{"id":2643,"date":"2022-11-22T11:22:14","date_gmt":"2022-11-22T16:22:14","guid":{"rendered":"https:\/\/www2.law.temple.edu\/lppp\/?p=2643"},"modified":"2022-11-22T11:22:18","modified_gmt":"2022-11-22T16:22:18","slug":"how-pennsylvanias-hold-harmless-model-for-education-funding-holds-back-english-language-learner-students","status":"publish","type":"post","link":"https:\/\/www2.law.temple.edu\/lppp\/how-pennsylvanias-hold-harmless-model-for-education-funding-holds-back-english-language-learner-students\/","title":{"rendered":"How Pennsylvania\u2019s \u201cHold Harmless\u201d Model for Education Funding Holds Back English Language Learner Students"},"content":{"rendered":"\n<p><strong>Lucas Masin-Moyer, JD Anticipated May 2024, Law and Public Policy Scholar<\/strong><\/p>\n\n\n\n<p>Leading up to the 2022 midterm elections, <a href=\"https:\/\/theweek.com\/feature\/opinion\/1017874\/should-critical-race-theory-be-taught-in-public-school-classrooms\">discussion<\/a> and <a href=\"https:\/\/www2.law.temple.edu\/lppp\/the-era-of-curriculum-censorship-3-states-recent-actions-on-dont-say-gay-trans\/\">legislative action<\/a> on public education centered on <a href=\"https:\/\/www.aljazeera.com\/opinions\/2022\/10\/19\/racism-us-schools-critical-race-theory\">what is taught in schools<\/a>. The controversies over Critical Race Theory, \u201c<a href=\"https:\/\/www2.law.temple.edu\/lppp\/the-era-of-curriculum-censorship-3-states-recent-actions-on-dont-say-gay-trans\/\">Don\u2019t Say Gay<\/a>\u201d bills and parental rights have eclipsed serious issues regarding funding inequities in public education. For example, Pennsylvania\u2019s \u201chold harmless\u201d funding model remains largely unchallenged even though it creates an education system that fails many students, particularly English Language Learner (EL) students.<\/p>\n\n\n\n<p>Pennsylvania\u2019s \u201chold harmless\u201d education funding structure was implemented in 1992. It replaced a model that relied on students\u2019 relative needs to distribute funds with a <a href=\"https:\/\/williampennfoundation.org\/sites\/default\/files\/reports\/PCCY-HoldHarmlessReport-2020-Final-2.pdf\">model<\/a> where \u201cno district could receive less state funding than it did the year prior.\u201d Accordingly, the \u201chold harmless\u201d system has essentially frozen funding amounts for the last 30 years, with the state making only slight, need-based adjustments with the \u201cFair Funding\u201d Model in 2016, instituted with the passage of <a href=\"https:\/\/www.legis.state.pa.us\/cfdocs\/legis\/li\/uconsCheck.cfm?yr=2016&amp;sessInd=0&amp;act=35\">P.L. 252, No. 35<\/a>. In this \u201cFair Funding Model,\u201d new education funds are allocated each year based on a multiplier system. Under multiplier systems, schools are given a specified amount of money per student, with students in certain groups being weighted more heavily for funding purposes. Yet despite these 2016 modifications, a vast majority of Pennsylvania\u2019s education funding\u2014approximately <a href=\"http:\/\/funded.edbuild.org\/state\/PA#:~:text=Pennsylvania%20provides%20increased%20funding%20for,districts%20serving%20English%2Dlanguage%20learners.\">87 percent<\/a>\u2014is still allocated based on the levels established by \u201cHold Harmless\u201d in 1992.<\/p>\n\n\n\n<p>\u201cHold harmless\u201d especially disadvantages EL students. Although the number of EL students in Pennsylvania schools has grown from approximately <a href=\"https:\/\/files.eric.ed.gov\/fulltext\/ED531434.pdf\">39,000<\/a> students in 2002 to approximately <a href=\"https:\/\/www.education.pa.gov\/Teachers%20-%20Administrators\/Curriculum\/English%20As%20A%20Second%20Language\/Pages\/default.aspx#:~:text=There%20are%20more%20than%2061%2C000,Local%20Education%20Agency%20(LEA)\">61,000<\/a> students in 2022, the funding for schools that serve these students has remained largely unchanged. In the absence of more equitable funding, schools cannot implement initiatives that would help better serve EL students, such as teacher training programs and bilingual instructional models where students are taught part of the day in their native language and the other part of the day in English.