For the Same Cost as Vouchers, Kentucky Could Meaningfully Reinvest in Public Education

Amendment 2 on the ballot in November would open the door wide for private school voucher programs in Kentucky. On the low end, a targeted voucher program could cost a couple hundred million dollars annually. If Kentucky follows the lead of states like Arizona and Florida, which have expansive, universal voucher programs, the cost could reach as high as $1.19 billion a year.  No matter the size of the program, it is very likely that funding will come out of the existing budget for public schools, further depleting the resources needed to educate 90% of Kentucky kids; leading to cuts in the number of teachers, programs and even schools; and hitting low-income students and rural Kentucky districts the hardest.

Seven investments better than vouchers for the same cost

But let’s just say Kentucky somehow found new resources to put into education: are private school vouchers the best way to spend it? Several decades of research shows that the academic results from vouchers are dismal, as outlined in a new book by Dr. Josh Cowen, a former University of Kentucky professor who has served as a national evaluator of these programs. Under voucher programs, the vast majority of students and those with the greatest needs are the likeliest to go to low-quality private schools that often close, or to be left in public schools that have far fewer resources as a result of vouchers.

For the same cost as vouchers, Kentucky could instead meaningfully reinvest in our public schools to address existing needs and support proven strategies. Below we outline seven examples of public school investments that, added together, cost the same as a Florida-scale voucher program in Kentucky. But these investments would actually address the public school teacher and employee shortage, improve educational outcomes, and advance strategies that reduce achievement gaps and deliver lifelong benefits to children.

1. Raise teacher and classified salaries by 10% to address the shortage

Eroding state investment in public schools since the Great Recession has resulted in a decline in the value of teacher salaries in Kentucky. Average teacher pay is now 14% less than in 2008 once adjusting for inflation. The decline is as much as 33% in rural counties that lack the property wealth to generate enough in local taxes to come close to making up for the loss of state funds. Pay has not only declined; it is also low compared to other opportunities. Kentucky teachers make 25% less than comparable workers in the state.

Inadequate pay is a major issue contributing to a growing shortage of teachers and other school employees, including bus drivers and food service staff. As outlined in a recent report by the Kentucky legislature’s Office of Education Accountability (OEA), Kentucky teachers are leaving their positions at growing rates and fewer Kentuckians are applying for teaching jobs and entering teacher training programs. Low pay and perceived lack of respect for the profession are among the major factors contributing to recruitment and retention challenges. And bus drivers and food service staff are leaving for the private sector and doubling their salaries on average, OEA reports.

A 10% raise for teachers and classified employees would not instantly solve all these problems. But it would make up most of the gap created by post-2008 funding inadequacies and allow Kentucky to rise from 41^st among states in average teacher pay to around the middle of the pack. It would also signal respect and appreciation for public school teachers and staff, and improve education quality by helping bring the best and brightest to the teaching profession. The cost would be approximately $495 million annually.¹

2. Reduce class sizes by 10%

Lowering class sizes is a clear, evidence-backed method of improving public education. As economist Diane Schanzenbach explains, “research supports the common-sense notion that children learn more and teachers are more effective in smaller classes.” Class size, she says, “is an important determinant of a variety of student outcomes, ranging from test scores to broader life outcomes. Smaller classes are particularly effective at raising achievement levels of low-income and minority children.” More teachers and smaller classes allow for more individualized attention that can improve success and behavior and unlock kids’ imaginations and potential.

Reducing class sizes in Kentucky by 10% on average would require approximately 4,800 more teachers. The cost is approximately $358 million a year using the average teacher salary in Kentucky plus fringe benefits and employer contributions including for health care, retirement and taxes.²

The cost of hiring new teachers with no experience is substantially lower than the average teacher salary, but there would be some new facility and other administrative support needs associated with a larger workforce that are difficult to calculate and are not included here, so we use the average salary in this estimate to take those expenses into account.

3. Provide universal pre-school for all four-year-olds

High quality early childhood education is widely-recognized as perhaps the smartest investment in kids, paying off in long-term benefits for educational attainment and life success. Preschool is particularly important for addressing inequities based on income and race, and it helps families save thousands of dollars annually in expensive childcare costs. A recent careful estimate showed $4.93 in benefits for every $1 invested in universal, high-quality preschool over a 35-year period.

