Houston Independent School District takeover explained

The Houston Independent School District takeover is a 2023 takeover of the state's largest school district by the Texas Education Agency, replacing the superintendent and elected board of trustees with a board of managers and a new superintendent appointed by the Texas commissioner of education.

History

During the 84th Texas Legislature in 2015, State Representative Harold Dutton Jr. amended House Bill 1842 to allow the Texas Education Agency (TEA) to take over the Houston ISD. His alma mater, Wheatley High School (Houston), had received low academic ratings from TEA for several years.[1] TEA investigators recommended that the elected board be replaced after finding ethics violations and that the board violated open meetings act requirements.[2]

House Bill 1842

Passed in 2015, HB 1842 states that if any campuses fail to meet state standards for five of more years, the state can replace the elected board or close the school.[3]

Senate Bill 1882

Passed in 2017, SB 1882 allows school districts to avoid takeover or closure for two years by forming a partnership with a nonprofit or charter operator to operate a failing campus.[4] The new charter school or other operator is also eligible to receive more money per student than the original school district.

Conservators

TEA has appointed conservators to oversee various schools and policy changes in the district. Conservators have broad power to evaluate a district, initiate changes, and coordinate the implementation of policies.[5] In 2019, the state-appointed conservator prevented elected trustees from selecting a lone finalist for superintendent.[6] After this, HISD was run by the Chief Academic Officer in place as an interim superintendent for over three years.[7]

Conservator appointments

Appointments

On June 1, 2023, the Texas Education Agency released the names of the superintendent and board of managers appointed by Mike Morath to lead the district.[9] Mike Miles, the charter school leader and former superintendent of Dallas Independent School District whose time overlapped with Morath as a board member, was named as the superintendent. This announcement was preceded by a rumor in May from then-Houston Mayor Sylvester Turner about his selection, which was denied by the TEA.[10] The nine appointed board members are mostly parents of HISD students. They are a racially diverse group that largely lives in more affluent neighborhoods on the west side of Houston. Only one educator with classroom experience was selected. One board of managers appointee, Janette Garza Lindner, had previously run for the board of trustees in 2021 and lost.[11]

Members of the Board of Managers

Sources:[12]

The appointed board members have intentionally chosen to be less responsive to community concerns, choosing to provide a unified front in support of the state-appointed superintendent. Residents have also complained of a lack of both responsiveness and transparency.[13] The board has adopted guiding policies that focus primarily on the state's criteria for returning local control and exclude priorities included by past elected boards such as autonomy and equity.[14] Adopted academic goals are modest early on, seeking 1% gains in reading and math performance with relatively large gains of 15% targeted after five years.[15] [16]

Policy and administrative changes

Upon the announcement of his appointment, Miles simultaneously announced broad changes within the district. These changes include:

New Education System (NES)

Shortly after his appointment, Miles announced the creation of a "New Education System" (NES) which would involve large changes at 28 schools in the district. Personnel changes included significant shifts in staffing such as requiring all NES campus employees to reapply for their jobs, increased teacher pay, the hiring of teacher support staff, evaluation based on standardized test scores, and the removal of librarians.[23]

Hospital model

A core aspect of the New Education System is what Miles describes as the "hospital model." Under this model, teachers are paid $85,000 on average alongside a $10,000 stipend, and they receive the support of apprentices and learning coaches. Both teacher and principal evaluations will be heavily weighted by standardized test scores. They will also include classroom observation and an action plan for the future. Principal evaluations will begin in the 2023-2024 school year and teacher evaluations will begin in the 2024-2025 school year.[24]

Libraries converted to team centers

One of the changes that received widespread pushback is the removal of librarians and media specialists alongside the conversion of libraries to "team centers."[25] These team centers were initially described as places for students removed from their classrooms for misbehavior. In response to the pushback, Miles stated that the team centers would also be used for enrichment and differentiated instruction with a learning coach. After his appointment, Miles questioned the value of librarians and was unable to describe their role in detail, stating "I'd rather have a high-quality teacher getting paid a lot, than have a librarian doing what, checking out books?"[26] These changes follow a 2022 strategic plan by then-superintendent Millard House II that included plans to equip every HISD campus with a librarian or media specialist. The plan was created in response to persistent community demands for increased library access across the district.[27] [28]

NES-Aligned schools

57 additional campuses have adopted the New Education System-Aligned (NES-Aligned) model. These campuses will receive new curriculum and $10,000 stipends for educators, but not the higher salaries of the NES campuses.

