Fix the Formula: Fund Peel Students Fairly
Q&A on Special Education Funding
How many students in the Peel District School Board receive special education?
About 22,000. Some 13,550 students have some identified exceptionality, e.g.
developmental, physical and learning disabilities; autism; or emotional or behavioural
challenges. These students receive individual learning plans. Another 8,500 students
are in a non-identified category, and get special education help too.
Is the demand for special education rising?
The numbers of non-identified students who require special education are up 109%
from 2006-2012. Overall, the Peel board’s 22,000 special education students represent
a high percentage of its 153,000 students. As the incidence and severity of special
needs increase, the Peel board’s costs to serve these students rise too.
Do all of these students have to be given special education support?
Yes. First of all, it is the right thing to do if we want to inspire success, confidence and
hope in each student. Second, it is a legislated requirement.
How is special education funded?
Through six government grants. Four are relatively small, representing less than 10%
of what we receive for special education.
The largest source is SEPPA – Special Education Grant Per Pupil Amount – which
comes to $99 million this year, or just over 60% of our total special education grants.
This is based strictly on total enrolment.
The remaining source is the HNA – High Needs Amount – which makes up 30.6% or
$50 million of our special education funding. This is designed to be needs-based.
How is the HNA calculated?
Unlike SEPPA, which is based on total enrolment, HNA is designed to be needs-based.
Different school boards receive very different amounts per capita. The average for all
boards is $534 per student. The highest amount is just under $1,700 per student. The
lowest amount of the 72 boards is $339 per student – what Peel board receives.
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The surrounding urban boards all receive considerably more per student: $375 in the
Dufferin-Peel Catholic District School Board, $522 in the Toronto District School Board,
and $601 in the Halton District School Board.
Why is there such disparity in the HNA?
Funding amounts per capita are never the same. However, the funding formula should
be fair.
The HNA isn’t fair, because it’s 1) not scientifically-based (boards calculated their
special education needs in different ways) and; 2) outdated (the figures used as a
benchmark are over 10 years old). Peel students (and students in other boards too)
have been disadvantaged as a result, all while other boards have benefitted from an
unfair formula.
Does the Peel board’s level of HNA funding affect special education programs?
Special education funding must cover every student identified as having an exceptional
need, plus all of the other students who haven’t been identified yet. We remain able to
serve these students to the fullest of our capabilities. However, to keep pace with
demand, the board now spends $14 million more than we receive in total grants and
revenues for special education. This isn’t a matter of overspending but of underfunding.
What is the flaw in the HNA formula?
There are two main problems. The HNA is:
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Not scientifically-based – going back, different boards calculated their special
education needs in different ways.
Outdated – the figures used as a benchmark are over 10 years old.
As a result, Peel students (and students in other boards too) have been disadvantaged
for a decade. At the same time, other boards have benefitted from an unfair formula.
Different school boards receive very different amounts per capita. The average for all
boards is $534 per student. The highest amount is just under $1,700 per student. The
Peel board receives the lowest amount of the 72 boards – just $339 per student.
What impact does the funding shortfall have?
To balance the board’s budget, the $14 million shortfall in special education funding
must be made up from somewhere. It comes from chipping away at budgets from other
departments and programs. This affects all children. Getting the special education
funding that the Peel board deserves will free resources to help every student.
What does the Ministry of Education say about the HNA?
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They agree that the formula is flawed. Peel board trustees were asked In a meeting with
Minister Sandals to provide suggestions on way to fix the formula. That has happened.
Isn’t it normal that there would be a range? Someone has to be at the top,
someone has to be at the bottom.
Funding amounts per capita are never the same. However, the funding formula should
be fair. Currently, it is not. Our surrounding boards all receive considerably more per
student: $375 in the Dufferin-Peel Catholic District School Board, $522 in the Toronto
District School Board, and $601 in the Halton District School Board. We recognize that
boards’ needs vary, but it’s the size of the funding variations that’s unacceptable.
How else could the HNA be calculated to ensure fairness?
Currently, 94% of the HNA is based on the outdated and unscientific per pupil amount.
A small slice of the HNA, just 1%, is based on a statistical prediction model. This model
looks at socio-economic and demographic aspects of a community, like family income,
immigrant status, level of education, and more. Through that data, the model then
predicts the rate of special education needs in the community.
International experts in special education, as well as Ministry of Education staff in the
Special Education Branch, support this model. The Peel board proposes that the
provincial government fix the funding formula now by using the prediction model to
calculate 90% of the HNA instead of 1%. This is fair and equitable. The model can be
updated annually to reflect true changes in community demographics and board data.
What would changing the HNA formula mean to the Peel board’s funding?
