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

72 Pages·2000·3.2 MB·English

by  Massachusetts. Education Management Accountability Board

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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.
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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.
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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
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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]
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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.
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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
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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
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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.
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