A bill restricting referendum proposals comes as school districts continue to rely on funding raised from property taxes through referendum requests, requiring voter approval. A rally calling attention to schools' reliance on referendums in the Capitol in 2025. Photo by Baylor Spears/Wisconsin Examiner.

Wisconsin Republicans want to restrict school districts’ ability to seek referendums if they haven’t turned in financial reports to the Department of Public Instruction on time. 

At a public hearing Thursday, the Assembly Education Committee Thursday heard testimony on a bill drafted in reaction to the historic referendum that voters approved for the Milwaukee Public Schools last year, and that was followed by the revelation that the district was months late in submitting financial documents to the state.

The school district’s tardiness has led to upheaval throughout the district, including the decision to replace the MPS superintendent and additional audits ordered by Gov. Tony Evers.

The education committee also took testimony on a bill that would allow education students to complete their student teacher requirements during the summer and a bill to change curriculum requirements for human development classes if districts offer them. 

Rich Judge,  assistant state superintendent in the Division of Government & Public Affairs for the Wisconsin Department of Public Instruction (DPI), registered against each bill, but did not provide testimony. The agency has not yet responded to a request for comment from the Wisconsin Examiner about its opposition to the bills.

AB 457, coauthored by Rep. Amanda Nedweski (R-Pleasant Prairie) and Sen. Rob Hutton (R-Brookfield), would require DPI to certify schools are in compliance with all applicable requirements to submit financial information to DPI. 

If a district is not in compliance, the school board would be prohibited from adopting a resolution to hold  a referendum. A resolution adopted or a referendum passed without the certification would be void.

“If a district cannot even meet its minimal statutory reporting duties, how can voters trust them to be responsible?” Nedweski asked rhetorically during her testimony. “This bill places no additional cost or burdens on school districts. It simply reinforces accountability and transparency… Trust is the foundation of strong schools and strong communities, and AB 457 helps ensure that that trust is never taken for granted.” 

MPS sought a $252 million recurring operating referendum in April 2024 to assist with staff pay and educational programming costs. The measure passed narrowly, and by the end of May 2024, DPI announced that the district was months late in submitting required financial reports. 

The DPI was still withholding about $42 million from the district as of June of this year due to its late financial reports. 

Nedweski said she didn’t know how many other districts might be late in their financial reporting to DPI. School districts need to be in compliance before they seek a referendum so that voters have adequate information, she said 

“If you’re going to pass a $252 million dollar recurring referendum, I think you should be able to make an informed decision,” Nedweski said.

The legislation comes as school districts continue to rely on funding raised from property taxes through referendum requests, requiring voter approval.

Democratic lawmakers on the committee expressed concern about the potential barrier the legislation could pose.

Rep. Angelina Cruz (D-Racine) noted that there have been a record number of referendum requests t in recent years and that the state Legislature opted not to provide any additional general aid in the 2025-27 state budget. School district leaders have said the lack of state aid will put them in tough positions when it comes to funding, even with the additional aid that the state is providing for special education costs. 

“With the state Legislature putting zero dollars in state [general] aid forward in this last budget to local school districts, we’re going to see that pattern of referendum continuing,” Cruz said. “I’m just concerned that we are creating another barrier in terms of our local public school districts having access to choosing to… fill the gaps that the state is intentionally creating.”

Even with the recent referendum, MPS is still looking at a $100 million budget shortfall and newly hired Superintendent Brenda Cassellius is looking for ways to tighten its budget.

This is not the only bill lawmakers have introduced that would place additional barriers and limitations on school districts seeking referendums. A bill introduced in March would eliminate the ability for school districts to seek recurring referendums, which are ongoing into the future, in part due to Milwaukee’s referendum. 

“Are you saying that people shouldn’t have access to the financial data for school districts before they make a decision to raise their own taxes?” Nedweski replied. 

“Absolutely not,” Cruz said. “I’m seeking clarity in terms of are we trying to create an additional barrier for public school districts, local communities to fund their schools? [The financial reports are] already a requirement by law.” 

Changing human development requirements 

The committee also took testimony on AB 405, also authored by Nedweski, which would change requirements for school districts that offer human development education.

