The Kentucky General Assembly just wrapped up its most contentious legislative session in modern history, marked by ferocious public debates about state employee pension reform and education spending. Public school teachers flexed their enormous political muscles and forced a compromise pension bill that left the system largely intact for current retirees and active employees, helped override a veto by Governor Bevin of a state budget that increases overall spending on K-12 education, and effectively killed new school choice options for Kentucky families.
A key factor in these debates was the concern that Kentucky has been systematically under-funding its schools. The original budget proposed by Governor Bevin featured massive K-12 spending cuts (offset by investments in the pension plan). And even though the approved budget increased per pupil spending, it also including sweeping reductions for textbooks, preschool programs, professional development, school improvement funds, and operations at the Kentucky Department of Education. All of this will mean more austerity for K-12 schools next year.
Similarly, other states across the U.S. are facing teacher strikes and public protests focused around education spending. In light of this discussion, Neal McCluskey, director of the Cato Institute's Center for Educational Freedom, recently assembled a set of graphs showing trend lines in inflation-adjusted education spending in several states and for the U.S. as a whole. These graphs track total spending on education (which includes personnel costs, facilities, transportation - everything associated with the operation of K-12 schools) from the 1999-2000 school year until 2014-2015.
For Kentucky, you can see substantial increases in spending until 2007-2008. That's when the Great Recession began. From that point onward, Kentucky's K-12 spending has flat lined and then fallen since 2012, though in 2015 it remained essentially the same as its pre-Recession level in 2006-2007. Remember these numbers are already inflation-adjusted, so you can make valid year-to-year comparisons.
Kentucky has actually fared very well in comparison to other states over the same period of time, as McCluskey's blog post shows. Arizona and Colorado have suffered real declines in school spending, while West Virginia and Oklahoma's were more erratic.
There are several things to keep in mind with all this. First, these charts are total combinations of state and local spending. They do not show how the proportions of state versus local spending have fluctuated. I have not looked at those data trends, but it's possible that in given years the state's commitment to education has waned more dramatically while local governments have borne more of the burden.
Second, it's understandable that states were unable to keep up the kinds of steady increases in school spending made between 1999 and 2007. The Recession deprived states of tax revenues at the same time that costs for pensions and health insurance were skyrocketing. There was simply less money to go around and a lot more needs to cover. And, though there may be very good reasons for it, Kentucky did see a rapid expansion in non-instructional staff during this same period. All of these factors mean that, even though spending has remained stable, classroom teachers are not unreasonable to wonder where all that money has actually gone.
Third, none of this speaks to the question as to how much education spending really is necessary. While there is little reason to think that simply spending more equates to higher levels of student learning, it is also true that for more than two decades now Kentucky (and since 2002 the entire U.S.) has committed itself to an historically unprecedented policy of trying to bring all students to academic proficiency. We aren't making a lot of progress in that regard, but it stands to reason that such a goal will require generous resources, regardless of what improvement strategies we pursue.
What to make of all this? First, I think educators should stop claiming Kentucky's K-12 spending reflects an "attack on public education." Kentucky lawmakers (and local boards of education) should actually be commended for working so hard to maintain spending levels during a time of anemic revenues and skyrocketing pension and health care costs.
But that doesn't make the fiscal forecast for K-12 schools any easier. Very difficult decisions will have to be made and school leaders must be both creative in their use of resources and focused on finding cost savings wherever possible. This is no easy task. It would behoove state policy makers to conduct efficiency studies that help reveal which schools and districts are most effective in doing more with less, but for reasons that are still not entirely clear to me (even as a member of the state board of education), tracking where education dollars actually go and how they are spent is remarkably difficult. We should explore what changes in accounting practices are reasonable and practical to help schools learn from each other how to get more learning out of every dollar.
Likewise, we must be much more deliberate in tracking the actual impact of educational initiatives. This is tricky business, but the consequences of not doing so are real. The Kentucky Teacher Internship Program (KTIP), the one-year mentoring program for beginning teachers, was not funded in the approved budget. This is a real disappointment for many educators who believe that KTIP makes a big difference in new teacher effectiveness. I'm fond of KTIP too, but the truth is that we never invested energy in trying to actually measure the program's impact. We know that Kentucky has a higher than average teacher retention rate compared to other states, and that correlates with other positive outcomes, but it's very difficult to attribute that to KTIP alone. Now the program is likely suspended for lack of funds, and we can lament that, but we've got little to support its funding besides "I like the program and my gut tells me it was worth the money invested." In fiscally lean times, we need more than gut instinct to ask taxpayers for more sacrifices.
Finally, I have no problem with educators lobbying for more education spending. I believe more investments are probably in order if we hope to rapidly improve student learning outcomes. But it would be helpful if educators would approach this issue with a comprehensive view of where tax dollars come from and the economic realities we face. The pension reforms passed by the legislature this year may help in the long-run, but for now the liabilities remain enormous and will require resources that we'd probably rather spend on teacher salaries and classroom costs. Kentucky's tax structure has been inadequate both for generating new revenue and spurring the economic growth necessary to keep those revenues flowing. It's too soon to tell if the hastily-passed tax reforms approved by the General Assembly last month will bring in enough money to meet these wants, but regardless of how we raise taxes, it will be hard-working, ordinary Kentuckians (many with their own financial insecurities) who bear the load, and we need to constantly keep that in mind.
In short, we all could use a much bigger dose of humility as we talk about these issues. No, teachers aren't greedy for expecting the state to deliver on its pension promises and generously fund our schools. But at the same time, our fellow citizens don't hate public education because they see a need for reform and struggle to figure out how we'll pay for all the good things we'd like to have. Let's ease up on the rhetoric of war and get back to working with our neighbors to find common ground solutions.
Usual disclaimer: All views expressed on this website are mine alone. I speak only for myself, and not Western Kentucky University (where I am associate professor of educational administration, leadership, and research) or the Kentucky Board of Education (where I have served as a member since 2016).
Related posts:
- Initial thoughts on pension reform legislation
- Is education in Kentucky "under attack?"
- Does giving parents education options "divert money" from schools?