Braintree public school review : executive order 393 : Education Management Accountability Board report

82 Pages·1999·3.8 MB·English

by  Massachusetts. Education Management Accountability Board

* UMASS/AMHERST *
MassachusettsDepartmentofRevenue DivisionofLocalServices
hredenckA.LasKey, Commissioner JosephJ.Chessey,Jr.,DeputyCommissioner
GOVERNMENT DOCUMENTS
COLLECTION
OCT 2^9 1999
University of Massachusetts
Depository C.py
Braintree Public Schools Review
Executive Order 393
Education ManagementAccountability Board Report
March 1999
EDUCATION MANAGEMENTACCOUNTABILITY BOARD
Michael Sentance, Chairperson
RobertAddelson
PeterNessen
Mark Roosevelt
Hugh Scott
Carmel Shields
AlisonTaunton-Rigby
SamuelTyler
ACKNOWLEDGEMENTS
Administration & Finance
Andrew Natsios, Secretary
Kristen Keel, Undersecretary
Jill Reynolds, SpecialAssistant
Massachusetts DepartmentofRevenue
FrederickA. Laskey, Commissioner
Joseph J. Chessey, Jr., Deputy Commissioner
Gerard D. Perry, Associate DeputyCommissioner
TABLE OF CONTENTS
INTRODUCTION 2
I.
EXECUTIVE SUMMARY 2
II.
GENERALCONDITIONSAND FINDINGS 7
III.
1. BraintreeOverview 7
2. SchoolFinances 12
3. SchoolCommitteeBudgetTrend 13
4. TotalSchoolDistrictExpenditures 14
5. NetSchoolSpendingRequirements 15
6. SchoolCommitteeProgramBudget 17
7. FouNDAtionBudget 20
8. Staffing-Full TimeEquivalent(FTE) Trends 21
9. Payroll-SalaryLevels, UnionContracts 25
10. ProfessionalDevelopmentProgram 29
11. SchoolImprovementPlans 31
12. TimeandLearning 31
13. CoursesandClassSizes 32
14. TechnologyANDComputers 32
15. Suppliesand Textbooks 33
16. TestScores 34
17. ManagementandPersonnelPractices 40
18. AccountingandReporting 42
19. ReviewofExpenditures 43
20. HighSchoolAccreditation 43
21. Grade3 Transiency. 45
22. SpecialEducationand TransitionalBilingualEducation 46
23. DropoutAND Truancy 47
24. MaintenanceandCapitalImprovement. 48
25. CurriculumDevelopment 49
IV. EMPLOYEE SURVEY 50
V. SUPERINTENDENT'S STATEMENT-EDUCATION REFORM 51
VI. APPENDIX 52
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March 1999 Braintree Public Schools Review
Introduction
I.
The Massachusetts Education ReformAct(MERA) of1993 hasthree majorgoals: to
increase studentachievement; to achieve adequatefunding forall local and regional
school districts overa seven-yearperiod; and to bring equityto localtaxation efforts based
on a community'sabilityto pay. In February 1997, the Governorissued Executive Order
393to evaluatetheeducation reform programthatwas nearing theend ofitsfourthyear.
In FY98, Massachusetts General Laws (M.G.L.) Ch. 70 state aid foreducation reached
$2.3 billion. With an investmentofthis magnitude inthe Commonwealth'sschools, itis
criticalto "review, investigateand reportontheexpenditures offunds byschooldistricts,
including regional school districts, consistentwiththegoalsofimproving student
achievement." Tothatend. Executive Order393established the Education Management
Accountability Board (EMAB).
The SecretaryofAdministration and Finance, serving aschiefofstafftothe EMAB,
selected a team ofauditorsfromthe DepartmentofRevenue's (DOR) Division ofLocal
Services (DLS) to conductthe school district reviews. DOR's DirectorofAccounts isthe
chiefinvestigatorwith authoritytoexamine municipal and school departmentaccountsand
transactions pursuantto M.G.L. Ch. 44, §§45 and 46A. The reviewsare conducted in
consultation with the StateAuditorand the CommissionerofEducation.
