School Superintendent Floats Grade 7-12 Consolidation to Solve Chronic Budget Woes

Report on the Four Towns Meeting of September 28, 2024

The meeting was held at the Amherst Middle School Library on September 28 and was recorded. The recording can be viewed here.

At her first Four Towns Meeting, new School Superintendent Xiomara Herman presented a preliminary budget analysis showing deficits ranging from $2.2 million to $3.3 million using the same “level service” approach that has been used in the past. She recommended changing to “line item” budgeting initially, followed by restructuring to “performance-based budgeting” to ultimately solve the persistent financial challenges of the Regional School District. 

Herman described six scenarios for FY26 with varying bases (starting points from previous years’ budgets) and increases (ranging from 2.5 to 4%), all of which fall short of the projected $38.5 million expenses. With this approach, she noted that, “Regardless of what we do, we are going to be operating at a deficit.” She concluded that the “level services” approach fails to address inefficiencies while  line item budgeting is too inflexible and is not linked to performance or outcomes. Performance-based budgeting, she argued, would best meet the needs of students by linking budget decisions to desired outcomes such as achievement rates, graduation rates, attendance rates, and individual student goals. 

The primary strategy Herman proposed is to shift from separate middle and high schools to a grade 7 through 12 educational model in the current high school. Under this consolidated model, staff reductions would result in total potential savings of $2.4 million. Staffing cuts would include 1 building leader, 3 professional support staff, 9 clerical positions, 8 maintenance staff, 12 professional (teacher) positions, and 6 support staff. 

Additional savings that will also be explored include a one day furlough for all staff, raising the current share of health insurance costs for staff from 20% of the total cost to 25%, and a revised transportation contract involving less mileage, fewer stops, less driver overtime, and bringing some Special Education transportation in house. The net effect of these changes would alter the six scenarios to a best case scenario of a $178K surplus and a worst case scenario of a $618K deficit. 

Herman highlighted that Special Education ran $2.5 million over budget last year and that the effect of choice-in students from outside the district should be reassessed. She will also be seeking ways to create programming to keep students in district to reduce the more than $2 million spent each year to cover students attending Charter Schools. 

As yet undetermined in this proposal is what to do with the middle school building, which Herman noted is in need of a great deal of work and deferred maintenance. Also uncertain is where Amherst 6th graders would be located as they are currently slotted to move to the middle school by 2026. She explained that the consolidation proposal has not yet been thoroughly defined. She emphasized that “Superman is not coming, there is no white knight” and “cuts are going to have to be made” but made the plea that “Our children deserve the best, but can we at least agree to give them basic?”

Amherst Electeds Responses
Each town’s school committee, finance committee, and Select Board/Town Council members met separately during a breakout session. The discussion by Amherst’s elected officials focused on Special Education. At-large Town Councilor Mandi Jo Hanneke asked “Is our Special Education basic or best?” and “Is it just general education students who get basic?” Amherst School Committee Chair Sarah Marshall suggested that schools “could take a tougher line on developing IEPs (Individualized Education Plans).” District 5 Town Councilor Ana Devlin-Gauthier argued that allowing students to choice-in to Amherst benefits the larger community. School Committee member Bridget Hynes noted that Amherst can bill sending districts for special education related costs. 

Hynes also reminded the group that the high school used to rank in the top 10% of the state’s districts but is now in the middle of the pack. Hanneke wondered what besides budget is driving this drop in ranking. Marshall suggested that a change in demographics, with more English Language Learners and lower income families, could explain the change in performance. District 3 Town Councilor Hala Lord expressed discomfort with the “scapegoating of these populations” as contributors to the District’s ranking. 

Hynes pointed out that a 2019 study of a possible consolidation of the middle school into the high school came with a lower range cost estimate of over $30 million. Hanneke added that the study undertaken at that time called for 7th and 8th graders largely separated from 9th – 12th graders. 

When representatives from the towns gathered again to share their initial response to the Herman’s presentation, both Leverett and Shutesbury indicated that they favored the scenario presented that used last year’s 6% increase as the basis for future budgets. This was a higher percentage increase than usual agreed upon to avoid deep staffing cuts. Pelham signaled an openness to what was offered. Hanneke, however, expressed concern over developing future budgets on the 6% increase from FY 25 and said that Amherst could only afford the roughly $300,000 increase last year with American Rescue Plan Act (ARPA) funds. 

In answer to questions about enrollment and educator trends, Herman stated that while the high school has the capacity for 3,000 students, the number of students has dropped from 1,346 in 2020 to 1,271 in 2024 while the number of teachers over that same time has risen from 157 to 164 (paraprofessionals dropped from 80 to 75). 

Herman indicated that she and her team would further develop the proposals and anticipated presenting a more complete budget and plan in late November or early December.