupational training. Settings can vary from the general education classroom (with or without the assistance of a special aide) to a private school for the handicapped or specialized public school. The system has served our children well. But, as a September 2007 study commissioned by the New Jersey School Boards Association reveals, it could be improved through higher levels of state and federal funding, cost-efficiency at the local level, and placement practices that recognize the adequacy of services in less-restrictive learning environments.“School boards deserve to be proud of the special education services they provide their students,” commented Edwina M. Lee, NJSBA executive director. “Too often, however, they face conflicts over placement, the competing needs of general and special education students for the limited resources, and a shameful lack of state and federal funding for what is essentially a state- and federally mandated program.” The Process In school districts, child study teams determine eligibility for special education services. The teams usually consist of a school psychologist, a learning disability teacher/consultant, and a school social worker. If a child is eligible for special education—or is “classified”—the district brings together a group of professional staff members to develop an Individual Education Program (IEP), which encompasses the level of services the child needs and how and where those services will be provided. Federal and state law require that the student receive needed services in a setting that is as close as possible to the general education classroom—that is, in the “least restrictive environment.” Throughout the process, the school district must consult with the child’s parents who, under state law and regulation, have due process rights that include the ability to contest elements of the IEP, including the child’s placement. Data Gap Over the next 12 months, this process—and how we pay for it—will come to the forefront as New Jersey deliberates over a new school funding formula. “To adequately address these issues, we need data—much of which has never been collected and analyzed,” Lee continued. “That’s why the New Jersey School Boards Association invested in research to develop baseline information on financing and delivering special education, as well as best practices.” To obtain the critical information, NJSBA last year issued a request for proposals seeking an in-depth analysis of practices and policies in a broad, representative sampling of New Jersey school districts. The comprehensive study would address –
From among nine researchers and organizations submitting proposals, NJSBA selected MMI Associates of Princeton, whose principal researchers, Dr. Mari Molenaar and Michael Luciano, have more than 70 years of combined experience in special education research and programming. Dr. Molenaar served as senior research analyst for the New Jersey State Department of Education Office of Special Education and as a consultant for numerous school districts. Luciano has more than 35 years of experience as a public school administrator and teacher, including extensive service as a director of pupil personnel services. Vital Information The year-long study culminated in a report, “Financing Special Education in New Jersey,” which produced in-depth statistics on the cost of special education to school districts, areas of expenditure (instruction, administration, tuition, etc.), major cost-drivers, staffing, and placement practices. It also resulted in 14 recommendations that address—
“NJSBA is proud to sponsor one of the most comprehensive reports on special education ever conducted in our state,” said Lee. “This study will provide vital information to local school districts, the state Department of Education and the state Legislature as we move forward with initiatives to improve the funding and delivery of general and special education.”
Frank Belluscio, is director of the NJSBA Communications Department. He can be reached at fbelluscio@njsba.org. |
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Successful Special Ed Programs Honored By Rosa Cirianni and Mike Yaple Students with several disabilities at the Bright Beginnings Learning Center in Piscataway plant, maintain and harvest a sensory garden at their school along with non-disabled peers, as part of their award-winning Inch-by-Inch Garden Project. They use the garden to learn about math through measuring and counting; science through how things grow, natural systems and food groups; language through active listening and object identification; and life skills through recreation and completing tasks. The school, which is part of the Middlesex County Educational Services Commission, and its approach, is just one example of the innovative lessons being offered to help New Jersey’s most challenged students reach their maximum potential. New Jersey’s public schools and private schools for the disabled serve more than 235,000 special education students. Innovations in Special Education Eleven other schools also have been recognized for their creative special education programs during the sixth annual Innovations in Special Education program held in May in conjunction with the state’s Special Education Week. The New Jersey School Boards Association and ASAH…Serving the private special education community since 1974 have sponsored Special Education Week since 1985. “These programs demonstrate the solid work being done to educate students with special needs and to prepare them to lead fulfilling and productive lives,” said Kevin E. Ciak, NJSBA president. “The talent and hard work of our educators and parents is something to celebrate.” Gracanne Hinski-Ryan, president of ASAH, formerly the Association of Schools and Agencies for the Handicapped, agreed. “I am proud of the creative approach being taken in our schools to inspire our children and to provide them with the skills they need to succeed,” she said. “Schools throughout New Jersey are working with parents and the community to help children with special needs achieve their fullest potential.” OUR