I. SUMMARY OF OBSERVATIONS

• Estimated Total Boards of Cooperative Educational Services (BOCES) General Fund Expenditures for 2005-2006 increased 5 percent compared with 2004-2005. 

• Estimated Career and Technical Education Service Expenditures increased 5 percent, Special Education increased 5 percent, Itinerant Services increased 5 percent, General Instruction increased 5 percent, Instructional Support increased 4 percent and Non-Instructional (other) Service Expenditures increased 8 percent. 

• Enrollment of students in career and technical education courses increased by nearly 2 percent. 

• Enrollment of students in special education CO-SER 4220 classes, with a staff-pupil ratio of 1:12:1, increased 16 percent; in CO-SER 4230 classes, with a staff-pupil ratio of 1:6:1, decreased 12 percent; in CO-SER 4235 classes, with a staff-pupil ratio of 1:8:1, increased less than 1 percent; and in CO-SER 4240 classes, with a staff-pupil ratio of 1:12:3, decreased 47 percent. 

• Enrollment of students in secondary full-day alternative education classes in BOCES decreased by 130 in 2005-2006 compared to 2004-2005. 

• Average tuition costs in career and technical education increased 3.5 percent: about $242 per student. Regional differences account for some of the range of tuition costs, but not all. 

• Tuition costs in special education increased from the prior year. The average tuition in 1:12:1 classes increased by $1,903; the average tuition in 1:6:1 classes increased by $1,664; the average tuition in 1:8:1 increased by $2,193; the average tuition in 1:12:3 classes increased by $2,076. 

• Related service costs of BOCES did not change markedly for most BOCES from one year to the next, but the range across all 38 BOCES in both years was wide.  Regional differences in salaries account for some of the range, but not all. 

• Average itinerant service costs increased in some cases, but decreased in others.  There was no particular pattern. There was a great range across BOCES with some, but not all, variances attributable to regional differences in salaries. 

• Tuition costs in alternative education classes increased for most BOCES from one year to the next and the range across the BOCES was significant.  The average tuition increased from $14,177 per pupil to $15,165 or 7 percent.

• Distance learning participation increased by 30 districts for a total of 281; average cost decreased 6 percent from $20,607 per course to $19,414.

II. CHANGES IN BOARDS OF COOPERATIVE EDUCATIONAL SERVICES (BOCES)
DATA FROM 2004–2005 TO 2005-2006

1. BOCES General Fund Expenditures: Estimated

   1. Total BOCES General Fund Expenditures:  increased 5 percent
      
      
2. Service Program Expenditures: Estimated
   1. Career and Technical Education Service:  increased 5 percent
   2. Special Education Service:  increased 5 percent
   3. Itinerant Service:  increased 5 percent
   4. General Instruction Service: increased 5 percent
   5. Instructional Support Service:  increased 4 percent
   6. Non-Instructional Service:  increased 8 percent

3.  Administrative Expenditures: Estimated
   1. Total Administrative Expenditures:  increased 1.5 percent
   2. Administrative Expenditures per Resident Weighted Average Daily Attendance (RWADA):  increased $60 to $71

4.  Capital Expenditures: Estimated
   1. Total Capital Expenditures: increased 10 percent
   2. Capital Expenditures per RWADA:  increased $33 to $37

5. Career and Technical Education Data
   1. Enrollment of 35,233 students in career and technical education during the 2004-2005 school year increased to 35,903 students in 2005-2006.
   2. Tuition in career and technical education ranged from $3,963 to $9,540 in 2004-2005 and from $4,483 to $10,043 in 2005-2006.  The average tuition in 2004-2005 was $6,853 and in 2005-2006 was $7,095.

