Parents line up to take photos of their children on the first day of school Tuesday at George Washington Elementary School in Lodi.
Credit: Diana Lambert / EdSource
Children wearing colorful new backpacks, parents in tow, hugged and high-fived Principal Gina Lopez and other school staff as they streamed under an arch of multicolored balloons, accompanied by pulsating music, on the first day of school at George Washington Elementary School in Lodi on Tuesday.
Lodi Unified in San Joaquin County was among the first California school districts to return to school this year, beginning just after Sweetwater Union High School District in San Diego, which reopened on July 24. Some districts, many with year-round schedules, started even earlier.
California school districts have moved away from the September return to school that was common in California and other states until the 1990s. School districts sometimes made the change to allow students to complete their semester studies and take their final exams before the winter break. It also gives students more time to prepare for state standardized tests.
Sweetwater Union decided to complete its first semester by December to maximize instruction days before Advanced Placement testing, according to a statement from the district.
“Key educational benefits to an earlier start date include reducing summer learning loss, alleviating overcrowding in schools, and aligning the calendar with four feeder districts — Chula Vista Elementary, San Ysidro, National School District, and South Bay — allowing families to coordinate vacations and child care more effectively,” according to the district statement.
An EdSource survey of California’s 30 largest school districts this year found that all are returning to school before the Labor Day holiday in September and 21 of those are returning by Aug. 15. In 2014, seven of the 30 largest school districts were still starting school after Labor Day, according to an EdSource survey that year.
Some districts that instituted earlier start dates have opted to end the school year earlier, but others have shortened the summer break and added days off during the school year.
California isn’t the only state returning to school early. About 70% of U.S. students had returned to school by Aug. 25 last school year, according to the Pew Research Center.
Summer shortened decades ago
The students at George Washington Elementary and other Lodi Unified schools are used to returning to school in late July or early August — the district has been doing it for about two decades. Sweetwater Union High School District has been returning to school in late July for more than a decade.
Lodi Unified moved its schools to a year-round schedule in the late 1980s because of overcrowding. It changed course in the early 1990s, after high schools struggled with the schedule, and began to move schools to a modified traditional schedule as they built more schools, said Superintendent Neil Young. Today, all of its schools are on a schedule that divides the year into quarters with a two-week break after each one.
Priscilla Spagnola, an intervention teacher at George Washington Elementary, high-fives a student as she arrives at the Lodi school on Tuesday.Credit: Diana Lambert / EdSource
Kindergarten students at George Washington Elementary in Lodi listen to teacher Kristen McDaniel read “Your Teachers Pet Creature” on the first day of school on July 30, 2024. Credit: Diana Lambert / EdSource
Madeline Casey walks her daughter Sophia to her first day of first grade at George Washington Elementary School in Lodi on July 30, 2024. Credit: Diana Lambert / EdSource
George Washington Elementary School Principal Gina Lopez welcomes students on the first day of school on July 30.Credit: Diana Lambert / EdSource
Parents and students look at a board containing classroom assignments by teacher on July 30, 2024. Credit: Diana Lambert / EdSource
Most parents and teachers have been in favor of the calendar and there has been no interest in changing it, Young said.
“I know for our teachers to be able to do a reset at the end of each quarter and begin the new quarter refreshed has been a positive,” he said. “And I have heard teachers say they appreciate that.”
George Washington Elementary teachers Jenny Hampton and Natalie Smalley agree. They both prefer the regular breaks to a longer summer.
“Those two weeks every nine to 10 weeks, like the kids are ready for a break, we’re ready for a break and so we just, we like that better,” Hampton said.
Students excited for new year
Sisters Karina Barron and Maria Barron remember starting school in July when they were students in Lodi Unified schools. On Tuesday they were dropping their children off at school. Their families like the school calendar, they said.
“They kept asking when school started,” said Karina Barron of the children.
The kindergarten through sixth-grade students streaming through the doors of George Washington Elementary seemed excited to be back in school.
“It’s better to be learning, so in the future I can have more life skills,” said Emmanuel, a sixth-grade student. His favorite subject is math.
It’s all new to kindergartners
Kindergartners in Kristen McDaniel’s class have no recollection of a time when school started in September. On Tuesday they each sat on a square on a rug in the middle of the classroom, much like decades of students before them. On a stool in the corner, one little girl wept, reluctant to join the group.
McDaniel, who has taught kindergarten in the same classroom at George Washington Elementary for 25 years, knows the first day can be tough for her students. Everything takes longer on the first day of school, she said.
The first day of school can be difficult for kindergartners not accustomed to being away from their parents. Shortly after this picture was taken, this little girl calmed down and had a great day, reported her teacher at George Washington Elementary in Lodi.Credit: Diana Lambert / EdSource
“They don’t know where their cubbies are,” McDaniel said. “They don’t know how to walk in, where to go. So, it took a little bit of extra time today in order to get them to the carpet to circle time.”
The first day can also be tough for teachers. McDaniel repeatedly told one boy to sit and not to lie on the rug, and twice had to gently remove the hand of a girl who grabbed at the book she was reading to the class.
“This first day is so hard, and if it stayed this way, no one would ever, ever do it,” McDaniel said. “You couldn’t pay me enough to do this every single day. But the growth that you get at kindergarten versus other grade levels, it’s just incredible. And that’s why I do it, because I remind myself of this day and how they didn’t even know how to sit or just wanted to lay down on the carpet instead.”
By the end of kindergarten, the students will be reading, adding and subtracting and focusing on literature, she said.
McDaniel started the day by reading “Your Teacher’s Pet Creature,” which reinforces positive classroom behavior and introduces students to the stuffed class pet. During circle time, each child passed the class pet to the child sitting beside them, after reciting their name and receiving a welcome from the class in return.
“The point of that first circle time is to build community, to get them to feel like they’re a part of the class and to learn about each other,” McDaniel said.
Kristen McDaniel, who has taught kindergarten in the same classroom for 25 years, started the first day at George Washington Elementary in Lodi Unified with an opening circle to help the student acclimate to being in school, and to develop a sense of community in the classroom. Each child passed around the class pet, a stuffed creature, after reciting their name and receiving a welcome in return.
With introductions made and cubbies squared away, McDaniel dived into instruction, holding up a flash card with an apple to introduce the letter A. Shortly after, the little girl in the corner wiped away her tears and joined the group.
“She actually had a great rest of the day, reported McDaniel.
The kindergartner wasn’t the only one overcome emotionally at the start of school. Principal Lopez said she became emotional when she visited classrooms the day before school, especially when she saw that the old mismatched desks and chairs had been replaced with new furniture.
“This is like my 24th year, but you know, every beginning is always special,” said Lopez. “Right? Because this is my heart.”
EdSource reporters Mallika Sheshadri, Lasherica Thornton, Emma Gallegos, Zaidee Stavely and Betty Márquez Rosales contributed to this report.
While California’s school truancy law remains on the books, school districts in recent years appear to have become less and less likely to enforce punitive measures against parents.
Multiple phone calls, emails, letters and requests for meetings are what parents should expect if their child is deemed truant. If those steps don’t get the child back into school, state law gives districts the right to take parents to court.
But how often that happens is up to school officials and prosecutors and, clearly, officials say, the times have changed. Punitive measures have been shown to be less effective, especially if the reason for the child missing school is beyond the parent’s control.
While parents have been arrested in California for their children being habitually absent from school, it is unclear how many cases resulted in criminal charges. According to state law, a district can declare a student truant and refer them to the district attorney after three unexcused absences of more than 30 minutes during the school year, potentially facing fines and even jail time.
“It’s fair to say that most districts go beyond what the law requires in terms of trying to address these challenges internally at the district level prior to engaging the criminal justice system,” said Jonathan Raven, assistant CEO of the California District Attorneys Association.
State law gives prosecutors wide discretion over how to charge parents when their child is truant, from an infraction, akin to a traffic violation, to a misdemeanor, contributing to the delinquency of a minor.
Chronic absenteeism in California schools is part of a national crisis over children missing school, especially during the pandemic. In California, the percentage of chronically absent students skyrocketed from the pre-pandemic rate of 12.1% in 2018-19 to 30% in 2021-22, after the pandemic. The percentage dropped to nearly 25% in 2022-23.
The state’s truancy law grew out of Kamala Harris’s efforts as a prosecutor to stem the number of high school dropouts who ended up in the criminal justice system.
In San Francisco, where she was the district attorney from 2004 to 2010,she implemented a truancy initiative that introduced the threat of prosecution of parents and guardians when children habitually missed school. That initiative became the model fora 2010 state law that Harris sponsored which adopted strict penalties for parents of truant students: a fine not to exceed $2,000, jail time not to exceed one year, or both.
The penalties could be applied if a student was habitually truant, meaning they missed 10% or more of the school year and only after parents had been offered a range of support services to address the student’s truancy. Truancy courts were created where the penalties could be deferred so long as the students begin attending school. While attorney general from 2011 to 2017, her office created an on-line truancy hub with truancy reports from 2013 to 2016.
The first arrests under the law were in 2011 of five parents in Orange County. The arrest option has since become controversial as districts focus first on how to solve the problems leading to truancy. During her2019 presidential campaign, Harris stood by the goals of the law but insisted in a podcast interview at the time, that she “never sent a parent to jail” when she was a district attorney. Even though the 2010 state law specifically changed the penal code to include fines and jail time as potential penalties in truancy cases, she said in the same 2019 interview that she regretted knowing some district attorneys had criminalized parents under that state law.
California’s law specifies that with students who are habitually truant, the goal is to keep young people out of the juvenile justice system and in school.
State education law lists over a dozen reasons for excusing students from school,but most excused absences, school officials say, are related to illness and mental health. Unexcused absences often mean that students lacked documentation such as a note from a doctor, or that they provided no reason for their absence or that the reason they provided does not qualify as an excusable absence.
While six out of 10 absences were excused during the 2022-23 school year, four out of 10 were unexcused, state data shows. Both numbers were similar to pre-pandemic levels. The 2023-24 data has not yet been released.
A case study in Santa Clara County
In Santa Clara County, just south of San Francisco, for example, a prosecutor from the district attorney’s office speaks with parents at the start of the school year.
“I go to back-to-school nights to speak not about the law and its consequences, but about attendance and its importance, and particularly attendance in the earliest grades,” said Alisha Schoen, community prosecutor for Santa Clara’s district attorney’s office.
