Feasibility report for a Collierville Municipal School District

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Table of Contents
ExecutiveSummary...........................................................................................................................................1
IntroductiontotheStudy..................................................................................................................................3
FeasibilityStudyMethodology...........................................................................................................................5
ABriefReviewoftheLiteratureandResearchRelatedtoEnrollmentSizeinSchoolDistricts.............................9
OverviewofTennesseeEducationalFinanceSystem.......................................................................................15
BasicEducationProgram(BEP)...........................................................................................................15
ShelbyCountyPropertyTax................................................................................................................17
LocalOptionSalesTax.........................................................................................................................19
RequiredMunicipalityFinancialRevenueSupportand“MaintenanceofEffort”Requirement.......20
LegalandRegulatoryIssuesRegardingMunicipalSchoolDistricts....................................................................21
HistoryofPastPracticeRegardingSchoolFacilityTransferinShelbyCounty...................................62
WatkinsUiberall,PLLCReport............................................................................................................64
MunicipalPublicSchoolSystemsCurrentlyOperatinginTennessee................................................................69
DemographicsandGovernmentalCharacteristicsofCollierville,Tennessee....................................................75
ProjectedColliervilleSchoolDistrictAverageDailyMembership(ADM)StudentEnrollment...........................76
OverviewofEssentialAcademicProgramandOperationalRequirements.......................................................77
CentralOfficeOrganizationalStructure..............................................................................................77
EmploymentofaSuperintendentofSchools.....................................................................................79
CertificatedPersonnelStaffing...........................................................................................................80
ClassifiedPersonnelStaffing...............................................................................................................81
SupportServices..............................................................................................................................................82
SchoolNutrition..................................................................................................................................82
SchoolTransportation.........................................................................................................................83
InstructionalTechnology.....................................................................................................................84
MaintenanceandOperations.............................................................................................................85
CustodialServices...............................................................................................................................86
FiscalRequirements........................................................................................................................................87
ProjectedRevenues............................................................................................................................87
ProjectedExpenditures.......................................................................................................................93
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SummaryandConsiderations........................................................................................................................124
FrequentlyAskedQuestionsRegardingthePotentialCreationofNewMunicipalSchoolDistrictsinShelby
County,Tennessee........................................................................................................................................129
AppendixA:ColliervilleSchoolMap...............................................................................................................132
AppendixB:ShelbyCountySchoolsFive-YearCapitalImprovementPlan.......................................................134
AppendixC:EstimatedProceedsfromAdditional½CentLocalOptionsSalesTax..........................................136
AppendixD:LocalSalesTaxCollections.........................................................................................................138
AppendixE:DutiesofaTennesseeSuperintendentofSchools(TCA§49-2-301)............................................140
AppendixF:ColliervilleBEPAllocationsandSummaryofBEPFundingResearch............................................146
AppendixG:EstimatedNewSchoolConstructionCosts.................................................................................152
AppendixH:PublicChapter1........................................................................................................................155
AppendixI:TennesseeDepartmentofEducation-2010–2011StateMandatedMinimumSalarySchedulefor
“Superintendents/Directors”.........................................................................................................................157
AppendixJ:2011ReportCard........................................................................................................................159
AppendixK:StateMandatedMinimumSalaries............................................................................................161
AppendixL:2011–2012ShelbyCountySchoolsSalarySchedule....................................................................163
AppendixM:2011–2012MemphisCitySchoolsSalarySchedule...................................................................165
AppendixN:Tenn.CodeAnn.§49-2-203-DutiesandPowersoftheBoardEducation..................................167
AppendixO:Chancellor’sOpinion.................................................................................................................177
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AReportontheFeasibilitytoForma SchoolDistrictfortheMunicipalityofCollierville,
Tennessee
Prepared fortheMayorandBoardofAldermen:
MayorStanJoyner,Jr.