6. Special Education Data
   1. Enrollment of 4,590 students in 1:12:1 classes, CO-SER 4220, increased to 5,322.
   2. Enrollment of 5,976 students in 1:6:1 classes, CO-SER 4230, decreased to 5,278.
   3. Enrollment of 5,498 students in 1:8:1 classes, CO-SER 4235, increased to 5,540 students.
   4. Enrollment of 2,807 students in 1:12:3 classes, CO-SER 4240, decreased to 1,496 students.
   5. Tuition in 1:12:1 classes ranged from $11,242 to $34,321 in 2004-2005 and from $12,388 to $44,996 in 2005-2006.  The average went from $20,183 to $22,086.
   6. Tuition in 1:6:1 classes ranged from $16,337 to $47,428 in 2004-2005 and from $12,101 to $49,752 in 2005-2006. The average went from $28,951 to $30,615.
   7. Tuition in 1:8:1 classes ranged from $11,095 to $41,381 in 2004-2005 and from $17,405 to $50,834 in 2005-2006.  The average went from $25,220 to $27,413.
   8. Tuition in 1:12:3 classes ranged from $15,969 to $42,894 in 2004-2005 and from $17,278 to $49,133 in 2005-2006.  The average went from $28,872 to $30,948.

7.  Related Service Costs:  Individual
   1. Speech service ranged from $34 to $180 in 2004-2005 and from $44 to $198 in 2005-2006.  The average went from $85 to $96.
   2. Psychological service ranged from $39 to $226 in 2004-2005 and from $53 to $192 in 2005-2006.  The average went from $98 to $111.
   3. Physical therapy service ranged from $37 to $206 in 2004-2005 and from $ 47 to $173 in 2005-2006.  The average went from $92 to $100.
   4. Occupational therapy service ranged from $42 to $194 in 2004-2005 and from $30 to $168 in 2005-2006.  The average went from $83 to $91.
   5. Counseling service ranged from $18 to $226 in 2004-2005 and from $18 to $192 in 2005-2006. The average went from $93 to $99.
   6. One-to-One Aide service ranged from $10 to $35 in both 2004-2005 and 2005-2006.  The average increased from $20 to $21.

8.  Itinerant Services
   1. School psychologist costs ranged from $46,110 to $169,696 in 2004-2005 and $46,702 to $97,198 in 2005-2006. The average went from $73,787 to $77,183.
   2. Speech impaired teacher costs ranged from $43,730 to $133,210 in 2004-2005 and from $26,163 to $134,294 in 2005-2006. The average went from $70,415 to $80,118.
   3. Visually impaired teacher costs ranged from $41,856 to $123,718 in 2004-2005 and from $47,779 to $178,195 in 2005-2006.  The average went from $80,269 to $86,751.
   4. Occupational therapist costs ranged from $40,438 to $155,461 in 2004-2005 and from $47,881 to $120,724 in 2005-2006. The average went from $75,669 to $76,735.
   5. Physical therapist costs ranged from $48,727 to $128,281 in 2004-2005 and from $48,742to $132,797 in 2005-2006. The average went from $80,740 to $88,666.

9. Alternative Education
   1. Enrollment decreased to 4,043 in 2005-2006 from 4,173 students in 2004-2005.
   2. Tuition ranged from $8,681 to $27,744 in 2004-2005 and from $8,616 to $29,010 in 2005-2006.  The average was $14,177 in 2004-2005 and $15,165 in 2005-2006.

10.  Distance Learning
    1. Enrollment among participating districts increased to 281 in 2005-2006 from 251 in 2004-2005.
    2. The cost per course ranged from $696 to $78,296 in 2004-2005 and from $664 to $98,794 in 2005-2006. The average was $20,607 in 2004-2005 and $19,414 in 2005-2006.

11. Substitute Coordination
    1. The number of teachers using the service in 2004-2005 was 51,146 and the number in 2005-2006 was 59,316.
    2. The cost per teacher ranged from $14 to $99 in 2004-2005 and from $16 to $83 in 2005-2006. The average was $46 in 2004-2005 and $47 in 2005-2006.

III. FOREWORD

              Chapter 602 of the Laws of 1994 added Section 215-b to the Education Law to require the Commissioner of Education to prepare and submit to the Governor, the Temporary President of the Senate and the Speaker of the Assembly, an annual report beginning January 1, 1996.  The report is also to be provided to all school districts and Boards of Cooperative Educational Services (BOCES).

