COMMITTEE ON LEGISLATIVE RESEARCH
OVERSIGHT DIVISION
FISCAL NOTE
L.R. No.:3425H.03C Bill No.:HCS for HB 1946 Subject:Education, Elementary and Secondary; Department of Elementary and Secondary
Education; Teachers; Children and Minors
Type:Original Date:February 13, 2024Bill Summary:This proposal modifies provisions relating to school safety.
FISCAL SUMMARY
ESTIMATED NET EFFECT ON GENERAL REVENUE FUNDFUND AFFECTEDFY 2025FY 2026FY 2027
General Revenue*
$0 to (Could exceed
$7,631,600)
$0 or (Could exceed
$6,220,000)
$0 or (Could exceed
$6,220,000)
Total Estimated Net
Effect on General
Revenue
$0 to (Could exceed
$7,631,600)
$0 or (Could exceed
$6,220,000)
$0 or (Could exceed
$6,220,000)
*Subject to an appropriation by the General Assembly (§160.485 & §160.663).
ESTIMATED NET EFFECT ON OTHER STATE FUNDSFUND AFFECTEDFY 2025FY 2026FY 2027Total Estimated Net
Effect on Other State
Funds $0$0$0
Numbers within parentheses: () indicate costs or losses. L.R. No. 3425H.03C
Bill No. HCS for HB 1946
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ESTIMATED NET EFFECT ON FEDERAL FUNDSFUND AFFECTEDFY 2025FY 2026FY 2027Total Estimated Net
Effect on All Federal
Funds $0$0$0
ESTIMATED NET EFFECT ON FULL TIME EQUIVALENT (FTE)FUND AFFECTEDFY 2025FY 2026FY 2027Total Estimated Net
Effect on FTE 000
☒ Estimated Net Effect (expenditures or reduced revenues) expected to exceed $250,000 in any
of the three fiscal years after implementation of the act or at full implementation of the act.
☐ Estimated Net Effect (savings or increased revenues) expected to exceed $250,000 in any of
the three fiscal years after implementation of the act or at full implementation of the act.
ESTIMATED NET EFFECT ON LOCAL FUNDSFUND AFFECTEDFY 2025FY 2026FY 2027Local Government(Unknown)(Unknown)(Unknown) L.R. No. 3425H.03C
Bill No. HCS for HB 1946
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FISCAL ANALYSIS
ASSUMPTION
Section 160.485 - Bleeding Control Kits
Officials from the Department of Elementary and Secondary Education (DESE) state,
subject to appropriation, the minimum total cost to provide the bleeding control kits would be
$1,212,600 with ongoing costs to replenish/replace used or expired items.
The cost per bleeding control kit is estimated at $100 each (kits from different sources cost
between $40 and $160+). The number of buildings in Missouri that would require kits is 2,391.
The Department estimates a minimum of five kits per building (auditorium, library, gymnasiums,
science classrooms, and cafeterias) with the number of kits estimated to be around 11,955.
Additional kits to be required at the career-technical centers (57) at a minimum of three per
center is estimated to be approximately 171.
The Department assumes that the general assembly will appropriate funds to award
grants/reimbursement to local education agencies for the cost of “Stop the Bleed” kits. 12,126
kits x $100 per kit = $1,212,600 plus an additional five kits for approximately 25% of schools
(598) who have an additional need for high traffic areas or multiple required locations =
$299,000 for a total of $1,511,600.
Once the program has been implemented throughout Missouri, materials will need to be
replaced/restocked as they are used or expire. The Department estimates a minimum cost of
$100,000 with additional potential costs due to inflation.
DESE estimates current staff will develop guidelines as required and administer the
grants/reimbursement, however it will increase the workload on current staff and require
administrative support. If multiple items of legislation are passed that require additional duties,
DESE will seek additional FTE through the appropriation process.
DESE has identified available online training to meet the requirements of the legislation that is
provided at no cost to participants.
