Referendum

Despite ongoing efforts to address our budget shortfalls, the Kenosha Unified School District is facing the same financial challenges as most other school districts across the state.

In fall 1993, the state of Wisconsin instituted a limit on the revenue a school district can receive each year. The control applies to revenue received from the two primary sources: (1) state aid and (2) local property taxes.

A district’s revenue limit is directly linked to two things: enrollment and state-approved adjustments. As a result of declines in enrollment in KUSD and minimal state adjustments, our district’s revenue limit has not kept pace with inflation. In fact, had state funding kept pace, KUSD would have an additional $31 million available and an operational referendum would not be necessary.

Additionally, expenses like curriculum, utilities, health insurance, transportation, and salaries continue to increase. Schools do not have the ability to raise prices. Instead, we must reduce our costs, meaning a reduced investment in our students.

Based on state funding formulas, an operational referendum is the only option to prevent additional cuts to programming and opportunities for students. We can no longer wait for the state to direct funding toward education.

For the 2025-26 school year, the district is projecting an estimated $19+ million deficit. This is despite the fact that we have engaged in numerous cost-cutting measures, including closing schools and reducing staff.

We fear that further cuts will harm our students and limit the educational opportunities available to them. The time has come to find a long-term solution to our financial needs.

Review the Public Hearing of the Proposed 2024-25 Budget presentation or watch as it is explained during the 2024 Annual Meeting of Electors.

Annual budget information dating back to 2010-11 can be reviewed here.

Since the 2021-22 fiscal year, KUSD has:

• Reduced staffing to align with declining enrollment
• Reduced support staff
• Closed 7 schools and merged two others
• Eliminated the employer-paid HSA benefit
• Modified the employee health benefit plan
• Modified the prescription drug plan
• Reduced discretionary spending
• Reduced the major maintenance budget
• Reduced the curriculum adoption budget
• Reduced the technology refresh budget
• Provided wage increases below CPI
• Shifted costs temporarily to ESSER when possible

Staff reductions since 2019-20

• Student Enrollments: -11.5%
• Administrative, Supervisory, Technical: -10.1%
• Teachers: -9.3%
• Educational support professionals: -4.6%
• Administrative support professionals: -15.3%
• Interpreters: -14.3%
• Service: -10.7%

Over the past year, the Board of Education and district administration have been examining the district’s operational needs and considering solutions. Through this process, the board and district leaders looked to:

• Significantly reduce the structural deficit to avoid program and staff cuts that would negatively impact student learning.
• Implement improvements to programs and services to enhance student academic success. 
• Move ahead with enhanced safety measures to improve student safety, health, and wellbeing. 

Community input has been critical to the board’s decision-making process. Board members and district leaders have sought the input of our community, including through a communitywide survey that was available in fall 2024.

In fall 2024, we conducted a community-wide survey to share information on the district’s needs and seek the input of our community. The survey was open from September 25 to October 11, and a total of 4,273 people completed it.

The following were key takeaways from the survey results:

• About 82% of respondents said they were very or somewhat familiar with the district’s budget needs and the process being used to find a solution.
• About 83% indicated they believe the district’s most urgent financial needs must be addressed now.
• About 70% said they would probably or definitely support an operational referendum on the February 2025 ballot.

After carefully reviewing the survey results and other feedback provided by the community, the Board of Education decided to place an operational referendum question on the ballot for February 18, 2025.

On Tuesday, February 18, 2025, our community will vote on a proposed non-recurring referendum question for Kenosha Unified. If approved, the district will be able to increase its revenue limit by $23 million per year through the 2029-30 school year. This increase will address the $19+ million deficit and allow for additional safety enhancements.

The additional funding provided through an approved referendum would allow KUSD to:

• Substantially reduce the structural deficit to protect class sizes, vital programs, and staff positions.
• Implement and meet our district goal of increasing the percentage of students scoring proficient or advanced in reading and math by 12%.
• Implement state-mandated programs, such as Act 20 and its science of reading practices, to enrich reading instruction and increase student proficiency.
• Retain our high-quality staff, whose dedicated professional time is essential for delivering exceptional education.
• Implement key upgrades to enhance the safety and security of students and staff, including upgrading controlled building entrances, modernizing surveillance systems, reinforcing exterior doors, installing shatter-resistant window film, upgrading digital video recorders, and implementing additional critical safety measures.

Preliminary FY 2025-26 Budget Positions

The last referendum passed was the athletics facilities referendum of 2015, which was a capital campaign. This referendum supported the constructing and improving of outdoor facilities at Bradford, Indian Trail High School and Academy, and Tremper. We remain incredibly grateful for the support of our community.

