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Does LAUSD’s Use Of Local Control Funding Serve High Needs Students?

(Seth Sawyers/Flickr)

(Seth Sawyers/Flickr)

How much control does a school district really have when it comes to spending Local Control education funds?

A lawsuit filed last week in Los Angeles Superior Court alleges that improper accounting by the Los Angeles Unified School District (LAUSD) shortchanges high needs students of funds they are entitled to receive under the Local Control Funding Formula.

The suit was filed by Public Advocates, Covington & Burling LLP and the ACLU of Southern California, on behalf of the Community Coalition of South Los Angeles and LAUSD parent Reyna Frias.

The Local Control Funding Formula, or LCFF, is designed to increase state education funds toward K-12 students who are either low-income, English-language learners or in the foster care system. Each year, school districts receive extra funding—known as supplementary and concentration grants—which attempt to close the gap between how much funding these populations of students currently receive and how much the formula says they should actually get.

According to the lawsuit, however, more than half of the $700 million the district reported spending on services for high needs students during the 2013-14 school year was actually spent on special education services instead. LAUSD has previously stated that they find this inclusion to be reasonable: 79 percent of the students in the district who receive special education services are also identified as low income, English learners or foster youth. In its statement on the lawsuit, the district says that the plaintiffs have misinterpreted the law:

“The Legislature clearly granted school districts — which serve predominantly low-income students, foster youth and English language learners — the highest degree of flexibility in determining student program needs.”

But the organizations behind the suit say this isn’t fair—LCFF funds are supposed to be used for services that specifically address learning challenges based on income, language and foster placement, and in addition to services that are already required by law, like special education. They argue that the district is artificially inflating how much it already spends on high needs students, thus reducing its funding obligations to these students by hundreds of millions of dollars for the following school years.

How does Local Control funding work?

To understand where the plaintiffs believe the district went wrong, we have to look a little closer at Local Control.

The Local Control Funding Formula (LCFF), which took effect in 2013, shifts the responsibility for the allocation of K-12 funding from the state to school districts. Unlike a traditional funding scheme, where a fixed number of dollars is granted to districts per number of students enrolled, the LCFF includes three types of grants, which are designed to provide a greater portion of state education dollars to disadvantaged students.

Under the LCFF, in addition to the traditional, per-student base grants, school districts receive a “supplemental grant,” equal to 20 percent of the base grant, per student who is an English language learner, low-income or in the foster care system. Districts like LAUSD, where more than 55 percent of enrolled students meet one or more of these criteria, also receive a “concentration grant” equal to 50 percent of the base, for every student above the 55 percent line.

Put simply, LCFF is based on the idea that some student populations face greater challenges to their education than others, and thus deserve a greater share of state funds. This was the logic invoked by Governor Jerry Brown when he first proposed the formula back in January of 2013:

“This formula recognizes the fact that a child in a family making $20,000 a year or speaking a language different from English or living in a foster home requires more help,” Brown said. Equal treatment for children in unequal situations is not justice.”

Because 84 percent of LAUSD’s enrolled students meet one or more of the targeted criteria, the district qualifies for over one billion dollars in supplemental and concentration grants per year.

There’s a catch, however. The LCFF determines a target amount for allocating funding to schools. But districts can’t meet their funding targets until the state increases education spending enough to cover the costs. The Legislative Analyst’s Office estimates that won’t be until at least 2020. In the meantime, the Board of Education has introduced a graduated funding scheme, which awards those districts furthest away from meeting their targets larger annual increases in funding. The amount of money a school receives in grants for high-needs students is thus determined by the district’s expenditures on services for these students the year before.

Keeping districts accountable

As a condition of their increased authority over the use of funds, school districts across the state are required by law to adopt a “Local Control and Accountability Plan” (LCAP), which outlines district-specific goals, and the actions and expenditures necessary to meet those goals. This is also where districts calculate how much money they are already spending on services for students targeted by LCFF.

What counts as “services” is where the district and the plaintiffs disagree. According to regulations passed by the State Board of Education, school districts are required to use supplemental and concentration grant funds specifically to “increase or improve services” for the students targeted by these grants. There are a multitude of services in which schools might choose to invest in order to support these particular students, such as instructional support, after-school care, health education, trauma-informed counseling, safety training, English learner coaches, parent liaisons or professional development for staff.

