A school voucher, also called an education voucher, in a voucher system, is a certificate of government funding for a student at a school chosen by the student or the student's parents. The funding is usually for a particular year, term or semester. In some countries, states or local jurisdictions, the voucher can be used to cover or reimburse home schooling expenses. In some countries, vouchers only exist for tuition at private schools.
According to a 2017 review of the economics literature on school vouchers, "the evidence to date is not sufficient to warrant recommending that vouchers be adopted on a widespread basis; however, multiple positive findings support continued exploration." A 2006 survey of members of American Economic Association found that over two-thirds of economists support giving parents educational vouchers that can be used at government-operated or privately operated schools, and that support is greater if the vouchers are to be used by parents with low-incomes or parents with children in poorly performing schools.
France lost the Franco-Prussian War and many blamed the loss on France’s inferior military education system. Following the defeat in the Franco-Prussian War, the French assembly proposed a religious voucher that would hopefully improve schools by allowing students to seek out the best school. This proposal never moved forward due to the reluctance of the French to subsidize religious education. Despite its failure, this proposal is one of the earliest examples of a voucher system that closely resembles voucher systems proposed and used today in many countries.
The oldest continuing school voucher programs existing today in the United States are the Town Tuitioning programs in Vermont and Maine, beginning in 1869 and 1873 respectively. Because some towns in these states operate neither local high schools nor elementary schools, students in these towns "are eligible for a voucher to attend [either] public schools in other towns or non-religious private schools. In these cases, the 'sending' towns pay tuition directly to the 'receiving' schools."
A system of educational vouchers was introduced in the Netherlands in 1917. Today, more than 70% of pupils attend privately run but publicly funded schools, mostly split along denominational lines.
Milton Friedman argued for the modern concept of vouchers in the 1950s, stating that competition would improve schools, cost less and yield superior educational outcomes. Friedman's reasoning in favor of vouchers gained additional attention in 1980 with the broadcast of his ten part television series Free to Choose and the publication of its companion book of the same name (co-written with his wife Rose Friedman, who was also an economist). Episode 6 of the series and chapter 6 of the book were both entitled, "What's Wrong with Our Schools?" and asserted that permitting parents and students to use vouchers to choose their schools would expand freedom of choice and produce more well-educated students.
In some Southern states during the 1960s, school vouchers were used as a way to perpetuate segregation. In a few instances, public schools were closed outright and vouchers were issued to parents. The vouchers, then known as tuition grants, in many cases, were only good at privately segregated schools, known as segregation academies.
In 2005, Dr. Allah Bakhsh Malik Managing Director Punjab Education Foundation, under the supervision of Professor Henry M. Levin introduced Education Vouchers scheme in Pakistan with the features of equity, productivity, social cohesion and freedom of choice. Today, all modern voucher programs prohibit racial discrimination.
There are important distinctions between different kinds of schools:
- Public schools operate publicly and are funded by taxes.
- Private schools operate privately and are funded privately, such as by tuition or donations.
- School vouchers are subsidies given directly to parents for tuition at any school
- Charter schools are funded publicly
- Open enrollment is the process of allowing parents to choose which public school their child attends instead of being assigned one (provided the school has not reached its maximum capacity number for students). This is sometimes confused with vouchers as a promotion for school choice.
- Education tax credit, tuition tax credit, or tax-credit scholarship: There are two types of education tax credits: personal use, and donation. Personal use tax credits are tax credits given to individual taxpayers for education expenditures made on behalf of their own children. Donation tax credits are tax credits given to individual taxpayers or businesses who donate to non-profit organizations that give out private school scholarships.
- Education savings accounts (ESAs) allow parents to withdraw their children from public district or charter schools and receive a deposit of public funds into government-authorized savings accounts with restricted, but multiple, uses. Those funds, often distributed to families via debit card, can cover private school tuition and fees, online learning programs, private tutoring, community college costs, higher education expenses and other approved customized learning services and materials.
School voucher economics
Education as a tool for human capital accumulation is often crucial to the development and progression of societies and thus governments have large incentives to continually intervene and improve public education. Additionally, education is often the tool with which societies instill a common set of values that underlie the basic norms of the society. Furthermore, there are positive externalities to society from education. These positive externalities can be in the form of reduced crime, more informed citizens and economic development, known as the neighborhood effect.
In terms of economic theory, families face a bundle of consumption choices that determine how much they will spend on education and private consumption. Any number of consumption bundles are available as long as they fit within the budget constraint. Meaning that any bundle of consumption of education and private consumption must not exceed budgetary constraints. Indifference curves represent the preferences of one good over another. The indifference curve determines how much education an individual will want to consume versus how much private consumption an individual will want to consume.
Government intervention in education typically takes two forms. The first approach can be broad, such as instituting charter schools, magnet schools, or for-profit schools and increasing competition. The second approach can be individually focused such as providing subsidies or loans for individuals to attend college or school vouchers for K-12.
Vouchers are typically instituted for 2 broad economic reasons. The first reason is consumer sovereignty. A family can choose to where their child goes to school and pick the school that is closest to their preference of education provider.
The second reason is vouchers are proposed to increase market competition amongst schools. Similar to the free market theorem, vouchers hope to make schools more competitive while lowering costs for schools and increasing the educational quality for consumers, the families.
In many instances where school voucher programs have been instituted, there have been mixed results, with some programs showing increased benefits of school vouchers and some instances showing detrimental effects.
Positive and negative effects of school vouchers
In the United States, vouchers are usually funded with state dollars, and in other countries, through a variety of government funding vehicles. It is important to note that schools in the United States retain their federal and local funding regardless of enrollment- only state funding is dependent on enrollment size. Part of improving student performance involves improving teacher and school performance. In theory, more school vouchers would prompt the formation of more private schools which will give parents more choice in school. This increased competition would make both the private and public schools, who are both competing for the voucher funds, maintain a high-quality of teaching as well as keeping costs low. Indeed, there is evidence that school vouchers result in cost savings for school systems. A fiscal analysis of Indiana’s school voucher system showed annual savings, per student, for the state government.
Proponents of voucher schools argue that there is evidence of multiple benefits for students and families because of school vouchers. There is evidence to show that the use of school vouchers results in increased test scores and higher high school graduation rates for students. A case study in the country of Colombia showed that the presence of voucher programs resulted in an increase of 10 percentage points in a child’s likelihood of finishing the 8th grade and showed a 0.2 standard deviations increase in achievement on standardized tests. Furthermore, evidence shows that African Americans experience increased college enrollment rates under voucher programs. It is important to note that these gains for African American Students are not present for other racial and ethnic groups.
