school aid budget briefing - fy 2015-16...fy 2015-16 total = $12,131.6 million *figures based on jan...
TRANSCRIPT
School Aid
Background Briefing
The fiscal information in this background briefing is based on data through January 15, 2016.
Bethany Wicksall, Associate DirectorSamuel Christensen, Fiscal Analyst
January 2016
School Aid Budget
The School Aid Budget pays for the day-to-dayoperations of local public schools, enabling theLegislature to “maintain and support a system of freepublic elementary and secondary schools as defined bylaw.”
--- The Michigan Constitution
House Fiscal Agency: January 2016 2
School Aid: Gross Appropriations
$13,008 $12,898 $13,260$12,737 $12,982 $12,747 $12,912 $13,322 $13,674 $13,901
FY 2007 FY 2008 FY 2009 FY 2010 FY 2011 FY 2012 FY 2013 FY 2014 FY 2015 FY 2016
Mill
ions
3
Total School Aid appropriations for FY 2015-16 grew 1.7%. Gross appropriations have grown 4.0% higher over the last decade, after adjusting for the shift in local personal property tax revenues in 2009.
NOTE: Beginning in FY 2009, state funds increased by about $350 million to replace local revenue eliminated due to personal property tax reductions.
Gross
GF/GP
House Fiscal Agency: January 2016
School Aid Share of State GF/GP
Health and Human Services
$4,143,648,200 41.9%
Corrections$1,903,948,400
19.3%
Higher Education / Community
Colleges$1,363,529,300
13.8% Other$1,236,961,800
12.5%
Debt Service / SBA Rent
$411,019,600 4.2%
State Police$376,305,600
3.8%
Transportation$400,000,000
4.0%School Aid$45,900,000
0.5%
4
The School Aid budget makes up 0.5% of the total state GF/GP budget.
FY 2015-16 GF/GP Total = $9,881,312,900
House Fiscal Agency: January 2016
School Aid Budget Share of School Aid Fund
School Aid$12,078,985,100
96.3%Community Colleges
$256,714,800 2.0%
Higher Education$205,179,500
1.6%
5
The School Aid budget receives 96.3% of the total state School Aid Fund (SAF) appropriations.
FY 2015-16 SAF Total = $12,540,879,400
House Fiscal Agency: January 2016
SOURCES OF FUNDING
School Aid Funding Sources
State Restricted$12,078,985,100
87%
Federal$1,775,769,200
13%
State GF/GP$45,900,000
0%
7
School Aid Fund restricted funds are the largest revenue source in the School Aid Budget.
FY 2015-16 School Aid Budget = $13,900,654,300
House Fiscal Agency: January 2016
SCHOOL AID APPROPRIATIONS
School Aid Appropriations
$0
$1
$2
$3
$4
$5
$6
$7
$8
$9
$10
$11
$12
$13
FY 2007 FY 2008 FY 2009 FY 2010 FY 2011 FY 2012 FY 2013 FY 2014 FY 2015 FY 2016
Bill
ions
Federal stimulus funds used to offset state funds
MPSERS UAAL Funding
$893.5 million has been added to hold districts harmless from increasing retirement liability costs. Total funding for foundation allowances and other operational costs is still below previous peaks.
School Aid Fund
NOTES: 1) Beginning in FY 2009, state funds increased by about $350 million to replace local revenue due to personal property tax reductions.2) FYs 2012 and 2013 appropriations do not include funding set aside for future MPSERS payments, which was re-appropriated for
MPSERS payments in FYs 2014 and 2015.
