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  • Tougher rules for pre-kindergarten rattle districts, cloud program’s future

    Tougher rules for pre-kindergarten rattle districts, cloud program’s future


    Photo courtesy of Garden Grove Unified

    This is the third in a series of stories on the challenges impacting California’s efforts to offer high-quality instruction to all 4-year-olds by 2025.

    This past school year, 4-year-old Yoshua would’ve been home, watching TV or playing on his tablet if he hadn’t been enrolled in Garden Grove Unified’s transitional kindergarten (TK) program, according to his mom, Briseida, who asked that her last name not be used. 

    “Learning the English language, learning how to start writing his name, learning colors and numbers, knowing that he goes to school with his classmates and can talk and play with them, knowing that his teacher will teach him new things,” Briseida said in Spanish in a district video about the importance of TK, an additional year of public education prior to kindergarten. “All of that has been very positive for us because if he had stayed at home, he would not have learned any of those things.” 

    The large, urban, nearly 40,000-student Garden Grove school community includes immigrants with many families who do not speak English at home. So, those TK students are exposed not only to academic content but also a full year of the English language, said Gabriela Mafi, superintendent of Garden Grove Unified School District, in which English is not the primary language of 63.6% of students. 

    Sending 4-year-olds to TK benefits students as well as their families. For example, enrollment for Noel allowed his mom, Celeste Monroy, time to seek employment and enroll in classes to learn English, she said in the school district video. 

    Many parents in the northern Orange County community cannot afford private preschool, which can cost thousands of dollars annually, nor can they accommodate a half-day program, such as many offered by the state’s public preschool programs. 

    TK has been gradually expanding to reach all the state’s 4-year-olds by the 2025-26 school year, and each school year, more 4-year-olds become eligible. 

    In 2023-24, children who turned 5 between Sept. 2 and April 2 were eligible. Districts had a choice to even enroll younger 4-year-olds ahead of the phased timeline, such as  Noel — who has a birthday after April 2 and would turn 5 by June 30, the end of the school year.

    Planning ahead, Garden Grove Unified staffed its classes to comply with the state requirement of 24 students per class size average and a 1:12 adult-child staffing ratio, getting that average to just under 21 students with one teacher and an aide. 

    Then, the state established new rules just months ahead of the 2023-24 school year. 

    Such “last-minute changes” at the state level complicate school district operations and impact students locally, superintendents say.

    During the budget process in summer 2023, Gov. Gavin Newsom signed legislation creating a new category for kids participating in TK ahead of the state’s timeline, changing the birthday cutoff dates, lowering TK requirements for classes with those students and applying fiscal penalties for noncompliance. 

    The legislation added an “early enrollment” distinction for 4-year-olds with birthdays after June 2. Students with June 3-30 birthdays were to be considered early enrollment children, requiring stricter guidelines. 

    Prior to the legislative change, there were no special provisions for the enrollment of students who turned 5 before the school year ended on June 30.  

    For the 2023-24 and 2024-25 school years, any class with an early enrollment child must meet a 20-student class size maximum and a 1:10 adult-to-student ratio, or face penalties. 

    Districts were left with a difficult decision for a school year starting in less than two months: Retain the students they’d enrolled and try to comply with the stricter requirements; face penalties if and when they can’t adhere to the more restrictive regulations; or turn away families. 

    According to superintendents, the state’s last-minute changes illustrate the disconnect between state-level decisions and local implementation and exemplify the state’s lack of understanding of the needs of families, disproportionately impacting districts trying to meet those needs.  

    “We make commitments to our families and then now have to either undo them or incur something punitive because we tried to serve our communities the best we possibly can,” said John Garcia, superintendent of the 22,000-student Downey Unified, an urban/suburban school district in southeast Los Angeles County.

    Why enroll younger students?

    The need to offer early childhood education, generally believed to benefit disadvantaged children, was at the heart of Garden Grove and Downey Unified decisions to accept younger cohorts of children for TK sooner than the state’s timeline. 

    Families in both districts were unable to afford fee-based preschool or work due to a need for child care.  

    “If he wasn’t given this opportunity to go to TK, he would have either been in day care/preschool, or I would’ve had to quit work and not be able to financially provide for my family,” a Garden Grove Unified parent shared regarding their child for a district document about the impact of TK. 

    TK not only saves on child care costs that burdened families but, according to educators and experts, also builds a strong educational foundation and bridges the opportunity gap between low-income families and affluent ones — gaps more prevalent in high-poverty districts. 