In response to a similar proposal, HB 1487 (2024), officials from the Henry County R-1 School
District assumed the proposal will have a fiscal impact due to monies spent to provide kits.
In response to a similar proposal, HCS HB 1991 (2020), officials from the Maries County R-1
School District assumed the cost would be approximately $69.99 per classroom: $68.99 for the
Curaplex Stop the Bleed Kit and $1.00 for the Emergency Thermal Blanket (10 for $9.95). Fifty
five spaces would need one in their school, it would cost them $3,850 to put them in. They
would have to replace the kits when they expire. L.R. No. 3425H.03C
Bill No. HCS for HB 1946
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In response to a similar proposal, HCS HB 1722 (2022), DESE used an estimated cost per kit of
$35. However, based on their research this past year, DESE estimated the cost to be closer to
$100 per kit based on the average cost of bleeding control kits. For example, the American Red
Cross offer a Professional Bleeding Control Kit for $149.92. In addition, they indicated some of
the cost increase may be related to inflation and supply chain issues.
Ultimately, Oversight is uncertain what cost would be realized but notes prices ranged from $50
to over $200 per kit based on a brief review. Oversight will show the costs to provide bleeding
control kits at $1,511,600 as estimated by DESE.
Oversight assumes the requirements in this proposal are subject to an appropriation by the
General Assembly that would cover all costs. Oversight assumes kits will not be used frequently,
so restocking and annual training costs will be shown as ‘could exceed ($100,000)’ in future
years.
Section 160.663 – Anti-intruder Door Locks and Windows
Officials from the DESE assume an unknown cost related to changes in this HCS (i.e. side
windows, etc.) as DESE is unable to quantify the number of school buildings that will need this.
In response to a previous version, officials from DESE assumed this section would require anti-
intruder door locks on all interior doors and bullet-resistant window film on all exterior doors or
entryways. DESE is unable to estimate the number of each that would be required to make all
schools compliant as the number of doors, buildings, etc. varies greatly district to district and
some districts have instituted these measures. DESE would assume each district would need a
minimum of one door lock and roll of bullet-resistant film for each building at a minimum cost
of $125. The number of buildings is 2,391 plus the 57 career-technical centers multiplied by
$125 for a minimum cost of $306,000. This cost would be up to an unknown amount depending
on the total number of buildings and doors. DESE assumes this would be a one-time grant.
Anti-intruder door locks: $50 - $200
Bullet-resistant window film: $75 - $250 per roll
In response to a similar proposal, HS for HCS for HB Nos 1108 & 1181 (2023), officials from
DESE state Section 160.660.1(3) requires that the state board of education shall add to the
school facilities and safety criteria provisions the requirement that each school district building
have bullet-resistant doors and windows on all first-floor entryways and bullet resistant glass for
each exterior window large enough for an intruder to enter through. Section 160.660.2 makes
this requirement subject to a specific appropriation to address school safety.
The Bipartisan Safer Communities Act funding of $15 million could be used for the replacement
of doors and windows made with bullet-resistant materials. However, DESE cannot require that
schools use the BSCA funding on only doors and windows. There are approximately 2,200
public school buildings in Missouri. It is unknown how many currently have bullet-resistant
doors and windows. It is also unknown how many doors and windows would need to be L.R. No. 3425H.03C
Bill No. HCS for HB 1946
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replaced. A search on bullet-resistant products showed widely different costs depending on the
material and size selected. DESE is unable to estimate an exact cost. The cost is unknown but
DESE estimates that it could exceed $1 million.
Oversight notes Section 160.663.4 (2) states each existing exterior door or entryway and interior
door shall be equipped with the required anti-intruder door lock and bullet-resistant window film
before July 1, 2028.
Oversight notes a bullet-resistant door can range in cost from $2,500 to more than $4,000 based
on a CNN article from 2019. Oversight notes the number of buildings is 2,391 plus the 57
career-technical centers in Missouri according to DESE. Oversight is uncertain how many school
buildings currently have bullet-resistant doors. However, if this proposal required installing two
doors per building in half of the buildings (2,448 doors), the cost is estimated to be $6,120,000
(assuming a cost of $2,500 per door). Therefore, Oversight assumes the cost for this provision
could substantially exceed $6,120,000.