COMMUNITY ALPHABET TOUR About two dozen second-grade students with multiple language and neurological disabilities select a place in the community that begins with each letter of the alphabet. As students study the places and occupations in the community, they improve phonemic awareness and critical thinking. The program culminates in a daylong tour of area businesses and local government sponsored by the PTA. Contact: Terrence Healey, assistant superintendent, (609) 267-1406, thealey@lumberton.k12.nj.us YOUNG MEN’S CLUB After noticing young male students arriving at school wearing bandanas or imitating gang symbols and speech, the staff at Horizon High School created a program to give at-risk students the skills to keep them from joining gangs. Police officers talk with students about the dangers of gang life, a job coach works with the young men, and a school social worker helps students deal with the pressure to join a gang. Contact: Carolann Garafola, principal, CAREER INTERNSHIP PROGRAM Classified high school students take part in a series of workstations that simulate various job environments. Students learn skills in areas such as engraving, office experience, catering and food service and horticulture. They also take part in a student-run business called CIP Enterprises, and many local organizations are customers for products such as engraved awards. Staff works with local employers, and many students work part-time in the community. Contact: Elaine Pollara, program coordinator, (973) 535-8000, ext. 8064, SCOOP (Speaking Candidly on Our Perspective) Profoundly cognitively and physically challenged students, age 16 to 21, are members of a speakers panel, which shares personal stories of what life is like with such challenges. Students build confidence, and they also gain skills in areas such as career awareness, consumer and life skills. The panels, which range from five to nine students, have shared their unique insights at several workshops and presentations. Contact: Dawn Fayer, clinical coordinator, (856) 582-5151. AROUND THE WORLD IN 180 DAYS Middle schoolers in this program spend the year “traveling” the world. Once a month, they have a daylong adventure in the classroom that involves learning about a particular country’s food, customs and culture. One favorite part includes sampling a country’s cuisine. The program not only develops an awareness of other cultures, but it combines exercises that build proficiency in reading, writing, math and social skills. Contact: Barbara E. Frascella, director of student services, (609) 631-4165, ext. 3745. INCH-BY-INCH GARDEN PROJECT Students at the education services commission’s Bright Beginnings Learning Center plant, maintain and harvest gardens at their school. The 195 students, ages 3 to 12, have severe disabilities. They use the sensory garden to learn about different subjects and life skills through recreation and completing tasks. The project is self-sustaining through proceeds from produce sales. Staff is planning to raise some planting beds and garden tables to better accommodate students in wheelchairs. Contact: Rebecca Bobrowski, teacher, INTEGRATED ARTS PROGRAM Developed by a team of teachers, paraprofessionals, therapists and supervisors, the program provides integrative classes to give students motivating lessons in academics and vocational skills. Fifty-six students with multiple disabilities participate in sessions in drama and literature; dance, music and culture; creative writing and graphic arts; and sculpture. The use of technology enhances the program and allows the students, ages 14 to 21, to maximize their independence. Contact: Lynn Sikorski, principal, TOURNAMENT OF CHAMPIONS The annual Tournament of Champions, now in its 14th year, provides special-needs preschoolers with an event full of games and activities. Each year’s event features a different theme, from Disney to the zoo. Families are invited to the event, and middle schoolers in disability classes help with preparations and act as ushers and photographers. The preschoolers’ games, activities and songs are designed to help them meet specific speech, language and physical therapy goals. Contact: Christine Lee, preschool disabled teacher, (732) 899-3737, leec@pt.beach.com. ASSISTANCE DOG TRAINING PROGRAM Learning-disabled teenagers train puppies to become assistance dogs to help wheelchair-bound adults. Students must apply and be interviewed for the program. Four student dog-trainers and two dog-walkers are selected to teach a pair of golden retrievers to sit, speak, roll over, turn on light switches, press handicapped buttons to gain access to buildings and finally, to pull an occupied wheelchair. Students showcase their skills when the dogs graduate in June. Contact: Michele Rieman, program director, (732) 422-7900 ext. 201, FUN WITH FISHING PROGRAM Classes fish in the nearby Raritan River, as students explore the environment and learn proper fishing techniques as part of physical education. Photos are posted in the gym. Participation has doubled since the program began five years ago and has led to positive student behavior. The program, which runs on donations and school funds, has applied for a grant from the state Department of Fish and Wildlife. Contact: Stacey Paulis, assistant principal, (908) 707-0070, paulisp@aol.com. PROJECT QUEST Fifteen middle school students in grades six through eight participate in an adventure-based character education challenge that includes games, a challenge course, a five-mile hike around Lake Rutherford and a 45-foot indoor climbing wall. They learn to be better problem solvers and decision makers, and to enhance their ability to work within a group. They also set personal goals, which can range from improving grades to overcoming fears. Contact: William Shlala, interim director of special services, (973) 875-8870, SUMMER IS COOL AT GREENWICH SCHOOL This program aims to help autistic students enhance their skills even through the summer. For five weeks in July and August, students with and without special needs take part in the inclusive program, as they play miniature golf, bowl and visit the local grocery store to purchase ingredients for hoagies. The program helps the autistic students participate in a controlled and supervised situation where they can further develop social expertise. Contact: Sarah Bilotti, assistant principal (908) 859-2022, bilottis@warrennet.org. Rosa Cirianni was formerly a writer for NJSBA’s Communications Department. |
