Category Archives: BEP

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General Assembly Preview

Nashville education blogger TC Weber offers some insight into what the General Assembly may be considering around education policy in 2021.

Here’s some of what he has to say:

First up is addressing BEP funding for schools. State funding is typically contingent on attendance numbers. Due to the pandemic, school districts across the state are losing students. According to Chalkbeat, the statewide decline in student enrollment this fall would normally decrease the allocation by at least $320 million.

Recognizing, that if those lost students come back next year when the Coronavirus is more manageable, districts will be under economic hardship, Representative Cerpicky has introduced a school stabilization bill that would in essence freeze funding at current levels, providing relief to districts.

To his credit, Cerpicky understands that this is just a beginning and he would like the General Assembly to conduct a review of the current BEP formula. Most stakeholders recognize the shortcomings of the current model, which was adopted in 1992, and its failure to adjust for inflation, government mandates, a growing charter school sector, and expenses driven by changes in technology. There seems to be a growing willingness to redress it.

Cerpicky’s thinking is that if a bill keeping districts financially solvent for another year can be passed, it would create a window of opportunity to address the BEP. Legislators would have 14 to 15 months in which to address the BEP formula in Education Committee meetings. I can’t disagree with that thinking.

Legislators for the most part appear to understand the importance of freezing district funding and appear amendable to keeping funding frozen. Well, all except Chairman Sexton who thinks that only schools who have open school buildings deserve protection. Apparently, he is unaware of the level of work teachers are doing remotely to keep students engaged. Somebody needs to hand him a clue. Instead of criticizing Memphis for taking their savings and giving teachers a 1% raise, he should be praising them for recognizing the level of sacrifice being made by teachers and principals.

The funding picture needs to be clarified as soon as possible so that superintendents can begin accurately creating their budgets for the next school year.

Equally important is a decision on whether TNReady will be administered, or not, and if administered, what impact scores will have on schools, teachers, and students. Most recognize that the administration of testing at this juncture is an exercise in futility. But there is a contingency who believes that the tests should be administered though results should not be used for accountability. My argument is that if I hold a scrimmage game and I keep score, despite calling it practice, everybody knows who the winners and losers are.

Not testing this year will not permanently damage kids, in fact, it would provide opportunities for additional instructional time. It’s been floated out there that this year’s tests should be canceled and money instead is allocated to summer school. I don’t know if that’s feasible or not, but it makes a lot more sense.

Here are some notes on the historically underfunded BEP:

Severe Teacher and Staff Shortages
Comprehensive Review

Note here that TACIR – a state organization that analyzes state and local government – says the BEP is underfunded by $1.7 billion. Even with the COVID “savings,” it seems our schools need a drastic increase in investment.

Will the General Assembly get serious about actually coughing up that kind of cash? I seriously doubt it.

They should.

But, Gov. Lee has shown his true colors — he’s pushed a privatization agenda and he cancelled a planned teacher pay raise this past year. It’s not clear lawmakers have the courage or fortitude to challenge Lee when it comes to funding. Nor is it clear they will do what it takes to pump $1.7 billion into our schools.

We’re now on our second consecutive governor named Bill. Mr. Haslam revised the BEP in a way that virtually ensured we’d end up where we are now — with an inadequate funding mechanism for our state’s schools. Gov. Lee lacks the imagination to dream big for schools, instead preferring to pursue a privatization agenda that makes his friend Betsy DeVos proud.

The General Assembly “might” do something on school funding. Freezing the normal allocation to prevent significant funding loss as a result of COVID is a good start. But, there’s much more to be done. Lawmakers shouldn’t use the COVID situation as a scapegoat to allow them to get out of the much more challenging work of creating a long-term, sustainable BEP solution.

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Bill Frist and the BEP

At today’s SCORE conference on the state of education in Tennessee, former U.S. Senator Bill Frist, SCORE’s founder, suggested that based on SCORE’s bold plan, Tennessee could fulfill its pledge to families and students.

Here’s the tweet summarizing his closing remarks:

So, like every SCORE conference (they put these on every year), it all sounds great and generally means nothing.

SCORE, which stands for State Collaborative on Reforming Education, has been in existence since 2009.

Since that time, Tennessee has remained near the bottom in the country in investment in public education.

In fact, based on information from the Comptroller of the Treasury and the Tennessee Department of Education, Tennessee schools are underfunded to the tune of some $1.5 billion. This includes a $500 million shortfall in the funding of teaching positions across the state.

So, all that “bold visioning” over at SCORE hasn’t resulted in meaningful new investments in schools. But maybe, just maybe, SCORE’s policy pushes have nudged the state forward academically.

