IntroductionIn September 1998, the Comptroller of Public Accounts' Texas School Performance Review (TSPR) began a performance review of the El Paso Independent School District (EPISD) at the request of the superintendent. After more than seven months of work, the Comptroller's office released a report identifying exemplary programs in EPISD and suggesting concrete ways to improve the district's operational efficiency. In January 2001, TSPR staff returned to assess the district's progress.
Since 1991, TSPR has recommended more than 4,550 ways to save taxpayers a net of more than $504 million over a five-year period in 47 different public school districts throughout Texas. TSPR also conducts follow-up reviews of districts that have had at least one year to implement recommendations. These 30 subsequent reviews show that almost 90 percent of TSPR's combined proposals have been acted upon, saving taxpayers more than $96 million, with the full savings estimated to grow in the future.
Improving the Texas School Performance Review
Comptroller Carole Keeton Rylander, who took office in January 1999, consulted school district officials, parents and teachers from across Texas and carefully examined past reviews and progress reports in an effort to make the TSPR more valuable, even vital, to the state's more than 1,000 school districts. With the perspective of having served as a teacher and later a school board president, the Comptroller has vowed to steer TSPR to increased accountability to local school districts and the communities they represent. The Comptroller intends for TSPR to become a tool for improvement in many more districts, particularly districts that seek help to improve academic performance.
Comptroller Rylander began her efforts by creating new criteria for selecting school districts for future reviews. Priority is now given to districts that are judged poor performing academically or financially, or to hands-on reviews that will benefit the greatest number of students. These are the school districts and children that need help the most.
Recognizing that only 52 cents of every state education dollar is spent on instruction, Comptroller Rylander's goal is to direct more of every education dollar directly into the classroom, where it belongs. In addition, no longer will school reviews bury the districts' best practices and exemplary models deep inside individual TSPR reports. Instead, Comptroller Rylander has ordered best practices and exemplary programs to be shared quickly and systematically among all the state's school districts and with anyone who requests such information. There is no reason for a district that has solved a problem to keep the solution to itself. Comptroller Rylander has directed TSPR to serve as an active clearing-house of the best and brightest ideas in Texas public education. Best practices identified in the original review of EPISD are included in the Comptroller's best practices database, A+ Ideas for Managing Schools (AIMS), which is accessible on the web at www.aimsdatabase.org. Under Comptroller Rylander's approach, the TSPR team and consultants will work with districts to:
- ensure students and teachers receive the support and resources necessary to succeed;
- identify innovative options to address core management challenges;
- ensure administrative activities are performed efficiently, without duplication and in a manner that spurs education;
- develop strategies to ensure the district's processes and programs are continually assessed and improved;
- understand the link between the district's functional areas and determine ways to provide a seamless system of services;
- challenge any process, procedure, program or policy that impedes instruction and recommend ways to reduce or eliminate obstacles; and
- put goods and services to the "Yellow Pages test," which says government should do no job if there is a business in the Yellow Pages that can do that job better and at a lower cost.
Finally, Comptroller Rylander has opened her door to Texans who share her optimism about TSPR's potential. Suggestions to improve school reviews are welcome at any time. The Comptroller is a staunch believer in public education and public accountability.
Detailed information can be obtained from TSPR by calling 1-800-531-5441 extension 5-3676, or by visiting the Comptroller's Web site at www.window.state.tx.us.
TSPR began its review of the El Paso Independent School District (EPISD) in September 1998. As in previous reviews, TSPR went to El Paso in response to a local call for assistance. In August 1997, Dr. Stan Paz, then superintendent, requested a review, along with the superintendents of the Ysleta and Socorro ISDs and Senator Eliot Shapleigh of El Paso. At the request of the former superintendent, the performance review was delayed to allow EPISD time to implement the findings of a manpower efficiency study begun in 1997.
With the help of McConnell, Jones, Lanier and Murphy, formerly known as Empirical Management Services, a Houston-based consulting firm, the TSPR team held community meetings in each of the district's four regions. Participants were invited to write their observations on major topics of concern or to be interviewed by a member of the review team. To obtain additional comments, the review team conducted focus group sessions and interviewed district employees, school board members, students, parents, business leaders and representatives from community organizations. The team also collected comments from letters to the Comptroller and calls to the Comptroller's toll-free hotline.
Written surveys were sent to district personnel. TSPR received completed responses from 111 principals and assistant principals; 71 central and district administrators; and 294 teachers. About 870 EPISD students completed a written, self-administered questionnaire. A telephone survey of 600 El Paso citizens provided additional public input.
TSPR also consulted two databases of comparative educational information maintained by the Texas Education Agency (TEA) – the Academic Excellence Indicator System (AEIS) and the Public Education Information Management System (PEIMS). For the review, EPISD selected peer districts for comparative purposes based on similarities in size, location, student enrollment and property values. The selected peers were the Corpus Christi, Dallas, Fort Worth, Houston, San Antonio, Socorro and Ysleta Independent School Districts (ISDs). TSPR also made comparisons with districts in the TEA's Regional Education Service Center (RESC) 19, to which EPISD belongs and the state as a whole.
