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Vouchers in Theory and Practice
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Under voucher programs, the state provides money to parents to defray some or all of their children’s tuition at the government-approved school of their choice. Typically, voucher programs permit parents to choose from among government-run schools and private schools that adhere to certain rules. True voucher programs deliver a physical check to parents which is then signed over to and redeemed by their chosen school, but some foreign voucher-like programs pay participating schools directly based on their enrollment figures. Voucher programs and proposals also vary in a number of other specifics. Under some programs, vouchers must be accepted as full payment of tuition by participating schools, while under others schools can charge tuition in excess of the voucher amount. Sometimes the voucher amount is uniform for all children, and at others it varies based on financial need, student disability, or other considerations. Some programs have relatively liberal school participation criteria, while others exclude profit-making, religious, or other sorts of schools and impose extensive curriculum, testing, and admissions requirements. | | Having the state impose either pedagogical philosophy on an entire nation’s schools is an obvious recipe for conflict. | |
An innovative variation on conventional voucher programs has also been proposed by the Heartland Institute. Under the Heartland Plan, the voucher is set at a comparatively high level, the current average per-pupil public school expenditure, and parents are permitted to keep any portion of the voucher that they do not spend on tuition. This extra money can then be deposited in a savings account and later withdrawn to pay for school fees or tuition in subsequent years (including college tuition). In an alternative formulation of the plan,[18] money from the savings account could also be spent on supplementary tutoring services. When the child for whom the savings account was originally set up reaches the age of 23, any money left over would be returned to the state.[19]
There are currently seven voucher programs operating in six states around the United States, there are well-established national voucher-like programs operating in Chile and the Netherlands, and there is a smaller, more recent voucher-like program in Sweden. The logistical and policy details of the American programs are summarized in the tables below, and these are followed by brief reviews of the major foreign voucher-like programs.
Summary of U.S. Voucher Programs
Table 3
Milwaukee Voucher Program Quick Facts
|
Student enrollment |
13,268 (2003-2004) |
|
Student enrollment cap |
15%
of Milwaukee Public School District (MPSD) Enrollment |
|
Number of participating schools |
107
(2003-2004) |
|
Age
of program |
13
years |
|
Voucher size |
The
lower of $5,882 or the school’s combined tuition and
debt
service cost |
|
Total
program cost |
$76
million (2003-2004) |
|
Source of funding |
45%
from reduction in state transfers to MPSD and 55% from the state’s general
fund |
|
Student participation criteria |
-
Milwaukee resident
-
Family income <= 175% of poverty line
- In
prior school year pupil was either: enrolled in MPSD, was already enrolled
in the voucher program, was enrolled in kindergarten through the 3rd
grade in a Milwaukee private school, or was not enrolled in school. |
|
School financial regulations |
-
Voucher must be accepted as full payment of tuition
-
Must submit yearly audit to the state |
|
School facilities regulations |
Must
meet all health and safety laws and codes that apply to public schools |
|
School admissions regulations |
-
must use random lottery if oversubscribed
- no
discrimination by race, color, national origin |
|
School personnel regulations |
- no
discrimination by race, color, national origin |
|
School content regulations |
May
not require pupils to participate in any religious activities without
parental approval |
|
School testing regulations |
None |
|
School performance regulations |
At
least one of the following must be true, in the judgment of the State
Superintendent of Public Instruction:
- At
least 70% of the pupils in the program advance one grade level each year.
- The
private school’s average attendance rate for the pupils in the program is
at least 90%.
- At
least 80% of the pupils in the program demonstrate significant academic
progress.
- At
least 70% of the families of pupils in the program meet parent involvement
criteria established by the private school. |
Sources: "Milwaukee Parental Choice Program (MPCP), MPCP Facts and Figures for 2003-2004," Wisconsin Department of Public Instruction, Division for Finance and Management (DFM), School Management Services (SMS), p. 1. Obtained online at: [http://www.dpi.state.wi.us/dpi/dfm/sms/doc/mpc03fnf.doc].
And: Wisconsin Statues, sections 119.23 and 121.004. Obtained online at: [http://www.legis.state.wi.us/statutes/Stat0119.pdf] and [http://www.legis.state.wi.us/statutes/Stat0121.pdf].
