Overview of the Statewide Fiscal Profile of New York State School Districts
This report is the eighteenth edition of a report produced by the State Education Department depicting five-year trend data on school district expenditures and revenues. Major financial trends during the 2000-2001 to 2004-2005 time period are discussed at the statewide level.
Changing Trends
Fiscal trends in school district revenues and expenditures constantly change. For example, the fiscal profiles began during a period of fiscal prosperity for the State. Throughout much of the 1980s, the State was able to provide substantial increases in aid to school districts. Between 1982-83 and 1988-89, State aid increased by approximately $3.5 billion (an average yearly increase of $576 million).
These trends dramatically changed during the 1990’s. The fiscal health of the State declined and a series of fiscal year deficits occurred, which substantially impacted the distribution of State Aid. Between 1991-92 and 1994-95, State aid increased by only $82 million. However, as the State’s finances improved, revenues from the State aid increases became larger. 1998-99 witnessed the introduction of the School Tax Relief Program (STAR), which in 2004-05 provided over $3 billion in State revenues to school districts to help reduce the property taxes of homeowners.
The pattern in school district enrollments also changes. A long decline in K-12 enrollment concluded with the 1990-91 school year. After growing throughout the decade of the 1990's, district enrollments began to decline again with the onset of the 21st century; during the period covered in this report the pupil count decreased from 2,873,025 to 2,848,342 or about 1 percent. The effects of inflation and enrollment changes can perhaps be best understood with a few examples. The $8.7 billion (25.6 percent) increase in total expenditures between 2000-2001 and 2004-05 translated into an increase of $3,164 (26.7 percent) per pupil. However, after adjusting for inflation, 2004-05 expenditures were worth $13,732 per pupil in 2000-2001 dollars. In short, after adjusting for inflation the statewide average expenditure per pupil was $1,862 more (15.7 percent) in 2004-05 than it had been in 2000-2001. Thus, a 26.7 percent increase in the total expenditures after adjusting for inflation represented a per pupil increase of 15.7 percent.
The fiscal profile reporting system was designed to answer questions of interest to policymakers. For this reason, profile data are presented so that comparisons can be made for a five-year period.
Use of Fiscal Profile Data
Fiscal Profile data are used in a variety of ways. Some of the ways include:
- To provide data to State agencies, members of the Legislature and their staff, school districts, educational interest groups, the press and the public;
- To assist in the development of the Regents State Aid Proposal;
- To serve as the source of fiscal data reported in New York the State of Learning: A report to the Governor and the Legislature on the Educational Status of the State’s Schools;
- To serve as a source of expenditure data for the School Report Card;
- To serve as the data source for the calculation of the cost of general education per pupil and special education per pupil;
- To assess the spending and revenue trends of districts; and,
- To suggest further analyses needed to better understand the spending and revenue trends of a particular district or group of districts.
Brief Description of the Fiscal Profile Tables
The tables displayed in this report are based on school districts as they existed for the 2004-05 school year. Thus, any districts that combined (e.g., consolidation, merger, annexation) between July 1, 2000 and July 1, 2004 are treated as a single district for the entire time period.
The Fiscal Profile tables allow school district data to be analyzed from a variety of perspectives. Tables 1, 2, and 3 provide alternative methods of examining revenues by source and expenditures by selected categories. The row titles and columns of the tables are defined and explained in the Appendix.
Table 1 displays the total dollars associated with the revenue sources and expenditure categories. Table 2 displays each revenue source and expenditure category in terms of dollars per pupil. Table 3 displays each revenue source and expenditure category in terms of total revenues or total expenditures for the first and last years of the reporting period. Table 4 describes important State Aid, district and instructional program characteristics.
The pupil count used throughout the report is called duplicated combined adjusted average daily membership (DCAADM). This pupil count consists of: pre-kindergarten pupils (weighted at .5), the average daily membership of a district (1/2 day kindergarten pupils weighted at .5), pupils attending BOCES, pupils for which the district pays tuition to another district, pupils in approved private placements, pupils attending the State schools at Rome or Batavia, residents of the district attending charter schools and incarcerated youth for districts responsible for providing the program.