EPISD is the seventh largest school district in Texas, serving more than 62,000 students during the 2000-01 school year. EPISD is the largest of the nine school districts in El Paso County. In recent years enrollment has held relatively stable. According to TEA, EPISD's 2000-01 enrollment is 78.5 percent Hispanic, 15.2 percent Anglo, 4.8 percent African American and 1.5 percent other.
EPISD's property value per student is below the state average, and 66.8 percent of its students are economically disadvantaged as compared to 49.2 percent statewide. For 1999-2000, 70.7 percent of EPISD students passed the state-mandated Texas Assessment of Academic Skills (TAAS), which is slightly less than the statewide passing rate of 79.9 percent.
According to TEA, EPISD had approximately 7,709 full-time employees in 1999-2000, with teachers accounting for 3,785 employees or 49.1 percent of the total. The district's operating budget for 2000-01 is $380 million, with 51.3 percent of those dollars going to instruction.
Significant Changes Since the Original Review
Shortly before the beginning of the performance review in 1998, Dr. Stan Paz resigned as superintendent and Ken George was named interim-superintendent. Mr. George served the district during the time of the review and in 1999, the EPISD Board of Trustees hired Dr. Gilberto Anzaldua as superintendent. Significant academic and organizational changes have occurred in the short two years of his tenure.
Dr. Anzaldua has significantly reorganized the district, including reducing the number of region superintendents from four to three, effective August 2000. The superintendent then began a subsequent restructuring of the district's elementary, middle and high schools and designated an associate superintendent to head this effort.
Capt. John L. Chapin High School, the district's newest high school, opened its doors during the fall of 2000. Located in northeast El Paso, Chapin High School is an applied science magnet school. The new Paul C. Moreno Elementary School opened in the fall of 2000 in central El Paso. This state-of-the-art structure also will include a therapeutic pool for the school's students with disabilities. EPISD has also begun building a new elementary school in northeast El Paso. The $5.8-million facility will house 48 teaching stations. The 91,000 square foot school will relieve overcrowding at Bradley and Dr. Nixon elementary schools. The school is expected to open in the 2001-2002 school year.
Coronado High School joined an elite group of 800 high schools worldwide that offer an internationally recognized advanced curriculum for the university-bound student. The International Baccalaureate Diploma is a rigorous pre-university course of studies and tests based on six courses of study including English, a foreign language, experimental science, societies and individuals, mathematics and an elective. At the end of the curriculum, the student must take six standardized tests.
El Paso ISD Report Card
Chapter Total Complete In
ProgressNot
ImplementedRejected Percdent Complete/
In ProgressGrades District Organization and Management 17 13 4 0 0 76%/24% Satisfactory Educational Service Delivery and Student Performance 15 8 6 0 1 53%/40% Satisfactory Community Involvement 7 5 2 0 0 71%/29% Satisfactory Personnel Management 11 11 0 0 0 100%/0% Excellent Facilities Use and Management 16 13 3 0 0 81%/19% Excellent Asset and Risk Management 8 6 2 0 0 75%/25% Satisfactory Financial Management 11 6 5 0 0 45%/55% Satisfactory Purchasing and Contract Management 10 7 2 0 1 70%/20% Satisfactory Computers and Technology 18 9 8 0 1 50%/44% Satisfactory Transportation 13 7 4 0 2 54%/30% Satisfactory Food Services 8 5 2 0 1 63%/25% Satisfactory Safety and Security 8 5 1 0 2 63%/13% Needs Work Overall Grade 142 95 39 0 8 67%/27% Satisfactory Excellent = More than 80% complete
Satisfactory = 80% to 100% complete or in progress
Needs Work = Less than 80% complete or in progressAt this time, EPISD has implemented 95 of the recommendations in the Comptroller's original report, and another 39 are in various stages of development. In some instances, the district obtained more savings than identified by TSPR in the original recommendations. TSPR found 15 specific recommendations where the district either achieved more savings or spent less money implementing Comptroller recommendations than what was originally estimated. The district expects to save more than $15.9 million by the 2003-2004 school year by implementing the Comptroller's recommendations.
Exemplary Programs and Practices
TSPR identified numerous "best practices" in EPISD. The report highlights the district's model programs, operations and services. Other community colleges throughout Texas are encouraged to examine these exemplary programs and services to see if they could be adapted to meet their local needs. The TSPR commendations include:
In addition to those exemplary programs noted by TSPR during the original review, a number of new initiatives are worthy of mention.
