ebook img

Agawam public schools review : executive order 393 : Education Management Accountability Board report PDF

72 Pages·2000·3.2 MB·English
Save to my drive
Quick download
Download
Most books are stored in the elastic cloud where traffic is expensive. For this reason, we have a limit on daily download.

Preview Agawam public schools review : executive order 393 : Education Management Accountability Board report

^99 1^3. a- /IG li ^ UMASS/AMHERST^^^^^^^^^^^ * 1 MassachusettsDepartmentofRevenueDivisiono^Loca/Services FrederickA.Laskey,Commissioner JosephJ.Chessey,Jr.,DeputyCommissioner Agawam Public Schools Review Executive Order 393 Education ManagementAccountability Board Report April 2000 EDUCATIONAL MANAGEMENT ACCOUNTABILITY BOARD Michael Sentance, Chairman RobertAddelson PeterNessen Mark Roosevelt Hugh Scott Carmel Shields Alison Taunton-Rigby Samuel Tyler, Vice Chairman Stafftothe Board: Jill Reynolds Executive OfficeforAdministration & Finance PeterForman, Acting Secretary Departmentof Revenue FrederickA. Laskey, Commissioner Division of Local Services Joseph J. Chessey, Jr., DeputyCommissioner Gerard D. Perry, Associate DeputyCommissioner Dieter H. Wahl, Director, EducationalAudit Bureau ProjectTeam F. Ellis Fitzpatrick, Auditor-ln-Charge Debra Wagner, Auditor Adam Burt, Auditor Technicalandadministrativesupportprovidedby Evelyn Hyde and Richard Sirignano The Division ofLocalServices wouldlike toacknowledge theprofessionalcooperation extendedto theauditteamby The DepartmentofEducation, AgawamPublicSchools SuperintendentDr. FrankA. Amerouso theschooldepartmentstaff. 1 TABLE OF CONTENTS I. INTRODUCTION 1 EXECUTIVE SUMMARY 2 II. GENERAL CONDITIONS AND FINDINGS 6 III. AGAWAMOVERVIEW 6 1. 2. SCHOOL FINANCES 11 3. SCHOOL COMMITTEEBUDGETTREND 12 4. TOTAL SCHOOL DISTRICTEXPENDITURES 13 5. NETSCHOOL SPENDING REQUIREMENTS 14 6. SCHOOL COMMITTEEPROGRAMBUDGET 16 FOUNDATIONBUDGET 20 7. 8. STAFFING -FULL TIMEEQUIVALENT(PTE) TRENDS 21 9. PAYROLL - SALARYLEVELS, UNIONCONTRACTS 24 10. PROFESSIONAL DEVELOPMENTPROGRAM 27 SCHOOL IMPROVEMENTPLANS 29 11. 12. TIMEANDLEARNING 30 13. COURSESAND CLASSSIZES 31 14. TECHNOLOGY 31 15. TEXTBOOKSAND INSTRUCTIONAL EQUIPMENT 32 16. TESTSCORES 33 17. MANAGEMENTANDPERSONNEL PRACTICES 38 18. ACCOUNTINGAND REPORTING 4 19. REVIEWOFEXPENDITURES 41 20. HIGHSCHOOLACCREDITATION 41 21. GRADE3 TRANSIENCY 42 22. SPECIAL EDUCATIONAND TRANSITIONAL BILINGUAL EDUCATION..43 23. DROPOUTAND TRUANCY 44 24. MAINTENANCEAND CAPITAL IMPROVEMENT. 46 25. CURRICULUMDEVELOPMENT. 47 IV. EMPLOYEE SURVEY 50 V. SUPERINTENDENT'S STATEMENT- EDUCATION REFORM 51 VI. APPENDIX 52 April 2000 Agawam Public Schools Review Introduction I. The Massachusetts Education Reform Act (MERA) of 1993 hasthree majorgoals: to increase student achievement; to achieve adequate funding forall local and regional school districts overaseven-yearperiod; and to bring equityto local taxation efforts based on acommunity's abilityto pay. In February 1997, the Governorissued Executive Order 393to evaluatethe education reform program thatwas nearingthe end of itsfourth year. In FY97, Massachusetts General Laws (M.G.L.) Oh. 70 state aid foreducation reached $2.1 billion. With an investment ofthis magnitude inthe Commonwealth's schools, it is criticalto "review, investigate and report on the expenditures offunds byschool districts, including regional school districts, consistentwith the goals of improving student achievement." Tothat end. Executive Order393 established the Education Management Accountability Board (EMAB). Chapter70 state aid has reached $2.8 billion in FY2000. The SecretaryofAdministration and Finance, serving aschief of stafftothe EMAB, selected ateam of auditorsfrom the Department of Revenue's (DOR) Division of Local Services (DLS) to conductthe school district reviews. DOR's DirectorofAccounts isthe chief investigatorwith authorityto examine municipal and school department accounts and transactions pursuantto M.G.L. Ch. 44, §§45 and 46A. The reviews are conducted in consultation with the StateAuditorand the Commissionerof Education. The Agawam Public Schools (APS) isthe nineteenth school district reviewed under Executive Order393. The auditteam began the review ofAPS in August 1999, and completed it in October 1999. As part ofthis review, the audit team conducted a confidential survey ofemployees ofthe school district and included the results in this report. School officials cooperated fullywith the auditteam. The Executive Summary includes some ofthe more significant