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By Donna M. Kaye The Special Education Review Commission issues recommendations on improving services for New Jersey’s special needs students. The Special Education Review Commission was created by the Legislature to take a fresh look at providing special education to the state’s growing number of special needs children. The commission—composed of members of the state’s professional and parent organizations, agencies, schools, members of the public and individuals with disabilities—met bi-monthly over a 6-month period. The group of 30 was charged with examining ways to improve the delivery, quality and cost of special education services in New Jersey. NJSBA was represented on the Commission, as were many other groups with familiar acronyms, including NJEA, NJPSA, NJASBO, NJASA, NJPTA, SPAN and ASAH. After having conducted several public hearings in different parts of the state, the Commission issued its Report to the Legislature in April 2007. Time for a ‘Fresh Look’ Although a similarly-charged Task Force had convened in 1995, the Legislature believed that events in the intervening decade warranted appointing another commission. According to the Legislature these events included:
The timing of the Commission’s deliberations coincided with the unprecedented special Legislative Session on property tax reform that took place throughout the summer and fall of 2006. The Commission had the opportunity to share its initial recommendations with the Joint Legislative Committee on Public School Funding Reform and the Commission’s Report addresses several of the Joint Legislative Committee’s final recommendations. The Commission’s Report also reflects the recommendations of the 1995 Special Education Task Force that had not yet been implemented. In total, the Commission made 66 new recommendations, in addition to specifically endorsing 5 recommendations that had not yet been implemented from the 1995 Task Force, and 10 recommendations from the Joint Legislative Committee on Public School Funding. Cost Containment and Accountability The Commission’s Report expresses several philosophical statements that underlie its recommendations. First, the Commission recognizes a philosophical shift advanced by the reauthorized IDEA, calling for services and accountability for all students within the general education system in order to eliminate a dual system of general education and special education, to the maximum extent appropriate. Second, the Committee believes that partnerships with other districts, colleges, community agencies, employers and the private sector should be considered for cost containment. Third, during its deliberations the Commission was guided by the Governor’s commitment to taxpayers to “live within our means” and to reduce costs and property taxes in light of growing budget deficits, a large debt service within the state budget, and shortfalls in federal aid for special education. Even so, the Committee believes that strategies to reduce costs and taxes should not negatively impact accountability for student outcomes, the quality of services, or compliance with federal requirements. Methodology The members broke into two subcommittees; one to address the issues of funding and costs and the other to address the quality and delivery of services. The subcommittees met separately to discuss their respective topics, coming together to share findings. As part of the ground rules that the Commission established for itself, it decided that all the recommendations in the final report would reflect group consensus. Given the diverse nature of the stakeholders, consensus was impossible to achieve on every issue, and proposals upon which members could not agree were omitted. However, several members felt strongly about the need to include a Minority Report on the use of Aversives and Restraints. Recommendations The Commission supports five recommendations from the 1995 Task Force that had not yet been implemented. Those include the establishment of fiscal reporting requirements consistent across placements so that per pupil costs can be determined more accurately; a dedicated flat grant for each district based on total district enrollment to enhance the general education program; a study of regionalized purchasing of transportation services conducted by the State Department of Education (DOE), the creation of a statewide network for the purchasing and sharing of equipment and assistive technology; and incentives, code changes and other strategies to increase the supply of related service providers. The Commission also endorsed ten recommendations made by the Joint Legislative Committee on Public School Funding, summarized below:
In addition to endorsing the above recommendations, the Commission offers numerous new recommendations that it categorized as either affecting Quality and Delivery, or Cost and Funding. During their discussions the Commission members recognized that many recommendations straddle both categories; however, each Recommendation is set forth under one of the two sections. Quality and Delivery Recognizing the problem of shortages in appropriately trained and certified related service personnel and teachers, the Commission directs a number of recommendations at enhancing teacher preparation training and professional development. The Commission also recommends incentives be provided to institutions of higher education, and that there be a system of reciprocity with other states. The Commission also identifies a need for more effective allocation of resources, and the increased targeting of resources at early screening and early intervening services (EIS) and response to intervention (RTI) models. Several specific