The Braintree PublicSchools (BPS) isthe seventh school districtreviewed underExecutive
Order393. The auditteam began the reviewofBPS in October 1998, and completed it in
November 1998. As partofthis review, the auditteam conducted a confidential surveyof
employees ofthe school districtand included the results in this report. School officials
cooperated fullywiththe auditteam.
The Executive Summary includes some ofthe more significantobservations andfindings of
the reviewofBPS's operations. When possible, the auditteam has identified and
presented bestpracticeswhich may be adapted byotherschool districts. The report
discusses all results, bestpractices and deficiencies, ifany, in greaterdetail in the
"General Conditions and Findings" section.
II. Executive Summary
Findings
Thefindings are grouped intoseveral broad categories addressed inthe Education Reform
Act: the Foundation Budget, StudentAchievement, Governance and Management
Powers, Student/FullTime Equivalent(FTE)TeacherStaffing, TeacherCompensation,
Professional Development, Timeand Learning, District Issues and Best Practices.
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SUMMARY
BPS increased its combined municipal and school committeeschool districtspending by
$4.9 million from FY93through FY97, from $24.8 millionto $29.7 million. Increased
funding has been utilized forthe hiring ofteachers and rising special needs program costs.
This has enabled BPSto achieve an overall low 14:1 studenttoteacherratio. However,
foundation budgetspending in fourkeyareas is significantly belowfoundationtargets and
professional developmentspending does notmeet minimum perstudentspending
requirements established by law.
School improvementplans appearto be used as a managementtool and include
systemwidegoalsgeared toward studentachievement. From an employee survey itis
evidentthat teachers aregenerallyclearabouteducation reform related goals and
objectives set bythe administration. Principals are all underthreeyear individual
contracts. Performance evaluations are used butsalary increases do notappearto betied
to performance. BPS appearsto be making a reasonable effortto align its curriculumto
the state curriculumframeworks.
BPStestscores generallyexceed the state averages. In 1996, grades4, 8 and 10 MEAP
scores exceeded the state averages significantly in reading and social studies. The
recently released MCAS scores showthatthe districtscored abovethe state average
scaled scoresforall grades in all areas.
THE FOUNDATION BUDGET
• BPS has exceeded the netschool spending requirements as determined bythe
DepartmentofEducation (DOE) forFY94through FY98. In FY98, the district's local
and state percentages ofactual netschool spending were 89.5 percentand 10.5
percent respectively. FY97 salaries accounted for75.2 percentoftheschool operating
budget. [See Section 5 and AppendixA-1]
• FY97 SPED costs on a program basis accounted for$4 million or 15.6 percentofthe
school budgetexcluding transportation and increased to $4.7 million or 17.5 percent in
FY98. [See Section 6]
• Thefoundation budgetdoes not mandate spending in anyspecificcategory. However,
to encourage appropriate levels ofspending, M.G.L. Ch. 70, §9 requiresthata school
district reporttothe CommissionerofEducation when it hasfailed to meetfoundation
budgetspending levelsforprofessional development, books, instructional equipment,
extended/expanded programs and extraordinary maintenance. Although BPS did not
meetthese levelsfrom FY94to FY97, itdid notfile a reportas required by law nordid
DOE direct ittodo so. Total spending exceeded thetotalfoundation budgetforFY94
to FY97. [See Section 7 and Appendix B1]
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STUDENTACHIEVEMENT
• BPStestscores are generallyabovethestate average. Recently released MCAS
scoresshowthat BPS scored abovethe state average scaled scoresforall grades in
all areas. SATscoresfor 1997 exceeded the state average by 10 points. MEAP
scoresfor 1996exceeded state averages by morethan 50 points in reading and social
studies. The 1997 statewide Iowatests indicated that86 percentofBPSgrade 3
studentsscored atthe higherreading skill levelsof"proficient"and "advanced"versus