Alderman Maureen Fraser……………….....Position1
AldermanBillyPatton……………………...Position2
AldermanTonySarwar……..........................Position3
AldermanTomAllen……............................ Vice-Mayor,Position4
AldermanJimmyLott……………...….........Position5
TownAdministrator……………………… James Lewellen
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ExecutiveSummary
In September2011, SouthernEducationalStrategies, LLC(SES)was contractedas aconsultant
todevelopafeasibilitystudyfortheTownofColliervilleregardingthepotentialestablishmentofa
municipalschooldistrict. SESagreedtoperformthereasonablynecessaryanalyses andresearchto
furnishthemunicipalityareportthatincludedthe followingcontent:
a. Ananalysisofcurrentlegalandregulatoryrequirementsandissuesreasonablyexpected
toariseshouldthemunicipalitychoosetoestablishamunicipalschooldistrict;
b. Anoverviewoftheessentialacademicprogramandoperationalprogramrequirements
thatthemunicipalitycouldreasonablyanticipateencounteringshouldthemunicipalitychooseto
establishamunicipalschooldistrict,alongwithsuggestedcoursesofactiontosuccessfullymeetthose
requirements,provided, however,thatthefeasibilitystudyislimitedtothecreationof amunicipal
schooldistrictandnotits ongoingoperation;
c. Ananalysisofthefiscalrequirementsand a2011 estimateofthetotalannualgeneral
operationalrevenues and expenditures (priced atacurrentdollarvalue)thatthemunicipalitycould
expecttoreceiveandincurshoulditchoosetoestablishamunicipalschooldistrict.
Theanalyses andresearchperformedbySESand its associatesledtothefindingssummarized
asfollows:
a. Withregardtolegaland regulatoryissues,itis opinedthatColliervillehastheauthority
tocreatea municipalschooldistrictas providedinPublicChapter1ofthe2011ActsofTennesseethat
revivedthepowerofmunicipalities tocreatemunicipalschooldistricts. Becausethislegislationdid
notaddresstransferof facilitiesfromtheShelbyCountySchoolstoamunicipality,aninformedlegal
opinionisofferedbased onpertinentcaselaw,theessenceofChapter1, andthehistoryofpast
practices regardingschoolfacilitytransferin ShelbyCounty.Basedonthislegalresearch,itisthe
opinionofSESandits attorneysthataColliervillemunicipalschooldistrict has thelegalauthorityto
receivetransferofandcontrolofschoolfacilities nowlocatedwithinits boundariesandtohavethat
transferoccur withouttheimpositionofcostswithrespecttothosefacilities.
b. Withregardtooperationalissuesconcerningthefeasibilityofanew municipalschool
district’sabilitytooffereducationalopportunitiescomparableto existingShelbyCountySchools
programs,anintensiveanalysisandprojectionofAverage DailyMembership(ADM)enrollmentdata
wasconductedfollowed byafiscalandbudgetaryanalysis.Thisanalysis ledtothefindingthata
sufficientenrollmentwouldexisttoprovideacomparableeducationalprogram.Theleadersofthe
TownofColliervillestatedastrongdesiretocreateaschooldistrictthatplacesstudentsasthetop
priorityandpermitsstudentstoattendtheircurrentschools solongasinstructionalspacepermits.
Therefore,theseprojectedenrollmentdataforschoolswithinColliervilleincludeallcurrentpublic
schoolstudentswhoresidewithintheTownofColliervilleanditsannexationreserveareas.Also
includedarestudentswhoarecurrentlyzonedtoattendBaileyStationElementaryandwho resideina
futureCityofMemphis annexationarealocatedeastofHacksCross Road, plus studentswhoare
currentlyzonedtoattend TaraOaksElementaryandwhoresideinafutureCityof Memphis
annexationarealocatedsouthofMaconRoad.Thesearestudents whocurrentlyresideoutsideof
Colliervillebutwhoarenowzonedtoattendoneoftheschoolslocatedin Collierville.As reported by
categories usedintheTennesseeStateDepartmentofEducation ReportCard,theprojected
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Colliervillemunicipalschooldistrictracialandethniccompositionwillbe:African American15.9%,
American Indian.07%, Asian8.55%,Hispanic3.43%,Multi-racial1.7%, PacificIslander.07%,and
White70.28%. Therefore,withaprojectedtotalof7591students,itisfeasibletooffer aneducational
programthatincludestherequisitecurriculumstaffedbysufficientnumbersofqualifiedteachers,
administrators,supportpersonnelsuch ascounselorsandsubject matterexperts,officepersonnel,
instructionaltechnologypersonnel,inadditiontoothercriticalareas suchastransportation,nutrition
services,maintenanceandoperations,andcustodialservices.Current(2011–2012)ShelbyCounty
Schoolsaverageteacher salariesandbenefits wereusedinpersonnelcostestimatesbecausenew
districtswillbelegallyrequiredtoprovidethesameteachersalaries.
