Category Archives: School Funding

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North Carolina Court Order has Implications for Tennessee School Funding

A court order out of North Carolina could have implications for the ongoing school funding lawsuit in Tennessee. Here’s more:


On January 21, Wake County Judge David Lee signed a consent order in North Carolina’s long-running Leandro v. State school funding case adopting the comprehensive findings and recommendations in a study ordered by the court to bring the state’s public school system into constitutional compliance. The study, conducted by the national research organization WestEd and filed with Judge Lee in late 2019, identifies in detail the State’s current failure to provide students with a constitutional sound basic education and recommends major reforms to ensure adequate funding and essential resources for all students.

Shelby County and Nashville have filed suit against the State of Tennessee alleging inadequate funding. More recently, a group of lawmakers has proposed an additional $1.5 billion investment in Tennessee public schools.

Here are the recommendations made by the funding study in North Carolina:


Adequate and equitable funding: The State should increase school funding by $7 billion over the next eight years: $3.2 billion in the short term focused on at-risk students, followed by an additional $3.7 billion. An additional $1.18 billion is recommended to expand high quality preschool. Beyond increased funding, the State should overhaul the school finance system to ensure stability, predictability and progressivity, and target funds to programs for at-risk students, including preschool; support services, such as counselors and social workers; teacher pipeline reforms; and principal preparation. The finance reforms should also require periodic review and adjustment of the funding formula and direct State funding of charter schools.


Qualified, well-prepared and diverse teaching staff: The State should invest in improving the preparation of qualified teachers in high need schools by increasing support for North Carolina Teaching Fellows; State university teacher preparation programs, including at HBCUs; and district grow-your-own programs. Teacher compensation must be increased, especially for teachers in high-poverty districts, along with funding for ongoing professional development, teacher diversity and culturally responsive teaching.


Qualified and well-prepared principals: The State should update licensure and preparation requirements, expand access to high-quality principal preparation programs, and improve principal compensation and supports.


High Quality Preschool: In addition to a recommended $1.18 billion increase to expand high quality preschool, the State should prioritize access for at-risk children, improve the preschool teacher workforce, and work with high-poverty districts to ensure programs  serve community needs and use aligned instruction to transition children from preschool to the early grades.


Initiatives for At-Risk Students: Reforms are needed to attract and retain highly qualified teachers in high poverty districts; revise the accountability system to be less punitive; provide whole child supports, such as counselors, nurses and social workers; and address out-of-school barriers, such as hunger and homelessness.


Assessments and accountability: Assessment and accountability reforms are necessary to ensure coherence and alignment to curriculum and learning goals provide a broader picture of school/district performance and progress and use evidence-based support to improve performance.


Low-performing and high-poverty schools: A critical (and often-overlooked) recommendation is to rebuild the State Department of Public Instruction’s capacity to support districts and school improvement and to work with high poverty districts  to address out-of-school barriers to academic achievement through a community schools approach.


Continued Court Oversight: Judge Lee  should appoint a panel of experts to assist in monitoring State compliance in the implementation of the recommended remedies and  require  State submission of  reports and annual plans, with metrics to measure progress.

While the actual numbers may be different, many of these items could easily be applied to Tennessee. Our state fails to fund initiatives like RTI and continues to underfund counselors, nurses, and other key support staff. Additionally, the Department of Education reports the state is failing to provide funding for 9000 teachers hired by districts.

As Education Law Center notes:


The WestEd report and Judge Lee’s consent order represent a milestone in the long road to ensure the State effectuates the fundamental right of every child in North Carolina to have the opportunity to receive a sound basic education in a public school. The study and the order also provide a solid roadmap to guide advocates and lawyers working to achieve comprehensive school finance reforms in other states across the nation.  

Instead of waiting for a court order, Governor Lee and the General Assembly could begin moving this session to adequately fund Tennessee public schools.

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TEA Pushes School Funding, Voucher Repeal

The Tennessee Education Association is pushing for increased school funding and a repeal of the state’s voucher law in this legislative session, according to a report from WMOT radio.


TEA President Beth Brown notes that the state’s per-pupil school funding is the second lowest in the Southeast. She says it’s time for lawmakers to spend Tennessee’s excess revenue on education.


“We actually have a $7.6 billion cash reserve. …and so we will be pushing very hard to see some of that revenue that’s going unbudgeted invested in our schools.”


Brown says the TEA will also support efforts this session to repeal Gov. Bill Lee’s school voucher plan passed by a single vote last year.

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Fundamentally Broken

Democratic legislators today unveiled a proposal to add $1.5 billion to the BEP — the state’s funding formula for public schools. Chalkbeat has more:


Democratic lawmakers called Wednesday for $1.5 billion more for public schools and an overhaul of an education funding formula that they called “fundamentally broken.”