Table 4
Cleveland Voucher Program Quick Facts
|
Student
enrollment |
5,147 (2002-2003) |
|
Student
enrollment cap |
Depends solely on
the level of funding allocated to the program by the state |
|
Number of
participating schools |
50 (2002-2003) |
|
Age of program |
7 years |
|
Voucher size |
- A maximum of
$3,000 for K-8th graders (2003-2004)
- A maximum of
$2,700 for 9th graders (2003-2004)
- Families
earning less than 200 percent of a state-determined poverty threshold
receive a voucher worth up to 90% of tuition, while those above that
threshold receive a 75% voucher. |
|
Total program
cost |
$16.4 million
(2003-2004) |
|
Source of funding |
Program funds are
deducted from Cleveland’s share of the Disadvantaged Pupil Impact Aid (DPIA)
line item of the state’s General Revenue Fund. It is not clear if the
legislature simply increases the DPIA’s total value to offset this loss to
Cleveland or if the public school district actually loses money when it
loses students. |
|
Student
participation criteria |
- Resident within
Cleveland Municipal School District boundaries
- Preference to
low-income families, significant discretion given to state Superintendent
of Public Instruction.
- In the current
school year the pupil must be entering k-8th grade if he/she is new to the
program. Returning students are eligible to attend the 9th grade under the
program in 2003-2004, and the 10th grade will open up for returning
students in 2004-2005. |
|
School financial
regulations |
- Fees charged to
low-income parents may not exceed 10 percent of voucher amount (with
“low-income” defined by the state)
- Schools must
accept in-kind contributions and services from low-income parents in lieu
of fees |
|
School
eligibility requirements |
Must either be a
member of a government approved accrediting body or must follow the
pedagogical/curriculum guidelines set down for public schools by the State
Board of Education and submit to and pass periodic inspections by the
Board of Education. |
|
School facilities
regulations |
Same as for other
“chartered” private schools |
|
School admissions
regulations |
- Returning
students have highest priority, followed by siblings of returning
students.
- For all other
students, the rules differ depending on the grades involved
- For grades k-3,
school must use two random lotteries to admit students. The first lottery
includes only low-income applicants (as defined by the state) and this
lottery must account for 20 percent of the preceding year’s enrollment for
that grade. The second lottery is open to all applicants.
- For grades 4
and up, returning students have priority and all subsequent applicants can
be accepted or rejected at the school’s discretion.
- No
discrimination based on race, religion, or ethnic background |
|
School personnel
regulations |
No discrimination
based on race, religion, or ethnic background |
|
School content
regulations |
- Participating
schools must be “chartered nonpublic schools.” A chartered nonpublic
school is one that conforms to the set of rules laid down by the State
Board of Education in the Ohio Administrative Code under section
3301-35-12 “Chartered nonpublic schools.”
- Students must
attend school for a number of hours and number of days of attendance
equivalent to the hours and days of attendance in public schools.
|
|
School testing
regulations |
Like all private
schools in the state, voucher redeeming schools must participate in the
statewide government testing program called for under section 3301.07.10
(“Statewide program to test student achievement; graduation tests”) of the
Ohio Statutes. |
|
Regulatory bodies |
The State
Administrative Code requires the State Board of Education to Appoint a
nonpublic school committee to advise it on matters related to private
schooling. This committee must, by law, be overwhelmingly comprised of
representatives of the (mostly religious) currently dominant school
accrediting organizations. Three quarters of the members of the advisory
committee must be members of these organizations. This cartelizes control
over subsidized private education, ensuring that existing organizations
dominate the body that influences policies affecting all current and
prospective private schools. |
Sources: Ohio Legislative Service Commission, "Catalog of Budget Line Items." Obtained online at: [http://www.lbo.state.oh.us/fiscal/publications/biennial/COBLI_2000_2005/edu.pdf].
And: David Smole, "Almanac of Policy Issues: School Choice," Congressional Research Service, August 1, 2003. Obtained online at: [http://www.policyalmanac.org/education/archive/school_choice.shtml].