thestate average of75 percent. BPSgrade 10 students scored atthe68th percentile
inthe Iowa achievementtestwhen compared to a representative national sampleof
students. [See Section 16 and AppendicesC and D]
GOVERNANCEAND MANAGEMENT POWERS
• The Superintendentconducts monthly meetingswith administrators, principals,
curriculum directors and departmentheads. Issuesdiscussed inthese meetings
includetestscores, school safety, professional development, school improvements and
systemwide objectives. Principals and curriculum directorsfollow-upwith teachersto
continuetheflowofinformation encouraging feedbackand newideas. [See Section
17]
• Administratorsand principalswork underindividualthreeyearcontracts. Contracts are
similarin structureand content. They include general languageforperformancegoals
and annual evaluations. Specificgoals and evaluation criteria are notpartofcontracts
butare agreed to bythe principals and the Superintendentannually. Evaluation
proceduresare utilized bythe Superintendent. Principals have had individualthree
yearcontractssince 1995with stated annual increases usuallytied to union contract
percentage increasesforteachers and otherstaff. The Superintendent is nottaking
advantage ofthe managementtoolsgranted to him bythe Education ReformActsince
salary increases are nottied to performance. [See Section 17]
STUDENT/FTETEACHER STAFFING
• Between FY93 and FY97, thetotal numberofFTEteachers increased by36.1, or 12.2
percent, from 296.9to 333.0. As a result, the all students/all FTEteachers ratio
declined from 15.3:1 in FY93to 14.3:1 in FY97, a positivetrend foreducational
achievement. This ratio issignificantly lowerthan the state averageof18.1:1. [See
Section 8]
TEACHERCOMPENSATION
• Between FY93 and FY97, expendituresforsalaries rose $4.6 million or26.6 percent.
Total teaching salaries rose $3.1 million or24.8 percent, reflecting additional spending
fornewstaffaswell as pay raises inteachers' contracts. Union contractannual
increases plus step increasesforteachers have increased by44.5 percentforthefive
yearperiod
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March 1999 Braintree Public Schools Review
• 1993to 1997. Thedistrict FY97 averageteachersalary reported to DOE of$45,694
was $2,820 or6.6 percenthigherthan the state average of$42,874. [See Section 9]
PROFESSIONAL DEVELOPMENT
• BPS has notmetthe professional development legal minimum spending requirements
forFY95to FY97 northefoundation budgettargetsforFY94to FY97. Expenditures in
FY94 represented only4.7 percentofthefoundation budgetforprofessional
developmentand 27.1 percent in FY97. [See Sections 7 and 10]
TIMEAND LEARNING
• BPS met DOE'S high schooltime requirementof990 hours peryearforthe 1997/98
school yearwith a schedule of994 hours. The middle school standard of900 hours
was exceeded by between 23 hoursand 99 hours and theelementaryschool standard
of900 hourswasexceeded by between 15 hours and 60 hours. [See Section 12]
DISTRICT ISSUES
• In verifying the accuracyoftheenrollment numbers, the auditteam noted a variance
betweenthe numbers maintained by BPSenrollmentsystem and those reported to
DOE on the October 1st foundation enrollment report. Specifically, the reviewofthe
data revealed that reportsfor FY95, FY96 and FY97were understated bya combined
total of215 studentsdue mostlyto a failureto includetuitioned-outstudents. This
reduced BPS state aid byan estimated $13,825totalforthesethreefiscal years.
• In verifying the accuracyofbudget recordstoexpenditure reports submitted to DOE,
the auditteam noted thatschool related capital budgetexpenditures appropriated inthe
town budgetwere not reported correctly in theend-of-year reportfrom FY89through
FY98. The auditteam determined thatcertain unreported expenditures should have
been reported as netschool spending and suggested thatthetown accountantand
school directorofcomputerservices conveneto correctthe FY98 submission using
DOE'S reporting requirements. The BPSdirectorofcomputerservices has been
completing this report in lieu ofthe business manager. BPS has recently hired a
business managerand preparation offuture reportswill be his responsibility.