c. Analysisoffiscalrequirementsconcernedprojectedrevenues andrevenuesources that
mightbeanticipated forthenewdistrictaswellas projectedexpenditures.Revenuegenerationfocused
onfundsderivedfromlocalandstatesourcesthat wouldsupporttheoperationalcomponents(federal
programfundsandnutrition-relatedoperations areas are “pass-through”fundsandwerenotincluded).
Fiscalissuesassociatedwitheducationexpenditures employeddetailedtemplates thatpresentthe
estimated requiredoperatingcostsrequiredtocreateaneducationalprogramcomparabletothat
providedbythecurrentShelbyCountySchools.TennesseeStateBoardofEducationrulesrequire
municipalschooldistrictstospendaspecified minimumamountoflocalfundsforschooloperations.
Thisrequiredspendingamountwas calculatedbaseduponthetotalrevenuethatwouldbeproduced by
anadditionalfifteen (15)centsincreaseintheColliervillemunicipalpropertytax.However,detailed
analyses ofotherlocalrevenuesourcesrevealedthatthelocal spendingrequirementforaCollierville
municipalschooldistrictalsocouldbeaccomplishedwitha½centincreaseinthelocaloptionsales
tax rate.A½ centlocaloptionsalestax rateincreasecouldreduceoreliminatetheneedforany
increaseinTownofColliervillepropertytaxes. Theseanalyses ledtothefindingthatanewmunicipal
districtwasfiscallyfeasible.Fulldetails arefoundintheFiscalsectionandintheSummaryand
Recommendations sectionofthisdocument.
Thedetailedanalysesof legal,operational,andfiscaldataaspresentedinthebodyofthe
feasibilitystudy report regarding thepotentialcreationof a municipal schooldistrictinthe
TownofColliervilleleadtotheconclusionthatformationofsuchaschooldistrictis feasible.
Becauseofthecomplexityassociatedwiththecreationofanewschooldistrict,anumberof
recommendations wereofferedwithinthestudythatmayguidefutureactionbytheCollierville
leadershipleadingto asuccessfulschooldistrictopeninginAugust2013.
TheSouthernEducationalStrategies, LLCteamstronglybelieves thatallpublicschool
operationsanddecisionsshouldbemeasuredinstudentbenefits.Concernsforthebestinterests of
childrenhaveguidedthedevelopmentofandtherecommendationsfoundinthis study.Theauthors
hopethatthedataandinformationprovidedhereinwillleadtodecisionsthatservethebestinterests of
theyoungpeoplewho mayreceiveapubliceducationinthis municipality.
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IntroductiontotheStudy
Thepurposeofthisstudy,assubmittedbySouthernEducationalStrategies, LLC,istoprovide
thecitizensofColliervillewithdataandinformationthatwillassisttheirdecisionregardingthe
formationofamunicipal schooldistrict.Thestudyaddressesthreekeycomponents:legal and
regulatoryissues,operationalissues,andfiscalissues. Webelievethatthesetopicsarecentralto
informeddecision making. We alsorecognize,however,thatthefinaldecisionregardingtheformation
ofamunicipalschooldistrictshouldanddoes residewiththelocalcitizens.
Educationiscontroversialbutcontroversycanleadtochangeandimprovement.Various
viewpointsregardingschooldistrictorganizationandsizehavebeenvoicedforwelloveracentury.In
manyrespects,theconcerns arerelatedtothetopicoflocalcontrolofeducation.InourUnitedStates,
unlikemanynations,educationiscontrolledbytheindividualstatesratherthanthefederal
government. TheabsenceofanyreferencetoeducationorschoolingintheUnitedStatesConstitution,
alongwiththeTenthAmendment,renderseducationastatefunction.Astherespectivestates
organizedtheirlocalsystems of education,over13,000regularpublicschooldistrictsresulted(asof
2008-09),eachwiththeir ownboardof education, policies,procedures,curricula,andadministrative
structures.