Nope.

In fact, after that one “fastest-improving” year, we’ve regressed to the mean:

If you analyze NAEP data, Tennessee has not experienced sustained improvements in 4th and 8th grade reading and math tests over the last 3 testing periods. In 2017, 33 percent of Tennessee 4th graders and 31 percent of 8th graders achieved NAEP proficiency in reading. In math, 36 percent of 4th graders and 30 percent of 8th graders achieved NAEP proficiency.

There’s also the declining ACT average:

Tennessee’s average ACT score declined slightly for a second straight year, while the number of students taking the college entrance exam also dropped, according to results released Friday.

Public school students in the Class of 2020 finished with an overall average of 19.9 on a scale of 36, down from 20 last year and 20.2 the year before.

So, SCORE keeps pushing a “bold” agenda while Tennessee’s schools lack funding and Tennessee students are not moving forward academically.

Meanwhile, the organization took in $5.6 million according to its 2018 IRS form 990. That was, admittedly, down from some $10 million in revenue the year before. Still, SCORE reported assets of $11.5 million.

In 2018, then-Chairman and CEO Jamie Woodson was paid $326,000 and President David Mansouri was paid $235,920. Three other employees were paid over $100,000. The group also spent $112,000 on “advocacy support” (lobbying) paid to a company out of North Carolina.

It’s interesting that the folks at SCORE, some of the highest-paid education “advocates” in the state, just aren’t getting the job done in terms of changing the narrative or moving funding into Tennessee schools. Still, year after year, foundations and donors pour cash into their coffers hoping for a different result. Or, maybe, hoping for the same result — more “feel good” conferences and no requests by the state that actual dollars be invested into our schools.

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Severe Teacher and Staff Shortages

Tennessee public schools suffer from severe teacher and staff shortages, according to a newly-released analysis from the Education Law Center. The report finds the state’s school funding formula (BEP) completely inadequate.

Here’s more on the report from ELC:

A new report by Education Law Center, More Funding Needed to Fix Tennessee School Staff Shortages, shows Tennessee’s high poverty school districts are burdened with larger student-to-teacher ratios than wealthier districts and support staff ratios that are drastically out of line with minimum national standards. This staffing shortage is the result of the well-documented failure of Tennessee’s school funding formula, the Basic Education Program (BEP), to adequately fund the cost of education for all students, especially students in the state’s poorest districts and schools.

The ELC report documents the need for all Tennessee districts to hire more staff than the BEP funds, especially in the case of the state’s poorest districts, which are more understaffed than their wealthier counterparts. ELC’s analysis finds:

·     Nearly all districts raise more local funds than required by the BEP. Districts with the least fiscal capacity raise, on average, $375 per pupil above the level required by the BEP formula, compared to over $2,350 per pupil in districts with the most fiscal capacity.

·     On average, the BEP funds one teacher for every 23 students. Wealthier districts supplement with local funds to reduce that ratio to 19-20 students per teacher, while the poorest districts average a student-teacher ratio of 24:1.

·     The population of English language learners (ELL) is considerably higher in the poorest districts than in the wealthiest (10% vs. 3%); yet the ELL student to ESL teacher ratio is twice as high in poor districts than in wealthier districts.

·     Of the 140 districts in the state, 111 did not have a single social worker on staff, including 15 of the poorest districts.

·     Twelve districts across the state had no social worker, no psychologist and a student to counselor ratio above 600. These districts educate over 25,000 students, nearly 40% of whom are poor.

The report also presents district-level details. For example, it is possible to compare staffing levels in Shelby, with 59% of students in poverty, with neighboring Collierville, with a student poverty rate of only 7%. Both districts add nearly double the local funding they are allocated through the BEP formula, or about $2,000 per pupil. But Shelby has a student-teacher ratio of 26:1 compared to Collierville’s ratio of 21:1. Overall, Shelby hired 4% more staff than they were allotted through the BEP formula, compared to 11% more staff in Collierville. 

This summer, Tennessee legislators decided to flat fund the deeply inadequate BEP formula in response to the COVID-19 pandemic. An $117 million increase in teacher salaries in this year’s state budget was lowered to $58 million in March and then cut completely in June. The severe deficits in essential teachers and support staff are likely to worsen given the Legislature’s continuing resistance to follow-through on a promised increase in teacher salaries and other school funding increases. This will require districts to seek more local funds to meet the additional needs of their students during this time of pandemic school closures and reopenings, increased unemployment, and health dangers.

“Tennessee lawmakers must protect current levels of funding in high-poverty districts and provide additional support to these districts wherever possible,” said Mary McKillip, ELC Senior Researcher and report co-author. “The State should also take the opportunity presented by the pandemic to rethink its clearly broken funding formula and set the stage for long-term improvements to public education, including supporting teachers and other school staff.”

