For example, most state  charter school laws generally require that charter schools be open to all  students within a specified boundary (commonly referred to as “open  enrollment” requirements). Charter Schools on Military Bases Enrolled Military- Connected Students to Varying Degrees and Were Started in Response to Family, Military, and Private Interests

While most schools located on military bases were traditional public  schools or DOD schools, eight were charter schools at the time of our  review. The military base charter schools differed among themselves in  their academic focuses and in the number of military-connected children  they served. Both of these schools—Sigsbee and  Flightline—are located behind the security gate on their respective  military bases. Table 1 provides information on the characteristics of the  eight charter schools. Family and Military Needs and Private Interests Were Among Key Reasons for Establishing Charter Schools

While all of the charter schools on military bases serve a large  percentage of military-connected students, they were started for various  reasons, including family perceptions about the quality of education  available for their children in local school districts and military officials’  need to attract and retain military families to bases. Moreover, in some  instances the impetus for establishing a charter school on a military base  originated with private housing developers on military bases and charter  management organizations. The housing developers worked with Imagine  Schools, the CMO, to develop a charter school that would make living on  base more attractive. Charter Schools on Military Bases Faced Challenges with Enrollment Preferences, Civilian Access to Schools, and Facilities

		Enrollment Preferences for Military-Connected Students Posed Hurdles for School Planners

While charter schools on military bases encountered some of the same  challenges as other charter schools around the nation—such as acquiring  facilities and startup funding—they also experienced challenges unique to  starting up and operating a charter school on a military base. However, Maryland law requires charter schools to be open to all  students. Created prior to recent  changes in Florida state law that now permit charter schools to give  enrollment preference to children of an active duty member of any branch  of the United States Armed Forces, the school utilized a provision in  state law that allows a charter school to give enrollment preference to  children of workplace employees. The  statute authorizing CSP grants requires charter schools, as a condition of  receiving funding, to admit students on the basis of a lottery if more  students apply than can be accommodated, and to provide a description  of how students in the community will be given an equal opportunity to  attend the charter school. The official  also stated concern about enrollment preferences that would significantly  limit civilian enrollment access to a school. Obtaining Facilities on Bases Can Be Challenging and Complex for Charter School Planners

Like charter schools generally, military base charter schools encountered  difficulties obtaining facilities for school use, and they may face additional  challenges because of their location on military bases (see table 4). According to a school official, there are no funds to complete the  remaining renovation work. The  official noted that more information sharing in this area would be useful. Recommendations for Executive Action

		Education

To ensure that Charter Schools Program grants are provided only to  schools that meet eligibility criteria, we recommend that the Secretary of  Education direct the Charter Schools Program office to revise the Charter  Schools Program guidance to    Clarify CSP grant requirements regarding charter school enrollment  preferences, including preferences for military-connected students,  such as whether schools can hold separate lotteries for military- connected and civilian students and the extent to which schools can  enroll military-connected students under work-site exemptions, and    Require applicants for CSP grants and subgrants to describe any  enrollment preferences in their applications. At a minimum, this guidance should address the following areas:    The appropriate role of military base command and other DOD offices  and agencies in supporting the creation and operation of charter  schools;    Reasonable base access and security arrangements for civilian  children, parents, and others involved in a military base charter  school; and    Military lease arrangements and other property-related issues for a  charter school on a base. DOD and Education

To serve as a resource for military base communities exploring  educational options, as stated in their 2008 Memorandum of  Understanding, we also recommend that the Secretaries of DOD and  Education facilitate the sharing of information among interested parties— such as base commanders and school planners and officials—on how  military base charter schools have addressed startup and operational  challenges. Education has asked the states to conduct reviews of these  instances and report back to the Department.
Why GAO Did This Study

Many families struggle to balance their job demands with ensuring that their children have access to a high-quality education, and for military families this struggle can be exacerbated by the highly mobile nature of their service. Family concerns about education affect readiness and retention of military personnel, according to the Department of Defense (DOD). The majority of children of military families in the United States attend public schools. A 2008 DOD study recommended offering military families a public charter school option in areas with poorly-performing local schools. In response to a directive in a House Appropriations Committee report, GAO examined: (1) the characteristics and origins of charter schools on military installations, and (2) the challenges charter schools on military installations have faced in starting up and continuing their operations.
To conduct this review, GAO interviewed officials in the eight charter schools on domestic military bases and one school being planned; visited two schools; interviewed Education and DOD officials; and reviewed relevant federal and state laws, federal regulations and guidance, and school, federal agency, and other documents.

What GAO Found

Eight charter schools were located on domestic military bases and one charter school was being developed on a base at the time of GAO's review. The military base charter schools differed in their academic focuses and served militaryconnected students to different degrees. For example, one school focused on science, technology, engineering, and mathematics while another used the arts to teach all subjects. Enrollment of military-connected students at these base charter schools ranged from 42 percent to 90 percent, and three schools used preferences to ensure a higher proportion of these students. For example, one charter school with a stated mission of educating military-connected children gave first preference to children of active-duty personnel, who represented the preponderance of enrolled students. The schools were established to address different interests, including family perceptions about the quality of education in local school districts and military officials' need to attract and retain military families to bases. In some instances the impetus for establishing a charter school on a military base originated with private entities. For example, a private developer hired to build housing on the base worked with a charter management organization to develop a charter school they thought would make living on the base more attractive to military families.
Charter school officials cited several challenges to starting up and operating on military bases, such as using enrollment preferences for military-connected students, providing civilian access to schools, and obtaining facilities. Most states require schools to be open to all students, and when organizers of one school sought to enroll solely military-connected students, state law prohibited this because of the state's open enrollment requirements. Some states have changed or interpreted their charter school laws to enable schools to give enrollment preference to military-connected students. Furthermore, two charter schools that have enrollment preferences for military-connected students have received Department of Education (Education) Charter Schools Program (CSP) grants, which require charter schools to provide all students an equal opportunity to attend the school and admit students by lottery if there are more applicants than spaces available. Although these military base charter schools have received these grants, Education has expressed concern that the use of such enrollment preferences would violate CSP program requirements. Charter schools have also encountered operational challenges. For example, access for civilians can be difficult. Nearly all the military base charter schools were located behind the base's security gate, requiring civilians to complete a background check and show a pass. Several school officials reported difficulties conducting school activities such as open houses and sporting events because each base had a limit on the number of security passes for civilians. Like other charter schools, military base charter school officials also reported obstacles to obtaining facilities, such as financing. However, they also encountered unique challenges, such as complex military facility and land leases. Several school and military base officials said that having guidance and more information sharing could help with startup and operational challenges charter schools on military bases face. However, there is currently little guidance or information sharing about military base charter schools.

What GAO Recommends

GAO recommends that Education clarify whether military base charter schools that use enrollment preferences are eligible for charter school grants and that DOD and Education take actions to help address startup and operational challenges for these schools. In their responses, DOD and Education agreed with GAOs recommendations.