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Rd 085 889 Title Institution Spons Agency Pub Date DOCUMENT RESUME RD 085 889 80 EA 005 799 AUTHOR Hines, Edward R. TITLE State Policy Making for the Public Schools of New York. INSTITUTION Ohio State Univ., Columbus. Educational Governance Project. SPONS AGENCY Office of Education (DHEW), Washington, D.C. PUB DATE Jan 74 GRANT OEG-0-73-0499 NOTE 173p.; A related document is EA 005 798 EDRS PRICE MF-$0.65 HC-$6.58 DESCRIPTORS Case Studies; Chief Administrators; Decision Making; *Educational Policy; Elementary Schools; Leadership; Policy Formation; *Political Influences; Public Schools; Secondary Schools; *Socioeconomic Influences; State Boards of Education; *State Departments of Education; State Schocl District Relationship; State Surveys; Superintendent Role IDENTIFIERS Elementary Secondary Education Act Title V; ESEA Title V; *New York State ABSTRACT This case study deals with the process of educational policy formulation at the State level for public elementary and secondary schools in New Iork. The social, economic, and political context is described since it provides a backdrop from which to view the structure of State government and education. The enduring pattern of State educational politics, as reflected by other studies of New York, are summarized; and action or attempted action in each of four major State educational policy issue areas are described. For the most part, the issue areas--school finance, desegregation of schools, teacher certification, and educational program improvement--provide a means of looking at educational policymaking at the State level. Analysis of both the policy issue areas and the policy process serves to explain, in greater detail, the process of educational governance. Some important and larger themes are discussed as illustrated by the analysis, and interpretive comments about emerging roles and relationships in the governance of education in New York State are presented. (Author) STATE POLICY MAKING FOR THE PUBLIC SCHOOLS OF NEW YORK U S 0 AAAAA MINT OF HEALTH lEaktCaS TO% S. Vilil,11111 NATIONAL INSTITUTE OF IROUCATION T. S00CuMENT HAS PEEN kf PRO OLICF0 rXACTL v AS 41CF.vE0 TWOM ol f of CISON OR OW:Aro/A T+ON AT orf, +1 POINTS 01 vot W 0e4 OPINIONS STA?! 0 DO NOT Nf (1 SSA14,1 v oil P14( SI NT ()I a AL NATIONAL N%Titi,10 01 I nu( Ail(IN POSittlN O4 POL Edward R. Hines Prepared for: The Educational Governance Project The Ohio State University 29 West Woodruff Avenue Columbus, Ohio 43210 COPY FILMED FROMBEST AVAILABLE This report is one. of twelve case studies growing out of the Educational Governance Project. In addition, two major reports, a comparative analysis across states and an explication of alternative models of state governance of education, are in preparation.The Governance Project began in January, 1972 and is to be completed in August, 1974. The work was funded by the U. S. Office of Education under Title V (Section 505) of the Elementary and Secondary Education Act (0EG-0-73-0499). The Policy Board for the Project was composed of three chief state school officers: Martin W. Essex of Ohio, Jack P. Nix of Georgia, and Ewald B. Nyquist of New York, with the State of Ohio serving as fiscal agent. An Advisory Committee composed of eleven persons concerned with general and educational governance also served the Project. Contract for the work was let to the College of Education, The Ohio State University and Roald F. Campbell and Tim L. M3zzoni, Jr. were the directors. January, 1974 Foreward New York State provides a rich data base for a researcher. Compared to many states the structure and process for state government and education in New York have received considerable attention from scholars through the years. Without the cooperation and assistance of knowledgeable individuals, the tasks of data gathering and interviewing become onerous. The generous assistance given freely by nearly all those who were contacted as part of this larger study is acknowledged. The cooperation of the staff of the New York State Education Department and especially by those in the office of Lorne H. Woollatt, Associate Commissioner for Research and Evaluation, is appreciated in view of the detailed and critical nature of this examin- ation. The principal writer remains indebted to the Directors of The Educational Governance Project and to Peggy M. Siegel for their substantive and technical contributions and to Norma Elliott for her energy in preparing the manuscript. The ultimate responsibility for the analysis and inter- pretation, however, remains with this researcher. Edward R. Hines January, 197 Columbus, Ohio TABLE OF CONTENTS Introduction SECTION I - THE CONTEXT OF STATE EDUCATIONAL POLICY MAKING IN NEW YORK Demography and Social Characteristics 4 Economic Characteristics 6 Political Context 8 SECTION II- STRUCTURAL CHARACTERISTICS OF STATE GOVERNMENT IN NEW YORK The Governor 13 The Legislature 18 The Board of Regents 26 The Commissioner and State Department of Education 29 SECTION III- NEW YORK STATE EDUCATIONAL POLITICS Context 32 The Pattern of State Educational