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Advanced Public Education Finance

Advanced Public Education Finance. Peggy Aune Jimmy Camp Brian Castellani Tim Ferguson Terri Lonneman Christopher Marker Susan McNally Karen Torres.

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Advanced Public Education Finance

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  1. Advanced Public Education Finance Peggy Aune Jimmy Camp Brian Castellani Tim Ferguson Terri Lonneman Christopher Marker Susan McNally Karen Torres

  2. Is the current methodology for financing public elementary and secondary education in the state of Florida equitable and/or adequate? YES!

  3. Public Education in Florida

  4. Public Education in Florida • Is a clear priority of the State as demonstrated by its presence in the original and subsequent revisions of its constitutions. • Florida has established a mechanism through statute and regulation to meet the desired will of the people. • An adequate and equitable system of funding exists through the FEFP. • Additional federal resources and choice options are successfully utilized by the State to promote student achievement

  5. Public Education in Florida • Is a set of policy-based initiatives focusing on: • increased school and student accountability • an emphasis on early reading skills as the foundation for student achievement • efforts to increase the supply of teachers and reward those most effective in the classroom • expanded schooling options for parents Peterson, P.E., Hanushek, E.A., & West, M.R., (2009). Sustaining progress in times of fiscal crisis. Retrieved from http://www.hks.harvard.edu.pepg

  6. Overview of Funding Sources

  7. Operating Expenditures • Salaries and Benefits • Purchased Services and Travel • Repairs and Maintenance • Energy • Materials and Supplies • Staff Development • Communications • Textbooks/Instructional Materials Financial and Program Cost Accounting and Reporting for Florida Schools, Florida Department of Education, 2008

  8. Revenue Sources for Operating • Florida has a required local effort (RLE) millage that can be used for operational funds. • Millage is assessed on property values • Districts that needed additional operating funds for 2008-2009 could choose to levy an additional .49 mils Funding for Florida School Districts, Florida Department of Education, 2008.

  9. Capital Expenditures • Library Booksand Audio Visual materials • Buildings and Fixed Equipment • Furniture, Fixtures and Equipment • Motor Vehicles • Land • Improvements other than Buildings • Remodeling • Computer Software (Systems and Applications)

  10. Revenue Sources for Capital • Up to 2 mils can be levied for capital funds. • Districts must justify levying the entire 2 mils through submission of budget to DOE. • In 08-09, .25 mils was taken away and redistributed statewide because of budget shortfall.

  11. Additional Revenue for Capital • The Constitution of the State of Florida authorizes certain revenues to be used for capital outlay purposes. • Article XII, Section 9(d) guarantees a stated amount annually from proceeds of licensing motor vehicles (CO&DS funds – Capital Outlay and Debt Service). • Article XII, Section 9(a)(2) provides that school districts amy share in the proceeds from gross receipts taxes (PECO – Public Education Capital Outlay). The Constitution of Florida

  12. The Florida Constitution

  13. Education And The U.S. Constitution • The first eight amendments to the Constitution expressly prohibit the federal government from denying people fundamental rights and important procedural protections. • To ensure that federal officials would not later claim that the list of such rights was exclusive, the Ninth Amendment was enacted. • Then, to ensure that powers not expressly delegated to the federal government could still be exercised by the states, the Tenth Amendment was enacted. It reads as follows: The powers not delegated to the United States by the Constitution, nor prohibited by it to the States, are reserved to the States respectively, or to the people. Hornberger, J. G. (2005). The Bill of Rights: Reserved powers, Freedom Daily September 12, 2005. Retrieved from http://www.fff.org/freedom/fd0505a.asp

  14. Education & The Florida Constitution • 1838, Article X • The proceeds of all lands that have been, or may hereafter be, granted by the United States for the use of schools, and a seminary or seminaries of learning, shall be and remain a perpetual fund, the interest of which, together with all moneys derived from any other source applicable to the same object, shall be inviolably appropriated to the use of schools and seminaries of learning respectively, and to no other purpose. • The General Assembly shall take such measures as may be necessary to preserve from waste or damage all land so granted and appropriated to the purpose of education. Staros, B. (1994). School finance litigation in Florida: A historical analysis," Stetson Law Review, 23, 497,506

