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Summer 1998 (v3#1)

Class Size Matters

"When classes are small enough to allow individual student-teacher interaction, a minor miracle occurs: Teachers teach and students learn."

LouAnne Johnson, the teacher whose life inspired the movie, "Dangerous Minds"

In August of 1997, the New York State legislature passed legislation providing grants to school districts to lower their class sizes to an average of 20 children per class for grades K through 3. Class size reduction is supposed to begin in the fall of 1999 and to be implemented over the course of three years. The funding formula is based on each district’s average salary and benefit costs for a teacher with five year’s seniority. In New York City, the funds are expected to cover about 80% of the additional teachers’ salaries. Also included in the grants is a one-time payment of $10,000 per classroom for start-up costs and materials.

New York City’s public schools are much more crowded than elsewhere, with an average of 28 students in elementary school classes compared to 22.4 in the rest of the state. Plenty of parents, however, report class sizes of 35 to 40 students, even in the early grades which are supposed to be an average of 25. Recently, Education Week gave a D- to the "climate" in New York schools, after taking into account factors including the percentage of classes with over 25 children.

Research evidence
After years of dismissing the importance of this issue, many experts now believe that lowering the number of children in a classroom, particularly in the early years, significantly increases the amount of learning that takes place. Their conclusions are based on what are almost twenty years of comparative studies in Tennessee, Indiana, Nevada, Wisconsin, North Carolina, Milwaukee and elsewhere. As Professor Alex Molnar of the University of Wisconsin has recently written, "There is no longer any argument about whether or not reducing class size in the primary grades increases student achievement. The research evidence is quite clear: it does."

In 1978, educational researchers Gene Glass and Mary Lee Smith published an analysis of reduced class-size studies, in which they concluded that the research has "established clearly that reduced class-size can be expected to produce increased academic achievement." Their report sparked a new interest on the part of many states interested in improving their school systems.

The first of the states to undertake experiments in class size reduction was Indiana. In 1981, the state initiated a demonstration project called Prime Time to test the effects of reducing classes in grades 1-3. When these smaller classes led to increases in student achievement, fewer discipline problems, and increased teacher productivity, the state legislature reduced first grade classes to 18 students in 1984 and expanded the effort in 1986 to include third grade and kindergarten.

Following this, Tennessee began probably the best of these demonstration projects, called Project STAR (for Student-Teacher Achievement Ratio). In 1985, Lamar Alexander, then the state governor, made education his top priority. He and the state legislature authorized a multi-year study in which researchers would track 6,500 students from kindergarten through third grade in 79 different schools, randomly assigning them to three different class sizes:

1) a small class of about 15 students, 2) a regular class of about 25 students, or 3) a regular class with a full-time aide.

The results were stunning: those who were placed in smaller classrooms (13-17 per class) did much better on average in achievement tests than students who had been placed in regular sized classrooms (22-25 per class) — no matter what their economic, racial, or ethnic status. Frederick Mosteller, a Harvard University statistician who helped analyze the results, calls STAR "one of the great experiments in education in United States history," adding that "It definitively answers the question of whether reduction from this size to that size does make a difference, and it clearly does."

In STAR, minority pupils benefited most of all from smaller classes, especially in reading. What was previously a 12% difference between white and black students in passing a first grade skills test was reduced to only 1% among those who were placed in smaller classes from kindergarten on. For all students, discipline problems, repeating a grade and referrals to special education programs were significantly reduced. On the other hand, children placed in large classes with both a teacher and a full-time aide did only slightly better than those in large classes without an aide.

STAR led to the Lasting Benefits Study (LBS), which followed Tennessee children who had benefited from reduced class size after they subsequently returned to regular-sized classes in the fourth grade and beyond. Follow-ups have shown that their academic gains in reading and math have persisted through grade 9. Students from smaller classes have outscored their peers in science, social studies, and other subjects as well, and continue to participate more in class and take part in more extracurricular activities. "If you can give a child a good beginning …nobody can take that away from them," explains Barbara Pate-Bain, one of the STAR investigators and a retired Tennessee State University professor.

In 1996, Wisconsin initiated the Student Achievement Guarantee in Education (SAGE) project, reducing class size throughout the state in many schools in low-income communities. After researchers compared the achievement levels of about 1,300 SAGE first-graders to non-SAGE students, they discovered that those who had been placed in smaller classes tested significantly higher in reading, language arts, and math than those with the same background who had remained in large classes. Black male students gained the most, with their test scores rising 40% above the control group.

At about the same time, the Milwaukee Parental Choice Program began, one of only two publicly funded voucher programs in the country. In a recent study, Cecilia Rouse of Princeton University compared the achievement levels of Milwaukee students who have used vouchers to go to private schools, and those that remained in public schools, but in smaller classes. She found that the SAGE students who attended reduced-size public school classes made "substantially faster gains" in reading than those who attended either regular-sized public school classes, magnet schools, or voucher (private) schools. In math, SAGE students made faster gains than those in regular or magnet public schools, and about the same gains as those who went to voucher schools — even though the average class size in their reduced public school classes was larger than the class size in the voucher schools.

Most recently, in May of 1997, Harold Wenglinsky of the Educational Testing Service published a study called "When Money Matters," which concluded that nationwide, class size "is the clear indicator for high achievement." After analyzing the math scores of 4th and 8th graders in hundreds of districts across the country, Wenglinsky found that the educational spending that was most effective in boosting results was that which was directly targeted towards reducing class size. Fourth graders in smaller classes were about a half year ahead in math, while lower-income students in urban areas made even greater jumps. The highest benefits were seen in the math achievement levels of low-income eighth graders.