We expect that basing the HNA mostly on the prediction model would put Peel in the
middle of pack of Ontario’s 72 boards. That would mean an additional $14-16 million
per year.
Our spending would be inside the funding envelope, eliminating the board’s shortfall
and the pressure to cut other budgets, so we could do much more for all students.
Moreover, the increased funding would enable us to add the teachers and evidencebased programs to support our special education students even more effectively.
What does the Ministry of Education say about the HNA?
They agree that the formula is flawed. Minister Sandals asked trustees to provide
suggestions on a way to fix the formula, and the board has responded.
Is this really about Peel being funded the same as Toronto or Halton?
The Peel board is not looking for the same share as any other particular board – just for
a fair share for its students.
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How could a change in the funding formula be introduced?
In stages, as the province did before—specifically with the Learning Opportunities Grant
(LOG), where we received $12 million a year in new funding (phased in).
We understand that in the absence of new money, the province will have to redistribute
funds to ensure that all students with special needs are accurately and fairly funded.
Boards seeing a reduction in HNA funding would need a few years to adjust their
services and expenditures.
The Peel board is recommending a four-year phase-in. Beginning with the 2014-15
funding, at least 25% of the HNA could be based on the prediction model, rising to 90%
by 2017-18.
The other 10% would remain based on the Measures of Variability portion of the HNA
funding, to more adequately recognize board needs based on EQAO performance by
students receiving special education support.
Some boards might lose funding—is that fair?
It is not fair that Peel students have been underfunded for over a decade with a flawed
formula—meanwhile some other boards have received more than they should have if
the formula was fixed. We are not asking for that funding to those boards be reversed,
but that all boards are funded fairly—for the students they now serve—moving forward.
And that it be staged in to ease the impact.
What is the Peel board doing to promote a solution to the funding problem?
The board is working hard to put the fairness issue on the province’s agenda. Chair of
the Board Janet McDougald has met with the Minister of Education to discuss the
problem, and the board has proposed what we feel is a fair and equitable solution. The
board has sent a letter to MPPs outlining the HNA funding concerns, and advising that
trustees would be in touch to discuss the matter further. Fixing the funding formula is
vital to Peel – and is in the best interests of all students.
Is there a public campaign?
We want to work as partners with the province to make progress and fix the formula.
We need to make sure this issue is on the political agenda. That means a full public
campaign. We will ask staff, parents, school councils, faith leaders and community
partners to make sure their MPPs, the Minister of Education and the Premier hear their
views. Fixing the funding formula is vital to Peel – and is in the best interests of all
students.
Is this public campaign a political campaign? Is it confrontational?
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Absolutely not. We are starting with MPPs as our partners in this work. We need their
help—as we did with LOG—to fix the formula. We need their voices to be raised so this
is on the government’s agenda.
Isn’t this politicizing school councils?
It is the role of school councils to advocate for their school and for students of the board.
This funding issue affects every single Peel student. It is important that our school
councils are aware of the issue so they can take action too—in ways appropriate within
the policies that govern school councils. We hope councils will make their voices heard
on this important issue that affects all students.
What do we want MPPs to do?
To be our partners—as they were with LOG—in helping to get Peel students the funding
they deserve. They helped us successfully before, and we can do it again. The
potential impact if the province is able to fix the formula for HNA would be even greater.
There are many competing issues provincially, and we need the help of MPPs, as local
representatives, to make the special education funding formula a priority for the
province.
If you met with the Minister and she offered help, why do you have a campaign?
It is our understanding that the Minister is considering a change to the HNA funding as
recommended by the provincial working group. We are optimistic that she will do the
right thing. We also, however, recognize the many competing issues vying for attention
at the provincial level. We want to make sure that #FixtheFormula is on the agenda.
But if you have that money, couldn't it be used to fund the special education
programs you say you need money for?
Financial experts suggest that using reserves to fund operational costs is like using
your RRSPs to pay your mortgage—it doesn't make sense. Reserves are for one-time
costs or emergencies.
Can we send information or a petition home with students?
The campaign is important—but our election guidelines, and our policy on distribution,
remain in place. We will not distribute political information with students. You can
distribute factual information such as a meeting notice. If you have questions about this,
talk to your principal.
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What should we do?
Councils are key partners in our work. You can help in this campaign by
 Understanding the issue and talking about it with parents
 Send a letter/email to your local MPP from the council, and personally
 Work with your principal to host a parent information night on the issue at your
school
 If you are on social media, use our twitter hashtag #FixtheFormula
I still have questions. Who can I speak to?
You can contact the Communications department by phone, 905-890-1010 ex. 2809, or
email, communications@peelsb.com.
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