Around 2010, the district expanded Indian Trail High School and Academy. This project consisted of both operational and capital components. 

The measure on the ballot in February 2025 is an operational referendum.

In Wisconsin, school boards can ask voters to approve two types of referendums: an operational referendum and a capital (or bond) referendum.

• Levy = Learning: In an operating referendum, the amount is levied each year from the taxpayers to be used for operating costs of the district.
  • An operational referendum is used to fund the ongoing day-to-day expenses of running a school district. This can include salaries and benefits for teachers and staff, utilities, classroom supplies, transportation, and other operating costs. This is the proposed measure on the ballot in February 2025.
• Bonds = Building: In a capital referendum, funds are borrowed through bonds and paid back with interest. This is most often used for building projects.

A capital referendum is used to fund major building projects and improvements. This can include the construction of new school buildings, significant renovations or additions to existing facilities, purchasing land, or major equipment expenditures.

Yes. Because of an outdated state funding formula and insufficient financial support from the state legislature in recent years, more Wisconsin school districts are relying on their communities to help address budget shortfalls.

In 2024, 147 operational referendums were proposed by Wisconsin school districts to their communities, seeking to raise their revenue limits.

Over the past 10 years, a majority of Wisconsin school districts have successfully passed operational referendums, allowing them to exceed revenue limits with voter approval. Given the current funding formula, operational referendums remain the only viable solution to avoid further cuts to programs and student opportunities.

The state allocated $50 million to implement this research-based, high-quality instructional program across 421 school districts and over 800,000 students. However, the funding is inadequate for the program’s full implementation, which includes staff training, developing individualized reading plans, and adapting instruction based on progress. While the exact cost for our district is still being calculated, it will be included in our upcoming budget proposal.

Maximum class sizes per policy are:

• Grades K-1: 22 students
• Grades 2-3: 24 students
• Grades 4-5: 26 students
• Secondary core classes: 30 students

A security committee is reviewing policies and potential enhancements, including weapons detection systems and staff training. Updates will be shared at a special board meeting. A successful referendum would support these improvements.

Specific costs include: 

• Debt service for controlled entrances: $3 million annually
• Additional safety upgrades: $450,000

If the operational referendum is approved, it would have an estimated initial property tax impact of $1.25 per year on every $1,000 of equalized property value in our community. For example, the owner of a home worth $250,000 would see a property tax increase of $313 per year (or $26 per month).

While property owners directly pay property taxes, landlords may pass increased costs onto renters in the form of higher rent.

Yes. The proposed operational referendum is a non-recurring, three-year referendum. This means it would expire at the end of the 2029-30 school year unless voters approve a new operational referendum before that time.

The five-year term aligns with enrollment projections and was chosen with input from the community. It offers a balance between long-term planning and flexibility.

Without the financial support provided through an operational referendum, KUSD will face a $19+ million budget deficit in the 2025-26 school year. This means the district would need to continue to cut programs, services, and staffing for students. The district would also face further budget deficits in the ensuing school years.

We have already made significant cuts to staffing, closed schools, reduced staff benefits, cut discretionary funds, and more in recent years. We fear that more reductions will further harm our students and jeopardize the high-quality educational experience our community has come to expect from KUSD.

If the referendum does not pass, everything would be under review for potential cuts, including low-enrollment courses such as some AP classes. For example, running a class with 12 students costs significantly more per student than a regular class with 25-30 students.

All options are on the table. However, the initial proposals aim to balance priorities across academics, extracurriculars, and fiscal responsibility.

The referendum would remain in place, but the school board could choose not to levy the full amount if state funding offsets the deficit. The referendum assumes the current state increase of $325 per pupil will continue. If state funding increases, the district will adjust plans accordingly, but the referendum is essential to address the current $19 million deficit.

Federal funding is tied to specific grants like Title I (poverty-related) and IDEA (special education). These supplemental funds cannot replace local funding and are limited in scope.

Federal funding cuts, if implemented, could reduce grants for Title I and special education. While supplemental, these funds impact key student programs.

Kenosha Unified cannot remain competitive with districts that have passed operational referendums. Limited funding impacts the district’s ability to offer higher wages.

Election day is Tuesday, February 18, 2025.

District residents can find their polling location for Tuesday, February 18, by searching with their home address.

