abbeville county school district v. state of south...
TRANSCRIPT
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How Did We Get Here and
What Happens Now?
Abbeville County School District
v. State of South Carolina
Laura Callaway Hart
Duff, White & Turner, LLC
SC Association of School Business Officials
November 20151
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SC Constitution’s Education Clause:Article XI, Section 3
2
The General Assembly shall
provide for the maintenance and
support of a system of free public
schools open to all children in the
State . . . .
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Education Finance Act (EFA)of 1977
3
Drafted in 1974
Defined Minimum Program
Base Student Cost
Assumed district size of 6000 students
No transportation
No fringe benefits
No facilities
Shared formula – 70% state and 30% local (avg.)
Index of Taxpaying Ability
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Education Improvement Act (EIA) of 1984
4
Statewide penny sales tax
Innovations and improvements
Periodic reviews
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Why a lawsuit?
5
State re-directed costs to districts
Straw that broke the camel’s back
fringe benefits
Complaint filed November, 1993
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Abbeville County School District, et al. v. State of South Carolina, et al.
6
40 school districts in 1993
36 districts at time of trial in 2003
33 districts in 2015
No district has dropped out
Consolidation reduced district count
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Abbeville v. State of South Carolina
7
Trial court granted defendants’ motions
to dismiss in 1996
Separation of powers
Plaintiffs appealed (1st appeal)
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8
First Appeal
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Abbeville I (1999)
9
“It is the duty of this Court to
interpret and declare the
meaning of the Constitution.”
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Abbeville I (1999)
10
SC Constitution’s Education Clause:
The General Assembly shall
provide for the maintenance and
support of a system of free public
schools open to all children in the
State . . . .
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Abbeville I (1999)
11
Since the education clause did not
specify the qualitative standard
required, the Supreme Court held that
it must be at least “minimally
adequate.”
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Abbeville I (1999)
12
“We hold today that the South Carolina
Constitution’s education clause requires
the General Assembly to provide the
opportunity for each child to receive
a minimally adequate education.”
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Abbeville I (1999)
13
We define this minimally adequate education required by our Constitution to include providing students adequate and safe facilities in which they have the opportunity to acquire:
the ability to read, write and speak the English language, and knowledge of mathematics and physical science;
a fundamental knowledge of economic, social, and political systems, and a history of governmental processes; and
academic and vocational skills.
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“The provisions of the Constitution shall be . . . construed to be mandatory . . .”
“Since the education clause uses the term ‘shall,’ it is mandatory.”
Bottom line: The General Assembly must provide adequate educational opportunities to each child.
Abbeville I (1999)
14
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15
Trial
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The Plaintiffs
16
Eight trial plaintiff districts
Allendale
Dillon 2
Florence 4
Hampton 2
Jasper
Lee
Marion 7
Orangeburg 3
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Trial
17
Bench trial – Judge Thomas W. Cooper, Jr.
Clarendon County – Manning
July 28, 2003 – December 2004
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18
Plaintiffs’ Evidence
and Arguments
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The Plaintiffs: Mostly Minority
19
%Minority
48.1
88.494.3
72.486
98.7
83.395.5
86.8 89.9
0
20
40
60
80
100
120
State
Plain
tiffs
Allenda
le
Dillo
n 2
Flore
nce 4
Ham
pton 2
Jasp
erLee
Mario
n 7
Ora
ngebur
g 3
State
Plaintiffs
Allendale
Dillon 2
Florence 4
Hampton 2
Jasper
Lee
Marion 7
Orangeburg 3
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The Plaintiffs: Mostly Low Income
20
Free Reduced
55
86 9085 88 85
7887 89
84
0102030405060708090
100
State
Plain
tiffs
Allenda
le
Dillo
n 2
Flore
nce 4
Ham
pton 2
Jasp
erLee
Mario
n 7
Ora
ngebur
g 3
State
Plaintiffs
Allendale
Dillon 2
Florence 4
Hampton 2
Jasper
Lee
Marion 7
Orangeburg 3
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21
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22
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Teacher Qualifications:
Plaintiff and Non-Plaintiff Districts
Induction Contract Teachers23
4.90%
11.90%
2.20%
7.40%
10.00% 9.50%
10.40%
2.40%
5.40%
0.00%
2.00%
4.00%
6.00%
8.00%
10.00%
12.00%
Sta
te A
vera
ge
Allen
dale
Dillo
n 2
Flo
ren
ce 4
Ham
pto
n 2
Jasper
Lee
Mari
on 7
Ora
ng
eb
urg
3
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Teacher Qualifications:
Plaintiff and Non-Plaintiff Districts