observations and findings ofthe reviewofAPS' operations. When possible, the auditteam has identified and presented best practices, which may be adapted byotherschool districts. The report discusses all results, best practices and deficiencies, if any, in greaterdetail in the "General Conditions and Findings" section. Executive Order393- Education ManagementAccountability Board 1 April 2000 Agawam Public Schools Review Executive Summary II. TheAgawam Public District has made reasonable progress in achieving some ofthe goals ofeducation reform. The curriculum appearsto be aligned with the state frameworks. Working in committees, teachers and departmentcoordinators beganto alignthe curriculum in 1996 and a directorofcurriculum was hired in the summerof thatyear. The position was elevatedtoAssistant Superintendent in March of 1998 reflectingthe district's emphasison curriculum improvement. In a parallel effort, the district invested significantly in textbooksthatwere aligned withthe curriculum. MCAS scoreswere nearorabove state average in all gradesand subjectareas, except mathematicswhich was slightlybelowstate average in allthree grades. MCAS scores in 1999 showan improvement in all subjects in gradesfourand eight butwere lower for 10'" graders. APS had a student enrollment of4,605 in FY1998 and its net school spending was $24.3 million. That represents 100.3% ofthefoundation target budgetforthe district. Total netschool spending increased from $18.9 million in FY94to $24,3 million in FY98. The increase of$5.4 million has been funded with $2.3 million in localfunds and $3.1 million in state aid. Special education enrollment is higherthan the state average and spending forSPED has been increasing significantly, reaching $3.0 million in FY98, and taking a largershare oftotal expenditures. Although teachers have been added since FY93, the overall studenttoteacher ratio was at 16.7:1 in FY98, considerably higherthan the state average of 14.2:1 as student enrollment had increased aswell. Spending on computers and textbooks has increased duringthe pastthree years. Spending forprofessional development has exceeded the minimum legal requirementfrom FY95through 98. The CityofAgawam's five-yearcapital plan included building additionsto all elementary schools and the high school. These have been completed. Renovations were also madetothe middle school. The Cityadministersthe maintenance program of all municipal buildings includingthe school department. APS is meeting the goals of itstechnology plan even though therewere noformal updatestothe plan and thetechnologycommittee met onlyonce during FY99. Since the conclusion ofthe audit, the technologycommittee has met once in FYOO, and has scheduled a second meeting. APS has invested duringthe pastthree years in technologyforall schools. As a result sixty-nine percent ofthe 689 computers in the district as of October 1999 are lessthan three years old. More progress could be made in otherareas of planning and management. There is no district mission statement noristhere a strategic plan forthe district. Individual school improvement plans are prepared as required by law, but due in parttothe lack of district wide guidelines; theyvary in scope, content and quality. There is no system to monitorprogress and little follow-up is evident. While all principalswork under individual contracts, salary increases are linked to increases in theteachers' contract ratherthan on performance. Contracts do contain a provision allowing termination for Executive Order393- Education ManagementAccountability Board 2 April 2000 Agawam Public Schools Review "good cause." Purchasing and financial control systems are in place and appearto be functioning. THE FOUNDATION BUDGET • APS has met orexceeded net school spending requirements as determined bythe Departmentof Education (DOE) from FY94through FY98. APS exceeded itstotal foundation budgettarget in FY98. The district received $6.1 million in state aid in FY94 and $9.2 million in FY98 as a result of Massachusetts' investment in education. [See Section 5] • Thefoundation budget does not mandate spending in a specific category. However, to encourage appropriate levels ofspending, M.G.L. Ch. 70 § 9 requiresthat a school district reporttothe Commissionerof Education when it hasfailed to meetfoundation budget spending levelsforprofessional development, books and instructional equipment, extended/expanded programs and extraordinary maintenance. Although APS did not meetthese levelsfrom FY94through FY98 in