9
General Fund
House Fiscal Agency: January 2016
Major School Aid AppropriationsThe School Aid Budget includes the following major spending categories :
Foundation Allowances– Provides per pupil payment for general school operations– $9.0 billion or 64.8% of the School Aid Budget
Special Education– Reimburses districts for a portion of their special education costs– $1.4 billion or 9.8% of the School Aid budget
Michigan Public School Employees’ Retirement System (MPSERS)(Includes cost offset and State share of unfunded liability payments)
– Contributes a portion of annual retirement costs– $993.5 million or 7.1% of the School Aid budget
At-Risk Programs– Additional funds to help students at risk of academic failure– $379.0 million or 2.7% of the School Aid Budget
10House Fiscal Agency: January 2016
Major School Aid Appropriations (cont.) Early Childhood Programs
– Provides preschool programs for 4-yr-olds and parenting programs forparents of children ages 0-5
– $257.3 million or 1.9% of the School Aid Budget
Intermediate School District General Operations– Provides funding to ISDs based on previous allocations– $67.1 million or 0.5% of the School Aid Budget
Career & Technical Education (CTE)– Provides reimbursements to districts and ISDs for CTE programs and
funds CTE early/middle college programs– $55.8 million or 0.4% of the School Aid Budget
Early Literacy Initiatives– Provides funding for professional development, teacher coaches, added
instructional time and other initiatives to improve reading proficiency byend of 3rd grade
– $26.4 million or 0.2% of the School Aid Budget
11House Fiscal Agency: January 2016
School Aid Appropriations
Foundation Allowances
$9,009,700,000 64.8%
Special Education$1,359,546,100
9.8% Federal Programs (non-Special Ed)$1,334,769,200
9.6%MPSERS
$993,500,000 7.1%
Other Programs$443,941,500
3.2%
At-Risk Programs$378,988,200
2.7%
Early Childhood Programs
$257,300,000 1.9%
ISDs$67,108,000
0.5%CTE
$55,801,300 0.4%
12
Foundation allowances, used for school operations, absorb almost $2 out of every $3 spent.
FY 2015-16 School Aid Budget = $13,900,654,300
House Fiscal Agency: January 2016
MAJOR BUDGET TOPICS
Major School Aid Topics
School Aid Revenues
Foundation Allowances
Special Education Funding
MPSERS Funding
Types of Schools
Declining Enrollment
Deficit Districts
14House Fiscal Agency: January 2016
SCHOOL AID REVENUES
School Aid Fund (SAF) Revenue SAF provides the majority of state funding for schools.
Certain taxes are earmarked, or reserved, for deposit into the SAF to pay forschool operations.
State Constitution requires SAF to be used exclusively for schools, highereducation, and school employee retirement benefits.
SAF will receive approximately $12.1 billion in revenue (estimated) for FY2015-16.
Largest sources of SAF revenue are shown on next slide.
16House Fiscal Agency: January 2016
SAF Revenue Sources
Sales Tax$5,476.745.1%
Income Tax$2,606.521.5%
State Education Tax$1,890.115.6%
Lottery Transfer$820.06.8%
Use Tax$481.64.0%
Tobacco Tax$355.32.9%
Real Estate Transfer$273.02.3%
Other$228.41.9%
17
FY 2015-16 Total = $12,131.6 Million
*Figures based on Jan 2016 Revenue Estimating Conference
Sales Tax is the largest revenue source, contributing nearly half of total SAF revenue.