The California experience
As a result of these and other studies, more than 20 states across the country have now passed or are considering legislation to reduce class sizes, particularly in the early grades. But the most impressive and large-scaled effort has been in California, which before class size reduction had the highest number of students per classroom in the nation, with an average thirty or more children packed into elementary classes. Low scores on national reading tests led to a billion dollar state initiative by Governor Pete Wilson to reduce class sizes last year from an average of 28.5 per class to no more than twenty for grades K-3.

To date, 98 percent of California elementary schools are participating in the program — involving more than 1.6 million students. Eighty-four percent of students in kindergarten through third grade now attend classes with 20 or fewer students. This year, the Governor has proposed spending an additional $488 million to reduce class sizes for the fourth grade, and $8 billion in school bonds to build and repair schools over six years.

Throughout the state, even in districts which have had to scramble for additional facilities, schools have managed to reduce class sizes. For example, 100% of San Francisco’s kindergartners, 98.1% of San Francisco’s first graders, 99% of second graders, and 96% of San Francisco students in mixed age groups (e.g. K-1 or 1-2) are now in classes of 20 or less. Throughout the state, test scores have risen. The San Francisco Unified School District has reported significantly higher reading and math scores on standardized tests.

In the San Juan Unified School District, there has been a "significant growth" in mathematics scores, and a "slight growth" in reading scores, enough to move the district well above the national average. In the suburban Sacramento school district’s first, second and third grades, suspensions are down 19 percent and referrals of students to special education programs have dropped 16 percent. In Santa Barbara County, when asked to provide a grade for the effect class size reduction has had on the opportunity for their students to reach their full potential, 78 percent of teachers chose "A" and 20 percent chose "B." Indeed, in statewide surveys teachers, parents, and administrators are nearly unanimous in responding that class size reduction has been well worth the effort and the expense involved.

Understandably, many problems, especially with space, remain. In Los Angeles, where the size of nearly all 1st and 2nd grade classes were reduced last year, administrators are now attempting to lower class sizes for grades K and 3 over the next three years, despite crowding intensified by huge enrollment increases. To handle the influx while also reducing class size, the district will buy 100 two-story bungalows, acquire new properties adjacent to elementary schools, and reopen three elementary schools closed a decade ago.

Issues for New York City
In New York City, there will have to be a similar effort to expand facilities if class size reduction is implemented. Approximately 40% of districts have schools that are presently undercapacity, and could lower class size tomorrow if given the money to hire additional teachers. But there are even more neighborhoods where schools are already seriously overcrowded. Yet, less than one year from now, February of 1999, the Board of Education will have to submit a plan that will specify what schools and what classes within each school will have their average class sizes reduced. This plan must be citywide and must include a three year timetable for the reduction of K-3rd grade classes. The state grants of $10,000 per classroom for start-up costs and materials will not nearly cover the actual cost of constructing and leasing new classroom space and retrofitting old classrooms in New York City.

Nevertheless, as in California, the process of class size reduction here in New York City would be well worth the expense, with the potential to significantly raise the achievement levels of all students, no matter what their economic or ethnic background. Especially in a time of growing emphasis on standards, lowered class size is increasingly necessary. Marc Tucker, often called the "guru" of the standards movement, has called for radically reducing class sizes in the early grades because smaller classes and more individ-

ualized attention will enhance the likelihood that students will be able to attain the higher standards expected of them.

Moreover, no other reform has the same potential for redressing the disparity in educational opportunity between children born into poverty and those born to better-off families, as well as between those living in urban

areas and those in the suburbs. If the city does not go ahead with class size reduction, these disparities will only grow wider. Lowering class size will also help protect and further build on the tax base of New York City, making it less likely that middle class families will flee to the suburbs when their children approach school age. (For more on the benefits of class size reduction, see box.)

Yet much still needs to be done before class size reduction can become a reality in New York City. Planning for this important program must begin immediately: there needs to be an accelerated process of classroom renovation, expansion and acquisition. School buildings that were decommissioned years ago, some of which are presently sitting vacant and some of which are now leased to other agencies, must be restored to the system. In some districts, elementary and middle schools should be reconfigured. Can class size reduction be successfully implemented here, giving New York City children the added educational opportunities they so desperately need? That depends on whether the necessary resources will be devoted to school facilities, with a large part of that specifically targeted towards creating more classroom space.

The state has been relatively generous in its grants to reduce class sizes. President Clinton has offered a helping hand as well, announcing a plan to provide federal tax credits to pay the interest on $22 billion in bonds issued by states, cities and school districts for school construction and repair, as well as additional federal aid to hire teachers in cities and states that reduce class sizes in the early grades to a maximum of 18 students per class. Unfortunately, the funding is dependent on a settlement with tobacco companies, a distant possibility at the moment.

The New York City contribution
Now it is time for Mayor Giuliani to step up to the plate. Will he recognize the pressing need for class size reduction, and invest in school facilities, especially given the record city surpluses and this unprecedented offer of state and federal aid? In conjunction with other educational and civic groups, EPP is proposing that the city devote an additional $500 million towards expanding and retrofitting schools so that class size reduction can begin as planned in the fall of 1999. The schoolchildren of New York City deserve no less.

For more information on class size reduction in New York City, see the website of the Class Size Matters Campaign, www.picket.com/class and join our campaign to reduce class size by calling or writing EPP.

Class Size Matters
Benefits of Class Size Reduction
1998-99 State Budget
FY ’99 City Budget
CFE Launches Statewide Dialogue
School Vouchers
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