Legislature(2017 - 2018)BUTROVICH 205
04/19/2018 08:00 AM Senate EDUCATION
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| Audio | Topic |
|---|---|
| Start | |
| HB339 | |
| Adjourn |
* first hearing in first committee of referral
+ teleconferenced
= bill was previously heard/scheduled
+ teleconferenced
= bill was previously heard/scheduled
| + | HB 339 | TELECONFERENCED | |
| + | TELECONFERENCED | ||
ALASKA STATE LEGISLATURE
SENATE EDUCATION STANDING COMMITTEE
April 19, 2018
8:00 a.m.
DRAFT
MEMBERS PRESENT
Senator Gary Stevens, Chair
Senator John Coghill
Senator Tom Begich
Senator Shelley Hughes
MEMBERS ABSENT
Senator Cathy Giessel
COMMITTEE CALENDAR
HOUSE BILL NO. 339
"An Act relating to the base student allocation; and providing
for an effective date."
- HEARD & HELD
PREVIOUS COMMITTEE ACTION
BILL: HB 339
SHORT TITLE: INCREASE BASE STUDENT ALLOCATION
SPONSOR(s): REPRESENTATIVE(s) GARA
02/09/18 (H) READ THE FIRST TIME - REFERRALS
02/09/18 (H) EDC, FIN
02/16/18 (H) EDC AT 8:00 AM CAPITOL 106
02/16/18 (H) Heard & Held
02/16/18 (H) MINUTE(EDC)
02/21/18 (H) EDC AT 8:30 AM CAPITOL 106
02/21/18 (H) Heard & Held
02/21/18 (H) MINUTE(EDC)
02/28/18 (H) EDC AT 8:00 AM CAPITOL 106
02/28/18 (H) -- MEETING CANCELED --
03/07/18 (H) EDC AT 8:00 AM CAPITOL 106
03/07/18 (H) Heard & Held
03/07/18 (H) MINUTE(EDC)
03/14/18 (H) EDC RPT 4DP 1DNP
03/14/18 (H) DP: ZULKOSKY, SPOHNHOLZ, PARISH,
DRUMMOND
03/14/18 (H) DNP: KOPP
03/14/18 (H) EDC AT 8:00 AM CAPITOL 106
03/14/18 (H) Moved HB 339 Out of Committee
03/14/18 (H) MINUTE(EDC)
04/10/18 (H) FIN AT 9:00 AM ADAMS ROOM 519
04/10/18 (H) Heard & Held
04/10/18 (H) MINUTE(FIN)
04/11/18 (H) FIN AT 1:30 PM ADAMS ROOM 519
04/11/18 (H) Scheduled but Not Heard
04/11/18 (H) FIN AT 5:00 PM ADAMS ROOM 519
04/11/18 (H) Moved HB 339 Out of Committee
04/11/18 (H) MINUTE(FIN)
04/12/18 (H) FIN RPT 7DP 4AM
04/12/18 (H) DP: GARA, KAWASAKI, GRENN, ORTIZ,
GUTTENBERG, SEATON, FOSTER
04/12/18 (H) AM: WILSON, PRUITT, THOMPSON, TILTON
04/13/18 (H) BEFORE HOUSE IN SECOND READING
04/15/18 (H) TRANSMITTED TO (S)
04/15/18 (H) VERSION: HB 339
04/17/18 (S) READ THE FIRST TIME - REFERRALS
04/17/18 (S) EDC, FIN
04/19/18 (S) EDC AT 8:00 AM BUTROVICH 205
WITNESS REGISTER
REPRESENTATIVE LES GARA
Alaska State Legislature
Juneau, Alaska
POSITION STATEMENT: Sponsor of HB 339.
SANA EFIRD, Deputy Commissioner
Department of Education and Early Development (DEED)
Juneau, Alaska
POSITION STATEMENT: Testified on HB 339.
SANDRA DAWS, Chief Financial Officer
Kodiak Island School District
Kodiak, Alaska
POSITION STATEMENT: Supported HB 339.
