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E
abiding commitment.
ducation has always been an issue of In spite of this commitment, there
central concern for the people of North continues to be a significant debate as to the
Carolina. Even before statehood, the most effective means of providing North
area’s colonists made concerted efforts to secure Carolina’s children with the best possible
the blessings of education for their children. In education. The one point upon which a great
1776, the authors of North Carolina’s first majority agree is that, despite substantial
Constitution required the Legislature to provide increases in funding, public education is not
publicly funded schools to encourage education meeting the needs of a large proportion of the
in the state.i Throughout the state’s history its state’s students. This paper will present parental
people have adopted all sorts of innovative school choice as a promising alternative to the
educational plans, all designed to promote educational status quo. At the same time, it will
learning among North Carolina’s young citizens. explain why school choice is not only consistent
Education’s special place of concern in the with both the Constitution of North Carolina and
minds of North Carolinians is further revealed the Constitution of the United States, but would
by reading the state’s current Constitution, assume a comfortable place among North
which dedicates both a section of its Declaration Carolina’s long history of innovative efforts to
of Rightsii and an entire articleiii to the subject. secure for its citizens the very best that
Education is, unquestionably, a subject to which education has to offer.
School Choice and the N.C. Constitution
WHAT IS SCHOOL CHOICE? pays or helps pay for the child’s tuition at the
chosen school. Where a school choice program
School choice is rooted in one simple uses privately funded scholarships, the
idea – it’s a good thing for parents to be able to government lets individuals and/or corporations
choose where their kids will go to school. After donate money to independent scholarship
all, millions of parents all over the country organizations in return for a tax credit in the
regularly make choices about where their amount of their donation. The scholarship
children will go to school, whether that means organization follows State-established
choosing a neighborhood with good public procedures to determine which students will get
schools or choosing to send their kids to a one of the scholarships, then pays all or part of
preferred private or religious school. No one the tuition of the scholarship recipients to the
ever argues that they shouldn’t be allowed to schools chosen by the recipients’ parents. A
make those choices. third school choice option is for governments to
The problem is, not all parents are able offer tax exemptions or credits to parents who
to make those choices because each of those choose to send their children to schools outside
choices cost money. Many parents of school- of the public school system.
aged children can’t afford to live in School choice programs make sense for
neighborhoods with good public schools, and several reasons. First, many private schools
neither can they afford to send their children to charge less per student than the public schools
private schools. As a result, they have no require to teach a student. If the government
effective choice: they must send their kids to provides the means for parents to choose a
wherever their school district tells them to go. private school that can educate a child for less
People who support school choice simply want money, the public schools can get to keep the
to give poor and middle-class parents the same left-over money even though they won’t bear the
options already available to wealthier parents. cost of educating that student. It’s a win-win
There are several different ways that the situation because the family benefits from being
State can offer parents these choices. North able to choose a school that better suits their
Carolina has already taken advantage of one of child and the child’s old public school is able to
those by allowing the creation of charter spend more money on each of the students that
schools, which are special independent schools remain.
that are supported by the State, but allowed to Second, competition can force schools
operate separate from the regular public schools to become more efficient, more innovative, and
system. This state currently has nearly one more responsive to the needs of the children
hundred charter schools, each offering an attending them. School choice programs force
alternative to the educational status quo. schools that have stagnated due to a guaranteed
Despite this step in the right direction, charter stream of students either to improve or to face
schools are still only available to a very small the prospect of losing students, and possibly
percentage of parents. North Carolina can do being shut down. Successful schools will thrive
more. and expand, while unsuccessful schools will
A well-crafted school choice program close and make way for new ones better
will allow parents to choose from among a equipped to serve the students.