Millions
House Fiscal Agency: January 2016
SAF Revenue History
$11,153$11,513
$10,922 $10,750$11,248 $10,945 $11,270 $11,521 $11,747
$12,132
FY 2007 FY 2008 FY 2009 FY 2010 FY 2011 FY 2012 FY 2013 FY 2014 FY 2015 FY 2016*
Mill
ions
18
Annual School Aid Fund revenues are estimated to grow by 3.3% and to total $12.1 billion in FY 2015-16
* FY 2016 figures from Jan 2016 Revenue Estimating Conference
House Fiscal Agency: January 2016
School Aid Budget: GF/GP as a Fund Source
$665
$587
$283
$378$421 $421
$385
$198
$249
$378
$165
$63$35 $35
$78
$30 $19
$79
$282
$150
$34 $46
FY95
FY96
FY97
FY98
FY99
FY00
FY01
FY02
FY03
FY04
FY05
FY06
FY07
FY08
FY09
FY10
FY11
FY12
FY13
FY14
FY15
FY16
Mill
ions
19
GF/GP will contribute $45.9 million to the School Aid Budget in FY 2015-16. Of that total $30.9 million is reimbursement to the School Aid Fund for the 2014 personal property tax (PPT) reform
House Fiscal Agency: January 2016
School Aid FundingLocal 18-mill Levy and State Appropriations
$0
$2
$4
$6
$8
$10
$12
$14
$16
FY 2007 FY 2008 FY 2009 FY 2010 FY 2011 FY 2012 FY 2013 FY 2014 FY 2015 FY 2016
Bill
ions
Local 18-mill School Aid Fund GF/GP Federal ARRA Regular Federal
20
Excluding federal funds dedicated for specific purposes, total FY 2015-16 funding for schools is 1.9% higher than the previous FY 2006-07 peak (not adjusted for inflation). Recent increases have included
significant funding for retirement costs.
ARRA: Federal American Recovery and Reinvestment Act of 2009
$13.95 billionState/Local Funds
$14.21 billionState/Local Funds
House Fiscal Agency: January 2016
School Aid Balance Sheet
FY 2015 FY 2016 FY 2017Beginning Balance $473.1 $190.0 $32.9
REVENUESchool Aid Fund (SAF) Revenue $11,767.1 $12,131.6 $12,486.2HMO Use Tax 204.4 204.4 50.8General Fund/General Purpose (GF/GP) 33.7 45.9 57.0Federal Funds 1,808.2 1,775.8 1,775.8
TOTAL REVENUE $13,813.5 $14,157.7 $14,369.8
EXPENDITURESYTD Appropriations $13,674.0 $13,900.7 $13,882.5Jan Consensus Cost Adjustments (148.7) (47.7) 0.0Postsecondary Expenditures 571.2 461.9 461.9
TOTAL EXPENDITURES $14,096.2 $14,314.9 $14,344.4
Current year Revenues - Expenditures ($283.0) ($157.1) $25.4
ESTIMATED ENDING BALANCE / (SHORTFALL) $190.0 $32.9 $58.3
(Dollars in Millions)
21House Fiscal Agency: January 2016
FOUNDATION ALLOWANCE
Foundation Allowance A per-pupil funding amount that pays the bulk of school operations was
created as part of the “Proposal A” school finance reforms in 1994-95.
Districts receive a foundation allowance (per pupil funding amount) initiallydetermined in 1994-95, based on what the district collected from both stateand local funds on a per-pupil bases in the prior year.
Initial 1994-95 levels:– Minimum level of funding established: $4,200– Basic level determined: $5,000– State Guaranteed Maximum (Hold-Harmless) level set: $6,500
In FY 2015-16, the foundation allowance varies for K-12 districts from a lowof $7,391 per pupil to a high of $12,004.
23House Fiscal Agency: January 2016
“Basic” Foundation Allowance The “Basic” foundation allowance was a minimum goal established in
1994 as part of the Proposal A reforms, and it is set by the Legislature eachyear as a target per-pupil funding level.
In FY 1999-2000, all school districts in Michigan reached the Basicfoundation allowance, after which point all districts received the same annualincreases except for two years in which additional “equity” payments weremade to those at the Minimum to decrease the funding gap between those atthe top and bottom.
In FY 2007-08, the legislature re-set the Basic foundation allowance to equalthe State Guaranteed Maximum foundation and reinstated the 2x formulaunder which districts at the bottom receive twice as much an increase asthose at the Basic or above. All other districts receive an increasesomewhere in between on a sliding scale determined by formula.
In FY 2015-16, the legislature used the 2x formula increasing the Basicfoundation by $70 and increasing the minimum foundation by $140.
