The function isn't "winner takes all". It's a claw back after objective failure.

California already spends tons of extra money on stuff like special ed, and struggling districts. I wouldn't touch that.

So, if there's a high school in a struggling area and it's graduating kids that can't do 7th grade math, then that opens up funding for charters in that area at 150% state average per student, or whatever the current formula us.