number of alternatives, which normally will And finally, giving parents a choice for
include all of a district’s public schools and a their children’s education will encourage those
number of private schools, including some parents to become more attentive to and
religious schools. School choice programs involved with the entire educational process,
usually come in one of three forms: (1) publicly which will be tremendously beneficial for
funded scholarships, (2) privately funded everyone involved. Several studies of school
scholarships, or (3) tax credits or exemptions. choice programs already in operation have
With publicly funded scholarships, the confirmed the potential benefits of school choice
government lets parents choose from among the on all students involved – even those that remain
schools participating in the program and then in the public school system.iv For all of these
2
School Choice and the N.C. Constitution
reasons, North Carolina should consider such an North Carolina is no exception to this
alternative as a way to improve its own rule. The people who drafted and ratified North
education system. Carolina’s constitutions in 1776, 1868 and 1971,
Despite both the theoretical and created charters that were specifically tailored to
demonstrated benefits of school choice some North Carolinians’ ideas about how they should
groups – usually including teachers’ unions and be governed. In the later constitutions, the
other special interest groups – use any drafters frequently used language very similar to
conceivable theory to challenge the that used in the U.S. Constitution. In recent
constitutionality of governmental efforts to help years, however, the North Carolina Supreme
parents move their children from failing public Court has made clear that even if the state
schools into the private schools of their choice.v Constitution uses the exact same words as the
Concern about these sorts of legal challenges federal Constitution, it will not follow the
sometimes discourages legislatures from guidance of the U.S. Supreme Court if the
approving school choice programs. The Institute history behind North Carolina’s charter shows
for Justice has for years served as an advocate that the state Constitution was meant to function
and legal advisor for those who would help differently.viii In the same way, even where
parents get the best possible education for their North Carolina’s Constitution might sometimes
children. We are happy to explain why nothing share similarities with other state constitutions,
in either the North Carolina Constitution or the the North Carolina Supreme Court’s
U.S. Constitution should prevent this state from constitutional decisions will always be
offering school choice as an alternative to public determined by the unique heritage and meaning
schools that are failing to provide the education of this state’s charter.
promised to North Carolina’s children. Each of North Carolina’s constitutions
addressed the General Assembly’s role in
educating the state’s children, as well as the
proper relationship between government and
UNDERSTANDING STATE religious groups. These subjects are of
CONSTITUTIONS particular importance because those who would
maintain the educational status quo frequently
American constitutions are unique argue that school choice programs would violate
creations. While they tend to share similarities the sections of state constitutions that speak on
in structure and substance, each document was these topics. This paper will discuss influences
shaped by its authors to fit the needs and that affected the way the drafters of North
interests of the people whose government it Carolina’s constitutions addressed these issues
would establish. Even where one state’s and will demonstrate that the state Constitution
constitution uses language similar to another has never been seen as a barrier to the
state’s constitution or the federal Constitution, it Legislature’s innovative efforts to make
should not be taken as a given that those education available to its citizens. To the
similarities will lead to identical results in contrary, North Carolina’s courts have
court.vi State courts regularly point out that each interpreted the state’s constitutional provisions
state constitution has a unique history, and in such a way that there should be no
courts have to try to understand why the constitutional impediment to a well-crafted
constitution’s drafters chose the words they school choice program.
did.vii Sometimes these courts will decide that
similar parts of different constitutions have
essentially the same meaning and purpose. But
courts also frequently determine that some of
these similar parts were actually intended to
function in very different ways.
3
School Choice and the N.C. Constitution
4
School Choice and the N.C. Constitution
education in the public school system.”xv Even more firmly supporting the
Article IX, section 2(1) of North legislature’s authority to take measures to
Carolina’s Constitution has some similarities to advance education in North Carolina, the Court
the Florida and Wisconsin provisions in that it has held that the Constitution’s limitations on
also requires the state legislature to establish a the government’s use of public funds xxii will not
system of free public schools, with a particular prevent their being used for educational
emphasis on the notion that the system should be purposes.xxiii In short, North Carolina’s courts
“general and uniform.” If North Carolina adopts have consistently and thoroughly upheld the
a school choice program, the state’s courts will General Assembly’s authority to undertake
first need to address arguments that the programs that will improve the education of the
Constitution’s education article is intended to state’s citizens, outside and apart from the
limit methods through which the Legislature is system of free public schools. There is no
permitted to encourage education. If they decide constitutional reason that a school choice
that the legislature does have this authority, the program would be treated differently than those
next question will involve how the “general and programs whose constitutionality the courts have
uniform” clause should be understood in relation already affirmed.
