Facing the 2018-19 school year, Michael Garcia, the budget director of the Spring Valley School District in California (a disguised name), confronted challenges in changing the district’s accounting system to comply with the federal Every Student Succeeds Act (ESSA).
A successor to the Elementary and Secondary Education Act (also known as the No Child Left Behind Act), ESSA was signed by President Obama in 2015. ESSA governed multiple programs providing federal funding to states, as well as requirements for school district reporting to the U.S. Department of Education. Among other revisions, ESSA required for the first time that districts report the per-pupil spending for each school in the district, including allocated central costs. It also required that the data be available to the public. This requirement was designed to give parents and community members more knowledge about relative spending for the schools within the district.
Before ESSA, Spring Valley, like many districts, had done its budgeting on a functional basis, dividing district-wide spending into various operational areas, like instruction, maintenance, and central office costs. However, it only had to report a consolidated number for district-wide costs: the total district-wide costs divided by the number of students in the district. Faced with the new school-level reporting requirement, Garcia was inclined to track the school-level costs in as much detail as possible. Spring Valley schools were a heterogeneous collection of old and new facilities in a city with widely disparate income levels and educational needs, and Garcia believed that additional information could only help the district and its students.
However, Jessica Adams, the newly installed superintendent, clashed with Garcia on how to implement several ESSA accounting requirements. In her short tenure, Adams had already faced criticism from parents at several schools. She did not want the school-level spending report required by ESSA to become another divisive flashpoint in the already contentious school board meetings. In private conversations, she told Garcia that the new allocation scheme should show as little spending difference as possible between the schools.
Garcia and Adams had to resolve several allocation issues. One concern was allocating staff salaries and related benefits to individual schools. These costs were a large portion of the district budget – Spring Valley spent around 81% of its total operational budget on employee salaries and related benefits for instructional, support, and administrative costs.
Another area of concern was allocating the district-wide costs related to the maintenance of plant facilities. Should they allocate maintenance of plant facilities by school square footage, or look for more granular indicators of the actual costs in each school? Finally, what about busing costs? Should they allocate costs to each school on a per-pupil basis across the system or assign busing costs to each location?
Garcia understood Adams’s reluctance to implement the more detailed approach, but he still thought a more granular approach could provide valuable information. The Spring Valley School District faced several important issues in the next few years. A new contract with the teachers’ union was looming. Declining enrollments meant that the district might need to close one or more schools. Would a more precise calculation of costs for each school lead to better decisions?