Educators and researchers highlight targeted and constant communication with families — such as phone calls, emails, texts, letters and direct, in-person contact — as a powerful solution to chronic absences. In Santa Clara County, school districts conduct home visits if a student is near truancy.
If that communication doesn’t result in the student attending school regularly, the family is then referred to the local student attendance review board, SARB. The SARB will open a case during which the family must sign an attendance contract stipulating their child will attend school regularly.
With methods in place to help students return to school, attendance issues are most often solved at the school or district level, said Schoen.
But if the student continues missing school, despite all interventions, the student attendance review board then has the discretion to send the case to the local district attorney’s office, at which point the parents could be prosecuted.
Those cases go to Schoen, who might either issue the parents an infraction, like a traffic violation, which is not punishable with jail time but could carry a fine, or decide that the district or school must take additional action in addressing the absences prior to involving the court.
“The cases that I file in my court are almost always cases where the parents refused to come to the school site meeting, did not come to the SARB, didn’t answer the door at the home visit, so this is the necessary step to get them to the table so that then we can talk about the problem and offer supportive services,” Schoen said.
Upon being issued the infraction, the parents then enter what Santa Clara County calls a collaborative truancy court, through which they offer students and their parents access to a county behavioral health social worker, enroll parents in a 10-week in-person or online parenting class, and assign a caseworker to families who might be experiencing far-reaching challenges such as homelessness or unemployment.
“Our throughline is that truancy is a red flag that tells us this child or their family are experiencing some crisis, and we have to recognize that red flag as such, and then get the supportive services to the family to address that underlying crisis so that the attendance can then improve,” said Schoen.
Schoen described how they issue infractions, for example, not misdemeanors; if parents plead guilty, they request the lowest possible fine; and they make every effort to dismiss the case to avoid fines.
“We don’t believe that assigning a large fine will improve their child’s attendance, and it could possibly have a negative effect,” said Schoen.
Of over 234,000 students enrolled in Santa Clara County during the 2023-2024 school year, Schoen’s office heard 130 truancy cases — although some of those cases were from the previous school year. Infractions were issued to 34 parents; 28 were dismissed as student attendance improved, and six parents pleaded guilty. Those six were issued fines, and their court fees were waived. The remaining cases will be continuing this year.
In the past, some counties are known to have taken a more punitive approach.
Merced County in 2017initiated an anti-truancy effort that included the arrest of 10 parents for failing to send their children to school. They were charged with misdemeanors, contributing to the delinquency of a minor.
Jennifer McHugh, a deputy district attorney in Yolo County, considers it “very unlikely” that she would support jailing parents in truancy cases because once the case is over, “have you really solved the problem?”
In the last year, McHugh got school district referrals for 15-20 students who were excessively truant.
“In the past year, it’s only been one district that’s sent me names of truant students, and I don’t think they’re sending me everyone who’s been truant three or more times, because those would be way more people,” said McHugh. “They’re sending me the people who are excessively truant, you know, 60, 70, 80% of the time that this child’s truant kind of cases.”
Those students and their families entered mediation with the district attorney’s office. During mediation, McHugh meets for 30 minutes to an hour at the county office of education — “a neutral place,” she said — to sign an attendance contract. The meeting includes the student, their parents, McHugh, student support services from the district who have made previous contact with the parents, and others with direct knowledge of the student’s situation.
The point of the contract is not perfect attendance; rather, “good enough” attendance is what McHugh is looking for in order to avoid further court involvement. It’s up to every district to decide when to prosecute.
“My perspective on it is we’re trying to resolve the issue. We’re trying to get them into school,” she said.
Of the 15-20 students in mediation, only two cases were filed against parents. In one case, the student began attending school and the case was dismissed. The second case is pending.
Impacts of targeting chronic absenteeism
While the law stipulates that students with many absences are truant, language today describes the problem as chronic absenteeism, a situation that can be fixed with the proper supports. Another issue is who is targeted when district attorneys get involved in fighting truancy or chronic absenteeism.
“The problem is having kids being labeled unexcused, it’s not equally distributed,” said Hedy Chang, executive director of Attendance Works, a nonprofit that works to improve student attendance.
Her research on unexcused absences, published last year in a PACE report, also found that California “schools serving more socioeconomically disadvantaged students communicate more punitive approaches.”
Certain demographics of students are more likely to have unexcused absences: Black, Native American, Latino, and Pacific Islander, regardless of socioeconomic status, along with low-income students, the study found.
Schools serving students who are socioeconomically disadvantaged were far more likely “to publish policies stating that truancy would result in suspension of driver’s licenses, loss of school privileges like extracurricular participation, and Saturday school or in-school detention,” the report said.
The researchers reviewed the school handbooks of 40 California middle and high schools — half of the schools had a population of over 90% of socioeconomically disadvantaged students and the other half had a population of less than 50% of socioeconomically disadvantaged students.
There are some biases in the system “around how absences are treated and who gets labeled unexcused,” Chang told EdSource. “And sometimes that’s because we don’t have the supports and resources to really do outreach to families.”
She added, “When the truancy laws got created, you didn’t have chronic absence even as a metric or even as an accountability metric for schools, and by having chronic absence as an accountability metric, you are saying: ‘Hey, schools, you’ve got to do something about this.’ So it’s not just the court system that has evolved over time. There is a pretty broad standing consensus that you wantto invest in prevention first and you use a legal system as a last resort.”
Starting this school year, Fresno Unified is adopting an early release schedule, joining a dozen of the state’s other largest school districts as well as its neighbors in Fresno County who’ve embraced the practice for years.
Now, students enrolled in the state’s third-largest district with nearly 70,000 students will be released about an hour early every Tuesday of a five-day school week. The district’s schools began notifying families in the weeks leading up to the first day this coming Monday.
Many districts utilize early release days each week for teacher and staff professional development, such as training and/or planning.
In Long Beach Unified, the state’s fourth-largest district with around 65,000 students, the early dismissal days are known as “prep days.” The 49,000-student San Bernardino City Unified dubs its days “Collaboration Day” while others such as Elk Grove and Kern High School District simply classify them as “early out” days.
No matter the name, the practice provides “much-needed time for our teachers to plan, work together on professional learning and engage with our parents and families,” said Misty Her, Fresno Unified interim superintendent at a Wednesday press conference about the 2024-25 school year.
“In October 2023 when the Fresno Teachers Association and the district reached a new contract agreement, the agreement included more time for teachers to engage in professional learning during their workday,” according to the FAQ page. “Early release every Tuesday provides this time for meetings and other forms of professional learning.”
What does it mean for students, staff?
Districts bordering Fresno Unified employ early release days as well, including Clovis and Central Unified located in Fresno County.
Clovis Unified, for instance, has used the early release days for at least 25 years.
According to the district’s FAQ page, while each campus will follow the Tuesday early-release schedule, the actual time of dismissal may vary, depending on a school’s bell schedule. Students attending Design Science Middle College High School who take classes at Fresno City College will get their early-release day on Friday, and the district’s child development and preschool programs will continue to follow a schedule outlined by the state.
Parents in the Bakersfield City School District have long been accustomed to their children getting out an hour early on Wednesdays.
“As a stay-at-home mom, it doesn’t affect me,” said Vicki Ramos, a mother of three students who attend Evergreen Elementary in Bakersfield. “For people that have jobs, it’s kind of inconvenient because they have to get childcare.”
After-school programs usually provide that care for enrolled students.
The after-school programs throughout Fresno Unified will still start immediately after dismissal on Tuesdays to offer extended learning and support to students. Buses will also run early.
Even though early release means students are spending one less hour in the classroom on Tuesday, Her said they will not be missing out on instruction because the time subtracted is made up every other day of the school year. She added that the opportunities to involve families and collaboration among teachers will improve the way educators serve their students.
Teachers can connect and engage with parents more often, especially if their students are struggling, Her said. For example, rather than waiting until parent-teacher conferences weeks or even months into the school year, the early release provides the opportunity for intervention on a weekly basis.
Superintendent Her’s No. 1 goal for Fresno Unified is to improve student outcomes by decreasing the distance from standards by 15% in the next two years. Distance from standards measures how far students are from meeting proficiency. So as part of the professional development offered during early-release schedules, teachers will work together and with school administration to target the goal of bettering student academic gains, she said.
“We’re really hoping that with teachers working closely together, planning together, coming up with their lessons together, it starts to impact what we … get for students.”
Plumas Unified in northeast California, with an enrollment of about 2,000 students, will be the first district in over a dozen years to seek a state bailout.
California’s system of financial oversight of school districts has mostly worked, having kept all but nine of them from seeking a state bailout loan to avert insolvency.
The key to keeping school districts from financial disaster has been close oversight by county offices of education and monitoring by the Fiscal Crisis and Management Assistance Team.
Plumas Unified, a small school district in the Sierra Nevada in far northeast California, is on track to become the first district in over a dozen years to join nine others that have had to get a bailout loan from the state to avert bankruptcy.
In the last week of April, its school board voted to request an emergency state loan of up to $20 million, explaining that it has “exhausted all of its sources of alternative liquidity and any external sources of short-term cash.”
The district joins a select group of districts that no one wants to belong to.
A state bailout is accompanied by rigorous state and county oversight, loss of local control, extra expenses in paying off the loan, and other conditions that last for years.
“Manage your finances because you don’t want this,” said James Morris, the administrator appointed to oversee Inglewood Unified in Los Angeles County, which has been in state receivership for 13 years.
Carl Cohn, a leading educator who was superintendent in Long Beach Unified and San Diego Unified, and a former member of the State Board of Education, says getting a state bailout is a fate to be avoided at all costs.
“It’s really important to maintain that sense of an empowered community through locally elected officials,” he said.
From the state’s perspective, “There’s no way the state is itching to get its hands on these districts either,” said Richard Whitmore, the first state-appointed administrator at Compton Unified after it got an emergency bailout loan in 1993.
“It’s bad for public education to have these districts fall into what is essentially bankruptcy,” said Whitmore. “It costs the state a ton of money to intervene and do all this work, which they are not well-prepared to execute, so they have to go into crisis mode when it happens.”
On the face of it, however, it is remarkable that fewer than 10 school districts, out of close to a thousand in California, have had to submit to state receivership in return for getting a bailout.
It suggests that the state’s system of oversight is mostly working as planned.