<\/p>\n\n\n\n<p>Because schools have not received this funding to implement necessary programs, a significant achievement gap exists between EL students and their non-EL classmates. According to a 2012 <a href=\"https:\/\/files.eric.ed.gov\/fulltext\/ED531434.pdf\">study<\/a> of education in Pennsylvania by the National Center for Education Evaluation and Regional Assistance, \u201cnon-[EL] students\u2019 performance was 21-55 percentage points higher than that of [EL] students in reading, math, and writing.\u201d Additionally, only <a href=\"https:\/\/www.npr.org\/sections\/ed\/2017\/02\/23\/512451228\/5-million-english-language-learners-a-vast-pool-of-talent-at-risk\">64.1<\/a> percent of EL students in Pennsylvania graduated from high school, a graduation rate that is <a href=\"https:\/\/www.npr.org\/sections\/ed\/2017\/02\/23\/512451228\/5-million-english-language-learners-a-vast-pool-of-talent-at-risk\">20.2<\/a> percentage points lower than non-EL students.<\/p>\n\n\n\n<p>\u201cHold harmless\u201d and the current education funding structure in Pennsylvania fails EL students not only because of the achievement gaps it creates between EL and non-EL students, but also because EL students\u2019 performance on standardized reading and math assessments actually <a href=\"https:\/\/www2.ed.gov\/datastory\/el-outcomes\/index.html#introText\">decreases as students move up in grade level<\/a>. In 2017, fourth grade EL students in Pennsylvania were only 5.7 percent proficient in math (down from 12.4 percent in 2009) and 5.3 percent proficient in reading. These proficiency levels for EL students in Pennsylvania dropped in both math and reading by the time EL students reached eighth grade, with EL students being only 4.9 percent proficient in math and 4.7 percent proficient in reading.<\/p>\n\n\n\n<p>Other states, including California and Texas, have implemented structures that better serve EL students. Both California and Texas <a href=\"http:\/\/funded.edbuild.org\">use a multiplier system to fund education<\/a> in their states, but unlike Pennsylvania, they apply the multiplier to all their education funding rather than just a small percentage.\u00a0 As a result, California and Texas have been able to better fund EL education. This more equitable funding has led to smaller graduation gaps in these states with California and Texas having, respectively, 16.0 and 16.8 percentage point gaps in high school graduation between EL students and non-EL students <a href=\"https:\/\/www.npr.org\/sections\/ed\/2017\/02\/23\/512451228\/5-million-english-language-learners-a-vast-pool-of-talent-at-risk\">as of 2017<\/a>.\u00a0<\/p>\n\n\n\n<p>Additionally, since 2019, \u200bTexas has begun to use<a href=\"https:\/\/tcf.org\/content\/commentary\/how-texas-is-funding-the-expansion-of-dual-language-programs\/\"> an education funding structure which includes dual-language instructional models<\/a> in its EL learning plan, with EL students being assigned an increased multiplier if the school agrees to implement a dual language instructional model. This increased multiplier for schools using a dual language instructional model makes it so schools receive approximately <a href=\"https:\/\/tcf.org\/content\/commentary\/how-texas-is-funding-the-expansion-of-dual-language-programs\/\">$924<\/a> more per EL student who is served by a said model. Texas has also increased the multiplier for non-EL students participating in dual language programs to provide further funds for these dual language programs.