Research has also shown spatial benefits of voucher system. Public schools, which are near private schools that accept vouchers, often have better test scores than other public schools not near voucher ready private schools. Additional research by Caroline Hoxby shows that when voucher systems are available, both the public and private schools in that school system have increased test scores and graduation rates.
While there are some studies that show the positive effects of voucher programs, there is also research that shows the ineffectiveness of school vouchers. There have been some recent case studies showing that in voucher system school districts, students attending the public school, as opposed to the private school with a voucher, tend to outperform their private school peers.
Besides general lack of results, critics of school vouchers argue that vouchers will lead to segregation. Empirical studies show that there is some evidence that school vouchers can lead to racial or income segregation. However research on this topic is inconclusive, as there is also valid research that shows under certain circumstances, income and racial segregation can be reduced indirectly by increasing school choice.
A 2018 study by Abdulkadiroğlu et al. found that disadvantaged students who won a lottery (the Louisiana Scholarship Program) to get vouchers to attend private schools had worse education outcomes than disadvantaged students who did not win vouchers: "LSP participation lowers math scores by 0.4 standard deviations and also reduces achievement in reading, science, and social studies. These effects may be due in part to selection of low-quality private schools into the program."
The PACES voucher program was established by the Colombian government in late 1991. It aimed to assist low-income households by distributing school vouchers to students living in neighborhoods situated in the two lowest socioeconomic strata. Between 1991 and 1997, the PACES program awarded 125,000 vouchers to lower-income secondary school students. Those vouchers were worth about US $190 in 1998, and data shows that matriculation fees and other monthly expenses incurred by voucher students attending private schools averaged about US $340 in 1998, so a majority of voucher recipients supplemented the voucher with personal funds.
The students selected to be in the program were selected by lottery. The vouchers were able to be renewed annually, conditional on students achieving satisfactory academic success as indicated by scheduled grade promotion. The program also included incentives to study harder as well as widening schooling options. Empirical evidence showed that the program had some success. Joshua Angrist shows that after 3 years into the program, lottery winners were 15 percentage points more likely to attend private school and complete .1 more years of schooling, and were about 10 percentage points more likely to have finished the 8th grade.The study also reported that there were larger voucher effects for boys than for girls, especially in mathematics performance. It is important to note that the program did not have a significant impact on dropout rates. Angrist reports that lottery winners scored .2 standard deviations higher on standardized tests. The voucher program also reported some social effects. Lottery winners worked less on average than non-lottery winners. Angrist reports that this was correlated with a decreased likelihood to marry or cohabit as teenagers. In general, the school voucher program’s benefits outweighed the costs.
In 1981, Chile implemented a universal school voucher system for both elementary and secondary school students. As a result, over 1,000 private schools entered the market, and private enrollment increased by 20-40% by 1998, surpassing 50% in some urban areas. From 1981 to 1988, the private school enrollment rate in urban areas grew 11% more than the private school enrollment rate in rural areas. This change coincided with the transfer of public school administration from the central government to local municipalities. The financial value of a voucher didn’t depend on the income of the family receiving it, and the program allowed private voucher schools to be selective, while public schools had to accept and enroll every interested student. At the turn of the 21st century, student achievement in Chile was low compared to students in other nations based on international test-scores. This disparity led to the Chilean government enacting substantial educational reforms in 2008, including major changes in the school voucher system.
The Chilean government passed the Preferential School Subsidy Law (SEP) in January of 2008. This piece of legislation made the educational voucher system much more like the regulated compensatory model championed by Christopher Jencks. Under SEP, the voucher system was altered to take family incomes into account. The vouchers provided to “priority students,” students whose family income was in the bottom 40% of Chileans in were worth 50% more than those given to the families of students in the upper 60%. Schools with larger numbers of priority students were eligible to receive per-student bonuses, the size of which was tied to the percentage of priority students in the student body. When SEP was started, it covered preschool to fourth grade, and an additional school-year of coverage was added each subsequent year. Almost every public school chose to participate in SEP in 2008, as well as almost two-thirds of private subsidized elementary schools.
There were three important requirements attached to the program. The first requirement stipulated that participating schools could not charge fees to priority students, although private schools in the voucher system could do so for non-priority students. The second requirement ensured that schools could not select students based on their academic ability, not expel them on academic grounds. The third requirement postulated that schools had to self-enroll themselves in an accountability system that ensured that schools were responsible for the utilization of financial resources and student test scores.
In most European countries, education for all primary and secondary schools is fully subsidized. In some countries (e.g. Belgium or France), parents are free to choose which school their child attends.
See also: Education in the Republic of Ireland
Most schools in Ireland are state-aided parish schools, established under diocesan patronage but with capital costs, teachers salaries and a per head fee paid to the school. These are given to the school regardless of whether or not it requires its students to pay fees. (Although fee-paying schools are in the minority, there has been much criticism over the state aid they receive with opponents claiming this gives them an unfair advantage.)
There is a recent trend towards multi-denominational schools established by parents, which are organised as limited companies without share capital. Parents and students are free to choose their own school. In the event of a school failing to attract students it immediately loses its per-head fee and over time loses its teaching posts – and teachers are moved to other schools which are attracting students. The system is perceived to have achieved very successful outcomes for most Irish children.
The 1995–7 Rainbow Coalition (which contained parties of the centre right and the left) introduced free third-level education to primary degree level. Critics of the latter development charge that it has not increased the number of students from economically deprived backgrounds attending university. However, studies have shown that the removal of tuition fees at third level has increased the number of students overall and those from lower socio-economic backgrounds. This concurs with evidence from the UK of a decrease in attendance numbers after the introduction of fees. However, since the economic crisis, there has been extensive talk and debate regarding the reintroduction of third-level fees.
Further information: Education in Sweden
In Sweden, a system of school vouchers (called skolpeng) was introduced in 1992 at primary and secondary school level, enabling free choice among publicly run schools and privately run friskolor ("free schools"). The voucher is paid with public funds from the local municipality (kommun) directly to a school based solely on its number of students. Both public schools and free schools are funded the same way. Free schools can be run by not-for-profit groups as well as by for-profit companies, but may not charge top-up fees or select students other than on a first-come, first-served basis. Over 10% of Swedish pupils were enrolled in free schools in 2008 and the number is growing fast, leading the country to be viewed as a pioneer of the model.
