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Updated January 8, 2016
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Where We’ve Been◦ McCleary v. State of Washington Refresher
Where We Are◦ McCleary Implementation
◦ 2015-17 Budget Overview
Where We’re Going◦ 2016 Session—Major Issues to Address
Compensation and Levy Reform (and Levy Cliff)
Teacher Shortage
School Facilities
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McCleary v. StateThe Basics
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0
2
4
6
8
10
12
State Funding Actual District Costs
Statewide Funding – all 295 School Districts
2007-08 School Year
State’s “basic education” funding
Other State funds
School facilities
Classroomteachers
Pupil transportation
Librarians, counselors, safety personnel, health
Principals, etc.
Utilities, insurance, etc.
ExtracurricularFood service
Capital Project Fund expenses
ASB Fund expenses
Dollars
in B
illions
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Local levy revenue at the same level as before Doran Decision
0.0%
10.0%
20.0%
30.0%
40.0%
50.0%
60.0%
70.0%
80.0%
90.0%Percent of State and Local Revenue Sources
(excludes federal and other revenue sources)
State Revenue
Local Revenue
20.5%
Source: OSPI 5/10
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Supreme Court rules (January 2012):◦ The State “has consistently failed” to provide the
ample funding required by the Constitution.
◦ “Reliance on levy funding to finance basic education was unconstitutional 30 years ago in Seattle School District, and it is unconstitutional now.”
Supreme Court Orders State to:◦ “demonstrate steady progress” under ESHB 2261;
and
◦ “show real and measurable progress” towards full Article IX, Section 1 compliance by 2018.
6
McCleary v. State
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Basic Education Finance Reform
ESHB 2261—adopted 2009
Redefined and expanded Basic Education:◦ Increased instructional hours◦ Pupil transportation◦ All-day kindergarten◦ Highly Capable program◦ LAP and TBIP◦ Special Education
Required to be fully implemented and funded by Sept. 1, 2018
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Basic Education Finance Reform
SHB 2776—adopted 2010
Implemented Prototypical School Funding Formula
Provided implementation schedule for required Basic Education elements:◦ Pupil transportation (2014-15)◦ MSOC (2015-16)◦ All-day kindergarten (2017-18)◦ K-3 class size reduction (2017-18)
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McCleary v. StateImplementation Progress
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2015-17 Operating Budget(as adopted, June 2015)
Total Spending $38.22 billion
K-12 Education 2013-15 $15.27 billion
K-12 Education 2015-17 $18.16 billion (47.5% share of GF-S)
Total K-12 increase $2.89 billion (18.9% increase)*
($4.5 billion increase in last 3 years)*
Basic Education Enhancement $1.27 billion
*Includes mandatory “maintenance level” increases
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11Source: Senator Andy Hill, 10/15
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MSOC 741.5
K-3 Class Size Reduction 350.2
Full-Day Kindergarten 179.8
BASIC EDUCATION (HB 2776) 1,271.5
COLAs 383.3
Health Benefit Rate Adjustment 24.4
I-1351 Class Size (2,042.7)
Staff Mix (35.7)
Levy Equalization (20.5)
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2015-17 K-12 Budget – Major Highlights(dollars in millions)
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Education Funding Task ForceAdopted Spending Plan
Source: Joint Task Force on Education Funding, Final Report, 12/12
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14
$0.0
$1.4
$3.3
$4.5
$0.0
$1.0
$2.3
$0
$1
$2
$3
$4
$5
2013-15 2015-17 2017-19
Task Force
Proposal
Legislative
Investment
McCleary Basic Education Investments2013-15 & 2015-17 Operating Budgets
$5
$4
$3
$2
$1
$0
Billions
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State’s K-12 Funding PromisesTestimony Under Oath During McCleary Trial
(Per Pupil State Funding)
Source: Network for Excellence in Washington Schools, 9/14
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Real and Steady Progress Towards Full Funding—State Testimony vs. Actual Funding—
(Per Pupil State Funding)
Source: Network for Excellence in Washington Schools, 10/15
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● $7,279/pupil is at p.6 of the State's 2013-15 Operating Budget Overview for Striking Amendment to 2ESSB 5034 [the adopted 2013-15 biennium budget].
♦ $12,701/pupil is a minimum level based on the State's trial testimony and compensation study. The State testified ESHB 2261’s reforms will increase State funding to $9,710/pupil before market rate salaries, inflation after 2008, or capital construction needs. The June 2012 Final Report of ESHB 2261's Compensation Technical Work Group then determined the cumulative increases needed to cover the market rate salary part is $2.991 billion/year before adding the I-732 COLAs. That equals about $2,991/pupil for 1 million students; $9,710 + $2,991 =$12,701. As noted below, OSPI’s 2015-17 Capital Budget submission confirms this $12,701/pupil figure is at least $2,000/pupil too low, as it acknowledged the expansion to full day and lowering K-3 class sizes require construction of approximately 5,698 more classrooms at a cost of $2 billion (about $2,000/pupil spread over 1 million students).