    Enrolling younger students sooner meant a full year of instruction before kindergarten, Garcia said, adding that Downey Unified kindergarten teachers notice a difference in those who gain an extra year of schooling. 

    In high-poverty districts specifically, that additional year gives the kids “an opportunity to have a head start on kindergarten,” Mafi said. “And those are the kids who need it the most, which is why many high-poverty districts chose to accelerate TK faster.”

    About 81% of students in Garden Grove and nearly 70% in Downey Unified are classified as low income, based on January data of unduplicated student counts. In contrast, high-wealth districts may not have had the need to offer TK sooner because their families can afford to pay for private preschool, Mafi said. 

    “This is the message I feel they’re telling us: ‘Poor kids — they don’t need to be helped, to have the same quality of a pre-kindergarten experience like their more affluent peers.’ And I don’t think that’s the message they should be sending.”

    Even though low-income students could benefit more from early childhood education, such children have lower preschool enrollment, the Public Policy Institute of California found. 

    Research shows that high-quality preschool leads to students being prepared for school with improved behavior and learning skills and higher academic performance in math and reading once enrolled, all of which can help bridge the gap between students from high-poverty and high-wealth families. 

    “All we’re trying to do is address the opportunity gap,” Mafi said. 

    Trailer bill changed birthday cutoffs, requirements

    In July 2021, legislation to expand TK passed, phasing in 4-year-old students until all are eligible by 2025-26. 

    Based on the 2021 legislation and continued guidance in 2023, districts could enroll TK students ahead of the state’s timeline as long as they turned 5 by the end of the school year, defined as June 30.  

    January-February 2023: For the 2023-24 school year, many school districts started TK registration, including for students who would turn 5 by June 30, 2024 — a choice aligned with legislation and state guidance available to districts at the time.

    There were even younger 4-year-olds with July or August birthdays, who would not turn 5 during the school year and would not be eligible for TK until 2025-26, based on the 2021 legislation.  

    January 2023: Gov. Gavin Newsom’s budget proposed a way to fix that by allowing districts to use local dollars to enroll children with July and August birthdays, “a welcomed proposal” that remained in the May revisions, a Los Angeles Unified spokesperson told EdSource.

    June-July 2023: Lawmakers reached a compromise to allow the younger 4-year-old students as long as classrooms adhere to stricter requirements. 

    July 2023: The governor signed SB 114, an education budget trailer bill, which created lower statutory requirements for the 2023-24 and 2024-25 school years for school districts serving newly-defined “early enrollment” children, 4-year-olds with summer birthdays during and after the school year (from June 3 to Sept. 1).

    “We believe that this compromise was vastly preferable to the alternative of disenrolling families, who would have had to scramble for alternative education and care options for their 4-year-old children,” Newsom administration officials said. 

    San Diego Unified, which had been supportive of efforts to include all 4-year-olds, and Los Angeles Unified were not privy to the compromise between legislative leaders and the Newsom administration, but they were pleased that the result allowed schools to serve students they had already enrolled, spokespersons from the districts said. About 14% of LAUSD TK students have summer birthdays between June 3 and Sept. 1.

    Other districts that were enrolling students ahead of the state’s timeline, but within the previous legislation language, had registered students with June 3-30 birthdays. 

    “It’s that June 3rd to June 30th — that is the date change … making them early enrollment kids,” Mafi said. “No one ever said that before in the last four years.”

    The differences are significant 

    The state’s authorization for the youngest group of TK students came with stricter requirements.  Specifically, the 2021 guidelines required a regular TK class to have an average of 24 or less, measured across the school, with an adult-to-student ratio of 1:12.  The 2023 rules require a TK class with early enrollment kids to be measured individually and held to a 20-student maximum with a 1:10 ratio. 

    The stricter ratio for classes with early enrollment kids is more closely aligned with 1:8 staffing practices in early education at licensed child care centers, private preschools and state preschool programs and the 1:10 ratio at Head Start. 

    But combined with the 20-student max, the requirements exceed guidelines of other programs serving 3- and 4-year-olds,  statewide organizations, county education offices and superintendents from LAUSD, Fresno, Oakland, Garden Grove, Downey, Westminster and La Habra City unified school districts said in a March letter.

    The California state preschool programs allow class sizes of 24 with a 1:8 ratio, according to the letter, which urged legislators to eliminate penalties and  give districts time to reduce ratios for the early enrollment students. 