Tennessee’s investment of $9,225 per student trails most states in the South and its level of school funding remains the elephant in the room for state government. A trial is expected this year in a 5-year-old lawsuit filed by school districts in Memphis and Nashville over the adequacy of state funding for students and schools. If successful, the case could mean sweeping changes for how much Tennessee spends on K-12 education.


For instance, classroom size requirements have forced districts to hire more than 9,000 teachers beyond what the BEP provides to pay for their salaries, according to a recent analysis presented to the BEP Review Committee.

Back in 2014, I wrote that the BEP formula was broken:


As I mentioned, the BEP includes an instructional component which provides districts funding for teacher salaries. The current instructional component sets a salary number of $40,447. The state then funds this component at 70%, leaving districts to pay 30% of the salary cost for that teacher.


There are a few problems with this. First, nearly every district in the state hires more teachers than the BEP formula generates. This is because students don’t arrive in neatly packaged groups of 20 or 25, and because districts choose to enhance their curriculum with AP courses, foreign language, physical education, and other programs. This add-ons are not fully contemplated by the BEP.


Next, the state sets the instructional component for teacher salary at $40,447. The average salary actually paid to Tennessee teachers is $50,355.  That’s slightly below the Southeastern average and lower than six of the eight states bordering Tennessee. In short, an average salary any lower would not even approach competitiveness with our neighbors.

While those are 2014 numbers, the disparity between the BEP salary allocation and the actual cost of a teacher still exists. It means the state is picking up far less than the 70% of instructional costs contemplated by the BEP. In fact, one possible path forward would be to fund teacher salaries through the BEP at a rate equal to the average actual cost of a teacher. That’s actually what Shelby County proposed back in 2014. The cost? $500 million.

Next, making up the 9000 teacher deficit — the gap between what the BEP generates and the number of teachers ACTUALLY hired by districts. That cost? Around $500 million.

Tennessee has both less teachers than we need AND we pay them less than we should. Addressing those two issues costs about $1 billion.

The other $500 million? Funding for counselors, nurses, and other critical support staff for schools.

Tennessee has the money — with years of record surpluses boosting the state’s coffers. Will the General Assembly elect to spend that money on an investment in our schools?

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$1.5 Billion

That’s how much Tennessee is under-funding public schools. Senators Jeff Yarbro of Nashville and Raumesh Akbari of Memphis take on the issue of school funding in a recent OpEd in the Tennessean. Here’s some of their argument:

The “fully funded” story line falls apart every time a teacher digs into their own bank account to purchase essential school supplies for their students. The claim unravels when teachers work second or even third jobs just to make ends meet. When we see children and teachers stacked into mobile trailers, describing schools as fully funded amounts to gaslighting. 

Here’s the truth: The state needs to put at least $1.5 billion more into public education each year just to meet the bare minimum. And even that investment may not be enough to get out of the bottom 10 states for school funding. 

Here’s MORE from Yarbro and Akbari

Their article follows a report from the Department of Education indicating that Tennessee is severely underfunding teaching positions in our state — to the tune of at least $500 million.

The article notes that Tennessee has had significant revenue surpluses in recent years. This means the state CAN fund public schools at an adequate level without raising state taxes. In fact, proper state funding of schools would mean local governments could keep taxes low. It would also relieve the burden that hits poorer districts the hardest.

Here are some likely responses:

  • The state just can’t promise that level of funding year after year
  • We need to try new experiments like expanding charters and moving forward with vouchers
  • Districts simply can’t absorb ALL that money at once
  • Our tax policy is critical to our business climate, so that comes first
  • We’re already getting results, why do we need more money?
  • We can’t just throw money at schools (we’d rather throw it at Amazon)

And here’s the reality: Tennessee consistently receives an “F” in both school funding and funding effort. We’re not even trying.

Yes, we have the money. Yes, our schools deserve it. Yes, WE CAN FUND SCHOOLS!

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Exacerbate

Dr. Bill Smith writes in the Johnson City Press that the General Assembly’s recent education policies will only exacerbate inequality.


Crowe, a 28-year veteran of the General Assembly and member of the Senate Education Committee, and his colleagues have grotesquely underfunded the BEP in recent years, and the money diverted to vouchers will exacerbate this shortcoming. Tennessee is 45th nationally in per-pupil funding and well below the Southeastern average. Expanding the voucher program will compromise funding for public education even more, and local schools will surely feel the impact.


In a May 1 article, The Tennessean reported that last year’s voucher law could cost $330 million by 2024, money that could be used instead to improve education across the state. Further, if we’ve learned anything over the years about school funding and the achievement gap, it’s that the children who most need our embrace are the ones who suffer most when educational funding is inadequate.

