Is Tennessee Developing a Dual System of Education?

The Unity Group of Chattanooga says in an email that the rapid expansion of school vouchers in Tennessee will lead to a dual system of education – a resegregation of schools.

Here’s what they have to say:

The Unity Group of Chattanooga remains firmly opposed to the expansion of school voucher programs in Tennessee, including Education Savings Accounts (ESAs) and the newly created “Education Freedom Scholarships.”

In the most recent actions of the Tennessee General Assembly, lawmakers have advanced and enacted sweeping voucher expansion through legislation including Senate Bill 1585 / House Bill 1881, as well as House Bill 2532 / Senate Bill 2453. Together, these measures significantly expand the state’s voucher system, increasing the number of publicly funded scholarships and further diverting taxpayer dollars from public schools into private education.

House Bill 2532 / Senate Bill 2453 in particular demonstrates the scale and direction of this effort, expanding the number of scholarships available statewide and tying state funding to student movement out of public schools. These actions make clear that Tennessee is not simply experimenting with vouchers, but actively building and growing a parallel, publicly funded private education system.

We have said before, and we will continue to say, that these programs are ineffective, inefficient, and inequitable. That conclusion is grounded in what we’ve seen in other states and in Tennessee itself: declining academic outcomes; rising costs to taxpayers, and programs that too often benefit those already positioned and affluent enough to access private education.

But for us, the issue runs deeper than cost or performance.

What we are witnessing is the State of Tennessee moving back toward a dual system of education, one public system that remains accountable to all, and another publicly funded but privately controlled system operating under a different set of rules.

That reality stands in direct conflict with the principles established under Brown v. Board of Education and reinforced through decades of court decisions requiring states to dismantle segregated systems and achieve unitary status.

When public funds are redirected to private institutions that are not bound by the same transparency, admissions standards, or civil rights obligations as public schools, we risk recreating conditions that those rulings were meant to eliminate.

We have seen this before. Following Brown, similar mechanisms were used to avoid integration and maintain separation under a different name.

We cannot ignore that history.

At a minimum, these policies raise serious questions about whether Tennessee can still be identified as a state that has achieved and maintained unitary status. From our perspective, this is a step backward, toward separation, toward inequality, and away from the shared responsibility of providing a strong public education for every child.

The Unity Group of Chattanooga will continue to speak clearly on this issue. We believe in one system of public education that is fully funded, fully accountable, and open to all, not a divided system that leaves too many behind.

Chattanooga Sign
Photo by Jeff Miller on Unsplash

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Despite a growing price tag and the reality that school vouchers so far are essentially providing private school discount coupons to wealthy families, the GOP Supermajority in the Tennessee General Assembly has approved a significant expansion of the state’s school voucher scheme.

The plan would increase the number of vouchers available from 20,000 to 35,000 effective in the 2026-27 academic year. The cost of the expanded program is expected to be $262 million.

Chalkbeat reports:

Tennessee will expand its universal voucher program to 35,000 students next school year despite bipartisan opposition to the program over its growing price tag and changes to the funding assurances made to public school districts last year.

A slim majority of Tennessee Senate Republicans signed off on the legislation on Thursday. The bill will go to Gov. Bill Lee to be signed into law.

While the Senate initially sought to expand the program to 40,000 seats, the chamber agreed to move forward with a House version for 35,000 students.

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In his final State of the State address, Gov. Bill Lee made clear his support for rapid privatization of schools.

Lee called on the legislature to double the number of school vouchers (essentially, discount coupons for private schools), with a total voucher cost of $303 million.

Chalkbeat reports:

Gov. Bill Lee wants Tennessee lawmakers to invest more than $155 million into the state’s voucher program, which would double the Education Freedom Scholarships pool from 20,000 to 40,000 private school vouchers.

Lee’s proposed budget also would more than double the costs of the program and blow past the expansion cap lawmakers voted on last year, growing the program beyond its original limits despite little data to indicate the program is impacting student achievement.