  15. Education & The Florida Constitution • 1868 Article VIII • State Superintendent • State School Board • Common School Trust Fund • State Property Tax Millage & Local Required Effort • Two Additional Sections Added • It is the paramount duty of the State to make ample provision for the education of all the children residing within its borders, without distinction or preference. • The Legislature shall provide a uniform system of Common schools, and a University, and shall provide for the liberal maintenance of the same. Instruction in them shall be free. Staros, B. (1994). School finance litigation in Florida: A historical analysis," Stetson Law Review, 23, 497,506

  16. Education & The Florida Constitution • 1885 Constitution • Moved Education to Article XII • Added Additional Sections • Revised Several Other Sections Including Section 1 • 1968 Constitution • Moved Education to Article IX • Enumerated State and Local Authority • Streamlined Taxation Provisions Staros, B. (1994). School finance litigation in Florida: A historical analysis," Stetson Law Review, 23, 497,506

  17. Education & The Florida Constitution • 1998/2002 Revisions to Article IX The education of children is a fundamental value of the people of the State of Florida. It is, therefore, a paramount duty of the state to make adequate provision for the education of all children residing within its borders. Adequate provision shall be made by law for a uniform, efficient, safe, secure, and high quality system of free public schools that allows students to obtain a high quality education and for the establishment, maintenance, and operation of institutions of higher learning and other public education programs that the needs of the people may require. Staros, B. (1994). School finance litigation in Florida: A historical analysis," Stetson Law Review, 23, 497,506

  18. What Do The Courts Say?

  19. Florida Education Finance And the Courts • State ex rel. Clark v. Henderson • Lee County v. Askew • School Board of Escambia County v. State • St. Johns County v. Northeast Florida Builders Ass'n • Florida Department of Education v. Glasse • Coalition for Adequacy and Fairness in School Funding v. Chiles • Bush v. Holmes

  20. Meaning from Statutes & Court Cases • To accept whatever a state chooses to define as adequate (education is a state function) • Based on constitutional provisions, state law, agency rules & regulations, state court decisions, policy decisions • Accumulated state law & in popular consensus First, P.F. & DeLuca, B.M., “The Meaning of Educational Adequacy: The Confusion of DeRolph,” Journal of Law and Education,32, no.2(2003).

  21. Aspirational Language “The courts cannot decide whether the Legislature's appropriation of funds is adequate . . . . To decide such an abstract question of ‘adequate’ funding, the courts would necessarily be required to subjectively evaluate the Legislature's value judgments as to the spending priorities to be assigned to the state's many needs, education being one among them. In short, the Court would have to usurp and oversee the appropriations power." Coalition for Adequacy and Fairness in School Funding v. Chiles, 680 So. 2d 400, 408 (1996)

  22. Conclusions “…the clear evidence of progress suggests that the state’s overall approach to education reform—a combination of increased school and student accountability, an emphasis on early reading skills as the foundation for student achievement, efforts to increase the supply of teachers and reward those most effective in the classroom, and expanded schooling options for parents—has been effective” (p. 11). Peterson, P.E., Hanushek, E.A., & West, M.R., (2009). Sustaining progress in times of fiscal crisis. Retrieved from http://www.hks.harvard.edu.pepg

  23. Conclusions “The fact that Florida has been able to show significant improvements in performance while remaining fiscally responsible indicates the strength of its policy approach” (p. 11). Peterson, P.E., Hanushek, E.A., & West, M.R., (2009). Sustaining progress in times of fiscal crisis. Retrieved from http://www.hks.harvard.edu.pepg

  24. Defining Equity

  25. Equity and Equality “ Equity is a philosophical construct that largely drives distribution formulas to maintain fiscal and educational fairness.” Wood, R.C., .(2007). Educational Finance Law: Constitutional Challenges to State Aid Plans-An Analysis of Strategies, Third Edition. Dayton, Ohio: Education Law Associates.