MONICA GOYETTE, Ph.D., Superintendent
Matanuska-Susitna School Borough
Palmer, Alaska
POSITION STATEMENT: Supported HB 339.
DEENA BISHOP, Ph.D., Superintendent
Anchorage School District (ASD)
Anchorage, Alaska
POSITION STATEMENT: Supported HB 339.
NOAH WILLIAMS, Representing Self
Juneau, Alaska
POSITION STATEMENT: Supported HB 339.
KAREN BARNARD, Representing Self
Anchorage, Alaska
POSITION STATEMENT: Supported HB 339.
GENE RANDALL, Representing Self
Juneau, Alaska
POSITION STATEMENT: Supported HB 339.
ACTION NARRATIVE
8:00:50 AM
CHAIR GARY STEVENS called the Senate Education Standing
Committee meeting to order at 8:00 a.m. Present at the call to
order were Senators Hughes, Coghill, Begich, and Chair Stevens.
HB 339-INCREASE BASE STUDENT ALLOCATION
8:01:08 AM
CHAIR STEVENS announced the consideration of HB 339.
CHAIR STEVENS noted that lots of education bills were in motion
near the end of the session--HB 287, early funding to solve the
pink slip issue; SB 26, attaching more money to education; SB
216, dealing with consolidation of schools; SB 104, $30 million
for curriculum; SB 102, dealing with the Internet; and SB 185,
the retiree rehire bill.
REPRESENTATIVE LES GARA, Alaska State Legislature, sponsor of HB
339. He said the reality is that education has become the same
thing that public safety has become and even snow plowing in
Anchorage. Streets are not cleared better with fewer snow plows.
Communities are not protected better with fewer police officers.
The Anchorage School District has lost over 500 educators in the
last few years--teachers, counselors, nurses, support staff, and
English-as-a-second-language teachers at a time when Alaska is
becoming more diverse. Whatever criticism folks have of the
education system, children cannot be taught in a more vibrant
way with fewer teachers, bigger class sizes, and less
curriculum. The impacts have ranged from the bigger schools
losing teachers and counselors to the smaller schools losing
school days. The Lake and Peninsula School District has cut 20
school days.
8:03:39 AM
REPRESENTATIVE GARA quoted Nelson Mandela: "Education is the
most powerful weapon we can use to change the world." The
question they have to decide is what level of education.
He stated that HB 339 is a modest increase of 1.7 percent to the
Base Student Allocation (BSA) from last year. It will not
replace all the positions lost, and in some districts, it will
barely help them keep even. HB 339 would increase the BSA by
$100 to $5,930. To keep up with inflation since 2009, the BSA
would be $6,568. That is $500 more than proposed by HB 339.
8:04:46 AM
REPRESENTATIVE GARA quoted Juneau School District Superintendent
Mark Miller:
Over the past five years, the BSA has been nearly
flat. Over that same time, my operating expenses from
the general fund have increased nearly 10 percent . .
. We have used our general fund balance to survive the
last couple of years . . . we are now being forced to
consider severe cuts to try to fill a $3 million hole.
8:06:03 AM
REPRESENTATIVE GARA said that according to the Division of
Legislative Finance, education funding is $90 million behind FY
15 when adjusted for inflation. He pointed out that $43 million
added to education funding in FY 15 was deleted from the budget
in FY 16 and FY 17.
He said that Fairbanks is facing an $8.2 million shortfall for
2018-2019, which equates to 50 full-time equivalent (FTE)
positions. He quoted Lisa Pierce, Chief Financial Officer for
the Fairbanks School District: "Have sliced and diced to the
point that we are unable to continue to make horizontal cuts. We
are looking at program cuts now." Fairbanks has eliminated 231
positions since 2009. The state should not be surprised at
declining achievement numbers.
REPRESENTATIVE GARA said Anchorage has lost nearly 400 FTE
positions since 2013, 216 of which were teachers. Classroom
sizes have increased and will continue to do so.
