It's full of really bad teachers who never should have been teachers at all. That's a sure sign that the pay scale is low.
Good pay attracts good teachers.
Low pay gets you people who couldn't find a better job. The politicians will never figure that out. I guess they don't want to. At least in my state, there ain't enough money to draw good teachers to some school districts, because discipline is so low that the teachers cannot actually teach on any level of difficulty which might actually challenge the students. Yet good teachers can be found in some of these places, not because of pay, but because they love their work.