              The report details certain financial and statistical outcomes of BOCES, tuition costs for selected programs, per pupil cost information and aggregate expenditure data for BOCES administrative, capital and service functions.  In accordance with the statute, the report is to include changes from the year prior to the report year for all data.  Therefore, data will be reported for the 2005-2006 year and for the prior year, 2004-2005. The expenditure data are for costs incurred by the BOCES for the 2004-2005 school year as the prior year and for the 2005-2006 school year as the current year.  The estimate for aid is based upon the cost of services and administration for 2004-2005 and for 2005-2006; the estimate for aid for the cost of capital operations is based on the 2005-2006 and the 2006-2007 school year.  Most aids are paid the year following the expenditure, but aid on capital operations is current. 

              All school districts that have joined a BOCES are required to pay for the costs of the central administration of the BOCES and the cost of BOCES capital operations.  In accordance with Education Law, the costs of both functions are allocated on the basis of either the Resident Weighted Average Daily Attendance (RWADA) of pupils in each district or the true valuation of the property of each district.  Beginning with the 1997-1998 school year, BOCES may also use resident pupil enrollment as the basis for cost.  A single method must be used by all districts in a particular BOCES.  Currently, all BOCES except one use the RWADA method of allocating costs.  Therefore, this report presents the administrative and capital charges based on RWADA for all BOCES.

              Districts in a BOCES make their final decision about participation in services in the spring preceding each school year.  The costs of services are determined by the number of students each district elects to send to a program or by the amount of time a district purchases in some other programs.  Therefore, in this report some services are reported based upon tuition, while others are reported on an hourly basis or on the basis of a full-time equivalent (FTE) of staff time.

              This is the twelfth year of the annual report by the Commissioner of Education on BOCES.  Comments would be welcome about the usefulness of the report, as well as ways in which the report might be improved.  Comments should be addressed to: Deborah Cunningham, Coordinator, Educational Management Services, New York State Education Department, Education Building Annex, Room 876, Albany, New York 12234.

 IV. BACKGROUND INFORMATION ON THE ESTABLISHMENT AND PURPOSES OF BOCES

 Introduction

              The tradition of BOCES is rooted in the organizational history of school districts in New York State. The three-part public education system which has evolved in New York is comprised of the local school district, the regional Supervisory District and BOCES, and the State Education Department.

Supervisory Districts

              In 1910, the State Legislature adopted a statute to improve overall supervision of the State's schools.  The Commissioner of Education was authorized to divide the territory of the State outside cities and villages of 4,500 or more people into Supervisory Districts, with approximately 50 schools in each.  The person in charge of this territorial jurisdiction was given the title "District Superintendent."  At that time, 208 Supervisory Districts were created.  District Superintendents were deemed to be State officials with their salary paid by the State.

              Groups with a concern about the range of educational services provided to rural children began their initial efforts to construct an intermediate unit or regional service agency to support local district services in the 1930s.  While the Supervisory District structure instituted in 1910 provided an excellent means to improve supervision of local schools, there was no authority for a Supervisory District to provide educational services.

              In 1933, the Legislature adopted a statute to reduce and consolidate the number of Supervisory Districts.  Thereafter, whenever there was a vacancy in the Office of District Superintendent, the Commissioner of Education was required to determine if the educational interests of the area could be adequately served by combining the vacant office with an adjacent Supervisory District.  This led to a reduction in the number of Supervisory Districts to 183 at the time of the formation of the Council on Rural Education in 1943.

Current Status

              During the period covered by this report there were 38 Supervisory Districts in the State, with a BOCES located in each.  All but 9 of the 696 operating school districts in New York are members of a BOCES.  Four of the nine are eligible to become members of BOCES but choose not to; while the 5 largest city districts, (New York City, Buffalo, Rochester, Syracuse and Yonkers) are not eligible to join a BOCES because their population exceeds 125,000.  The 38 BOCES served a total of 1,614,233 students in the 2005-2006 school year. Total general fund expenditures amounted to approximately $2.2 billion.