8:08:00 AM
SENATOR HUGHES said that Anchorage has lost students. She asked
what the student loss has been and the impact of that.
REPRESENTATIVE GARA replied the loss of teachers and staff has
been disproportionately large compared to the decline in
students. That is a reason that class sizes are increasing.
Factoring in inflation, the amount provided for each student has
gone down ten percent since 2009.
8:09:12 AM
CHAIR STEVENS suggested Senator Hughes ask that question of
Anchorage Superintendent Deena Bishop during invited testimony.
8:09:25 AM
REPRESENTATIVE GARA said that one year career and guidance
counselors were laid off to prevent teacher layoffs, which he
found alarming. In Anchorage, enrollment of students with
intensive needs is up, which is only partially covered by the
formula funding.
He said the estimated cuts with flat funding in Anchorage is 91
more FTE teachers in FY 19 and 107 more in FY 20. He shared that
one teacher told him that she was having trouble teaching 28
students in her classroom and then the classroom size increased
to 32. She said she cannot teach individual students who need
help.
8:10:48 AM
REPRESENTATIVE GARA said that Juneau has had $11 million in cuts
since 2011 and 92 FTE positions have been eliminated. Juneau
faces a $3.5 million hole for the coming year with flat funding.
He said that Mat-Su is the opposite but the same. They cannot
keep up the number of staff needed for a growing population of
students. They fell 87 positions behind in FY 18 to maintain the
same level of education. Mat-Su Superintendent Monica Goyette
warned that "further budget cut threaten the quality of
education."
He reported that Nome expects to cut 10 positions next year. The
Kenai Peninsula and Kodiak have been losing staff and will lose
more staff next year with flat funding.
8:13:05 AM
REPRESENTATIVE GARA shared a quote from Lake and Peninsula
Superintendent Ty Mase:
Simply put, with each year of flat funding, we are
offering a less comprehensive education to our
students. We have cut our inefficiencies and niceties,
and now it is simply core services that are left,
services that honestly cannot be cut.
8:14:07 AM
REPRESENTATIVE GARA said that in Sitka class sizes may increase
up to 60 percent with flat funding. Their health care costs are
substantial, which is not uncommon for a small district. The
looming question for Sitka is how many teacher positions to cut.
8:14:45 AM
REPRESENTATIVE GARA said the story is the same around the state.
He shared a quote from Sarah Birrmans, BP Teacher of Excellence
2017.
Nine years ago, when I started teaching in Anchorage, I saw
65 students a day. I was full-time. This year I see 108
students a day and I am a .6 part-time employee with no
insurance. My husband and I are both award-winning
educators. We are leaving in 2-3 years if things don't
improve. Teachers and students need relief. Please help.
REPRESENTATIVE GARA referenced an opinion piece in the day's
Anchorage Daily News from a teacher who said she was leaving the
state because of lack of support for education. His neighbors
say they don't know if they want to raise children in Alaska
without a commitment to public education.
8:16:07 AM
REPRESENTATIVE GARA shared a quote from Jen Huvar, a teaching
assistant in Anchorage.
While budget cuts are felt to some degree every year, this
year they feel especially dramatic--like we've reached a
tipping point. Class sizes across core subjects now exceed
30 students in many cases. I was assigned to one science
class with 34 students . . . with tables and chairs for
only 30. The classes are simply too big for optimal
learning . . . or even adequate learning.
REPRESENTATIVE GARA reported that a high school student in
Wrangell cannot take three years of foreign language, which is
required by some colleges. The student said, "Consequently, I
take noninteractive, online courses and watch videos with no
teacher engagement."
He said educational opportunities lost are lost forever.
Students cannot come back to repeat the fourth grade once they
fix the budget crisis. Academy opportunity is simply lost. They
can afford to fix the fiscal crisis.
8:17:54 AM
REPRESENTATIVE GARA said superintendents and many education
organizations are in support of an increase across the state.