to private schools participating in the program. North Carolina’s courts have also long
This state’s courts have previously made interpreted its “uniformity clause” to function in
clear that North Carolina’s Constitution allows a very differently from the “uniformity”
the legislature to exceed its minimum requirements of either the Florida or Wisconsin
requirements in attempting to improve education constitution.xxiv In one of its earliest cases
for the state’s citizens. The North Carolina dealing with the uniformity clause, the North
Supreme Court has permitted legislation Carolina Supreme Court ruled that the clause
providing for high schools,xvi kindergartens,xvii was intended to ensure that the system of free
and loans for college students attending both public schools would apply and operate in the
public and private institutions,xviii even though same manner everywhere in the state, “the
none of these were anticipated by the purpose being to extend to all children… the
Constitution. The state’s lower courts have same opportunity to obtain the benefits of
followed the high court’s example in this regard, education in free public schools.”xxv The Court
permitting the creation of a technical school for later clarified that the term “uniform” applies to
adultsxix and a local after-school educational the system of public schools and is complied
service that required payment of tuition.xx The with where the government has provided public
North Carolina Supreme Court has also schools “of like kind throughout all sections of
recognized that the provisions of Article IX, the state and available to all of the school
section 2 establish a minimum standard, but do population of the territories contributing to their
not prevent the General Assembly from acting support.”xxvi As long as the General Assembly
“in accordance with its judgment and in has met this obligation, there is no reason for
response to the wishes of the people” to “exceed North Carolina courts to hold that a school
the minimum fixed by the Constitution”.xxi choice program raises concerns based on this
state’s uniformity requirement.
5
School Choice and the N.C. Constitution
6
School Choice and the N.C. Constitution
7
End Notes
i
“That a School or Schools shall be established purposes sought to be accomplished by its
by the Legislature for the convenient Instruction promulgation[.]”).
viii
of Youth, with such Salaries to the Masters paid State v. McClendon, 517 S.E.2d 128, 132
by the Public, as may enable them to instruct at (N.C. 1999); see also State v. Jackson, 503
Low Prices; and all useful Learning shall be S.E.2d 101, 103-04 (N.C. 1998).
ix
duly encouraged and promoted in one or more As will be discussed at length below, North
Universities.” N.C. Const. of 1776, Article XLI. Carolina is the only state in the nation whose
ii
“The people have a right to the privilege of constitution lacks a provision limiting the
education, and it is the duty of the State to government’s interaction with religious
guard and maintain that right.” N.C. Const. groups. In the absence of such a limitation in
Art. I, § 15. the state Constitution, the state is bound only
iii
N.C. Const. Article IX. by the U.S. Supreme Court’s interpretation of
iv
Clive R. Belfield and Henry M. Levin, “The the federal Establishment Clause.
x
Effects of Competition on Educational Bush v. Holmes, p. 22.
xi
Outcomes: A Review of US Evidence,” Taylor v. Dorsey, 19 So. 2d 876, 882 (Fla.
National Center for the Study of Privatization 1944).
xii
in Education, March 2002 Chapman v. Reddick, 25 So. 673, 677 (Fla.
(http://www.ncspe.org/readrel.php?set=pub&c 1899).
xiii
at=37); Rajashri Chakrabarti, “Closing the Bush v. Holmes, p. 24
xiv
Gap,” Education Next, Summer 2004; Davis v. Grover, 480 N.W.2d 460 (Wisc.
Caroline Hoxby, “Analyzing School Choice 1992); Jackson v. Benson, 578 N.W.2d 602.