Per Unckel, governor of Stockholm and former Minister of Education, has promoted the system, saying "Education is so important that you can’t just leave it to one producer, because we know from monopoly systems that they do not fulfill all wishes." The Swedish system has been recommended to Barack Obama by some commentators, including the Pacific Research Institute, which has released a documentary called Not As Good As You Think: Myth of the Middle Class Schools, a movie depicting positive benefits for middle class schools resulting from Sweden's voucher programs.
A 2004 study concluded that school results in public schools improved due to the increased competition. However, Per Thulberg, director general of the Swedish National Agency for Education, has said that the system "has not led to better results" and in the 2000s Sweden's ranking in the PISA league tables worsened. Though Rachel Wolf, director of the New Schools Network, has suggested that Sweden's education standards had slipped for reasons other than as a result of free schools.
A voucher system for children three to six years-old who attend a non-profit kindergarten was implemented in Hong Kong in 2007. Each child will get HK$13,000 per year. The $13,000 subsidy will be separated into two parts. $10,000 is used to subsidize the school fee and the remaining $3,000 is used for kindergarten teachers to pursue further education and obtain a certificate in Education. Also, there are some restrictions on the voucher system. Parents can only choose non-profit schools with a yearly fee less than $24,000. The government hoped that all kindergarten teachers can obtain an Education certificate by the year 2011–12, at which point the subsidies are to be adjusted to $16,000 for each student, all of which will go toward the school fee.
Milton Friedman criticised the system, saying "I do not believe that CE Mr. Tsang's proposal is properly structured." He said that the whole point of a voucher system is to provide a competitive market place so should not be limited to non-profit kindergartens.
After protests by parents with children enrolled in for profit kindergartens, the program was extended to children in for- profit kindergartens, but only for children enrolled in or before September 2007. The government will also provide up to HK$30,000 subsidy to for profit kindergartens wanting to convert to non profit.
In Pakistani Punjab, the Education Voucher Scheme (EVS) was introduced by Dr. Allah Bakhsh Malik Managing Director and Chief Executive of Punjab Education Foundation (PEF), especially in urban slums and poorest of the poor in 2005. The initial study was sponsored by Open Society Institute New York USA. Professor Henry M. Levin extended Pro-Bono services for children of poor families from Punjab. To ensure educational justice and integration, the government must ensure that the poorest families have equal access to quality education. The voucher scheme was designed by the Teachers College, Columbia University, and the Open Society Institute. It aims to promote freedom of choice, efficiency, equity, and social cohesion.
A pilot project was started in 2006 in the urban slums of Sukhnehar, Lahore, where a survey showed that all households lived below the poverty line. Through the EVS, the foundation would deliver education vouchers to every household with children 5–13 years of age. The vouchers would be redeemable against tuition payments at participating private schools. In the pilot stage, 1,053 households were given an opportunity to send their children to a private school of their choice. The EVS makes its partner schools accountable to the parents rather than to the bureaucrats at the Ministry of Education. In the FAS program, every school principal has the choice to admit a student or not. However, in the EVS, a school cannot refuse a student if the student has a voucher and the family has chosen that school. The partner schools are also accountable to the PEF: they are subject to periodic reviews of their student learning outcomes, additional private investments, and improvements in working conditions of the teachers. The EVS provides an incentive to parents to send their children to school, and so it has become a source of competition among private schools seeking to join the program.
When it comes to the selection of schools, the following criteria are applied across the board: (i) The fee paid by the PEF to EVS partner schools is PKR 300 per child per month. Schools charging higher fees can also apply to the program, but they will not be paid more than PKR 450, and they will not be entitled to charge the difference to students’ families. (ii) Total school enrollment should be between 100 and 500 children. (iii) The school should have an adequate infrastructure and a good learning environment. (iv) EVS partner schools should be located within a half-kilometer radius of the residences of voucher holders. However, if the parents prefer a particular school farther away, the PEF will not object, provided that the school fulfills the EVS selection criteria. (v) The PEF advertises to stimulate the interest of potential partner schools. It then gives students at short-listed schools preliminary tests in selected subjects, and conducts physical inspections of these schools. PEF offices display a list of all the EVS partner schools so that parents may consult it and choose a school for their children.
By now more than 140, 000 students are benefiting from EVS and the program is being scaled up by financing from Government of Punjab.
School voucher public policy in the United States
In the 1980s, the Reagan administration pushed for vouchers, as did the George W. Bush administration in the initial education-reform proposals leading up to the No Child Left Behind Act. As of December 2016, 17 states plus the District of Columbia had enacted school voucher programs. When including scholarship tax credits and education savings accounts – two alternatives to vouchers – there are 27 states plus the District of Columbia with private school choice programs. Most of these programs were offered to students in low-income families, low performing schools, or students with disabilities. By 2014, the number participating in either vouchers or tax-credit scholarships increased to 250,000, a 30% increase from 2010, but still a small fraction compared to the 55 million in traditional schools.
In 1990, the city of Milwaukee, Wisconsin's public schools were the first to offer vouchers and has nearly 15,000 students using vouchers as of 2011. The program, entitled the Milwaukee Parental Choice Program, originally funded school vouchers for nonreligious, private institutions. It was, however, eventually expanded to include private, religious institutions after it saw success with nonreligious, private institutions. The 2006/07 school year marked the first time in Milwaukee that more than $100 million was paid in vouchers. Twenty-six percent of Milwaukee students will receive public funding to attend schools outside the traditional Milwaukee Public School system. In fact, if the voucher program alone were considered a school district, it would mark the sixth-largest district in Wisconsin. St. Anthony Catholic School, located on Milwaukee's south side, boasts 966 voucher students, meaning that it very likely receives more public money for general school support of a parochial elementary or high school than any before it in American history. A 2013 study of Milwaukee’s program posited that the use of vouchers increased the probability that a student would graduate from high school, go to college, and stay in college. A 2015 paper published by the National Bureau of Economic Research found that participation in Louisiana's voucher program “substantially reduces academic achievement” although that the result may be reflective of the poor quality of private schools in the program.