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Why Do We Even Have School Lunch Debt

While some legislators are working to end the horrific practice of lunch shaming, Jill Richardson writes that we shouldn’t have school lunch debt at all because school lunch should be free.

A Google search for “paying school lunch debt” reveals a long list of recent news stories about good Samaritans paying off the school lunch debt of children whose families cannot afford it.

A Fredonia, New York man paid off $2,000 in school lunch debt in his area, helping 140 families. A Rigby, Idaho tattoo shop raised $1,200. Nationally, a charity called School Lunch Fairy has raised nearly $150,000 to pay off the school lunch debt of children in need.

These stories are heartwarming, and the people who donate are angels. But let’s look at the bigger picture: Why is there school lunch debt in the first place?

In 2008, Mark Winne wrote in his book Closing the Food Gap that he knew how to end hunger. I was impressed. What could it be? I figured the answer must be terribly complex.

But it wasn’t. End poverty, Winne wrote.

This ties back to the work of Amartya Sen, the Nobel laureate in economics who found that hunger was not due to a lack of food, but a lack of a right to food. If you lack the ability to buy food or grow your own food, and nobody gives you food, then in a capitalist economy, you are not legally entitled to food.

Or, in this case, if your parents cannot afford food, then children are not legally entitled to eat at school.

Let’s divide this into two distinct issues, a moral one and a more practical one.

Letting children go hungry in the richest country on earth is wrong. Period. That’s the moral one.

Now, speaking practically, providing free and reduced cost lunch to children of low-income families serves several purposes at once.

It provides for children’s physical needs as an end in itself, while helping them focus on learning while at school. It provides jobs in food service for adults. It even creates demand for commodities to help keep prices up for farmers.

Going one step further, the National School Lunch Act was actually passed as a matter of national security after the Great Depression and World War II. Lawmakers considered undernourishment a liability if it meant young people weren’t healthy enough to fight the next Hitler.

Whatever the reason, ensuring children have enough to eat during the school day is also an economic stimulus and a matter of public good. We all do better if we live in a nation where children grow up healthy, educated, and well nourished.

But we already have the National School Lunch Program, which offers children of low-income families free and reduced price lunch. So why is there still an epidemic of school lunch debt?

For one thing, qualifying for free or reduced price lunch usually involves some burdensome paperwork, so families who should qualify for it don’t always receive it. In other cases, bureaucratic errors can saddle families with thousands in debt for lunches they thought were covered.

The Trump administration is actually making that problem worse by no longer automatically enrolling children in families that qualify for SNAP, formerly known as food stamps, for school lunch assistance.

We live in a nation where food is plentiful but millions of children experience hunger and food insecurity. Feeding our kids shouldn’t fall only to kind strangers and acts of charity.

Instead, a nationwide epidemic of school lunch debt points to a systemic problem that requires a systemic solution. Our kids deserve universal school lunch — and real plans to end poverty in the richest country on earth.

OtherWords columnist Jill Richardson is pursuing a PhD in sociology at the University of Wisconsin-Madison. Distributed by OtherWords.org.

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9000

Tucked inside this Chalkbeat story on Hamilton County dropping its lawsuit over state funding of public schools is a note about just how inadequate the formula (the BEP) is.


In Tennessee, classroom size requirements have forced districts to hire more than 9,000 teachers beyond what the BEP provides to pay for their salaries, according to a statewide analysis presented by the Department of Education in December to the BEP Review Committee.

When looking at an average actual salary for Tennessee teachers of around $52,000, this means that local districts are responsible for $468 million in teacher salary expenses before benefits are included. That’s an unfunded mandate that easily exceeds half a billion dollars.

No one is suggesting we hire less teachers. In fact, many districts report needing additional teachers and other staff — such as nurses and counselors — to adequately serve their students.

However, this number does show that our state systematically underfunds public schools in a way not addressed by the current funding formula. It’s likely that when you combine the unfunded salary and benefits of teachers and the needs for programs like RTI2 with the proper staffing levels for nurses and counselors, you’d see a number exceeding $1 billion.

Let’s be clear: The state’s own Department of Education has provided information to the committee responsible for reviewing the state funding formula that indicates we’re at least $500 million behind where we should be in terms of current funding.

It’s also worth noting that these numbers don’t include any significant boost in pay for existing teachers.

In short: Tennessee is not properly funding schools.

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An End to Lunch Shaming

Nashville State Rep. John Ray Clemmons has filed legislation that would end the practice of “lunch shaming” in Tennessee public schools, WSMV reports.