Clearly, educationalexcellenceis centraltoourdemocraticformof governmentand canleadto
prosperityandopportunity. Proponents oflocal governance,especiallythroughsmallerdistrict
organization,believethat educationisenhancedthrough areductioninthebureaucracyassociatedwith
largerdistricts. Asmallerdistrictmakesiteasiertoconsidertheuniqueneedsoflocalstudents
especiallyasrelatedtothecurriculumthatisoffered.
ThethreefoundingpartnersofSouthernEducationalStrategies,LLC (SES)bring, collectively,
overacenturyofknowledge,experience,andexpertisetothisstudy.Ourworkassuccessful
practitionersand researcherscontributes,webelieve,toadocumentthatwill guidediscussionsand
helpshapedecisions relatedtothiscriticaldeterminationofthebesteducationalstructureforthe
childrenofthiscommunity. Inadditiontoourown knowledge,wehaveincorporatedinthis studythe
workandanalysesofmanyothertrustedandexperiencedprofessionals. Mostimportantly,theSES
teambelievesthatallpublicschooloperationsand decisionsshouldbemeasuredin “studentbenefits.”
Concernforthebestinterestsofour youngpeoplehas guidedthedevelopmentofandthe
recommendations foundinthisstudy.
As theyoungpeopleof Colliervilleentertheseconddecadeofthe21stcentury,thecitizens
haveahugeresponsibilityinregardstotheireducationalopportunities.AsDouglas Reeves,noted
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educationwriterandscholarrecentlystated,listentotheskepticsandavoidthecynics whenmaking
crucialdecisions. Whiletheskepticdemands evidence,thecynicfindsnoevidencesufficientfor
change.Whiletheskepticcanbepersuaded,howeverreluctantly,withdataandanalysis,thecynic’s
mindis madeupbeforetheargumentbegins(AmericanSchoolBoardJournal, October2011,p.40).
ThefoundingpartnersofSouthernEducationalStrategies, LLChopeandtrustthatthis
documentwillofferaccuratedata, experiencedbasedrecommendations,practicalinformation,and
guidancetothecitizens ofColliervillethroughoutthisimportantprocess.
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FeasibilityStudyMethodology
Thestudyaddressesthreekeyeducationalcomponentscriticaltodeterminingthefeasibilityof
anewlyformedmunicipalschooldistrict:(a)legalandregulatoryissues,(b)operationalissues,and (c)
fiscalissues.Considerableinformationanddatawerecollectedand analyzedas thesecomponentswere
addressed.
Inordertounderstandthelegalandregulatoryissues,athoroughanalysis ofcurrentTennessee
statutes,legislation,and applicablecourtcases wasexecuted.Thisanalysis wasconductedwiththe
assistanceofateamofveteran attorneys whopossess extensiveexperience inTennesseeschooland
municipallaw.Thissectionincludes thecreation ofmunicipalschooldistrictinformationobtained
fromTennesseeCodeAnnotatedandTennesseeStateBoardofEducationrulesandregulations,
informationonrequiredlocalreferendums, andschoolboardelections. In addition,thissection
includes Tennesseecase law,legalopinions,andfindingsregardingschool facilitytransfers. Further,
thepastpracticesareincludedregardingtheactual transferofschoolfacilities,furniture,fixtures,and
equipmentfromtheShelbyCountySchoolstoaspecialschooldistrict,namelyMemphis CitySchools.
Theseactualdata,derivedfromtheShelbyCountySchoolstothe MemphisCitySchoolsfacility
transferpastpracticesreview,coveratleast44schoolstransferredfromthe1960’sto2010.These
reportsanddataareinformativetothequestionsrelatedtoexistingschoolfacilitiesandtheirtransferto
anewlyformedmunicipaldistrict.