Substandard Certificates and Out-of-Field Permits24
6.60%
20.00%
6.30%
11.10%
17.70%
19.80%18.50%
15.80%
11.10%
0.00%
2.00%
4.00%
6.00%
8.00%
10.00%
12.00%
14.00%
16.00%
18.00%
20.00%
Sta
te A
vera
ge
Allen
dale
Dillo
n 2
Flo
ren
ce 4
Ham
pto
n 2
Jasper
Lee
Mari
on 7
Ora
ng
eb
urg
3
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Teacher Qualifications:
Plaintiff and Non-Plaintiff Districts
Three Year Average Teacher Turnover Rate25
9.40%
24.40%
11.73%
20.57%
25.27%23.73%
22.77%22.83%
11.50%
0.00%
5.00%
10.00%
15.00%
20.00%
25.00%
30.00%
Sta
te A
vera
ge
Allen
dale
Dillo
n 2
Flo
ren
ce 4
Ham
pto
n 2
Jasper
Lee
Mari
on 7
Ora
ng
eb
urg
3
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26
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Auditorium/classroom
32
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Media Center for 365 students
33
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Cafeteria for 365 students
34
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What Did the Test Results Show?
35
52.9
31.6
0
10
20
30
40
50
60
% Students Scoring Below Basic
Plaintiff Non-Plaintiff
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36
A
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Unsatisfactory and Below Average Schools,State vs. Plaintiff Districts, 2003
37
Unsatisfactory and
Below Average Schools
State
17.4%
Plaintiff
Districts
75%
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Plaintiff District Schools Rated Unsatisfactory or Below Average,2001 to 2003
38
Schools never
rated BA or U
Schools U or BA
at least once
79% of schools in plaintiff districts rated
Unsatisfactory or Below Average three
years in a row
87% of schools in plaintiff districts rated
Unsatisfactory or Below Average at least once
over three years
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Plaintiff District Schools Moving out of Unsatisfactory or Below Average Ratings from 2001 to 2003
39
Schools RatedU or BA in2001 and stillin 2003
12.5% moved from
Unsatisfactory or Below
Average to Average or
above in 2003
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Percentage of 9th graders who did not complete high school in four years
40
Allendale60%
Dillon 243%
Florence 466%
Hampton 254%
Jasper61%
Lee67%
Marion 344%
Marion 444%
Orangeburg 3
48%
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Economic Base
41
Textile and agriculture jobs disappearing
Knowledge-based economy is our only
choice
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Roche Carolina’s Hiring Efforts
for 20 Job Openings
1,474 Applications Received
1,200 High School Graduates
737 Signed Up for Testing
549 Showed Up for Testing
63 Passed Test
42
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Funding:Eroded, obsolete, and complex
43
Base student cost, developed in 1974, excludes:
Transportation
Facilities
Fringe benefits
4 additional Carnegie units
Technology
Other mandates
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Funding:Eroded, obsolete, and complex
44
EIA penny used for basics (not as designed)
Teacher salary funding eroded
Facility funding from Barnwell dried up
Lottery money widely dispersed
Tax reform, including Act 388 and
exclusions
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Funding Issues
45
$600
$1,100
$1,600
$2,100
$2,600
$3,100
75-7676-7777-7878-7979-8080-8181-8282-8383-8484-8585-8686-8787-8888-8989-9090-9191-9292-9393-9494-9595-9696-9797-9898-9999-0000-0101-0202-0303-0404-0505-0606-0707-0808-0909-1010-1111-1212-13
BSC
FISCAL YEAR
HISTORY OF BSCSeries1
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Funding Issues
46
Transportation
Bus driver salaries
Bus replacement
Teacher salary supplements
Employee fringe benefits
Facility costs
Etc., etc., etc.
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Funding Issues
47
Per pupil expenditures (In$ite data) do not accurately reflect
funding needs and expenditures
Maintenance of old buildings is included in In$ite as an
operating expense, but construction of new buildings is not
(capital)
Small districts have higher per pupil costs because of
diseconomies of scale
Restrictions on grants and categorical funds are not reflected
Transportation costs are higher in poor, isolated areas
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48
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49
Defendants’ Evidence
and Arguments
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Defendants’ Evidence and Arguments
Court has no role in education
Legislative prerogative
State required to provide only the bare minimum
Poverty causes low educational achievement
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51
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December 29, 2005
52
Trial Court Order
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Trial Court Order
53
Pieces of the education system are minimally adequate:
Facilities
System for training and distributing teachers
Teacher compensation
Teacher turnover (problematic, but not a constitutional issue)
Physical supports (materials, technology, books)
Instructional time (summer school, after school)
BUT
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Trial Court Order
54
Have the Defendants provided the
children in the Plaintiff Districts the
opportunity to acquire a minimally
adequate education?