BEST PRACTICES
• Communication and coordination efforts playa key role in developing and implementing
BPS instructional programs. The Superintendentmeetsthreetimes peryearwith all
school administrators as a groupto addressthefollowing criteria: firstto develop, next
to reviewand finallyto recommend newsystemwide objectives. The school committee
reviews and approvesthese objectives. Both principals and curriculum directors must
submita plantothe Superintendentto achievetheirgoals. Administrators encourage
feedbackfrom staffduring the implementation process. The Superintendentfollows-up
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on implementation byconducting monthly meetingswith administrators in smaller
groups. [See Section 17]
• BPS hasdeveloped programsforstudentswith substantial learning difficultiesthatoffer
toeducate students intheirhome community ratherthan tuitioning them outto a
collaborative orprivateschool setting. These programs providestudentswith a less
restrictiveenvironment, aswell as, accountforconsiderablecost-containment. [See
Section 22]
• BPS hasa homework policywhich includesobjectives and timeframesforexpected
homeworkattheelementary, middle and high school levels. Italso includesguidelines
forparents, teachers and administrators. The policy has been in useforovera decade
and has been revised periodically. Administrators meetduring the school yearto
reviewstudentadherencetothe policy. Parents are senta copyofthe policyatthe
beginning oftheschoolyearand it is discussed on parents nightand in monthly
newsletters. Parentalfeedback isencouraged bytheSuperintendentand is usedto
reinforcethe policy.
• InApril 1998, BPS instituted a strictstudentpolicyconcerning use orpossession of
tobacco products. According tothe policy, studentsfound smoking orin possession of
tobacco products on school grounds aresuspended and fined forthefirstoffense. The
fineforthefirstoffense maybewaived ifthestudentparticipates in asmoking
cessation program run byan accredited school nurse. Thesuspensiontimeand
mandatorydollarfine increaseswith successive offenses. This school year, there have
been onlyfoursmoking related offenses reported ascompared toover70 inthe last
two schoolyears. Itis noteworthythatthe BPS studentcouncil madethe requestfora
strong anti-smoking policy.
Auditee's Response
The auditteam held an exitconferencewith the Superintendentand the assistant
superintendenton December21 1998. Theteam invited BPSto suggestspecifictechnical
,
corrections and make aformalwritten response. Commentswere received, changeswere
made as a resultofthese comments, and a revised reportwas provided tothe
Superintendent. The Superintendentprovidedfurthercommentswhich are contained in
Appendix H.
Review Scope
In preparationfortheschool district reviews, theauditteam held meetingswith officials
from DOE, the StateAuditor's Office and otherstatewideorganizationssuch asthe
MassachusettsTaxpayers Foundation, the Massachusetts MunicipalAssociation andthe
MassachusettsAssociation ofSchool Superintendents. The auditteam also read
published reports on educational and financial issuesto prepareforthe school district
reviews.
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Theauditteam metwiththe private auditfirm thatconductsfinancial audits ofBPS. In
addition, DOE provided data including the end-of-yearreports, foundation budgets,
evaluations oftest resultsforBPS students, aswell as statewide comparative data. The
DOR'S Division ofLocal Services Municipal Data Bank provided demographic information,
community profiles and overall state aid data. While on site, the auditteam interviewed
officials including, butnot limited to, the school committee chair, the school
Superintendent, the assistantsuperintendent, thedirectorofcomputerservices, curriculum
directors and principals. Documents reviewed included both vendorand personnel
contracts, invoices, payroll data, statistics on students and teachers aswell astest results
and reports submitted to DOE.
In keeping with thegoalssetout bythe EMAB, the school district reviewwas designed to
determinewhetherornot basicfinancial goals related to education reform have been met.