    Photo courtesy of Garden Grove Unified School District
    Photo courtesy of Garden Grove Unified

    Prior to the 2023 change, students born between April 3 and June 30 were considered regular TK students without different requirements. The trailer bill made those born June 3 to June 30 early enrollment kids.

    Garden Grove didn’t disenroll the students, who’d already been promised a spot. 

    Serving 1,736 TK students, the district had classes with an average of 21 students, well below the 24-student average enrollment requirement for regular TK but above the stricter 20-student requirement for any class with an early enrollment student. 

    Garden Grove estimated their penalties at around $58,000 per class with an early enrollment child. The fines could total $3.1 million.

    A penalty on kids that districts aren’t paid for: ‘double penalty’

    Districts are also reeling from what they say will be a double penalty: The state pays them nothing for early enrollment kids, yet will fine them for not meeting the stricter guidelines.

    School districts receive average daily attendance (ADA) funding for TK-12 students through the Local Control Funding Formula (LCFF). The state determined at what point the 4-year-olds would generate the funds based on its timeline of students eligible to enroll. 

    Three categories of TK students — age-eligible, early admittance and the new early enrollment — exist. Age-eligible students in 2023-24 had birthdays prior to April 2, falling within the state’s timeline, and generated funds from the first day of school. 

    Those enrolled ahead of the timeline with birthdays until June 2, considered early admittance kids, generated funding when they turned 5.  

    The newest category of students — early enrollment kids with birthdays after June 2 — did not generate funding at all. Before the change, districts enrolling students with June 3-30 birthdays could generate state funding once they turned 5. 

    “We’re going to take a penalty for students that we’re not getting revenue for in the first place,” Garcia said about districts educating students without the funding. “It’s unjust.” 

    But what can be done now? 

    The summer 2023 legislative changes for the 2023-24 school year didn’t leave enough time for many districts to comply with the stricter requirements. 

    Still, some refused to turn away families, knowing they’d incur penalties. And unless further legislative action is taken this summer, those districts could be penalized millions of dollars for not meeting the tougher requirements. 

    Existing legislation does not allow districts that are caught out of compliance to avoid penalties; however, the penalty can be waived through the legislative process, relief that Garden Grove and Downey Unified have been seeking for the 2023-24 school year. 

    Assembly Bill 2548, proposed by Assemblymember Tri Ta of northwestern Orange County, would waive the 2023-24 penalties on districts offering early TK.

    In a letter to legislators, the Association of California School Administrators, the California Association of Suburban School Districts, Small School Districts’ Association, county education offices and school districts supported the legislation because the 2023-24 school year was weeks away from starting when the July 2023 trailer bill implemented the early enrollment regulations. In all, nearly 50 school districts, not including multiple districts represented by county education offices, supported the proposed waiver. 

    The Early Care and Education Consortium, according to a bill analysis completed by the Legislature, argued against the bill because it “disregards the legislative intent” in enacting the 1:10 ratio and 20-student max for classes with early enrollment students, which ensure student safety. 

    The bill to waive the 2023-24 penalties failed to make it out of committee. 

    Another option to address penalties for the 2023-24 year is through budget trailer bill language, which can make the penalties effective after a certain date or exempt districts from penalties imposed.

    The existing draft of this year’s education trailer bill does not include changes for TK penalties. 

    Impacting students, now and in the future

    Downey Unified had 70 early enrollment students spread across about 15 classes. 

    “We could have pulled these kids out of this classroom, moved them to other schools in our district, but we just didn’t feel that was right,” deputy superintendent Roger Brossmer said. “That was just not something we were willing to put our kids and our families through.” 

    The impact of maintaining enrollment: about $1 million in possible penalties. 

    Going Deeper

    An audit of this school year can be conducted now that the school year has ended but any fiscal penalties won’t be accessed until after the state education department reviews the audit findings, something that may not occur until the spring semester of the 2024-25 school year. 

    The district would lose funding from the Local Control Funding Formula in the amount of its penalties —reducing services for students, Brossmer said. 

    Because the penalty is accessed up to a year later, Downey Unified officials questioned the intent of the penalty, which takes money away from students. 

    “What is the value of a penalty after the year has already commenced and been funded?” said Robert McEntire, assistant superintendent of business services. “We have served these children, so who benefits from this penalty? This doesn’t help anybody.” 

    Fiscal penalties for noncompliance are a common practice in education. Violations for LCFF unduplicated pupil counts, K–3 grade span adjustments, instructional time, the Expanded Learning Opportunities Program and TK can result in penalties following audit findings, according to the state education department. 

    The penalties ensure “effective accountability,” California Department of Education Communications Director Elizabeth Sanders said. 