Districts are sounding the alarm over flat funding. He heard
from colleagues that flat funding is even funding and that as
long as education is not cut, everything is okay. Flat funding
is a cut. They will lose teachers, they will increase class
sizes, and they will lose curriculum. They lose programs that
keep kids interested in school.
He quoted Benjamin Franklin, "An investment in knowledge pays
the best interest." A student in Cordova said that chemistry is
taught every other year. Because of a full sophomore class load,
she could not take it until her senior year, which impacts her
college applications. They need a fiscal plan, but they can
afford an increase of $100 to the base student allocation. It
will prevent more damage.
8:20:16 AM
SENATOR BEGICH brought up HB 287, which the Senate voted on and
the House concurred with. The bill had the equivalent of $117 to
the BSA in grants. He asked Representative Gara to explain the
difference between funding education within the BSA and outside
of the BSA.
8:20:46 AM
REPRESENTATIVE GARA responded that they needed to look at the
bill passed in 2014 to see what happens when education is funded
outside of the base student allocation. The promise of $30
million outside of the BSA in 2016 never happened. The promise
of $25 million in FY 17 was cut. The 2014 legislature could not
control the 2015 and 2016 legislature. They cannot control
future legislatures. One-time funding is spent inefficiently.
School districts cannot spend as much on hiring staff if it is
only for one year. They can rely on and plan for money in the
BSA. The same dollar is worth more.
8:22:47 AM
SANA EFIRD, Deputy Commissioner, Department of Education and
Early Development (DEED), testified on HB 339. She said they are
acutely aware of the state's fiscal crisis, but children cannot
wait. The administration is supportive of an increase in the BSA
accompanied by a responsible budget and a sustainable use of
fiscal resources. Additionally, Commissioner [Michael] Johnson
will be requesting a lot from districts based on the Alaska
Education Challenge and the Every Student Succeeds Act
accountability plan. A BSA increase will be important as
districts work to meet those expectations to help improve the
achievement of all students
8:24:35 AM
SENATOR BEGICH said he has spoken to the commissioner about the
importance of BSA because the state cannot get to these places
they need to go unless there is predictability represented by a
known increase in the BSA. The state cannot get to the key
components unless stabilization of school funding is addressed.
He asked if that is a fair representation.
8:25:22 AM
MS. EFIRD said that is a fair representation. Districts cannot
base long-term planning on a one-time appropriation. HB 339
would give them the opportunity for a five-year, ten-year plan
to meet the needs of students.
8:26:11 AM
SENATOR BEGICH responded that it is critical that the signal to
school districts is to show an understanding of what they are
facing to get to solutions that some senators in the committee
have identified. For distance learning, it doesn't help if the
legislature does broadband grants and the schools don't have the
capacity to integrate that into programs at the school level.
8:27:01 AM
SENATOR HUGHES commented that since she has lived in rural
areas, she has a real concern and heart for rural students. She
wondered when they last looked at the foundation formula, 2004
or 2006. She could tell from the slide presentation that urban
schools are being hit substantially, and rural schools are very
challenged with recruitment. The last time the formula
foundation was opened up, there was an increase for rural
schools because of the recruitment issue, but that hasn't solved
that problem. She is a firm believer that they need to come into
the 21st century model for education. The Alaska Education
Challenge is going down the correct path. To her, urban schools
seem to be taking a disproportionate hit. She wonders whether
it time to look at the formula overall. That is a big task and
there is no time for it this session.
She asked where the department stands on that. They need to do
some rebalancing. Alaska is second in the nation per student
spending. It is a large state with extra expenses, but the NAEP
(National Assessment of Educational Progress) results are very
troubling. It may surprise people, but she would like to see the
formula corrected and then adjusted for inflation. The
legislature needs to address health care costs. One rural and
one urban district told her that 18 to 20 percent of their
funding goes to health care. One district was expecting an 11
percent premium increase. Another was expecting a 15 percent
increase. That is millions of dollars that could go into the
classroom. She would like to see teachers paid more. She
believes in the Finland model of elevating teachers, on par with
doctors and attorneys. They need to regard teachers that way and
expect excellence. Her main concern is about whether the formula
should be looked at and whether DEED has a position on that.