<\/p>\n\n\n\n<p>The differing funding structures used in California and Texas are not perfect solutions to the inequities facing EL students. Achievement gaps, albeit smaller ones, still exist in these states. However, these funding structures remain instructive in providing the Pennsylvania legislature in with a model for how they could move away from the \u201chold harmless\u201d model and instead move towards a more equitable education funding structure for EL students.<\/p>\n\n\n\n<p>If Pennsylvania wants to better serve its EL students then, it ought to do away with this \u201chold harmless\u201d model of fund education and instead adopt a more equitable funding system in line with California and Texas so its EL students can truly thrive.<\/p>\n","protected":false},"excerpt":{"rendered":"<p>Lucas Masin-Moyer, JD Anticipated May 2024, Law and Public Policy Scholar Leading up to the 2022 midterm elections, discussion and legislative action on public education centered on what is taught in schools. The controversies over Critical Race Theory, \u201cDon\u2019t Say Gay\u201d bills and parental rights have eclipsed serious issues regarding funding inequities in public education. For example, Pennsylvania\u2019s \u201chold harmless\u201d funding model remains largely unchallenged even though it creates an education system that fails many students, particularly English Language Learner &#8230; <\/p>\n<p class=\"read-more-container\"><a title=\"How Pennsylvania\u2019s \u201cHold Harmless\u201d Model for Education Funding Holds Back English Language Learner Students\" class=\"read-more button\" href=\"https:\/\/www2.law.temple.edu\/lppp\/how-pennsylvanias-hold-harmless-model-for-education-funding-holds-back-english-language-learner-students\/#more-2643\" aria-label=\"Read more about How Pennsylvania\u2019s \u201cHold Harmless\u201d Model for Education Funding Holds Back English Language Learner Students\">Read More<\/a><\/p>\n","protected":false},"author":15,"featured_media":0,"comment_status":"closed","ping_status":"closed","sticky":false,"template":"","format":"standard","meta":{"generate_page_header":"","jetpack_post_was_ever_published":false,"_jetpack_newsletter_access":"","_jetpack_dont_email_post_to_subs":false,"_jetpack_newsletter_tier_id":0,"_jetpack_memberships_contains_paywalled_content":false,"_jetpack_memberships_contains_paid_content":false,"footnotes":"","jetpack_publicize_message":"","jetpack_publicize_feature_enabled":true,"jetpack_social_post_already_shared":true,"jetpack_social_options":{"image_generator_settings":{"template":"highway","default_image_id":0,"font":"","enabled":false},"version":2}},"categories":[4],"tags":[],"coauthors":[67],"class_list":["post-2643","post","type-post","status-publish","format-standard","hentry","category-blog","infinite-scroll-item","masonry-post","generate-columns","tablet-grid-50","mobile-grid-100","grid-parent","grid-50"],"yoast_head":"<!-- This site is optimized with the Yoast SEO plugin v27.3 - https:\/\/yoast.com\/product\/yoast-seo-wordpress\/ -->\r\n<title>How Pennsylvania\u2019s \u201cHold Harmless\u201d Model for Education Funding Holds Back English Language Learner Students - Law &amp; Public Policy Program<\/title>\r\n<meta name=\"robots\" content=\"index, follow, max-snippet:-1, max-image-preview:large, max-video-preview:-1\" \/>\r\n<link rel=\"canonical\" href=\"https:\/\/www2.law.temple.edu\/lppp\/how-pennsylvanias-hold-harmless-model-for-education-funding-holds-back-english-language-learner-students\/\" \/>\r\n<meta property=\"og:locale\" content=\"en_US\" \/>\r\n<meta property=\"og:type\" content=\"article\" \/>\r\n<meta property=\"og:title\" content=\"How Pennsylvania\u2019s \u201cHold Harmless\u201d Model for Education Funding Holds Back English Language Learner Students - Law &amp; Public Policy Program\" \/>\r\n<meta property=\"og:description\" content=\"Lucas Masin-Moyer, JD Anticipated May 2024, Law and Public Policy Scholar Leading up to the 2022 midterm elections, discussion and legislative action on public education centered on what is taught in schools. 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