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TEA Pushes for School Nurses

In a recent tweet responding to Gov. Bill Lee’s proposal to have school nurses conduct COVID-19 testing, the Tennessee Education Association highlighted the need for the state to provide funding for a nurse in every school.

https://twitter.com/TEA_teachers/status/1313532196930686978?s=20

The issue of school nurses has been on the agenda of the state’s BEP Review Committee for years. In fact, back in 2014, the committee (tasked with annually evaluating the efficacy of the state’s school funding formula), recommended a significant improvement in funding for school nurses.

Here’s the recommendation from the 2014 report:

Change funding ratios for nurses from 1:3,000 to 1:1,500  $12,194,000

So, for at least six years now (and, to be fair, BEP reports before 2014 also mentioned improvements to funding for school nurses), the state has fallen significantly short of the necessary funding to adequately staff schools with nurses. Now, Gov. Lee wants to add tasks without adding personnel.

Here’s the deal: The management principle of “get more with less” is total crap. Gov. Lee should know this, as he came to state government straight from the private sector. Here’s what you get when you ask overworked, underpaid people to do more with less: You get less. Something has to suffer. Maybe COVID tests will happen, but something else will fall by the wayside. Or, maybe less people will even consider becoming school nurses in Tennessee, further exacerbating the current shortage.

Six years. Two Governors named Bill. No action.

Sad!

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Rhetoric vs. Reality

Gov. Bill Lee recently denied a request from Williamson County Schools for a waiver of TNReady and other requirements for the upcoming school year in light of COVID-19.

Bill Lee Says NO

In response, the President of education-focused group SCORE tweeted this:

https://twitter.com/davemansouri/status/1286309381349539842?s=21

Here’s the thing. If Gov. Lee were actually an advocate of strong and student-centered policy, he wouldn’t have cut improvements to teacher pay from his budget this year. He’d implement a statewide mask mandate. He wouldn’t push an unproven voucher scheme only to see it overturned in the courts. He would work to make progress on the $1.7 billion deficit in the state’s funding formula for schools.

But. He’s not. He hasn’t been. He won’t be. Tennessee schools and the students and teachers in them will continue to be left behind as a result of the aggressive privatization strategy Lee is pursuing.

Comprehensive Review
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BEP Headed to Trial

Tennessee’s funding formula for schools, the BEP, is going to trial next year. Chalkbeat reports that a Nashville judge has scheduled a trial in case claiming the state funding formula is inadequate. That trial is set for October 2021.

Chancellor Ellen Hobbs Lyle set the long-awaited trial date during a conference call last week with attorneys in the case. The litigation pits school districts in Memphis and Nashville against the state over whether Tennessee allocates enough money for K-12 education, especially for its urban students.

The trial’s outcome could have major implications for how Tennessee public schools are funded. If successful, the case could force the state to invest more in K-12 education, which already consumes about $6.5 billion of the state’s $39.6 billion budget.

https://tn.chalkbeat.org/2020/7/15/21326022/judge-sets-trial-date-for-tennessees-5-year-old-school-funding-lawsuit

A recent report from the Tennessee Advisory Commission on Intergovernmental Relations (TACIR) found that Tennessee underfunds schools by around $1.7 billion a year.

Comprehensive Review
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So Essential They’re Not Worth a Raise

Teachers: They are “essential employees” but just aren’t worth giving a raise. That’s the message from Maryville as reported in a recent article in the Daily Times.

Maryville’s reopening plan designates all staff members “essential critical workers” and allows them to continue working following a potential COVID-19 exposure if they are asymptomatic and follow guidelines such as wearing a face covering for 14 days.

Winstead said that the provision is designed to allow schools to operate with enough staff if there is exposure to a child with the coronavirus.

But also note:

Faced with funding and other uncertainties as classes are about to resume for the first time since the pandemic, the Maryville Board of Education voted Monday, July 13, to rescind a planned raise and spend about $128,000 to disinfect buildings.

The article notes the raise was cut as a result of the state reducing salary funds to the district. At Gov. Lee’s urging, the General Assembly eliminated all salary increase funds from the BEP (the state funding formula for schools).

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From 4 to 2 to 0

In what was ultimately a failed effort to preserve his planned school voucher scheme, Gov. Bill Lee cut a planned teacher pay increase from 4% to 2% in his emergency COVID-19 budget. Now, as the General Assembly considers the economic fallout from the pandemic, it appears the teacher salary boost will move to zero. This while key state officials are slated to receive raises. More from Fox 17 in Nashville:

Legislative staff which has analyzed Tennessee Governor Bill Lee’s budget recommendations is calling out the state’s revised budget for keeping the salary increases of some officials while cutting teacher increases.