Districts Placed Under State Receivership
West Contra Costa Unified, 1990* Loan amount: $28.5 million. Low-income students: 63%**
**Low-income refers to the percentage of students qualifying for free and reduced price meals.
***District merged with Washington Unified; low-income figure is for Washington Unified.
That system came into existence in response to West Contra Costa Unified’s insolvency in 1990, when it became the first district to get a bailout from the state.
Assembly Bill 1200 in 1991 decreed that, as a condition of receiving a loan, the state superintendent of public instruction must appoint an administrator to oversee the district. Under 2018 legislation (AB 1840), it is now the county superintendent of schools who appoints the administrator.
The 1991 legislation also established an independent fiscal oversight agency, the Fiscal Crisis and Management Assistance Team, or FCMAT (universally pronounced “Fickmat” in education circles).
One reason only a small number of districts have had to turn to the state for a bailout has been the effectiveness of FCMAT, and the stability of its leadership. Since its founding, it has had only two CEOs, Joel Montero and Michael Fine, its current leader. Both are highly regarded in education circles.
Another factor is that school districts must submit their budgets to county superintendents for review at least three times during the year, known as the first and second interim budgets, and the final budget, which must be approved by July 1.
“They’re the early warning system,” said Karen Stapf Walters, executive director of California County Superintendents, referring to the school superintendents in all 58 counties. “When they see a district going south, they jump in with body and soul and give a district whatever it needs to get back on track.”
Fine said FCMAT’s role is to steer school boards to the point that they ultimately sit down and do what they need to do when they need to do it.”
But getting out of receivership is an arduous process. Districts have to meet over 150 standards set by FCMAT, in areas such as financial management, pupil achievement, personnel and facilities management, governance and community relations.
Even after it meets those standards, and the administrator leaves, the district is likely to be paying off its loan still. The county superintendent then appoints a trustee with fewer powers than the administrator, but who can still veto financial decisions made by the elected school board until the last loan payment is made.
Many school leaders say the funds and years that districts spent paying off a loan could have supported current education programs. “The children sitting in classrooms in Inglewood today are paying for mistakes made, many of them before they were even born, by folks who are not here any longer,” said Inglewood’s Morris.
In West Contra Costa’s case, it took 21 years to pay off its bailout loan of $28.5 million, plus $19 million in interest and fees.
When the district paid its final installment in 2012, then-board member Madeline Kronenberg called it “Independence Day” for the district. But she regretted that years of loan payments meant “thousands and thousands of children were unable to get what other districts provide.”
And yet, enduring years of state receivership doesn’t necessarily translate into a district’s long-term financial health.
Just the opposite. Of the nine school districts that have been through state receivership — all serving mostly low-income students — at least five are still experiencing severe financial difficulties.
Coachella Valley Unified, which got a bailout loan in 1992, is cutting hundreds of jobs as it tries to close a $6 million shortfall. Inglewood Unified is about to close five schools, including its storied Morningside High School.
In what should be cause for celebration in Vallejo and Oakland, both will pay off their state loans next month and regain full control of their districts for the first time in 20 years.
But both districts still face major financial challenges. Vallejo City Unified, dealing with a budget shortfall of $36 million, is on the verge of closing two schools. Oakland is similarly struggling, with considerations of another insolvency not yet off the table.
West Contra Costa, whose budget just received a “positive certification” from the county office of education, is still operating with a structural deficit and will rely on reserves to get through the next two years.
At times, the underlying conditions that got districts into trouble persist, such as declining enrollments and the absence of strong fiscal leadership by subsequent school boards or superintendents. Too often, the lessons learned from earlier financial meltdowns are forgotten or ignored.
One district that has turned around is Compton Unified, which, under the leadership of Superintendent Darin Brawley, has made significant improvements not only on the academic front but also in achieving financial stability.
Brawley said he only calculates his budgets based on funds actually in district coffers, not on funds it is slated to receive. In addition, he made cuts gradually over the years as conditions warranted, and did not wait until the district was in crisis.
He says district officials are too often “conflict-averse,” and “rather than make the tough choices, and what may be the right decisions to remain fiscally stable, they will oftentimes not make decisions, and then the problem balloons into a much bigger issue.”
Now it’s Plumas Unified’s turn to cede control to the state. In late April, facing an $8 million deficit on its $42 million budget, Plumas Unified’s board called a special meeting to request a state bailout loan.
The district covers 2,600 square miles, a vast area in the Sierra Nevada, providing schooling for about 2,000 students with few other options.
How did it escape the oversight system that has, over the past dozen years, kept every other district but nine from having to turn to the state to bail them out?
“Plumas unfortunately came up on the radar too late for us to help them,” said FCMAT’s Fine. One reason, he said, is because “I don’t think they were being 100% honest about their numbers.”
For example, the district awarded staff a 14% pay increase, without having a viable way to calculate its costs, he said. “Without reliable numbers, it is difficult to know the condition of a district and thus to get in early enough to assist.”
Editor’s note:Richard Whitmore is a member of the EdSource board of directors.
Next Week: Inglewood Unified’s unfinished journey to get out of state receivership
West Contra Costa Unified’s Stege Elementary School in Richmond.
Photo: Andrew Reed/EdSource
A recently filed lawsuit against the West Contra Costa Unified School District could set a new precedent for how districts in California handle and comply with complaints filed by students, educators and community members.
The lawsuit, filed by civil rights law firm Public Advocates last month, alleges the school district failed to remedy issues in the required time frame for nearly 50 “Williams complaints” filed by teachers, students and parents since June 2023. The bulk of the complaints were about poor building conditions at Stege Elementary School, and three were filed about teacher vacancies. There are five complainants, including four educators and a parent, who are suing the district.
West Contra Costa is the first district in the state to be sued under the Williams v. California settlement in 2004, a landmark case that established the Williams complaint process, and the right to textbooks, safe schools and qualified teachers for all California public school students. Public Advocates attorneys led that charge 20 years ago and are now turning to the courts to uphold the standards it set and to stop the unlawful practice of filling full-time teacher positions with rolling substitutes.
“It’s important for districts to know that this is a process that can be enforced by the courts, and they can be subject to a court order when they don’t abide by this specific process,” said Dane Shikman, attorney with Munger, Tolles, & Olson LLP, who is assisting with the lawsuit.
Public Advocates attorney Karissa Provenza said she hopes the lawsuit sets a precedent and that other districts that aren’t complying with the Williams complaint process “fall in line.”
The law firm has kept a close watch on West Contra Costa for years, and Provenza has spent the last few years building relationships with educators, organizers and families. But it shouldn’t just be those districts that Public Advocates attorneys are watching that are held accountable.
“We know there are issues across the board when it comes to districts following through with Williams complaints,” Provenza said. “We’re hoping this (lawsuit) can stand out.”
Anyone can file a Williams complaint, and school districts have up to 30 days to fix the issue and 45 days to respond to the complaint in court. District officials responded to the 45 building condition complaints at Stege Elementary School six months later, and only after plaintiffs’ attorneys repeatedly reminded the district of its legal obligation, the lawsuit alleges.
“It’s a highly informal process that the districts often get away with something less than a full remedy of the complaints, or they delay on getting a response back,” Shikman said.
According to the lawsuit, West Contra Costa’s response “acknowledged the complaints, cited a nonexistent section of the Education Code, claimed the district had no duty to respond within the statutory 45-day timeline, and promised to provide a substantive response with an update by January 12, 2024.”
That response never came, the lawsuit says.
The complaints said the Richmond school had moldy walls, inoperable windows, classrooms reaching more than 90 degrees without ventilation, and broken floor tiles. Lead and asbestos were also found after the district hired an environmental firm to test building materials.
“One of the worst conditions for the students’ learning and teaching was probably the heat,” said Stege teacher Sam Cleare, who is one of the complainants in the lawsuit. “My first year there, we even watched crayons melt outside, but it wasn’t even that much hotter outside than it was inside.”
A student in the after-school program at Stege Elementary School in the West Contra Costa Unified School District.Credit: Sam Cleare
Building conditions at Stege Elementary were never improved, and district officials have “repeatedly” acknowledged conditions at Stege were “dangerous,” the lawsuit says. Superintendent Chris Hurst announced the school was closing for repairs on July 23, four days after the lawsuit was filed and hazardous materials were detected during the removal of window panels.
District officials did not respond to requests for comment on this story and have previously said they don’t comment on litigation.
Unlawful practices
District officials did respond to the three complaints about teacher vacancies, the lawsuit says, but the positions weren’t filled within 30 days and solutions weren’t reported.
Hurst addressed teacher vacancies at a recent board meeting and said the district is “working hard” to fill all positions before the start of the school year this week. The district has posted on job boards and social media platforms, attended job fairs and is partnering with residency programs to recruit teachers.
“But the district’s statutory mandate is not just to ‘try hard’ to recruit teachers; it is to actually provide every student with a permanent, qualified teacher,” the lawsuit says.
If positions aren’t filled, the district’s plan is to fall back on substitutes, which is the reason teacher vacancy complaints were filed in the first place. The complaints said it was illegal to rely on substitutes long-term and in the district’s response, officials acknowledged its practices were unlawful.
Provenza said she is not surprised the district continues to rely on substitutes.
“I wish I could start hearing that they were going to start shifting their ways, but unfortunately, it seems like relying unlawfully on substitutes is something that they’re going to continue to do,” Provenza said.
The district has relied on day-to-day, 30-day, and 60-day substitutes to fill teacher vacancies. Teachers have also had to pick up extra classes or have had students added to their classrooms, often from different grades. This school year, the district is also asking credentialed staff who aren’t usually in the classroom to step in.
“Substitutes did not follow curricula or assign homework as a dedicated year-long educator would have, and students in those classrooms were denied the stability and consistency that a permanent qualified teacher provides,” the lawsuit says.
Complaints were filed at Stege Elementary, Helms Middle and Kennedy High schools, some of the district’s highest-need schools, where more than 80% of students are low-income. Substitutes were used for an entire school year in some classes, the lawsuit says.
Some students at Kennedy High weren’t sure they would receive grades at the end of the last school year because they never had a permanent teacher, according to the lawsuit. Permanent teachers weren’t assigned to an English language development class, a reading and writing class, a P.E. class, and two music classes.
Most of Kennedy’s students are Hispanic or Latino and Black or African American — 73% and 18% respectively in the 2022-23 school year, the most recent year of available state data. That same school year, 84% of students did not meet grade-level math standards and nearly 58% did not meet reading standards.