- Regional Day School for the Deaf. EPISD operates a highly successful Regional Day School Program for the Deaf (RDSPD). The RDSPD serves about 160 students from within EPISD and nine neighboring districts, including Ysleta, Anthony, Canutillo, San Elizario, Clint, Fabens, Socorro, Tornillo and Fort Hancock ISDs. About 97 percent of the RDSPD students use total communication, simultaneously employing speech, sign language, finger spelling and amplification. The school's students compare favorably with other students in the state on the Stanford Achievement Test, which sets norms for hearing-impaired students. RDSPD staff consistently earn teaching awards. The school has sought and received grants to improve the level of services to its children.
Since the release of the report, the district has upgraded hearing devices/auditory trainers for all students. The Regional Day School also has implemented a program that offers American Sign Language as a course.
- School-to-Career Program. EPISD offers an exemplary School-to-Career program, which offers students a wide range of career and technology education courses and an opportunity to make informed occupational choices. School-to-Career involves both classroom instruction and on-site training at a business or industry. The goal is to allow students to develop marketable skills and learn job shadowing and work-based training.
The district has expanded its offerings to high school students in the area of technology. The board has approved adding courses and time to allow the Vocational Education Department to provide opportunities for students to work directly in technology businesses. A grant to the department also has allowed the district to provide middle school students opportunities to participate in job shadowing and to visit area businesses.
- Community Involvement. EPISD's efforts to involve parents, businesses and members of the community in improving educational services are a model that can be studied by every school district in the state. An example is Lee Elementary School's volunteer and parental involvement program, which garners an average of 2,500 volunteer hours each month. The district's Volunteers in Public Schools and Partnership in Education programs bring together key business and community leaders, local government, civic organizations and parents to improve public education in El Paso. The EPISD Foundation for School Community Enrichment, founded in 1995 by a group of community leaders, provides fundraising and supplemental assistance for education. To date the foundation has awarded grants to more than 140 district teachers totaling $170,000–funds that have been channeled directly to district classrooms to enhance educational programs.
More than 14,000 volunteers contributed 1,378,335 hours to schools in the 1999-2000 school year, time valued at more than $13.7 million. New strategies implemented since the initial TSPR report to improve community involvement include campus level budgeting to support the district's Goal 6, which focuses on a parental engagement plan for the 2001-02 school year; the creation of three new ombudsman positions to increase parental engagement; and establishing two parent liaisons to develop districtwide or campus-based parental engagement initiatives specifically for parents of Special Education students.
- Energy Management. Since 1989, the district has reduced utility bills by $13.5 million through effective energy management. Although the district increased its total available space by 23 percent over the last decade, it has decreased energy consumption by 18 percent. All EPISD schools have computer-controlled energy management for heating and cooling. The district is active in conservation, recycling, ensuring best energy rates and monitoring utility consumption.
Since 1989 (through August 2000), the district has reduced utility bills by $21.5 million through effective energy management. The reduction approximates an additional $8.0 million reduction since the Comptroller's report was issued.
- Investment Returns. The district uses a variety of investment instruments to achieve its investment goals of safety, liquidity and maturity sufficient to meet anticipated cash needs requirements. EPISD invests in the TexPool and Lone Star investment pools, U. S. Treasury Notes, flexible repurchase agreements, and U. S. Agency Obligations. In fiscal 1998, the district earned about $9.9 million in investment income, an amount that exceeds the district's investment benchmarks.
The district's investment office frequently monitors the district's investments. Consequently, the district has outperformed its benchmarks for each of the last two years.
- Cooperative Education. For the past ten years, EPISD's Internal Audit Unit has successfully partnered with the University of Texas at El Paso (UTEP) to help the university's students make their career choices and to give them practical work experience before they graduate. The district hires UTEP interns who assist with school campus activity fund audits in the summer. Many of the students who worked in this cooperative program have gone on to professional careers in accounting, business, and finance in the El Paso area.
The Internal Audit Department continues to improve its relationship with UTEP's Department of Career Services. The district's intern program has been expanded and now provides interns the opportunity to work in districtwide audit programs. The interns who were hired during the two previous years are now working in local or international accounting firms.
- Property Tax Collection. EPISD has achieved a high overall rate of property tax collection through an interlocal agreement with the city of El Paso. The city wires funds directly into the district's investment pools at least once weekly and daily during the peak collection period. Tax collections as a percentage of the total levy have averaged 97 percent over the last five years.
Property tax collections as a percentage of the total levy, for the last two years since the report was printed, have averaged 98.5 percent. The higher average has resulted in additional funds for the district.
- Warehouse Services. EPISD's Gamble warehouse facility, built in 1997, allowed the district to consolidate its warehouse services and eliminate lease costs. The facility is climate-controlled, secure and state of the art. The district is implementing a barcode system to improve warehouse operations and save time in stocking and filling orders.
The barcode system has been successfully implemented. The system has significantly affected the warehouse's efficiency and effectiveness in receiving, stocking items, and spot-checking (including fiscal inventory counts). The Warehouse and Technology Departments are working to move the requisitioning process from a manual one to an electronic format. Implementation is expected during fiscal 2002.