Yes. Early voting will be held Feb. 4-14 at the Municipal Building. See the dates and times below:

• Tuesday, February 4, 2025: 8 a.m. to 4:30 p.m.
• Wednesday, February 5, 2025: 8 a.m. to 7 p.m. (Extended Hours)
• Thursday, February 6, 2025: 8 a.m. to 4:30 p.m.
• Friday, February 7, 2025: 8 a.m. to 4:30 p.m.
• Monday, February 10, 2025: 8 a.m. to 4:30 p.m.
• Tuesday, February 11, 2025: 8 a.m. to 4:30 p.m.
• Wednesday, February 12, 2025: 8 a.m. to 7 p.m. (Extended Hours)
• Thursday, February 13, 2025: 8 a.m. to 4:30 p.m.
• Friday, February 14, 2025: 8 a.m. to 5 p.m.

Yes, voters may request that an absentee ballot be mailed to them for any reason. However, you must be registered before you can request an absentee ballot.

If you are registered, you can request an absentee ballot by visiting https://myvote.wi.gov/en-us/VoteAbsentee. Note that you must provide a photo ID with your absentee ballot request.

Eligible voters can register up to election day, and can even register at the polls.

The deadline to register by mail is January 29, 2025. If you miss that deadline, you can still register in person at your municipal clerk’s office until 5 p.m. on February 14. You may also register at your polling place on Election Day itself.

To learn more about registering to vote, visit https://myvote.wi.gov/register-To-Vote.

Voters will see the following question on their ballots on Tuesday, February 18:

Shall the Kenosha School District No. 1, Kenosha County, Wisconsin be authorized to exceed the revenue limit specified in Section 121.91, Wisconsin Statutes by $23,000,000 per year beginning with the 2025-2026 school year and ending with the 2029-2030 school year, for non-recurring purposes and consisting of operational expenses and debt service for safety and security improvements?

Maintaining the programs currently offered and preserving manageable class sizes are crucial for ensuring the quality of education for our students. These programs provide students with opportunities to explore their interests, develop critical skills, and engage in meaningful learning experiences. Similarly, manageable class sizes allow educators to provide individualized attention, build strong relationships with students, and address diverse learning needs effectively. Together, these elements create an environment where students receive the quality education they deserve and expect.

In addition, KUSD has a comprehensive District Improvement Plan that is guiding our efforts to ensure students continue to have access to an exceptional educational experience. Through this plan, we aim to provide excellent, challenging learning opportunities and experiences that prepare each student for success. This will result in KUSD being Wisconsin’s top-performing urban school district, highly regarded for continuously exceeding all expectations.

Driving this effort is the moral imperative that all students must have an equal opportunity to prepare for college and/or careers with the support of highly qualified educators in a learning environment that is resource rich, safe, and welcoming.

The plan outlines three critical goals for KUSD:

• By spring 2027, the district will increase the percentage of students scoring proficient or advanced in reading and math by 12% as measured by the state assessment.
• Engage in an inclusive and transparent process with the school board, staff, administration, and public to create recommendations that result in an annually balanced budget.
• Retain and recruit highly qualified staff who work to ensure the success of every student.

KUSD must have the financial resources and support in place to truly implement this ambitious plan for our students, families, and community.

Schools are the basis of a strong community, and investing in their success benefits everyone.

Here are some key points to consider:

• Schools are where our children learn and grow.
  They are the foundation for developing the next generation of leaders, innovators, and community members. Every student deserves access to quality education, which this referendum helps sustain.
• Economic growth is tied to quality schools.
  Businesses looking to relocate or expand often prioritize communities with robust educational systems. Great schools attract businesses and ensure a well-prepared workforce, strengthening Kenosha’s economic future.
• Homebuyers are influenced by school success.
  Families seek neighborhoods with reputable schools, boosting demand for housing and stabilizing property values. Investing in our schools is investing in our community.

Supporting this referendum isn’t just about funding education—it’s about fostering a community where children, families, and businesses flourish. By ensuring our schools are properly funded, we can move Kenosha Unified Forward Together.

Yes, the revenue limit can be raised either by state legislative action during biennial cycles or through additional referenda approved by voters.

Like many districts, KUSD has been facing declining enrollment for many years, mainly due to a declining birthrate. This trend will impact KUSD for at least the next decade. To maintain the services and opportunities currently offered and offset the 2024-25 deficit, KUSD underwent a rightsizing process. 

While closing schools and reducing staff saved roughly $10 million annually and allowed us to have a balanced budget for the 2024-25 school year, our foundational issues persist as we now face a $19 million deficit for the 2025-26 school year and beyond due to a lack of funding support from the state and rising costs. Had these changes not occurred, the projected deficit for 2025-26 would be closer to $30 million.

