In August 2000, the Comptroller of Public Accounts' Texas School Performance Review (TSPR) staff and consultants completed a comprehensive school review of the Fort Bend Independent School District (FBISD). During October 2001, TSPR staff returned to assess the district's progress in implementing the recommendations.
Since 1991, TSPR has recommended more than 5,500 ways to save taxpayers more than $600 million over a five-year period in more than 63 public school districts throughout Texas. TSPR also conducts follow-up reviews of districts that have had at least one year to implement recommendations. These 42 subsequent reviews show that 90 percent of TSPR's combined proposals have been acted upon, saving taxpayers more than $109 million, with the full savings estimated to grow in the future.
Improving the Texas School Performance Review
Upon taking office in January 1999, Texas Comptroller Carole Keeton Rylander consulted school district officials, parents and teachers and carefully examined past reviews and progress reports in an effort to make the Texas School Performance Review more valuable, even vital, to the state's more than 1,000 school districts. Having served as a teacher and later as a school board president, Comptroller Rylander has vowed to make TSPR more accountable to local school districts and the communities they represent.
Comptroller Rylander began by establishing new criteria for selecting school districts for future reviews. Priority now is given to districts judged to be poor-performing, academically or financially, and to reviews that will benefit the greatest number of students. To ensure that this process also serves small districts, reviews of numerous school districts in close proximity, regardless of academic or financial status are also done to achieve some economy of scale.
Recognizing that only about 52 cents of every education dollar is spent on instruction, Comptroller Rylander's goal is to direct more of every education dollar into the classroom. In addition, the Comptroller has acted to ensure that school districts' best practices and exemplary models will not be left buried 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 simply 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 clearinghouse of the best and brightest ideas in Texas public education. Best practices identified in the original review of FBISD 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 districts' processes and programs are continually assessed and improved;
- understand the link between the districts' 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"-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 in Fort Bend Independent School District
In March 2000, at the request of the Fort Bend Independent School District (FBISD) Board of Trustees, Texas Comptroller Carole Keeton Rylander began a performance review of FBISD. This review signaled the second time a school district's Board of Trustees took advantage of legislation enacted during the 1999 Legislative Session, which requires a district to pay 25 percent of the review's cost if a majority of the board requests the review. On November 8, 1999, the FBISD Board of Trustees passed a resolution to request a review and pay up to $87,500 toward the estimated $350,000 cost. Superintendent Don Hooper followed up with a formal request of the review on December 7, 1999. On January 10, 2000, the Comptroller and the FBISD board president signed an interlocal agreement. TSPR began its review March 2, 2000.
After nearly six months of work, this report identified FBISD's exemplary programs and suggested concrete ways to improve district operations. If fully implemented, the Comptroller's 90 recommendations could result in net savings of nearly $11 million over the next five years.
The TSPR team interviewed district employees, school board members, parents, business leaders and community members, and held community meetings in FBISD's seven high schools. To obtain additional comments, the review team conducted focus group sessions with parents, teachers, principals, business leaders and representatives from community organizations. The Comptroller also received letters from a wide array of parents, teachers and community members, and staff fielded calls to the Comptroller's toll-free hotline.
As a part of the review, 108 central administrators and support staff; 70 principals and assistant principals; 148 teachers and teacher aides; 272 parents; and 1,199 students completed written surveys. In addition, the Comptroller contracted with Telesurveys Research Associates of Houston, Texas to conduct a random telephone survey of 400 Fort Bend County households.
The review team 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). FBISD selected peer districts for comparative purposes based on similarities in size, location, student enrollment and property values. The selected peer districts were Aldine, Austin, Katy, Plano, Round Rock and Cypress-Fairbanks ISDs. TSPR also compared FBISD to other school district averages in TEA's Education Service Center, Region 4, to which FBISD belongs and to the state as a whole.
In the 2001-02 school year, FBISD is serving 56,000 students in 8 high schools, 11 middle schools, 35 elementary schools, one Alternative Education Center, a Technical Education Center and a Progressive High School.
For 2001-02, FBISD's estimated property value reached $202,240 per student, compared to the state average of $215,121 per student.
Nineteen percent of FBISD's students are Hispanic, 28 percent are African-American, 36 percent are Anglo, 17 percent are Asian/Pacific Islander, and less than 1 percent are classified as Other. Nearly 20 percent of FBISD's students were classified economically disadvantaged in 2000-01.
FBISD earned a "Recognized" rating from the Texas Education Agency (TEA) during the 2000-01 school year. Prior to that, the district had consistently received an annual rating of "Academically Acceptable." In 2000-01, 70 percent of FBISD's campuses were ranked either Exemplary or Recognized. Of those campuses that received the TEA ratings, 20 schools were rated Exemplary, 15 schools were rated Recognized and 15 schools rated Acceptable.