- Food Service. For the third consecutive school year, the district's Food Service Unit in 1997-98 achieved a positive fund balance of $2.6 million. Food service has made good use of this fund balance by investing in up-to-date equipment and ovens for each of its cafeterias, which should continue to improve profitability in the future. Food Service also uses an innovative array of educational and promotional campaigns to increase breakfast participation among the district's elementary students.
The district has undertaken a number of new programs to increase student participation including implementing the CATCH (Coordinated Approach to Child's Health) program at 27 elementary school cafeterias, kitchen fun tours and tasting parties at elementary schools, special parent breakfasts one to three times a year in all elementary schools, and breakfast in the classroom for kindergarten students at seven elementary schools. Elementary principals also are provided nutrition education materials to use in the classroom to promote healthy eating habits. The Food Service Department has developed and implemented a program for training food services substitutes at 16 selected sites. These innovative programs have enabled EPISD's Food Service Department to increase participation in the food service program.
- Discipline Management. Through its Raymond Telles Academy, EPISD operates an exemplary Juvenile Justice Alternative Education Program. In addition to a core curriculum, the Telles Academy offers guidance counseling services and mandatory conferences with students' parents to review academic progress and establish a specific graduation plan. The Telles Academy is noted for its unique, self-paced instruction program. In two other innovative alternative education programs, EPISD offers academic and social services to meet the needs of pregnant teens, students in the juvenile probation system and students with psychological disorders.
The Raymond Telles Academy has implemented enhancements that include but are not limited to TAAS exit level testing in grades 9 through 12; TAAS and end-of-course training camps for grades 6-12; and the development and implementation of accountability standards. The School Age Parent Center has implemented a program called "Community for Learning" that is designed to bolster self-esteem and keep young women connected to the larger society. For its adjudicated youth, the district has formed a relationship with the El Paso Community College to provide continuing education courses and job placement assistance.
The Beall and Roosevelt Elementary Schools earned national recognition in the Help Our Students Succeed program in 1999-2000 for their outstanding efforts in mentoring at-risk students for the school year. Roosevelt had 175 mentors who contributed approximately 4,200 hours of time, which represents a value of $53,928. In the 1998-99 school year, Beall had 93 mentors who contributed approximately 1,488 hours, which represents a value of $19,106.
The EPISD Foundation for Educational Enrichment funded 55 Teacher Impact Grants for the 2000-2001 school year, which are worth about $46,600. These grants paid for innovative instructional programs, resources or strategies aimed at improving student academic performance.
Hillside Elementary, the center for Deaf Education for elementary students in the district, is also a 2001 U. S. Department of Education Nominee for a Blue Ribbon Award. Blue Ribbon nominees are considered after a complete analysis of their curriculum, student performance, community involvement and teaching excellence.
TEA honored two EPISD elementary schools with cash awards as authorized by the Texas Successful School Achievements System (TSSAS). That recognition honored the schools for not only their TAAS scores, but also for their low TAAS exemption rates for limited English Proficient students and special education students.
"Cats Paws in Motion," a nationally syndicated PBS program featured El Paso ISD schools for their health and physical fitness programs. Twenty-six EPISD elementary schools won $105,000 in grant funds from the Paso Del Norte Health Foundation to implement the Coordinated Approach to Child Health (CATCH). The program teaches students how to make healthy food choices, physical activity fun and how to avoid tobacco products.
Comments on Exemplary Programs and Practices:
EPISD operates a two-way, dual language gifted and talented program called Connecting Worlds/Mundos Unidos. This innovative program at Mesita Elementary School and Wiggs Middle School integrates second language acquisition and G/T strategies. The program is in its fourth year and has been evaluated internally and externally so that improvements can be made to the curricula. The program has been recognized by TEA and the Texas Association of School Boards. The program has also been named a recipient of a Jacob K. Javitz Grant from the U. S. Department of Education.
Following are some of the key recommendations that administrators and staff thought had the greatest impact on district operations. The highlighted recommendations are arranged by chapter and area of operation as contained in the original TSPR report. The comments came from district administrators.
District Organization and Management
#1 Provide "Team of Eight" team building training to restore trust among board members and the superintendent, and increase training related to the roles and responsibilities of board members.
At the time of TSPR's review, EPISD's board members did not communicate well with each other, and the absence of dialogue was affecting their ability to work well together. Moreover, several board members did not understand their governance role and tended to micromanage to the point where administrators feared retaliation if board member wishes were not honored. Implementing this recommendation helped board members better understand their roles and responsibilities. Board members now realize that the tone for the entire district is set from the top and that before anything of substance can be accomplished, the board and top administrators must be in accord. Some administrators say they will be more effective in their jobs because board members are no longer micromanaging the district.
#8 Create one Policy, Research, and Evaluation Unit and eliminate the position of associate superintendent for Policy and Planning.
