DISTRICT ORGANIZATION AND MANAGEMENT This chapter describes the organization and management of the Elgin
A. MANAGEMENT, PLANNING AND SITE-BASED DECISION MAKING
Planning and budgeting are critical to effective management. Planning enables a district to define goals and objectives, establish priorities, select appropriate implementatio n strategies and determine critical measures of performance in achieving goals and objectives.
The budget process should follow the plan's development and implementation by allocating resources necessary to reaching the performance targets established in the plan. When coordinated properly, the combination of planning and budgeting reduces confusion and conflict regarding how scarce resources are distributed.
School districts with effective planning systems divide the process into a series of key components that provide information used to develop the plan, update it or implement plan priorities. These key components include annual district priorities; campus improvement plans; a regular program evaluation cycle, work plans, ongoing evaluation of the personnel implementing the plan, budget tied to the priorities in the plan and a management information system.
Annual priorities are adopted by the board each year and indicate what the district will do in a given year to achieve the district's goals and
objectives. The plan must set priorities and clearly measurable objectives, assign responsibility for implementation at both the district and campus level and define a mechanism by which the accomplishment of the priorities are measured.
The program cycle ind icates what will happen in each teaching or support program, and whether new programs or modifications are necessary. Work plans define the responsibilities for plan implementation and
monitoring at all levels. They provide objective-specific tasks and identify which department and position are to be held accountable for completing each task.
The budget is tied to each priority so that adequate resources will be assigned to accomplish each one. Budget information is readily
communicated to the public under the established priorities of the district, not the TEA's accounting system.
The personnel evaluation system measures how well district personnel performed in accomplishing objectives. An annual evaluation summary provides information for individual and system improvement.
The management information system reflects how well the total system has performed in satisfying the priorities of the plan.
In Texas, Section 11.252 of the Texas Education Code provides
requirements for district-level planning and decision making. Each school district must have a district improvement plan(DIP) that is developed, evaluated and revised annually. The plan must include provisions for the following:
• A comprehensive needs assessment addressing student performance on the Academic Excellence Indicators (AEI);
• Measurable district performance objectives for all appropriate AEI for all student populations;
• Strategies for improvement of student performance;
• Resources needed to implement strategies;
• Staff responsible for ensuring the accomplishment of each strategy;
• Timelines for monitoring implementation; and
• Criteria for determining whether the strategies are improving student performance.
The DIP must be developed by a districtwide committee comprised of board members, district staff, principals, teachers and citizens. Campus Improvement Plans (CIPs) are developed on each campus, are used to identify what each school will do in a given year to achieve district and school objectives.
Section 21 of the Texas Education Code describes certain requirements associated with implementing site-based decision making (SBDM) in Texas school districts. The major theme of SBDM is the empowerment of students, parents, teachers, principals and schools. The code describes requirements for annual district and campus improvement plans,
composition of district and campus decision- making councils, election of representatives to each council, terms of office, meetings and general responsibilities.
EISD adopted a policy in November 1996 to create district and school- based collaborative decision- making committees in compliance with state law. These policies provide authorization, scope of responsibility,
composition of committees, electoral processes for membership selection and approval processes.
In EISD, the districtwide committee is called the District Advisory Committee. The committee consists of representatives of campus-based professional staff, district- level professional staff, parents, representatives from the business community and non-parent community residents. Two- thirds of the district and campus professional staff are teachers. The remaining one-third is professional non-teaching district and campus-level staff.
In EISD, Campus Improvement Plans are developed by the SBDM on each campus. The campus committee consists of representatives of campus-based professional staff, district- level professional staff, parents, and community and business representatives.
FINDING
The challenge to EISD, as one board member stated, is "to stage change properly." More specifically, the EISD board and its superintendent have the responsibility to provide leadership for the Elgin community as it addresses the following issues: a growing student population; the need for new and/or renovated facilities; the need to strengthen the curriculum and program offerings to meet the needs of all students; the challenge to recruit, retain and reward quality teachers and staff members; and the need to involve the EISD staff, parents and residents in the district's decision- making process in ways that will build trust and confidence in the district's leadership.