Operationalissuesthatwerestudiedaddressedtherequirementsassociated withproviding,ata
minimum,comparableeducationalopportunities forthestudents ofColliervilleascomparedwith
existingShelbyCountySchoolsprograms. Factors includednumbers ofrequiredteachers,
administrators,supportpersonnelsuch ascounselorsandsubject matterexperts,officepersonnel,
instructionaltechnologypersonnel,inadditiontocriticalsupportareasincludingtransportation,
nutritionservices,maintenanceandoperations,andcustodialservices. Itis veryimportanttonotethat
numerousschooldistrictoperationalefficiencies areroutinelyaccomplishedthrough “Cooperative
EducationalContracts(CEC)”establishedbetweenoneor morelocalpublicschooldistricts.
Numerouscooperativecontractshavebeenused overmanyyearsbetween ShelbyCountySchools and
MemphisCitySchoolsto servestudents whoresidedoutsideofschooldistrictand/orCityofMemphis
boundaries,toprovidetransportationservices,andtoprovideservices forexceptionalchildren.The
powers grantedinTCA§7-51-908,TCA§49-2-1101andinTCA§49-2-1301-08arethebasisforany
suchcontractsthatmust beestablishedbetweentheboardofeducationforanynew municipalschool
districtandtheShelbyCountyBoardofEducationtoenrollstudents whocurrentlyresideoutsidethe
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municipality’sboundaries butwhoarecurrentlyzonedtoattendschools locatedwithinamunicipality.
CooperativeEducationalContractscouldalsobeutilizedbetweenlocalschooldistricts toprovide
majorsupportservicessuchastransportation,informationtechnology,maintenance, andnutrition
services.Thesetopicsareaddressedin moredetail inlatersectionsofthisstudy.
Thethirdareaaddressed bythis studyconcernedfiscalissues(i.e.,analysis ofrevenuestreams
andprojected expenditures)associatedwithanewschooldistrict.Oneofthevariables centraltofiscal
analysis,aswellasschooldistrictorganizationandoperation,isstudentenrollment.Enrollmentshapes
thenatureofthecurriculumandinstruction,revenuestreams,expenditures, facilityrequirements,
transportation,foodservices,infrastructure requirements,andvirtuallyeveryotheraspectofthe
educationalsystem.Tothisend,oneofthefirsttaskswasthecollectionandextensiveanalysisof
existingShelbyCountySchoolsstudentdata.Earlyinthis process,theleadersoftheTownof
Colliervillestatedastrongdesiretocreate aschooldistrictthatplacesstudents as thetoppriorityand
permits studentstoattendtheircurrentschools solongasinstructionalspacepermits. Therefore,these
projectedenrollmentdataforschoolswithinColliervilleincludeallcurrentpublicschoolstudentswho
residewithintheTownofColliervilleanditsannexationreserveareas.Alsoincludedarestudentswho
arecurrentlyzonedtoattendBaileyStationElementaryandwhoresideinafutureCityof Memphis
annexationarealocatedeastofHacksCross Road, plus studentswhoarecurrentlyzonedto attend
TaraOaks ElementaryandwhoresideinafutureCityofMemphisannexationarealocatedsouthof
MaconRoad.ThesearestudentswhocurrentlyresideoutsideofColliervillebutwhoarenowzoned to
attendoneoftheschoolslocatedinCollierville.AmapoftheColliervilleschoolsispresentedin
Appendix A.Studentdatawerealsoanalyzedforspecificcharacteristicsanddemographicssuch as
gradelevel,race,ethnicity, specialorexceptional educationneeds,Englishlanguagelearners,career
andtechnicaleducation. Itisimportanttonoteandemphasizethatthisstudydidnotmerelyprorate
existingenrollmentdataforCollierville.Studentenrollmentdatafor morethan30,000studentsdrawn
fromthe2011-2012 ShelbyCountySchools databaseweredisaggregatedbygeographiclocationand
thentrackedtotheproposednewmunicipalschooldistricts.Thisverydetailedresearchprovided
actual2011-2012AverageDailyMembership(ADM)studentenrollmentdatacustomizedforeach
municipality.
Fiscalissuesassociated withrevenuegenerationfocusedonfundsderived fromlocalandstate
sources thatwouldsupporttheoperationalcomponents. Federalfundswerenotincludedastheseare
essentiallyflow-through fundsusedtosupplementspecialinstructionalareas.Analysisrelatedto
schoolnutritionrevenue wasalsonotincludedas theseareflow-through funds.Thedetailedfiscal
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