24House Fiscal Agency: January 2016
$4,200
$7,316 $7,391
$5,000
$6,500
$8,489 $8,169
$0
$1,000
$2,000
$3,000
$4,000
$5,000
$6,000
$7,000
$8,000
$9,000
FY95
FY96
FY97
FY98
FY99
FY00
FY01
FY02
FY03
FY04
FY05
FY06
FY07
FY08
FY09
FY10
FY11
FY12
FY13
FY14
FY15
FY16
State Guaranteed Maximum
25
Basic
Minimum
Foundation Allowance HistoryGrowth Since Proposal A
The FY 2015-16 foundation allowance for schools at the Minimum level is $75 above the previous FY 2010-11 peak. For schools at the State Maximum level, it’s $320 below the FY 2010-11 peak.
The “equity gap” between the two is down to $778 per pupil.
*Does not include the foundation allowances of 37 hold harmless districts that are allowed to collect additional local millage revenue to maintain statutory foundation allowances above the State Guaranteed Maximum.
House Fiscal Agency: January 2016
Per Pupil Foundation Allowances Increases/Decreases
$153 $155 $154 $238 $300 $300
$200 $175 $210 $48 $56 $30 $50 $70
$306 $310 $308
$46
$530
$300 $300
$400
$0 $0
$175 $210
$96 $112
$0 $0
($470)
$120 $110 $175
$140
FY96
FY97
FY98
FY99
FY00
FY01
FY02
FY03
FY04
FY05
FY06
FY07
FY08
FY09
FY10*
FY11*
FY12
FY13
FY14
FY15*
FY16
Per P
upil
Cha
nge
Districts at State Maximum
Districts at Minimum(Additional $)
26
*Notes: 1. FY 2009-10 school district funding was reduced $154 per pupil, and FY 2010-11 funding was reduced an additional $16 per
pupil, but it was done in a separate categorical Section 11d. 2. FY 2014-15 foundation allowances were increased by $50 across the board, and districts below $7,251 receive up to an
additional $125 per pupil equity payment under Section 22c, intended to be rolled into their base in the following fiscal year.
House Fiscal Agency: January 2016
Foundation AllowanceState/Local Funding Mix
Each district levies 18 mills on non-homestead property.
State calculates local revenue from the 18 mills on a per-pupil basis.
State deducts per-pupil local revenue from the lesser of the district’sfoundation allowance or state guaranteed maximum per pupil amount.
Districts above the state guaranteed maximum (hold harmless districts) areallowed by law to levy additional mills with voter approval to achieve theirstatutory foundation allowance.
27House Fiscal Agency: January 2016
Equity Among Districts
Before Proposal A, the per pupil spending difference between the highest-and lowest-funded K12 district was almost $6,900 or 3:1.
In FY 2015-16, the difference between the highest and lowest K-12 district is$4,613, is approximately 3:2.
In FY 2015-16, excluding the 37 hold harmless districts whose revenue perpupil exceeds the Basic foundation allowance, the difference between thetop and the bottom has been reduced to $778, down from a gap of $2,300when Proposal A was first implemented.
28House Fiscal Agency: January 2016
Equity Among DistrictsFY 2015-16 Pupil Distribution
62%
17%
10%
4%
3%
1%
1%
0%
1%
0%
1%
x = $7,391
$7,391 < x < $7,891
$7,891 < x < $8,391
$8,391 < x < $8,891
$8,891 < x < $9,391
$9,391 < x < $9,891
$9,891 < x < $10,391
$10,391 < x < $10,891
$10,891 < x < $11,391
$11,391 < x < $11,891
x > $11,891
29
62% of pupils are concentrated in districts with a foundation allowance at the minimum foundation $7,391. As the minimum increases relative to the Basic, that share continues to
grow, thereby increasing the cost of future equity payments.
House Fiscal Agency: January 2016
SPECIAL EDUCATION FUNDING
Special Education Funding
Second largest School Aid appropriation in FY 2015-16
– $918.5 million state dollars– $441.0 million federal dollars
Reimburses school districts for the costs of educating special educationstudents.