If Lee achieves his goal, Tennessee would spend more than $303 million in public dollars next fiscal year to help send 40,000 students to private schools across the state.

Lee’s budget move for vouchers follows a trend in other discount coupon states: Rapid expansion that eats more and more of the state budget and also disrupts local school funding.

Indiana, Arizona, and Florida have all seen voucher budgets grow to consumer significant state dollars, leaving crumbs on the table for public schools.

This is Lee’s top legislative achievement – voucherizing Tennessee public schools. It’s been his top priority since 2019, and as he leaves office, his dream (and the state’s nightmare) is on the verge of being realized.

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It turns out, all that “school choice” talk Gov. Bill Lee used to promote his signature policy issue – private school discount coupons – was just talk.

Kids aren’t leaving failing schools.

Kids aren’t performing better once they are in private schools.

It’s just state-sponsored privatization of a public good.

More from Chalkbeat:

Most Tennessee public school students who use Education Savings Account vouchers aren’t leaving low-performing public schools, while ESA students overall are underperforming their public school peers in both academic achievement and growth.

Overall, students receiving ESA money performed worse on the state’s standardized tests than students in public schools, although ESA students outperformed their peers in Memphis-Shelby County schools last year. The comptroller’s report also notes that scores from students receiving ESAs have increased over time.

Meanwhile, virtual schools participating in the ESA program for the first time last year performed worse than both private schools with ESA students and local public schools. Just 20% of ESA students enrolled in virtual schools were proficient in English language arts, and just 17% were proficient in math.

And, the kids aren’t leaving behind schools that are “failing:”

“Most schools that students are leaving to participate in the ESA program are neither reward nor priority schools, which would indicate their performance is neither among the highest or lowest of public schools in the state,” the comptroller’s report states. “When considering schools that have received state and federal designations, more ESA students are leaving reward schools than priority schools.”

Read the Comptroller’s report on Education Savings Accounts (ESAs)

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Tennessee’s private school coupon scheme already has 20,000 takers. It will grow to 25,000 in 2026-27 unless the legislature intervenes to expand the program further.

And, that’s just what Gov. Bill Lee and House Speaker Cameron Sexton plan to do – with some suggesting a doubling of the program to 40,000 students next year.

Chalkbeat reports:

A mechanism in the state law will allow lawmakers to easily expand the program for 5,000 new students since the state received more than 40,000 applications, well above the expansion threshold set by state law. But Gov. Bill Lee and other Republican lawmakers say they want to expand the program even further.

But it’s unlikely the number of new seats will be decided on by the time applications close on Jan. 30, just days into the 2026 legislative session.

At least one issue advocacy group is calling for the state to rapidly expand the voucher program and other school privatization efforts – calling for 200,000 students to be using vouchers by 2031.

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Advocates say Gov. Lee’s voucher plan violates the state’s Constitution

Tennessee’s expanded, universal school voucher scheme violates a state requirement to maintain a system of free public schools, a new lawsuit says.

The Education Law Center, on behalf of a group of Tennessee parents, filed the suit in Davidson County Chancery Court.

“I taught for 12 years, and I fought to get my children into Rutherford County Schools because I knew the quality of education here,” said Jill Smiley, Rutherford County parent and former teacher. “Now the state is systematically defunding the very schools families like mine depend on. You can’t expect excellent schools on a shrinking budget.” 

The suit cites the requirement in the Tennessee Constitution that the state establish and support a system of free public schools.

According to the plaintiffs:

The lawsuit argues the voucher law violates the Education Clause of the Tennessee Constitution in two ways: 

  • The Education Clause’s adequacy requirement: By diverting public funds away from already underfunded public schools, the law prevents Tennessee from providing students with the adequate education guaranteed by the state constitution. 
  • The Education Clause’s mandate of a single system of public schools: By funding schools outside the system of free public schools, the voucher law violates this Education Clause mandate. 