8:31:28 AM
MS. EFIRD responded that she does not have an official position
from the commissioner, but she has heard the commissioner say he
would welcome an opportunity for a conversation around the
formula. Every district faces its own individual challenge.
Alaska is proud of local control, but they need to look across
the districts and see how they are fairly accounted for and help
each achieve the goals it wants for its students.
8:32:22 AM
CHAIR STEVENS said he was in the legislature 12 years ago when
they opened up the foundation formula. The big issue at the time
was area cost differential, which he thought they dealt with
properly. He agreed that it is time to open it again. It takes a
great deal of effort from both houses, but it is an important
issue that needs to be revisited.
8:32:43 AM
SENATOR BEGICH referred to the Augenblick study [Review of
Alaska's School Funding Program prepared for the Alaska State
Legislature by Augenblick, Palaich and Associates] from four
years ago. The study concluded that the foundation formula was
fundamentally sound, but it contained a disincentive to
consolidation. A first step in looking at the formula is to
review the Augenblick study to see what it suggests. It gave
some warning signs as well. It is worth reflecting on. He
thought it also addressed the issue of geographic cost
differential.
8:34:37 AM
CHAIR STEVENS noted that the committee moved SB 216, which
allows districts to consolidate schools if they choose to. An
incentive is offered so they don't lose money.
SANDRA DAWS, Chief Financial Officer, Kodiak Island School
District, supported HB 339. She said Kodiak Island School
District has 2,400 students. The past year they have seen a
large reduction of $2.1 million for salaries and supplies,
including eighteen teaching positions and classified staff. They
have asked their borough for an additional $1 million for their
FY 19 budget, which could lead to a mill increase when the
community is facing a challenge with the fishing industry. If
they not able to get additional funding, they will cut more
teachers and classified staff and delay building maintenance.
Larger class sizes put a lot of stress on everybody. Their
superintendent, Larry LeDoux, says these cuts have faces that
they see every day. The cuts affect the students with the most
needs. They see more hunger and more stress in their students
than ever before. They have done tremendous things to reduce
costs. Almost the entire district has been moved to a high-
deductible plan. By 2020, the entire classified staff will be on
a high-deductible plan. An increase in the BSA will be a
$500,000 increase to Kodiak in FY 19. Keeping quality teachers
is the most important variable for student success.
8:38:05 AM
CHAIR STEVENS announced that he will lose the committee quorum
at 5 till 9. A lot of people have signed up for public
testimony. Since there won't be enough time, he urged them to
send emails or letters.
8:38:45 AM
MONICA GOYETTE, Ph.D., Superintendent, Matanuska-Susitna School
Borough, supported HB 339. She said Mat-Su is a large school
district of 19,000 students with a $250 million budget. During
three years of flat funding they have had $8 million in salary
increases, and their insurance premiums over three years have
gone up 35 percent. They share that burden with employees. With
these increases over three years with flat revenue, they have
had to cut eight percent of staffing, which is significant in
light of enrollment going up by 3 percent. This is a widening
gap. Mat-Su has the highest PTR [pupil-teacher ratio] in the
state. High school core classes have 35 to 40 students. They
kept all kindergarten classes under 30 this fall with no aides,
which is incredibly challenging. Their poverty rates and
students with disabilities have increased. Flat funding has
resulted in significant decreases for them.
8:41:52 AM
DEENA BISHOP, Ph.D., Superintendent, Anchorage School District
(ASD), supported HB 339. She said Alaskans need this
legislation. They need to come together for education. Anchorage
has experienced shifting demographics and population changes.