And: Doug Oplinger and Dennis J. Willard, "More Money for Vouchers," Akron Beacon Journal, June 29, 2003. Obtained online at: [http://www.ohio.com/mld/ohio/news/6195814.htm].
And: Ohio Administrative Code 3301-35-12, "Chartered nonpublic schools. Obtained online at: [http://onlinedocs.andersonpublishing.com/oh/lpExt.dll/OAC/11528/12380/124cd?fn=document-frame.htm &f=templates&2.0].
And: Ohio Revised Code § 3313.97.7. "Admission of students to registered private school," as invoked by Ohio Revised Code § 3313.97.6. Obtained online at: [http://onlinedocs.andersonpublishing.com/oh/lpExt.dll/PORC/15e22/169f8/16e7f?f=templates &fn=document-frame.htm &q=%22scholarship%22&x=Advanced&2.0#LPHit1].
And: Ohio Statutes § 5104.01, "Definitions." Obtained online at: [http://onlinedocs.andersonpublishing.com/oh/lpExt.dll/PORC/23cb9/24166/24167?fn=document-frame.htm&f=templates&2.0].
And: The State Board of Education is empowered to create rules for public and nonpublic schools under Ohio Statutes § 3301.07, "Powers and duties generally; minimum standards." Obtained online at: [http://onlinedocs.andersonpublishing.com/oh/lpExt.dll/PORC/15e22/15e23/15e4e?f=templates&fn=document-frame.htm&2.0#JD_330107].
And: Ohio Revised Code § 3321.07, "Requirements for child not attending public schools."
And: Ohio Statutes § 3301.07.10, "Statewide program to test student achievement; graduation tests." Obtained online at: [http://onlinedocs.andersonpublishing.com/oh/lpExt.dll/PORC/15e22/15e23/15e84?fn=document-frame.htm&f=templates&2.0]. Which was applied to private schools in 1993 (though not implemented until 1995 due to court challenge) under Ohio Revised Code § 3301.16, "Classifying and chartering of school districts and individual schools within district."
And: State Administrative Code 3301-35-12, "Chartered nonpublic schools." Obtained online at: [http://onlinedocs.andersonpublishing.com/oh/lpExt.dll/OAC/11528/12380/124cd?fn=document-frame.htm &f=templates&2.0].
Table 5
Florida A+ Voucher Program Quick Facts
|
Student
enrollment |
1,100 (November,
2003) |
|
Student
enrollment cap |
13,700 (November,
2003) |
|
Number of
participating schools |
Unknown - roughly
138 private schools are eligible |
|
Age of program |
3 years |
|
Voucher size |
The state
allocation for the participating child if he/she were to attend a public
school or the private school’s actual tuition, whichever is less. The
average voucher is between $3,500 and $3,900. |
|
Total program
cost |
Contingent on
student participation (no fixed cap) |
|
Source of funding |
State education
budget. State allocation follows the student, so districts no longer
receive state funds for the students who leave. |
|
Student
participation criteria |
- In the previous
year, the student must have attended a public school that received two
consecutive grades of “F” in the past two years on the state’s annual
school grading program, or
- The student
must be entering kindergarten or the first grade and have been assigned to
a public school that was graded “F” in the previous two years, or
- The student
must have been previously enrolled in the program. |
|
School financial
regulations |
- Voucher must
constitute full tuition (section 4(i) of enabling legislation).