Tables 1, 2, and 3 are based on data from the Annual Financial Report (Form ST-3, hereafter referred to as the ST-3). The ST-3 is an unaudited document, which displays a district’s reported expenditures and revenues. It does not necessarily reflect changes that have occurred after the initial review process. It is important to note that the ST-3 is a document designed to provide fiscal accountability; it is not an educational program document. Although the State’s intent with the ST-3 is for school districts to provide a uniform statement of revenues and expenditures, the possibility exists that school districts will interpret the instructions and account codes differently.
In some districts, an important element of the educational program is the Special Aid Fund. Originally, the Special Aid Fund was used to account for educational projects supported by the Federal government. Today, the Special Aid Fund includes revenues from all sources and expenditures to support State and Federal categorical programs.
Table 4 provides data on district wealth, the unreserved fund balance, local effort and the instructional expenditures of school districts.
Presentation of the Findings
The data(1) are described in terms of statewide trends. It should be noted that statewide trends may be quite different from district trends or trends at aggregation levels other than the State. Any reference to inflation-adjusted dollars or constant dollars is based on the methodology described in the Appendix.
Section II: Major Trends 2000-2001 To 2004-2005
General Revenue and Expenditure Trends
Grand Total Revenues
Total revenues for the period increased by 27.7 percent (16.7 percent after adjusting for inflation), reaching a total of $43.1 billion in 2004-2005. Total revenues per pupil increased $3,385 or 28.8 percent. After adjusting for inflation, 2004-2005 revenues represented an increase of $2,076 in constant dollars or 17.7 percent from the 2000-2001 school year.
Figure 1(2) displays the change for each of the revenue sources and for total revenue between the 2000-2001 and 2004-2005 school years. Total revenue of school districts increased by $9.4 billion and revenue from State sources increased by $3.0 billion or 32.0 percent of the total.
The State sources increase can be viewed as having two distinct components. The first component consists of revenue traditionally provided by the State, which increased by $1.8 billion. The second component consisted of School Tax Relief (STAR) payments from the State to school districts for exemptions provided homeowners(3) and provided $3.1 billion(4) in revenue to school districts in 2004-05.
Revenue from local sources increased by $5.2 billion (31.3 percent) between 2000-2001 and 2004-2005. Revenue from Federal sources represented a growing portion of total revenues, although Federal revenue remains a small fraction of total revenues. Out of a total increase in revenue of $9.4 billion, revenue from Federal sources accounted for $1.2 billion (about 12.7 percent) of the increase. Revenues from State sources traditionally constitute approximately two-fifths of the total revenues of school districts. Revenues from State sources (including STAR) accounted for 43.5% of total revenues in 2004-2005.
Figure 2 shows that the “State share” of total revenues decreased 3.2 percentage points during the period. The Local share increased 1.4 points and Federal share increased 1.8 percentage points, reaching 6.2% of total revenues in 2004-2005.
Revenues: State Sources
During this period, revenues from State sources increased by $3.0 billion or 19.1 percent. STAR was responsible for 40.5 percent of the increase in revenues from State sources.
Revenues: Local Revenues
Statewide, revenues raised locally increased by $5.2 billion or 31.3 percent and accounted for 55.3 percent of the increase in total revenues. On a per pupil basis, local revenues increased by $1,865. After adjusting for inflation, the change in local revenues per pupil for the period was an increase of $1,206.
The local revenue picture was complicated by several developments during this time period. A major purpose of the STAR program is local tax relief; STAR is successful if the raising of school district local revenue is restrained. Conversely, New York City substantially increased local revenues for education during most of this period. However, the terrorist attack on the World Trade Center severely affected New York City finances, including a $502 million decrease in local revenues to the school district in the 2001-02 year. The decrease was more than offset by increases in subsequent years.
Revenues: Federal Sources
Statewide, revenues from Federal sources increased by 79.8 percent (64.2 percent after adjusting for inflation). Figure 1 (above) shows that the Federal increase in revenue was noticeably lower than the State’s increase. On a per pupil basis, revenues from Federal sources increased by $420 (81.3 percent). After adjusting for inflation, the per pupil increase was $339 or 65.6 percent.