Estimates by state analysts suggest the program will cost more than $140 million this year alone and may cost over $1 billion a year within 5 years.

Additionally, an issue advocacy group calling itself Tennessee Leads says it will fight to expand the school voucher program as well as the state’s charter schools so that as many as 450,000 students are removed from the state’s public school system by 2031.

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Lee, Sexton want to expand state’s private school coupon scheme

Tennessee’s school voucher program is already taking a $144 million chunk out of the state budget. When fully implemented, the cost is expected to exceed $1 billion annually.

Vouchers are expensive – and undermine local public schools. Research consistently suggests vouchers do not improve student outcomes – and, sometimes, actually lead to a decline.

Expensive. Hurting local communities. Failing to help students.

That’s the program Gov. Lee wants to expand. And House Speaker Cameron Sexton is cheering him on, calling for at least a doubling of the voucher scheme in the upcoming legislative session.

The governor added that because of the large number of applications, he hopes to persuade the legislature to “provide more scholarships to Tennessee families” when lawmakers return for the 2026 session.

Lee, whose term runs out in January 2027, wasn’t specific about how much he would like to see the program expand. But Sexton’s spokesperson, Connor Grady, said the speaker is committed to “at least doubling” the number of available vouchers to meet student demand, Chalkbeat reported.

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Ohio data shows school voucher schemes lead to academic harms for students

Gov. Bill Lee’s top legislative priority since his election in 2018 has been a statewide school voucher scheme.

During a special legislative session in January, Lee’s dream was realized. While existing evidence suggested this plan would be both bad for taxpayers and harmful to kids, Lee persisted. Now, new data out of Ohio confirms that those warning of the harms of vouchers were onto something.

Let’s be clear: The data over more than a decade shows that vouchers are both very expensive and ineffective at improving academic achievement.

On all proficiency tests, students getting a voucher for one year or less overall are about 75% proficient. Three years later, they’re 54% proficient.

That’s a drop of nearly 1/3!

The Ohio numbers show that students did not improve in any subject – in fact, their scores declined!

Vouchers are bad.

They hurt kids.

And taxpayers will be on the hook for a program that doesn’t just “not work” it actually has negative impacts.

Bill Lee’s signature legislative achievement is a multi-billion dollar program that will hurt Tennessee kids.

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A look at the voucher scheme in Florida offers a preview of where Tennessee is heading – and it’s not good.

An analyst in the state notes:

Peter Greene explores the Florida situation further, digging in with information from a professor from Florida State:

Cottle also wants to point out another factor. Florida used to run a huge budget surplus, but now it’s running a deficit. Cottle and others are trying to raise an alarm about math instruction and the need to improve math instruction, particularly by recruiting and retaining high-quality teachers. But the “still-growing budget for school choice vouchers is surely competing for money with ideas for initiatives to improve student learning, and the voucher budget is winning.”

In Tennessee, we should be alarmed:

Over the course of the next five years, as state funding is gobbled up by a privatization scheme and local taxes increase even as services offered remain the same or decrease, we can look back on this moment as the nail in the coffin of Tennessee public education.

Gov. Bill Lee won – and a generation of Tennessee students will lose as a result.

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A Warning on Vouchers

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A national expert on education policy warned Tennessee lawmakers to proceed with caution when it comes to Gov. Bill Lee’s voucher scam.

Professor Josh Cowen of Michigan State University spoke at a forum hosted by Sen. Heidi Campbell and Rep. Caleb Hemmer. In his presentation, Cowen discussed his research into voucher programs across the country. Cowen said his findings suggest policymakers should be wary of school vouchers as a policy solution.

“These voucher schemes devastate student learning. The bigger and more recent the voucher system, the worse the results are for kids,” Cowen said. “Over the last decade, we see some of the largest test score drops for kids who transfer from public to private school using a voucher that we’ve seen on any question in the history of education research.”

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