According to Governor Bill Lee’s new budget overview, the revised budget gives the governor a $4,600 raise which reflects a 2% increase. Others, such as the Attorney General, judges, district attorneys, and more will also receive raises which are mandated by statute.

However, the legislative staff notes the 2% salary increase for K-12 teachers, higher education employees, and state workers is eliminated in the new budget.

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A Lesson Not Learned

In a post at the Washington Post, Derek Black warns that investment in public education must not be denied in light of the COVID-19 pandemic and coming economic impacts.

Some notes:


During the Great Recession of the late 2000s, Congress hoped that most of a $54 billion set-aside in stimulus funds would be enough to save public school budgets, which had been savaged by state and local governments. It wasn’t enough.


States imposed education cuts so steep that many school budgets still have not fully rebounded — and Congress’s 2020 stimulus bill aimed at trying to save the economy from a new calamity fails to address the possibility of a sequel. Meanwhile, even before the economic effects of the current crisis caused by the coronavirus pandemic are being fully felt, states are already looking to cut education funding.


If states cut public education with the same reckless abandon this time as last, the harm will be untold. A teaching profession that has spent the last two years protesting shamefully low salaries may simply break. The number quitting the profession altogether will further skyrocket — and it’s not likely there will be anyone to take their place.


The first signs of this possibility are here. In recent weeks, three states — Florida, Georgia, and Tennessee — have cut teacher salary increases for this coming year — increases intended at this late date to begin repairing the damage from the last recession. Education Week reports that teachers may lose all of an anticipated pay hike in Kentucky, and legislatures in at least five other states have not acted on salary hikes for educators.

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Black notes that Tennessee is among the states not learning the lesson of the Great Recession. It’s worth noting that Tennessee’s teachers already earn less in inflation-adjusted dollars than they did all the way back in 2009.


Between FY 2016 and FY 2020, lawmakers enacted a total of $429 million in recurring increases for teacher pay. Since that time, growth in Tennessee teachers’ average pay has begun to catch up with inflation. After adjusting for inflation, however, teachers’ average pay during the 2018-2019 school year was still about 4.4% lower than a decade earlier.

So, the response to the coronavirus by Gov. Bill Lee and the General Assembly was to cut a planned investment in teacher compensation and instead fund a voucher scheme.

When (if?) the General Assembly returns in June, it will be interesting to see if commitments are made about investments in public education going forward. Tennessee is already $1.7 billion behind where we should be in school funding.

Perhaps the crisis caused by coronavirus will give lawmakers time to actually conduct a comprehensive review of our school funding formula and make necessary adjustments and improvements.

Alternatively, as Black suggests, lawmakers may look to “save money” by moving to cheaper, less reliable online learning options while foregoing investment in teachers and the resources students need.

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Comprehensive Review

A state organization tasked with providing research on the operations of state and local government has released a report suggesting Tennessee’s school funding formula, the BEP, needs at least $1.7 billion to adequately fund public education in the state. TACIR — The Tennessee Advisory Commission on Intergovernmental Relations — released “K-12 Education Funding and Services.” Here are some notes:

*   Report shows local governments spend at least $1.7 billion over BEP requirements.


 *   “Comparisons of BEP-funded to actual positions show that school systems often need to hire more staff than provided for by the formula” (Page 18)


 *   “In fiscal year 2018-19, the BEP funding formula generated a total of 62,888 licensed instructional positions, but school systems employed a total of 69,633 with state and local revenue.”

“Although the changes made in 1992 and since have resulted in substantial increases in funding to support the BEP, meeting local needs and the requirements imposed by the state and federal governments often requires more resources than the BEP funding formula alone provides. Consequently, state and local funding in fiscal year 2017-18 totaled $2.1 billion over and above what was required by the BEP formula, including a total of $1.7 billion in local revenue.”

“Given the ever evolving needs of communities in Tennessee and the likelihood that the BEP funding formula could better account for these needs, the Commission recommends that a comprehensive review of the components be made by the BEPRC or other designated state and local officials and other stakeholders to ensure that the BEP funding formula supports a commonly accepted basic level of education for Tennessee students.”

The TACIR report, showing a gap of nearly 7000 teachers, comes on the heels of a Tennessee Department of Education report indicating a “teacher gap” of 9000.

Additionally, the $1.7 billion identified by TACIR is slightly more than the $1.5 billion targeted by a group of legislators seeking to bring the BEP up to a level of adequacy.

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