Oversight notes Section 160.663.3 states a school district or charter school shall not be required
to equip an interior door with an anti-intruder door lock or to equip the glass of an exterior door
or entryway with bullet-resistant window film under this section unless the general assembly
specifically appropriates moneys to cover all costs related to equipping such door or entryway
with such lock or window film. Therefore, Oversight will reflect a $0 (no appropriation) to
unknown that could exceed the cost of $6,120,000.
Oversight notes Section 160.663.6 (2) states a school district or charter school shall develop and
implement school building access policies and practices that require classroom doors with
windows and adjoining sidelights be equipped with material that provides concealment of
students and staff in lockdown while maintaining some limited visibility into the room for first
responders. Oversight is unable to determine how many doors with windows and adjoining
sidelights would need to be equipped with concealment material to meet the requirement of this
provision. Therefore, Oversight will reflect a $0 (no appropriation) to an unknown cost in the
fiscal note.
Section 170.315 – Intruder Response Training
Officials from the Department of Public Safety - Missouri Highway Patrol (MHP)
anticipate an immediate (FY25) fiscal impact with the provisions in Section 170.315.6, it does
anticipate an increase in tips due to the required annual training of every student in the state. The
training component in House Bill 1946 would bring the Courage2Report information to every
student and promote the use of the tip line. Courage2Report started in 2019, and since 2020 the
tip line has had a steady increase in tip volume annually. From 2020 to 2021, there was an 80%
increase in the number of tips, from 2021 to 2022 there was a 75% increase in the number of
tips, and from 2022 to 2023 there was a 48% increase in the number of tips. In the future the
Patrol does foresee a need for at least one (1) additional FTE to help with the increased workload
based on the projected increase in tips that go beyond what current staffing can field. L.R. No. 3425H.03C
Bill No. HCS for HB 1946
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Oversight assumes the MHP could absorb the costs related to this proposal at this time. If and
when the MHP experiences an increased workload that goes beyond what current staffing can
field, MHP could request funding for additional staff through the appropriation process.
Oversight notes this section requires that beginning in the 2025-26 school year the Active
Shooter and Intruder Response Training for Schools Program be required for teachers and school
employees on an annual basis. The bill requires that initial training be eight hours and continuing
training be four hours in length.
Oversight assumes there could be costs for school districts if annual training is required.
Oversight assumes new training, instruction or education required under state law or rules
promulgated by DESE will be dependent on each school districts’ needs. Therefore, Oversight
will reflect an unknown impact on the fiscal note.
Responses regarding the proposed legislation as a whole
In response to a previous version, officials from the Office of Attorney General (AGO)
assumed any potential litigation costs arising from this proposal can be absorbed with existing
resources. The AGO may seek additional appropriations if the proposal results in a significant
increase in litigation or investigation.
Officials from the Missouri Office of Prosecution Services, Department of Social Services,
Department of Health and Senior Services, Department of Public Safety - Fire Safety,
Department of Corrections, Department of Mental Health, and Department of Public
Safety – Office of the Director each assume the proposal will have no fiscal impact on their
organizations. Oversight does not have any information to the contrary. Therefore, Oversight
will reflect a zero impact in the fiscal note.
Officials from the Phelps County Sheriff’s Office, Kansas City Police Department, St. Louis
County Police Department, and the Branson Police Department each assume the proposal
will have no fiscal impact on their organizations.
In response to a previous version, officials from the Eureka Fire Protection District assumed
the proposal will have no fiscal impact on their organization. Oversight does not have any
information to the contrary. Therefore, Oversight will reflect a zero impact in the fiscal note.
Officials from the Office of the State Courts Administrator did not respond to Oversight’s
request for fiscal impact for this proposal.
