The Vermont Statutes Online

Title 16: Education

Chapter 010: Cooperative Educational Service Areas

• § 601. Policy

  It is the policy of the State to create cooperative educational service areas to provide shared programs and services on a regional and statewide level. It is the intent of the General Assembly that cooperative educational service areas are utilized by member supervisory unions to maximize the impact of available dollars through collaborative funding; reduce duplication of programs, personnel, and services; ensure every middle and high school student has a genuine opportunity to participate fully in and to benefit from career technical education; and contribute to the equalization of educational opportunities for all pupils. (Added 2023, No. 168 (Adj. Sess.), § 2, eff. July 1, 2024; amended 2025, No. 170 (Adj. Sess.), § 2, eff. July 1, 2026.)

• § 602. Definitions

  As used in this chapter:

  (1) “Educator” means any:

  (A) individual licensed under chapter 51 of this title, the majority of whose employed time in a public school district, supervisory union, or cooperative educational service area is assigned to furnish to students direct instructional or other educational services, as defined by rule of the Standards Board, or who is otherwise subject to licensing as determined by the Standards Board; or

  (B) individual licensed under chapter 51 of this title, the majority of whose employed time in a public school, school district, or supervisory union is assigned to developing and managing school curriculum, evaluating and disciplining personnel, or supervising and managing a public school system or public school program.

  (2) “Supervisory union” means an administrative, planning, and educational service unit created by the State Board under section 261 of this title that consists of two or more school districts. As used in this chapter, this term also means a supervisory district and a regional career technical center school district formed pursuant to the provisions of chapter 37, subchapter 5A of this title.

  (3) “Cooperative educational service area” or “CESA” means an association of supervisory unions created pursuant to this chapter to deliver shared programs and services to complement the educational programs of member supervisory unions in a cost-effective manner. A CESA shall be a body politic and corporate with the powers and duties afforded it under this chapter. (Added 2023, No. 168 (Adj. Sess.), § 2, eff. July 1, 2024; amended 2025, No. 170 (Adj. Sess.), § 2, eff. July 1, 2026.)

• § 603. Creation of cooperative educational service areas; organization; Secretary approval

  (a) Establishment of cooperative educational service areas. Supervisory unions are arranged into the following cooperative educational service areas:

  (1) The Champlain Valley North CESA is formed of the member supervisory unions of:

  (A) Franklin Northeast Supervisory Union, which is composed of the member school districts of the Enosburgh-Richford Unified Union School District and the Northern Mountain Valley Unified Union School District;

  (B) Franklin West Supervisory Union, which is composed of the member school districts of the Fairfax School District, the Fletcher School District, and the Georgia School District;

  (C) Grand Isle Supervisory Union, which is composed of the member school districts of the Alburgh School District, the Champlain Islands Unified Union School District, and the South Hero School District;

  (D) Maple Run Unified Union Supervisory District;

  (E) Milton Supervisory District; and

  (F) Missisquoi Valley Supervisory District.

  (2) The Chittenden Central CESA is formed of the member supervisory unions of:

  (A) Burlington Supervisory District;

  (B) Colchester Supervisory District;

  (C) Essex Westford Educational Community Unified Union Supervisory District;

  (D) South Burlington Supervisory District; and

  (E) Winooski Supervisory District.

  (3) The Champlain Valley South CESA is formed of the member supervisory unions of:

  (A) Addison Central Supervisory District;

  (B) Addison Northwest Supervisory District;

  (C) Champlain Valley Supervisory District;

  (D) Lincoln Supervisory District;

  (E) Mount Abraham Unified Supervisory District;

  (F) Mount Mansfield Unified Union Supervisory District; and

  (G) Patricia A. Hannaford Regional Technical School District.