#13 Actively engage the District Educational Improvement Committee in the district's policy and goal development process.
EPISD had a Policy and Planning Unit that coordinated districtwide planning efforts and assisted in developing and monitoring EPISD policy. The district also had a Research and Evaluation unit that was involved in many districtwide planning functions. At the time of TSPR's review, the work of these units was not well coordinated. In addition, the board and the District Education Improvement Committee (DEIC) were not working together effectively to develop district goals. Implementing these recommendations brought about widespread collaboration in the district. More information sharing takes place now that a single unit for planning exists, and DEICs have been brought further into the planning process. Key administrators say the district has begun to experience cooperation that has never existed before.
#9 Hire two attorneys to reduce the district's legal costs.
In each of the three years preceding TSPR's review, EPISD's legal expenses rose over the previous year. Although the district did not hire in-house attorneys, district administrators said that this recommendation was the inspiration for them to seek ways to lower legal costs. The district set out to make their legal representative more responsive. In the process, they were able to negotiate favorable terms with the law firm, which resulted in more than $95,000 in savings to date. Savings are expected to reach more than $475,000 by the end of the five years. In fact, the lawyers no longer charge for board meetings and training.
Educational Service Delivery and Performance Measures
#19 Revise or develop functional curriculum guides to provide direction for all instruction.
Prior to TSPR's review, EPISD did not have a complete inventory of curriculum guides and many of those on hand were outdated. Administrators said that as a result of this recommendation the district created a centralized location where curriculum guides are kept. Now, the library is the heartbeat of curriculum instruction. Teachers know they have a valuable, centralized resource to help them develop lesson plans and improve their effectiveness in the classroom. It represents a psychological boost to many teachers knowing that there is a central and easily accessible library of curriculum material available to support them.
#25 Develop a long-range plan to ensure the placement of special education students in least-restrictive environments consistently across regions.
While the district planned to establish a task force to gather data and develop long-range plans related to least-restrictive environments, it was unclear how these plans would be implemented, evaluated and enforced. Working with its District Education Improvement Committee, the district saw problems that were not apparent before and began to examine new ideas that had not been tried before. As a result, the district's efforts are increasing the placement of special education students in least-restrictive environments.
Community Involvement
#39 Operate Media Production and the Print Shop as internal service funds to recover the full cost of providing graphics design and printing services to schools and administrative units within the district.
Media Production had no system in place to recoup the cost of providing graphics design and support services to administrative units and campuses. The unit charged these costs to its own budget. Since implementing this recommendation, Media Production and the EPISD Print Shop now provide graphics design and printing support services on a partial reimbursement basis. As a result, the district has been able to hold the line on printing costs and is studying the feasibility of fully implementing this recommendation.
Personnel Management
#40 Consolidate Employee Benefits and Risk Management into one functional area called Employee Benefits and Risk Management.
#41 Merge Employee Relations and the Office of Compliance into a single area called Employee Relations and Compliance.
#42 Merge Elementary Personnel, Secondary Personnel, and Certification into one functional area called Elementary and Secondary Personnel.
Implementing these recommendations resulted in the complete reorganization of the Human Resources Department and savings to date of more than $155,000. The department consolidated functions that previously had been performed by several areas. Many of the same people do the work, but their duties have been expanded and now, for example, one team handles recruiting, hiring, and retention. In addition to saving money and improving effectiveness, administrators believe the department is now more customer service oriented.
#44 Develop a Human Resources procedures manual for the 1999-2000 school year.
At the time of TSPR's review, the Human Resources Unit did not have a personnel procedures manual covering all of its activities indexed and organized in a comprehensive manual to guide and direct the unit. Everyone knew their own job, but no one knew what their coworkers were doing. After implementing this recommendation, this knowledge is codified in a single Human Resources procedures manual. Now everyone can see and appreciate each other's job functions and responsibilities. Moreover, everyone has become a fully-equipped customer service representative in the department.
Facilities Use and Management
#52 Complete a comprehensive and accurate assessment of deferred maintenance needs and use the master plan to set priorities.
EPISD did not have a comprehensive, accurate assessment of deferred maintenance needs for many years. The district knew it was a problem but really had no idea how big a problem it was until they contracted with an architectural firm to complete a comprehensive facility assessment. The firm's assessment report contains a detailed list of problems, recommendations and fiscal impacts that has enabled the district to fully comprehend the magnitude of its deferred maintenance needs. Software and training the district received in maintaining schools and facilities was an added benefit that will enable the district to effectively manage its deferred maintenance program.
#54 Reorganize the maintenance function into regional groups based on the district's existing regions.