■ $8,634, $9,990, and $11,345 are 1/4, then 2/4, then 3/4 of the way between the previously-noted $7,279 in 2013-14 and $12,701 in 2017-18.
▲ $7,785, $8,541, and $9,024 are from Chart B in the State’s 2015 Report To The Supreme Court By The Joint Select Committee On Article IX Litigation.
$14,701 is based on OSPI’s 2015-17 Capital Budget submission, which acknowledged the expansion of kindergarten to full day and lowering of K-3 class sizes will require the construction of approximately 5,698 more classrooms at a cost of $2 billion (about $2,000/pupil if evenly spread over 1 million students). Adding that $2,000/pupil to the previously-noted $12,701/pupil equals $14,701/pupil.
17
State’s K-12 Funding Promises
Source: Network for Excellence in Washington Schools, 8/15
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Supreme Court (Jan 2012): “The legislature recently enacted a promising reform package under ESHB 2261, which if fully funded, will remedy deficiencies in the K-12 funding system.”
Has McCleary been fully implemented?
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Sen. Hill (Nov. 2014): “The McCleary ruling’s statutory components derive from HB 2776 (2010) which required funding enhancements in four areas [pupil transportation; MSOC; all-day kindergarten; K-3 class size reduction] by the 2017-18 school year.”
Sen. Hill (Oct. 2015): “In 2015, the Legislature enacted a budget that fully funds the statutory components of [HB 2776].”
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Rep. Kristiansen (Oct. 2015): “The Legislature has followed through on all McCleary funding commitments. Our state remains on track for full compliance of the 2012 McCleary order by the original 2018 deadline.”
Attorney General brief (Dec. 2015): “The Legislature is on track to fully fund all the commitments it made in SHB 2776 by the deadlines it enacted in 2010.”
What about compensation?
What about levy reform?
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2016 Session
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“Short” (60 day) non-budget session
Necessary actions:◦ McCleary funding plan◦ Compensation/Levy reforms◦ Emergency funding (wildfires, lawsuits)◦ Mandatory caseload adjustments
Obstacles to action:◦ Politically divided Legislature◦ Power struggle between branches of government◦ Dispute about what (if anything) needs to be done for
McCleary◦ “Changing of the guard”◦ 2016 is an election year
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In 2009, ESHB 2261 adopted, establishing a new definition of basic education and a new education funding system.
ESHB 2261 stated the Legislature’s intent to “enhance the current salary allocation model,” with the understanding that “continuing to attract and retain the highest quality educators will require increased investments.”
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“Substantial evidence at trial also showed that the State consistently underfunded staff salaries and benefits. Testimony revealed that the State allocation for salaries and benefits fell far short of the actual cost of recruiting and retaining competent teachers, administrators, and staff.”
- McCleary ruling
Jan. 5, 2012
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“Another area in which the State's [2013 Progress] Report falls short concerns personnel costs. Quality educators and administrators are the heart of Washington's education system. The Report … skims over the fact that state funding of educator and administrative staff salaries remains constitutionally inadequate.”
- McCleary Order
Jan. 9, 2014
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“Nothing could be more basic than adequate pay. The inescapable fact is that salaries for educators in Washington are no better now than when this case went to trial....It is deeply troubling that the State's [2013 Progress] Report does not address this component of ESHB 2261 or offer any plan for meeting its goals.”
- McCleary Order
Jan. 9, 2014
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“This leads to the matter of personnel costs, for which the State has wholly failed to offer any plan for achieving constitutional compliance....A major component of the State’s deficiency in meeting its constitutional obligation is its consistent underfunding of the actual cost of recruiting and retaining competent teachers, administrators, and staff.”
- McCleary Order
Aug. 13, 2015
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Note: Salaries are for all programs and do not include benefitsSource: OSPI, 9/14
School District Employee SalariesPercentage of Average Salary Paid by State and Local District
(Historically through 2012-13)
99.2%
90.8%
85.7%
79.7% 78.9%77.2%
0.8%
9.2%
14.3%
20.3% 21.1%22.8%
$(1,400)
$(1,200)
$(1,000)
$(800)
$(600)
$(400)
$(200)
$-0.0%
10.0%
20.0%
30.0%
40.0%
50.0%
60.0%
70.0%
80.0%
90.0%
100.0%
1987-88 1992-93 1997-98 2002-03 2007-08 2012-13
Millions
Total $ Underfunded % of Average Salary Paid by State % of Average Salary paid by District
School District Employee SalariesPercentage of Average Salary Paid by State and Local District
(Historically through 2012-13)
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Sen. Hill concedes that “too large a portion of salaries are funded via local levies.”