Recent analysis of the competitive effects of school vouchers in Florida suggests that more competition improves performance in the regular public schools.
The largest school voucher program in the United States is Indiana's Indiana Choice Scholarships program.
Proponents of school voucher and education tax credit systems argue that those systems promote free market competition among both private and public schools by allowing parents and students to choose the school where to use the vouchers. This choice available to parents forces schools to perpetually improve in order to maintain enrollment. Thus, proponents argue that a voucher system increases school performance and accountability because it provides consumer sovereignty – allowing individuals to choose what product to buy, as opposed to a bureaucracy.
This argument is supported by studies such as "When Schools Compete: The Effects of Vouchers on Florida Public School Achievement" (Manhattan Institute for Policy Research, 2003), which concluded that public schools located near private schools that were eligible to accept voucher students made significantly more improvements than did similar schools not located near eligible private schools. Stanford's Caroline Hoxby, who has researched the systemic effects of school choice, determined that areas with greater residential school choice have consistently higher test scores at a lower per-pupil cost than areas with very few school districts. Hoxby studied the effects of vouchers in Milwaukee and of charter schools in Arizona and Michigan on nearby public schools. Public schools forced to compete made greater test-score gains than schools not faced with such competition, and that the so-called effect of cream skimming did not exist in any of the voucher districts examined. Hoxby's research has found that both private and public schools improved through the use of vouchers. Also, similar competition has helped in manufacturing, energy, transportation, and parcel postal (UPS, FedEx vs. USPS) sectors of government that have been socialized and later opened up to free market competition.
Similarly, it is argued that such competition has helped in higher education, with publicly funded universities directly competing with private universities for tuition money provided by the Government, such as the GI Bill and the Pell Grant in the United States. The Foundation for Educational Choice alleges that a school voucher plan "embodies exactly the same principle as the GI bills that provide for educational benefits to military veterans. The veteran gets a voucher good only for educational expense and he is completely free to choose the school at which he uses it, provided that it satisfies certain standards." The Pell Grant, a need-based aid, like the Voucher, can only be used for authorized school expenses at qualified schools, and, like the Pell, the money follows the student, for use against those authorized expenses (not all expenses are covered).
Proponents are encouraged by private school sector growth, as they believe that private schools are typically more efficient at achieving results at a much lower per-pupil cost than public schools. A CATO Institute study of public and private school per pupil spending in Phoenix, Los Angeles, D.C., Chicago, New York City, and Houston found that public schools spend 93% more than estimated median private schools.
Proponents claim that institutions often are forced to operate more efficiently when they are made to compete and that any resulting job losses in the public sector would be offset by the increased demand for jobs in the private sector.
Friedrich von Hayek on the privatizing of education:
As has been shown by Professor Milton Friedman (M. Friedman, The role of government in education, 1955), it would now be entirely practicable to defray the costs of general education out of the public purse without maintaining government schools, by giving the parents vouchers covering the cost of education of each child which they could hand over to schools of their choice. It may still be desirable that government directly provide schools in a few isolated communities where the number of children is too small (and the average cost of education therefore too high) for privately run schools. But with respect to the great majority of the population, it would undoubtedly be possible to leave the organization and management of education entirely to private efforts, with the government providing merely the basic finance and ensuring a minimum standard for all schools where the vouchers could be spent. (F. A. Hayek, in his 1960 book The Constitution of Liberty, section 24.3)
Other notable supporters include New Jersey Senator Cory Booker, former Governor of South Carolina Mark Sanford, billionaire and American philanthropist John T. Walton, Former Mayor of Baltimore Kurt L. Schmoke, Former Massachusetts Governor Mitt Romney and John McCain. A random survey of 210 Ph.D. holding members of the American Economic Association, found that over two-thirds of economists support giving parents educational vouchers that can be used at government-operated or privately operated schools, and that support is greater if the vouchers are to be used by parents with low-incomes or parents with children in poorly performing schools.
Another prominent proponent of the voucher system was Apple co-founder and CEO, Steve Jobs, who said:
The problem is bureaucracy. I'm one of these people who believes the best thing we could ever do is go to the full voucher system.
I have a 17-year-old daughter who went to a private school for a few years before high school. This private school is the best school I've seen in my life. It was judged one of the 100 best schools in America. It was phenomenal. The tuition was $5,500 a year, which is a lot of money for most parents. But the teachers were paid less than public school teachers – so it's not about money at the teacher level. I asked the state treasurer that year what California pays on average to send kids to school, and I believe it was $4,400. While there are not many parents who could come up with $5,500 a year, there are many who could come up with $1,000 a year.
If we gave vouchers to parents for $4,400 a year, schools would be starting right and left. People would get out of college and say, "Let's start a school."
— Steve Jobs
As a practical matter, proponents note, most U.S. programs only offer poor families the same choice more affluent families already have, by providing them with the means to leave a failing school and attend one where the child can get an education. Because public schools are funded on a per-pupil basis, the money simply follows the child, but the cost to taxpayers is less because the voucher generally is less than the actual cost.
In addition, they say, the comparisons of public and private schools on average are meaningless. Vouchers usually are utilized by children in failing schools, so they can hardly be worse off even if the parents fail to choose a better school. Also, focusing on the effect on the public school suggests that is more important than the education of children.
Some proponents of school vouchers, including the Sutherland Institute and many supporters of the Utah voucher effort, see it as a remedy for the negative cultural impact caused by under-performing public schools, which falls disproportionately on demographic minorities. During the run-up to the November referendum election, Sutherland issued a controversial publication: Voucher, Vows, & Vexations. Sutherland called the publication an important review of the history of education in Utah, while critics just called it revisionist history. Sutherland then released a companion article in a law journal as part of an academic conference about school choice.
EdChoice, founded by Milton and Rose Friedman in 1996, is a non-profit organization that promotes universal school vouchers and other forms of school choice. In defense of vouchers, it cites empirical research showing that students who were randomly assigned to receive vouchers had higher academic outcomes than students who applied for vouchers but lost a random lottery and did not receive them; and that vouchers improve academic outcomes at public schools, reduce racial segregation, deliver better services to special education students, and do not drain money from public schools.
The main critique of school vouchers and education tax credits is that they put public education in competition with private education, threatening to reduce and reallocate public school funding to private schools. Opponents question the belief that private schools are more efficient.
