Testimony to the New York City Council: Oversight: Reexamining Arts Education in New York City Public Schools

Joint Hearing of the Committee on Education and the Committee of Cultural Affairs, Libraries and International Intergroup Relations
Delivered by Doug Israel, The Center for Arts Education

Re: Oversight: Reexamining Arts Education in New York City Public Schools
November 23, 2009

Good afternoon Chair Jackson, Chair Recchia and members of the City Council Committees on Education and Cultural Affairs, Libraries and International Intergroup Relations. I am Richard Kessler, Executive Director of The Center for Arts Education. I appreciate the opportunity to testify in front of the council on an issue that is vital to the city’s 1.1 million school children.

The Center for Arts Education is dedicated to ensuring that New York City public school students have quality arts learning as an essential part of their K-12 education. In addition to providing over $40 million in funding directly schools to support the creation of quality arts education programs, we have a roster of teaching and learning programs that are helping to raise the quality of arts education in public schools, and we campaign for resources and policies that will help restore a quality arts education for every child in every school in New York City.

We are here today to share the results of a two year study we conducted that looked at the relationship between arts education and New York City graduation rates, as well as other relevant arts education data, and to express our support for the passage of Resolution # 837 calling on the New York City Department of Education to ensure a minimum amount of funding for arts education at schools across the city.

The Center for Arts Education Report on Graduation Rates and Arts Education
As you might be aware, this October The Center for Arts Education released a report, Staying in School: Arts Education and New York City High School Graduation Rates, that took an independent look at the data provided by the New York City Department of Education (NYCDOE) through the two Annual Arts in Schools Reports released to date. We looked at the relationship between nine key arts indicators and the graduation rates at New York City high schools.

What our research shows is that schools in the top third of graduation rates were offering students the most access to, and resources for, arts instruction. Those in the bottom third, the schools that are struggling the most to graduate its students, are offering students the least opportunities to participate in arts learning. These findings were consistent across all nine of the indicators we looked at, from the presence of certified arts teachers, to the number of classrooms dedicated to arts instruction, to the partnerships that are forged between schools and cultural arts institutions. For instance:

• High schools in the top third of graduation rates had almost 40 percent more certified arts teachers per student than schools in the bottom third—or, on average, one additional arts teacher per school;
• They also had 40 percent more physical spaces dedicated to arts learning per student than schools in the bottom third;
• And they had fostered 25 percent more partnerships with arts and cultural organizations than schools in the bottom third.

This research builds on work in the field that shows the benefits of arts education, not only on academic success, but on the power of the arts to keep students engaged in school and on a path to graduation. In a recent national survey of ethnically diverse high school dropouts, more than half of the respondents said that the major reason for dropping out of high school was that they felt their classes were uninteresting and irrelevant.

Students at risk of not successfully completing their high school education cite their participation in the arts as a reason for staying in school. The opportunity for students to engage in the arts—through bands and choruses, dance and theater productions, exhibitions of their original art, and publications of original literary and visual work—has always been a strong motivator for students and can play a key role in tackling the graduation crisis. Our research supports these findings, and makes a compelling case for the power of arts education to turn around struggling schools. These findings are particularly relevant as New York City struggles with some of the lowest graduation rates in the country.

Current Data on Arts Education in New York City Public Schools
Unfortunately, what we are witnessing in the city’s public schools today does not bode well for a great number of students who do not have equal access to an arts education. A pronounced narrowing of the school curriculum, coupled with budget cuts and virtual elimination of Project ARTS, is taking a toll on arts instruction at schools throughout the five boroughs.

Reports of bands and choruses being eliminated, less money for instruments and arts materials, the loss of classrooms dedicated to the arts, are but a few of the symptoms of what is turning out to be a perfect storm for arts education. This comes on top of system that was falling short of providing students with equal access to a well-rounded education that includes the arts in the first place.

In addition to our research and the anecdotal stories the we are hearing from the schools, data collected by the NYCDOE, as part of the two previously released Annual Arts in School Report, clearly shows that there is a widespread lack of compliance with the state educational mandates for arts instruction—despite the fact that they have the effect and power of law. According to the reports:

• Only 8 percent of elementary schools in 2007-08 reported providing annual arts instruction in all four arts disciplines as per state requirements, an improvement from 4 percent the previous year;
• Less than half of middle schools reported that all students had met state education requirements for the arts according to the 2007–08 report;