Sunrise Centers

Seven "Sunrise Centers" have been created to support meeting the holistic needs of the district's students and families.[29] Through partnerships with organizations throughout the city such as BakerRipley and YMCA, community members receive access to mental health, clothing, food, and other resources.[30]

Community concerns

Community members have raised various concerns after learning of Miles' appointment and his policy proposals. These include:

Enrollment declines, financial issues, and school closures

With the exception of 2020-2021 during the pandemic, HISD saw its biggest enrollment drop in a decade after the takeover, increasing concerns about the sustainability of Miles' plans and reforms.[37] New Education System (NES) schools saw large drops in student enrollment compared to the rest of the district.[38] Miles is considering bringing a list of schools for potential closure ahead of the 2024-2025 school year as a cost-savings measure. The district projects a budget deficit of almost $250 million after implementing Miles' reforms, however the district currently has enough in reserves to cover the costs.

Curriculum concerns

Throughout the school year, teachers have raised concerns that curriculum materials frequently contain errors and are not provided well enough in advance.[39] Poor curriculum materials circulated under the takeover administration include sexually explicit middle school content, which prompted the creation of district-wide process review for inappropriate material, and the development of teacher review processes in early October.[40] After widespread pushback in November from parents and teachers to a PragerU video shown to students, the district committed to removing the conservative media outlet's videos from curriculum materials.[41] The video was shown to students in "Art of Thinking" classes, a new course introduced by Miles in 85 campuses as part of the New Education System reforms.[42]

Regaining local control

The Texas Education Agency has provided three criteria that the school district must meet in order to end the takeover and regain local control. Those are: "No campuses should get failing grades for multiple years, the special education program should be in compliance with state and federal regulations, and the board should demonstrate procedures and behavior focused on student outcomes."[43] [44]

Other district takeovers

The Texas Education Agency has taken over seven other school districts since 2000, and 15 in the past three decades, replacing their elected boards with boards of managers appointed by the commissioner.[45] [46] TEA has also intervened through appointments such as conservators or monitors in at least 51 school districts.[47] As of 2023, these districts are:

North Forest ISD, 2008-2010

North Forest ISD was officially taken over in 2008, after a history of interventions by the Texas Education Agency dating back to at least 1988. After spending over $1 million on state-appointed leadership including the superintendent, conservators, monitors, and board of managers over five years, local control was regained in November 2010. While test scores rose, a third of the district's schools failed to meet academic targets for the 2010-2011 school year. An external audit found problems with misspending despite the appointment of a financial conservator several years prior.[49] Less than a year after returning local control to North Forest, TEA revoked the academic accreditation of the district for the 2011-2012 school year and ordered the district's closure and annexation.[50] After years of appeals, the district was annexed into Houston ISD in July 2013.[51]

Beaumont ISD, 2014-2020

Beaumont ISD was taken over in 2014, and returned to local control in 2020.[52] A 2020 investigation by the Houston Chronicle found that the school district's suspension rate increased dramatically during the first year of the takeover, and continued to increase to the point where students were suspended at a rate six times the average for Texas school districts. During the 2018-2019 school year, Beaumont ISD had a rate of 46 out-of-school suspensions per 100 students, the highest by far in the state. Black students made up 60% of the student population but received 87% of suspensions.[53]

In 2018, three campuses which had not met state standards for at least four years due to low test scores were at risk of triggering House Bill 1842.[54] As a result, those schools were turned over to a charter school operator in alignment with Senate Bill 1882. The district was already under state leadership but the schools could still be closed.[55] As of the 2023-2024 school year, all three campuses are now run by Third Future Schools, which was founded by Houston ISD's state-appointed superintendent Mike Miles.[56] [57]

National research on school district takeovers

A 2021 study on state takeovers across the United States since the late 1980s shows "no evidence that lead to academic improvements."[58] [59] Through the removal or replacement of school boards that are locally elected, takeovers also close an entry point into political participation and elected office for communities of color.[60] Cities with higher rates of Black political participation are more likely to experience a state takeover, as well as the most punitive forms of state takeovers. Increases in state and federal funding for school districts also correlate with a higher possibility of a state takeover.[61]