Unreserved Fund Balance
The unreserved fund balance (General Fund) consists of the funds appropriated for the following year’s budget, the unappropriated fund balance, and investments frozen by a bankruptcy court. When the Big Five Cities (Buffalo, Rochester, New York, Syracuse and Yonkers) are excluded, the unreserved fund balances of districts increased by about $230.0 million or 22.3 percent.
Total Expenditures
The pattern in total expenditures was similar to the patterns discussed for revenues. Statewide, total expenditures increased by $8.7 billion or 25.6 percent. After adjusting for inflation the increase was 14.7 percent. On a per pupil basis, total expenditures increased by 25.2 percent (from $11,871 to $15,035). After adjusting for inflation, total expenditures per pupil increased by $1,862 or 15.7 percent for the period.
Specific Expenditures
Instructional Expenditures
Teacher Salaries
The single most important component of the statewide increase in total expenditures was teacher salaries. In 2004-05, expenditures for teacher salaries were approximately 36.1 percent of all expenditures by school districts. Teacher salaries were the only instructional expenditure category to account for more than ten percent of 2004-05 total expenditures. During the period, expenditures for teacher salaries increased 17.5 percent (7.3 percent after adjusting for inflation). On a per pupil basis, expenditures for teacher salaries increased by 18.5 percent (8.2 percent after adjusting for inflation).
PPS Instructional Salaries
PPS instructional salaries increased by approximately $87.2 million or 17.4 percent during the period. This increase was very similar to the percentage increase in teacher salaries.
Curriculum Development/Supervision
Curriculum development/supervision instructional salaries increased by 21.9 percent ( 11.3 percent after adjusting for inflation) during the period. On a per pupil basis, expenditures increased by $69 or 23.0 percent (12.3 percent after adjusting for inflation).
BOCES Instructional Expenditures
BOCES instructional expenditures increased 17.1 percent ( 7.0 percent after adjusting for inflation) during the period. On a per pupil basis, expenditures increased by $89 or 18.1 percent (7.9 percent after adjusting for inflation).
Tuition
Although two distinct tuition categories are displayed in the tables, for the purpose of this analysis, tuition expenditures for the two categories will be combined. Tuition expenditures increased by 55.1 percent (46.3 percent after adjusting for inflation) during the period. Although a large percentage increase, tuition expenditures are a small fraction of total expenditures. On a per pupil basis, expenditures increased by $130 or 56.0 percent (47.8 percent after adjusting for inflation).
Other Instructional Salaries
Other instructional salaries increased by 1.7 percent (-7.1 percent after adjusting for inflation) during the period. On a per pupil basis expenditures increased by $22 (a decrease of $54 after adjusting for inflation).
Other Instructional Expenditures
Other instructional expenditures increased by 32.2 percent (20.8 percent after adjusting for inflation). On a per pupil basis, expenditures increased by $250 ($163 after adjusting for inflation). Other Instructional Expenditures, which include instructional technology, continued to be an area of growth during this period.
Employee Benefits
Expenditures for employee (fringe) benefits are an important component of school district expenditures. The total increase in employee benefit expenditures was more than $3.3 billion; this figure represents 37.9% of the increase in total expenditures. Each of the three categories of benefits grew substantially; retirement benefits grew at the highest rate.
Employee Benefits: Teacher Retirement
One of the major developments during this period was the increase in teacher retirement expenditures of $1.2 billion, or 219.9 percent. On a per pupil basis, expenditures for teacher retirement grew 222.7 percent. The increase in expenditures was due, at least in part, to changes in the accounting of payments to the retirement system. Projections by the New York State Comptroller indicate that these expenditures will remain high for several years.
Employee Benefits: Health
Statewide, expenditures for health insurance increased by $1.2 billion, or 56.1 percent (42.6 percent after adjusting for inflation). On a per pupil basis, expenditures for health insurance increased by 57.4 percent (43.8 percent after adjusting for inflation). Health insurance expenditures continue to be one of the fastest growing categories of expenditures.
Debt Service
Expenditures for debt service (principal) increased by 46.6 percent (33.9 percent after adjusting for inflation). Expenditures for debt service (interest) increased by 16.1 percent (6.0 percent after adjusting for inflation).