  (4) The Southwest CESA is formed of the member supervisory unions of:

  (A) Bennington Rutland Supervisory Union, which is composed of the member school districts of the Mettawee School District, the Taconic and Green Regional School District, and the Winhall School District;

  (B) Greater Rutland County Supervisory Union, which is composed of the member school districts of the Ira School District, the Quarry Valley Unified Union School District, the Rutland Town School District, and the Wells Spring Unified Union School District;

  (C) Mill River Unified Union Supervisory District;

  (D) Rutland City Supervisory District;

  (E) Rutland Northeast Supervisory Union, which is composed of the member school districts of the Barstow Unified Union School District and the Otter Valley Unified Union School District;

  (F) Slate Valley Unified Union Supervisory District;

  (G) Southwest Regional Technical Center; and

  (H) Southwest Vermont Supervisory Union, which is composed of the member school districts of the Arlington School District, the Mount Anthony Union High School District #14, the North Bennington Graded School District, the Sandgate School District, and the Southwest Vermont Union Elementary School District.

  (5) The Vermont Learning Collaborative is formed of the member supervisory unions of:

  (A) Mountain Views Supervisory Union, which is composed of the member school districts of the Pittsfield School District and the Mountain Views School District;

  (B) Springfield Supervisory District;

  (C) Two Rivers Supervisory Union, which is composed of the member school districts of the Green Mountain Unified School District and the Ludlow-Mount Holly Unified Union School District;

  (D) Windham Central Supervisory Union, which is composed of the member school districts of the Marlboro School District, the River Valleys Unified School District, the Stratton School District, the West River Modified Union Education District, and the Windham School District;

  (E) Windham Northeast Supervisory Union, which is composed of the member school districts of the Bellows Falls Union High School District, the Rockingham School District, the Athens Grafton School District, and the Westminster School District;

  (F) Windham Southeast Supervisory Union, which is composed of the member school districts of the Vernon Town School District and the Windham Southeast School District;

  (G) Windham Southwest Supervisory Union, which is composed of the member school districts of the Halifax School District, the Readsboro School District, the Searsburg School District, the Somerset School District, the Stamford School District, and the Twin Valley Unified School District; and

  (H) Windsor Southeast Supervisory Union, which is composed of the member school districts of the Hartland School District, the Mount Ascutney School District, and the Weathersfield School District.

  (6) The Northeast CESA is formed of the member supervisory unions of:

  (A) Caledonia Central Supervisory Union, which is composed of the member school districts of the Cabot School District, the Caledonia Cooperative School District, the Danville School District, the Peacham School District, and the Twinfield Union School District;

  (B) Essex North Supervisory Union, which is composed of the member school districts of the Canaan School District, the Essex North Supervisory Union, and the NEK Choice School District;

  (C) Hartford Supervisory District;

  (D) Kingdom East Supervisory District;

  (E) North Country Supervisory Union, which is composed of the member school districts of the Brighton School District, the Charleston School District, the Coventry School District, the Derby School District, the Holland School District, the Jay School District, the Lowell School District, the Morgan School District, the Newport City School District, the Newport Town School District, the North Country Union High School District, the North Country Union Junior High School Board, the Troy School District, and the Westfield School District;

  (F) Orange East Supervisory Union, which is composed of the member school districts of the Blue Mountain Union School District, the Oxbow Unified Union School District, the Thetford Town School District, and the Waits River Valley Union School District #36;

  (G) Orleans Central Supervisory Union, which is formed of the member school districts of the Lake Region Union Elementary-Middle School District and the Lake Region Union High School District;

  (H) Rivendell Interstate Supervisory District;

  (I) SAU 70; and

  (J) St. Johnsbury Supervisory District.

  (7) The Winooski Valley CESA is formed of the member supervisory unions of:

  (A) Barre Unified Union Supervisory District;

  (B) Central Vermont Career Center;

  (C) Central Vermont Supervisory Union, which is composed of the member school districts of the Echo Valley Community School District and the Paine Mountain School District;

  (D) Harwood Unified Union Supervisory District;

  (E) Lamoille North Supervisory Union, which is composed of the member school districts of the Cambridge School District and the Lamoille North Modified Unified Union School District;

  (F) Lamoille South Supervisory Union, which is composed of the member School Districts of the Elmore-Morristown Unified Union School District and the Stowe School District;

  (G) Montpelier Roxbury Supervisory District;

  (H) Orange Southwest Unified Union Supervisory District;

  (I) Orleans Southwest Supervisory Union, which is composed of the member school districts of the Craftsbury School District, the Hazen Union School District, the Mountain View Union Elementary School District, the Stannard Town School District, and the Wolcott School District;

  (J) Washington Central Unified Union Supervisory District; and

  (K) White River Valley Supervisory Union, which is composed of the member school districts of the First Branch Unified School District, the Granville-Hancock Unified District, the Rochester-Stockbridge Unified District, the Sharon School District, the Strafford School District, and the White River Unified District.

