Education Week - August 31, 2016 - 16
Reading the Tea Leaves in Advance of ESSA Funding Rules
By Andrew Ujifusa
As the U.S. Department of Education moves closer to releasing draft
spending rules for the Every Student
Succeeds Act, what does its most-recent guidance about funding suggest
about how it may handle some of the
key issues at stake this time around?
That guidance-released in July
2015, before the Every Student Succeeds Act passed last December-offers a window into the department's
thinking on the controversial subject of how to ensure federal funds,
like those for low-income students,
supplement state and local education aid. But that guidance does not
neatly match subsequent, post-ESSA
Education Department proposals
about that supplemental requirement for federal funds.
And like other facets of this
issue, the guidance highlights the
big debate over the extent to which
federal funds can and should be
used as leverage for fostering
greater equity between wealthy
schools and their disadvantaged
counterparts.
When ESSA passed in December,
Congress tasked the department to
work with a team of district, state,
and other K-12 representatives to
set rules for the requirement that
federal education money be used in
addition to state and local cash.
Those negotiations last spring,
however, failed to produce a consensus, leaving it to the department to
craft its own draft spending rules.
The most controversial department
proposal during the negotiations was
to require that districts' state and
local per-pupil spending in Title I
schools (those with relatively large
shares of low-income students) be
at least the same as the average in
non-Title I schools, in order for them
to show they're using federal dollars
properly under ESSA.
Post-ESSA Questions
When it comes to ensuring that
federal funds are supplemental, neither No Child Left Behind (the previous version of federal K-12 law)
nor ESSA explicitly requires that
sort of measurement of spending between two different types of schools.
Supporters of that idea say it
would help close glaring resource
gaps between schools. The Leadership Conference on Civil and
Human Rights has said, for example,
that districts with state and local
spending gaps between relatively
advantaged and disadvantaged
schools are, by definition, violating
the requirement that federal funds
not supplant state and local cash.
And U.S. Secretary of Education
John B. King Jr. has repeatedly argued before Congress and elsewhere
that in order for federal dollars to
be truly supplemental and help students in need, those sorts of gaps
must be closed.
But state and district K-12 leaders
said the department didn't have the
power to require this intradistrict
funding change, among other complaints. (More on that below.)
But what does the 2015 guidance
say-or not say-about resource equity when it comes to making federal funds truly supplemental? The
guidance gives two examples for how
schools can show they're distributing
nonfederal funds in a way that's equitable.
The first is a weighted per-student funding formula that assigns
a base amount per student, plus
additional money for certain types
of students.
The sample formula used in the
guidance assigned a $7,000 basefunding allocation per student from
state and local funds. Then the formula would assign an extra $500
for each student classified as an
English-language learner, an extra
$250 per student from a low-income
family, and an extra $1,500 per student who has a disability, among
other demographics. (This sample
formula doesn't explicitly say that
a student could qualify for two or
more additional allocations of cash
based on demographics.)
Those students were then factored
into the sample formula to calculate
the total nonfederal funds a particular school with certain characteristics
should receive.
The second example is a funding
method based on staffing and supplies.
The sample budget based on those
two factors uses average teacher salaries and benefits at a school, one principal's salary and benefits, and a cost
multiplier for "materials and supplies"
to calculate how much a certain school
with specific staffing levels should receive in nonfederal funds.
side, citing precedent and arguing
that it was proper to defer to the federal interpretation of the law.
But the U.S. Supreme Court intervened in the Virginia case. On
Aug. 3, the justices voted 5-3 to stay
lower-court orders that would have
allowed Gavin Grimm, who was born
female but now identifies as a male,
to use the boys' restroom at his high
school in Gloucester County, Va. The
high court will decide later whether
to take up the merits of that case for
full argument and decision.
"The department is disappointed
in the court's decision, and we are
reviewing our options," a Justice
Department spokesperson said
in a statement in response to last
week's Texas injunction.
Texas Attorney General Ken Paxton and organizations advocating
for transgender students also responded to the Texas order.
"This president is attempting to
rewrite the laws enacted by the
elected representatives of the people, and is threatening to take away
federal funding from schools to force
them to conform," Paxton said in a
statement. "That cannot be allowed
to continue, which is why we took
action to protect states and school
districts, who are charged under
state law to establish a safe and
disciplined environment conducive
to student learning."
Kentucky Gov. Matt Bevin, a Re-
State Concerns
Those two sample approaches for
distributing state and local money
would have to cover all schools, regardless of whether any particular
school received any Title I aid, according to the guidance.
So why is it significant that the department used those examples in its
2015 guidance on the subject?
During last spring's negotiations
over how ESSA should regulate
the supplemental nature of federal
money, local and state officials complained that under department's
proposal to create greater equalization of spending between Title
I and non-Title I schools, districts'
staff-based budgeting methods and
weighted formulas could not be
used, because they might lead to
funding distributions that strayed
too far from the proposal.
The department responded to
those concerns by singling out
weighted per-student formulas, or
budgets based on staffing allocations, as acceptable in its proposal
for the last round of negotiated
rulemaking. But there was a catch:
The methods would only get the
green light as long as state and
district per-pupil funding in a district's Title I schools was at least
equal to the average state and local
spending per student in non-Title
I schools.
