The Greenville County school board gave initial approval to a $391 million budget Monday that raises property taxes 4 mills, or $16 on a $200,000 home.

Administration officials said the added millage, which would generate $4.7 million, is needed primarily to cover the cost of growth in student enrollment.

It's enough to increase teacher minimum pay by 2.61 percent as required by state law but not enough to pay for the 99 new teachers needed for the 1,350 additional students expected to enroll next year.

"I just don't think 4 mills is asking a lot, especially since it doesn't include houses of $100,000 or less," said trustee Danna Edwards.

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The owner of a $200,000 home would pay $421.60 in taxes for school operations under the proposed budget, school officials said. Anyone owning a home worth $100,000 or less would pay no property taxes, and the first $100,000 is tax exempt on more expensive homes.

Board members said they were forced into a tax increase by the state requiring things that it doesn't pay for.

"I would give up the 4 mills that we have and never ask for another 4 mills if they would fund everything that they ask us to do," board member Debi Bush said.

Although the state budget remains unclear, the school district anticipates increases of $12 million in state funding and $16.8 million in local funding, not including any tax increase.

The budget would grow a total of $27.2 million after factoring in some changes in state sources.

But unfunded state mandates and costs associated with anticipated enrollment growth eat up $17 million of that increase.

Items under the heading of "Education Plan Initiatives," which is the district's blueprint for raising the quality of education in the county, call for $3.2 million to reduce pupil-teacher ratios in elementary and high schools.

Another $3.5 million would go for raises for nonteaching employees who are being paid less than those in similar jobs in surrounding districts, and $1 million is earmarked for maintenance associated with growth in the districts facilities because of the construction program.

No vote was taken at Monday's meeting. The budget was simply "accepted" for first reading. Second and third reading votes will be recorded.

Not all board members indicated support for a tax increase.

Trustee Ann Sutherlin called it a "utopian" budget that may put too big a burden on taxpayers who are paying for the district's nearly $1 billion construction program.

"I hate to be the Grinch that stole Christmas, but I think we can live within this budget without increasing taxes."

But Leola Robinson called it "a good budget," saying it made up lost ground in pay for lower level workers such as custodians.

And she hailed the so-called Twilight program, aimed at keeping kids from dropping out.

"I hear horror stories about these students who drop out," she said.

The school board doesn't set the millage rate. It approves a budget it estimates can be met without increasing the rate by more than 4 mills.

When a reassessment takes place, the rate can be rolled back and still generate as much or more money.

For example, the millage rate was rolled back from 103.1 to 96.4 after a reassessment in 2001. Over the next two years, the board approved increases that brought the rate back up to 101.6. The auditor set it at 105.3 the next year and then 105.4, the current level.

The board hasn't approved a tax increase in two years.

To cover unfunded and underfunded mandates, keep up with growth in the Southeastern consumer price index and factor in new revenue, the board needs to raise taxes 6.08 mills to break even, says Jeff Knotts, executive director of finance.

But state law will allow the school board to raise taxes only 4 mills without a referendum.

The Legislature still is working on its budget, and the idea of substituting property taxes with sales taxes to fund schools remains on their agenda.

School trustees will go back to the drawing board if state funding changes dramatically.