Required reimbursement rates determined by the Michigan Supreme Court inDurant v. State of Michigan in 1997:
– 28.6138% of Total Special Education Costs– 70.4165% of Total Special Education Transportation Costs
Local special education millages, levied by each ISD, will generate anestimated additional $950.5 million in FY 2015-16.
31House Fiscal Agency: January 2016
Special Education Appropriations
$1,397 $1,415 $1,449 $1,486
$1,369$1,415 $1,392 $1,364 $1,346 $1,360
FY 2007 FY 2008 FY 2009 FY 2010 FY 2011 FY 2012 FY 2013 FY 2014 FY 2015 FY 2016
Mill
ions
32
Special Education costs are expected to increase for FY 2015-16 after decreasing over the last few years.
House Fiscal Agency: January 2016
MPSERS
Michigan Public School Employees’ Retirement System (MPSERS) Appropriations
Section 147a– Provides $100.0 million to districts to offset a share of their MPSERS
costs. Distribution is based on a district’s proportionate share ofMPSERS covered payroll.
Section 147c– Appropriates $893.5 million to pay for the state share of unfunded
accrued liability (UAL) costs per PA 300 of 2012, which required the stateto pay the UAL costs that exceed the capped employer contribution rateof 20.96% of MPSERS covered payroll.
34House Fiscal Agency: January 2016
MPSERS Employer Contribution Rates History and Future Projections
14%15%15%
11%11%12%12%12%13%13%15%
16%18%17%17%17%
21%
25%
27%
32%
36%36%36%34%34%34%
24%25%26%26%26%26%26%26%
FY95
FY96
FY97
FY98
FY99
FY00
FY01
FY02
FY03
FY04
FY05
FY06
FY07
FY08
FY09
FY10
FY11
FY12
FY13
FY14
FY15
FY16
FY17
FY18
FY19
FY20
Perc
ent o
f Pay
roll
35
The state portion of the MPSERS contribution rate is $894 million in FY 2015-16 and is expected to increase to $984 million in FY 2016-17. The employer contribution rate is
capped at 20.96% for the unfunded liability plus the normal costs for retirement benefits newly earned each year.
Employer Share Priorto PA 300 of 2012
Employer Share After PA 300 of 2012
State Share afterPA 300 of 2012
House Fiscal Agency: January 2016
EARLY CHILDHOOD
Great Start Readiness Program (GSRP)
Funding for the GSRP preschool program for 4-year-olds has more thandoubled from $109.6 million in FY 2012-13 to $243.9 million in FY 2015-16.
The per diem allocation for each half-day preschool slot is $3,625.
A district may use two half-day slots to serve a child for a full school day, and75% of the slots are used this way.
The number of available half-day slots has increased from 32,140 inFY 2012-13 to 64,440 in FY 2015-16.
In FY 2015-16, there is $10.0 million appropriated for allocations of up to$150 per slot for preschool transportation.
37House Fiscal Agency: January 2016
TYPES OF SCHOOLS
Traditional, Locally Governed School Districts
Traditional local school districts have defined boundaries and locally electedschool boards.
540 traditional local districts
1,344,194 pupils or 89.9% of the statewide public pupil membership
39House Fiscal Agency: January 2016
Public School Academies
Public School Academies (PSAs) are independent public schools formed byindividuals or groups to provide students and parents a public alternate totraditional school districts.
PSAs are authorized to operate by public universities, community colleges,intermediate school districts, local school districts and the EducationAchievement Authority.
PA 277 of 2011 increased the limit on university-authorized PSAs from 150(reached in 1999) to 300 in 2012 and 500 in 2014, after which the cap waseliminated.
– The bill also allowed a single PSA to operate multiple school sites withthe same grade configuration.
40House Fiscal Agency: January 2016
Public School Academies
300 Public School Academies
In FY 2015-16 there were 145,951 pupils in PSAs or 9.8% of statewide pupilmembership
Average size of a PSA is about 485 pupils per school
The statutory PSA foundation allowance is capped at the PSA maximum,which is currently $7,391 per pupil, equal to the statewide Minimumfoundation.