They had a decrease of 1,000 students the last five years. That
has meant decreasing funding, but expenses don't go down at same
rate. During the last five years, the district has made staffing
cuts of 394 FTEs, mostly classroom teachers. ASD education
programs and innovation methods are scaleable. Staffing follows
students and resources follow students. This year they are
reducing by 48 teachers, counselors, and administrators. Last
year it was 90 certificated staff. Exponentially the losses are
increasing greater than the loss of students. With their
negotiations, if anyone gets paid more, that means fewer people
in that unit. The last four negotiated contracts have zero
increases. State funding through the BSA is not keeping up with
costs. Anchorage pays 100 percent of the allowable local
contribution. They support their schools. It takes every Alaskan
working together to provide the best education for every child
in every school every day. She said Lower Yukon Superintendent
Rob Picou says, "We need to have one heartbeat. All of us."
8:46:00 AM
CHAIR STEVENS noted that over 30 people have asked to testify.
He will not get to everyone. He asked them to send in their
testimony. He reminded everyone that the state has over a $2
billion-dollar hole in the budget. Several bills are in motion
as they speak: HB 339 that is before the committee; HB 287,
early funding to eliminate the problem with pink slips; SB 26,
which would add one time funding of $30 million outside of the
BSA, equal to $117 to the BSA; SB 216, school buildings
consolidation incentive; SB 104, $30 million for curriculum, $10
million for three year; SB 102, Internet assistance for school
districts; and SB 185, the retiree rehire bill.
8:47:59 AM
NOAH WILLIAMS, Representing Self, supported HB 339. He shared
that he is a senior at Juneau-Douglas High School. He displayed
the laptop he uses as a web developer. It was really expensive,
painfully expensive, but as a web developer, he cannot afford to
not have the right tool. Any person who uses tools will give the
same answer, whether it is a wrench for a mechanic or
antireflective glasses for a pilot. They cannot buy cheap tools
and expect they won't fail. They cannot pay for cheap schools
and expect students will not fail. An increase to the base
student allocation is necessary. Flat funding is actually a cut.
Even the amount in HB 339 won't go far enough. They miss the
unknown unknowns, the potential for expansion. One that he sees
is that coding and computer science are not part of education
today. Students do not have the opportunities they could have to
expand into one of the fastest growing vocations. He concluded,
"Please don't buy cheap tools or cheap schools. Help us out."
8:50:43 AM
KAREN BARNARD, Representing Self, supported HB 339. She said she
went to school in Anchorage and was in youth symphony and
sports. These provided positive peer pressure and kept her out
of trouble. They also had school nurses and counselors and small
classes. Small classes win because they engage the students.
Forty-four percent of students in Alaska come from low-income
families. Suicide and the opioid epidemic indicate that people
are self-medicating. Cutting counselors contributes to the
epidemic. The Kodiak High School's World Bridge Team won the
NASA World Wind Europa Challenge two years in 2015 and 2016.
They won because of small classes, mentors, and projects that
are relevant. They need small classes. She ended by saying stop
cutting teachers, restore the teachers that have been cut, and
have classes of 15 to 20, not 31 in high school.
8:54:04 AM
GENE RANDALL, Representing Self, supported HB 339. He shared
that he has taught in Alaska for the last 13 years. He worked
with the B.E.S.T. (Behavior Education Support Team) program in
Juneau. Recently the state had bad news about students overall
and some of their scores being low [National Assessment of
Educational Progress], but there are successes to be reported.
In 2016, in his program at Thunder Mountain High School, he
helped a team of paraeducators support special education teens
and students with behavioral problems. That year, 100 percent of
Alaska Native students graduated at Thunder Mountain, which was
unprecedented. Many were in the program. In 2017, his last year
of teaching, the students in his program had a 100 percent pass
rate of all their classes. Without the support of B.E.S.T, those
teens would not have been successful. So many parents came up to
him or the paraprofessionals to thank them for helping their
students graduate. He urged the committee to support HB 339.
8:56:28 AM
CHAIR STEVENS held HB 339 in committee.
8:56:50 AM
There being no further business to come before the committee,
Chair Stevens adjourned the Senate Education Standing Committee
at 8:56 a.m.