Here's a key difference between
the department's guidance and
its proposals that failed to get approval from negotiators: The guidance does not say that districts
must compare and roughly equalize total state and local spending
among different types of schools.
By Evie Blad &
Christina A. Samuels
The national debate over transgender rights took yet another turn last
week, after a federal judge in Texas
temporarily blocked the Obama administration from enforcing new
guidelines meant to expand students'
access to restrooms and locker rooms
in schools.
In May, the U.S. departments of Education and Justice said that under
Title IX, public schools must allow
transgender students to use singlesex restrooms and locker rooms that
align with their gender identity, even
if it differs from their sex at birth.
U.S. District Judge Reed O'Connor,
for the Northern District of Texas,
Wichita Division, sided with Texas
and 12 other state plaintiffs in his
Aug. 22 order for a temporary injunction, which bars the federal agencies
from enforcing the guidance and from
initiating civil rights investigations
in schools until he makes final judgment on the case.
Dispute Over Rulemaking
The Texas case centers largely on
whether the federal agencies followed
the proper process for rulemaking.
The state plaintiffs argued that,
under the Administrative Procedures
Act, the departments were required
to provide opportunity for notice and
comment before setting a rule. But
the federal agencies argued that they
were merely interpreting an existing
regulation.
Jusge O'Connor found "that the
plain meaning of the term sex as
used in [a regulation relating to sexsegregated school restrooms] when it
was enacted by DOE following passage of Title IX meant the biological
and anatomical differences between
male and female students as determined at their birth" and not the gender students identify with.
O'Connor also ruled that a temporary injunction was appropriate
in the multistate case, one of two
that are currently before federal
courts.
"The court concludes plaintiffs have
established that the failure to grant
an injunction will place them in the
position of either maintaining their
current policies in the face of the federal government's view that they are
violating the law, or changing them
to comply with the guidelines and
cede their authority over this issue,"
O'Connor wrote.
In another case, the 4th U.S. Circuit Court of Appeals in Richmond,
Va., took the Obama administration's
16 | EDUCATION WEEK | August 31, 2016 | www.edweek.org
Jay Janner/AP
Judge Blocks Guidance
On Transgender Rights
Texas Attorney General
Ken Paxton hailed a
federal judge's order
blocking, for now,
Obama administration
guidelines aimed at
broadening transgender
students' access to
restrooms and locker
rooms in schools.
http://www.edweek.org
Table of Contents for the Digital Edition of Education Week - August 31, 2016
Education Week - August 31, 2016
Contents
Calls to Halt Charters Stir Friction
Head Start Benefits Underscored
Efforts to Boost Teacher Diversity Seen Falling Short
Digital Directions: 1-to-1 Computing Under Microscope in Maine Schools
News in Brief
Report Roundup
Back to School: Taking the Public’s Pulse
U.S. State Department Tackles Gender Gap in Stem Participation
Act Scores Dip as Participation Swells
Are Poor Students More Ready for Kindergarten?
Teacher-Tenure Battles Continue After Vergara
Judge Blocks Guidance on Transgender Rights
Reading the Tea Leaves in Advance of Essa Funding Rules
Q&A: With Christopher Emdin
Q&A: Talking K-12 With a Force in the House Gop
Howard Fuller: The Naacp Has It Wrong
Milton Chen & Jonathan B. Jarvis: 100 Years Old, Our National Parks Are the Best Outdoor Classrooms
Letters
Topschooljobs Recruitment Marketplace
David E. Dematthews: The Principal as Community Advocate
Education Week - August 31, 2016 - Digital Directions: 1-to-1 Computing Under Microscope in Maine Schools
Education Week - August 31, 2016 - 2
Education Week - August 31, 2016 - 3
Education Week - August 31, 2016 - News in Brief
Education Week - August 31, 2016 - Report Roundup
Education Week - August 31, 2016 - Back to School: Taking the Public’s Pulse
Education Week - August 31, 2016 - U.S. State Department Tackles Gender Gap in Stem Participation
Education Week - August 31, 2016 - Are Poor Students More Ready for Kindergarten?
Education Week - August 31, 2016 - Teacher-Tenure Battles Continue After Vergara
Education Week - August 31, 2016 - 10
Education Week - August 31, 2016 - 11
Education Week - August 31, 2016 - 12
Education Week - August 31, 2016 - 13
Education Week - August 31, 2016 - 14
Education Week - August 31, 2016 - 15
Education Week - August 31, 2016 - Reading the Tea Leaves in Advance of Essa Funding Rules
Education Week - August 31, 2016 - Q&A: Talking K-12 With a Force in the House Gop
Education Week - August 31, 2016 - Howard Fuller: The Naacp Has It Wrong
Education Week - August 31, 2016 - Milton Chen & Jonathan B. Jarvis: 100 Years Old, Our National Parks Are the Best Outdoor Classrooms
Education Week - August 31, 2016 - 20
Education Week - August 31, 2016 - Letters
Education Week - August 31, 2016 - Topschooljobs Recruitment Marketplace
Education Week - August 31, 2016 - 23
Education Week - August 31, 2016 - David E. Dematthews: The Principal as Community Advocate
Education Week - August 31, 2016 - CT1
Education Week - August 31, 2016 - CT2
Education Week - August 31, 2016 - CT3
Education Week - August 31, 2016 - CT4
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