This article originally appeared in the spring 2025 issue of TASA INSIGHT. TASA Executive Director Emeritus Johnny L. Veselka retired from TASA in 2018 after nearly 44 years of service to the association. In observance of TASA’s centennial celebration in 2025, Veselka wrote “Texas Association of School Administrators: A Century of Inspiring Leadership (1925-2025),” which you may view online or download to learn more about TASA’s history.
For more than 100 years — since its inception in 1925 as the Section of Superintendence of the Texas State Teachers Association (TSTA) and since 1939 as the Texas Association of School Administrators — TASA has been engaged in the development of state policy and legislation affecting Texas public schools.
Taxation and School Finance in the 1930s-40s
One of the earliest topics on Texas superintendents’ agenda was the state’s tax policy. Numerous speakers at their annual meetings during the first quarter century addressed this topic, focusing on creating “An Adequate System of Taxation for Public Education in Texas.”
At a 1935 meeting, N.S. Holland, a past president of the TSTA Section of Superintendence who was serving as the Section’s director of research, gave a presentation on “A Proposed Tax Plan for the Schools of Texas.” The next year, the Section proposed a two-year study on taxation. Holland spent a year’s leave of absence at Columbia University where he earned his doctorate studying under noted school finance experts John K. Norton and Paul R. Mort. As a result of his writings, superintendents advocated for a sales tax to support public education and sought the establishment of a State Tax Commission.
So much interest was generated on the topic of school finance that superintendents recommended that the University Interscholastic League adopt a debate subject on taxation in 1939. The debate topic was: Resolved, “That Texas should adopt a uniform retail sales tax.” In response, TASA produced a 77-page compendium on the subject.
Development of the Teacher Retirement System
By the mid-1930s, establishment of a retirement system became a priority, leading to creation of the Teacher Retirement System in 1937.
TASA members joined with TSTA in advocating for the system over multiple legislative sessions. The 1935 Legislature adopted a joint resolution placing a constitutional amendment on the ballot in November 1936, followed by the enactment of “enabling legislation” creating the system the following year.
Emergence as a Significant Force in Shaping Policy
In a communication to TASA members in November 1944 (prior to the 49th Texas Legislature convening in January 1945), President Irby Carruth stated that it was time for TASA to present “a strong, vigorous, and united front that will become a power in shaping the policies and future program of public education in our state.”
“I believe that our mission as an organization should be largely one of promoting public relations and securing favorable legislation for the schools.” —Irby Carruth, 1944-45 TASA President
Two years later, TASA President R.L. Williams established the association’s Education Policies Commission — a precursor to TASA’s current Legislative Committee — demonstrating TASA’s commitment to a “diligent consideration of proposed legislation, needed legislation, and other needed action affecting education in Texas.”
TASA’s Role in Gilmer-Aikin
The 10-member TASA Education Policies Commission, chaired by J.W. Edgar, TASA’s 1942-43 president and Texas’ first commissioner of education, ultimately influenced the development and passage of the Gilmer-Aikin legislation in the 1949 legislative session.
Five TASA members served alongside legislative and business and community leaders on the Gilmer-Aikin Committee created by the 50th Legislature in 1947 to frame the legislation, which represents the earliest legislative effort to establish a comprehensive public school finance system.
The Gilmer-Aikin Legislation included three separate bills: Senate Bill (SB) 115 provided for the reorganization of the state administration of education into one central agency, an elected State Board of Education and a professional commissioner of education appointed by the board; SB 116 contained the formulas for the Minimum Foundation Program; and SB 117 included a plan of automatic financing through the Minimum Foundation Fund.
TASA President Henry L. Foster (left) was invited to the signing into law of SB 116 (one of the Gilmer-Aikin laws) in 1949 by Gov. Beauford Jester (seated).