I find they have not.
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Trial Court Order
55
Opportunity means a real chance,
an education that will prepare
children for life.
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Trial Court Order
56
Poor children can learn, and their
outcomes cannot be excused
because they are poor.
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Trial Court Order
57
The impact of poverty must be
addressed in order to ensure the
opportunity for a minimally
adequate education to poor
children.
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Trial Court Order
58
The State is not ensuring that children in poverty have the opportunity to acquire a minimally adequate education because of the lack of early childhood interventions designed to address the impact of poverty
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59
Second Appeal
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Appeal Issues
60
Plaintiffs appealed conclusions on
Facilities
Teacher quality issues
Funding
Other educational supports
Remedy: What about the older children?
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Appeal Issues
61
Defendants appealed the court's requirement
that they do anything
Separation of powers
Legislative prerogative to decide
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During the Appeal
62
General Assembly enacted CDEPP (Child Development Education Pilot Program) via proviso for 4-year old children in the plaintiff districts.
Note: Trial court did not limit “early childhood interventions” to 4-year olds. It referred specifically to “birth to grade three.”
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The November 12, 2014
Supreme Court Opinion
63
Abbeville II
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Abbeville II
64
“[I]nterpretation of the law – and
evaluation of the government’s acts
pursuant to that law – are critical and
necessary judicial functions. As such, we
find that judicial intervention is both
appropriate and necessary in this
instance.”
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Abbeville II
65
“We hold that South Carolina’s
educational funding scheme is a
fractured formula denying
students in the Plaintiff Districts
the constitutionally required
opportunity.”
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Abbeville II
66
There is a clear disconnect between
spending and results
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Abbeville II
67
Poverty – “the critical issue”
“[A] focus on poverty within the
Plaintiff Districts likely would
yield higher dividends than a
focus on perhaps any other
variable.”
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Abbeville II
68
Other issues also cause negative
impacts:
Teacher quality - “a corps of unprepared
teachers”
Inadequate transportation
Adverse impact of local legislation
Small district size
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Abbeville II
69
“[O]ur State’s education system fails to
provide school districts with the
resources necessary to meet the
minimally-adequate standard.”
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Abbeville II
70
“[T]he cost of the educational package
in South Carolina is based on a
convergence of outmoded and
outdated policy considerations that fail
the students of the Plaintiff Districts.”
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Abbeville II
71
The Remedy
Separation of powers issue
General Assembly is primarily
responsible for schools and is proper
institution to make policy choices
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Abbeville II
72
Charge to the Defendants:
Take a broad look at principal causes of
low student achievement
Consider “the wisdom of continuing to
enact multiple statutes which have no
demonstrated effect on educational
problems, or attempting to address
deficiencies through underfunded and
structurally impaired programming.”
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Abbeville II
73
Charge to the Plaintiff Districts:
Work with the Defendants to chart
path forward that prioritizes student
learning
Consider consolidation
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Abbeville II
74
Court retained jurisdiction.
Court directed the parties to return to the
Court; invited the parties to suggest a
timeline for reappearance and specific,
planned remedial measures
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75
2015: The Remedy
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Not this way:
76
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Plaintiffs’ Strategy Group
77
Education experts
Package of systemic reforms
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SC House Education Policy Review and Reform Task Force
78
Rep. Rita Allison – Chair
House members
Business representatives
Representatives of Plaintiff Districts
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SC House Education Policy Review and Reform Task Force
79
http://www.scstatehouse.gov/committeeinfo/Hous
eEducationPolicyReviewandReformTaskForce/Hous
eEducationPolicyReviewandReformTaskForce.php
Plaintiffs’ recommendations
Dr. JoAnne Anderson’s testimony on June 1,
2015
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SC Senate Finance Special Subcommittee
for Response to Abbeville Case
80
Sen. Nikki Setzler (Co-Chair)
Sen. Wes Hayes (Co-Chair)
Sen. John Courson
Sen. John Matthews
Sen. Greg Hembree