41House Fiscal Agency: January 2016
Public School Academies
0
20,000
40,000
60,000
80,000
100,000
120,000
140,000
160,000
0
50
100
150
200
250
300
350
FY95
FY96
FY97
FY98
FY99
FY00
FY01
FY02
FY03
FY04
FY05
FY06
FY07
FY08
FY09
FY10
FY11
FY12
FY13
FY14
FY15
FY16
Pupi
ls
PSA
s
PSAs Membership
42
Growth in PSA Numbers and Pupil Membership
House Fiscal Agency: January 2016
Cyber Schools
Cyber schools are a type of public school academy.
FY 2010-11 was first year of operation.
PA 129 of 2012 increased limits on cyber schools:– Limit on schools authorized by statewide entities increased to 5 in 2013,
10 in 2014, and 15 starting January 2015.– Enrollment limited to 2,500 in first year, 5,000 in second year, and 10,000
in third year.
In FY 2015-16
– 10 existing cyber schools with enrollment totaling 8,807– No new cyber schools opened in FY 2015-16
43House Fiscal Agency: January 2016
Education Achievement Authority (EAA)
Created by an inter-local agreement between Detroit Public School (DPS)and Eastern Michigan University in August 2011. Agreement recentlyextended until June 2016.
EAA assumed control of 15 DPS schools in FY 2012-13– 9 elementary/middle schools– 6 high schools– EAA converted 3 schools to a PSA
Total enrollment in the EAA and its PSA dropped from 9,300 in FY 2012-13 to6,734 in FY 2015-16.
Target Population is lowest achieving 5% of schools.
44House Fiscal Agency: January 2016
DECLINING ENROLLMENT
Declining EnrollmentTotal Pupil Membership Counts
1.591.621.651.671.69 1.7 1.711.711.711.711.71 1.7 1.681.651.62 1.6 1.571.551.541.521.511.501.491.48
FY95
FY96
FY97
FY98
FY99
FY00
FY01
FY02
FY03
FY04
FY05
FY06
FY07
FY08
FY09
FY10
FY11
FY12
FY13
FY14
FY15
FY16
FY17*
FY18*
46
Fewer pupils means a loss of revenue to schools. Statewide, pupil memberships are 13% lower than their peak in FY 2002-03. Nearly 2/3 of traditional districts experienced declining enrollment
from FY 2014-15 to FY 2015-16.
Fiscal Years Pupil Blend
% current fall/ % prior Feb
1998 to 1999 60/40
2000 75/25
2001 to 2004 80/20
2005 to 2011 75/25
2012 to 2013 90/10
2014 to 2015 90/10 following Feb
2016 90/10
* FY 17 and 18 figures are from Jan 2016 consensus estimatesHouse Fiscal Agency: January 2016
DISTRICT FUND BALANCES AND DEFICITS
District Fund Balances and Deficits
0.00%
2.00%
4.00%
6.00%
8.00%
10.00%
12.00%
14.00%
16.00%
$0
$500,000,000
$1,000,000,000
$1,500,000,000
$2,000,000,000
$2,500,000,000
FY2003
FY2004
FY2005
FY2006
FY2007
FY2008
FY2009
FY2010
FY2011
FY2012
FY2013
FY2014
FY2015
Total Statewide Fund Balances Total Balances as Percent of Total Revenues
48
Total fund balances decreased from a high of $2.0 billion in FY 2002-03 to $1.2 billion in FY 2014-15. The average statewide total fund balance as a percent of revenues declined from
13.7% in FY 2002-03 to 7.9% in FY 2014-15. The number of districts with a deficit decreased from 55 in FY 2013-14 to 40 in FY 2014-15.
House Fiscal Agency: January 2016
For more information about the School Aid budget, contact:Bethany Wicksall, Associate Director
Samuel Christensen, Fiscal [email protected]
(517) 373-8080
Or visit: www.house.mi.gov/hfa