A math, science and English class at Helms Middle did not have permanent teachers the last school year, the lawsuit alleges. Nearly 70% of Helms students did not meet grade-level literacy standards and 82% did not meet math standards for the 2022-23 school year, data shows.
Helms Middle mostly serves Hispanic and Latino students, almost 83% in the 2022-23 school year. The next largest population is Black or African American, about 7%. Almost half the students (47%) are also English learners.
There weren’t permanent teachers in a kindergarten, third grade, fourth grade, and second and third grade split class at Stege Elementary last year, according to the lawsuit.
Most of the student population is Black or African American, nearly 39% in the 2022-23 school year, and Hispanic or Latino, 34%. About 73% of students did not meet grade-level standards in math and 75% did not meet literacy standards.
The lawsuit calls the teacher vacancy problems in the district a “crisis.”
West Contra Costa “faces more teacher vacancies than its neighboring districts and continuously under performs in retaining fully prepared and properly assigned teachers,” the lawsuit says. “Quality teachers are the leading school-related factor contributing to a student’s success.”
Students have complained to the board during public comment about teacher vacancies this past school year, saying they aren’t motivated to attend class with consistently different teachers. One high school student said they weren’t learning any new materials in math class.
According to the lawsuit, the district hasn’t reported any solutions to fill teacher positions and blamed the vacancies on the statewide teacher shortage. The lawsuit gave various solutions, including assigning certified teachers of other subjects to vacant classes, using emergency teaching permits, and hiring university interns and retired teachers.
Last year, West Contra Costa did tap into retirees to help fill vacancies, but it’s unclear how many and if these efforts are continuing. The district has said it can’t hire retired teachers for a full school year, the lawsuit alleges, but attorneys claim that under SB 765, districts can do so.
Problems filling teacher vacancies are also connected to poor working environments, Provenza said. It’s difficult to attract and retain teachers when they don’t feel supported, are overworked, and lose prep periods to cover other classes.
‘This year made staying very challenging’
Educators, parents and community members have fought for better conditions at Stege Elementary for years, and for teacher Sam Cleare, her advocacy efforts began with the 45 Williams complaints.
She called the conditions at Stege “inhumane” and “unbearable” and said there was nowhere to escape the heat.
“Students felt sick,” Cleare said. “I felt lightheaded. Not only was it difficult or impossible to learn, but it felt unsafe as well.”
Sam Cleare, a third-grade teacher, has taken a job with the teachers union.Credit: Andrew Reed / EdSource
Cleare remembers the windows starting to fall apart when trying to open them and said once she cut her finger on the edge of a window. She taught at Stege for the last seven years, and said it was her dream to retire there. But she’s decided to take a job with the teachers union.
“I will miss working at Stege terribly, but this year made staying very challenging,” Cleare said. “Many teachers struggle to stay at the school due to the working conditions.”
On top of teacher vacancies, Stege has battled dwindling enrollment, chronic absenteeism and a long-awaited renovation for nearly a decade. The building was slated to be remodeled by the 2020-21 school year, but there have been delays. Last November, the board approved an increased budget for renovations, from $2.9 million to $43 million, because of the severe need for repairs.
Parents and community members have been frustrated by the delays and lack of funding going toward repairs. The concerns resurfaced at a Stege community meeting last week when parents were calling out district officials for not addressing the health hazards and safety concerns sooner.
District officials shared an annual report on Stege with the community, the Facility Inspection Tool, a visual inspection that determines if a school needs repairs. According to the report, Stege received a “good” rating, which means “the school is maintained in good repair with a number of non-critical deficiencies noted. These deficiencies are isolated, and/or resulting from minor wear and tear, and/or in the process of being mitigated.”
Meeting attendees were outraged by the conclusion of the inspection, which was done last August, and said it was offensive. Parents and educators told stories about sewage coming out of the toilets when flushing, drywall issues, and complained that students were subject to unhealthy conditions.
With the temporary closure of Stege Elementary, students and staff are starting the 2024-25 school year at Dejon Middle School.
Third graders at Alpha Cornerstone Academy join their individual Ignite Reading tutors for their 15-minute daily session on phonics and other fundamental skills in reading,
John Fensterwald / EdSource
Top Takeaways
Up to 40 districts and charter schools can sign up to design their own high-impact tutoring.
Unless they’ve spent billions already, districts should have funding available.
Both online and in-person high-impact tutoring will work can show impressive results – if done right,
A recent visit to Alpha Cornerstone Academy, a TK-8 charter school in San Jose, offered a glimpse of high-impact tutoring. It was during the intervention period in third grade, a time when teacher specialists work in small groups.
In one corner, five students in their maroon Alpha school shirts sat around a horseshoe table, listening intently through earphones to their own tutor from Ignite Reading, a growing Oakland-based public benefit corporation operating in 20 states. Ignite specializes in tutoring foundational skills – phonics and phonemic awareness. Each lesson was different; some students were repeating words with similar letter sounds. One girl, Sophia, was reading paragraphs to her tutor.
At the start of the year, 103 students were reading from kindergarten and first grade levels, said Fallon Housman, the school’s principal; some were newcomers to the school; others were English learners, fluent in their home language but needing extra time, and others have been identified as having a learning disability.
Now, with the school year coming to a close, all but 20 are reading at third-grade level, Housman said. Sophia is now among them. “I feel like it’s earlier to read,” Sophia said quietly.
“We see a lot of our third graders actually do really well towards the end of third grade because of all of the interventions and supports. We’re excited to have Ignite because it’s an extra push, focusing on foundational skills,” Housman said.
What’s happening at Alpha Cornerstone Academy classroom could be in many California districts. Unlike districts in other states that are scrambling for money to continue tutoring funded with now-expired federal Covid aid, California districts potentially still have multi-billion-dollar state funding for accelerating learning over the next several years.
And having watched tutoring elsewhere from the sidelines for the past four years, the state can avoid other states’ missteps and build programs based on their successes – if California makes tutoring a priority.
“Tutoring isn’t just a tool for learning recovery,” said Jessica Sliwerski, co-founder and CEO of Ignite Reading. ”It’s serving as an essential classroom support that students need to build strong literacy skills.”
A second or “Western” wave of tutoring
“Lots of other states have helped push tutoring along more than California has. I’m really optimistic that in some ways, it [California] can be a leader, because we’ve learned so much that they could really do it more effectively immediately than we could right at the beginning,” said Susanna Loeb, a professor at the Graduate School of Education as well as the founder and executive director of the National Student Support Accelerator.
Loeb sees an opportunity for California to jumpstart the state’s laggard performance on state and national achievement assessments, especially in early literacy, by creating a second or “Western” wave of tutoring.
In four years, the National Student Support Accelerator has become the foremost source of information on and coordinator of research into online and in-person “intensive, relationship-based, individualized instruction” called by various names, high-dosage, high-impact, or high-intensity tutoring.
This week, three state agencies – the California Department of Education, the State Board, and the California Collaborative for Educational Excellence – will make the first joint effort in promoting it. They will join the nonprofit Results for America, and Loeb’s organization in sponsoring a webinar explaining high-impact tutoring.
The May 13 event serves as an invitation for up to 40 school districts to design their own high-impact tutoring programs that could serve as a model for other district cohorts.
It isn’t clear what happens after the event, but tutoring providers are hoping the state will get more involved.
“This is the first time that the state has recognized high-impact tutoring as desirable. We know what the research has found; we know the formula for making tutoring work,” said Chris Norwood, founder of Bay Area Tutoring Association, which works with school districts on creating effective programs. “Now we have to get the word out through channels of information that districts use, like county offices of education.”
An exciting prospect, hard to do
Many parents, teachers, policy makers and student equity advocates looked at tutoring as a recovery strategy coming out of Covid.
“What was not so clear was whether they could actually pull it off at any kind of scale,” said Loeb who acknowledges it’s easier for smaller states with a less complex system of governance to say, “Here’s the guidance on how to do high-impact tutoring; here are some funds to do it, and here are professional support.”
The federal Institute of Education Services identified “high-quality” tutoring as one of several effective strategies for schools. An analysis of 96 rigorous studies comparing results of students who had high-impact tutoring with those who hadn’t found significant improvement in 87% of the programs, equivalent to a half-year growth in many cases. The strongest gains were in early grades in literacy and when it was given during, rather than after, school.
Based on research, the National Student Support Accelerator says that effective, high-impact tutoring programs have these elements in common:
A high-dosage delivery of three or more sessions per week of required tutoring, each 15 to 30 minutes.
An explicit focus on cultivating tutor-student relationships, with tutors assigned with the same students throughout. Consistency is critical to building a solid relationship, and the tutor should be “someone who is engaging and motivating,” Loeb said.
Alignment with the school curriculum.
Formalized tutor training and support.
The use of formative assessments to monitor student learning.
There are different models for districts: training paraprofessionals as full-time tutors, hiring outside tutoring organizations for in-person tutoring, or turning to online nonprofits; the latter lack the face-to-face connection but can better scale up to serve more students, she said.
But many California districts found that creating a system with all of the elements was hard to pull off, and outside of urban areas and university towns, many had difficulty finding organizations and trained tutors for in-person instruction. Districts lacked experience evaluating tutoring outfits’ promises and measuring results. Communication over student results could be erratic; arranging schedules could be a challenge.
Given other, more familiar options, many overstretched California districts and schools made tutoring a low priority; they invested instead in hiring teacher aides and counselors.
An examination by Edunomics Lab, a Georgetown University-based education research nonprofit, found that 70% of California’s public school districts, charter schools and county offices of education didn’t report spending any money on tutoring from the last and biggest outlay of federal learning loss funding for California – ESSER III. Of the 30% of districts that did, spending on tutoring totaled 1.5% – $190 million out of $13.5 billion. (Go here for an interactive graphic on California districts’ tutoring spending.)
Meanwhile, other states became directly involved in high-impact tutoring. According to the National Student Support Accelerator’s 2024-25 summary of states’ activities, two dozen states allocated specific funds for high-impact tutoring, while others provided technical help to set up programs. One state, Tennessee, is funding tutoring through its annual school funding formula.
Nine states have ongoing partnerships between higher education institutions and tutoring organizations.