  26. Equity • Student Input Measures - revenues - expenditures • Student Output Measures - standardized test scores

  27. Equity Children as subject of definitions: • ELL • Handicapped • Learning disabilities • Poor • Minority Ladd, H.F., Chalk, R., & Hansen, Janet, Editiors.( 1999). Equity and Adequacy in Education Finance: Issues and Perspectives. Washington, D.C.: National Academy Press

  28. Equality of Educational Opportunity Students should have: • Equal chance to succeed • Observed success in personal characteristics

  29. Equality of Educational Opportunity • Legislative mandate of 1964 Civil Rights Act • Effort to understand variations in school resources • Resource effects on student achievement Conclusion: “Students’ family and other background characteristics were more important than school resources in determining school achievement.” http://books.nap.edu/openbook.php?record_id=6166, Berne, R. & Stiefel, L. , Concepts of School Finance Equity: 1970 to the Present.

  30. Equalization of Education Funding • Intent of the FEFP to guarantee to each student the availability of programs & services appropriate to his/her educational needs • Per OPPAGA, the FEFP system appears to accomplish intent in equalizing education funding Florida Legislature, Office of Program Policy Analysis and Government Accountability. (1996). Florida’s Education Funding System.

  31. Defining Adequacy

  32. Adequacy Educational adequacy has 2 components: • Absolute standards, concerned with level of financial support and level of desired outcomes • Relative standards, concerned with costs of achieving outcomes for children with different needs or children learning in different contexts Baker, B.D., “The Emerging Shape of Educational Adequacy: From Theoretical Assumptions to Empirical Evidence,” Journal of Educational Finance 30, no.3(2005).

  33. Adequacy • “a sufficient level of funding to deliver an adequate education to every student in the state” Augenblick, J.G., Myers, J.L., & Anderson, Amy Berk, “Equity and Adequacy in School Funding,” The Future of Children: Financing Schools 7, no. 3(1997):65.

  34. Adequacy • Requires a framework for a full, complete and efficient system • Must include: - safe buildings conducive to learning - sufficient technology, materials, supplies and equipment - sufficient curricula, teachers and personnel - sufficient services and programs to meet the needs of all students

  35. Approaches to Calculating Adequacy • Professional Judgment Approach • Successful School District • Evidence-based Approach • Cost Function Wood, R.C. & Rolle, R.A., “Improving “Adequacy” Concepts in Education Finance: A Heuristic Examination of the Professional Judement Research Protocol,” Educational Considerations 35, no. 1(2007).

  36. Florida’s Balanced Budget Requirement

  37. Florida Budget Process • Florida’s budget process is governed by the Florida Constitution and laws. • Florida’s budget is developed to focus on the needs of the state and its citizens and on the results of government programs and services. • The budget development process has three major phases: agency requests, Governor’s recommendations and legislative adoption. • Following instructions issued jointly by the Governor’s Office and the Legislature in July, state agencies begin developing long-range program plans and budget requests which lay out the programs and funding needs of each agency for the next fiscal year. The People’s Governor, The People’s Budget retrieved from http://peoplesbudget.state.fl.us/overview.aspx

  38. Balanced Budget Requirement • Under Article VII, Section 1(d) of the Florida Constitution, “Provision shall be made by law for raising sufficient revenue to defray the expenses of the state for each fiscal period.” • In the event of revenue shortfalls, as defined by general law, the Governor and Cabinet may establish and implement all necessary reductions in the state budget to comply with the provisions of Article VII, Section 1(d). • The Speaker of the House of Representatives and the President of the Senate shall implement all necessary reductions for the legislative budget. Budget reductions pursuant to this section shall be consistent with the provisions of Article III, Section 19(h) of the Florida Constitution. CONSTITUTION OF THE STATE OF FLORIDA retrieved from http://www.leg.state.fl.us/Statutes/index.cfm?Mode=Constitution&Submenu=3&Tab=statutes&CFID=82992055&CFTOKEN=28529346#A01

  39. Balanced Budget Requirement • 49 states have a balanced-budget requirement • Florida is one of 26 states with the “most rigorous” requirements for balancing the budget • A state budget is balanced if expenditures do not exceed available revenues (taxes and other revenues that will be collected during the budget period, unspent funds from the past, other state reserves, and possibly other sources of revenue) Snell, R.K. (2004). State balanced budget requirements: Provisions and practice. National Conference of State Legislatures. Retrieved from http://www.ncsl.org/programs/fiscal/balbuda.htm

