Theoretical Frameworks:

A Latino Perspective of Equity, Adequacy, and School Finance Structures

"Texas has gone through a long era of attempting to rectify an inequity problem created by persons who obtained superior educational opportunities for their children at the expense of other children's education and at the expense of other parents' tax efforts. The diminishing of this privileged position by the use of the Equal Protection Clause in the Edgewood litigation will probably result in an attempt by the privileged class to seek other ways of perpetuating their privileged position." Jose Cardenas (1997)

Introduction
From a Latino perspective, the need for the reformation of school finance systems is a non-negotiable.The question of equity and adequacy of school finance systems must be examined in relationship to the school finance structures. Remedies to state school finance problems are complex, but critical if the quality of education for all children is to be realized. Meeting this goal requires a critical look at the concepts of equity, adequacy, and the nature of school finance structures that ask difficult questions of the dominant power elite and educational policy makers in this state and in this nation. The unique linguistic and educational needs of Latino children and the large numbers of these students infused into the public school system by changing demographics, both statewide and nationwide, make school finance equity, adequacy, and school finance structures relevant concepts to understand and influence.

Equity
School finance equity, defined as fiscal per-pupil expenditures compared between school districts within a state has been the traditional framework within which school finance systems have been measured and evaluated. "For most of the twentieth century, school finance policy has focused on equity---issues related to widely varying educational expenditures per pupil across districts within a state and the uneven distribution of the property tax base that is used to raise local education dollars" (Odden and Picus p. 1, 2000). The equity principles of fiscal neutrality, horizontal equity, and adequacy compose the framework for assessing the fairness of school finance systems.

Historically, school finance systems have not been equitable. In fact, there have been large disparities between per-pupil spending between states and among school districts. Differences in the thousands of dollars of spending for the education of low-wealth school districts compared to high wealth school districts has been well documented (Cardenas, 1997). In addition, Ross Rubenstein (2001), researcher with the Fiscal Research Program, documents that the equity of school finance systems "generally improved in years in which state aid was higher, and declined in years of tight state budgets" (p.3). The current national and state economic situation that is creating budget shortfalls in many state governments should alert those who advocate on behalf of children of poverty and children of color to continue to steadfastly pursue equity in school funding.

Adequacy
With the increasing emphasis on student learning outcomes, in addition to equity issues, there is now a focus on adequacy issues for analyzing school finance systems. School finance adequacy is described by Odden and Picus as "the provision of a set of strategies, programs, curriculum, and instruction, with appropriate adjustments for special-needs students, districts, and schools, and their full financing, that is sufficient to teach students to high standards" (Odden and Picus, p. 70). This adequacy framework focuses on a link between input and output variables of school finance.

Although there have been a number of studies on the aspects of educational adequacy, assessing the adequacy of school finance systems is driven by the basic concept of how adequacy is defined. Determining a clear and fair definition of adequacy has a direct impact on Latino children. Albert Cortez (2002) of the Intercultural Development Research Association writes, "To address the existing revenue shortfall and the need to increase education funding, some suggest that the state conduct a study of 'adequacy' and then ensure that all schools are provided equal access to that level of 'adequate' funding. Some of us who have tracked the school funding issue have serious questions about such an approach to funding. Too often, definitions of 'adequate' become discussions of what is minimally required" (p.5). The stance of this renowned educational researcher and Latino advocate, is thus to be skeptical of any attempt by the dominant group of educational policy makers to define adequacy.

School Finance Structures

1. flat grants,
2. foundation programs,
3. guaranteed tax base programs, and
4. combination foundation and guaranteed tax base programs.

1. special student needs
2. education level
3. scale economies/diseconomies
4. geographic price indices.

Effective school finance structures are designed to promote the goals of offsetting differences in local tax revenues, limiting or eliminating the inequities in per-pupil revenue, promoting local decision making to allow for different spending levels, providing sufficient funding to ensure high levels of student achievement, and encouraging support from policy makers to enact the finance program.

The complex nature of the school finance structures exacerbates the lack of relationship between the educational policies that frame these structures and the Latino constituents that they impact. It is the responsibility of Latino educational leaders, politicians, and policy makers to advocate for school finance structures that are designed to ensure the distribution of revenues for the purpose of equitably and adequately educating Latino children in this state and nation. We cannot entrust this responsibility to the altruism of dominant-group policy makers and politicians.