The NYCDOE reports also made clear that the arts have suffered since the minimum funding line for the arts, provided through Project ARTS, was all but eliminated in 2007. Project ARTS was designed as a safety net for the arts after devastating cuts in the 1970’s. The initiative helped secure a minimum level of arts education at schools across the system, while being a catalyst for hiring certified arts teachers, purchasing supplies, securing services of arts education providers, and encouraging private contributions to match public dollars. While Project ARTS still exists as an allocation in a school’s budget, principals are no longer required to spend this money on arts education. According to the NYCDOE data, since the elimination of Project ARTS in 2007:

• Citywide, schools spent a smaller percentage of their budgets on arts education in 2007–08 compared to 2006-07—shrinking to less than 2.9 percent on average;
• Schools spent more than half a million dollars less on services provided by art and cultural partners in 2007–08 compared to the previous year;
• There was a 63 percent decline in spending on arts supplies and equipment in 2007–08 over the previous year—a reduction of nearly $7 million;
• Nearly 30 percent of schools had no certified arts teacher on staff in 2007–08—up from 20 percent the previous year;
• There has been a sharp decline in the number of graduates completing three or more arts courses—forty-six percent of students did in 2006–07 compared with only 32 percent in 2007–08;

Furthermore, according to an ongoing survey being conducted by The New York City Arts in Education Roundtable, nearly 50% of the arts service providers in the City are experiencing a reduction in demand for their services in the schools this year; some are experiencing reductions of 25% or more. Many survey respondents have identified the elimination of dedicated arts funding in school budgets as a factor contributing to this reduction. [The Roundtable has submitted a copy of their survey results as their testimony at this hearing.]

Recommendations
Unfortunately, here in New York City principals’ hands are tied in many ways. They are being forced to eliminate the arts due to the budget restraints and the rewards and consequences system of accountability that is overwhelmingly tied to test results on the State Math and English Language Arts exams.

It is for these reasons that it is essential that we make the commitment to adequately invest in the arts in our city’s public schools and hold schools accountable for providing the curriculum and standards that are mandated by the state. In the age of high stakes testing as the primary means of evaluation of our educational system, there is a need to put in place mechanisms with which to hold principals and districts accountable for meeting the state’s learning standards and education requirements, and ensuring that all students have access to a well-rounded education, that includes the arts.

As a first step to improving access to arts education, we submit the following recommendations:

• The City Should Ensure Minimum Funding for Arts Education and the Council Should Pass Resolution #837- We are urging the city to once again provide all schools with a minimum per pupil funding allocation to be spent directly on the arts. Currently, schools still receive Project ARTS funding in name only. We believe school leaders should once again be held accountable for spending these dollars targeted for arts education on arts education. The dedicated funding serves as a minimum, a floor, to give all students, regardless of socioeconomic background, neighborhood or race, an equal opportunity to participate in arts learning. This is what the state law promises for our school children and this is what New York City should deliver.
  As a precursor to restoring this initiative we are urging the City Council to pass Resolution #837 to ensure that schools are dedicated a minimum amount of funding at all schools for arts education. The passage of this resolution would be a symbolic, but meaningful gesture, that the members of the City Council feel strongly, as do many of the groups and individuals who are here to testify today, that the arts are an essential part of a child’s education and should be provided to every child, every year, at every school. We urge the City Council after this hearing to bring this Resolution to the floor for a vote.
• The City and State Should Ensure Compliance with State Requirements for Arts Instruction - We have worked with State Senator José Serrano and State Assemblymember Steven Englebright to introduce legislation in the State Legislature that would lead to greater compliance with state arts mandates. We believe the city should take immediate steps to ensure that all schools are in compliance with the state requirements.
• Ensure All Schools Have Certified Arts Teachers - Every school should have at minimum one certified arts teacher on staff in one of the four required art forms, with larger schools hiring a sufficient number to ensure that instructional requirements are met.
• Require Adequate Classroom Space for Arts Instruction - The city should require that all schools provide adequate space for arts instruction. To this end, the formula used for determining a school’s capacity should reflect this requirement. Additionally, the city should conduct an inventory of spaces dedicated to and used for arts instruction in each of its public schools, including a survey of the number and former use of arts spaces that have been repurposed and are no longer used for arts instruction. These spaces should be reclaimed for arts instruction where the need exists.
• Expand Course Offerings in the Arts - High school principals should expand course offerings in the four arts disciplines and provide all students with an opportunity to exceed the minimum graduation requirement of successful completion of two courses (one unit of credit) in the arts.
• Expand Student Access to the City’s Cultural Arts Sector - The city should implement policies and dedicate resources to ensure that all students have access to the city’s vibrant and diverse cultural arts sector.

Thank you for your time and consideration of our testimony and these recommendations.