Sen. Hill disagrees, however, that the State must assume the full cost. He notes “the constitutional imperative is simply that adequate funds are provided to ‘recruit and retain’ K-12 staff with state appropriations.”
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Sen. Hill believes that “salaries are adequate to recruit and retain; they just need to come from the state not local levies....The bottom line is there is adequate and ample money already going into the K-12 system for salaries.”
Sen. Hill also rejects the notion that there is any type of teacher shortage, saying “each year there are more people entering the profession statewide than available openings.”
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Levy Cliff
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Levy lid increases (4%) and LEA increases (2%) implemented in 2010 (Chapter 237, Laws of 2010) are set to expire on January 1, 2018.
WASA/WASBO: Legislature must fund the full cost of basic education labor first AND recognize and mitigate impact of any reduction to local levy authority on districts’ ability to meet financial obligations.
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33Source: OSPI, 11/15
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DIS
TRIC
TSTA
TE
LEVY CLIFF IMPACTS – TIMELINE
2016 2017 2018
2016 SHORT
Board must adopt Reduced Educational Program (R.E.P.) prior to end of regular session.
Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec
Legislative action required to avoid impact of cliff.
2017-2019 BIENNIAL
Levy Cliff
60 Days 105 30 30 30 Days
District begins to engage community in plans to cut $4.6 million for cliff.
Community, students, and staff members.
School Board reviews $4.6 million R.E.P.
Staff prepare RIF notices.
School Board community meeting on on Reduced Education Program.
R.E.P. Board hearing. Deadline for budget.
Reduction in Force (R.I.F.) deadline.
FISCAL ADVISORY COUNCIL 31st
21st
BUDGET DEVELOPMENT
18th
Develop two budgets based upon funding
15th
REDUCED EDUCATION PROGRAM
(R.E.P.)
R.I.F
Credit: Everett Public Schools/Franklin Pierce Schools, 11/15
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WASA supports legislative efforts in the 2016
Legislative Session to protect school districts from
the detrimental impacts of the “levy cliff.” This will
cause levy lids to be cut by four percent and State
funding for the Local Effort Assistance program to
be reduced from 14 -12 percent. To ensure school
district budget stability while the Legislature works
to fully fund basic education, WASA supports a
temporary extension of the levy lid and LEA or
other provisions that would hold school district
budgets harmless during the funding transition.-Adopted, WASA Board of Directors, Dec. 16, 2015
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Teacher & Substitute
Teacher Shortages
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37
Substitute Teacher Shortage is Real
Substitute shortage is impacting Elementary, Middle and High Schools—in Rural, Suburban and Urban schools
Source: OSPI/AWSP/UW Survey, 11/15 Survey Summary: http://bit.ly/1O25hwZ
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38
Teacher Shortage is Real
Teacher shortage is impacting Elementary, Middle and High Schools—in Rural, Suburban and Urban schools
Source: OSPI/AWSP/UW Survey, 11/15 Survey Summary: http://bit.ly/1O25hwZ
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• Hiring Incentives • Retired Teachers
• Beginning Teacher Pay • Conditional Loan Forgiveness
• Expanded Reciprocity • Suspend ProCert for experienced Out-of-State Teachers
• Recruitment Campaign
• Statewide Application Depository
• Hiring Technical Assistance
• Careers in Education Course
39http://bit.ly/1OJNlaP
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School Facilities
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Additional Facility Capacity NeededAll-Day Kindergarten & Class Size Reduction
Total Cost of Needed K-3 Classrooms = $1.98B
(5,698 classrooms X $347,165 per classroom = $1.98 Billion)
Source: OSPI, 10/15
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Grade Level or Facility
Type
Current Allocation
per Square Foot
OSPI
2015-17 Request
K-6 90 140
7-8 117 155
9-12 130 165
Facilities for the disabled 144 165
Release Year Funded Cost per
Square Foot
OSPI Request
FY 2014 $194.26 $256.00
FY 2015 $200.40 $264.09
FY 2016 $206.76 $278.89
FY 2017 $213.23 $287.62
Eligible Area – Student Space Allocation (SSA)
Cost per Square Foot – Construction Cost Allowance (CCA)
Current Construction Formulas
Source: OPSI, 7/15
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2016 Legislative Platform
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Comply with the Paramount Duty
Expand Available State Resources
Ensure Competitive Public School Employee Compensation
Enhance School Construction Assistance
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WASA believes the Legislature should continue to be held accountable for complying with its “paramount duty” to provide ample funding for all K–12 children by implementing the new basic education finance system as adopted in both ESHB 2261 (2009) and SHB 2776 (2010). To ensure the new system is completely implemented—with full and equitable funding—by 2018, as consistently ordered by the Supreme Court in McCleary v. State, the Legislature must demonstrate steady progress towards compliance with the constitution.