Wisconsin doesn’t require public schools to teach human growth and development, or sex education. If they opt to do so, the state makes recommendations for the curriculum and state law imposes some requirements. Those include presenting abstinence from sex as the preferred choice of behavior for unmarried students, providing instruction in parental responsibility and the socioeconomic benefits of marriage for adults and their children, and explaining pregnancy, prenatal development and childbirth. 

Nedweski’s bill would add to those requirements. If it is enacted, students would have to be shown a “high-definition ultrasound video that shows the development of the brain, heart, sex organs, and other vital organs in early fetal development” and a “high-quality, computer-generated rendering or animation that shows the process of fertilization and every stage of fetal development inside the uterus and that notes significant markers in cell growth and organ development for every week of pregnancy until birth.”

Nedweski said that allowing students to “actually see the real life process of fetal development in action will be more tangible to them than simply reading in a textbook or seeing it in the still diagram or drawing.” 

“We have the resources at our disposal to bring this science into the classrooms, and we should use it to our advantage to give students a stronger educational experience,” she added. 

Nedweski’s bill would also require schools to include a presentation on each trimester of pregnancy and the physical and emotional health of the mother if they opt into teaching on recommended topics. She said this would help address mental health concerns.

“This bill simply builds off of those existing requirements to incorporate more scientific resources, such as the ultrasound video as well as lessons pertaining to the mental and physical health of the mother,” Nedweski said. “This bill is not a mandate because school districts are not required by law to offer human growth and development instruction. It merely makes modern enhancements to the topics required of districts that choose to teach it.” 

Nedweski was the sole person to testify on the bill. 

Rep. Francesca Hong (D-Madison) asked Nedweski whether she consulted public health officials, noting that the Wisconsin Public Health Association and Wisconsin Association of Local Health Departments and Boards are registered against it, according to the Wisconsin Ethics Commission lobbying website.

Nedweski said she didn’t speak to any public health officials or either statewide group in the process of authoring the bill, but spoke to a member of one of the local health departments in her district. 

Cruz asked about how much the curriculum would potentially cost. 

“There are all kinds of free materials available to any school district that would be wanting to utilize the video portion or the high resolution animation,” Nedweski said. She added that the curriculum decisions would ultimately be made at the local level.

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Reading Time: 4 minutes

Milwaukee Public Schools has rolled out a new emergency protocol designed to standardize and simplify responses to emergencies.  

Staff, families, students and the broader community were tragically reminded of the need for such protocol when, just weeks ago, a gunman opened fire during a student Mass at a Minneapolis school, killing two children and injuring more than a dozen others. 

Shannon Jones, MPS director of school safety and security, said shooting incidents like these prompt staff to reflect and assess.

“I think after every incident that has happened nationwide, actually worldwide, we kind of look at where we are and try to take in consideration the ‘what ifs,’” Jones said. “Overall, it’s about the safety of the kids.” 

What’s new?

On Sept. 2, the first day of the school year at most MPS schools, students were introduced to the Standard Response Protocol, said Kevin Hafemann, emergency operations manager for the district. 

The protocol was developed by the “I Love U Guys” Foundation, a national nonprofit that provides free safety resources to schools. 

Posters explaining each response are displayed in classrooms at MPS’ roughly 150 schools. 

Those responses are: Hold, Secure, Lockdown, Evacuate and Shelter. 

Five emergency responses

Here’s what each response entails for students and teachers. 

• Hold: Students remain in their room or area, while hallways are kept clear. While holding, normal activities can continue. 
• Secure: Teachers lock outside doors to protect people inside buildings. Although awareness should be heightened, normal activities can continue. 
• Lockdown: Teachers clear hallways, lock doors to individual rooms and turn off the lights. Students hide and keep quiet. 
• Evacuate: Students move to an announced location, leaving personal items if necessary. 
• Shelter: Depending on the hazard announced by the teacher, students respond with the relevant strategy. For example, if there’s an earthquake, students should drop, cover and hold.

Easier in an actual emergency

“The neat thing about the SRP (Standard Response Protocol), it’s very simple. There’s only five, so it’s an all-hazards approach,” Hafemann said. 

The posters replaced a much more detailed flipbook. 

“This is where we came from,” Hafemann said, holding up the flipbook. “Very great, excellent information. But during a crisis, you lose your fine motor skills. You’re not going to have time when you’re scared to be able to read what to do.” 

Many community partners were involved in bringing the new protocol to MPS, Hafemann said. This includes the Milwaukee Police Department and the Milwaukee Fire Department.