In addition, ESSER funds (COVID relief funds) expired in September 2024, and the district must now absorb all operational costs covered by these funds in the district budget.

Schools were selected based on a rubric that considered factors such as age, major maintenance needs, boundary changes, and the presence of controlled entrances. The district also used a capacity rate of at least 80% in its decision making process to ensure buildings were not being underutilized. 

Closed buildings are being preserved and maintained with minimal utilities at this current time. A detailed plan for the closed buildings is being prepared and will be presented for Board discussion and possible action at the Jan. 28 regular board meeting.

Additionally, one building—the Dimensions of Learning property—was sold for $200,000. The sale price reflected a market study. Public-use zoning limits the marketability of such properties, impacting their value.

Disparities stem from historical spending patterns set in the 1990s, which locked districts into revenue limits based on their prior spending. Districts that had higher spending historically or that passed operating referendums continue to receive more funding.

Kenosha receives $11,349 per student, while others receive $12,000 or more per student.

• Green Bay: $11,327
• Kenosha: $11,349
• Burlington: $11,405
• Racine: $11,460
• Milwaukee: $12,316 (will increase with recently passed referendum)
• Westosha Central: $12,340 
• Union Grove: $12,482
• WI Parental Choice Program (vouchers): $12,731 (grades 9-12)
• Wlimot: $13,053
• Madison: $14,741 (will increase with recently passed referendum)

While districts like Madison and Milwaukee differ in size, we compete with them for staff recruitment and retention. However, comparisons are also made with similar-sized districts, like Racine, to ensure balanced analysis.

Schools have discretionary budgets to support classroom needs. Teachers are encouraged to request resources from these budgets from the building administrator before paying out-of-pocket. However, budget constraints have affected discretionary funding in recent years.

Yes, tenured teachers can be non-renewed. As part of the staffing process, Kenosha Unified begins planning in February. According to state statute, teachers must be notified of non-renewal on or before May 15.

If the referendum does not pass, the district will have sufficient time to make necessary staffing adjustments and issue non-renewal notices by the required deadline.

At this time, offering severance pay for non-renewed teachers has not been pursued because it would result in additional costs for the district during an already challenging financial period.

The decline in enrollment reflects statewide and national trends driven by lower birth rates and shifting population demographics. Despite these challenges, Kenosha Unified actively promotes its programs and opportunities to both current and prospective families during registration periods. The district also highlights the achievements of its schools and celebrates student success stories to keep the community informed and engaged.

To further support student success, Kenosha Unified has implemented a three-year District Improvement Plan focused on enhancing outcomes in key areas such as reading and math. This commitment to continuous improvement ensures better academic achievement and strengthens family satisfaction.

Surplus capital is managed weekly to take advantage of high interest rates. This generates several million dollars annually, which are reinvested into district operations.

Private school voucher funding does not directly contribute to the deficit, but it increases the tax levy. However, in Wisconsin, public schools must provide certain services to eligible private school students. These services include transportation, Title I services, and special education services.

Our instrumentality charter schools within the district are part of our overall operational costs.

Not exactly. The $23 million added by the referendum will be removed, but other factors like property values and enrollment changes will influence the final tax amount.

Special education costs are part of the operational budget. The district receives about 33% reimbursement for special education from the state, with the general fund covering the remainder.

The district consistently meets reporting deadlines for state and federal requirements. Transparency and accountability are priorities. Regular, transparent financial reports are shared with the Board of Education and community, ensuring accountability.

The district focused on “right-sizing” to optimize efficiency before seeking public support. Additionally, $0 state increases during 2021-2023 exacerbated financial challenges, making the referendum essential now.

Yes. If the state legislature moves ahead with significantly more funding for schools that helps alleviate our budget deficit, the KUSD Board of Education could opt to levy for less than what our increased revenue limit allows.

At this time, the district does not plan on restoring the staff positions that have been reduced over the past several years. The budget deficit we are facing exists even with these significant cuts in place.

However, the rightsizing we have completed in recent years has allowed us to serve our students more efficiently and cost effectively. An approved referendum would enable KUSD to continue to provide an exceptional educational experience to our students.

Kenosha Unified is currently aligned with most surrounding districts. However, with the referenda passed last year and those on upcoming ballots, the district has the potential to fall behind if pay if the referendum does not pass. One of the tools the district may need to implement if the referendum does not pass is pay freezes.