    “Penalizing districts is never our goal,” she said. “The related penalties (for TK requirements) … are to ensure that there’s appropriate and effective support of students. The goal is never to collect a penalty; it’s to support and ensure compliance with what kids need.” 

    To Downey Unified leaders, the resulting penalties from the 2023 trailer bill legislation punish districts for trying to meet the needs of their families.

    As a result, for the 2024-25 school year, Downey Unified will not enroll students with birthdays after June 2. 

    “There are another potential 70 students out there with birthdays between June 3 and June 30 that we are not going to have in our schools because we are reticent as a result of what’s happened,” Garcia said. “We don’t feel like we’re able to fully serve our community to the best we can because of the experience that we’ve gone through this year. And that’s disappointing.” 





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  • Budget would require districts to post plans to educate kids in emergencies

    Budget would require districts to post plans to educate kids in emergencies


    The burned remains of the Paradise Elementary school on Nov. 9, 2018, in Paradise. Blocks and blocks of homes and businesses in the Northern California town were destroyed by a wildfire.

    Credit: AP/Rich Pedroncelli

    Starting next March, California school districts will be required to post a plan on their websites outlining how they will provide instruction to students within 10 school days of an emergency that keeps children from attending classes. They should also make contact with students and families within five days of the emergency. Last week, Gov. Gavin Newsom signed the education trailer bill as part of the 2024-25 budget.

    The plan must be operative by July 1, 2025. 

    Local educational agencies — school districts, charter schools and county offices of education — that do not develop an instructional continuity plan as part of their school safety plan will not be eligible to recover lost state attendance funding if schools close or a significant number of students are unable to attend because of an emergency.

    In a separate action, the trailer bill also addresses chronic absenteeism by authorizing school districts to provide attendance recovery programs during school breaks, weekends or after school, to allow students to make up for up to 10 days of school missed for any reason. Beginning next July, districts that offer the programs will be able to recover state funds lost when students in the program were previously absent from school.

    The legislation comes four years after California schools closed for more than a year because of a worldwide pandemic. Since then, chronic absenteeism rates have more than doubled. Wildfires and flooding also have closed schools across the state with increasing frequency in recent years.

    “Given the effects of public health emergencies and the significant and growing number of natural disasters that the state has faced in recent years, there is an increased need for local educational agencies to provide instructional continuity for pupils when conditions make in-person instruction infeasible for all or some pupils,” according to the trailer bill.

    The instructional continuity plan must describe how districts will provide in-person or remote instruction to students, including potentially temporarily reassigning them to other school districts. Students who are reassigned during an emergency will not have to comply with any residency requirements for attendance in that district. 

    Penalties removed

    The legislation has changed dramatically since the May budget revision, which would have given districts five days to offer students instruction after an emergency, and penalized them financially if they didn’t. 

    The revisions are due, in part, to heavy opposition from a coalition of nine education organizations, including the California Teachers Association, California School Boards Association and California County Superintendents.

    “There are countless instances where the physical infrastructure and human capacity necessary to comply with this requirement does not exist: roads, landlines, internet connectivity, access to devices, access to shelter, family and staff displacement, etc.,” said California County Superintendents in a May letter to the chairs of the Senate and Assembly budget committees. “When this occurs, a LEA may find it impossible to offer remote instruction.”

    Derick Lennox, senior director for governmental relations and legal affairs for the association said, “There was the feeling that the state does not understand the challenges that schools face to locate and serve the basic needs of their students and families during a serious emergency.” 

    As an alternative, the coalition asked for a proactive planning process without financial penalties, and lawmakers agreed, Lennox said.

    El Dorado County Superintendent of Schools Ed Manansala said that the proactive, constructive tone of the new legislation is more productive than the punitive tack legislators took in the original version.

    Manansala said it isn’t feasible to expect schools to deliver instruction 10 days after schools close in an emergency.

    El Dorado County has had at least 70 wildfires of varying sizes between 2004 and 2023, the largest being in August 2021, according to CalFire. It burned 221,835 acres and razed Walt Tyler Elementary School in Grizzly Flats.

    “We had teachers and students that were being displaced out of their communities,” Manansala said. 

    Mendocino County Superintendent of Schools Nicole Glentzer first experienced the extended closure of schools in 2017 when a fire burned 36,000 acres.

    Glentzer, who worked at nearby Ukiah Unified School District at the time, had to evacuate her home. She moved into the district office and went to work making decisions about school closures. The district’s schools were closed for five days.