all areas except books and equipment and professional development in FY98, it did notfile a report as required by lawnordid DOE direct itto do so. [See Section 7] STUDENTACHIEVEMENT • APS test scores have shown generallygood results and are generally nearorabove state averages. Recently released MCAS scores showthatAPS scored abovethe state average scaled scoresforgradesfour, eight, and ten, exceptforMath and English, which was slightlybelowthe state average. SAT scores have generally been just slightly lowerthan the state average over recentyears. MEAP scores are above the state averages forgrades4 and 10 and significant improvement has been shown, especially in the area of grade fourproficiencyscores. [See Section 16] GOVERNANCE AND MANAGEMENT POWERS • APS has a superintendent, a deputysuperintendent (business manager), and an assistant superintendentforcurriculum and instruction. The Superintendent is in his fourth yearatAPS. • APS uses individual contractsforschool principals. The contracts are generallyfor three years in length and statethe base-yearsalary. Annual salary increases aretied toteachers' contract increases. The Superintendent evaluates principals in writing at the end oftheyear. [See Section 17] • The Superintendent meetstwice monthlywith administrators and principals. In addition, hevisits each school weeklyand may meet informallywith the principal atthat time. [See Section 17] Executive Order393- Education Management Accountability Board 3 April 2000 Agawam Public Schools Review STUDENT/FTETEACHER STAFFING • Between FY93 and FY98, thetotal numberofteaching PTE's increased by 14.9, or5.9 percent, from 250.8to 275.7. The all students/all PTE teachers ratio increased during this same period from 15.2to 16.7. The PY93 ratiowas higherthan the State average of 15.1. The PY98 ratiowas higherthan State average of 14.2. [See Section 8] TEACHER COMPENSATION • APS increased its expendituresforsalaries by$3.9 million between PY93 and PY98, an increase of34.3 percent. This increase is 7.3 percentage pointsabovethe27 percent increase intotal school districtexpenditures duringthe same period. Total salaries made up 54.5 percentofthese expenditures in PY93 and increasedto 57.6 percent in PY98. TheAPS averageteachersalaryforFY98was $42,656, belowthestate average of$42,874. [See Section 9] PROFESSIONAL DEVELOPMENT • APS has metthe professional development legal minimum spending requirementsfor FY95through PY98, but has not metthe foundation budgettargetsforPY94to FY98. Expenditures in FY96 represented 273.8 percent ofthe minimum legal spending requirement and decreased to 116.9 percent in PY98. [See Section 10] TIME AND LEARNING • APS met DOE'S time requirement of990 hours peryearforhigh schools, 900 hours peryearforjuniorhigh, middle, and elementaryschools. [See Section 12] DISTRICTISSUES • During FY99theAPStechnologycommittee only met once. AsofJuly 1, 1999 the City has a network administratorsplittingtime with the schools and City. The Superintendent asked the network administratorto set up a newtechnologycommittee. As ofOctober20, 1999 a date had not been setforatechnologycommittee meeting. Formalization ofthe networkadministrator's role in the school districtwould ensure continuityofservicestothe APS schools. • School improvement plans do not have districtwide goals incorporated in them. Plansvary in scope, content and quality. Currentschool improvement plans do not include mission statements, measurable goals, and timetables. Plans do not illustratethat measurable progress has been made on accomplishing school council goals. There is littleto be follow-up eitheratthe district level orthe school level astothe accomplishment ofgoals. Plans do addresstesting, parental involvement, curriculum frame works and professional development and reflect active parental and community involvement. Executive Order393- Education ManagementAccountability Board 4 April 2000 Agawam Public Schools Review BEST PRACTICE • Through the Mayor's budget each school council receivesfunds based on enrollment. Fundsfor FY99 range from $6,700 forand elementary school to $25,400 forthe high school. These school council budgets provide newly elected school councilswith the resourcesto accomplish some oftheirobjectiveswithout having to waitforthe next budgetcycle. Establishing this budget hasfacilitated a more active roleforschool councils. • In an effortto control special education expenditures, APS hasfully implemented the Instructional SupportTeam (1ST) process intwo ofthe