  40. Three balanced budget requirements: • The Governor's proposed budget must be balanced (the governor must submit a balanced budget) • The enacted budget must be balanced (requires that the legislature enact a balanced budget) • The budget must be balanced at the end of a fiscal year or biennium (no deficit can be carried forward) Snell, R.K. (2004). State balanced budget requirements: Provisions and practice. National Conference of State Legislatures. Retrieved from http://www.ncsl.org/programs/fiscal/balbuda.htm

  41. Other State Expenditures

  42. Other State Expenditures • Class size reduction • Voluntary pre-kindergarten • Virtual schools • McKay scholarships

  43. Class Size Reduction • 2002 – 52% of Florida voters supported: • No more than 18 students in grades K-3 • No more than 22 students in grades 4-8 • No more than 25 students in grades 9-12 Harris, D. N. ( 2004) . Class size, pre-kindergarten, and educational Adequacy: Costs and funding options for Florida. Educational Policy Research Unit, 2004.

  44. Class Size Reduction • Florida Class Size Amendment, 2004 • Section 1, Article IX outlines the equity in funding per student • State Governor was quoted stating that reducing class size in Florida would cost more than $27 billion • Beginning with school year 03-04, at least two students per year until the number of students per classroom does not exceed the maximum • Funding is the responsibility of the state and not of local school districts Norman, A. H. and Ilon, L., 2006. Cost-effective school inputs: Is class size reduction the best educational expenditure for Florida? Educational Policy 2006, 20, 429.

  45. Class Size Reduction • Politically popular and once implemented very hard to reverse • Economic cost • Explicit/Monetary: new teachers, new support staff, supplies, buildings, facilities, capital equipment • Implicit/Opportunity: the value of the best alternative that is surrendered when the decision to adopt is made Brewer, D.J., Krop, C., Gill, B.P., and Reichardt, R. (1999) Estimating the cost of national class size reduction under different policy alternatives. Educational Evaluation and Policy Analysis, 1999, 21, 179.

  46. Voluntary Pre-Kindergarten • 2002 – 59% of voters supported: • Every four-year old child in Florida • Free high-quality pre-kindergarten • Delivered according to professionally accepted standards Harris, D. N. ( 2004) . Class size, pre-kindergarten, and educational Adequacy: Costs and funding options for Florida. Educational Policy Research Unit, 2004.

  47. Voluntary Pre-Kindergarten • Estimated that 92,000 additional children will take part of the voluntary pre-K • Estimated cost of $400 million per year Harris, D. N. ( 2004) . Class size, pre-kindergarten, and educational Adequacy: Costs and funding options for Florida. Educational Policy Research Unit, 2004.

  48. McKay Scholarship • Serves K-12 students with a documented qualifying disability • A parent choice program for parents who are dissatisfied with the student’s progress in current public school • Option to attend a private or other public school that better suits the student’s needs Oppaga: Florida Government Accountability Report. October 9, 2008. Retrieved from http://www.oppaga.state.fl.us/profiles/2120/print.asp

  49. McKay Scholarship Program for Students with Disabilities • 19, 852 students were awarded McKay Scholarships during the 2007-08 school year. • 8.6% increase from the previous year • Average value of a McKay Scholarship for 2007-08 was $7, 295; an increase of $89 per student over the previous year • The scholarship is equal to the amount the student would have received under the Florida Education Finance Program (FEFP). Oppaga: Florida Government Accountability Report. October 9, 2008. Retrieved from http://www.oppaga.state.fl.us/profiles/2120/print.asp

  50. Reviews of theMcKay Scholarship Program • Report by the Manhattan Institute found that public school students with disabilities made improvements in math and reading as more private schools nearby began participating in the program • In other words, students eligible for the scholarship who remained in the public schools made greater academic improvements as their school choices increased Oppaga: Florida Government Accountability Report. October 9, 2008. Retrieved from http://www.oppaga.state.fl.us/profiles/2120/print.asp

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