Public school teachers and teacher unions have also fought against school vouchers. In the United States, public school teacher unions, most notably the National Education Association (the largest labor union in the USA), argue that school vouchers erode educational standards and reduce funding, and that giving money to parents who choose to send their child to a religious or other school is unconstitutional. The latter issue was struck down by the Supreme Court case Zelman v. Simmons-Harris, which upheld Ohio's voucher plan in a 5-4 ruling. In contrast, the use of public school funding for vouchers to private schools was disallowed by the Louisiana Supreme Court in 2013. The Louisiana Supreme Court did not declare vouchers unconstitutional, just the use of money earmarked for public schools via the Louisiana Constitution for funding Louisiana's voucher program. The National Education Association also points out that access to vouchers is just like “a chance in a lottery” where parents had to be lucky in order to get a space in this program. Since almost all students and their families would like to choose the best schools, those schools, as a result, quickly reach its maximum capacity number for students that state law permits. Those who did not get vouchers then have to compete again to look for some other less preferred and competitive schools or give up searching and go back to their assigned local schools.Jonathan Kozol, a prominent public school reform thinker and former public school teacher called vouchers the "single worst, most dangerous idea to have entered education discourse in my adult life."
People who can benefit from vouchers may not know it. In April 2012, a bill passed in Louisiana that made vouchers available to low-income families whose children attended poorly ranked schools. A student whose household income was low (up to about $44,000 for a family of three) who attended a school ranked "C", "D", or "F" could apply for vouchers to attend another school. Of the estimated 380,000 eligible students during the school year when the bill was passed (2012/13), only 5,000 students knew about and applied for the vouchers, and accepted them.
In 2006, the United States Department of Education released a report concluding that average test scores for reading and mathematics, when adjusted for student and school characteristics, tend to be very similar among public schools and private schools. Private schools performed significantly better than public schools only if results were not adjusted for factors such as race, gender, and free or reduced price lunch program eligibility. Other research questions assumptions that large improvements would result from a more comprehensive voucher system.
Given the limited budget for schools, it is claimed that a voucher system would weaken public schools while not providing enough money for people to attend private schools. 76% of the money given in Arizona’s voucher program went to children already in private schools.
Some sources claim that public schools' higher per-pupil spending is due to having a higher proportion of students with behavioral, physical and emotional problems, since in the United States, public schools must by law accept any student regardless of race, gender, religion, disability, educational aptitude, and so forth, while private schools are not so bound. They argue that some, if not all, of the cost difference between public and private schools comes from "cream skimming", whereby the private schools select only those students who belong to a preferred group – whether economic, religious, educational aptitude level, or ethnicity – rather than from differences in administration. The end result, it has been argued, is that a voucher system has led or would lead students who do not belong to the private schools' preferred groupings to become concentrated at public schools. However, of the ten state-run voucher programs in the United States at the beginning of 2011, four targeted low-income students, two targeted students in failing schools, and six targeted students with special needs. (Louisiana ran a single program targeting all three groups.)
It is also argued that voucher programs are often implemented without the necessary safeguards that prevent institutions from discriminating against marginalized communities. In the United States, as of 2016, there are currently no state laws that require voucher programs to not discriminate against marginalized communities. Further, while some voucher programs may explicitly be aimed at marginalized communities, this is not necessarily always the case. A common argument for school vouchers is that it allows for marginalized communities of color to be uplifted from poverty. Historically, however, data suggests that voucher programs have been used to further segregate Americans. Further, some data has shown that the effects of voucher programs such as the New York City School Choice Scholarship Program, are marginal when it comes to increasing student achievement.
Another argument against a school voucher system is its lack of accountability to taxpayers. In many states, members of a community's board of education are elected by voters. Similarly, a school budget faces a referendum. Meetings of the Board of Education must be announced in advance, and members of the public are permitted to voice their concerns directly to board members. By contrast, although vouchers may be used in private and religious schools, taxpayers cannot vote on budget issues, elect members of the board or even attend board meetings. Kevin Welner points out that vouchers funded through a convoluted tax credit system—a policy he calls "neovouchers"—present additional accountability concerns. With neovoucher systems, a taxpayer owing money to the state instead donates that money to a private, nonprofit organization. That organization then bundles donations and gives them to parents as vouchers to be used for private school tuition. The state then steps in and forgives (through a tax credit) some or all of the taxes that the donor has given to the organization. While conventional tax credit systems are structured to treat all private school participants equally, neovoucher systems effectively delegate to individual private taxpayers (those owing money to the state) the power to decide which private schools will benefit.
An example of lack of accountability is the voucher situation in Louisiana. In 2012, Louisiana State Superintendent of Education John White selected private schools to receive vouchers, then tried to fabricate criteria (including site visits) after schools had already received approval letters. One school of note, New Living Word in Ruston, Louisiana, did not have sufficient facilities for the over-300 students White and the state board of education had approved. Following a voucher audit in 2013, New Living Word had overcharged the state $395,000. White referred to the incident as a "lone substantive issue." However, most voucher schools did not undergo a complete audit for not having a separate checking account for state voucher money.
According to Susanne Wiborg, an expert on comparative education, Sweden's voucher system introduced in 1992 has "augmented social and ethnic segregation, particularly in relation to schools in deprived areas."
Tax-credit scholarships which are in most part disbursed to current private school students or to families which made substantial donations to the scholarship fund, rather than to low-income students attempting to escape from failing schools, amount to nothing more than a mechanism to use public funds in the form of foregone taxes to support private, often religiously based, private schools.
The school voucher question in the United States has also received a considerable amount of judicial review in the early 2000s.
A program launched in the city of Cleveland in 1995 and authorized by the state of Ohio was challenged in court on the grounds that it violated both the federal constitutional principle of separation of church and state and the guarantee of religious liberty in the Ohio Constitution. These claims were rejected by the Ohio Supreme Court, but the federal claims were upheld by the local federal district court and by the Sixth Circuit appeals court. The fact that nearly all of the families using vouchers attended Catholic schools in the Cleveland area was cited in the decisions.
This was later reversed during 2002 in a landmark case before the US Supreme Court, Zelman v. Simmons-Harris, in which the divided court, in a 5–4 decision, ruled the Ohio school voucher plan constitutional and removed any constitutional barriers to similar voucher plans in the future, with conservative justices Anthony Kennedy, Sandra Day O'Connor, William Rehnquist, Antonin Scalia, and Clarence Thomas in the majority.
