Apportionment of school funds in California

182 Pages·010.115 MB·English

by  Alcorn, Marvin Douglas

APPORTIONMENT OP SCHOOL FUNDS
IN CALIFORNIA
A Dissertation
Bresented to
the Faculty of the School of Education
The University of Southern California
In P artial Fulfillment
of the Requirements for the Degree
Doctor of Education
by
Marvin Douglas Alcorn
June 1942
UMI Number: DP25693
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This dissertation, written under the direction
of the Chairman of the candidate’s Guidance
Committee and approved by all members of the
Committee, has been presented to and accepted
by the Faculty of the School of Education in
partial fulfillment of the requirements for the
degree of Doctor of Education.
D a t e . . . . §. *....1^ .?
.....
U o'
Guidance Committee
Osman R. Hull
Chairman
W. Giles Campbell
Welty Lefever
Irving R. Melbo
M. M. Thompson
TABLE OF CONTENTS
CHAPTER PAGE
I. INTRODUCTION.................. . . . . . . .......................... 1
State support for public education
In California.................... . • . . . 2
Demands for increased state aid to
public schools ......................................................... 4
Basis for the study............................ 5
II. THE PROBLEM............................ 7
Statement of the problem......................................... 7
Aspects of the problem 7
Delimitation of the problem. ..................... 9
Scope of the equalization program..................... 9
The minimum program.................... 11
Provision for the reorganization of
local school u n its ............................................. 14
Disposition of present state aid ................. 17
Sources of data.............................................................. 18
Organization of the study............................ 19
III. DEFINITION OF TERMS........................ 22
Fiscal, administrative, and classroom
units.............................................................................. 22
Taxable resources........................ 86
Local e f f o r t.................................... 87
i i i
CHAPTER PACE
Minimum or foundation program of
education ................................................. 28
Equalization fu n d ............................................ 28
IT. PREVIOUS STUDIES A5D LITERATURE RELATING
TO,THE PROBLEM. . ..................................................... 30
The pioneer stu d y .................................................... 30
The principle of payment for effort . . . . . . 31
The equalization principle clearly defined. . . 32
- Studies perfecting equalization techniques. . . 34
Equalization of capital outlays ............................. 35
California studies......................................................... 36
Relation of equalization to the size of
units of admini strati on ..................................... 37
Findings of the National Survey of
School Finance........................................................ 38
Further application of the Mort technique . . . 40
Other earlier stu d ie s.................................... 41
Application of the equalization principle
since 1934. ...................................................... 48
T. SUPPORT AND CONTROL OF EDUCATION IN
CALIFORNIA..................................................................... 44
The proportion of the educational load
borne by the state........................................* . . . 44
State control of education.................................... 49
iv
CHAPTER PAGE
An evaluation of state support and
control of education in C alifo rn ia......... 51
VI. PRINCIPLES AND PROCEDURES OF EQUALIZATION. . . . 61
Overview............................................................. 61
Principles of apportionm ent.................................. 63
E qualization................................................. 64
E fficiency..................................................... . . . 68
Procedures of apportionment............................. 71
Financial aspects of equalization............. 71
Administrative aspects of equalization . . . 72
VII. THE MINIMUM OR FOUNDATION PROGRAM FOR
ELEMENTARY SCHOOLS.............................................. 74
A foundation program based on expenditures
of thirteen counties of average wealth . . . 74
Selection of the key county in determining
the local tax r a t e .......................................... 83
An equalization program based on the
expenditures of fourteen counties of
average w ealth .................................................. 91
Summary....................................................................... 98
VIII. THE MINIMUM OR FOUNDATION PROGRAM OF
EQUALIZATION FOR SECONDARY SCHOOLS................102
A foundation program of secondary education
based on average costs in eleven counties
V
CHAPTER PAGE
of average w ealth ............................................. 105
Selection of a key county................................. I ll
An equalization program for secondary
schools based on expenditures in twelve
counties of average wealth.................... 119
Summary ......................................................... 131
XX. THE, RE-APPORTIONMENT OF EQUALIZATION AID
WITHIN THE COUNTIES............................ 136
Introduction............................ 136
Standards for fiscal, administrative, and
attendance units.................................................. 137
A review of standards for fiscal,
administrative, and attendance
u n its .............................................................. . 138
Proposed standards for fiscal units
in C alifo rn ia............................ 158
Proposed standards for administrative
and attendance units in California. . . 139
Procedures for re-apportionment of
equalization aid to school d istricts
within the cou n ties......................................... 143
X. SUMMARY AND RECOMMENDATIONS................................. 146
Re-statement of the problem ............................. 146
Procedures.................... 146
vi
CHAPTER PAGE
Finding the cost of the minimum
program ................................ 146
Establishing the local rate of taxation . 148
Determining the amount o f(equalization
aid required......................................................... 149
Apportioning the equalization fund. . . . 150
Major findings............................................................. 151
The minimum program of education for
elementary schools............................................. 151
The minimum program of education for
secondary schools.................................. 152
Recommendations...................................................... 153
BIBLIOGRAPHY ..................................................................... 157
LIST OF TABLES
TABLE PAGE
I* ^ in3c of Qalihernia Counties in Wealth
per Elementary Classroom Unit in 1939-
1940 .............................................................................. 76
II. Bank of California Counties in Expenditures
per Elementary Classroom Unit in 1959-
1940 ......................................................... 78
.*) III. A Minimum Program of $2,592.93 Based on
Expenditures of Thirteen Counties of
Average Wealth, 1959-1940. . . . . . . . . . 81
IV. Equalization Aid to California Counties on
the Basis of a Minimum Program of
$2,592.93 for Each Elementary Classroom
U n it.............................................................................. 87
V. ,A Minimum Program of $3,015.74 Based on
Expenditures of Fourteen Counties of <•
Average Wealth, 1939-1940. . . . . . . . . . 95
VI. Equalization Aid to California Counties on
the Basis of a Minimum Program / of $3,015.74
for Each Elementary Classroom U n it................. 94
VII. Bank of Counties in California in Wealth
per High school Pupil in Average Daily
Attendance, 1939-1940. . . . . . . ................. 105
v iii
TABI4E PAGE
VIII. Hank of Counties in California in
Expenditures per High School Pupil in
Average Daily Attendance, 1939-1940 . . . . 107
IX. A Minimum Secondary School Program of
|180.58 for Each Unit of Average Daily
Attendance Based on Expenditures in
Eleven Counties of Average ifeaAth,
1939-1940 ...................................................... 110
X. Equalization Aid to California Counties
on the Basis of a Foundation Program of
#180.58 per High School Pupil in Average
Daily Attendance......................................... 116
XI. A Minimum Secondary School Program of
#224.85 for Each Unit of Average Daily
Attendance Based on Expenditures in
Twelve Counties of Average Wealth,
1939-1940 ............................................................. . 120