For 2001-02, the district employs 7,039 employees, with teachers accounting for 3,746 or 53 percent of FBISD staffing. The district has budgeted expenditures of $379.4 million for 2001-02. Fifty-six percent of FBISD's revenues were generated locally and 41 percent came from the state, while less than 2 percent came from the federal government, and 1 percent came from other sources.
FBISD underwent significant organizational changes in its senior leadership during the time since the review was completed. Superintendent Dr. Don Hooper retired, and the Board of Trustees appointed Dr. Betty Baitland as interim superintendent. Gary Crowell joined the district as an Area Superintendent shortly after the review began. Dr. Susan Wey was promoted to Area Superintendent, Charles Dupre was promoted to associate superintendent of Business and Finance and Linda Paschal joined the district as associate superintendent of Technology.
While the district has yet to complete some of TSPR's recommendations, the team assigned to conduct this one-year update found notable progress. Sixty-two recommendations have been implemented, 19 are in various stages of progress and nine have not been addressed.
FBISD officials rejected only one recommendation after conducting a cost analysis because they believed implementation did not benefit the district. (See Appendix A for details on the recommendations' status.)
Exemplary Programs and Practices
TSPR identified numerous "best practices" in FBISD. Through commendations in each chapter, the report highlights model programs, operations and services provided by FBISD administrators, teachers and staff members. Other school districts throughout Texas are encouraged to examine the exemplary programs and services to see if they could be adapted to meet local needs. The TSPR commendations include:
Model strategic planning. FBISD's six-step strategic planning process contains detailed action plans that include implementation strategies, timelines and responsibility assignments. The district's budget is based on priorities set in the strategic plan, and the community participates in setting goals.
FBISD continues to plan strategically using a variety of methods and including a broad representation from district stakeholders. In addition to using the six-step planning process to complete the FBISD District Strategic Plan for 2000-2005, the district uses project task teams on an as-needed basis to address specific issues and programs. The seven management and planning tools of total quality often are incorporated into project teams to ensure the best results are achieved. Administrators use monthly project records to track progress and ensure completion of assignments.Holding the line on legal costs. By employing an in-house attorney to handle routine administrative legal matters, as well as manage and monitor the fees and services of outside counsel, FBISD has effectively controlled its legal fees.
FBISD continues to employee in-house counsel as a strategy for controlling costs.Conflict of Interest. The FBISD board strengthened its conflict of interest policy, which prohibits district employees from having a substantial business interest that could potentially conflict with their job responsibilities. The policy requires all management-level employees with primary purchasing responsibility to submit conflict of interest affidavits annually whether they have interests to disclose or not.
In addition to strengthening the conflict of interest policy, the district also incorporated a statement declaring any conflicts of interest in the explanatory summary of each agenda item at board meetings.Exceptional community relations. The Community Relations staff has developed and implemented a wide array of community service programs designed to increase community participation and promote positive relationships between the district and its volunteers. The program's goals include (but are not limited to) increasing student achievement, increasing parental involvement in education, and encouraging students and the community to participate in charitable activities.
Keeping the lines of communication open and productive continues to be a major focus for the district. In an effort to provide additional opportunities for parents and other community members to have more direct access to the superintendent and other central and campus administrators, the district is coordinating three districtwide Town Hall Meetings during the 2001-02 school year. The meeting format provides ample opportunity for parents to gain information and answers to their questions. Additionally, board members and district administrators are available during the second half of the meetings for topic-discussion roundtables to answer questions on an array of topics such as curriculum, technology, facilities and finance and campus-specific issues. Parents have expressed their appreciation for the roundtable format because it allows for a casual, less formal way to exchange information.Education Foundation. Established in 1992 to benefit the students of FBISD, the Foundation provides funds to support innovative academic projects and staff development activities. A 39-member volunteer board of directors made up of local business, industry and community leaders governs the foundation. Since inception, the foundation has awarded nearly $603,000 in grants to FBISD teachers and schools to support classroom instructional projects that are not funded through regular school budgets.The Foundation implemented two new initiatives since the review: the Angel Grants Program and Foundation Auxiliary. The Angel Grants program provides funding for equipment and/or material needs for which no other source of funding is readily available. The Foundation Auxiliary creates community awareness and provides volunteer support for the Foundation.Improving family literacy. FBISD established the Family Literacy Even Start Program to integrate early childhood education, parenting education and adult education into a program that serves at-risk students and economically disadvantaged families. The program provides a vehicle for parents, school and community to break the cycle of illiteracy. This family-centered education program enables parents to become partners in their children's education, helps children reach their full potential, and provides literacy training for parents. The program also uses collaborative partnerships to involve parents and community members in reducing illiteracy among at-risk students.FBISD has expanded the Family Literacy Even Start Program and added new sources of funding. The district received notification in September 2001 that it was awarded a $164,278 Even Start Grant. Additionally, FBISD received, for the first time this year, Emergency Immigrant