Norwood is partnering with San Jose State to hire students on an education track to serve as tutors in the schools while earning federal work-study money. If all teacher preparation programs credited time tutoring toward fulfilling time required in the classroom, California could add thousands of tutors to the ranks.
Money to spend
California had the advantage of surging state revenues from a post-pandemic economic boom to set aside more than $10 billion in one-time and ongoing money for schools in 2021-22 and 2022-23.
The state lists tutoring as one of the evidence-based options that districts can choose for their unspent share of the $6 billion Learning Recovery Emergency Block Grant; they have through 2027-28 to use it. It’s not clear how much remains; districts filed the first spending report in late 2024.
The advent of universal transitional kindergarten next fall and rollout of a new math framework are touchpoints for high-impact tutoring, Loeb said.
“If I had to think about where California could embed tutoring just as part of normal operations, it would be in early literacy,” she said. “It is a shame and a detriment to the state that so many students are not learning how to read before third grade. There’s lots of evidence that high-impact tutoring can help get us there.”
The selection of new materials aligned with the math framework will lead districts to rethink how math is taught.
“That’s a really good time to say, ‘OK, within this structure, how do we get students who aren’t making progress at the rate of the class or rate the state expects to get that individual attention so that they can accelerate their learning and excel in school?’ We’re not really doing that, so students are kind of falling off as we move quickly through the curriculum.”
El Camino Fundamental High School principal Evelyn Welborn explains how rainwater leaks through hallway windows, causing teachers to use trash cans to collect the water.
Credit: Andrew Reed / EdSource
Renovating a high school that swelters in summer and gushes leaks in winter is a priority of a large Sacramento-areadistrict. Replacing an undersized gym with no air conditioning is a priority of a small high school district in Kern County.
The to-do list varies among the hundreds of school districts that have placed construction bonds before voters on Nov. 5, but urgency is what they share in common. In California, the list of school buildings needing attention is long and growing, compounded by climate change that is exposing more of the state to unprecedented levels of heat and unhealthy air.
In 2020, anxiety about an unknown virus, Covid-19, led voters to defeat half of the local bonds on the ballot that year and discouraged many districts from placing bonds before voters in 2022. The suppressed demand has resulted in a record 252 school districtsseeking $40 billion worth of renovation and new construction projects, including classrooms for the youngest students, transitional kindergartners, and space for “maker labs” and innovative career explorations for high schoolers.
Many of the districts are hoping to seek financial help from Proposition 2, a $10 billion state construction bond for TK-12 and community colleges, that the Legislature also has put on the Nov. 5 statewide ballot. Passage would begin to replenish state assistance, which has run dry from the $9 billion bond passed in 2016, and create a new list of projects eligible for state help in the future.
This report is the first day of a two-day look at a sampling of districts from different parts of the state that are asking their voters to pass local bonds. First, we visitSan Juan Unified and Wasco Union High School District. Tuesday, read about Modesto City Schools, Fresno Unified and neighboring Central Unified.
San Juan Unified School District
San Juan Unified
Sacramento County
49,840 students
61% low-income, foster and English learner students
$22,243 bonding capacity per student*
* Bonding capacity is the maximum amount of general obligation bonds a school district can issue at a given time. A district can never go over the ceiling. For unified districts, it is 2.5% of total assessed valuation; the median in California is $25,569 per student.
El Camino Fundamental High School in Sacramento was quiet Thursday as temperatures rose to 103 degrees. Few of the school’s 1,300 students lingered in the halls, where there is no air conditioning and open windows provide the only air circulation.
Even air conditioning in classrooms is not always reliable. Teachers and their students have had to double up with other classes at times when some systems fail.
The upcoming rainy season won’t offer much relief at the 70-year-old school. Water from leaks travels down walls and into lockers in the halls and drenches expensive machinery in the metal shop.
In one particularly bad spot, teachers have taken to tying a garbage can to one window with a rope, to collect the water before it floods the hallway floor.
School staff must regularly snake out a sewer access that has spewed sewage across walkways students must traverse to enter a classroom.
El Camino Fundamental High School band classroom storage room.Credit: Andrew Reed / EdSource
El Camino Fundamental High School’s band classroom has limited storage for instruments.Credit: Andrew Reed / EdSource
A drinking fountain at El Camino Fundamental High School was shut off due to water leakage.Credit: Andrew Reed / EdSource
The quad at El Camino Fundamental High School. Many buildings have windows that do not open and areas where the concrete is decaying.Credit: Andrew Reed / EdSource
Windows throughout El Camino Fundamental High School are either cracked or do not open correctly.Credit: Andrew Reed / EdSource
An out-of-order bathroom at El Camino Fundamental High School.Credit: Andrew Reed / EdSource
Renovating the school is one of the priorities of San Juan Unified School District if voters pass Measure P, a $950 million general obligation bond. The measure will update classrooms, repair leaky roofs, improve school security, provide safe drinking water, and remove asbestos and lead paint from the district’s aging schools.
The bond will cost homeowners $60 per $100,000 of their home’s value — $300 a year for a house worth $500,000.
The improvements will improve education and retain teachers, said Superintendent Melissa Bassanelli in a message on the district website.
“Quality classrooms and good teachers are essential to student learning,” Bassanelli wrote. “If passed by voters, Measure P funds will help the district upgrade career technical education classrooms, math and science labs and ensure that students have access to a well-rounded education including music, visual and performing arts.”
During a tour of El Camino Fundamental, principal Evelyn Welborn pointed out a crowded biology classroom where 36 students sat elbow to elbow with little space or updated equipment for lab work.
“We have fantastic programs going on,” Welborn said. “Unfortunately, our building was built in the 1950s, so we’re doing, trying to do 21st century learning in a 20th century building, which doesn’t always work.”
If the bond passes, El Camino Fundamental could have some buildings renovated and others razed and replaced, potentially with a two-story building, said Frank Camarda, chief operations officer for the district. The buildings that are renovated would be gutted and have new windows, ceilings, lighting, flooring, plumbing and electrical, he said.
The San Juan district needs $3.5 billion to complete all the work needed at its 64 schools, Camarda said, adding that district leaders expect to get $90 million in facilities funds from the state’s Proposition 2, a public education facilities bond, if it passes on Nov. 5.
If Measure P does not pass, the district — in a worst-case scenario — would have to focus on repairing and maintaining roofs, heating and air conditioning units, and electrical systems at its schools, Camarda said.
The district passed a $750 million bond measure eight years ago and used the funds to update schools like Dyer-Kelly Elementary School, located just three miles from the high school. The old elementary school was razed and replaced with a two-story school five years ago.
Dyer-Kelly Elementary teacher Hallie Lozano engages with a kindergarten student during outdoor playtime. Credit: Andrew Reed / EdSource
Dyer-Kelly Elementary teacher Hallie Lozano remembers the leaky roofs, failing air conditioner, lack of storage and limited number of bathrooms in the 70-year-old school before it was torn down and replaced.
“That was a big deal, Lozano said. “It was really hard (for teachers) to just get into the bathroom before your next period.”
Now teachers and students at the K-5 school have access to numerous bathrooms, assemble in a modern amphitheater and take part in drama productions on a stage in the cafeteria.
Spacious classrooms now have whiteboards, television sets, bulletin boards and ample storage.
The school, with about 97% of its 800 students from low-income families and 60% English learners, has become the centerpiece of the community.
Principal Jamal Hicks says about 150 people show up outside the school each evening to visit and watch their children play on the school lawn and sidewalks. He says the school provides safe, well-lit space that isn’t readily available elsewhere in the community.
“The school is like a beacon for the entire community,” Hicks said.
Updating school facilities at San Juan Unified, a district of 40,000 students, has to be a comprehensive step-by-step long-term process, Camarda said.
“You can’t do it all at once,” he said. “You have to keep everything functioning, but you also have to start making some bold moves and replacing the oldest of your inventory. … So we’ve changed our philosophy, and it seems to be working really well.”
Wasco Union High School District
When it rains or gets hot in Wasco — and it’s often scorching — Wasco Union High School often has to resort to a backup plan for P.E. classes because of the state of its current gym.
WAsco Union High School District
Kern County
1,807 students
89% low-income, foster and English learner students
$31,672 bonding capacity per student*
* Bonding capacity per student is the maximum amount of general obligation bonds a school district can issue at a given time. A district can never go over the ceiling. For high school districts it is 1.25% of total assessed valuation; the median in California is $25,569.
“Anytime we cannot be outside, (the students) have to sit in the bleachers and do online assignments,” said Millie Alvarado, P.E. department head.
A new gym with air conditioning is a key project that Wasco Union High School District is promoting as a part of Measure D, a $35.4 million education bond measure on the ballot in this rural Kern County community this November. The bond will cost homeowners $30 per $100,000 of their home’s value – $94 a year for a house worth $314,000, the median value in Wasco, according to Zillow.
A warm, sunny climate has made Wasco a national leader in rose production, but temperatures that soar above 90 degrees for a third of the year also make it unsafe for students to do anything physically rigorous outside.
That wouldn’t be such a problem if Wasco Union High School had an air-conditioned gymnasium, like most high schools in Kern County.
Wasco’s lone comprehensive high school gym just has swamp coolers, with an evaporative cooling system that is no match for the triple digit heat that hits the region with increasing regularity.
The shower in the boys locker room at Wasco Union High. Credit: Emma Gallegos / EdSource
The girls locker room at Wasco Union High. The showers are leaky and old, so they have been coverted into changing stalls.Credit: Emma Gallegos / EdSource
The boys locker room bathroom lacks urinals and instead has a trough along the wall.Credit: Emma Gallegos / EdSource
School administrators said the gymnasium is badly in need of new lockers and proper ventilation.Credit: Emma Gallegos / EdSource
The shop for Wasco Union High’s construction course is cramped and has no air conditioning. Using power tools makes the heat worse.Credit: Emma Gallegos / EdSource
Credit: Emma Gallegos / EdSource
Classrooms for career technical education are cramped, and the Wasco Union High School District hopes to expand them with Proposition 2.Credit: Emma Gallegos / EdSource
The west side of campus is completely open. There is no fence, which the superintendent said is a security problem.Credit: Emma Gallegos / EdSource
“We’re trying to really help the community to understand the safety component of it,” said Superintendent Kevin Tallon. “It’s just not a safe campus when you look at the safety standards that other facilities have in most Kern County schools.”
This year, paramedics were called when a student passed out due to heat during P.E., Tallon added. Athletes who rely on the gym for games, after-school practice or summer conditioning feel the effects acutely.