Trades personnel worked in all areas of the district when TSPR arrived to conduct the review. TSPR recognized that this system was inefficient for a district of EPISD's size. This recommendation convinced the Facilities Maintenance and Construction Department that the district needed to take a different approach. After implementing this recommendation, the department saw a significant decrease in its work order backlog from about six months to two or three months. Man hour backlog decreased from 60,000 man hours to 39,000 man hours. The reorganization also helped to establish a communication bridge between principals and custodians and encouraged people to talk to one another. This resulted in fewer calls to the central office and gave principals additional time to do their jobs.
Asset and Risk Management
#71 Collaborate with Ysleta ISD on a joint RFP for health care coverage.
EPISD is committed to providing quality health care to its employees at an affordable cost. When the district found that a collaboration with YISD on a joint RFP for health care coverage was not feasible due to legal issues with the third-party administrator, EPISD sought other ways to bring value to its employees. The district reviewed its health plan design and found ways to balance benefits with cost without sacrificing value. Although a joint health care RFP was not issued, EPISD and the city of El Paso collaborated on voluntary plans that benefited employees of both organizations by offering them quality voluntary plans at reduced costs.
Financial Management
#75 Review instructional budget allocation formulas annually to determine if the resulting allocations are reasonable.
When TSPR began its review, the district had not reviewed its instructional allocations in several years. After implementing this recommendation, the district raised the elementary allocation by $5 per student. As a result, more dollars were allocated to the classroom, and schools that needed more instructional supplies were given a boost.
#78 Enhance the internal audit plan document by incorporating the elements of a well-constructed audit plan.
The Internal Audit Unit did not have a well-developed audit plan that spelled out audit projects to be performed, justified budget appropriations and served as a tool to gain management's cooperation and support of the audit process. After adopting this recommendation, the Internal Audit Unit raised the awareness of its role and opened the door to add two staff positions.
#80 Require full implementation of the automated substitute caller system and create an electronic attendance interface with the automated payroll system.
EPISD was not using the full capabilities of its TEAMS substitute caller system at the time of TSPR's review. Now the district plans to implement all of the system's available modules. The district will be able to properly identify certain substitute teacher costs that are being charged to the general fund instead of a special revenue fund. As a result of improved cost tracking, the district will be able to keep more grant funds in district coffers. No longer will grant funds be returned to grantors needlessly. Purchasing and Distribution
#91 Require all schools and units to enter warehouse requisitions on-line.
District administrators said that implementing this recommendation eliminated the need for the Purchasing Department to enter requisitions. As a result, paperwork flow has become more streamlined and efficient. In addition, purchasing staff have been given more time to focus on other duties.
#95 Implement campuse-level textbook systems that are integrated with the districtwide program and require all schools to use the textbook accounting system to track all textbooks and to facilitate efficient ordering and delivery of textbooks throughout the district.
EPISD was using an automated textbook inventory system at the time of TSPR's review, but it was only being used at the district level. After the campus-level textbook inventory system was integrated with the districtwide program and was implemented in middle schools and high schools, the district was able to reduce textbook losses by an estimated $50,000 per year.
Computers and Technology
#99 Redesign and recreate the EPISD Technology Plan to make it a more useful document.
When TSPR first reviewed EPISD's Technology Plan, it found that some elements such as a budget were not included. Moreover, it had insufficient detail, and there was no true accountability assigned for carrying out the plan. Since implementing this recommendation, the Technology Plan is now a collaborative part of the districtwide vision and will enable the district to reduce the ratio of students to computers.
#102 Develop a formal schedule to implement the WAN as called for in the Strategic Action Plan for Technology in Education that includes milestones and target dates for the completion of the middle and elementary school connections.
At the time of TSPR's review, a multitude of problems had prevented the district from wiring two high schools. Moreover, the technology plan contained no specific plan or schedule for wiring the middle and elementary schools after the high schools were finished. The wide area network (WAN) was completed at all campuses around August 2000. As new instructional settings are created, TIS is providing the wiring to include them on the WAN. With the implementation of this recommendation, computers will be more widely used during classroom instruction.
Transportation
#114 Establish a comprehensive awards program that provides tangible recognition to Transportation employees with low absentee rates.
When TSPR visited the district, absenteeism in the Transportation Unit was running about 30 percent per day. Since implementing this recommendation there has been an appreciable boost in employee morale, although the projected savings from reduced absenteeism will likely not materialize. Employees typically take off days they feel they have earned. Raised morale is its own reward because it has long-term, far-reaching benefits. Programs such as Employee of the Month, Employee of the Year, AdCom articles, and recognition awards create a positive work environment in the Transportation Department.
#118 Upgrade the computer-based route scheduling software and train the foreman and assistant foreman in is use.
The district had experienced benefits from using DOS-based route scheduling software for special education routes. However, at the time of TSPR's review, the district was not using the routing software for regular bus routes. After implementing this recommendation and expanding the use of the software, six routes were eliminated for a saving of $73,200. The results gained from training the foreman and assistant foreman were so successful the district is inviting the software contractor to conduct more training sessions. The district hopes to expand the software's use to obtain more benefits.