Fire Chief Aaron Lipski said the collaboration has helped MPS avoid “reinventing a wheel on something that might not work in the real world.”   

For example, he said, it’s important for staff to know that during a fire, one of the safest areas of a building is the stairwell. 

“Through good incident command and communication with folks at the building, that gives us time for them to go, ‘Hey, we got a kid in a motorized wheelchair on the west stairwell, third floor.’ That becomes a major priority for us,” Lipski said. 

Some emergency protocol details cannot be shared publicly for safety reasons, but families are informed whenever changes directly affect school procedures, said Missy Zombor, president of the Milwaukee Board of School Directors.  

What’s the same?

Although the Standard Response Protocol is new for the district, it is part of the district’s ongoing Emergency Operations Plan.

The plan is an overarching safety framework mandated by state law, requiring school districts to coordinate prevention, mitigation, response and recovery efforts across the district. 

A range of emergency drills are also mandated: monthly fire drills; at least two tornado or hazard drills annually; one “school violence” or “lockdown” drill annually. 

MPS also conducts defibrillator drills and, for younger students, bus evacuation drills each year.

What steps can be taken now?

Families should review the Standard Response Protocol poster with their schoolchildren, Hafemann said. 

“Just have those discussions with children about these and that they’re aware of what to do,” he said.

Lipski advised reviewing “the basic stuff” as well. 

“They probably do well to review basic ‘stranger danger’ stuff,” he said. “Yes, we want you to follow instructions that your teachers are telling you, but if you need to leave the building because there’s an emergency and you get separated, make sure you find an adult that you are familiar with.”

As children get a little bit older, Lipski added, it would be helpful for them to get CPR training and some basic first aid. 

“It just reinforces that, ‘Hey, you know what – helping people is a thing you can do,’” Lipski said.

For more information

Families can update their contact information in the online Parent Portal to effectively use SchoolMessenger, the district’s emergency communication tool.

If families have safety and security-related questions, students can reach out to their respective teachers first, while parents can contact Jones or Stephen Davis, media relations manager for MPS, Davis said. 

Jones can be reached at 414-345-6637. 

Davis can be reached at 414-475-8675 and davis2@milwaukee.k12.wi.us.

MPS also provides some opportunities for input from families through school-based councils, district surveys, board meetings and community listening sessions, Zombor said. 

The Wisconsin Department of Justice maintains a statewide portal for reporting safety concerns. People can also call the tipline at 800-697-8761.

Families and students can access key safety and security documents on the MPS website.

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Jonathan Aguilar is a visual journalist at Milwaukee Neighborhood News Service who is supported through a partnership between CatchLight Local and Report for America.

Milwaukee Public Schools rolls out new emergency protocol is a post from Wisconsin Watch, a non-profit investigative news site covering Wisconsin since 2009. Please consider making a contribution to support our journalism.

Reading Time: 3 minutes

Rochelle Nagorski thought her son was all set to go to Burdick, his neighborhood elementary school, this year. 

“I got an email stating that he was enrolled, but we weren’t getting anything stating who his teacher was,” she said.

Nagorski later learned Burdick, 4348 S. Griffin Ave., Milwaukee, was at capacity and that her son was placed on the school’s waitlist.  

“Why wouldn’t he get into his neighborhood school? It’s literally two and a half blocks from our house.”

She is not alone. Others also have reported similar challenges. 

Steve Davis, media relations manager at Milwaukee Public Schools, explained in an email to NNS that the school district is working to make sure not to exceed maximum class sizes at schools. 

“This means more schools are at capacity and cannot accept new students, even if it is a family’s neighborhood school,” Davis wrote.

Capacity and other issues related to the enrollment process have forced Nagorski and others to scramble to find alternatives.

Frustration with central services

Citlali Torres said she already had enough on her plate after her uncle, Vincent Torres, was killed in front of his home this summer. Then, someone stole her wallet with her ID. 

While she dealt with those challenges, she decided to enroll her 4-year-old daughter at Morgandale Elementary, 3635 S. 17th St. 

“Morgandale is a great school. I went there all the way from K4 to eighth grade,” Torres said.

She tried to enroll her daughter but was told she needed to wait for the year to start to see if the school had space. 

