Legislative Research Commission Office Of Education Accountability Kentucky’s Independent School Districts: A Primer Research Report No. 415 Office Of Education Accountability Legislative Research Commission Frankfort, Kentucky Prepared By lrc.ky.gov Karen M. Timmel; Gerald W. Hoppmann; Albert Alexander; Cassiopia Blausey; Brenda Landy; Deborah Nelson, PhD; and Sabrina Olds Kentucky’s Independent School Districts: A Primer Project Staff Karen M. Timmel, Acting Director Gerald W. Hoppmann, Research Manager Albert Alexander Cassiopia Blausey Brenda Landy Deborah Nelson, PhD Sabrina Olds Research Report No. 415 Legislative Research Commission Frankfort, Kentucky lrc.ky.gov Accepted September 15, 2015, by the Education Assessment and Accountability Review Subcommittee Paid for with state funds. Available in alternative format by request. Legislative Research Commission Foreword Office Of Education Accountability Foreword For over 25 years, the Office of Education Accountability has played an important role in reporting on education reform in the Commonwealth of Kentucky. Today, the 16 employees of OEA strive to provide fair and equitable accountability, documenting the challenges and opportunities confronting Kentucky’s education system. In December 2014, the Education Assessment and Accountability Review Subcommittee approved the 2015 research agenda for the Office of Education Accountability, which included this primer on Kentucky’s independent school districts. These school districts are those whose geographic boundaries are defined not by the county lines that define most districts, but by historic boundaries within counties. Though they often bear the names of cities, these school districts operate independently of cities. This primer explains the history, legal context, and characteristics of the 53 independent school districts distributed across the Commonwealth. The Legislative Research Commission comprises more than 400 professionals who work to make the legislative process accessible, informative, and relevant to the citizens of our state. OEA is an important part of that mission. Thank you for your interest in this report and for your interest in school governance in Kentucky. David A. Byerman Director Legislative Research Commission Frankfort, Kentucky October 2015 i Legislative Research Commission Contents Office Of Education Accountability Contents Summary ....................................................................................................................................... vii Chapter 1: Introduction And Background .......................................................................................1 Definition .......................................................................................................................1 Major Conclusions Of This Study .................................................................................2 Organization Of This Report .........................................................................................4 Description Of This Study .............................................................................................4 Objectives ..........................................................................................................4 Methodology And Data Sources ........................................................................4 Data Limitations .................................................................................................6 National Context ............................................................................................................6 ISD History In Kentucky ...............................................................................................7 Historical Anecdotes From Current ISDs ........................................................10 Current ISD Locations .................................................................................................12 Information About District Boundaries .......................................................................14 Annexation .......................................................................................................14 Schools Outside Of District Boundaries ..........................................................14 Importance Of Accurate Boundary Information ..............................................15 Availability Of Boundary Information ............................................................15 Best Available Boundary Data.........................................................................16 ISD Characteristics ......................................................................................................17 Student Membership ........................................................................................17 Change In ISD Membership 2011-2014 ..............................................18 A1 Schools .......................................................................................................18 Demographic Characteristics ...........................................................................19 Achievement ....................................................................................................20 Chapter 2: Legal Context ..............................................................................................................21 Overview ......................................................................................................................21 Composition And Limitations......................................................................................21 Annexation And Mergers .............................................................................................22 Annexation .......................................................................................................22 Assets And Liabilities ..........................................................................25 Mergers ............................................................................................................26 Nonresident Student Enrollment ..................................................................................28 District Policies And Procedures .....................................................................28 Nonresident Students And Reciprocal Agreements .........................................29 Dispute Resolution ...........................................................................................30 Superintendent Concerns About Reciprocal Agreements ................................31 Tuition ..............................................................................................................32 iii Contents Legislative Research Commission Office Of Education Accountability Chapter 3: Exchange Of Nonresident Students With Other Districts ............................................35 Reciprocal Agreements ................................................................................................35 Number Of Agreements ...................................................................................36 Types Of Reciprocal Agreements ....................................................................36 Conditions For Nonresident Enrollment ......................................................................37 Class Size/Building Capacity ...........................................................................38 Behavior ...........................................................................................................38 Attendance .......................................................................................................38 Academics ........................................................................................................39 Other Conditions ..............................................................................................39 Consequences To Currently Enrolled Nonresident Students ...........................39 Tuition ..........................................................................................................................39 Tuition Policies ................................................................................................40 Recommendation 3.1 ................................................................41 Tuition Fees .....................................................................................................41 Nonresident Students With Reciprocal Agreements ............................42 Nonresident Students Without Reciprocal Agreements ......................42 SEEK Or Per-Pupil Operating Expenses .............................................42 Children Of District Employees...........................................................43 Other Types Of Tuition ........................................................................43 Number Of Nonresident Students ................................................................................43 Agreements And Nonresident Students ...........................................................43 Children Of District Employees.......................................................................45 Foreign Exchange And Immigrant Students ....................................................46 Net Nonresident Enrollment ............................................................................47 Districts Without High Schools .......................................................................49 Recommendation 3.2 ................................................................51