“You feel like you’re suffocating,” said Rosalia Sanchez, a senior and varsity volleyball player.
Principal Rusvel Prado said the roof has been patched over many times but still leaks when it rains.
Even when the weather cooperates, the gym does a poor job accommodating the nearly 1,700 students who attend Wasco Union High. For school pep rallies, about half of the student body overflows outdoors. Locker rooms are cramped and unventilated, which Alvarado says is not ideal when 200 to 300 students are changing into and out of gym clothes each class period.
Measure D was developed with community feedback, Tallon said. The district was able to pass a bond measure in 2008 that modernized and upgraded heating and air conditioning systems for much of the campus, which was built in 1915. But two follow-up bond measures failed — one by a fraction of a percentage point in 2018, and one by 3.3 points in March 2020.
In the 2008 bond, classrooms took priority over the gymnasium, which dates back to the 1950s. Tallon said that if the new bond proposal passes, it would allow for 80% of the campus to be modernized over the next 20 years.
Campus security has become a bigger priority for schools in recent years. The bond measure will also go toward upgrading door locks, alarms, cameras, lighting and emergency communication systems. The west section of campus, where career technical and dual enrollment courses are held, is unfenced — a major safety concern in an era of mass shootings, Tallon said.
Pathways to college and career have received a renewed focus in California, bringing new facility needs. Wasco Union High’s construction program has a cramped shop without air conditioning. The building that will ultimately house dual enrollment students was set on fire by an arsonist who attacked local schools, according to local news reports. The district owns an off-campus farm that trains agricultural students, but there is no plumbing or safe drinking water — something the bond money aims to address.
The measure is asking for nearly the full amount of the $36 million bonding capacity of the community. Wasco Union High School District plans to apply for Proposition 2 funds, if it passes. The proposition will prioritize districts like Wasco, where its residents’ incomes are low — 88% of students qualify as socioeconomically disadvantaged. However, Tallon doesn’t believe that proposition or other state funding sources will be sufficient to help the district.
“We’re sensitive to the fact that it’s a tough economic time right now when it comes to inflation,” Tallon said. “But we also try to provide as much information as we can about the cost of the bond measure to the homeowner. For what you get in return for the quality of schools, we feel it’s money well spent.”
Policing experts say that discipline is the responsibility of school administrators, not law enforcement.
Many California school districts’ contracts for policing services do not prohibit officers from involvement in routine student disciplinary matters, despite the federal government’s guidance that administrators are responsible for handling those issues, an EdSource investigation found.
EdSource obtained 118 contracts between 89 districts across the state and the cities and counties that provide them with school resources officers from local police, sheriff’s and probation departments. More than half either allow police to enforce school rules and code of conduct violations, such as using profanity or wearing inappropriate clothing, or don’t address disciplinary issues.
The U.S. Department of Justice advises that agreements for what are generally called school resource officers “clearly indicate” that officers will not be responsible for requests to resolve routine discipline problems involving students. That guidance aims to “prevent unnecessary law enforcement involvement in noncriminal student misbehavior.” (A spokesperson for the department’s Office of Community Oriented Policing Services did not respond to multiple requests to elaborate on the department’s recommendations.)
Jyoti Nanda, a professor at Southwestern Law School in Los Angeles, said that officers lack the training necessary to respond to behavioral issues that can result in student discipline.
“Well-trained educators can handle all of the disciplinary issues,” Nanda said. “When police enforce school rules as opposed to criminal law, they are overreaching their footprint” in ways that are “deeply damaging to children.”
Many policing contracts also put resource officers in vaguely defined roles.
They are to act as “informal counselors,” “mentors,” “role models” and exemplars of “good citizenship.” Some contracts are meant to “promote a positive image of law enforcement.” One agreement refers to them as “youth development officers.” Another says their duties include serving as “a visual deterrent to aberrant behavior.”
Some give police authority to enforce school rules and code-of-conduct violations, such as using profanity or public displays of affection, that could result in a student being disciplined.
Some contracts say that officers will teach classes, without specifying the courses or training requirements.
The Anderson Union High School District’s contract with the Shasta County Probation Department requires resource officers to “provide class instruction as identified by the district and approved by the county.” Superintendent Brian Parker did not respond to questions about that requirement.
The varying roles officers play can result in legal risks to students, according to University of North Carolina law professorBarbara Fedders, who has argued for removing school resource officers.
“Relationship forming and being nice and all of that is misleading. Because if you then need to question the kids, you’re going to be able to take advantage of that relationship and use it for law enforcement purposes,” Fedders said in an interview.
‘Situations that arise from student conduct’
Some contracts don’t differentiate between officers’ roles in investigating school rule violations and potential crimes.
The Fullerton Joint Union High School District, which straddles Los Angeles and Orange counties, has policing contracts totaling more than $800,000 with the cities of Fullerton, La Habra and Buena Park. Each requires resource officers to “investigate situations that arise from student conduct at school.” The agreements also authorize officers to search students if they believe, or have reasonable suspicion, that something illegal occurred, or are “directed to do so by a school administrator.”
Fullerton Union High School in Orange County.Credit: Andrew Reed / EdSource
Legal experts were critical of those terms.
The language in the contract “sends the wrong message not only to officers but to students and parents and teachers because it’s so vague,” said retired Superior Court Judge LaDoris Cordell, who also served as San Jose’s independent police auditor from 2015 to 2020.
“It’s pretty much at the discretion of an administrator, or even the officer, to just decide if there’s something suspicious, or they think may be illegal,” Cordell said. “We’re not talking here about probable cause. Who’s the reasonable person? The officer? The administrator? Who knows?”
District Superintendent Steven McLaughlin, Assistant Superintendent Ruben Hernandez, school board President Vickie Calhoun, and Dr. Chester Jeng, who was board president when the contracts were ratified on a consent agenda vote, did not respond to multiple requests for comment. The city managers of Fullerton, La Habra, and Buena Park also did not reply to messages seeking comment.
Khadijah Silver, a supervising civil rights attorney for the Washington, D.C.-based Lawyers For Good Government, also criticized Fullerton’s contract language.
“It’s basically saying, anytime a kid acts up, you’re free to go violate their civil rights and interrogate them off of the school’s premises and all of that,” Silver said. “It’s unconstitutionally overbroad language that fails to define or delineate any bounds of appropriate police behavior whatsoever.”
‘What any reasonable adult would do’
Some legal experts say that by allowing officers to enforce school rules, districts create situations that are confusing and intimidating to students. Nanda said that officers’ involvement in discipline is often “ambiguous.” Students, she added, may not understand why an officer stops them in the hallway: Is it for an alleged crime or a violation of school rules?
“Are they just walking the child over to the principal’s office, or are they interviewing the child and taking police notes? How does that play out?” she said. The presence of resource officers can result in harsher discipline for students, “particularly for Black students, male students and students with disabilities,” according to a 2023 study by researchers at State University of New York, Albany, “even though officers are typically not trained to, and often do not intend to, become involved in minor disciplinary matters in the school.”
Although the Alabama-based National Association of School Resource Officers recommends that districts prohibit officers from “becoming involved in formal school discipline situations,” its executive director, Mo Canady, said in an interview that he thinks officers should get involved in situations that could result in discipline.
When officers see a young person misbehaving and get involved, they’re doing “what any reasonable adult would do,” Canady said. “Adults should never walk by and ignore a situation like that. I don’t care if we’re at a shopping mall, whatever it is.”
Asked whether there is a difference between an adult and an armed police officer intervening when a juvenile misbehaves, Canady said: “That’s why one of the issues that we harp on constantly is the importance of good relationships that (officers) build with students.”
California’s Department of Education does not provide guidance on the use of school resource officers, Elizabeth Sanders, an agency spokesperson, said.
The California School Boards Association provides districts with what it calls a “sample policy” on policing contracts, which recommends that the duties of resource officers should “not include the handling of student code of conduct violations or routine disciplinary matters that should be addressed by school administrators or conduct that would be better addressed by mental health professionals.”
Troy Flint, spokesperson for the association, said district leaders are free to “interpret the sample policy in a way that captures their community’s desired approach to law enforcement on campus. We recognize there’s a diversity of opinion throughout the state about the role security personnel should play on campus or whether they should be there at all.”
‘Why are we policing our students?’
The Oxnard Union High School District has contracts with two law enforcement agencies that clearly prohibit resource officers’ involvement in disciplinary matters.
The district’s $2.33 million contract with the city of Oxnard states that police are to distinguish “between disciplinary misconduct to be handled by school officials from criminal offenses.” The contract also says that officers “are responsible for criminal public order offenses” and “should not get involved in school discipline issues.” A separate contract with the city of Camarillo contains similar language. Both contracts require officers to establish “clear probable cause” before searching a student.
Oxnard Union High District Superintendent Tom McCoy chats with school resource officers Alexus Santos,left, and Sgt. Hannah Estrada on the campus of Pacifica High School in Oxnard.Credit: J. Marie / EdSource
But the district’s contract with Ventura County for one resource officer does not address discipline. Superintendent Tom McCoy said in an interview that it is “well understood and discussed in meetings” that resource officers provided by the county do not enforce discipline. It’s never been an issue. They are very aware of our policies.”
The district has a policy that is not in its policing contracts and that allows students to request “a person of the same gender or gender identity or a staff member familiar to them to be present” if they are questioned by law enforcement.
McCoy added that the district requires students who “are questioned or interviewed by police on campus also must be referred for counseling and wellness services on the same day to address any specific needs identified through the interview process.”
Karen Sher, the school board member whom McCoy credited with helping create the district’s policy, said her experience teaching at a school with resource officers led her to ask herself, “‘Why are we policing our children?’”
Oxnard Union High School District board member Karen Sher.Credit: J. Marie / EdSource
Sher said she believes that officers have a role to play in school safety, but she also worries about how their presence might affect disadvantaged students. About 16% of district students lack stable housing, she said.
“How on earth does anyone believe those students have not had an interaction, both positive or negative, with police?” Sher asked. “We expect them to come to school, see police cars in front of their school, and expect them to feel good about that? That’s a very entitled perspective.”
Eric Wiatt, a Ventura County sheriff’s deputy who has worked at Adolfo Camarillo High School for the past three years, said adjusting to being a resource officer took time.
