The charter school movement focuses on the creation of public schools governed by a legally-binding agreement known as a charter. Charter schools are touted as allowing for innovation and creativity in exchange for increased accountability. The state of Wisconsin allows its school districts to authorize the formation charter schools. School districts are also allowed to charter non-instrumentality schools: schools which operate independently of the school district and whose teachers are not members of the district's teachers union and cannot be a part of the state pension system. Special allowances are made for additional chartering authority in two of Wisconsin's urban centers. In Milwaukee, the city, the University of Wisconsin-Milwaukee, and the Milwaukee Area Technical College can also charter schools. In Kenosha, the University of Wisconsin-Parkside can charter one school. The requirements of the 2002 revision of the Elementary and Secondary Education Act have brought accountability for improvements in student achievement to all public schools, not just charter schools. Nevertheless, charter schools continue to form.