Conceptualizing Equity in the Implementation of California Education Finance Reform

• In Event: Toward a Civil Rights Education Finance Research Agenda

Abstract

Purpose
While prior research has demonstrated the need to redesign school funding to address systemic inequity, there has been little focus on the local implementation of equity-based funding models. We address this gap by examining California’s Local Control Funding Formula (LCFF), an education finance reform intended to foster equity alongside local flexibility and democratic engagement. This article explores the question: How did district administrators’ conceptions of equity shape the implementation of the LCFF? Specifically, how did district actors define equity in the context of LCFF implementation? How did they allocate resources received through the LCFF? And, what is the relationship between actors’ conceptions of equity and their allocation decisions?

Theoretical Framework
We draw on sensemaking theory (Spillane, Reiser, & Reimer, 2002; Weick, Sutcliffe, & Obstfeld, 2005) to better understand how local district actors interpret and implement California’s LCFF. To grasp how actors’ understanding of equity in particular informs this sensemaking process, we are guided by literature that considers multiple conceptions of equity, including Libertarian, Liberal, Democratic Liberal, and Transformative perspectives (Dowd & Bensimon, 2015; Guiton & Oakes, 1995; Yosso, 2005).

Method
We use a comparative case study of two mid-sized urban districts in California. To examine how district actors conceptualized equity and allocated resources, we draw on semi-structured interviews with 33 district actors, as well as district documents. To understand the results of resource allocation decisions, we analyze district budgets and data on school-level staffing and student demographics.

Findings
Overall, our analysis revealed that district actors’ LCFF resource allocations mirrored their conceptions of equity, and this process was shaped by district context. In one district, a perception of adequate per-pupil funding, a coherent organizational identity, and the presence of several low-unduplicated schools were key factors supporting a clear conception of equity as greater resources for students with greater needs—a view reflected in decisions to differentiate staffing based on student demographics. In the other district, the perception of inadequate per-pupil funding, an organizational identity of division, and the absence of affluent schools were among the key factors informing two competing equity conceptions: greater resources for greater needs and equal resources for all students. The presence of these two conceptions aligns with the second district’s approach of allocating most resources district-wide, while also differentiating some resources for the schools with the highest proportion of low-income students.

Significance
By shedding light on the local-level factors that influence the realization of equity goals, this study contributes to our understanding of how actors make sense of finance policies and generates implications for policymakers seeking to implement similar reforms. Equity is a multifaceted concept, and actors’ beliefs shape the implementation of equity-intended policy. To further an equitable education for all students, we must consider the role of individual and organizational beliefs in pursuing this goal.

Authors

• Taylor N. Allbright, University of Southern California

• Julie A. Marsh, University of Southern California

• Michelle Hall, University of Southern California

• Laura Tobben

• Lawrence O. Picus, University of Southern California

• Magaly Lavadenz, Loyola Marymount University