Chief JusticeWilliam Rehnquist, writing for the majority, stated that "The incidental advancement of a religious mission, or the perceived endorsement of a religious message, is reasonably attributable to the individual aid recipients not the government, whose role ends with the disbursement of benefits." The Supreme Court ruled that the Ohio program did not violate the Establishment Clause, because it passed a five-part test developed by the Court in this case, titled the Private Choice Test.
Dissenting opinions included Justice Stevens's, who wrote "...the voluntary character of the private choice to prefer a parochial education over an education in the public school system seems to me quite irrelevant to the question whether the government's choice to pay for religious indoctrination is constitutionally permissible." and Justice Souter's, whose opinion questioned how the Court could keep Everson v. Board of Education on as precedent and decide this case in the way they did, feeling it was contradictory. He also found that religious instruction and secular education could not be separated and this itself violated the Establishment Clause.
In 2006, the Florida Supreme Court struck down legislation known as the Florida Opportunity Scholarship Program (OSP), which would have implemented a system of school vouchers in Florida. The court ruled that the OSP violated article IX, section 1(a) of the Florida Constitution: "Adequate provision shall be made by law for a uniform, efficient, safe, secure, and high quality system of free public schools." This decision was criticized by Clark Neily, Institute for Justice senior attorney and legal counsel to Pensacola families using Florida Opportunity Scholarships, as, "educational policymaking."
Political support for school vouchers in the United States is mixed. On the left/right spectrum, conservatives are more likely to support vouchers. Some state legislatures have enacted voucher laws. In New Mexico, then-Republican Gary Johnson made school voucher provision the major issue of his second term as Governor. As of 2006, the federal government operates the largest voucher program, for evacuees from the region affected by Hurricane Katrina. The Federal government provided a voucher program for 7,500 residents of Washington, D.C. - the D.C. Opportunity Scholarship Program. until in early March 2009 congressional Democrats were moving to close down the program and remove children from their voucher-funded school places at the end of the 2009/10 school year under the $410 billion Omnibus Appropriations Act of 2009 which, as of March 7 had passed the House and was pending in the Senate. The Obama administration stated that it preferred to allow children already enrolled in the program to finish their schooling while closing the program to new entrants. However, its preference on this matter does not appear to be strong enough to prevent the President from signing the Bill.
Whether or not the public generally supports vouchers is debatable. Majorities seem to favor improving existing schools over providing vouchers, yet as many as 40% of those surveyed admit that they do not know enough to form an opinion or do not understand the system of school vouchers.
In November 2000, a voucher system proposed by Tim Draper was placed on the California ballot as Proposition 38. It was unusual among school voucher proposals in that it required neither accreditation on the part of schools accepting vouchers, nor proof of need on the part of families applying for them; neither did it have any requirement that schools accept vouchers as payment-in-full, nor any other provision to guarantee a reduction in the real cost of private school tuition. The measure was defeated by a final percentage tally of 70.6 to 29.4.
A statewide universal school voucher system providing a maximum tuition subsidy of $3,000 was passed in Utah in 2007, but 62% of voters repealed it in a statewide referendum before it took effect. On April 27, 2011 Indiana passed a statewide voucher program, the largest in the U.S. It offers up to $4,500 to students with household incomes under $41,000, and lesser benefits to households with higher incomes. The vouchers can be used to fund a variety of education options outside the public school system. In March 2013, the Indiana Supreme Court found that the program does not violate the state constitution.
Teaching creationism instead of evolution
Some private religious schools in voucher programs teach creationism instead of the theory of evolution, including religious schools that teach religious theology side-by-side with or in place of science. Over 300 schools in the US have been documented as teaching creation and receive taxpayer money. Contrary to popular belief, a strict definition of state-funded religious education was narrowly deemed constitutional in Zelman v. Simmons-Harris (2002). However, currently 35 states have passed various Blaine Amendments restricting or prohibiting public funding of religious education.
- ^"If appointed, Betsy DeVos' views likely to affect public, private schools | LaGrange Daily News". www.lagrangenews.com. Retrieved 2017-02-28.
- ^Epple, Dennis; Romano, Richard E.; Urquiola, Miguel. "School Vouchers: A Survey of the Economics Literature". Journal of Economic Literature. 55 (2): 441–492. doi:10.1257/jel.20150679.
- ^Whaples, Robert (2006). "Do Economists Agree on Anything? Yes!"(PDF). 3 (9). The Economists' Voice: 1–6. Retrieved January 6, 2016.
- ^Molnar, Alex. Vouchers, Class Size Reduction, and Student Achievement: Considering the Evidence. Bloomington: Phi Beta Kappa Educational Foundation, 2000.
- ^"Vermont - Town Tuitioning Program". Retrieved 2016-08-03.
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- ^Legislatures, National Conference of State. "School Choice: Vouchers". www.ncsl.org. Retrieved 2017-01-23.
- ^Jozef M. M. Ritzen, Jan van Dommelen and Frans J. De Vijlder (June 1997). "School finance and school choice in the Netherlands". Economics of Education Review. 16 (3): 329–335. doi:10.1016/S0272-7757(96)00078-7.
- ^Friedman, Milton (1955). Solo, Robert A., ed. "The Role of Government in Education," as printed in the book Economics and the Public Interest(PDF). Rutgers University Press. pp. 123–144. Retrieved February 14, 2017.
- ^Milton Friedman (1980). "Free to Choose TV" (website where all ten episodes may be accessed via on-demand video streaming) (Television). Public Broadcasting Service.
Despite controversial and mixed results, school voucher programs have ballooned in recent years. In many states, parents can use government-funded vouchers to pay tuition at participating private schools, including religious schools. In some cases, vouchers may be used to cover home-schooling expenses. In much of the U.S., however, vouchers are only available to disabled students or children whose family incomes fall below a certain threshold. For example, one program in urban Milwaukee targets poor, minority students.
School vouchers are among the various “school choice” options available to families, some of whom do not want to send their children to traditional public schools. Other school choice programs include charter schools and virtual schools.
The American Federation for Children Growth Fund (AFC), a group advocating for school choice, argued in 2016 that vouchers cost taxpayers, on average, just over $6,000 per child per year. By contrast, per-pupil spending in public schools exceeded $11,000, on average, in fiscal year 2014, according to the most recent data available from the U.S. Census Bureau.