    Since then, the county on the state’s north coast has been ravaged by numerous fires, including two of the nation’s largest, which together burned more than 1.41 million acres in multiple counties in 2018 and 2020.

    Schools in Mendocino County also have been closed recently because of flooding and power outages.

    Glentzer said that while she is satisfied with the revamped language in the legislation, she cringes when she hears that small districts, with small staffs, are expected to come up with plans similar to larger districts. The Mendocino County Office of Education will help the 12 school districts in its county by providing sample plans and templates, she said.

    Attendance recovery

    State chronic absentee numbers have skyrocketed from 12.1% in 2018-19 to 30% in 2021-22, according to an analysis of California data. Chronic absenteeism rates are determined by the number of students who miss at least 10% of school days in a given year.

    Attendance recovery programs like the one required by the new legislation can help districts reduce their chronic absenteeism and regain the average daily attendance funding lost when students miss school. The programs must be taught by credentialed teachers and be aligned to grade-level standards and to each student’s regular instructional program, according to the legislation.

    Attendance recovery programs can be funded through the Expanded Learning Opportunities Program at school sites where the after-school or summer enrichment programs are being offered and operated by the school district.

    “In my mind, it’s a whole theme that the administration and Legislature are going for, around addressing chronic absenteeism — one of the top issues facing students today,” Lennox said. “And, they basically outlined a few different strategies to do it.”





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  • One-size-fits-all bureaucracy strangling small school districts

    One-size-fits-all bureaucracy strangling small school districts


    Mark Twain Union is a small rural elementary school district in Calaveras County serving some 700 students.

    Credit: Louise Simson / Mark Twain Union Elementary School District

    I believe in accountability and performance. My years in the private sector showed me a way of doing business that is accountable for funds spent and services delivered. 

    But one government accountability measure — the Federal Program Monitoring (FPM) review — is an exercise in compliance that places a disproportionate burden on small school districts and takes desperately needed resources away from our kids. It is set up for large districts that can devote a full-time staff person to manage the process, attend the trainings, and upload the tsunami of documents that are required, but it forces small districts like mine to invest thousands of dollars in consultants and software just to file the paperwork.

    The intention of this process is to ensure that a local education agency is meeting statutory program and fiscal requirements for categorical funding — targeted for programs serving low-income and special needs students, among others. These funds can range from thousands of dollars to hundreds of thousands of dollars or more based on the size of the district. That’s all good in theory, but in reality, it has turned into a paper-pushing time suck for small school districts.

    I recently assumed the helm of an impoverished small school district in the Calaveras foothills after rehabbing facilities in dire need in Mendocino County for another district. In my current district office, there are four staff members, two principals, plus me to serve 700 kids. There are no curriculum or special ed directors, no director of student services and no program managers. An $11 million budget for 700 kids doesn’t go very far with facilities that are 70 years old, and everyone wears multiple hats to make the system go.

    When I arrived last July, I learned that we were in the monitoring review. I was grateful that California Department of Education (CDE) representatives who oversee the process agreed to push the review out to this September to allow me time to get situated.

    However, the whole exercise needs to be examined through the lens of the resources of a small district. Here’s what we faced:

    First, there is a week of webinars in August that district coordinators — or in the case of small districts, superintendents — are supposed to attend. Let’s get real. My first priority in August is getting school open for kids, not sitting in front of a webcam. When I raise this concern, I’m told, “Can’t you have someone else watch them?” 

    My response: “Who? The two principals, one of whom is brand new, who are getting their school sites ready for the fall term?  The person in my office who does purchasing and has curriculum orders flowing in? The personnel assistant coordinating critical hires and also managing payroll, or the executive assistant who is also the food service director? Which person won’t be able to do their job because of a multiday seminar ill-timed for August? 

    I understand that this is a federal requirement. But I also know CDE has influence over the review requirement process. It is time for CDE to start advocating on behalf of small under-resourced districts with the federal government.  

    The department should know that the monitoring process for small districts diverts money from their limited, cash-strapped budgets to pay for part-time consultants or expensive software, because no small district office can manage the requirements alone. 

    Let’s also be realistic about the number of areas of reporting required in the review. I acknowledge my new district is in need of improvement in a couple of important areas. I would be happy to explore those two items. But it is not realistic to expect a district with a small staff to report on a smorgasbord of “indicators” that the review committee has determined require examination. 

    CDE staff, many of them who are still enjoying the luxury of working at home two or three days a week, need to come out into the field, walk my walk, and start making regulations and reports that reflect the best interest of all involved, not just the accountants and program reviewers.  