Notes and References

  1. Web site: Onyeneho . Laura . 2023-03-20 . Rep. Harold Dutton supports Texas Education Agency Takeover . 2023-09-18 . DefenderNetwork.com . en-US.
  2. Web site: Isensee . Laura . 2019-11-01 . TEA Final Report Calls For State Takeover Of Houston School Board – Houston Public Media . 2023-09-24 . www.houstonpublicmedia.org . en-US.
  3. Web site: Isensee . Laura . 2019-01-15 . Here's What You Need To Know About A Potential State Takeover Of Houston Schools – Houston Public Media . 2023-09-26 . www.houstonpublicmedia.org . en-US.
  4. Web site: 2018-01-23 . With State Sanctions Looming, San Antonio ISD Brings In Outside Charter To Run School . 2023-09-26 . TPR . en.
  5. Web site: 2023-01-13 . Texas Supreme Court clears way for state's education agency to take over Houston ISD . 2023-09-24 . ABC13 Houston . en.
  6. Web site: Carpenter . Jacob . 2019-03-25 . State conservator orders halt to HISD to superintendent search . 2023-09-24 . Houston Chronicle . en-US.
  7. Web site: Schneider . Andrew . 2021-05-21 . HISD Trustees Name Sole Finalist For Superintendent Post – Houston Public Media . 2023-09-24 . www.houstonpublicmedia.org . en-US.
  8. Web site: Carpenter . Jacob . 2021-01-07 . TEA appoints 2 conservators to oversee HISD special education department . 2023-09-24 . Houston Chronicle . en-US.
  9. Web site: writer . Miranda Dunlap / Staff writer, Clare Amari / Staff Writer, Danya Pérez / Staff . 2023-06-01 . Meet the new governing board members of Houston ISD after the state's takeover . 2023-09-18 . Houston Landing . en-US.
  10. Web site: Sessions . Kennedy . 2023-05-17 . Who is Mike Miles? Charter school consultant floated as potential HISD leader . 2023-09-18 . Chron . en.
  11. Web site: Smith . Sarah . Dellinger . Hannah . Kelly . Sam González . 2023-06-01 . New HISD head Mike Miles unveils plan requiring staff from 29 schools to reapply for their jobs . 2023-09-18 . Houston Chronicle . en-US.
  12. Web site: Onyeneho . Laura . 2023-06-01 . TEA announces new HISD superintendent, Board of Managers . 2023-09-18 . DefenderNetwork.com . en-US.
  13. Web site: Dunlap . Miranda . 2023-08-03 . HISD’s newly appointed board isn’t talking much — and that’s on purpose . 2023-11-28 . Houston Landing . en-US.
  14. Web site: Kelly . Sam González . 2023-11-10 . HISD managers approve bold STAAR score goals, narrower vision... . 2023-11-28 . Houston Chronicle . en.
  15. Web site: Kelly . Sam González . 2023-11-10 . HISD managers approve bold STAAR score goals, narrower vision... . 2023-11-29 . Houston Chronicle . en.
  16. Web site: Noel . Rebecca . 2023-11-16 . Houston ISD sets new student achievement goals as board struggles to gain public trust – Houston Public Media . 2023-11-29 . www.houstonpublicmedia.org . en-US.
  17. Web site: Lehrer-Small . Asher . 2023-08-23 . Inside HISD's central office changes: Overstated job cuts, more top-dollar administrators . 2023-09-24 . Houston Landing . en-US.
  18. Web site: Walsh . Dominic Anthony . 2023-08-04 . Houston ISD board considers giving Mike Miles more power, hiring non-certified teachers, changing union consultation rules – Houston Public Media . 2023-09-19 . www.houstonpublicmedia.org . en-US.
  19. Web site: Walsh . Dominic Anthony . 2023-08-11 . Mike Miles gains power as Houston ISD Board of Managers approves major policy changes, union files grievances and community members protest – Houston Public Media . 2023-09-19 . www.houstonpublicmedia.org . en-US.
  20. Web site: Kelly . Sam González . 2023-09-18 . HISD Superintendent Miles threatens to fire teachers over strict new time off policy . 2023-09-19 . Houston Chronicle . en-US.