A state lawmaker has introduced a bill to help students who cannot pay for their lunches.
It’s called the ‘Anti-lunch Shaming’ bill.
Representative John Ray Clemmons has presented the bill two times before.

Students would receive the same lunch as their peers.
This bill would ban schools from taking actions against students who can’t pay for their lunches or those with lunch debt.

This is the third consecutive year Clemmons has introduced the legislation. The last two years saw the bill go down to defeat in legislative subcommittees.

Here’s more on that:


Republicans voted 4-2 to defeat The Tennessee Hunger-Free Students Act—a bill with three measures to ensure students can eat school lunches and not be punished when parents fail to pay meal fees or a meal debt.


Last year, an education subcommittee also rejected a bill sponsored by Clemmons that would have prevented lunch shaming. Every legislator who has opposed this bill in the last two sessions has been a Republican.

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It’s the Air Filters

While Tennessee has a clear need for school infrastructure upgrades, especially as it relates to lead in water, it’s also worth noting that improving air quality in schools could have tremendous benefits for students — both in terms of health and academics. A new study highlighted in Vox notes that student achievement improves when schools install air filters.


The impact of the air filters is strikingly large given what a simple change we’re talking about. The school district didn’t reengineer the school buildings or make dramatic education reforms; they just installed $700 commercially available filters that you could plug into any room in the country. But it’s consistent with a growing literature on the cognitive impact of air pollution, which finds that everyone from chess players to baseball umpires to workers in a pear-packing factory suffer deteriorations in performance when the air is more polluted.

A study following the installation of the air filters noted a significant impact on student performance:


He finds that math scores went up by 0.20 standard deviations and English scores by 0.18 standard deviations, and the results hold up even when you control for “detailed student demographics, including residential ZIP Code fixed effects that help control for a student’s exposure to pollution at home.”

These findings are consistent with other data on the subject:

But Sefi Roth of the London School of Economics studied university students’ test performance relative to air pollution levels on the day of the test alone. He found that taking a test in a filtered rather than unfiltered room would raise test scores by 0.09 standard deviations. That’s about half the impact Gilraine found, just based on day-of-test air quality. In Gilraine’s natural experiment, students benefited from cleaner air for about four months. Given that context, it’s not incredibly surprising that you could see an impact that’s about twice as large.

So, a relatively inexpensive change in schools could have a big, positive impact on every student in the state. By contrast, school vouchers represent a very expensive intervention that negatively impacts participating students:


Recent data from the non-partisan Brookings Institute, for example, shows that four rigorous studies done in Louisiana, Washington, D.C., Indiana and Ohio found that struggling students who use vouchers to attend private schools perform worse on achievement tests than struggling students in public schools.  

So, will the Tennessee General Assembly repeal the voucher legislation and move forward with a plan to add air filters to classrooms?

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TEA on 2020 School Funding

The Tennessee Education Association is out with an analysis of how revenue estimates from the State Funding Board impact money available for our public schools. Here’s more:


Tennessee is so far behind it would take $1.2 billion annually to reach the Southeast average. The good news is Tennessee has the revenue available to make a $1.2 billion investment in a few years without raising taxes. The bad news is the state follows a budget process that chronically underestimates revenue growth, thus withholding billions from classrooms. 


For five years actual revenue growth was more than double state estimates, leaving $3 billion in surplus while public schools remain under-funded. While state K-12 funding did increase by $700 million over those years, had the state doubled K-12 investment to $1.4 billion, a substantial surplus would still have remained while also moving Tennessee schools out of the bottom 10 in funding. 


There is already a problem with this year’s estimates. The State Funding Board, a panel of constitutional officers and the state finance director, recently approved a growth rate of between 2.7% and 3.1%, well below even the most pessimistic predictions by economists hired by the state. 
It is the lowest rate since 2014, when the board predicted little to no growth. This led then-Gov. Haslam to eliminate a promised $50 million state teacher raise. Actual revenue grew 5% in 2014-2015, leading to a $552 million surplus while teachers got nothing. 


The board also had to increase its growth estimate for 2019-2020, predicting a general fund surplus of $430 – $500 million. Even this upward revision may be far too low. First-quarter general fund growth was 8.1%, more than double the revised estimate, which could generate a surplus up to $900 million. Teachers got $72 million for salaries in this budget. It could have been $272 million.

Governor Bill Lee, House Speaker Cameron Sexton, and House GOP Caucus Chair Jeremy Faison have all suggested this will be the year Tennessee makes a big investment in teacher pay. Will these leaders use low-ball funding board revenue estimates to nix this raise? Or, will they look at historic data suggesting the money is there and use that information to push for a significant boost in pay for teachers and investment in schools?

For more on education politics and policy in Tennessee, follow @TNEdReport

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