These issues must be addressed with limited resources. Comments from focus group participants, EISD staff and community members, and information shared through meetings with community groups highlight these issues:
• The district needs better communication and closer cooperation/involvement with the community;
• The district needs parent participation on school premises;
• The district needs to offer more programs and opportunities for the most advanced students, so they can excel;
• The district needs both a low tax base and more money for its operations;
• The most important need for the district is for an aligned K-12 curriculum;
• The need to maintain and upgrade facilities and grounds;
• The morale of teachers is very low, especially among experienced teachers;
• The community is growing faster than the schools. Facility issues must be addressed;
• The middle school will move into the old high school. Is the old high school too small;
• Elgin ISD is not attracting the best teachers;
• There is a high rate of teacher turnover;
• There is a lack of opportunity for minority students;
• The school board could be less political;
• The business management of the schools needs improvement;
• Over-crowded schools are a challenge;
• More effective means of communication are needed;
• The Chamber of Commerce and the service clubs are pushers improvement; and
• The district needs to spend less money on sports and more on technology and science.
In September 1999, using a facilitator from the TASB, the EISD board and superintendent began a more formal approach to addressing these issues when the board approved eight strategic goals for the district. These goals represented the priorities identified by board members, EISD staff and responses to a questionnaire submitted by 5,000 families in the Elgin community.
From this process, the board and superintendent developed a vision statement, set of core values, a mission statement, eight goals and a series of expected student outcomes (Exhibit 1-3).
Exhibit 1-3
EISD Strategic Planning Process Results September 1999
Plan Element Description Vision
Our students... Are good neighbors who are actively involved in their community.
Have unlimited opportunities to explore career options, a vision for their future and the means to achieve their dreams. Receive scholarships and assistance to achieve their dreams. Have the skills to pursue higher education or become
gainfully employed.
Are confident, successful and productive learners who take pride in themselves and their accomplishments and are well
prepared to succeed in life.
Are sensitive to the needs of others, take pride in themselves, are kind and show mutual respect.
Our homes, classrooms and campuses...
Work together to ensure that our children come to school ready to continue learning.
Provide caring people who meet the needs of each student. Are safe places where people interact and question in an open and supportive environment of mutual respect.
Are equipped with state-of-the-art technology available to everyone.
Our supportive environment is such that...
In the community of Elgin the children are our top priority. The community and district work together harmonious ly as equal partners to provide top quality education.
Outstanding facilities and resources are provided to support maximum student achievement.
Our community and district actively recruit and retain the best qualified people.
Values Elgin is a caring community.
Elgin is a hard-working community.
Greater freedom requires greater responsibility. Elgin values learning.
Elgin promotes a safe community.
Developing good citizens contributes to a healthy community.
Mission The mission of Elgin ISD, as the coordinator and educational leader, is to work in concert with the community to provide a high-quality education for all children.
Goals
Open, accurate and timely communication throughout the district and community.
An assessment system that provides timely and useful information on an ongoing basis.
A challenging and aligned curriculum. One hundred percent graduation rate.
A supportive community fully involved in our schools. A quality education that meets the needs of the individual students.
Facilities and resources that meet the needs of our district. Parents who are informed and actively involved in the education of our children.
Expected student outcomes
None of the students will drop out and all of our seniors will graduate.
Six months after graduation, our graduates will be gainfully employed (at greater than minimum wage) or enrolled in a college or trade school.
By eighth grade, students will demonstrate the ability to apply current technology on grade-level projects. Our graduates are good problem solvers as indicated by applying a problem solving model to develop a personal vision and goals to achieve that vision beginning in the ninth grade, reviewed annually and finalized prior to graduation. Beginning in the primary school, the students will use problem solving skills to generate solutions to interpersonal situations.
Upon graduation, students will have completed 50 hours of approved community service hours at least half of which will be as a member of a team.
Based on the eight strategic goals adopted by the board and identified in Exhibit 1-3, the district developed specific activities and strategies to respond to each goal and summarized them in the District Improvement Plan that was updated in March 2000. For each board goal, there is a set of specific activities and expected outcomes. A sample of the activities and outcomes is included in Exhibit 1-4.
Exhibit 1-4
EISD District Improvement Plan March 2000
Goal Sample Activities Sample Outcomes Improve student achievement as measured by the Academic Excellence Indicator System (AEIS) System
Each campus will improve Texas Assessment of Academic Skills (TAAS) performance for all students and each sub-group to achieve recognized status. Increase participation of appropriate special needs students in TAAS testing. Each campus will provide after- school individual or small- group tutoring to prepare students for TAAS.
Continue collaboration with Head Start to expand pre-K program.
