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A Twenty Year Plan for Reorganization of Illinois' Public School Districts

William L. Hinrichs

Illinois State Board of Education

March 1991

The opinions and conclusions expressed in this paper are solely those of the author and do not necessarily reflect the opinions and policies of the Illinois State Board of Education.

In Illinois, we are concerned about the esoteric concepts of equity, adequacy and efficiency.  To that end, we have discussed these concepts ad nauseam; however, little has been done over the past quarter century to substantially effect any of these worthy goals.  We have a system of school funding that is so full of inequities, both state and local, that the same old formula tinkering coupled with minimal effort to restructure the property tax system can not possibly help the situation.  It is time to overhaul the system from the ground up. With that in mind, the following thoughts are provided.  The plan offered here is rough in nature.  It is left to the politicians and practitioners to fill in the details.

What Happens Immediately

  1. Existing school districts would be legally abolished as of July 1.
  2. Approximately 150 new school districts would be legally established effective the same date.  Downstate counties would basically form one school district each.  Large cities could form separate districts.  Chicago would remain a separate district.  Suburban Cook, Lake and DuPage counties would be divided into multiple districts.
  3. No children currently attending school would change schools or be forced to attend a school different from the one they would normally attend through twelfth grade.
  4. No teacher or administrator would lose his/her job.
  5. No schools would be closed.
  6. Currently existing school districts would be considered as sub-districts to the newly created legal districts.  Sub-districts would function as existing districts currently function.
  7. A Board of Education for each newly formed district consisting of three members would be created.  Initially this Board would have little power.  Existing Boards of Education would remain in their current configuration to govern sub-districts.
  8. A General Superintendent (perhaps initially existing regional superintendents) would be appointed.  Current superintendents would become sub-district superintendents 
  9. Transportation and purchasing within the newly created districts would be immediately coordinated.
What Happens Through Time (Approximately 20 Years)
  1. Beginning July 1, any child entering school or any child changing residence would be enrolled in and attend a school within the boundaries of a newly created district.
  2. Decisions concerning facility needs and staffing needs will be made by the "new" Board of Education in conjunction with existing sub-district boards.  For example, if a new building is needed, decisions can be made about where to build the building within the district to best meet the needs of the district.  As superintendents, principals and teachers resign, retire or die, decisions can be made about how to restructure these functions.
  3. Sub-district Boards of Education will be phased out, reducing the number of members from seven to five to three to none.  Concurrently, the district Board of Education will increase from three to five to seven members.
  4. District and building administration will be reduced through attrition and a gradual evolvement of a district administrative structure with one district superintendent will occur.
  5. New teachers will be assigned to district buildings as needed.
Debt Service
  1. The state will issue general obligation bonds and pay off all existing school district debt.  A 20 year repayment schedule will be implemented with a small district property tax being levied for that purpose.
  2. Future long or short term borrowing will be done at the district level with a district debt service rate established to retire the debt instrument.
Funding
  1. Property taxes will initially be levied at two levels.  The sub-district will retain authority to levy against the property of the sub-district at a slightly decreased rate.  The district will have authority to levy against the property of the entire district at a minimal rate.  Taxes collected by the district will be distributed back to sub-districts on a basis determined by the Board of Education.
  2. As time passes, the authority of the sub-district will be decreased and the authority of the district will be increased.  After approximately 20 years, all taxing authority will be with the district.
  3. General state aid will work in a manner similar to that of property taxes.  Initially, general state aid will be distributed to sub-districts with a minimal amount to districts.  Through time, the proportion to sub-districts will decrease and the amount to districts will increase.
  4. State categorical block grants will be available to districts for secondary distribution to sub-districts.  Eventually, the emphasis in funding will shift from the sub-district to the district.
Summary

The plan legally abolishes school districts as they now exist and re-establishes district boundaries on basically county lines, but does so with minimal disruption.  No one (students, teachers, administrators) would be dramatically affected.  No one will be forced to change schools.  No one will lose a job.  No community will lose a basketball or football team.  The change in governance and funding will gradually take place over a twenty year period.

The plan presented here is radical.  Perhaps that's what we need.

Originated on March 20, 1991