  21. Web site: Walsh . Dominic Anthony . 2023-08-11 . Mike Miles gains power as Houston ISD Board of Managers approves major policy changes, union files grievances and community members protest – Houston Public Media . 2023-09-19 . www.houstonpublicmedia.org . en-US.
  22. Web site: 2023-06-05 . New HISD superintendent to seek waiver from TEA due to inactive state certification . 2023-09-19 . ABC13 Houston . en.
  23. Web site: Walsh . Dominic Anthony . 2023-06-08 . 29 Houston schools will look different next school year — cameras in classrooms, no librarians, higher pay for teachers – Houston Public Media . 2023-09-18 . www.houstonpublicmedia.org . en-US.
  24. Web site: Kelly . Sam González . 2023-06-02 . HISD Superintendent Mike Miles offers new details on staffing model for struggling schools . 2023-09-18 . Houston Chronicle . en-US.
  25. Web site: Zuvanich . Adam . 2023-07-26 . City leaders criticize Houston ISD superintendent Mike Miles over plans for school libraries – Houston Public Media . 2023-09-18 . www.houstonpublicmedia.org . en-US.
  26. Web site: Board . The Editorial . 2023-06-01 . Mike Miles and Editorial Board: Read the transcript (Opinion) . 2023-09-18 . Houston Chronicle . en-US.
  27. Web site: Serrano . Alejandro . 2022-02-18 . Houston ISD's equity-based strategic plan calls for teacher raises, librarians at all campuses . 2023-09-18 . Houston Chronicle . en-US.
  28. Web site: Serrano . Alejandro . 2021-10-08 . Houston ISD's superintendent wanted input from the community. He's getting an earful. . 2023-09-18 . Houston Chronicle . en-US.
  29. Web site: Bauman . Anna . 2023-11-01 . HISD opens seventh Sunrise Center with food, clothing and health resources . 2023-11-29 . Houston Chronicle . en.
  30. Web site: Menchaca . Megan . 2023-09-07 . Houston ISD opens first 'Sunrise Center' providing free food, clothes and health care for students . 2023-11-29 . Houston Chronicle . en.
  31. Web site: Kelly . Sam González . 2023-09-21 . HISD superintendent says staffing level review could lead to teacher reassignments at NES schools . 2023-09-24 . Houston Chronicle . en-US.
  32. Web site: Lehrer-Small . Asher . 2023-09-19 . Houston ISD projects a nearly $250M deficit this year. Are Mike Miles' plans sustainable? . 2023-09-24 . Houston Landing . en-US.
  33. Web site: Lehrer-Small . Asher . 2023-09-05 . Could HISD's school year get longer? District officials are taking a first step toward it. . 2023-09-24 . Houston Landing . en-US.
  34. Web site: Walsh . Dominic Anthony . 2023-09-20 . Teacher turnover is a controversial part of Houston ISD reforms. It's a feature, not a side effect – Houston Public Media . 2023-09-26 . www.houstonpublicmedia.org . en-US.
  35. Web site: McKinley . Edward . Menchaca . Megan . 2023-08-18 . Houston ISD led Texas with $166 million special education funding shortfall . 2023-09-24 . Houston Chronicle . en-US.
  36. Web site: Bauman . Anna . 2023-08-14 . HISD terminates nearly two dozen special education contract workers, including school psychologists . 2023-09-24 . Houston Chronicle . en-US.
  37. Web site: Lehrer-Small . Asher . 2023-11-28 . HISD now has 6,000 fewer students, its steepest enrollment drop since the pandemic, data show . 2023-11-29 . Houston Landing . en-US.
  38. Web site: Lehrer-Small . Asher . 2023-10-11 . HISD campuses undergoing major changes saw attendance dip to start school year . 2023-11-29 . Houston Landing . en-US.
  39. Web site: Bauman . Anna . 2023-09-18 . HISD gives ultimatum to teachers at two NES-aligned campuses . 2023-11-29 . Houston Chronicle . en.
  40. Web site: Bauman . Anna . 2023-10-04 . Maya Angelou memoir referencing sexual encounter sparks HISD curriculum review . 2023-11-29 . Houston Chronicle . en.
  41. Web site: 2023-11-28 . HISD removes controversial curriculum from teaching materials that mocks climate change . 2023-11-29 . ABC13 Houston . en.