- School must
provide proof of financial viability to the state |
|
School
eligibility requirements |
School must be
accredited by a government approved accrediting body. (section 4(f) of
enabling legislation) |
|
School facilities
regulations |
Same code and
safety requirements as all private schools. |
|
School admissions
regulations |
- Schools may not
discriminate by race, color, national origin, religion, academic history
(Section 4(c) of the enabling legislation [Florida Statutes 1002.38 ]
requires compliance with 42 U.S.C. s. 2000d and section 4(e) of the
enabling legislation prohibits academic and religious discrimination
against students)
- If there are
more applicants than there are places available, students must be accepted
on a random lottery basis
- Siblings of
previously (randomly) admitted students may be given preference |
|
School personnel
regulations |
May not
discriminate by race, color, national origin, religion |
|
School content
regulations |
Schools must
follow instruction/curriculum guidelines laid down by their
government-approved accrediting body (section 4(f)). |
|
School testing
regulations |
Participating
schools must administer the same tests as public schools, including the
FCAT reading and mathematics tests and “Florida Writes!” |
|
School
performance regulations |
To graduate,
students must show satisfactory performance on the FCAT or such other
graduation tests as are required by the state (section 5(c) of enabling
legislation) |
|
School attendance
regulations |
Schools must
follow the attendance requirements set by their government-approved
accrediting bodies (section 4(f)) |
Sources: "Bush says Florida will put up $2 million for vouchers," The Associated Press, November 14, 2003. Obtained online at: [http://www.heraldtribune.com/apps/pbcs.dll/article?AID=/20031114/APN/311140966].
And: Matthew I. Pinzur, "Voucher program doubles in size," The Miami Herald, July 23, 2003. Obtained online at: [http://www.miami.com/mld/miamiherald/news/local/6361954.htm].
And: The figure for total number of eligible schools was arrived at by adding together all the eligible private schools in each of the districts listed on the official program website: [https://www.opportunityschools.org/Info/OSP/osp_flmap_private.asp].
And: Florida Statutes Title XLVIII (K-20 Education Code), Chapter 1002 (Student And Parental Rights And Educational Choices). Obtained online at: [http://www.flsenate.gov/Statutes/index.cfm?App_mode=Display_Statute &Search_String=&URL=Ch1002/SEC38.HTM &Title=-%3E2002-%3ECh1002-%3ESection%2038].
Table 6
Florida McKay Voucher Program Quick Facts
|
Student
enrollment |
9,202 (June,
2003); approximately 12,000 (fall, 2003) |
|
Student
enrollment cap |
None |
|
Number of
participating schools |
Unknown |
|
Age of program |
2 years |
|
Voucher size |
Average is $5,840
as of October, 2003. Range was $4,500 to $21,000 as of September, 2002. |
|
Total program
cost |
Contingent on
student participation (no fixed cap) |
|
Source of funding |
The state
education budget (Florida Education Finance Program) allocation for a
child with the given category of disability, plus a share of the
“guaranteed allocation for exceptional students” for each district laid
out in chapter 2000-166, Laws of Florida. |
|
Student
participation criteria |
- Student is
disabled and has an Individual Education Program (IEP) written in
accordance with the rules of the State Board of Education
- Student
attended a Florida public school in the preceding year
- Student has
been accepted at a private school |
|
School financial
regulations |
School must
provide proof of financial viability to the state |
|
School
eligibility requirements |
School must be
accredited by a government approved accrediting body (section 4(f)) |
|
School facilities
regulations |
Same as those
pertaining to other private schools |
|
School admissions
regulations |
May not
discriminate by race, color, or national origin (Section 4(c) of the
enabling legislation [Florida Statutes 1002.39 ] requires compliance with
42 U.S.C. s. 2000d) |
|
School personnel
regulations |
May not
discriminate by race, color, or national origin (see above). |
|
School content
regulations |
None |
|
School testing
regulations |
None |
|
School
performance regulations |
None |
|
School attendance
regulations |
None |
Sources: Stephen Hegarty, "Disability heals but voucher remains," October 4, 2003. Obtained online at: [http://www.sptimes.com/2003/10/04/news_pf/State/Disability_heals_but_.shtml].
And: Florida Statutes 1002.39. Obtained online at: [http://www.flsenate.gov/Statutes/index.cfm?App_mode=Display_Statute &Search_String=&URL=Ch1002/SEC39.HTM &Title=-%3E2002-%3ECh1002-%3ESection%2039].
And: Manhattan Institute Education Research Office website, McKay Scholarship page, [http://www.miedresearchoffice.org/mckayscholarship.htm].
Table 7
Colorado Voucher Program Quick Facts
|
Student
enrollment |
N/A |
|
Student enrollment cap |
- A variable
function of: the number of participating districts (see below), the size
of the participating districts, and the number of years since the program
was introduced. For eligible school districts, the number of students who
may receive vouchers is capped at 1% in year 1, 2% in year 2, 4% in year
3, and 6% in year four and all subsequent years.