Oversight did not receive any responses from school districts related to the fiscal impact of this
proposal. Oversight has presented this fiscal note on the best current information available. Upon
the receipt of additional responses, Oversight will review to determine if an updated fiscal note
should be prepared and seek the necessary approval to publish a new fiscal note. Oversight only L.R. No. 3425H.03C
Bill No. HCS for HB 1946
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reflects the responses received from state agencies and political subdivisions; however, school
districts were requested to respond to this proposed legislation but did not. A listing of political
subdivisions included in the Missouri Legislative Information System (MOLIS) database is
available upon request.
Rule Promulgation
Officials from the Joint Committee on Administrative Rules assume this proposal is not
anticipated to cause a fiscal impact beyond its current appropriation.
Officials from the Office of the Secretary of State (SOS) note many bills considered by the
General Assembly include provisions allowing or requiring agencies to submit rules and
regulations to implement the act. The SOS is provided with core funding to handle a certain
amount of normal activity resulting from each year's legislative session. The fiscal impact for
this fiscal note to the SOS for Administrative Rules is less than $5,000. The SOS recognizes that
this is a small amount and does not expect that additional funding would be required to meet
these costs. However, the SOS also recognizes that many such bills may be passed by the
General Assembly in a given year and that collectively the costs may be in excess of what the
office can sustain with its core budget. Therefore, the SOS reserves the right to request funding
for the cost of supporting administrative rules requirements should the need arise based on a
review of the finally approved bills signed by the governor.
FISCAL IMPACT – State GovernmentFY 2025
(10 Mo.)
FY 2026FY 2027GENERAL REVENUETransfer Out - DESE - bleeding control
kits and school personnel training -
§160.485
$0 to (Could
exceed
$1,511,600)
$0 or (Could
exceed
$100,000)
$0 or (Could
exceed
$100,000)
Transfer Out – DESE - for cost of anti-
intruder door locks on all interior doors,
bullet-resistant window film and
concealment material for doors with
windows and sidelights - §160.663
$0 to
(Unknown,
Could exceed
$6,120,000)
$0 to
(Unknown,
Could exceed
$6,120,000)
$0 to
(Unknown,
Could exceed
$6,120,000)
ESTIMATED NET EFFECT ON
GENERAL REVENUE
$0 to (Could
exceed
$7,631,600)
$0 or (Could
exceed
$6,220,000)
$0 or (Could
exceed
$6,220,000) L.R. No. 3425H.03C
Bill No. HCS for HB 1946
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February 13, 2024
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FISCAL IMPACT – Local GovernmentFY 2025
(10 Mo.)
FY 2026FY 2027SCHOOL DISTRICTS
Transfer In - from state General
Revenue - §160.663
$0 to Could
exceed
$6,120,000
0 to Could
exceed
$6,120,000
0 to Could
exceed
$6,120,000
Costs - for cost of anti-intruder door
locks on all interior doors, bullet-
resistant window film and concealment
material for doors with windows and
sidelights - §160.663
$0 to
(Unknown,
Could exceed
$6,120,000)
$0 to
(Unknown,
Could exceed
$6,120,000)
$0 to
(Unknown,
Could exceed
$6,120,000)
Transfer In - from state General
Revenue - §160.485
$0 to Could
exceed
$1,511,600
$0 or Could
exceed
$100,000
$0 or Could
exceed
$100,000
Costs - for cost of bleeding control kits
and school personnel training -
§160.485
$0 to (Could
exceed
$1,511,600)
$0 or (Could
exceed
$100,000)
$0 or (Could
exceed
$100,000)
Costs – training, instruction, and
education - §170.315(Unknown)Unknown)(Unknown)
ESTIMATED NET EFFECT ON
SCHOOL DISTRICTS(Unknown)(Unknown)(Unknown)
FISCAL IMPACT – Small Business
No direct fiscal impact to small businesses would be expected as a result of this proposal.