The auditteam gathered data related to performance such astestscores, studentto
teacherratios and class sizesto show results and operationaltrends. However, this report
does not intend to presenta definitive opinion regarding thequalityofeducation in BPS, or
its successes orfailures in meeting particulareducation reform goals. Rather, it is intended
to presenta relevantsummaryofdatatothe EMABforevaluation and comparison
purposes.
Thefocusofthis reviewwas on operational issues. Itdid notencompass all ofthetests
thatare normally partofa year-end financial auditsuch as: reviewofinternal controls;
cash reconciliation ofaccounts; testing compliancewith purchasing and expenditure laws
and regulations; and generally accepted accounting practices. The auditteamtested
financial transactions on a limited basis only. The auditteam also excluded federal grants,
revolving accounts and studentactivity accounts. The auditteam did notteststatistical
data relating to enrollment, testscores and othermeasures ofachievement. This report is
intended forthe information and use ofEMAB and BPS. However, this report is a matterof
public record and its distribution is not limited.
III. General Conditions and Findings
1. Braintree Overview
Thetown ofBraintree is classified as an economicallydeveloped suburb by DOE. Its 1996
population was 34,708, up 2.6 percentfrom 1990 butdown 4.5 percentfrom 1980. It is
located approximately 12 miles south ofBoston and is governed by afive memberboard of
selectmen, an executive secretaryand a representativetown meeting. Thetown owns and
operates a selfsupporting watersupplyand distribution system and a selfsupporting
electricgenerating and distribution facility. Health South/Braintree Hospital, Braintree's
largestemployer, employs 1,400 people. Thetown's largesttaxpayerand ownerofthe
South Shore Plaza, Braintree Properties, wasvalued in FY98 at$127.6 million, or5.5
percentofthetown'staxablevalue.
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Like many Massachusettsschool districts, Braintreefaced budgetary pressures intheearly
1990's as a resultofan economic recession and the associated decline in municipal state
aid foreducation and infinancial contributionsto schools. Consequently, Braintree
experienced a budgetreduction in FY93 and found itnecessaryto reducethe numberof
total PTEs.
Charts 1-1 and 1-2showsome keydemographicand economicstatisticsforBraintree.
Chart 1-1
Town ofBraintree
Demographic Data
1996 Population 34,708
FY98 Residential Tax Rate $12.87
FY98Average Single FamilyTax $2,055
FY98Avg. AssessedValue PerSingle Family $159,656
FY98Tax Levy $40,420,594
FY98 StateAid $10,601,788
FY98 StateAid as % ofRevenue 14.6%
1989 PerCapita Income $18,624
1996Average Unemployment Rate 3.9%
Note: DataprovidedbyDLS
BPS has participated inthe Metropolitan CouncilforEducation Opportunities, orMETCO
program, since 1966. METCO, established in 1963, is avoluntaryprogramthatoffers
minoritychildren from Boston an opportunityto attend suburban schools. Braintreewas
reimbursed $237,000 in FY98 state aid forits participation in METCO.
As ofourauditdate, the Superintendent has been in this positionfor8years, the assistant
superintendent hasworked forBPSfor35yearsand the business managerwas hired this
school year. BPS informed theauditteamthatthe assistantsuperintendent had been
performing the duties ofbusiness managersincethatperson's retirement 14 yearsago.
However, increased responsibilities uponthe assistantsuperintendentgeneratedthe need
toseparatethis responsibilityand reappointa business manager.
Theassistantsuperintendentreportsdirectlytothe Superintendentasdothe business
managerand principals. Thedirectorofcomputerservicesand curriculum directors report
directlytothe assistantsuperintendent. This line ofreporting is understood bythose
involved eventhough theorganization chartdoes notclearly reflectthis structure. The
auditteam recommended to BPSthatitsorganization chartbe reviewed and adjusted
accordingly.
As ofourauditdate, BPS consists of1 high school, 2 middle schools, 7 elementary
schools and 1 kindergarten satellite school. Thetown belongstothe Blue Hills regional
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