  (b) Bylaws. Each CESA shall establish bylaws to serve as the operating agreement of the CESA. At a minimum, the bylaws shall state:

  (1) the names of the participating supervisory unions;

  (2) the mission, purpose, and focus of the CESA;

  (3) the programs or services to be offered by the CESA;

  (4) the financial terms and conditions of membership of the CESA, including any applicable membership fee, which shall be allocated according to the aggregate average daily membership of each member supervisory union;

  (5) the service fees for member supervisory unions and the service fees for nonmember supervisory unions, as applicable, which shall be based on the amount of services actually provided to each supervisory union, as applicable;

  (6) the detailed procedure for the preparation and adoption of an annual budget with carryforward provisions;

  (7) [Repealed.]

  (8) the procedure for amending the bylaws;

  (9) the powers and duties of the board of directors of the CESA to operate and manage the association, including:

  (A) board meeting attendance requirements;

  (B) consequences for failure to attend a board meeting;

  (C) a conflict-of-interest policy; and

  (D) a policy regarding board member salaries or stipends; and

  (10) any other matter not incompatible with law that the member supervisory unions consider necessary.

  (c) Board of directors. A CESA shall be managed by a board of directors, which shall be composed of one person appointed annually by each member supervisory union board. Appointed persons shall be members of a member supervisory union board or the superintendent or designee of the member supervisory union. Each member of the CESA board of directors shall be entitled to a vote. No member of the board of directors of a CESA shall serve as a member of a board of directors or as an officer or employee of any related for-profit or nonprofit organization. The board of directors shall elect a chair from its members and provide for such other officers as it may determine are necessary. The board of directors may also establish subcommittees and create board policies and procedures as it may determine are necessary. The board of directors shall meet not fewer than four times annually. Each member of the board of directors shall provide updates on the activities of the CESA on a quarterly basis to the member’s appointing supervisory union board at an open board meeting.

  (d) [Repealed.] (Added 2023, No. 168 (Adj. Sess.), § 2, eff. July 1, 2024; amended 2025, No. 170 (Adj. Sess.), § 2, eff. July 1, 2026.)

• § 604. Powers of cooperative educational service areas

  [Subsection (a) effective until July 1, 2027, see also subsection (a) effective July 1 2027, set out below.]

  (a) In addition to any other powers granted by law, a CESA shall have the power to provide educational programs, services, facilities, and professional and other staff that, in its discretion, best serve the needs of its members, including professional development, curriculum coordination and development, and transportation. A CESA shall follow all applicable State and federal laws in its provision of services, including Section 504 of the Rehabilitation Act of 1973, 29 U.S.C. § 794, and the Individuals with Disabilities Education Act, 20 U.S.C. §§ 1400–1482. At a minimum, a CESA shall offer services in the following areas to its members, when requested and when approved by the CESA board:

  (1) special education, including implementation and maintenance of tiered systems of support and the provision of low-incidence, high-cost services;

  (2) business, information technology, and administrative services; and

  (3) union school district creation consultation and facilitation.

  [Subsection (a) effective July 1, 2027, see also subsection (a) effective until July 1 2027, set out above.]

  (a) In addition to any other powers granted by law, a CESA shall have the power to provide educational programs, services, facilities, and professional and other staff that, in its discretion, best serve the needs of its members. A CESA shall follow all applicable State and federal laws in its provision of services, including Section 504 of the Rehabilitation Act of 1973, 29 U.S.C. § 794, and the Individuals with Disabilities Education Act, 20 U.S.C. §§ 1400–1482. At a minimum, a CESA shall offer services in the following areas to its members, when requested and when approved by the CESA board:

  (1) special education, including implementation and maintenance of tiered systems of support and the provision of low-incidence, high-cost services;

  (2) business, information technology, and administrative services;

  (3) union school district creation consultation and facilitation;

  (4) professional development;

  (5) curriculum coordination and development;

  (6) transportation; and

  (7) facilities master planning.