Once the school year started, Torres called MPS central services but was told a picture of her ID wasn’t enough to enroll her. She needed a physical ID card, which was stolen along with her wallet. 

Torres said the staff at Morgandale have been helpful and supportive, but she has struggled to get help from central services.

“All I want is for, you know, to get my daughter enrolled in school.” 

Nagorski also had trouble with central services. When she called, the employee told her she should have put other schools on the list in case her son didn’t get into Burdick.

Nagorski didn’t know it was possible for her neighborhood school to fill up, so she only put Burdick on the list. 

Staff at central services said she’d have to come to the office and enroll her child in another school. Nagorski, who is on medical leave from ankle surgery, asked if there was another option but was told there was none. 

The district has since reached out to her to schedule a home visit.  

Scrambling for alternatives

Since her son was waitlisted, Nagorski has considered whether to re-enroll him in Wisconsin Virtual Academy, where he went last semester. She said online learning didn’t work well for him – she noticed him become disengaged – but it’s better than nothing. 

“I’d rather get them on online learning so he’s at least got some kind of schooling going on and get some kind of structure,” she said.

Nagorski said she wished the district notified her sooner that her son was on the waitlist at Burdick. 

“If I would have been notified a week prior to school starting, even if he was on a waitlist,” she said. “Give me something to work with.” 

Torres was finally able to enroll her daughter in school after NNS connected her with Davis. 

She began classes on Sept. 10 at Morgandale. 

How to enroll your student

Davis said parents will get the fastest service by coming in person to the central services office at 5225 W. Vliet St. 

Parents can apply to enroll their students by checking out this online portal. 

For families who can’t come in person or navigate the online portal, Davis said they can call 414-475-8159 and ask a canvasser to visit. 

The district requires identification when enrolling your student. If you don’t have a government-issued ID card, call the number above. 

According to Davis, one way to help avoid parents’ school of choice reaching maximum capacity is by applying during the regular enrollment period. 

“We appreciate that full classes and schools may present challenges for families,” Davis wrote in an email to NNS. “We do hope they can understand that a classroom filled above its maximum capacity can present a challenging experience for all the students, their families and the teacher.”

Parents face challenges navigating the Milwaukee Public Schools enrollment process is a post from Wisconsin Watch, a non-profit investigative news site covering Wisconsin since 2009. Please consider making a contribution to support our journalism.

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When Kristen Payne learned her child’s classmate at the Golda Meir Lower Campus tested positive for lead poisoning earlier this year, she said Milwaukee Public Schools had underestimated the amount of lead dust in the school. 

“We have come to find out that Golda Meir had one of the highest levels of lead dust of any of the schools tested,” said Payne, founder of the advocacy group Lead Safe Schools MKE. 

After MPS replaced the windows at Golda Meir in the 1990s, she said, district officials thought they eliminated a major hazard. But after starting remediation work earlier this year, they realized the problem was worse than they thought, she said. 

Payne said the experience broke her trust with the district. She’s one of several advocates calling for MPS to be more transparent with its lead action plan. 

As the school year approaches, lead safety groups want the district to share more documentation, open up about the money being spent on the plan and keep an eye on subcontractors doing remediation. 

Advocates urge transparency

As of Aug. 29, the Milwaukee Health Department had cleared 39 MPS schools, meaning lead hazards have been removed and it is safe for children to return. 

The district has posted full health department clearance reports for six schools and interim clearance reports for three schools, including Golda Meir. 

An interim clearance report means all indoor lead hazards have been addressed, even if there are still lead hazards outside, said Caroline Reinwald, marketing, communications and public information officer for the Milwaukee Health Department. 

“Some schools receive interim clearance reports because completing all exterior work can take months or even years,” Reinwald wrote. “In these cases, the buildings are still considered safe to occupy.” 

As of Aug. 29, the district had sent letters to families at 28 schools saying the Health Department cleared their school for occupancy, yet few of the full clearance reports are available online. 

“Trust is not going to be rebuilt if they continue to withhold information,” Payne said. “There’s many of us who aren’t clear or sure that truly these schools are safe.”

Richard Diaz is the co-founder of Coalition On Lead Emergency, which works to prevent and respond to lead poisoning in Milwaukee. 

He said he wants to know how much money MPS is spending on abatement efforts and how long the cleanup keeps students safe from lead exposure. 