Wealth Measures
Actual Value per Total Wealth Pupil Unit
The property value per pupil displayed in Table 4 consists of the Actual Value (AV) Per Total Wealth Pupil Unit (TWPU) used in the Operating Aid Formula for the specified school year. During the period, the State average AV/TWPU increased from $244,900 to $306,700.
Change in property value per pupil does not occur evenly across the State. The growth in property value was particularly concentrated in the New York City/Long Island/Westchester area. It should be noted that a decrease in property value per pupil could also occur if the growth in pupils is greater (on a percentage basis) than the increase in property value.
Income per Total Wealth Pupil Unit
The income per pupil displayed in Table 4 consists of the Adjusted Gross Income (AGI) Per Total Wealth Pupil Unit (TWPU) used in the Operating Aid Formula for the specified school year. During the period, the State average income/TWPU increased from $98,300 to $122,100.
Local Effort Rate
The local effort rate is similar to but different from the property tax; the local effort rate calculation includes all sources of local revenue. The State average local effort rate decreased statewide by $1.58 (from $18.06 per thousand to $16.48 per thousand) from 2000-2001 to 2004-05. As noted earlier, a major purpose of the STAR program is to replace local dollars with state dollars.
Expenditures for Providing Instructional Services
This report has traditionally calculated instructional costs according to three definitions. The definitions differ because of limitations with ST-3 or differences in how instruction can be defined.
Instructional Expenditures (Excluding Employee Benefits)
One way to define instructional expenditures is to sum ST-3 account codes clearly associated with the provision of instructional services. Such a definition, however, excludes employee (fringe) benefits paid from the General Fund. The General Fund account codes for employee benefits are single line entries that do not distinguish between the instructional program and other programs. Since employee benefits paid for out of the General Fund would have to be excluded from the definition of instruction under this approach, employee benefits paid from another fund (which can be identified) were excluded from this definition of instruction.
For this report, instructional expenditures (excluding employee benefits) were defined as the sum of the following Table 1 categories: Teacher Salary; PPS Instructional Salaries; Curriculum Development/Supervision; BOCES Instructional Expense; Tuition 1 & 2; Other Instructional Salaries and Other Instructional Expenditures. Total expenditures are defined as the total expenditures displayed in Table 1.
The figure below shows that in 2004-05 such instructional expenditures were $25.3 billion out of total expenditures of $42.8 billion (59.1 percent).
Instructional Expenditures (Including Employee Benefits)
The exclusion of employee benefits can be criticized for understating the true cost of providing instructional services. A methodology has been developed to estimate employee benefit expenditures associated with the instructional program (see Appendix). The estimated expenditures for fringe benefits for individuals associated with the instructional program was then added to the instructional expenditures previously calculated.
After accounting for employee benefits, in 2004-05 such instructional expenditures were $33.3 billion out of total expenditures of $42.8 billion (77.7 percent). Thus, more than three out of every four dollars spent by school districts is used to provide the instructional program.
Instructional Expense
Regulations of the Commissioner have been developed which define instructional expense and provide for an adjustment to total expenditures. For this report, instructional expense can be defined as instructional expenditures (including employee benefits) minus the expenditures displayed in Table 1 for Tuition 1. The regulatory definition of adjusted expenditures excludes expenditures for tuition to other school districts (excluding special act districts); transportation; debt service; and transfers to the Capitol Fund. This definition of expenditures provides a more stable definition of expenditures than does total expenditures since major increases or decreases attributable to one-time building projects or capital spending are not included. In 2004-05, instructional expense was $32.9 billion out of total adjusted expenditures of $37.8 billion (87.1 percent).
Thus, the overwhelming majority of the expenditures of school districts are for providing instructional program. When fringe benefits are included in the definition of instructional expenditures approximately three out of every four dollars spent by school districts is spent on the instructional program. Furthermore, when building and transportation expenditures are removed from the calculation, the instructional program accounts for more than four out of every five dollars spent by school districts.
Section III: Statistical Tables
Statistical tables are provided for all major districts and for Statewide totals. The minor districts (districts with less than eight teachers) and special act districts are excluded.