  (b) A CESA shall employ an executive director who shall serve under the general direction of the board and who shall be responsible for the care and supervision of the CESA. The board shall annually evaluate the executive director’s performance and effectiveness in implementing the programs, policies, and goals of the CESA. The executive director shall not serve as a board member, officer, or employee of any related for-profit or nonprofit organization.

  (c) A CESA shall be a body politic and corporate and shall have standing to sue and be sued to the same extent as a school district. A CESA may enter into contracts for the purchase of supplies, materials, and services and for the purchase or leasing of land, buildings, and equipment as considered necessary by the board of directors. Section 559 of this title shall apply to the procurement of services or items with costs that exceed $40,000.00, as well as high-cost construction contracts, as defined by subsection 559(b) of this title.

  (d) The board of directors of a CESA may apply for State, federal, or private grants, for which a CESA may be otherwise eligible, to obtain funds necessary to carry out the purpose for which the CESA is established. Nothing in this chapter is intended to create an entitlement to federal funds distributed by the Agency of Education to local education agencies. (Added 2023, No. 168 (Adj. Sess.), § 2, eff. July 1, 2024; amended 2025, No. 170 (Adj. Sess.), § 2, eff. July 1, 2026; 2025, No. 170 (Adj. Sess.), § 2a, eff. July 1, 2027.)

• § 605. Financing, budgeting, and accounting

  (a) Education cooperative fund. A CESA shall establish and manage a fund to be known as an education cooperative fund. All monies contributed by the member school districts and all grants or gifts from the federal government, State government, charitable foundations, private corporations, or any other source shall be deposited into the fund.

  (b) Treasurer.

  (1) A CESA shall appoint a treasurer who may be a treasurer of a member school district and who shall be sworn in before entering the duties of the office.

  (2) The treasurer may, subject to the direction of the board of directors, receive and disburse all money belonging to the board without further appropriation.

  (3) The treasurer shall keep financial records of cash receipts and disbursements and shall make those records available to the board of directors upon request.

  (4) The board of directors shall ensure that its blanket bond covers a newly appointed treasurer before the treasurer enters upon the duties of the office. In lieu of a blanket bond, a CESA may choose to provide suitable crime insurance coverage. The board of directors may pay reasonable compensation to the treasurer for services rendered and shall evaluate the treasurer’s performance annually.

  (c) Financial accounting system. A CESA shall use the uniform chart of accounts and financial reporting requirements used by supervisory unions as its financial accounting system.

  (d) Audit. Annually, a CESA shall cause an independent audit to be made of its financial statements consistent with generally accepted governmental auditing standards and shall discuss and vote to accept the audit report at an open meeting of the board. The board shall transmit a copy of each audit to the boards of its member supervisory unions.

  (e) Annual statement. Annually, a CESA shall prepare financial statements, including:

  (1) a statement of net assets; and

  (2) a statement of revenues, expenditures, and changes in net assets.

  (f) Budget. The board of a CESA shall adopt a budget prior to the beginning of the fiscal year for which the budget is adopted.

  (g) Loans. A CESA may, upon approval of its members, negotiate or contract with any person, corporation, association, or company for a loan not to exceed the difference between the anticipated revenues for the current fiscal year for the budget of the CESA and the amount credited to date to said budget in order to pay current obligations. Such loan shall be liquidated within six months thereafter from monies subsequently credited to said budget. The total principal, interest, and fees to be paid on such loan shall not exceed the total amount of the authorized budget for the same length of time. (Added 2023, No. 168 (Adj. Sess.), § 2, eff. July 1, 2024; amended 2025, No. 170 (Adj. Sess.), § 2, eff. July 1, 2026.)