Improved performance on TAAS. TAAS results, Spring 2000.
Decreased exemptions for special education students. Improved performance on TAAS. TAAS results, Spring 2000.
Students better prepared for kindergarten program. Enrollment data for pre-K.
Improve
achievement of all special needs students
Implement strategies for increasing special needs student participation and success in all programs. Implement Student Needs Team program on each campus.
Increase in academic performance of all special needs students.
Increased use of regular education options prior to Special Education referral; increased teacher
collaboration in exploring options.
Reduce district dropout rate
The Community Outreach Team will assist in dropout prevention by serving as student advocates at the
Dropout prevention. Outreach reports. Increase graduation rate
campuses.
Phoenix Learning Center will continue to retrieve dropouts and allow students the
opportunity to earn high school credit.
Implement Absent Student Assistance Program.
and achievement of post- high school goals for Special Education students.
Increased school attendance, leading to decreased dropout rate.
Implement a challenging and aligned curriculum
Monitor implementation of curriculum and benchmarks with monitoring system. Meeting time will be provided for grade level/department meetings or cross-campus planning.
Disseminate Texas Essential Knowledge and Skills and test specifications to teachers of all content areas. Improved student performance on benchmarks. Curriculum articulation. Schedules of meetings. Enhanced/focused lesson planning. Improved student performance. Provide appropriate staff development Each campus SBDM committee will provide appropriate training opportunities for all staff. Special education department will provide training for regular education and special education staff focusing on modifications, least restrictive environment, transition, related services and the pre-referral process.
Enhanced teacher performance. Enhanced teacher performance and
compliance with federal and state directives.
Increase parent involvement opportunities
Schedule one waiver day for parent conferences.
Involve parents on all SBDM committees.
Each campus will use
Community Outreach Team for necessary parent contacts.
Parental participation. Roster of parents participating in conferences. Improved communication. Committee lists. Improved
communications. Outreach reports.
Source: EISD superintendent.
The document also identifies staff responsible for accomplishing each goal or portion of a goal, resource requirements and timelines.
COMMENDATION
EISD embraced a strategic planning process that provides direction and focus in achieving the district's mission of providing a high- quality education for all children.
FINDING
The primary mission of any school district, including EISD, is the education of students.
Since 1996-97, EISD's budget has grown 39 percent, from $13.4 million to $18.6 million in 1999-2000, while student enrollment during this same time period has risen by only 5 percent. The central administrative budget, which includes board travel, training and legal fees, salaries for the
superintendent, human resource staff, textbook custodians, public
relations, purchasing, financial management, and vehicles and repair costs for equipment used by central administration, has grown from $565,192 in 1996-97 to $684,122 in 1999-2000, an increase of 21 percent.
By contrast, the number of teachers has grown by just 5.5 percent, from 189.8 FTEs in 1996-97 to 200.2 in 1999-2000, directly proportional to student growth rates. The number of educational aides over the same period has declined from 33.9 to 22.4, a decrease of 34 percent. Meanwhile, the number of professional support staff, campus
administrators, central administrators and auxiliary staff has grown from 123.6 in 1996-97 to 158.5 in 1999-2000, an increase of more than 28 percent (Exhibit 5-1).
Exhibit 1-5
EISD Staff Full-time Equivalents (FTEs) 1996-97 through 1999-2000 Staff Category 1996-97 Actual 1997-98 Actual 1998-99 Actual 1999-2000 Budgeted Percent Change Teachers 189.8 191.4 197.9 200.2 5.5%
Professional Support 20.1 21.2 27.0 29.3 45.8% Campus Administration 8.2 9.2 9.2 8.5 3.7% Central Administration 3.8 5.7 4.0 5.9 55.3% Educational Aides 33.9 39.6 41.7 22.4 -33.9% Auxiliary staff 91.5 92.3 86.9 114.8 25.5% Total staff 347.2 359.4 367.2 381.1 9.8% Total students 2,559 2,606 2,638 2,688 (1) 5.0%
Source: AEIS 1996-97; PEIMS 1999-2000. (1) End of first semester
Recommendation 1:
Reduce the number of non-teaching staff in EISD.
At a minimum, EISD should set a goal of reducing the number of
auxiliary, administrative and non-instructional support staff by 5 percent. When instituting these reductions in force, the district should examine each position to determine the value being added to classroom instruction by the retention of that position.
IMPLEMENTATION STRATEGIES AND TIMELINES