TASA’s First Independent Legislative Program
In May 1975, the TASA Executive Committee authorized the TASA Legislative Committee to develop a legislative program in preparation for the 65th legislative session in 1977. This action represented TASA’s first effort to develop its own legislative program. Before this time, TASA’s legislative initiatives were presented per its affiliate relationship with TSTA.
As the committee developed its legislative program, the focus was on priorities that would support “a quality education program that is results-oriented, adequately funded to provide varied opportunities for each individual student, based on a system that provides for renewal and accountability through the accreditation process.”
School Finance in the 1970s
In September 1975, TASA officers, members of the Legislative Committee, and staff met in Dallas to begin what would become two years of efforts to advocate for additional school funding.
TASA conducted legislative workshops, held committee meetings and regional study group discussions, conducted superintendent surveys, met with legislators, testified at the Capitol, created research and simulation models, and participated in a host of other advocacy efforts.
TASA Legislative Chair Nolan Estes (center) confers with 1977-78 TASA President John Townley during testimony on SB 1 in 1977.
The signing of SB 1 by Gov. Dolph Briscoe in July 1977 was the culmination of those initial efforts by TASA in collaboration with other administrator organizations. The $945.4 million school finance bill was passed by the 65th Legislature in Special Session on July 15 with a House vote of 119-24.
House Bill 72 in the 1980s
By 1983, schools were facing a teacher shortage and other challenges related to funding, and TASA developed a “comprehensive salary and school finance proposal that would increase state funding of the Foundation School Program by approximately $2.3 billion.” The proposal was introduced to the Legislature via SB 699 (Sen. Grant Jones) and HB 1258 (Rep. Bill Haley).
Although Gov. Mark White declared teacher salaries and equalization aid to help low wealth/low tax base districts as emergency matters for the session, the 68th Legislature adjourned without addressing school funding in a significant way. But work continued after sine die, when White, Lt. Gov. Bill Hobby and Speaker of the House Gib Lewis announced appointments to the Select Committee on Public Education, which met over a period of months to gather information from stakeholders, including TASA members.
The following year, the 21-member committee chaired by H. Ross Perot presented its 14 recommendations, and the governor called a special session to convene on June 4, 1984, “to enact comprehensive reform of primary and secondary public education, including revision of school finance structure, and increased compensation and career inducements for public school teachers.”
TASA had kept school leaders informed throughout the committee’s work and continued to do so during the special session. Every issue of TASA’s “Texas School Administrator” included details and analysis of proposed legislation and made the membership aware of opportunities to provide input.
In July 1984, the Legislature passed a $4.8 billion tax bill (which would raise $2.8 billion for public education) as well as HB 72, representing major education reform legislation that included “no-pass, no-play” provisions, a teacher career ladder, and other major provisions.
In a June 1984 message from TASA President Mike Taylor, he wrote: “TASA has achieved a unique status as an influential advocate for quality education, representing the school administrator’s viewpoint. This status has resulted directly from the work of individual TASA members, like yourself. I hope each of you will be actively involved during this special session, presenting your position on critical issues, reacting to various proposals, communicating constantly with your legislators, and informing your community about the impact of pending recommendations on your school district.”
As always, TASA provided valuable information to members on what was the most significant legislative action related to public education since the Gilmer-Aikin legislation in 1949.
Following four years of implementing the massive set of new regulations in HB 72 and years of litigation over school finance, Commissioner of Education W.N. Kirby invited TASA President John Horn to keynote the 1988 Midwinter Conference.
Horn offered his perspective on the political climate and the most prevalent challenges facing public education in the 1990s, referencing the demands for more “say” from all quarters (“voice” and “choice”). Further, he acknowledged the advance of more comprehensive testing programs and their underlying accountability partner, the PEIMS information and data collection system. Horn concluded, in response to the most recent legislative and policy changes, that promoting and providing for greater parental involvement could hold the most potential for improving student learning.