#125 Provide ASE certification training for all EPISD mechanics and reward those who become certified.
EPISD's mechanics previously did not receive comprehensive in-house training, and the district did not specify the Automotive Service Excellence (ASE) certification as a condition of employment. Implementing TSPR's recommendation has increased the district's skilled mechanics and improved employee morale.
Food Service
#129 Introduce the "grab-and-go" breakfast concept to all EPISD secondary schools and continue testing programs already under way in elementary schools.
Breakfast participation remained low in the elementary schools in spite of district efforts to increase it through a variety of programs. When the district implemented this recommendation, it received $8,500 in grant funds from Dairy Max for the Breakfast in the Classroom Program. This program was implemented in elementary schools in October 2000 and received positive feedback. The program involved not only students but also teachers and parents as well. When Universal Free Breakfast was piloted for three weeks in March 2000, average participation increased by 27 percent for the month. The initiative was so successful that students, parents and teachers have asked to continue the program permanently. Since the time of the review, revenues have increased by more than $800,000 and the district expects additional revenues to reach $2.3 million over the five years as a result of this recommendation.
#132 Develop methods to monitor, analyze, and increase lunch participation rates at district high schools.
Despite efforts to brighten up cafeterias and create a pleasant dining atmosphere for students, many were still choosing fast food when TSPR visited the district. Strategies developed as a result of this recommendation have prompted positive student feedback and savings are anticipated to reach $573,000 over five years. Menus developed for food court appearance, mobile food carts in remote high school locations, expanded menu offerings and expanded customer service have increased high school lunch participation by 6.1 percent between 1997-98 and 1999-2000. The success of these strategies was due to a group effort involving food service personnel, teachers and students.
Safety and Security
#136 Delegate complete management authority, responsibility, and attendance accountability to the interim administrator of the Juvenile Justice Center/Delta Academy.
When TSPR visited EPISD, an interim administrator and a Region 3 facilitator were jointly managing the Juvenile Justice Center/Delta Academy. After assigning a full-time principal as the sole administrator of this facility, the district saw a positive difference in the services students were receiving. The individual assigned full-time responsibility for managing the facility is committed to the students. Moreover, the academic program has improved and is making a positive impact in students' lives.
#138 Allocate the number of random K-9 searches for alcohol, drugs and weapons to give special emphasis to campuses experiencing higher incidences of contraband found.
At the time of TSPR's review, a contractor provided K-9 units to search campuses for contraband such as alcohol, drugs and weapons. TSPR found that although EPISD's K-9 program was successful, the number of K-9 visits at high schools should be increased because of the high incidence of contraband found in high schools. Inspired by TSPR's recommendation, EPISD's Police Department established its own K-9 unit, which currently has four police officer/K-9 teams. The presence of these units has not only increased the number of discoveries but has also provided educational opportunities for the children. Moreover, EPISD's in-house program has reaped financial benefits for the district. Elimination of the K-9 contract will save the district an estimated $107,000 per year. Finally, neighboring districts have inquired about establishing a K-9 program based upon EPISD's model.
#141 Share information about violence, drug use, and gang-related incidents with the El Paso Police Department.
When TSPR visited the district, EPISD had a limited, informal practice of sharing information with the El Paso Police Department (EPPD). TSPR staff believed that EPISD's Police Unit and the EPPD could benefit from a more formal arrangement. In June 1999, the district began to formally share information. Each unit now has a better understanding of what needs to be accomplished to curb crime in the El Paso area. The Safe School Committee is now established to share information formally, while informal sharing still occurs on a daily basis among officers. Sharing criminal case information has benefited both agencies.
EPISD has made significant progress implementing TSPR's recommendations. Ninety-four percent of the recommendations have been either completed or are in progress. The district, however, rejected eight recommendations but has explained the reasons for rejecting each one. This section discusses what EPISD still should do to gain the most benefits from TSPR's review.
Financial Management
Three recommendations related to improving the effectiveness of internal auditing are still in progress. TSPR recommended EPISD establish an audit committee of the Board of Trustees to oversee internal auditing. TSPR also recommended the Internal Audit Unit immediately complete its audit of overtime in the district and implement plans to reduce overtime across the district. Finally, TSPR recommended improvements to the internal audit plan document.The district is still evaluating whether the Internal Audit Unit should report to the Finance Committee or continue reporting to the superintendent. If the district decides to allow the internal auditor to report administratively to the superintendent and functionally to the board, the board's Finance Committee would oversee the auditors' activities. The new reporting relationship, as well as improvements to the audit plan document, will be included in the 2002 audit plan, which will be presented to the board for approval.
The overtime audit remains to be completed and will be included in the 2002 audit plan. However, the district has already taken steps to control overtime, such as centralizing control over overtime accounts and implementing a compensatory time system so employees are given time off instead of being paid for overtime.