The number of children attending school on state-sponsored vouchers grew from 61,700 during the 2008-2009 academic year to over 153,000 by 2015-2016, according to a report from the AFC. That’s a 148 percent increase. (The federal government does not track enrollment in voucher programs.)
Milton Friedman — the American economist and Nobel laureate perhaps best known for vigorously championing free markets — called for school vouchers back in 1955, arguing that “competitive private enterprise is likely to be far more efficient in meeting consumer demands” for education than the government. He eventually started an advocacy organization, the Friedman Foundation for Educational Choice, which publishes an interactive map with details on different voucher programs nationwide. (The foundation, which became known as Ed Choice in 2016, lobbies state legislatures to implement school choice programs. Ed Choice lists on its website a number of the scholars whose research is mentioned below as members of its “Ed Choice Experts” “speakers bureau.”)
Today more than half of U.S. states offer some sort of school choice program; 15 states and the District of Columbia offer vouchers. Maine and Vermont have offered vouchers since the late 19th century to students living in rural areas, far from public schools. The first modern voucher program started in 1990, when Wisconsin targeted students from low-income families in Milwaukee. In 2001, Florida became the first state to offer vouchers to students with disabilities. In cases where spaces in private schools are too few, vouchers are often distributed by lottery.
Research on the academic impact of vouchers — often determined using test scores or high school graduation rates — is decidedly mixed; there is no scholarly consensus that they boost student achievement, though many researchers encourage further study and increased emphasis on how voucher programs are designed. Amid vigorous campaigning by advocacy groups for and against vouchers, the benefits are deeply contested.
Arguments and research overview
Teachers unions argue that vouchers siphon money from underfunded school districts and create a two-tiered education system. The National Association for the Advancement of Colored People (NAACP) opposes vouchers, reasoning that they benefit a limited few. “Vouchers take critical resources away from our neighborhood public schools, the very schools that are attended by the vast majority of African American students. Furthermore, private and parochial schools are not required to observe federal nondiscrimination laws even if they receive federal funds through voucher programs,” the NAACP said in its 2015-2016 list of legislative priorities.
Others, such as the National Education Association, a three-million-strong group of educators, say that applying public funds to parochial school tuition blurs the line between church and state, violating the Constitution.
On the other hand, fiscal conservatives like vouchers because they save government funds. Competition, moreover, could be good for innovation, they argue. Though a sweeping 2015 review by the National Bureau of Economic Research (NBER) found little evidence that vouchers improve educational outcomes, it did declare that “competition induced by vouchers leads public schools to improve.”
“Vouchers have been neither the rousing success imagined by proponents nor the abject failure predicted by opponents,” say the authors of the NBER paper, which was led by Dennis Epple of Carnegie Mellon University. The programs show “no consistent, robust pattern.”
Amid such a heated debate, journalists should be mindful of who is presenting voucher research. Studies can be massaged to bolster the claims of one side or the other. Education policy researchers Christopher Lubienski and T. Jameson Brewer of the University of Illinois single out Ed Choice — the advocacy group founded by Milton Friedman — and warn that it over-emphasizes research that is not as strong as it suggests. Some of the findings that Ed Choice presents as bolstering the case for vouchers leave out caveats explicitly flagged by the authors themselves. “Advocacy based on this research is misguided and should be based on potentially stronger claims,” Lubienski and Brewer write in a 2016 study for the Peabody Journal of Education. “[T]he empirical results are relatively modest at best, and sometimes negative, not to mention incoherent and contested.”
Four impact studies
Joshua Cowen of the University of Kentucky and his colleagues tracked students in Milwaukee — the first city in the country to introduce its own voucher program — over five years. They found a relationship between voucher-receiving students and high school graduation, even if the students did not stay in the voucher program throughout high school: “They were also more likely […] to continue beyond the first year of college.”
However, the authors expressed concern that the private schools that receive the vouchers “implicitly or explicitly select the better students” — sometimes known as “cream skimming.” Private schools “can ‘counsel out’ or even expel students that public schools cannot.” At the time of the study, private schools were not required to publish test scores, allowing them to focus more on graduation and college preparation. The authors say that factor could skew results compared with public schools, where test preparation is prioritized.
In Washington D.C., Patrick J. Wolf of the University of Arkansas and colleagues looked at a program that targeted poor, minority communities. They found voucher students were 21 percent more likely to graduate high school, suggesting “that private schools provide students with an educational climate that encourages school completion either through the intervention and expectations of school faculty or by having similarly motivated and achieving peers.” They also discovered a positive impact on reading scores for students who stayed in the private schools for four years, but no change in math scores. Wolf and colleagues called the program “one of the most effective urban dropout prevention programs yet witnessed.”
By contrast, in Louisiana, Atila Abdulkadiroglu of Duke University and colleagues found that a voucher program there hurt its intended beneficiaries — poor students who are mostly black. Examining the Louisiana Scholarship Program (LSP), they compared outcomes for lottery winners (those granted a voucher) and losers (those who stayed behind in public schools). Abdulkadiroglu and colleagues found the “vouchers reduce academic achievement” because students who used vouchers to attend Louisiana private schools earned significantly lower scores in math, reading ability, science and social studies after one year. Lower math scores increase the likelihood of a failing grade by 50 percent.
Abdulkadiroglu and colleagues surmise that LSP is flawed because it only pays for tuition at the cheapest, lowest-quality private schools, which, the authors observe, often happen to be Catholic. That the vouchers only provide access to the cheaper participating schools adds ammunition to arguments that they encourage a two-tiered education system for the haves and the have-nots.
Matthew M. Chingos of the Brookings Institution and Paul E. Peterson of Harvard University found that the privately sponsored New York School Choice Scholarships Foundation program saved taxpayers about 50 percent on public school tuition, but saw no impact on whether participating students went to college. The program focuses on elementary-school children from low-income families in New York City.
Race is an issue either directly addressed or intimated in much research on school vouchers.
A 2016 paper by Mark A. Gooden of the University of Texas at Austin and colleagues asks if school vouchers help raise education standards for poor, minority students, as is often the stated goal of these programs. As proponents’ arguments increasingly focus on racial equality, the authors argue that without race more directly discussed as a factor, “it will be difficult for such policies to generate better educational opportunities for black children or society as a whole.” Some voucher programs do not cover enough of the tuition to enable access to the best private schools. Those who cannot contribute the difference are often poor minority children: “We have found that there are some troubling realities that show that current voucher programs are inadequate for addressing the systemic policy issues and personal deprivations that poor children of color face in schools everyday.”