elementaryschools in the school district in FY99, and partially implementedthe process in the othertwo elementaryschools. The 1ST is composed ofteachers, the principal, counselors and parents ofthe student involved. The purpose ofthe 1ST isto attemptto remedy anyacademic orbehavioral concerns ofthe student before a SPED referral is made. Auditee's Response The auditteam held an exitconference with the Superintendent and his staff on Friday January7, 2000. Theteam invited APSto suggest specifictechnical corrections and make aformal written response to the report byWednesdayJanuary 12, 2000. A response was received and changeswere made in the report as a result. Review Scope In preparation forthe school district reviews, the auditteam held meetings with officials from DOE; the State Auditor's Office and otherstatewide organizations such asthe MassachusettsTaxpayers Foundation, the Massachusetts Municipal Association, and the Massachusetts Association of School Superintendents. The auditteam also read published reports on educational and financial issuesto prepareforthe school district reviews. The auditteam metwith the private auditfirm that conductsfinancial audits ofAPS. In addition, DOE provided data including the EOY reports, foundation budgets, and evaluations oftest resultsforAPS students, aswell as statewide comparative data. The DOR'S Division of Local Services Municipal Data Bank provided demographic information, community profiles, and overall state aid data. While on site, the auditteam interviewed officials including, but not limited tothe school committee chairman, the Superintendent, the Business Manager, and all principals. Documents reviewed included vendorand personnel contracts, invoices, payroll data, and statistics on students and teachers as well astest results and reports submitted to DOE. In keeping with the goals set out bythe EMAB, the school district reviewwas designed to determine whetherornot basic financial goals related to education reform have been met. The auditteam gathered data related to performance such astest scores, studentto teacher ratios and class sizesto show results and operational trends. However, this report Executive Order393-Education ManagementAccountability Board 5 April 2000 Agawam Public Schools Review does not intend to present a definitive opinion regardingthe qualityofeducation in APS, or its successes orfailures in meeting particulareducation reform goals. Rather, it is intended to present a relevant summaryof datatothe EMABforevaluation and comparison purposes. The focus ofthis reviewwas on operational issues. Itdid notencompass all ofthetests that are normallypartofayear-end financial auditsuch as: reviewof internal controls; cash reconciliation ofaccounts; testing compliancewith purchasing and expenditure laws and regulations; and generallyaccepted accounting practices. The auditteam testedfinancial transactions on a limited basis only. The auditteam also excluded federal grants, revolving accountsand studentactivityaccounts. The auditteam did notteststatistical data relating to enrollment, testscores and othermeasures ofachievement. This report is intended for the information and use of EMAB and APS. However, this report is a matterof public record and its distribution is not limited. General Conditions and Findings III. Agawam Overview 1. The Division of Local Servicesclassifiesthe CityofAgawam as a growth community. It h1a99s0a. 1T9h9e6ppooppuullaattiioonnooffA26g,a7w2a1m, uips 917..714 ppeerrcceennttwfhriotme,19ac8c0oradnidngdotown1929.02 pUeSrcCeenntsfursom information. Also in 1990, ofthe 27,323 residents ofAgawam, 12,886 were between 15 and 44 years old. Just lessthan two-thirds ofthe households atthattime were married couple households. Historically, Agawam has been an agricultural community. Currently, the largest employers in Agawam, exclusive ofthe town, are the Heritage Hall West Nursing Homewith 465 employees, and Olympic Manufacturing with 200 employees. In 1999, thetax levy in Agawam accounted for50.1 percent of its revenue source (state aid made up another30.4 percent ofthose revenues). According to 1990 US census information, 70.3 percent ofthe dwellings in Agawam were single-family units. Charts 1-1 and 1-2showsome keydemographic and economic statisticsforAgawam. Executive Order393- Education ManagementAccountability Board 6

See more

The list of books you might like

Most books are stored in the elastic cloud where traffic is expensive. For this reason, we have a limit on daily download.