According to the lawsuit, however, special education isn’t one of them. Rather, it is a distinct spending need the district should already be addressing.

“If the lawsuit prevails,” an ACLU statement said, “special education students would still receive the same level of services they are now, but LAUSD would be required to invest more money to develop new or improved services for high need students targeted under LCFF, who make up 84 percent of the district’s student population.”

The Court’s decision in this case may thus set a precedent for how the state, and schools, is expected to respond to the intersecting learning challenges facing so many of L.A.’s students.


For more information on the Local Control Funding Formula and the LAUSD suit, see the following resources:

LCFF Frequently Asked Questions, California Department of Education

“A Primer on the LAUSD LCFF Spending Case,” Public Advocates

LAUSD Local Control and Accountability Plan, 2015-16


Information used in the writing of this article was taken in part from materials prepared by the California Budget and Policy Center.

Summer Professional Development Opportunities for L.A. Educators

Summer is the perfect time for teachers to connect with one another and hone their teaching craft through programs and workshops. This summer, ECCLA has compiled a list of professional development opportunities for educators in Central and South Los Angeles. We will be updating this list throughout the summer, so be sure to check back regularly. Click on a link to learn more.

L.A. County Arts For All Professional Development Directory

L.A. County Arts For All regularly updates its database of quality, local and national, peer reviewed providers of arts education professional development for K-12 educators in and around Los Angeles. Search by workshop participants, arts discipline, delivery approach and more. A great tool for individual teachers or school administrators looking for a program to match their specific needs.

Search now!

Mummies: New Secrets From The Tombs

August 1, 2015, 9am-1pm

The Natural History Museum invites educators to a special workshop in preparation for their incoming exhibit – Mummies: New Secrets From The Tombs. Learn about Peruvian and Egyptian cultures associated with the exhibit — plus receive priority booking when the exhibit opens up for school tours September 21! This workshop is free.

Learn more and register here.

LAEP Summer Conference

Los Angeles Education Partnership is offering a variety of professional development workshops over the course of six weeks this summer. Workshops range from two to four days in length and will be held at the LA Time Building. Registration is still open for the following programs:

  • Teachers’ Center/Solutions-Based Learning: Teacher teams create a Common Core standards-based, thematic, interdisciplinary unit and a culminating essay prompt and/or interdisciplinary project-based unit. July 27-30; Rate: $365 per person.
  • Adaptive Schools: As we transition into the Common Core State Standards, schools must simultaneously address professional development of individual educators; development of the organization’s capacity to learn, and be adaptive. The goal is to develop the collective identity and capacity of organization members as collaborators and inquirers. August 3-6; Rate: $337 per person.
  • Differentiation in the Classroom: Teachers will learn how to address the needs of a variety of learners through strategies such as flexible grouping, scaffolding, and front-loading vocabulary. August 10-11; Rate: $273 per person.

Download the Summer Conference flier here. Register here.

UCLA Center X Programs for Teachers (Ongoing)

UCLA Center X offers a variety of professional development workshops and other events for teachers throughout the summer and academic year. Offerings cover a range of academic subjects and student grade levels. Stipends occasionally available. Click here for a full list of events. Programs are added regularly.

National Poetry Month Classroom Resources

National Poetry month is almost here! We’re hard at work assembling a great list of classroom resources including lesson plans, student activities, and web-based poetry learning tools. Make National Poetry Month your students’ favorite month this year! Be sure to check back frequently because we’ll be updating this list as we track down more great resources. Be sure to follow ECCLA on Twitter (@ECCLA) and Facebook for the most up to date information ~ #NPM15


  • The Academy of American Poets has a long list of lesson plans for multiple grade levels, aligned with Common Core here


  • The University of North Carolina School of Education has an awesome lesson plan for Native American poetry here


  • The Library of Congress has an excellent website dedicated to poetry here


  • PennSound, a project of the University of Pennsylvania, has the largest online poetry audio files here


  • ReadWriteThink has an fun, interactive Haiku writing program here.


  • 5th-12th graders can participate in the Dear Poet multimedia education project. Students watch short, online videos from Chancellors of the American Academy of Poets reading their poetry, and then write them letters  in response. The best letters will be selected for publication! Learn more here


  • Teachers who want to incorporate Dear Poet into their whole classroom, pre-designed lesson plans aligned with Common Core are available here


  •  Request an official NPM 15 poster for your classroom or library here.