              The individual BOCES vary in size significantly, with those located in rural areas serving fewer districts and smaller numbers of students, but encompassing a larger territory than those in suburban locations.  The BOCES serving the largest number of students (207,868 students) is Nassau BOCES on Long Island, while the BOCES with the smallest enrollment base is Franklin-Essex-Hamilton BOCES on the Canadian border (9,198 students).  The BOCES with the largest number of districts is also Nassau with 56; the smallest is Schuyler-Chemung-Tioga in the Southern Tier with 7.  The BOCES with the largest territory is Jefferson-Lewis-Hamilton-Herkimer-Oneida in the North Country with 3,339 square miles; the smallest is Westchester, adjacent to New York City, with 184 square miles . 

              Programs and services also vary, reflecting the local needs of each area.  All of the BOCES operate programs in six service categories: career and technical education; special education; itinerant services; general education; instructional support and non-instructional support.  The array of programs in each category differs, however, reflecting the services requested by local districts.  Nassau BOCES, for example, operates a very small itinerant program, as does Westchester.  This is because most of the school districts in both BOCES are quite large and have sufficient students to preclude the need for part-time staff through BOCES.  Generally, itinerant expenditures are inversely proportional to the enrollment base of the BOCES; the smaller the student base, the more likely it is that districts will request shared personnel through BOCES.  In another service category, the reverse is true.  In general education, BOCES serving primarily the larger suburban districts have bigger budgets for general education since these districts use more services, such as arts and environmental education and enrichment services for the academically talented.  Another example of the variety across BOCES is in the area of instructional and administrative computer services.  These services are regionalized in many areas of the State.  Generally, certain BOCES serve districts in other BOCES, as well as their own.  In a few instances, a BOCES has developed a service to which districts in many BOCES subscribe.  The Rensselaer-Columbia-Greene BOCES operates a State Aid Planning Service to which hundreds of districts subscribe. The Erie I BOCES operates a policy development service which also serves many districts in other BOCES.

               From 1948 to the present, the array of services provided by BOCES has increased.  BOCES provide programs for their component districts to supplement district programs. They equalize educational opportunities for all students by permitting districts to take part in shared services.  They provide programs for adult residents.  They provide programs on behalf of both the Federal and State governments.  While many states now also have regional service agencies, few provide the breadth and variety of services which are the norm in the BOCES of New York State.

 V. SUMMARY OF GENERAL FUND EXPENDITURES

              The following pages summarize the 2004-2005 and 2005-2006 school year expenditures of the 38 BOCES.  Expenditures are, by statute, divided into three categories:  Administration, Capital, and Service. The Administration category includes expenditures for the Office of District Superintendent, Assistant Superintendents with central office responsibilities and expenditures for certain operational functions, including the business office and personnel, retiree health insurance and short term borrowing.  Capital expenditures consist of costs for maintenance and renovation of owned facilities and rental of leased facilities.  The Service category, representing the largest expenditure, consists of all of the shared programs requested by component school districts to supplement and enhance district programs.  Successive charts provide greater detail about the costs for the Administration and Capital budgets, the kinds of shared programs included in the Service category, the State Aid provided to districts as partial reimbursement for the cost of BOCES services and cost data for selected BOCES services.

N.B.         Expense for instructional and administrative computing is duplicated in the Total Service Expense Column. The total for that column is inflated by approximately $100,000,000. Computer services are regionalized.  Designated BOCES provide services for their districts and districts in two or three neighboring BOCES.  Providing BOCES and receiving BOCES list the computer services as an expense, therefore inflating the total.  Aid is not duplicated.

N.B.         Expense for instructional and administrative computing is duplicated in the Total Service Expense Column. The total for that column is inflated by approximately $100,000,000. Administrative computer services are regionalized, as are some instructional computing services.  Designated BOCES provide services for their districts and districts in two or three neighboring BOCES.  Providing BOCES and receiving BOCES list the computer services as an expense, therefore inflating the total.  Aid is not duplicated