No Deposit, No Return | Jackson Free Press | Jackson, MS

No Deposit, No Return

If you were the melodramatic type, you might call it a nightmare. Barely a year into the new mandates, and increased (and largely unfunded) costs, of the federal No Child Left Behind Act, public school districts in the state fear that the state Legislature may not even fully fund them as much as they're required to under state law. Adding insult to injury, the new Republican governor did not even mention the Mississippi Adequate Education Program (MAEP) in his State of the State Address.

Instead, Gov. Haley Barbour alluded to the fact that there just may not be enough money in the state's dwindling coffers to do the right thing for K-12 public education—that is, to equalize the resources traditionally distributed very unevenly in this state.
"For too long, we have judged politicians' commitment to education by how much money they are willing to spend," Barbour told the state on Jan. 26.

Ouch.

The new governor did follow that up with "We should be judging politicians' commitment to education by the results they demand and achieve for our children." But weary public-school officials know that the "accountability" (as in high-stakes test scores) that the federal government is now demanding is coming at a very high cost—and disproportionately affecting the schools that can least afford the remediation often needed to get those scores up to par. Three-fourths of the state's schools made the grade this year, but they need adequate resources to continue the gains.
"With No Child Left Behind requirements, as well as state accountability, we have more pressure on local school district staff than ever before," said Judy C. Rhodes, director of the Mississippi Department of Education's Office of Educational Accountability.

'That's how serious this is'
This latest scare comes after a brief political respite last year—during an election year. Both Gov. Ronnie Musgrove, and the state Legislature, went for the idea that they should actually fund the Adequate Education requirement—after a three-year rollback on the funds. Education officials fear that another stall is on the way.

"I am very concerned about where funding of MAEP stands right now," Rhodes said in the hall at the Capitol. "Based on government budget recommendations, districts would basically have to reduce basic services by $160 million or increase revenues." She added, "Some 4,000 teachers could be affected. That's how serious this is."

In addition to teacher salaries, MAEP helps provide "adequate"—not exorbitant, mind you—resources for little luxuries like school buses, classroom supplies, roof patches and mold removal. Even books. The Legislature passed the act in 1996 to require that public-school funding would be adequate across all districts, instead of simply "minimal."

This was not been the case historically in Mississippi, a state that used to have no hesitation in putting fewer resources into largely African-American school districts. That started to change in 1982, after Gov. William Winter fought for, and won, historic education reforms. After that, state funding of education reached 46.5 percent of the state's budget. But other state programs, especially healthcare and prisons, started eating up more of the pie, with education's share falling to a low of 39 percent and eventually reaching last year's 43 percent. To help solve this problem, in 1992, lawmakers raised the sales tax by 1 percent, ostensibly to create supplemental "Educational Enhancement" funds to pay for basic educational needs. But the Legislature quickly started substituting education's General Fund dollars with Enhancement funds. While the sales tax had brought about $1.9 million in education enhancements, education lost $1.9 million in general funds, creating a funding wash for education.

In 1996, the Legislature responded again to those education shortfalls, enacting the Mississippi Adequate Education Program. The equity-funding law required the state to fill in the funding gaps between poor districts and property-rich districts and ensure that every child has access to an "adequate" education and that every school had the resources to achieve "Level III" accreditation.
The MAEP funds are now promised to districts, under law, and the districts make their spending and hiring decisions based on that promise. But in the last two sessions until January 2003, the Legislature reneged on the promise, underfunding Adequate Education by $59 million, education contingency funds by $57 million and the public school building fund by $20 million. The number would have been even higher in 2002 had the state not used some of its rainy-day funds to fill in some of the gaps.

Will they, or won't they?
But even with state law ostensibly on their side, public-school officials have to start every legislative session wondering whether their funding that they've already been promised will be there. And that's stressful. Dr. Henry Johnson, state superintendent, says that by fully funding the program early on, "local school [district] officials will be able to plan with more accurate numbers."
Johnson wishes the Legislature would follow last year's lead and fund Adequate Education early and first. "There was full funding for the program by the end of January last year," said Johnson.
This year, though, may be different. It's not an election year, and there's a governor in the mansion whose support for public education is lukewarm at best. And he's obsessed with decreasing spending without raising any tax for anything, no matter how vital.

"There seems to be a general sentiment of no increased tax revenues," Rhodes said, "or no revenue enhancements. … All state budgets are at critical points. These are very difficult decisions."
Without the funding, the districts may be hamstrung, especially with the ever-heftier federal mandates. For instance, No Child Left Behind has raised the bar on teacher hiring, requiring that districts hire certified teachers, and toughening the requirements for certification. Without full funding, it is more difficult to attract and hire teachers. Mississippi ranks 49th in the United States for average teacher pay and last in the Southeastern region.

Barbour did say in his State of the State that attracting good teachers is important, and that he supports funding the teacher pay raise, which is in its fourth year of a five-year plan. However, he did not address Adequate Funding, which will also affect districts' ability to hire and retain good teachers.

Trickle-down Shortfalls
The Legislative Budget Office (LBO) is recommending a reduction in Jackson Public Schools of $3.8 million, meaning that it would lose that amount from its operating budget, which includes teacher salaries. The teacher pay raise is included in the LBO's overall budget, meaning that, if the teacher pay raise passes, JPS will have to pay for both the $3.8 million shortfall, as well as the $6 million that the teacher salary increases will cost the district—in essence becoming an underfunded mandate on the district by the state, much as No Child Left Behind is a burdensome federal mandate. In effect, the shortfalls trickle down to the district level.

Thus, districts are caught in a seemingly never-ending cycle of scrambling for cash, even as the federal accountability deadlines loom. "It's almost a Catch-22 situation," JPS deputy superintendent Ron Sellers said last legislative session. "[The federal act] is forcing the state and school districts to do things we want to do, but where does the money come from? We're already stretched pretty far. If it's not there, it's not there."

City districts such as JPS face a steeper climb than suburban districts, which have an easier time attracting new, younger teachers with lower salary needs. At the same time, many JPS teachers are reaching retirement age or are just not interested in (or can't afford) going back to school to meet the stringent "highly qualified" requirements of No Child Left Behind. And, as Greg Kelly, director of teacher recruitment for JPS, points out, many good teachers are scared away from largely black urban districts by overblown crime rhetoric that is often based more on perception than reality.

Add the state and local challenges facing public schools together with new federal mandates, and it's not hard to see how the pressure is beginning to mount. And without the basic "Adequate" funding that the state has promised, the districts may be facing never-before-felt challenges. Public-school officials maintain hope, however, even if they do not currently know how to gauge the tenor of the Legislature.

"At the beginning of the budget process, it never looks good," Rhodes said.

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