Expanding pre-school in Kentucky so it is available to all Kentucky four-year-olds would cost approximately $172 million annually.³ Child care centers would also need additional support to reflect lost enrollment but are in need of more state resources regardless.

4. Fully fund student transportation for the first time since 2004

Getting kids safely to and from school each day is essential, especially for children whose parents or guardians lack reliable transportation or have work schedules that compete with pickup and dropoff times. But this basic function is increasingly impeded by a growing bus driver shortage. Pay is low, seasonal and part-time, with the average bus driver in Kentucky making only $15,364 a year. Much higher salaries and recent pay increases for private sector driver jobs — that also haul cargo rather than children — have contributed to the shortage. On top of that, school district budgets are constrained by the rising or fluctuating cost of buses, fuel and insurance.

This shortage hit a crisis level in Jefferson County Public Schools (JCPS) last year, when fewer bus drivers forced a technology-based solution that failed on the first day of school.  JCPS has reduced access to magnet school transportation and is still struggling to recruit more drivers.

The seed of this problem was planted in 2005 when the Kentucky General Assembly began “notwithstanding” a state law requiring it to fund 100% of the formula-based costs of transportation. In the subsequent years, the state kicked in as little as 55% of the cost they were supposed to pay. In recent budget sessions, the legislature has increased its contribution but will still only fund 82% of these costs in fiscal year 2026. An additional $85 million annually would allow the General Assembly to meet its full obligation, and create more resources for districts to raise pay, establish signing and retention bonuses, hire more drivers and bus monitors, and take other steps to address the shortage.⁴

5. Provide free school meals for all students

In recent years, there is increasing recognition that adequate nutrition is critical to student welfare and academic success. Research shows school meals improve student health, including obesity rates and behavioral and mental health outcomes. School meals also improve academic performance including through reduced tardiness, fewer disciplinary office referrals and improved math and reading test scores. There is a growing movement across the country to make school meals free to all students, with eight states adopting such policies so far.

But in Kentucky, one in five kids is food insecure. The state has made strides in recent years to expand access to federally-funded free school breakfast and lunch programs through the Community Eligibility Provision that makes these meals free to all kids at qualifying schools. But the program still has gaps, while school districts must use scarce resources collecting lunch money or program applications from families and dealing with the absurd problem of “school lunch debt.” In schools where some students pay while others do not, lower-income students face an avoidable stigma.

Making school breakfast and lunch free for all students in Kentucky public schools would cost approximately $50 million annually and would free up resources at the local level for schools and families to better address other pressing needs.⁵

6. Restore eliminated funding for textbooks and teacher professional development

The legislature entirely cut funding earmarked for textbooks and teacher professional development in 2018, and still has not funded those items in the 2024-2026 budget despite billions in the Budget Reserve Trust Fund. Students need up-to-date and high quality resources to ensure the best learning outcomes, and access to ongoing professional development allows teachers to grow in their jobs and develop new teaching strategies. Restoring these investments would cost $29 million annually.⁶

7. Establish a teacher student loan forgiveness program

As the General Assembly cut funding for many parts of state government following the Great Recession in 2008, higher education received among the largest cuts. In the 2024-2026 budget, higher education institutions are funded at a level 31% below 2008 appropriations once inflation is taken into account. In response to those cuts and a lack of increase in state funding despite enrollment increases before the Great Recession, state universities have dramatically increased tuition. That’s led to $20 billion in student loan debt in Kentucky that is making more prospective students question the value of college in comparison to other paths.

A student loan forgiveness program is one strategy to attract people into teacher education and promote retention by forgiving the loans based on continuing service in the profession. A proposal for a teacher student loan forgiveness program in the executive budget proposal would cost $26 million annually.⁷

There are better ideas for education in Kentucky than Amendment 2

By allowing the legislature to divert public money to private schools, Amendment 2 will completely overturn Kentucky’s founding commitment to funding an efficient system of common schools. Were it to pass, Kentuckians should expect to see a growing amount of dollars diverted from public schools to private schools. Such a path would worsen education for the 90% of Kentucky kids who attend public schools and widen the divides already weakening our communities. A better path is available: generate the resources to properly reinvest in our public schools, including through the proven strategies and outstanding needs identified above.