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Real and Steady Progress Towards Full Funding—State Testimony vs. Actual Funding—
(Per Pupil State Funding)
Source: Network for Excellence in Washington Schools, 8/15
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The current state budget structure cannot accommodate the required—and needed—increases in basic education to comply with the Supreme Court’s McCleary decision, nor allow the state to address educator compensation or capital costs in a comprehensive way. WASA supports the enhancement of state revenues to ensure the Legislature is able to fully comply with the constitutional paramount duty with “regular and dependable” sources of funding and also prevent drastic reductions of other necessary government services—which would have significant direct and indirect impacts on K–12 education.
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November 2015 Outlook
Source: ERFC, 11/15
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Washington Personal Income
Source: ERFC, 11/15
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General Fund-State Revenues asPercentage of Washington Personal Income
Source: ERFC, 12/15
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Taxable Sales as Percentage of Personal Income
Source: Economic & Revenue Forecast Council, 9/15
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Source: Office of Financial Management, 8/14
In 1995, Washington ranked 11th in State and LocalTax Collections; by 2011, Washington ranked 35th
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Washington’s current tax system isInadequate AND Inequitable
Source: Institute on Taxation & Economic Policy, 1/15
Who Pays? Fifth Edition: http://bit.ly/155azIO“Washington has the most unfair state and local tax system in the country.”
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WASA urges the Legislature to fully fund a competitive compensation system to ensure the state not only meets its responsibility to establish an equitable and ample allocation system, but maintains the present pension offerings and provides competitive benefits. Failure to address the state’s obligation to adequately fund educator salaries will continue to force an unconstitutional overreliance on local levies. The order of implementation is critical; current basic education labor costs must be funded first, before any potential reduction of local levies. Any proposal to fund compensation that simply “swaps” state and local property tax authority without providing new state funding will not work and cannot be supported.
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Note: Salaries are for all programs and do not include benefitsSource: OSPI, 9/14
School District Employee SalariesPercentage of Average Salary Paid by State and Local District
(Historically through 2012-13)
99.2%
90.8%
85.7%
79.7% 78.9%77.2%
0.8%
9.2%
14.3%
20.3% 21.1%22.8%
$(1,400)
$(1,200)
$(1,000)
$(800)
$(600)
$(400)
$(200)
$-0.0%
10.0%
20.0%
30.0%
40.0%
50.0%
60.0%
70.0%
80.0%
90.0%
100.0%
1987-88 1992-93 1997-98 2002-03 2007-08 2012-13
Millions
Total $ Underfunded % of Average Salary Paid by State % of Average Salary paid by District
School District Employee SalariesPercentage of Average Salary Paid by State and Local District
(Historically through 2012-13)
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To fully comply with McCleary, a significant enhancement in school construction funding is required to ensure the state is amply funding the actual cost of constructing facilities necessary to reduce class sizes and implement full-day kindergarten. Understanding that a local contribution will likely still be required to access most state construction assistance, WASA also urges the Legislature to advance a constitutional amendment to the people authorizing school district bond issues to be approved with a simple majority vote.
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Additional Facility Capacity NeededAll-Day Kindergarten & Class Size Reduction
Total Cost of Needed K-3 Classrooms = $1.98B
(5,698 classrooms X $347,165 per classroom = $1.98 Billion)
Source: OSPI, 10/15
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Grade Level or Facility
Type
Current Allocation
per Square Foot
OSPI
2015-17 Request
K-6 90 140
7-8 117 155
9-12 130 165
Facilities for the disabled 144 165
Release Year OSPI Request Funded Cost per
Square Foot
FY 2014 $256.00 $194.26
FY 2015 $264.09 $200.40
FY 2016 $278.89 $206.76
FY 2017 $287.62 $213.23
Eligible Area – Student Space Allocation (SSA)
Cost per Square Foot – Construction Cost Allowance (CCA)
Current Construction Formulas
Source: OPSI, 7/15
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Daniel P. SteeleAssistant Executive Director,
Government Relations825 Fifth Avenue SEOlympia, WA 98501
360.489.3642
2016 Legislative PreviewUpdated: January 8, 2016