• § 606. Annual report; public information

  (a) The board of a CESA shall prepare an annual report concerning the affairs of the CESA and have it printed and distributed to the boards of the member supervisory unions. The annual report shall include, at a minimum:

  (1) information on the programs and services offered by the CESA, including information on the cost-effectiveness of such programs and services and progress made towards achieving the objectives and purposes set forth in the articles of agreement; and

  (2) audited financial statements and the independent auditor’s report.

  (b) A CESA shall maintain an internet website that makes the following information available to the public at no cost:

  (1) a list of the members of the board of directors of the CESA;

  (2) copies of approved minutes of open meetings held by the board of the CESA;

  (3) a copy of the articles of agreement and any subsequent amendments; and

  (4) a copy of the annual report required under subsection (a) of this section. (Added 2023, No. 168 (Adj. Sess.), § 2, eff. July 1, 2024; amended 2025, No. 170 (Adj. Sess.), § 2, eff. July 1, 2026.)

• § 607. Employment

  (a) A CESA shall be considered to be a public employer and may employ personnel, including educators, to carry out the purposes and functions of the board. Annually, the board of a CESA shall conduct an area survey of the salaries of the educators and staff employed by the CESA’s member supervisory unions and school districts.

  (b) No person shall be eligible for employment by a CESA as an educator unless the person is appropriately licensed by the Standards Board for Professional Educators pursuant to chapter 51 of this title.

  (c) A person employed by a CESA as an educator shall be a participant in the Vermont State Teachers’ Retirement System pursuant to chapter 55 of this title.

  (d) A person who is employed by a CESA and who is not an educator shall be a participant in the Vermont Municipal Employees’ Retirement System pursuant to 24 V.S.A. chapter 125.

  (e) Educators employed by a CESA shall be entitled to organize pursuant to chapter 57 of this title.

  (f) Employees employed by a CESA and who are not educators shall be entitled to organize pursuant to 21 V.S.A. chapter 22.

  (g) Educators and employees who are employed by a CESA shall be provided health care benefits pursuant to chapter 61 of this title. (Added 2023, No. 168 (Adj. Sess.), § 2, eff. July 1, 2024; amended 2025, No. 170 (Adj. Sess.), § 2, eff. July 1, 2026.)

• § 608. CESA membership adjustment proposals

  (a) The board of a member supervisory union may propose to the General Assembly to adjust the membership of the CESA it belongs to in accordance with the following procedure:

  (1) The board of a supervisory union may vote to propose withdrawal from its current CESA in order to become a member of a different CESA.

  (2) If a majority of the supervisory union board members vote in favor of withdrawing from one CESA in order to join a different CESA, the supervisory union board shall transmit the results of the membership adjustment proposal vote to the boards of both applicable CESAs.

  (3) The board of a supervisory union’s current CESA and the board of the CESA the supervisory union has voted to join shall hold separate advisory votes to approve the membership adjustment proposal within 45 days after the results of the supervisory union board vote held pursuant to subdivision (2) of this subsection.

  (4) The supervisory union board requesting the membership adjustment shall submit the results of the advisory CESA board votes to the Secretary of Education with the following information:

  (A) the minutes recorded by the supervisory union board that detail the origins and intent of the CESA membership adjustment proposal;

  (B) copies of the warnings and published notices for any public hearings held to discuss the membership adjustment proposal;

  (C) the minutes recorded by the supervisory union board that detail any public hearings held to discuss the membership adjustment proposal, including minutes from the meeting at which the board voted in favor of the CESA membership adjustment proposal; and

  (D) the results of the advisory CESA board votes made pursuant to subdivision (3) of this subsection (a).

  (b) The Secretary of Education shall deliver copies of the information required pursuant to subsection (a) of this section to the Clerk of the House, the Secretary of the Senate, and the chairs of the committees concerned with CESA membership of both houses of the General Assembly.

  (c) The membership adjustment proposal shall become effective upon affirmative enactment of the proposal, either as proposed or as amended by the General Assembly. (Added 2025, No. 170 (Adj. Sess.), § 2, eff. July 1, 2026.)