“The first year was a learning experience of communicating with (students) and developing a rapport. It wasn’t natural in me. You know, all the different social media platforms that are used and the different slang they use,” Wiatt said in an interview.
He says he spends a lot of time investigating bullying and threats made on social media.
School resource officer Eric Wiatt from the Ventura County Sheriff’s Department patrols the campus of Adolfo Camarillo High School in Camarillo.Credit: J. Marie / EdSource
“We actually dig into them. We take every threat very seriously. We do a full investigation,” Wiatt said.
When he’s not investigating threats, Wiatt walks the campus wearing a bulletproof vest over his uniform and a pistol holstered to his hip. He often eats lunch with students.
Riley Young, a 16-year-old junior whom school officials selected to be interviewed by EdSource, described Wiatt as calm and helpful.
“I’d been getting in trouble,” she said. “He helped me realize that being good in school and in life was important.”
‘Providing clarity’
District leaders provided a range of reasons why their policing contracts don’t address whether resource officers can be involved in disciplinary matters.
The Madera Unified School District’s contract with the city of Madera for resource officers doesn’t address disciplinary issues. Superintendent Todd Lile said the idea that officers would enforce discipline “has never been present and, as a result, has never been explicitly called out in contractual language.” Police are “not thought of or expected to keep control of a campus,” he said.
The Lucia Mar Unified School District has two contracts for resource officers. Its agreement with the city of Arroyo Grande prohibits officers from enforcing discipline. But its contract with San Luis Obispo County does not address disciplinary matters.
Amy Jacobs, a district spokesperson, said Lucia Mar has a policy prohibiting law enforcement’s involvement in discipline, but Jacobs didn’t provide an answer when asked why that policy wasn’t written into the contract with the sheriff’s office.
The Galt Union High School District board in Sacramento County agreed to a three-year contract with the city of Galt for three resource officers in 2023. The agreement did not address police involvement in discipline. But shortly after Anna Trunnell became district superintendent in 2024, the contract was revised.
It now states that resource officers “will not be responsible for requests to resolve routine discipline problems involving students. They will not respond to incidents that do not pose any threat of safety or would not be considered crimes if they occurred outside of the school.”
Trunnell said the new language “assists in providing clarity when responding to student needs.”
The lack of clarity in many school policing contracts is “profoundly alarming,” said Nanda, the Southwestern law professor.
“It’s crucial,” she said, “for parents, educators and administrators to pay attention to the who, what and why of officers in our schools.”
Many California school districts pay cities and counties millions of dollars a year to put law enforcement officers on campuses, moving tax dollars allocated for education to policing with little oversight by elected school boards, an EdSource investigation found.
Not every district has what are commonly called school resource officers. Many call 911 if they need help, and 20 have their own police departments. Others contract with cities and counties, which provide resource officers from the ranks of local police, sheriffs, and probation departments.
Those districts provided a combined 118 contracts, entered into between 2018 and 2024, with some paying as many as three cities and counties for resource officers. The agreements, along with school board agendas and videos of meetings, show that district leaders rarely scrutinize the spending publicly.
School boards routinely approve policing contracts without discussion, often bundling them with routine items, such as field trips and cookies for staff meetings, into a single vote. The practice, known as using a “consent agenda,” alarms government transparency experts. EdSource found some boards approved hundreds of thousands of dollars for school resource officers using consent votes.
Although the federal government recommends that school districts review their policing programs annually, most of the contracts EdSource reviewed did not require yearly evaluations. In the few districts that required written reports on officers’ activities, police agencies didn’t submit them — and school officials rarely asked to see them.
The state Education Department offers no guidance to districts on policing contracts, said Elizabeth Sanders, an agency spokesperson.
“Consent items can be horrifically abused.”
David Loy, legal counsel for the First Amendment Coalition
The contracts EdSource obtained show districts spending at least $85 million on school resource officers. But their total costs are likely much higher. Roughly 20% of those contracts don’t include specific dollar amounts.
Instead, they mention unspecified charges based on law-enforcement union contracts negotiated by cities and counties. As a result, school boards sometimes approve contracts without a clear record of how much public money they have agreed to spend.
EdSource found that many districts are not only paying for officers whose positions are already funded by local governments, but also for using police cars, uniforms and cellphones.
The costs to schools surprised policing experts and public watchdogs.
“It’s protect and serve — and profit,” said retired state Superior Court Judge LaDoris Cordell, who also served as San Jose’s independent police auditor from 2010 to 2015.
She said cities and counties should provide resource officers to schools without charging.
“Shame on them for making this into a money-making operation,” Cordell said.
‘An enhanced service’
In many districts, the cost of a contract for a resource officer often exceeds the salary of a mid-career teacher.
The Holtville Unified School District in Imperial County has a one-year contract with the county for a sheriff’s deputy not to exceed $192,038.40.
That’s enough money to fund the salaries of nearly two teachers, according to teacher pay disclosure forms filed with the state.
The contract requires the district to pay for the officer’s “training, equipment, uniform, vehicle, supplies and employee benefits,” Undersheriff Robert Benavidez wrote in an email. Holtville Superintendent Celso Ruiz did not respond to questions about spending on officers.
Some districts spend more than a million dollars a year on resource officers.
The Elk Grove Unified School District has 67 schools and 62,000 students, and pays the Sacramento County Sheriff’s Office $8.5 million over three years to provide six deputies.
The contract, which expires in June, includes nearly $648,000 for patrol cars and $15,000 for cellphone bills, and guarantees deputies five hours of overtime per week. The district also pays the city of Elk Grove $951,000 over three years for three officers.
Sgt. Amar Gandhi, a sheriff’s office spokesperson, said the district is “paying for an enhanced service,” requiring deputies to spend all day in schools.
Asked whether deputies assigned to the district were counted in the sheriff’s annual budget funded by the county, Gandhi replied, “Yes, for regular sheriff services.”
But when deputies work in schools, he said, they provide a service for which the sheriff’s entitled to charge.
“These are not officers that are simply responding to emergencies,” Gandhi said. “They’re on campus. That’s their full-time assignment. They’re helping the administration. It’s a presence issue. It’s something we value.”
If Elk Grove Unified were to end its contract with the county, which it could do with 30 days’ notice, the deputies would “be assigned to regular, other, sheriff functions, in patrol, investigations, corrections, whatever,” Gandhi said, noting that the sheriff’s office has a large number of vacant, budgeted positions.
‘Double taxation’
Many districts pay more than half or all of the salaries for officers whose positions are already funded by cities and counties.
In Ventura County, the Oxnard Union High School District currently has contracts with two cities and the sheriff’s office. The largest is a $2.23 million deal with the city of Oxnard for five police officers, which includes 75% of the city’s costs for the officers’ salaries and benefits.
The district pays for the full costs of one deputy as part of its three-year, $625,000 pact with the Ventura County Sheriff’s Office. It also has a deal with the city of Camarillo for police services.
Oxnard Union board member Karen Sher, who describes herself as an advocate for school resource officers, told EdSource that charging districts for officers whose positions are already funded amounts to “double taxation.”
“The taxpayer’s paying twice for the same services,” Sher said.
“I really don’t understand how this is not a bigger issue. I have asked the question publicly. I can’t even tell you how many times, and I have never gotten an answer,” she said.
Former Oxnard Police Cmdr. Louis Mc Arthur was in charge of school resource officers before being elected as the city’s mayor in November 2024.Credit: J. Marie / EdSource
Oxnard Mayor Luis Mc Arthur, who, until taking office on Dec. 8, was the Oxnard Police commander in charge of school resource officers, said the city can’t afford to provide the officers without charging the school system. The department’s 2024-25 budget is $105 million, records show.
“We’re strapped financially and also short-staffed,” McArthur said.
“We can argue philosophically if it’s the responsibility of police to fund” resource officers, but the charges will likely continue, he said.
Districts should not fund officers who are already on government payrolls, said David Kline, vice president of communications for the California Taxpayers Association, which advocates for limiting taxes.
“If taxpayers are paying for two police officer positions, they should be getting two police officers,” Kline said. “They shouldn’t be paying twice for the same officer.”
Not all municipalities charge for providing resource officers.
Last year, voters in the Central Valley cities of Manteca and Lathrop passed sales-tax measures funding a range of services, including resource officers for the Manteca Unified School District, which supported the measures.
“We don’t believe in double taxation,” said Victoria Brunn, the district’s chief business and information officer.
But the Manteca district also has a two-year, $274,000 contract with the Stockton Unified School District, which has its own police department, for one officer.
Cost-sharing is common across the country, said Mo Canady, executive director of the Alabama-based National Association of School Resource Officers. The percentage of an officer’s salary that districts pay varies widely, he said. “Some may pay 25%, while others will pay 100%.”
Canady recommends that school boards review policing contracts annually. “You get to the end of the school year and no one thinks, ‘Hey, we need to take an hour or two here and sit down with people that are going to be making decisions and at least review this thing.’”
‘In case of an armed intruder’
A poll released earlier this month by the Public Policy Institute of California showed that 4 out of 5 public school parents are worried about a mass shooting at their local school, and nearly as many support having at least one armed police officer on campus while school is in session.
The Anderson Union High School District’s three-year contract with the Shasta County Probation Department does not mention school security. But Superintendent Brian Parker said that’s why the district is paying $1.6 million for three resource officers through 2027.
Anderson Union High School in Anderson in Shasta County.Credit: Thomas Peele / EdSource
“The main reason our board and our community want officers on campus is to provide security in case of an armed intruder,” Parker wrote in an email. “Thankfully, that hasn’t happened in our district.”
Many contracts require officers to divide their time between several campuses, which could reduce their ability to respond quickly to a shooting.
According to the U.S. Department of Justice, there were about 24,900 school resource officers in 2019. The federal government does not collect data on school shootings, but according to a Washington Post database, there have been at least 428 school shootings in the United States since 1999, including 72 in California.
Whether the presence of school resource officers makes schools and students safer remains the subject of research and debate. In 2024, policy analysts at the Rand Institute, a nonpartisan think tank, reviewed dozens of studies and found, “the presence of SROs (school resource officers) may reduce some types of crime and increase the detection of weapons and drugs on campus.”
But, the Rand analysts wrote, “research has also shown that the presence of SROs inflicts costs on students. Students at schools with SROs are more likely to face disciplinary action by school administrations and more law enforcement contact in general. Black and Latino students may be particularly affected.”