FISCAL DESCRIPTION
This bill requires school districts and charter schools to adopt a comprehensive emergency
operations plan to address school safety, crises, and emergency operations. Schools must ensure
a physical security site assessment annually and the Department of Elementary and Secondary
Education (DESE) shall develop standards for the emergency operation plans (Section 160.480
RSMo).
The bill establishes the "Stop the Bleed Act", defines "bleeding control kit" and requires DESE
to develop a traumatic blood loss protocol for school personnel by January 1, 2025. L.R. No. 3425H.03C
Bill No. HCS for HB 1946
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The bill outlines the specific requirements for the blood loss protocol which shall include a
bleeding control kit be placed in areas where there is likely to be high traffic or congregation,
and areas where risk of injury may be elevated. Additionally, each district must designate a
school nurse or school health care provider, or if no school nurse or school health care provider
is available, a school personnel member to receive annual training on the use of a blood control
kit.
The bill requires DESE and each school district and charter school to maintain information
regarding the traumatic blood loss protocol and the Stop the Bleed national awareness campaign
on their respective website (Section 160.485).
The bill requires that beginning July 1, 2025, the State Board of Education (SBE) modify school
safety criteria in the Missouri School Improvement Program (Section 160.660).
The bill requires that school districts and charter schools equip each interior door with anti-
intruder door locks and each exterior door with bullet-resistant window film. This requirement is
subject to appropriations to cover all costs however, a school may receive donations, as specified
in the bill.
Any exterior, entryway, or interior door installed after the effective date of these provisions shall
be equipped, as specified in the bill and by July 1, 2028 all schools must have all existing doors
both exterior and interior equipped per the specifications in the bills, and develop and implement
policies relating to access to individual classrooms and require that doors with windows and
adjoining sidelights be equipped with material to cover windows during a building lockdown
(Section 160.663).
Currently, school districts must be notified if a petition is filed in juvenile court with specific
allegations. This bill expands the current requirements to also include when a charge or
indictment is filed, adds the prosecutor to the list of required notifiers, and requires such notice to
be within 24 hours and reduces the requirement for a summary of facts from five days to two
business days following the case disposition. The bill allows school districts to request an
injunction to exclude students from educational services if there is a likelihood of danger to the
safety of pupils or employees in the school district (Section 167.115).
The bill authorized districts and charter schools to enter into written agreements with law
enforcement on procedures for reporting criminal offenses outlined in the bill and allows for
certain offenses for students under 11 years of age to be reported to the Children's Division,
within the Department of Social Services (Section 167.117).
The bill requires that cardiopulmonary resuscitation training be required for school district and
charter school employees (Section 167.624).
The bill requires that beginning in the 2025-26 school year the Active Shooter and Intruder
Response Training for Schools Program be required for teachers and school employees on an L.R. No. 3425H.03C
Bill No. HCS for HB 1946
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annual basis. The bill requires that initial training be eight hours and continuing training be four
hours in length.
Currently, public schools are required to foster an environment where students feel comfortable
reporting a potentially threatening or dangerous situation with an adult. This bill adds the
requirement that schools must annually provide age-appropriate information on the Missouri
State Highway Patrol's Courage2ReportMO reporting mechanism. Beginning with the 2025-26
school years schools must annually hold active shooter exercises in which students, teachers, and
school employees participate and practice the procedures for safety and protection to be
implemented under such conditions. (Section 170.315).
This legislation is not federally mandated, would not duplicate any other program and would not
require additional capital improvements or rental space.
SOURCES OF INFORMATION
Department of Elementary and Secondary Education
Department of Public Safety
Attorney General’s Office
Department of Health and Senior Services
Department of Mental Health
Department of Corrections
Office of the Secretary of State
Joint Committee on Administrative Rules
Department of Social Services
Missouri Office of Prosecution Services
Phelps County Sheriff’s Office
Kansas City Police Department
St. Louis County Police Department
Branson Police Department
Eureka Fire Protection District
Henry County R-1 School District
Maries County R-1 School District
Julie MorffRoss StropeDirectorAssistant DirectorFebruary 13, 2024February 13, 2024