  42. Web site: Zuvanich . Adam . 2023-11-22 . PragerU video questioning human-caused climate change shown to Houston ISD students – Houston Public Media . 2023-11-29 . www.houstonpublicmedia.org . en-US.
  43. Web site: Bauman . Anna . 2023-03-20 . How can HISD be released from TEA control? It must meet 3 strict goals, including no failing schools . 2023-09-18 . Houston Chronicle . en-US.
  44. Web site: Walsh . Dominic Anthony . 2023-05-31 . TEA takes over Houston schools this week. The district has to do these three things to regain local control – Houston Public Media . 2023-09-18 . www.houstonpublicmedia.org . en-US.
  45. Web site: Méndez . María . 2023-03-16 . What happens when Texas takes over a school district like Houston ISD . 2023-09-20 . The Texas Tribune . en.
  46. News: Dellinger . Hannah . 2023-03-06 . With an HISD state takeover looming, here's how the TEA has taken over other Texas school districts . en-US . Houston Chronicle . 2023-09-20.
  47. News: Mellon . Ericka . March 25, 2007 . [‹https://infoweb-newsbank- com.ezproxy.lib.uh.edu/apps/news/document-view?p=NewsBank&docref=news/1181C548CDF2C530 POOR RATINGS, TROUBLED FINANCES - North Forest's cloudy future - School district's problems prompt talk of annexation ]. .
  48. Web site: MELLON . ERICKA . 2008-10-07 . North Forest takeover hits some roadblocks . 2023-11-24 . Chron . en.
  49. News: Mellon . Ericka . August 7, 2011 . [‹https://infoweb-newsbank- com.ezproxy.lib.uh.edu/apps/news/document-view?p=NewsBank&docref=news/139020A56FE4AE60 North Forest intervention by TEA - was it worth it? - State management of district that's closing totaled more than $1 million ]. .
  50. Web site: 2012-03-22 . North Forest ISD to Be Shut Down Next Year . 2023-09-24 . https://web.archive.org/web/20120322135437/http://www.myfoxhouston.com/dpp/news/local/110712-north-forest-isd-to-be-shut-down-next-year . 2012-03-22 .
  51. Web site: 2013-12-27 . North Forest ISD officially merges with HISD today abc13.com . 2023-09-24 . live . https://web.archive.org/web/20131227182518/http://abclocal.go.com/ktrk/story?section=news/local&id=9157891 . 2013-12-27 .
  52. Web site: Windes . Isaac . 2020-02-14 . BISD retakes control after 'long journey' . 2023-09-24 . Beaumont Enterprise . en-US.
  53. Web site: 2020-01-16 . Beaumont ISD suspends kids at Texas' highest rate—and it's not even close. Its leaders didn't know . 2023-09-24 . Houston Chronicle.
  54. Web site: Teitz . Liz . 2018-01-29 . 3 Beaumont ISD campuses could close for poor test scores . 2023-09-26 . Beaumont Enterprise . en-US.
  55. Web site: 2019-01-17 . BISD school board approves move for three schools to partner with charter operators . 2023-09-26 . 12newsnow.com . en-US.
  56. Web site: August 2, 2023 . 3 Beaumont ISD campuses start school Wednesday under new leadership . 2023-09-26 . 12newsnow.com . en-US.
  57. Web site: Holmes-Brown . Shaniece . 2023-06-04 . Third Future Schools finds new superintendent as its founder Mike Miles becomes HISD superintendent . 2023-09-26 . Houston Chronicle . en-US.
  58. Evaluating Education Governance: Does State Takeover of School Districts Affect Student Achievement? . Schueler . Beth E. . Bleiberg . Joshua . 2021-05-21 . Annenberg Institute at Brown University . en.
  59. News: López Turley . Ruth N. . Baumgartner . Erin . March 3, 2023 . Opinion: How will the state takeover affect HISD students? Here's the research. . . September 24, 2023.
  60. Web site: Morel . Domingo . 2020-01-10 . The made-up crisis behind the state takeover of Houston's public schools . 2023-09-24 . The Conversation . en.
  61. Book: Morel, Domingo . Takeover: race, education, and American democracy . 2018 . Oxford university press . 978-0-19-067898-2 . New York . 13.

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