No Child Left Behind? The Funding Gap in ESEA and Other Federal Education Programs
From the National Education Association.
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The current reauthorization of the Elementary and Secondary Education Act (ESEA), known as No Child Left Behind (NCLB), raises high expectations for achievement and imposes stringent measures of accountability on students, teachers, and schools. Yet it fell short of full funding by more than $32 billion in 2003. Eight other federal education programs serving Americans from preschool age through adulthood had funding gaps totaling almost $49 billion for 2003. ESEA/NCLB received less than half of its full funding in 2003. Given current trends, it appears likely to remain drastically underfunded. That suggests the advisability of carefully reexamining the reauthorization now-while it is still relatively early in NCLB's 2002-2007 lifespan.
Through successive reauthorizations since 1965, ESEA has provided supplementary resources for students deprived of full educational opportunities by discrimination, poverty, or both. Making up 37 percent of Department of Education funding in 2003, ESEA programs provide for additional teachers and teacher aides, professional development, instructional materials, students' acquisition of the English language, after-school programs, and other services. The Act thus confirms the federal government's role as a partner of state and local governments in supporting public education for all students.
This study finds that the federal government is not providing the resources that the ESEA/NCLB legislation and other federal education laws stipulate to help students and schools achieve. Federal funding is crucial now, as state and local governments, already contributing more than 90 percent of total education funding, struggle with fiscal crises of their own. In addition, the 2001 No Child Left Behind (NCLB) Act has raised achievement goals and accountability measures substantially. These measures require states to implement universal testing. They also impose federal sanctions on schools that do not meet stringent measures of adequate yearly progress (AYP). These sanctions begin with potentially disruptive shifting of students from school to school. They may ultimately lead to widespread "reconstitution" of schools, involving dismissal of a school's entire administration and staff.
The funding gaps in ESEA/NCLB and other federal education programs are daunting in magnitude:
- ESEA's Title I-A program had a funding gap of $16.5 billion in 2003. ESEA as a whole had a gap of more than $32.6 billion.
- Eight other federal education programs, including Head Start and the Individuals with Disabilities in Education Act (IDEA) had a funding gap of an additional $48.8 billion in 2003. The total 2003 funding gap was $81.4 billion. In all, the 2003 federal appropriations were only about 43 percent of the full funding level.
- Federal education funding for 2004 is not yet final. It is already clear, however, that Title I-A is likely to have a funding gap of about $28 billion. The funding trend is getting worse, not better.
To derive the summary numbers for full funding and the funding gaps, along with detailed calculations for ESEA/NCLB and other federal programs, the study used formulas written into the relevant legislation. Where the legislation did not contain formulas, the study used current or previous congressional authorizations. The calculations also adjusted for inflation and program changes. The study's methodology evaluates what it would cost to serve all those who are eligible for the programs-that is, to leave no child behind. It cuts through ambiguities in the laws (e.g., authorization levels that do not fulfill the law's own funding formulas, and lack of specific authorizations for ongoing, funded programs). The paper also clarifies different, and sometimes misleading, usages of "full funding" in the media and on Capitol Hill.
Providing a quality education for the coming generation of students is a challenge. This study does not argue, however, that the president or Congress should simply "throw money" at all federal education programs. It does suggest that the gap between present funding and full funding for ESEA/NCLB, for example, is far too large. Clearly the current reauthorization, now "celebrating" its second anniversary, requires swift and careful reconsideration and much more realistic alignment of resources and expectations. Partial funding coupled with full accountability is a recipe for failure. In contrast, full funding of the right programs and of appropriate testing and accountability measures provides a foundation for success.
Visit the NEA Web site for more information.
Download the Full Report (PDF).
Download the State-by-State Report (PDF).
Please note you will need Adobe Acrobat to download the State-by-State Report.