‘We wanted to look at everything’
Last year, the Folsom Cordova Unified School Board decided to examine its policing contracts with the city of Folsom and the Sacramento County Sheriff’s Office, which totaled $502,000. Those contracts had remained largely unchanged for 12 years, said board President Christopher Clark.
Christopher Clark, president of the Folsom Cordova Unified School Board.Credit: Folsom Cordova Unified
“What we wanted to do as a school district is be transparent. We wanted to look at everything in the contract,” Clark told EdSource.
At a board meeting last May to discuss the contracts, speakers expressed concerns about the impact police officers had on Black and Latino students.
Van Merrill, a student board member, said he worried about having “armed police officers on campus.” He said the district has many students who come from groups that “have been historically discriminated against and arrested and killed by police.”
Earl F. Smith, a parent who attempted to speak to police about a problem with his daughter at school, told the board that a Folsom High School administrator described him to a resource officer as “an angry, raving black man.”
“I’m scared to go to Folsom High School,” Smith said. He referred to the 2018 fatal shooting of a 22-year-old unarmed Black man by two Sacramento Police Department officers who said they mistook his phone for a handgun.
“It’s easy to make wrong decisions. It’s hard on the officer. It’s hard on the community,” Smith said. “ I would like the board to consider the perspective that maybe only a certain amount of students would feel comfortable with an officer.”
In a telephone interview, Smith said, “I don’t think there should be an officer at a school walking around with a gun.”
Clark, the board president, who is Black, told EdSource that Smith “absolutely” voiced valid concerns. “I’m speaking as an African American,” said Clark. “We are stereotyped. Oh, yeah. I’ve been stereotyped by a police officer.”
The board eventually approved a change to the contract, requiring officers to spend more time patrolling the areas around schools and to respond to emergencies in schools when needed.
“What works for me is that these officers are actually patrolling the area,” Clark told EdSource. “If there happens to be an emergency, the response time is within three and a half minutes. I believe in safety for our kids.”
‘Unaware’ of requirements
The U.S. Justice Department recommends that law-enforcement agencies and school districts “conduct an annual assessment” of resource-officer programs to ensure that they are adequately addressing all expectations, successes, and challenges.”
Both school and police leadership should review law enforcement data and records to help determine whether officers “are using their law-enforcement powers judiciously,” according to the department’s recommendations.
But many school districts don’t seek or receive such data even when they require it by contract.
The Manteca Unified School District in San Joaquin County has a one-year, $125,000 contract for a resource office with the Stockton Unified School District, which has its own police department. The contract requires officers to document “the type, nature and/or description of activities performed each shift” to help school officials evaluate the program’s effectiveness. The reports are to be provided quarterly.
The contract also requires Stockton Unified Police to provide “copies of incident, crime, service and other police-generated reports, search warrants and other public documents which concern substantial actual or potential criminal activity.”
But EdSource found that Stockton Unified police gave no such documents to Manteca. Asked why the reports weren’t provided, Stockton Unified Chief Mayra Franco said she didn’t know anything about them.
“We were unaware of this requirement,” she wrote in an email, adding that her department would start providing the documents.
Brunn, Manteca Unified’s chief business officer, called the failure of Stockton Unified to provide the documents “very unfortunate.” But she also said no one in her district asked for them.
”We had employee changes during that time frame. It’s not what we would have preferred to have happened,” she said.
Parker, the Anderson Union High School District superintendent, said its contract with the Shasta County Sheriff’s Office, which used to provide school resource officers, required deputies to prepare quarterly activity reports on their activities and provide them to the district “upon request.”
But the district “never requested them,” Parker said, and no longer has a contract with the sheriff’s office. The district’s current contract with the Shasta County Probation Department doesn’t include any reporting requirements.
Canady, of the school resource officer association, questioned whether reports are necessary.
“What would go in a report?” he said. “I don’t think it’s something that school districts have been demanding. If you’re in a good partnership with the law enforcement agency, there shouldn’t be any need for reports.”
Last year, during the debate about law enforcement contracts for the Folsom Cordova Unified School District, school board member Kara Lofthouse said that reports are crucial to understanding the effectiveness of policing programs.
They are needed “so that we can determine whether or not it’s a smart decision” to continue to pay for police. Without them, Lofthouse added, “we cannot make a sound decision on what’s best for our district.”
She said officers should write reports to “show the schools that they’re going to, even if they’re doing nothing, even if they’re checking in with the principal and they have lunch with a couple of kids. That’s really the report I want to see. I want to see what their time is being spent doing.”
The Tracy Unified School District’s contract with the city of Tracy requires police to provide “statistics related to crime if requested.” But the district told EdSource that it did not have any documents with that data. It also did not respond directly to questions about how it determined whether policing services were successful.
“Our district works extremely closely with our officers and Tracy Police. We communicate through in-person meetings, phone calls, etc.,” Bobbie Etcheverry, a district spokesperson, wrote in an email.
Consent votes
Some school boards approved hundreds of thousands of dollars for resource officers using catch-all consent votes, records show.
Policing contracts require more scrutiny and “should not be on consent agendas,” said Barbara Fedders, a University of North Carolina law professor who has written about school policing in California and is a school board member herself.
“Your contract language for a playground provider doesn’t implicate your values as a school district in the same way that a (contract) with the police does,” Fedders said.
“Consent items can be horrifically abused,” said David Loy, legal counsel for the First Amendment Coalition, which advocates for government transparency and press freedoms.
Loy said that two school board votes identified by EdSource may have violated the Brown Act, the state law requiring local legislative bodies to conduct open and transparent meetings.
The agenda for Elk Grove Unified’s board meeting, section VI.10, specifies that the contracts on the attached list “are under the bid limit of $99,100.
In June 2022, Elk Grove Unified’s school board approved its current contracts with the Sacramento Sheriff’s Office and the city of Elk Grove on a consent vote.
The meeting’s consent agenda stated that all the items under consideration cost no more than $99,100. But the contracts with the Sheriff’s Office and the city included payments for $2.7 million and $317,000, respectively.
The list referenced by the agenda includes two law enforcement contracts worth a combined $3 million, both well over the stated $99,100.
“If an agency says, ‘Don’t worry, nothing to see here, everything on the consent agenda is under $99,100,’ and in fact, what’s on the consent agenda is more than $99,100 over the life of the contract, that is itself a Brown Act violation,” Loy said. “I would argue strongly in court you cannot mislead the public.”
Kristen Coates, the district’s deputy superintendent, wrote in an email that the district did not violate the Brown Act because the law contains “no requirement to agendize items based on dollar figures.”
She declined multiple requests to be interviewed. Board President Michael Vargas did not return messages.
A vote in San Joaquin County also raises questions about how boards approve police contracts.
In 2022, Tracy Unified’s board voted for a consent agenda that included “routine agreements, expenditures, and notices of completions.” As part of that vote, the board approved a $900,000 contract with the city of Tracy to provide three resource officers.
The contract was not listed on the consent agenda. A report attached to the larger meeting agenda said the contract was for $450,000 over two years. The board did not discuss the contract before voting.
“The public obligated $900,000, not $450,000,” Loy said. “As a best practice, these things should not be on consent. The public has a right to know what the total obligation is for the life of the contract.”
In an interview, Tracy Superintendent Robert Pecot did not explain why the agenda misstated the contract’s cost. “We’re not hiding anything,” he said. “People are welcome to come to our meetings.”
Loy said lawmakers need to amend the Brown Act “to limit the use of consent agendas.” Items such as school policing contracts should be debated, he said. “You should go through the full democratic process. It definitely cries out for significant policy reform.”
Bret Harte Union High School in Angels Camp in Calaveras County.Credit: Thomas Peele / EdSource
‘Sloppy’ practices
Some school boards wait months or even years to ratify contracts for resource officers and, in a few cases, long after those contracts have taken effect or expired, EdSource found. Under state law, school superintendents can agree to contract terms, but those agreements aren’t valid until school boards approve them, a process known as ratification.
The Bret Harte Union High School District in Calaveras County has a one-year policing contract with the city of Angels Camp with a start date listed as July 2, 2024. The district’s board voted to ratify that contract on Feb. 4, 2025. By that time, the city had billed the district more than $35,000 for a resource officer, records show.
Long ratification delays are “an extremely bad budgeting practice,” said Kline of the California Taxpayers Association. “What happens if the school board votes ‘no’ on a contract seven months after it’s been signed?”
It’s “a huge transparency issue,” he added. “The taxpayers haven’t had their notice and chance to voice their opinions.”
Bret Harte’s board also didn’t ratify a separate contract with Angels Camp until two years after it had expired, voting only after EdSource raised questions about it.
Superintendent Scott Nanik initially claimed that the district couldn’t produce a policing contract for the 2022-23 school year. But Angels Camp records show the city billed the district nearly $45,000 for policing services for that school year.
Nanik had signed the document on Aug. 2, 2022. Last month, the board voted without comment to retroactively ratify the deal.
Byron Smith, a lawyer for the district, wrote in an email that the late ratification vote was taken under a portion of state law allowing school districts the “flexibility to create their own unique solutions” and to spend money “not inconsistent with the purposes for which the funds were appropriated.”
Bret Harte leaders “are committed to doing things the right and legal way,” Smith said.
Professor David Levine of UC Law San Francisco said the board likely voted to ward off any potential litigation by making the contract “a proper expenditure.”
“Imagine if you had a gadfly saying it wasn’t a proper use of public funds,” and suing because there was never a vote, Levine said. The district had been “clearly sloppy,” he added.
School boards “should be approving contracts before the related work begins, not afterward,” said Troy Flint, a spokesperson for the California School Boards Association.
EdSource found another school board, Benicia Unified in Solano County, that had not voted to ratify a $225,000 policing contract with the city of Benicia for the 2023-2025 school years.
In response to a reporter’s questions, Benicia Superintendent Damon Wright acknowledged the district made a mistake. “The contract should have been formally brought back to the board for final approval,” he said.
On April 10, three months before the contract expires, the board approved the agreement, without discussion, on the consent agenda.
Most Los Angeles-area school districts, including Los Angeles Unified School District, are closed Thursday as fires continue to rage, significantly impacting the Southern California region. The map below shows the status of districts in the region, and will continue to be updated as the situation evolves. Data as of 1/10/2025 11 a.m.
Data source: California Department of Forestry and Fire Protection; EdSource Research; Los Angeles County Office of Education
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