Lead hazards can reappear after abatement, so the district will need to monitor schools for future lead risks, according to the Milwaukee Health Department clearance reports. New lead hazards can also appear as the building deteriorates, the reports read. 

“Because these aren’t full-fledged abatements, these are, you know, kind of just Band-Aids on a solution that will need to be addressed in years to come,” Diaz said. 

Contractor concerns

JCP Construction, the company MPS hired to assist with lead remediation, started the work with about 150 painters, but about 30 painters have since left due to difficult work conditions and high temperatures, MPS Interim Chief Operating Officer Mike Turza said in the July 31 school board meeting. 

Turza said JCP Construction hired Illinois-based Independence Painting to fill the void, a decision that raised concerns among advocates and the International Union of Painters and Allied Trades. The district currently has 172 painters working across buildings.

Andy Buck, political affairs director with the painters’ union, said safety is a big concern. He said people want to know and ensure contractors doing lead remediation have the necessary qualifications.

“How’s that being documented?” Buck asked.

MPS media relations manager Stephen Davis said the district holds the contractor, JCP Construction, accountable for ensuring subcontractors are compliant with state regulations and licenses. 

When the public raised concerns about out-of-state contractors like Independence Painting, the district worked with JCP to ensure it had all the necessary qualifications, Davis said.

There are generally no restrictions on the use of contractors from outside the area or state, but the district mandates that any staff meet the qualifications of state and building code requirements, Davis said.

Payne said the situation is another example of why she struggles to trust the district. Like Buck, she wants to see the documented qualifications of the subcontractors. 

During the July 31 school board meeting, Turza said a district staff member was always monitoring each worksite and that certified lead stabilization staff or Wisconsin Department of Health Services workers were always present. 

“It’s not clear to me who is correct,” Payne said. “I would want to see actual data on that before coming to any conclusion.”

What’s next

The first day of class for most Milwaukee Public Schools was Sept. 2. As of Aug. 29, there were still 11 schools that had not been cleared by the Milwaukee Health Department. 

Remediation efforts are ongoing with clearance of all schools expected by the start of the school year, according to the district’s most recent lead action plan report.

You can check on the progress of lead remediation efforts on this website. 

Jonathan Aguilar is a visual journalist at Milwaukee Neighborhood News Service who is supported through a partnership between CatchLight Local and Report for America.  

Advocates want more transparency in Milwaukee Public Schools lead action plan is a post from Wisconsin Watch, a non-profit investigative news site covering Wisconsin since 2009. Please consider making a contribution to support our journalism.

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Jesús Daniel Ruiz Villamil wanted to be proactive, so before he started his junior year at Milwaukee’s South Division High School, he asked his counselors about courses beyond normal high school classes. 

They suggested dual enrollment, where Ruiz Villamil could get college credit for taking university-level courses like Latin American and Caribbean studies and advanced Spanish taught by his high school teachers.

Now a sophomore at the University of Wisconsin-Milwaukee, Ruiz Villamil credits the dual enrollment classes he took at South Division for the success he’s experienced so far in college. 

“I think those college classes … helped me to improve my writing and reading skills to be prepared for my English classes, psychology classes and political science classes,” he said.

Dual enrollment gives students the opportunity to earn college credit while still in high school. South Division is one of several Milwaukee Public Schools that offer dual enrollment in the school – MPS teachers teach college classes in the classroom.

MPS high school students at any school can also take advantage of dual enrollment on a college campus – where students can earn high school and college credit at the same time for taking college classes – through the district’s M-Cubed partnership with UWM and the Milwaukee Area Technical College. 

Participation in dual enrollment is growing in Wisconsin, but Milwaukee lags behind many other districts in the state, a Wisconsin Policy Forum report found. 

In Milwaukee Public Schools, 2.8% of high school students participated in dual enrollment, the study found using 2023-2024 state report card data. The report card data is based off enrollment data from the previous school year. 

In Oak Creek-Franklin Joint School District, the rate is 47%, while at Racine Unified, the dual enrollment participation rate is 40%.

Concerns with state funding

Vicki Bott, UWM outreach program manager, said she thinks dual enrollment could grow at MPS, but limits in state funding force schools to weigh the benefits of increasing access with other pressing district needs.