    Here’s how we can improve:

    1. Record and post all FPM audit seminars. Asking district staff to attend a solid week of webinars the week before school opens proves that Sacramento is out of touch with life in the field. (As of mid-July, some session recordings were posted, but it wasn’t an option that was offered when I asked.)
    2. Limit the number of areas of scope for small school districts proportionate to the staff ratio in the district office.  
    3. Provide funding directly to districts, not the county office, for a consultant to support the process. CDE has invented another industry with the review process. Just look online and see all the different software and consultants who make money off of assisting districts, taking money away from kids. Instead, just apportion each district $50,000 for the review so that we can staff it appropriately.
    4. Work with school sites on the dates and areas of review before you assign them. Reach out the year in advance and ask for some potential windows for the audit and self-identified areas of reflection. Work as a partner, not as a dictator. A small school district (or any district) notified in May of a September review (which means all documents must be submitted by August), where the program instruments are not ready until July, training is not held until August, and the place you upload documents is not ready until July …is ridiculous.  Avoid August-October reviews for small districts — or, if there is no alternative — notify them earlier and have the resources ready to go in a timely manner. Move up the CDE deadlines to make more sense for schools.  

    The federal review is not intended to be a gotcha exercise. But small, rural districts don’t have the workforce to devote to the process. The bureaucracy of one size fits all is strangling us. It’s time for a change. 

    •••

    Louise Simson is the superintendent of Mark Twain Union Elementary School District and former superintendent of Anderson Valley Unified School District.

    The opinions expressed in this commentary represent those of the author. EdSource welcomes commentaries representing diverse points of view. If you would like to submit a commentary, please review our guidelines and contact us.





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  • School year already underway at some California districts as start dates keep creeping earlier

    School year already underway at some California districts as start dates keep creeping earlier


    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. 

    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.

    https://www.youtube.com/watch?v=D_Yl6qWrfzE

    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.





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  • California districts try many options before charging parents for student truancy

    California districts try many options before charging parents for student truancy


    Credit: Fermin Leal / EdSource

    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 for a 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 her 2019 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 2017 initiated 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 want to invest in prevention first and you use a legal system as a last resort.”





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  • Fresno Unified adopts weekly early release schedule, joining other large California districts

    Fresno Unified adopts weekly early release schedule, joining other large California districts


    Credit: Fresno Unified / Flickr

    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. 

    That’s not the only reason for the shift. 

    Based on the district’s Frequently Asked Questions page about early release, the change also stemmed from 2023 contract negotiations with teachers which brought more than a year of negotiating to an end and prevented a divisive strike that would’ve harmed the Fresno community and the district’s students. 

    “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.” 





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  • State bailout for California school districts comes with long strings attached

    State bailout for California school districts comes with long strings attached


    Credit: Andrew Reed/EdSource

    Top Takeaways
    •  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%**

    Coachella Valley Unified, 1992
    Loan amount: $7.3 million. 
    Low-income students:  92.4%

    Compton Unified, 1995  
    Loan amount: $19.9 million  
    Low-income students: 93% 

    Emery Unified, 2001
    Loan amount $1.3 million.  
    Low-income students: 52% 

    Oakland Unified, 2003 
    Loan amount: $100 million  
    Low-income students:  80%

    West Fresno Elementary:  2003***
    Loan amount: $1.3 million 
    Low-income students: 86%

    South Monterey County Joint Union High, 2009
    Loan Amount: $13 million 

    Low-income students:  85%

    Vallejo City Unified 2004
    Loan amount: $60 million 
    Low-income students: 85% 

    Inglewood Unified, 2012
    Loan amount: $29 million  
    Low-income students:  87 pct. 

    *Date refers to the year the loan was awarded.

    **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





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  • Lawsuit against West Contra Costa schools could set precedent for how districts handle complaints

    Lawsuit against West Contra Costa schools could set precedent for how districts handle complaints


    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. 





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  • Districts still have learning recovery money: why not spend it on tutoring?

    Districts still have learning recovery money: why not spend it on tutoring?


    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.

    There’s also the $4 billion Expanded Learning Opportunities Program, although that money can only be used before or after school and during summers (Rural districts argue there needs to be more flexibility for tutoring).

    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.”





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  • 252 districts place bonds on the ballot; here’s how two would spend the money

    252 districts place bonds on the ballot; here’s how two would spend the money


    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-area district. 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 districts seeking $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 visit San 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.

    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.

    “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.”





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