- It is estimated that 20,000 students
will be eligible by the 2007-2008 school year if the program begins on
schedule in 2004-2005. |
|
Number of participating schools |
74 schools provisionally approved |
|
Age of program |
passed in 2003 but halted by court
injunction |
|
Voucher size |
The lesser of the
private school’s audited cost per-pupil and:
- For students
enrolled in kindergarten, 37½ percent of the district’s per-pupil
operating revenues (PPOR)
- For students
enrolled in grades 1-8, 75% of the district’s PPOR
- For students enrolled in grades 9-12,
85% of the district’s PPOR. |
|
Total program cost |
Dependent on participation |
|
Source of funding |
District’s per-pupil allotment of state
funding, with the left-over per-pupil amount being retained by the
district to pay for fixed-cost items |
|
Student participation criteria |
- Students must
be in a participating school district
- Students must qualify for a
free/reduced price lunch, perform poorly academically, and have attended a
public school in the prior year |
|
School financial regulations |
Must demonstrate financial viability |
|
School eligibility requirements |
Local school districts can deny
participation if they construe an applicant school to fall short of the
various requirements stipulated in the law. |
|
School facilities regulations |
Must meet public school health and
safety laws and codes |
|
School admissions regulations |
- Schools may
give preference to returning students and to the siblings of
current/returning students.
- Apart from the
previous exceptions, schools must admit eligible students on a first come
first accepted basis.
- Schools may not
discriminate against eligible children in admissions, dismissals, or other
rights or privileges of parents or eligible children, on the basis of
race, color, religion, national origin, or disability (Section 22-56-106,
Paragraph 1(b)).
- Students can withdraw at any time with
no penalty |
|
School personnel regulations |
Fingerprinting of staff and criminal
background checks |
|
School content regulations |
Schools may not advocate or foster
unlawful behavior or teach hatred of a person or a group |
|
School testing regulations |
Must permit school district officials to
come in and administer state-wide assessments, at the private school’s
expense |
|
School performance regulations |
none |
|
Program evaluation |
An official government assessment of
program outcomes will be carried out during the first four years of
implementation |
Sources: Colorado Revised Statutes, Section 22, Article 56, Paragraphs 101-110. Obtained online at: [http://198.187.128.12/colorado/lpext.dll/Infobase/31283/334f0/3353d/338c0?f=templates&fn=document-frame.htm &q=%22opportunity%20contracts%22&x=Advanced &2.0#LPHit1].
And: "Vouchers In Colorado: How Do the New 'Colorado Opportunity Contracts' Work?" Head First Colorado website, [http://www.headfirstcolorado.org/HB1160.php].
Table 8
Maine Voucher Program Quick Facts
|
Student
enrollment |
5,614 (fall,
1999) |
|
Student
enrollment cap |
Limited to
students in eligible districts (see below) |
|
Number of
participating schools |
Approximately 23
schools in Maine and 40 schools outside of Maine |
|
Age of program |
130 years |
|
Voucher size |
- For elementary
school, the lesser of the private school’s tuition or $5,421.96, as of
2002-2003
- For an in-state
high school, the lesser of the private school’s tuition or $6,966.49, as
of 2002-2003
- For an
out-of-state high school, the lesser of the private school’s tuition or
$6,333.17, as of 2002-2003 |
|
Total program
cost |
Approximately $30
million (no preset limit) |
|
Source of funding |
Each district
pays for participating students out of its total budget and is then
reimbursed by the state. |
|
Student
participation criteria |
Students must
reside within the boundaries of an eligible district. |
|
School district
eligibility |
Must not have a
government operated school |
|
School financial
regulations |
Schools must
provide audited financial records |
|
School
eligibility requirements |
- Schools must be
secular (added in 1981)
- Schools must be
accredited by the state |
|
School facilities
regulations |
Same as for other
private schools |
|
School admissions
regulations |
none |
|
School personnel
regulations |
none |
|
School content
regulations |
| |