The district covers nearly the entire cost of programs like M-Cubed or in-classroom courses like those at South Division, MPS postsecondary engagement coordinator Hannah Ingram said. Wisconsin does not give school districts funding to help cover these dual enrollment costs. 

For each UWM course that a high school teacher teaches, MPS pays $330 per student at no cost to the student. For this coming school year, the district is paying a little over $3,200 per student to participate in the M-Cubed program, Ingram said.

“It’s too much of a burden on school districts and high schools, so that’s where we’ve got some inequity,” Bott said. “If it’s a matter of like, you know, repainting to prevent lead poisoning or providing tuition for dual enrollment, they’re going to choose the lead poisoning prevention.”

Other hurdles

Some schools don’t have dual enrollment courses inside the classroom because no teachers have the necessary qualifications to teach a college-level course, MPS career and technical education manager Eric Radomski said. Teachers also don’t get incentives to teach dual enrollment courses. 

South Division can offer several courses in the high school because several teachers already had the necessary qualifications, including master’s degrees, Principal José Trejo said. 

Trejo said not many South Division students participate in M-Cubed. He said students tend to just participate in the courses within the high school.

Most dual enrollment courses across Wisconsin are similar to South Division’s program, where high school teachers get credentialed to teach courses for college credit in the classroom, Wisconsin Policy Forum researcher and report author Don Cramer said. 

South Division is one of 10 MPS schools that offer classes through UWM in the high school, Ingram said. Radomski said 15 high schools have career and technical education classes, eight of which offer dual enrollment career and technical education courses. 

Despite the financial constraints, Radomski said, “We have seen a gradual trend in the right direction with more and more (career and technical education) teachers offering dual enrollment courses over the past several years.”  

The district adds about one to two career and technical education dual enrollment courses in the high school each year, he said. 

Different schools, different priorities

Another reason dual enrollment access varies, according to Ingram, is because some MPS schools choose to prioritize other programs over dual enrollment in the classroom, like Advanced Placement, International Baccalaureate, the Rising Phoenix program through the University of Wisconsin-Green Bay, or Early College Credit Program and Start College Now, Wisconsin’s two dual enrollment programs. 

At Pulaski High School, for example, three students dual-enrolled during the 2022-2023 school year, but 84% of students completed AP or IB courses. 

Not all students who take AP courses take the exam, and not everyone who takes the exam receives college credit. Students need to take and score high enough on an AP exam to earn college credit. 

AP exams are graded on a scale of one to five. Students typically need to score three or higher depending on the course and the requirements of the university to which the student is transferring. Students can check what AP scores their prospective college accepts using the College Board’s AP credit policy search.

Radomski said despite the benefits of advanced courses like AP and IB, a lot of MPS students see greater success in dual enrollment courses because they need to pass an entire class to receive college credit, not just a test. 

“We have over a 75% pass rate, for example, in Career Tech Ed, but the number is not nearly that high for students getting a three or four on their (AP) test in order to get that credit,” Radomski said. 

Ruiz Villamil said the rigor of AP courses helped him prepare for college classes, but he preferred dual enrollment. He said he failed two AP exams and didn’t earn credit despite taking the classes for a year. 

Helping students find their path

At South Division, principal Trejo has seen dual enrollment courses help students gain better clarity about what they want to do after graduation. With this clarity, Trejo said, students can avoid pursuing a college degree only to realize they don’t like it.

“It’s a really good experience in terms of understanding ‘maybe that’s not what I want to do’ and it’s OK,” Trejo said. “But at least you found that out early enough so that you’re not spending so much money in college.”

For example, students interested in becoming a teacher can learn how they like working in a classroom by taking college-level education classes and participating in an internship at an MPS school — an opportunity Trejo said students might not have if they didn’t start their education career until college. 

Ruiz Villamil said his dual enrollment courses helped expose him to new pathways of study. 

“That’s one of the reasons that I’m doing a Spanish minor, probably major,” Ruiz Villamil said. “Nowadays, I can look back to it and appreciate that I took those classes.”

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Jonathan Aguilar is a visual journalist at Milwaukee Neighborhood News Service who is supported through a partnership between CatchLight Local and Report for America.

Dual enrollment helps Milwaukee Public Schools students prepare for college success. Why are participation rates low? is a post from Wisconsin Watch, a non-profit investigative news site covering Wisconsin since 2009. Please consider making a contribution to support our journalism.