Anna Egalite of North Carolina State University and colleagues examine how the Louisiana Scholarship Program (LSP) — the voucher program that Atila Abdulkadiroglu and his colleagues found was hurting student achievement — may help desegregate public schools. They suggest this program reduces the number of minority students in public schools with the poorest performance, while slightly increasing minority enrollment in the worst private schools. They conclude that the LSP has not harmed efforts to desegregate Louisiana’s schools and that it may even help.
Some researchers have looked at voucher programs abroad. In Pakistan, Claire Morgan and her colleagues at WestEd, a San Francisco-based non-profit organization, found a program that “resulted in girls being educated for less than it would have cost” the government to educate them. In Columbia, a program cost the state more, but it may ultimately contribute more to the overall economy. Both programs, Morgan and her colleagues wrote, “increased private school enrollment among the countries’ poorest income groups, thus probably improving equity” — and could be repeated elsewhere. The 2015 NBER paper by Dennis Epple and colleagues (discussed above) also looks at programs abroad.
In the areas of Vermont that lack public schools and offer families a voucher to send children to private schools, houses are worth about $24,000 more than houses in areas without voucher programs, Susanne Cannon and colleagues wrote in a 2015 paper for the Journal of Housing Research. “The clear implication of this study is that families perceive school vouchers as enhancing their quality of life, and they are willing to pay more for homes in jurisdictions that provide school vouchers,” the authors write. In some Vermont school districts, voucher-supported private schools are replacing public schools.
The U.S. Department of Education does not track voucher enrollment, but it does have a variety of education-related data on its National Center for Education Statistics website as well as a database of related research papers.
The National Education Policy Center at the University of Colorado at Boulder produces peer-reviewed research to inform public debates about education policy, including school choice.
The National Conference on State Legislatures tracks legislation on school choice nationwide and offers information on programs similar to vouchers, such as scholarship tax credit programs and education savings grants.
Individual state departments of education offer reports about voucher programs in their areas. For example, Florida’s Office of K-12 School Choice has posted dozens of reports on the McKay Scholarship Program, which is open to disabled children, on its website.
The American Federation for Children Growth Fund (and its daughter organization, the Alliance for School Choice) advocates for vouchers. The federation publishes an annual breakdown of voucher enrollment in each state, calling every district as necessary to compile the list.
Public Schools First North Carolina offers a list of groups opposing school vouchers.
Resources like GuideStar and Foundation Directory (subscriptions are often available at libraries) can help journalists see when a non-profit group engages in government lobbying. Turn to “Schedule C: Political Campaign and Lobbying Activities” of the organization’s 990 tax filings, which are required of most non-profits. The Friedman Foundation for Educational Choice (now Ed Choice) spent $87,576 on direct lobbying in 2014, for example. The American Federation for Children tries to sway public opinion, but does not engage in direct lobbying, according to its 2014 tax filings.
Challenges to voucher programs
The controversy over voucher programs looks unlikely to disappear soon. In Texas, in 2015, legislators vetoed a $100 million plan that would have allowed up to 16,000 students to transfer from urban public schools to private or religious-based schools. For Education Next, Joshua Dunn of the University of Colorado-Colorado Springs wrote a short paper on what he calls the “shaky foundations” of state restrictions on voucher programs.
Abdulkadiroglu, Atila; Pathak, Parag A.; Walters, Christopher R. “School Vouchers and Student Achievement: Evidence from the Louisiana Scholarship Program,” NBER Working Paper, 2016. doi: 10.3386/w21839.
Cannon, Susanne E.; Danielsen, Bartley R.; Harrison, David M. “School Vouchers and Home Prices: Premiums in School Districts Lacking Public Schools,”Journal of Housing Research, 2015. doi: 10.1016/j.jpubeco.
Chingos, Matthew M.; Peterson, Paul E. “Experimentally Estimated Impacts of School Vouchers on College Enrollment and Degree Attainment,”Journal of Public Economics, 2014. doi: 10.1016/j.jpubeco.2014.11.013.
Cowen, Joshua M.; et al. “School Vouchers and Student Attainment: Evidence from a State-Mandated Study of Milwaukee’s Parental Choice Program,”Policy Studies Journal, 2013. doi: 10.1111/psj.12006.
Egalite, Anna J.; Wolf, Patrick J. “A Review of the Empirical Research on Private School Choice,”Peabody Journal of Education, 2016. doi: 10.1080/0161956X.2016.1207436.
Egalite, Anna J.; Mills, Jonathan N.; Wolf, Patrick J. “The Impact of Targeted School Vouchers on Racial Stratification in Louisiana Schools,”Education and Urban Society, 2016. doi: 10.1177/0013124516643760.
Epple, Dennis; Romano, Richard E.; Urquiola, Miguel. “School Vouchers: A Survey of the Economics Literature.” NBER Working Paper, 2015. doi: 10.3386/w21523.
Fleming, David J. “Similar Students, Difference Choices: Who Uses a School Voucher in an Otherwise Similar Population of Students?,”Education and Urban Society, 2015. doi: 10.1177/0013124513511268.
Gooden, Mark A.; Jabbar, Huriya; Torres, Mario S. Jr. “Race and School Vouchers: Legal, Historical and Political Contexts,”Peabody Journal of Education, 2016. doi: 10.1080/0161956X.
Lubienski, Christopher; Brewer, T. Jameson. “An Analysis of Voucher Advocacy: Taking a Closer Look at the Uses and Limitations of ‘Gold Standard’ Research,”Peabody Journal of Education, 2016. doi: 10.1080/0161956X.2016.1207438.
Morgan, Claire; et al. “The Impact of School Vouchers in Developing Countries: A Systematic Review,”International Journal of Educational Research, 2015. doi: 10.1016/j.ijer.2015.04.010.
Wolf, Patrick J.; et al. “School Vouchers and Student Outcomes: Experimental Evidence from Washington, DC,”Journal of Policy Analysis and Management, 2013. doi: 10.1002/pam.21691.
Keywords: school vouchers, school choice, education policy, religious schools, private schools, parochial, opportunity scholarship, McKay scholarship, choice scholarship, education reform
Last updated: September 14, 2016
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