recommendations in this area are listed with the ultimate goal of preventing the need for special education classification in many at-risk students. The Report also encourages the use of RTI and EIS to reduce the disproportionate representation of minority students in special education and gifted and talented programs. Disproportionality forms the basis for six additional recommendations, including several recommendations that involve the collection and review of data and research by NJDOE to close the achievement gap and reduce disproportionality through instruction, techniques, interventions and training models. Noting the importance of collaboration between districts and parents, the Commission recommends that every school district work with its state-mandated Special Education Parent Advisory Group to create a parent Training Program, for which the NJDOE should develop guidelines. The Report also includes recommendations on various aspects of accountability including recommendations about the IEP, district special education monitoring, special education performance plans, the alternate proficiency assessment, and the statewide student database. The Report also lists recommendations on accommodating gifted and talented students, the successful transition of three-year-old children ageing out of early intervention (EI) services, and to the successful transition from secondary school and to post-secondary school life. Additional recommendations address the use of assistive technology more widely and effectively in the classroom and the need for guidelines to implement assistive technology. Also noted was the need for state policy and guidelines on the appropriate use, if any, of restraint techniques, and on the use of other behavior interventions; and on developing self-advocacy skills for students to maximize their participation in their own education and afford them a greater voice in the special education system. Cost and Funding Funding issues generated 15 separate recommendations. The Commission believes that every district should receive special education funding, and that funding amounts for a student should be based on that student’s needs, not on the district’s ability to pay. The Commission recommends a standardized methodology for defining “actual costs” of special education, and would require the NJ DOE to conduct an on-going study of actual costs on a statewide and regional basis with input from major education stakeholders. With respect to the funding system, the Commission supports the continuation of a four-tiered weighting system based on the extensiveness of student needs, and revised to reflect actual costs. The Commission recommends that the NJ DOE publicly report its process and calculations for determining the per pupil weights for special education at-risk and limited English proficient (LEP) students. It recommends that special education aid remain a “categorical” aid, and be funded based on the individual student’s special needs, no matter where the student resides. One recommendation focuses on the coordination of special education transportation services. The Commission issues several recommendations directed at increasing the role of technical and vocational districts in educating special education students and in providing transition services, and the Commission encourages the Legislature to establish a committee to make specific recommendations in this area. A group of recommendations involve the creation of flexible mechanisms that would allow districts to create more building space to house students returning to the districts from more restrictive placements. The proposals include the creation of a fast track approval process for “special needs construction” without referendum, permitting 15-year capital short-term borrowing with NJ DOE approval for small construction programs; permitting the transfer of current year’s surplus, excess surplus, and capital reserve to offset construction costs for approved special education projects; and increased flexibility with respect to the placement of portable classrooms on public school property. The Commission also recommends enhanced state and districtwide database tracking of information on self-contained programs, enrollment and costs. The Report includes a recommendation encouraging incentives for increased collaboration between public and private special education schools so that privately-run programs are increasingly located in public school buildings. Also, the Commission would require the NJ DOE to conduct a survey of out-of-district and out-of-state schools in order to ascertain whether these schools provide services that are not currently provided by the public schools in New Jersey, and if so, the Commission recommends requiring districts to develop plans to increase their capacity to provide such services and programs. In light of the high cost of independently-contracted occupational therapists, physical therapists and speech language specialists, the Commission recommends that DOE conduct research on the range of hourly fees paid by school districts, and determine what are “reasonable costs” for a district to pay for these services. The Commission recommends that the NJ DOE study the cost of administering the Alternate Proficiency Assessment and research alternative, meaningful, less costly ways of meeting federal requirements for proficiency testing. With regard to child study teams (CST), the Commission recommends that the NJ DOE provide guidelines for the appropriate ratio of CST to population, and that it encourage an enhanced role for the CSTs within general education. Also, it recommends that a portion of the cost of Child Study Teams be considered a special education cost. Addressing its concerns about the costs in time and money of special education litigation, and the adversarial relationship that ensues between the parties, the Commission makes several recommendations to improve dispute resolution. Those recommendations include increasing the number of hearing officers, providing intensive training to hearing officers, and assigning those officers exclusively to special education matters. The Report also recommends that the mediation process be expanded and improved, and that the NJ DOE review models in other states to identify cost-effective, less adversarial methods that could be implemented in New Jersey. Donna M. Kaye, Esq. is senior counsel for the New Jersey School Boards Association. She can be reached at dkaye@njsba.org. |
