Tensions between the West Contra Costa Unified School District and the teachers union appeared high at last week’s school board meeting, as more than 300 teachers, dressed in red United Teachers of Richmond shirts, protested for an hour, demanding the district negotiate a fair contract.
Chants such as “union power” and “They say go away, we say no way,” could be heard in front of Dejean Middle School, where school board meetings are held. When the teachers went inside, they chanted “fair contract,” for nearly 30 minutes, without pause. Some even used chairs to add a beat.
The Sept. 25 protest came ahead of a board discussion about how the district spent its dollars last school year. Every September the district releases its unaudited actuals, which explain exactly where the money went (a state requirement). The unaudited actuals usually vary from the original budget, approved in June before the school year starts.
The unaudited actuals revealed that despite receiving an additional $9.1 million in funding (from state and local sources), WCCUSD’s expenditures exceeded its revenue by $19.2 million. The district transferred $11.5 million from its reserves to offset its deficit, entering the 2025-26 fiscal year with a $7.7 million deficit.
“The reason it’s called an unaudited acts report is because it has not yet been formally audited by our external auditors,” said Kim Moses, associate superintendent, chief business officer. “(This report) provides a comprehensive overview of the district’s financial performance for the last fiscal year.”
The reason for the overall deficit is unclear. Some stakeholders, such as Don Gosney, president of the Citizen’s Bond Oversight Committee, argue that it’s partly because the cost of operating schools (maintenance, security, etc.) continue to increase while state and federal funding sources don’t grow at the same rate. Richmond Mayor Eduardo Martinez, who joined a union protest held before the meeting, said it’s incumbent on the state to provide more funding for school districts like WCCUSD.
School district officials have previously stated that enrollment and attendance rates (which account for nearly two-thirds of WCCUSD’s funding) continue to decline, resulting in a reduction of state funding, which is based on those factors. In addition, expiration of COVID relief funds, increased special education costs, and underfunded mandates from state and federal governments contribute to the district’s cash shortage. Districts statewide are dealing with the same issues, including in San Francisco and Oakland.
But the teachers union claims WCCUSD’s issues are exacerbated by a mis-prioritization of funds. Union representatives told Richmondside that the district is failing to pay educators competitively, resulting in attrition, and hiring contractors, which ends up costing more than retaining a teacher.
WCCUSD underspent by $1M on salaries in 2024-25 — something teachers are displeased with
Last year, WCCUSD had $507 million in its general fund. About $337 million was allocated through the state’s Local Control Funding Formula, which is based on attendance and enrollment. Because the district had about 300 fewer students enrolled in 2024-25 than 2023-24, and a lower average daily attendance rate of about 200 students, the district received $7.5 million less than it did in the 2023-24 school year.
“So one year later, we received $7.5 million less, even though we did receive a 1.07% (cost of living increase adjustment) from the state,” said Jeff Carter, executive director of business services.
However, the amount the district forecast that it would receive in the 2024-25 school year was about on par with what it got (it was about $10,000 less than anticipated). The district also received $1 million less in federal revenue than it budgeted for. However, other state revenue and local revenues exceeded budget expectations by roughly $10 million, bringing the amount of additional revenue up to $9.1 million.
In terms of expenditures, the district spent $4 million less than it expected. It came under budget on nearly every category, including educator salaries. It spent about $1.1 million less on salaries for classified and certificated staff and $1.7 million less on school supplies and books.
Moses said the district spent less on school supplies largely because supplies that were not used, such as laptops, were returned and curriculum purchases were deferred. Spending on salaies was lower because some positions were never filled.
It’s worth noting that the cost of employee benefits was higher than anticipated by roughly $497,000.
However, the teachers union argues the district isn’t spending enough. Of its overall budget, salaries and benefits comprised 74.9% of total expenditures. The union, however, said the gold standard for California school districts is San Diego Unified, which spends more than 80% on salaries and benefits. In fact, In most years, roughly 80 percent of school spending on average has gone toward staff salaries and benefits, according to a recent report published by the Public Policy Institute of California.
One special ed teacher can’t afford her own place
But union representatives said it’s not really about the numbers or percentages. The reality is, regardless of what percentage of its budget WCCUSD spends on teachers, the pay they take home is not competitive compared to other Contra Costa County districts. It makes it difficult for teachers to make ends meet and forces them to look elsewhere for higher-paying jobs.
This is particularly true for special education teachers, of which the district has faced a critical shortage. Because it is legally obligated to fill the spaces of special education teachers and aides, the district has been hiring contractors — some of whom live outside of the country — to fill that gap in person or virtually.
Colleen Ballantine, who has worked in special education at WCCUSD for 19 years, said despite her years of experience, she cannot afford to live on her own. Her daughter, however, was able to move out after she quit her job as a paraprofessional at WCCUSD. Ballantine said her daughter, who worked five years at the district, made about $18 to $19 an hour at WCCUSD and now makes $28 per hour at one behavioral health clinic and $38 per hour at another. (It’s worth noting that on Jan. 1, 2026, Richmond’s minimum wage will increase to $19.18 an hour, according to the city manager.)
“That means your Teamsters and paraprofessional aides are paid like crap,” Ballantine told the school board. “Because of this, you cannot fill the positions that are mandated in (special education). My kids are not receiving proper services, and I’m watching it happen on a daily basis. There’s a revolving door of individuals that they bond relationships with, (that later leave).”
Ballantine, who also sits on the union’s executive board, said in the past six years, the district has seen a 34.4% increase in revenues, while teacher salaries have increased by 16.5%.
The speech language pathologists told the school board that the district has seemingly normalized severe understaffing of speech therapists.
“The district is choosing to make virtual tele-therapy contractors a long term fixture in our district, because they will do seemingly anything before they improve our contract to recruit and retain district-employed speech therapists,” said Andrea Livinghouse, who is a speech language pathologist for high schoolers in the district.
Right now, the teachers union and the district are at a contract negotiation impasse, following months of stalled salary negotiations. The roughly 1,500 teachers in the union have been working without a contract since June 30. The teachers union wants a 10% raise over the next two years, and the district has repeatedly countered with a 0% salary increase.
Since declaring an impasse, the parties have met once with a state mediator. A second mediation is scheduled for Sept. 30.
Francisco Ortiz, president of the teachers union, said if the district fails to negotiate in good faith, the teachers are ready to strike. He said it’s about more than pay – it’s about the district failing to provide critical services to students.
He said for example, every other TK and kindergarten student at Washington and Grant elementary schools has gone without speech services this school year.
“Our youngest learners in this district, children with special education needs, have received no services at all,” Ortiz said with four-year-old son, Ray, in hand. “This is not an accident. This is the result of deliberate choices by (the district’s) business services and the (special education) department. Choices to understaff, choices to spend on outside contractors instead of investing in permanent district-hired staff, choices that tell families like mine that our children don’t matter.”
Ortiz said “the district can afford to do better,” noting that last year, the district spent 22% on its budget on outsourcing.
Richelle Milford, co-bargaining chair of the United Teachers of Richmond, said contractors can cost up to three times as much as hiring district-employed special education teachers.
The district did not respond to Richmondside’s requests for comment, but Superintendent Cheryl Cotton provided a statement that said the district is committed to good faith bargaining.
“We continue to meet with union representatives to address challenges and issues that arise,” Cotton said via email. “We value every member of our West Contra Costa family. As we navigate these challenging times, it is important to remember that we are one West Contra Costa.”
Correct the spelling of the Special Ed teacher’s name. It’s Colleen Ballantine, not Colleen Valentine.
Thank you, we have fixed this.