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Xerox University Microfilms 300 North Zeab Road Ann Arbor, Michigan 43106 I I INFORMATION TO USERS This material was produced from a microfilm copy of the original document. While the most advanced technological means to photograph and reproduce this document have been used, the quality is heavily dependent upon the quality of the original submitted. The following explanation of techniques is provided to help you understand markings or patterns which may appear on this reproduction. 1. The sign or "target" for pages apparently lacking from the document photographed is "Missing Page(s)". If it was possible to obtain the missing page(s) or section, they are spliced into the film along with adjacent pages. This may have necessitated cutting thru an image and duplicating adjacent pages to insure you complete continuity. 2. When an image on the film is obliterated with a large round black mark, it is an indication that the photographer suspected that the copy may have moved during exposure and thus cause a blurred image. You will find a good image of the page in the adjacent frame. 3. When a map, drawing or chart, etc., was part of the material being photographed the photographer followed a definite method in "sectioning" the material. It is customary to begin photoing at the upper left hand corner of a large sheet and to continue photoing from left to right in equal sections with a small overlap. If necessary, sectioning is continued again — beginning below the first row and continuing on until complete. 4. The majority of users indicate that the textual content is of greatest value, however, a somewhat higher quality reproduction could be made from "photographs" if essential to the understanding of the dissertation. Silver prints of "photographs" may be ordered at additional charge by writing the Order Department, giving the catalog number, title, author and specific pages you wish reproduced. 5. PLEASE NOTE: Some pages may have indistinct print. Filmed as received. Xerox University Microfilms 300 North Zeab Road Ann Arbor, Michigan 43106 I I 75 - 11,427 SIEGEL, Peggy Mae, 1946- THE POLITICS OF SCHOOL FINANCE REFORM: A COMPARATIVE CASE STUDY OF FOUR MIDWESTERN STATES, 1971-1973. The Ohio State University, Ph.D., 1974 Education, administration Xerox University Microfilmst Ann Arbor, Michigan 48106 © 1975 PEGGY MAE SIEGEL ALL RIGHTS RESERVED THE POLITICS OF SCHOOL FINANCE REFORM A Comparative Case Study of Four Midwestern States 1971 - 1973 DISSERTATION Presented in Partial Fulfillment of the Requirements for the Degree Doctor of Philosophy in the Graduate School of the Ohio State University BY Peggy M. Siegel, B.A., M.A. AAAAAAAAA The Ohio State University 1974 Reading Committee Approved By Roald F. Campbell Walter Hack Raphael 0. Nystrand Advisor Department of Educational Administration ACKNOWLEDGEMENTS A dissertation is normally thought of as the work of one person. Given the nature of the undertaking, however, it is more truthfully the product of many minds. Consequently, there are a number of people that I would especially like to thank. Roald Campbell has earned my lasting gratitude as both my advisor and as director of the Educational Governance Project. In both capacities, he offered me the chance to work with someone who has made a long and lasting contribution to the field of educational admini­ stration and the unique opportunity to work on a national research study which pursued my major professional interests. A special note of thanks also goes to Tim Mazzoni who, as associate director of the Project and a member of my PhD committee, has been an advisor, a sounding board, and most importantly, a friend. I would also lik. to thank the other members of my PhD committee - Walt Hack, Fritz Stocker, and Ray Nystrand. All three professors were a pleasure to talk to, both in and out of the classroom. As fellow graduate students and research associates, Ed Hines and Tony Warren will forever hold my friendship and affection, especially for all of the hours we commiserated together. Bonnie Reese and Archie Buchmiller are the dream of anyone doing research. They were both fun to interview and completely selfless of ii their time In reacting to rough drafts and speculations. The citizens of Wisconsin are indeed lucky to have these two in their service. # I will always be grateful to Lois VanDervort and Pat Wood who, fortunately for all of us, survived the impossible task of typing this dissertation. Finally, a special note of thanks is extended to my parents, Pauline and Nathan Siegel, whose love, support, and encouragement were crucial in enabling me to finally graduate a third and last time from Ohio State. iii I VITA May 25, 1946................ B o m - Cleveland, Ohio 1968........................ B.A., cum laude, The Ohio State University, Columbus, Ohio 1968-1970 .................. N.D.E.A. Fellowship, Department of Political Science, The Ohio State University, Columbus, Ohio 1970-1972 .................. Legislative Intern, The Ohio General Assembly; M.A., Political Science, The Ohio State University, Columbus, Ohio 1972-1974 . ............ Graduate Research Associate, Department of Educational Administration, The Ohio State University, Columbus, Ohio PUBLICATIONS "State Policy Making for the Public Schools of Massachusetts," Prepared for the Educational Governance Project, The Ohio State University; Columbus, Ohio; 1974 "School Finance Reform" in "State Policy Making for the Public Schools of Michigan," The Educational Governance Project; Columbus, Ohio; 1974 "The Politics of Passing School Finance Reform," in State Policy Making for the Public Schools: A Comparative Analysis, The Educational Governance Project, The Ohio State University; Columbus, Ohio; 1974 Masters Thesis: "The Politics of Abortion Reform Legislation in the United States; A Case Study: New York," The Ohio State University, 1972 FIELDS OF STUDY Major Field: The Politics of Education Studies in State Politics of Education, Professors Roald F. Campbell and Tim L. Mazzoni Jr. iv Studies in School Finance and Economics, Professors Walter Hack and Frederick Stocker I Studies in School/Community Relations, Professor Raphael 0. Nystrand v TABLE OF CONTENTS Page ACKNOWLEDGEMENTS ................................................ ii VITA ............................................................ iv LIST OF TABLES AND FIGURES........................................ vii Chapter I. STATEMENT OF THE P R O B L E M .............................. 1 II. THE POLITICS OF SCHOOL FINANCE REFORM IN OH I O ...... 17 III. THE POLITICS OF SCHOOL FINANCE REFORM IN MINNESOTA . 73 •IV. THE POLITICS OF SCHOOL FINANCE REFORM IN MICHIGAN .... 110 V. THE POLITICS OF SCHOOL FINANCE REFORM IN WISCONSIN . 163 VI. A FOUR STATE COMPARATIVE ANALYSIS........................ 206 Pressures for Change Policy Initiation and Formulation Legislative Response Final Resolution VII. SUMMARY, CONCLUSIONS, AND IMPLICATIONS.................. 231 APPENDIX A ................................ 244 B .............................................................260 C .............................................................262 BIBLIOGRAPHY .................................................... 264 vi LIST OF TABLES AND FIGURES Table Page 1. Educational Governance Project: Number of Structured Interviews with State Policy Makers, February-March, 1973 ...................................................... 6 2. Percent of Total State Population Urban and Rural, 1970 . 9 3. A Comparison Between Educational Fiscal Ability and Effort, 1970-1971 11 4. Estimated Percentage of Revenues for the Public Elementary and Secondary Schools, 1970-71, Coming from Local and State Governments ........................ 11 5. Ranking and Equalization Scores of the States Based on NEFP Typology for the School Year 1968-1969 12 6. General Governmental Expenditures, 1970-71 ................ 13 7. Minnesota'r Pre-1971 School Finance System Compared with Other States on Selected Dimensions ...................... 74 8. Comparison of Foundation Aid and Median Maintenance Costs in Minnesota; High School Districts, 1963-71 .............. 76 9. Selected Data on High and Low Expenditure Minnesota High School Districts, 1970-71 78 10. Property Tax in Minnesota Compared with United States A v e r a g e .................................................. 81 11. Comparison on Selected Variables Among the Major School Finance Bills in the 1971 Regular Legislative Session . 91 12. Comparison on Selected Variables Among the Pre-1971 State School Aid Program, The Governor's Original Bill, and The Omnibus Tax A c t ...................................... 101 13. Michigan’s Ranking Among the Other States on Selected Measures of "Need" and "Ability" .......................... Ill vii Table Page 14. Michigan's Ranking Among the Other States on Selected Dimensions of "Effort" and "Equity" ...................... 113 15. Division of Financial Responsibility to the Public Schools by Level of Government, Michigan Among the Other ' States.................................................... 114 16. Michigan's Ranking Among the Other States on Selected Measures of Tax Burden.................................... 115 17. School Finance Data for Four Selected Districts in Michigan, 1970-71 118 18. Summary of Voter Response to Operational Millage Issues in Michigan by Fiscal Y e a r ................................ 120 19. Summary of Voter Response to Bond Issues in Michigan by Fiscal Y e a r ............................................ 120 20. The Effect of the Equal Yield Formula on Three Selected Districts in Michigan ...................................
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