Politics 32 SECTION IV - SELECTED POLICY ISSUE AREAS Introduction 39 School Finance 40 Desegregation of Schools 56 Certification of Teachers 69 Educational Program Improvement - Project Redesign 78 SECTION V - POLICY ROLES AND RELATIONSHIPS Role of the Board of Regents 89 Roles of the Commissioner and State Education Department 103 Roles of the Interest Groups 119 Role of the Legislature 127 Role of the Office of the Governor 138 SECTION VI- INTERPRETATION Critical Themes 147 Looking Beyond the Policy Issues 150 Emerging Roles and Relationships 154 Footnotes 158 Appendix 166 Selected Bibliography 168 1 Introduction Participants and scholars of state educational policy making have re- cognized that New York State has a tradition of providing leadership in both state government and education. The decade of the 1970s has shown that the institution of education in American life has come under unpre- cedented criticism from the public and governmental leaders who are uncer- tain that increasing dollars for education will produce demonstrable results in either the schools or the students. Recent events in the Empire State have shown that it, too, has entered a new era. Governor Nelson Rockefeller's proposal for an Inspector General to serve as a state government watchdog over eduction and the merger of the New York State Teachers Association and the United Federation of Teachers into the New York State United Teachers with a membership of a quarter million are two specific illustrations of the degree to which the educational enterprise has become more visible and attuned to action in a broader political arena. This particular period, therefore, has provided a most appropriate time for an examination of the education policy process. The Educational Governance Project has enabled the educational policy formulation process at the state level for the public elementary and secondary schools to be examined in twelve states. In this case study dealing with New York State, the social, economic, and political context will be des- cribed as it provides a backdrop from which to view the structure of state government and education. The'enduring pattern of state educational politics, as reflected by other studies of New York, will be summarized. Action or attempted action in each of four major state educational policy issue areas will be described. For the most part, the issue areas--namely school finance, 2 desegregation of schools, teacher certification, and educational program improvement--will provide a means of looking at educational policy making at the state level. Analysis of both the policy issue areas and the policy process will serve to explain, in greater detail, the process of educational governance. Some important and larger themes will be discussed as illus- trated by the analysis. Finally, interpretive comments about emerging roles and relationships in the governance of education in New York State will be presented. Itis important to realize the time dimensions of this report. In New York State, background research began in June 1972, and the field re- search was conducted in November 1972, January 1973, March 1973, and April 1973. More specific dates are enumerated in the APPENDIX to this writing. ' In dealing with the policy issue areas, research centered on the 1972 leg- islative session but included events going back to the 1960s, where necessary, for clarification. Some limited attention was given to events during 1973 in areas needing an update. The reason for choosing the 1972 legislative session was to permit examination of the most recent entire legislative session. Thus, this study was neither longitudinal nor historical in scope. By a cross-sectional examination of highly relevant state education policy issue areas, it is intended that greater insight may be provided into the policy process in the formulation and enactment stages. Unlike many states the state board of education 'n New York, the Board of Regents, has broad policy responsibilities for both higher and lower education. In this Project the focus was limited to public elementary and secondary education. Therefore, full justice was not given to the entire range of actors and topical concerns in higher education, private education, and other such areas which in New York might have provided a more comprehensive 3 treatment of educational policy making. Itis quite conceivable, for instance, that some of the greatest achievements of the Board of Regents have been in the rapid growth of New York's public higher education, the inception of the external degree, and the implementation of open admissions. While our focus has delimited the study by its exclusion of higher education, the additional efforts given to examining public elementary and secondary education hopefully will elucidate this vital!eve] of our educational system. 4 SECTION I - THE CONTEXT OF STATE EDUCATIONAL POLICY MAKING IN NEW YORK Demography and Social Characteristics On nearly any parameter, the State of New York can be expected to rank at or near the top.
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