The state Department of Finance has released the district allocations under Gov. Jerry Brown’s revised plan for weighted student funding that shaves off the peaks, fills in the valleys, and includes other changes that make allotments flatter, arguably fairer, and potentially more politically palatable to those who criticized aspects of the formula.
The 77-page spreadsheet of district and charter school allocations doesn’t reveal – and inquiring minds will want to know – how districts compare with one another and with a statewide average once the formula is fully funded in 2018-19. But the raw numbers are there to calculate percentage increases and per-student spending, and Nick Schweizer, the program budget manager for education in the Department of Finance, did provide me with a district average increase, along with some cautions.
That figure is 47 percent, which is to say that between the base year of 2012-13 and full funding seven years later, the Department of Finance is projecting the average district’s growth under the formula, which covers most but not all education spending, will be 47 percent. This assumes that the tax increase proposed for November passes; the weighted student formula will be put off if it doesn’t. So, if your district revenues increase more than 47 percent, because you have large numbers of disadvantaged students, it’s more than likely a “winner” under the formula; if under 47 percent, it’s more than likely a “loser.” (Update: The Public Policy Institute of California on Tuesday released an analysis of the revised formula, with district figures. Go here.)
The chart at left, which shows the 10 largest districts, illustrates the impact. Santa Ana Unified, with 84 percent poor children and 56 percent English learners, will see district funding rise 71 percent (last column divided by fifth column) by 2018-19, and per-student funding rise from $6,460 to $11,040. Capistrano Unified, with 10 percent English learners and 21 percent low-income students, will see district funding rise 38 percent and per-student funding increase from $6,052 to $8,388.
There are caveats to consider when comparing a district with the 47 percent statewide average:
& As Schweizer points out, this assumes that, absent the formula, nothing will have changed in the allocation of categorical or restricted money and general or revenue limit spending in seven years. That would be unlikely, given that the trend has been to cut or eliminate some categorical programs and increase the revenue limit;
& Some districts might get less than 47 percent and still do better than they would have otherwise, if they are currently getting little categorical money. Each district’s individual circumstances vary somewhat;
& A district’s base in 2012-13 matters. Some districts, like Los Angeles Unified, will see per-student spending increase less than 47 percent. But they will start with a high base in 2012-13 and will end up doing well in 2018-19 (more on why later).
As for the 47 percent spending increase over seven years: Finance released a graph showing per-student funding, but only through 2015-16 (see chart), as far into the future as it makes detailed projections. Schweizer said that for the remaining three years, Finance conservatively projected 5 percent annual revenue increases. It also assumed flat district enrollments for the calculations. The four-year, ¼ percent sales tax increase that is built into the calculations ends in 2015-16, complicating the picture.
Significant changes from January’s formula
Under a weighted student formula, districts will receive a base funding per student plus a supplement based on the number of low-income students and English learners. Brown proposed to fund the supplement, or weighted portion, from a pot of what has been categorical programs. Districts with few disadvantaged students will lose most if not all of that money, amounting to hundreds of dollars per child.
Responding to criticisms of his initial proposal in January, the governor:
& Raised the base and added grade differentials, recognizing that high school districts have been getting higher funding and elementary schools have received subsidies for smaller classes. The base will be $5,466 per student for K-3, $4,934 for 4-6, $5,081 for 7-8, and $5,887 for 9-12. The K-3 funding will have the previous class-size reduction categorical money folded in, though districts will be free to use the dollars however they choose.
& Reduced the weighted amount for disadvantaged students from an extra 37 percent per child to 20 percent;
& Cut the bonus amount to districts with high concentrations of disadvantaged students from a maximum of 37 percent to a maximum of 20 percent for districts with 100 percent disadvantaged students. The concentration factor is phased in for districts with more than 50 percent disadvantaged populations. The administration has not offered the research behind the concentration factor. Putting that aside, allocating it on a districtwide basis overlooks the fact that individual schools in districts with low overall rates of disadvantaged students may have heavy concentrations of poor students and English learners.
An example is Mount Diablo Unified in Contra Costa County, with an overall average of 21 percent English learners and 36 percent low income. Mount Diablo High School has 71 percent low-income children and 43 percent English learners, while Ygnacio Valley Elementary has 79 percent low-income and 62 percent English learners. Their students will gain nothing because of the district’s average.)
& Phased in the program over seven years instead of six years, starting next year with 5 percent weighted student funding/95 percent current system.
& Paid off what districts are owed from recent years’ cuts and denied cost-of-living raises on the revenue limit portion, which is student funding minus categorical programs. This debt is called the deficit factor and now totals 22 percent of the revenue limit amount – a huge IOU.
Conditioning the full implementation of the weighted student funding on repayment of revenue limit dollars removes a major criticism of the plan. But that will not satisfy those districts with relatively few disadvantaged students, which will permanently see their categorical dollars shifted to more needy districts.
An example is Acalanes Union High School District in Contra Costa County, with a total of 5 percent English learners and low-income students. Under the January proposal, the district would actually have lost money under full funding. Under the latest plan, per-pupil spending will rise 23 percent, or about half of the state average, by 2018-19, because of the loss of about $609 per student in categorical funds, a little less than 10 percent of total funding. Associate Superintendent Chris Learned says that he’s sympathetic to the need for weighted student funding, but that districts’ funding should be fully restored to the 2007-08 pre-recession level before phasing in the new system.
& Pulled two big categorical programs totaling nearly $2 billion (Correction: $1.3 billion) out of the weighted student distribution formula. These are the Home to School Transportation program and the Targeted Instructional Improvement Grant (TIIG), which is mainly money districts received to settle desegregation suits.Neither TIIG nor bus money has been equitably or rationally distributed among districts. But districts like Los Angeles Unified (where TIIG amounts to about $500 per student) and San Jose Unified (nearly $1,000 per student) would be crippled without the money. Brown is proposing to let districts keep what they’ve gotten for TIIG and transportation but no more. Over time, the impact of the money would diminish by not receiving yearly cost-of-living adjustments.
Under the revised formula, Los Angeles Unified’s per-student funding would increase 44 percent by 2018-19, slightly less than the state average, while San Bernardino’s funding would increase 58.5 percent (see chart), significantly above average. But because of TIIG, Los Angeles would start with a bigger base and end up in 2018-19 with $10,967 per student, about the same as San Bernardino’s $11,027.