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NJSBA Executive Director Steps Down By Christina Gordon NJSBA's long-time executive director, Edwina M. Lee, will retire on Oct. 31 after more than 20 years with the Association. In tribute to her outstanding leadership, School Leader is reprinting an interview that was originally published by the National School Boards Association. As you prepare for your retirement, what highlights stand out as memorable during your career with NJSBA? There are many things along the way that stand out. When I came to the Association having been a board member and president, my appreciation for the value of the Association was fairly high. I started as a legislative analyst and that experience has always influenced me. I have never ventured far from the political arena and the way in which NJSBA could influence the dialog and outcome federally or statewide. The things I’m proudest of came at different junctures while I was at different levels in my career. The first was as director of advocacy. Our Association is unique because we are legislatively created and all of our 611 districts have mandated membership and fiscal support for the purpose of sustaining public education. One of the challenges was a backlash against positions taken by the Association that prompted the legislature to threaten us with the elimination of mandatory membership, which is a serious change to structure and operations. As a result, we coordinated an Association-wide strategy to increase awareness among our members of the importance of our organization’s structure. Luckily we were able to stave off the legislative challenge. This caused us to look internally to examine what the value of the organization is to our members. Questioning that value was a new way of looking at what we have done for them lately and our true value. A nonprofit does that regularly, but for us it was a new challenge that helped galvanize and clarify to us and our members what the benefits of our Association are. Second, I am pleased to have been a part of bringing a more aggressive entrepreneurial and business approach to the Association. We have always been viewed by our members as a personable, can-do, always-focused-on-the-customer organization. My intent was to infuse that throughout the entire organization. It’s not just about giving what we think the customer needs, but finding out what they want and figuring out how we deliver that. I am proud of our efforts to personalize the Association, giving us a face beyond simply a byline in a newsletter. We have expanded our newsletters and periodicals with open letters to membership and by highlighting officers and staff as the people who are working every day for the Association. The last thing that I take great pride in as a woman, and particularly as a woman of color, is the opportunity to lead this organization and to show that I could be a role model for women who have aspirations to go into both politics and the service industry as it relates to associations. Interestingly, NJSBA started in 1914 with its focus on advocacy, with a woman, Ruth Page, as the first official director, who was an outspoken board member who believed it was time for the state to commit greater support and funding for facilities for public education. Those issues were as critical in 1999 when I started as executive director, as they are today. What makes NJSBA unique? Our legislature recognizes that we are in a strong union state because of the power of the collective bargaining unit. We have great access to legislature, offering a balance [to the issues raised by unions] in a public forum dedicated to the statutory creation of our organization. We are not unique in that we do that, we are unique in being recognized by our legislature. Here in New Jersey, we have a coalition of educational stakeholders—the teachers’ union, superintendent and principals associations, PTA, Department of Education, and business officials—who meet every other month. Being able to meet and hash out our concerns, raise topics of commonality to all of us, as well as those that impact us uniquely, has been extremely valuable. Additionally, our local service representatives—21 people—spend time working directly in our school districts to deliver services in various forms, from goal setting to superintendent searches to certification of boards as a group. My personal philosophy is that there is no job that I’ve ever had in my life more important to me than being a parent. It has been a surprise that it took as much time as it does and it has required me to balance work and personal goals, but it has consistently been the most rewarding. Now that my children are grown and my oldest has blessed me with grandchildren, I have discovered another surprising benefit—grandchildren. My life as a parent required support, both economically and emotionally, for my children, but being a grandparent allows me the luxury of being able to devote more time to their development as young people. Words to Live By It’s taken me 60+ years to finally figure out my true purpose and that is to serve. My personal philosophy is that the greatest gift is to serve and I have been blessed with many different opportunities and venues in which to do that. I was granted the gift of talking—that is to talk and also listen to the needs of those with whom I come in contact, and then to be of service to them while I’m still here. I hope that in retirement that I will come across many opportunities to serve through and with my voice. Christina Gordon is Manager, Communications for the National School Boards Association. She can be reached at cgordon@nsba.org. |
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