TASA’s Political Action Committee
In November 1990, the TASA Executive Committee established TASA edPAC as a general political action committee noting that the “support of political candidates who are sympathetic to the problems and issues facing Texas public schools will enable edPAC to become an effective tool for counteracting both the continuing decline in public education’s share of state revenues and erosion of management prerogatives at the state and local levels.”
In 1994, for the first time, TASA edPAC distributed more than $13,000 in campaign contributions and endorsed 34 candidates for legislative and State Board of Education (SBOE) positions. Out of the 34 endorsed, 31 won election or re-election.
In response to the endorsement he received, Lt. Gov. Bob Bullock wrote a letter to the TASA edPAC treasurer saying: “I take particular pride that the endorsement is the first such made by the group. It goes without saying that the leadership of TASA has been a beneficial force in shaping education policy in Texas.”
Following several years of inactivity, in 2006, the TASA Executive Committee voted to dissolve edPAC.
Education Reform in the 1990s
In 1995, another round of major reforms was enacted with a complete overhaul of the Texas Education Code in the form of another SB 1 — this one was a 1,088-page bill by Sen. Bill Ratliff.
TASA provided input on the bill, securing a provision that gave superintendents sole authority to make recommendations regarding the selection of personnel. TASA also kept members abreast of details of the bill as it progressed and led efforts by TASA members to stay engaged.
During the 1995 session, TASA staff worked daily with legislators and their staffs, and superintendents provided testimony several times per week.
As passed by the 74th Legislature, SB 1: eliminated a number of state-mandated rules and returned more authority to local school districts; gave the governor the power to appoint the commissioner of education; gave the SBOE authority to grant open-enrollment charter schools; and established the separate State Board for Educator Certification.
Advocacy in the 21st Century
Since 2000, advocating for Texas public education has become even more challenging, with an overall decline in state funding coupled with increased accountability standards, and a growing focus on implementing voucher/education savings account programs.
TASA staff and members have been at the Capitol, session after session, advocating for the priorities outlined by TASA members and defending against numerous efforts that would have harmed Texas public schools and students.
This entry in TASA’s 2002 annual report sums up the day-to-day work that TASA has done and continues to do on the legislative front:
“During each legislative session, the Governmental Relations Department monitors all bills filed that relate to education matters. Legislation must be tracked with a watchful eye, as not all bills dealing with education are assigned to House or Senate Education committees. It is the staff’s responsibility to monitor all bills from filing to final passage, keeping TASA members informed as to the status of each bill. “When a bill of particular significance is introduced in committee, testimony is prepared and presented on behalf of the association. Staff prepare amendments to modify legislation and recruit sponsors for those amendments.
“When in legislative session, TASA provides updates on legislative developments on the association’s website, TASAnet. The Governmental Relations Department publishes Capitol Watch, TASA’s online legislative news bulletin, as well as a listing of bills being tracked by TASA, along with summaries prepared by TASA staff.”
Prior to each legislative session, the TASA Legislative Committee works with the TASA staff and Executive Committee to develop a slate of legislative priorities and positions (see https://bit.ly/tasa-priorities) that guide TASA’s efforts at the Capitol. While the issues change from session to session, TASA’s mission to shape policy that benefits Texas public school students remains unchanged since its inception.
In 2011, the Texas Legislature passed SB 1557, a TASA-initiated bill that created the Texas High Performance Schools Consortium (THPSC) and charged its 22 member districts with improving student learning by developing innovative high-priority learning standards and assessment and accountability systems. Prior to the next four sessions, the THPSC offered recommendations to the commissioner and the Legislature. Although the Legislature did not enact changes based on those recommendations, the THPSC’s work, which was based on the principles outlined in Creating a New Vision for Public Education in Texas, also known as the “TASA visioning document,” was invaluable in communicating the new vision to school leaders across Texas. The document expresses school leaders’ desire to be free of government over-regulation to be able to innovate schools to prepare future-ready students. It continues to guide TASA and school districts across the state. TASA will embark on a “refresh” of the visioning document in 2025.