Reforms that Use America’s Traditional In each of these cases the Wisconsin Supreme
Forms of Parental Choice,” in Paul E. Peterson Court determined that the MPCP did not
and Bryan C. Hassel, eds., Learning from violate Article X, section 3 which reads: “The
School Choice, Brookings Institution, 1998. legislature shall provide by law for the
v
Opponents of school choice typically bring establishment of district schools, which shall
claims under the Establishment Clause of the be as nearly uniform as practicable[.]”
xv
First Amendment as well as any claims that Davis v. Grover, 480 N.W.2d at 474.
xvi
seem even remotely applicable under the See Board of Education v. Board of
state’s constitution. Commissioners of Granville County, 93 S.E.
vi
The North Carolina Supreme Court has held 1001, (N.C. 1917); Elliott v. Gardener, 166
that even where the wording of part of North S.E. 918, 922 (N.C. 1932).
xvii
Carolina’s Constitution is identical to that of See Posey v. Board of Education of
the U.S. Constitution, the state’s courts “are Buncombe County, 154 S.E. 393, 397 (N.C.
not bound by opinions of the Supreme Court 1930).
xviii
of the United States” in construing the See State Education Assistance Authority v.
identical provisions. State v. McClendon, 517 Bank of Statesville, 174 S.E.2d 551 (N.C.
S.E.2d 128, 132 (N.C. 1999). See also State v. 1970).
xix
Jackson, 503 S.E.2d 101, 103-04 (N.C. 1998). See Benvenue PTA v. Nash County Board of
vii
See Virmani v. Presbyterian Health Services Education, 167 S.E.2d 538 (N.C.App. 1969).
xx
Corp., 515 S.E.2d 675, 692 (N.C. 1999) (The See Kiddie Korner Day Schools, Inc. v.
North Carolina Supreme Court “is the only Charlotte-Mecklenburg Board of Education,
entity which can answer with finality 285 S.E.2d 110 (N.C.App. 1981).
xxi
questions concerning the proper construction Frazier v. Board of Commissioners of
and application of the North Carolina Guilford County, 138 S.E. 433, 440 (N.C.
Constitution.”); Stephenson v. Bartlett, 562 1927).
xxii
S.E.2d 377, 389 (N.C. 2002) (“This Court will Sections 6 and 7 of Article IX restrict the use
consider the history of the questioned of the state and county school funds,
provision and its antecedents, the questions respectively, to the exclusive use in
that existed prior to its enactment, and the maintaining the “free public schools.” Article
8
End Notes
xxvi
V, section 2 limits the use of tax revenue to Board of Education v. Board of
“public purposes.” The North Carolina Commissioners of Granville County, 93 S.E.
Supreme Court has made clear that education 1001, 1002 (N.C. 1917).
xxvii
is a “public purpose” as that phrase is used in 536 U.S. 639 (2002).
xxviii
Article V. There should, therefore, be no In Bush v. Holmes, Florida’s First District
constitutional inhibition to the use of tax or Court of Appeal struck down that state’s
bond revenue pursuant to this sort of an Opportunity Scholarship Program by ruling
education program. The Court has not yet that it was inconsistent with Florida’s Blaine
addressed whether the state or county public Amendment. School choice in North Carolina
school funds may be used as part of a will not face such an obstacle.
xxix
scholarship program that includes non-public There is one example, however, of a
schools. Any future school choice program compelled support clause being read in a very
could best sidestep a potentially negative restrictive manner. See Chittenden Town
ruling on this issue by forgoing the use of the School District v. Vermont Department of
state and county school funds. Education, 738 A.2d 539, 563 (Vt. 1999).
xxiii xxx
See State Education Assistance Authority, A few states had already incorporated such
174 S.E.2d at 559-60. provisions into their constitutions before
xxiv
The Florida Supreme Court determined that Blaine got into the act.
xxxi
its provision required a uniform degree of It should be noted that not every Blaine
regulatory control over schools receiving Amendment discriminates against religion on
public funding. The Wisconsin Supreme its face. Some states forbid the use of public
Court said that its provision addresses the educational funds at all private schools – see
“character of education” offered in the public S.C. Const. Art. XI, § 4 – or prohibit the use
schools. of educational funds at any institution not
xxv
City of Greensboro v. Hodgin, 11 S.E. 586, under the exclusive control of the state – see
587 (N.C. 1890). Neb. Const. Art. VII, § 11.
9
Credits
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