Each of these recommendations is designed to ensure that the Internal Audit has the structure, organizational authority and overall strategy to successfully fulfill its role in EPISD. A strong internal audit function is a vital management tool that helps management and the board manage and govern the district. Consequently, TSPR encourages EPISD to move swiftly to implement these recommendations.
Computers and Technology
To increase EPISD's focus and commitment to technology, TSPR recommended the district improve its technology plan, establish a technology committee to monitor and direct technology activities and develop a computer replacement/repositioning plan. The district is revising its Strategic Action Plan for Technology, which will be presented to the board for approval in May 2001. One component of this plan will address the use of both internal and external committees to oversee all district technology operations. In addition, the plan will provide a method to annually replace and reposition the district's computers.Adequate planning is essential to ensure the success of any endeavor. Technology in any school district must be planned to achieve equity. The central office must be adequately supported, and every school adequately equipped so each child has access to technology. Technology also must be thoroughly planned because of rapid technological change, limited resources and community expectations. Taxpayers expect schools to adapt to the information age despite the difficulties. As a result, the district should complete the implementation of TSPR recommendations still in progress.
Transportation
All schools prepare and maintain their own bell schedule with no central coordination. TSPR's analysis showed the district would save almost $800,000 over a five-year period by establishing uniform school starting and ending times to accommodate three bus runs in the morning and three in the afternoon. The district, however, is continuing to evaluate this recommendation to assess the effect on students, parents and the community. The district is concerned that implementing this recommendation could create difficulty with pick-up times. TSPR encourages the district to reconsider implementing this recommendation.Facilities and Management
The district did not agree with TSPR's recommendation to adjust custodial staffing to the industry standard of 19,000 square feet per custodian. Although nine custodial positions have been eliminated through attrition since the review, district officials do not believe elementary school custodians can clean more than 15,000 square feet. They perform other duties such as kitchen duty. Middle school and high school custodians also perform other duties, and officials contend that these custodians can only clean 17,000 and 18,000 square feet, respectively rather than the 19,000 square foot standard.By not fully implementing this recommendation, the district may not be achieving the maximum savings possible in this area. As a result, TSPR recommends the district re-evaluate its position on this recommendation. The district could achieve at least some of the projected savings by reorganizing how work is performed. For example, other duties outside a custodian core functions might be shifted to other personnel such as cafeteria staff. The ultimate goal should be to gain optimum savings through both attrition and work reconfiguration.
The downtown Education Center, commonly referred to as the "Blue Flame Building," was a donation from El Paso Natural Gas Company. TSPR found the district was not effectively using the building's space and recommended using it more efficiently and leasing out its surplus space to raise funds to offset building operating costs. The district anticipates selling the downtown Education Center by the end of fiscal 2003. At its January 23, 2001, meeting, the board directed administration to formulate a plan to vacate the building within six months. The district should move forward swiftly with plans to sell the Blue Flame Building.
Asset and Risk Management
Recognizing EPISD's historical problems with reconciling the detailed fixed-asset listing and the fixed-asset group of accounts, TSPR recommended the district hire a property control officer to establish and maintain a districtwide fixed-asset control and accountability system. The district hired a property control accountant to perform these duties, but the person left soon after employment. The district, however, will advertise the position and plans to fill it over the next several months. TSPR encourages the district to rehire someone for this position as soon as possible to perform this critical function.EPISD's Comments on the Report and the TSPR Process
The Texas School Performance Review team does not assume its process for performing school reviews works so well that it cannot be improved. Therefore, as part of the progress report preparation, TSPR asked EPISD staff members and administrators what went right and what went wrong and how the process could be improved.
The feedback TSPR received from other districts led to improvements in the review process. For example, early reports did not include implementation strategies, and districts told TSPR they needed help in getting started. As a result, the reports now include implementation strategies and timelines to complement the recommendations. Districts have told TSPR these blueprints are invaluable in achieving the desired results.
According to the EPISD superintendent, the review brought about a good self-examination and helped district administration focus on the future. The review stimulated new ideas and helped bridge the knowledge of staff who were with the district during the review and those who have joined the staff since.
In addition, the review helped staff have a broader understanding of how all of the district's operations tie together. According to the superintendent, the review provided some "painless" staff development. Finally, the review helped many district staff realize EPISD is doing better than they believed earlier, and the review was conducted in a more targeted manner than reviews by other government agencies.
On the other hand, district officials pointed to some recommendations that they found to be unworkable because the action required was out of their control. In the Safety and Security chapter for example, a recommendation was made to develop a program in partnership with the City of El Paso and the El Paso Police Department to provide police officers and resource officers for the district.
Implementation of this recommendation was based upon the cooperation of external entities over which the district had no control. TSPR understands this concern and will attempt to craft future recommendations so that only the activities that are under the control of the district are discussed. For example, the recommendation in question might better be worded, "Approach the City and El Paso Police Department...," which is an action that the district could control.