Education Program funds that are partially being used to expand family literacy services to immigrant families. The district opened a new family literacy site at Arizona Fleming Elementary School, and serves 100 families there with a waiting list. This is the second year that FBISD collaborated with Head Start to implement the Ready To Read Grant. District staff provides trainers who work with Head Start staff to implement effective early literacy instruction. The alignment of instruction between Head Start and FBISD assists Head Start students to successfully transition into the district's curriculum. Results from the Family Literacy Even Start Program continue to be positive. In 2000-01, the district served 410 families. Thirty-four students completed their GED and five participants received their United States citizenship. TAAS results for students whose families participate in this program continue to exceed those of similar students whose families do not participate.Managing health plan costs. FBISD uses several strategies to control the overall cost of health care. The district bids out health insurance every three years and requires brokers and agents to sign agreements that define the agents' duties and responsibilities. The district also contracts directly with medical providers, which gives FBISD a role in setting rates. Finally, the district conducts annual claims audits with its third-party provider and has found payment accuracy rates of 100 percent, which validates its vigorous attempts to hold costs in check.FBISD continues to use the above strategies to control the overall cost of health care.Keeping workers' compensation costs low. FBISD's initiatives that were established through its Workers' Compensation Committee have reduced the district's costs. The committee, comprised of department heads and supervisory personnel, developed and implemented safety initiatives to control claims successfully. The initiatives include revising workers' compensation guidelines, shifting authority for safety to supervisors, and providing training to supervisors while involving employees in safety initiatives. Involving employees in accident investigations raises safety awareness among all employees and offers them a stake in reducing accidents and lowering costs.The district initiated a Safety Award Program that provides incentives to employee groups that maintain a safe work environment. Through these combined efforts, the district reduced workers' compensation claims by $500,000 during 2000-01.E-commerce. E-commerce technology allows the district to order and receive goods and services online, which reduces paperwork, while speeding up transactions. It also provides better management of large amounts of information, up-to-the-minute order tracking and reduced business-to-business costs.FBISD uses e-commerce technology to procure office supplies and teaching and instructional materials. The district realizes additional savings through negotiated prices, reduced paper and processing costs due to a lower number of purchase orders and accelerated delivery.Print Shop efficiency. The print shop operates on a complete cost recovery basis that produces operating profits, provides high quality services and charges competitive prices.The district's Print Shop continues to run efficiently by operating on a complete cost recovery basis.Financial awards received. FBISD's comprehensive annual financial report has been awarded certificates of achievement from the Government Finance Officers Association and the Association of School Business Officials for 1995-96, 1996-97, 1997-98 and 1998-99.FBISD also received this award for 1999-2000.Lower construction costs. FBISD controls new building construction costs by using building prototypes standards that maximize the efficiency of its school buildings.Since the TSPR performance review, FBISD has opened five new schools: one high school, two middle schools and two elementary schools. A new high school and an elementary school are under construction and will open in August 2002. The district received an Environmental Protection Agency (EPA) grant for implementing the "Tools for Schools" program at all campuses, and was named one of 19 school districts in the nation to receive the U.S. EPA 2001 Excellence Award for air quality.Low meal prices. The district has generated a food service fund balance of more than $3 million without increasing meal prices in 10 years.FBISD continues to operate a profitable operation and thereby is able to hold meal prices down.Transportation automation. To improve efficiency, FBISD uses computer programs in its Transportation Department. Routing software, maintenance scheduling software and fueling software keep the district's fleet running smoothly.The computer programs continue to help FBISD maintain efficiencies in its Transportation Department.Student safety programs. The Before It's Too Late program trains high school students to teach middle school children about drugs and alcohol. Through the Operation Kick-It program, selected inmates from the Texas Department of Criminal Justice share their experiences with drugs, alcohol and violence with FBISD students. The Gang Resistance Education and Training program teaches middle school students to resolve conflicts without violence and resist peer pressure to join gangs.The district purchased Second Step, a violence prevention curriculum, and trained all elementary school counselors to implement it. The district directed elementary counselors to implement the Second Step curriculum as part of the Developmental Guidance Program. FBISD also implemented Teens Against Tobacco Use (TATU), a research-based, prevention program from the American Lung Association, at AHS, CHS, DHS, EHS, KHS and WHS high school campuses. Once the district trains high school students, it plans to implement the program in the middle and elementary schools. FBISD changed The Gang Resistance Education and Training program to the Crossing the Line program, and expanded the program to all middle schools. Crossing the Line covers the juvenile justice system, truancy, resistance to peer pressure, alcohol, tobacco and drug abuse, sexual harassment, hate crimes and discrimination. Police officers from the district and local law enforcement agencies deliver the program at grades 7 and 8.FBISD police officers teach an eight-hour STAND/Dabbler Program for first-time offenders between the ages of 10 and 16. Local judges require these children and their parents to participate in this program, which includes a 'reality' visit to the Juvenile Detention Center, watching videos related to their offenses, writing an essay on preventing future recurrences and hearing success stories from role models.During the 2000-01 school year, 341 cases (each case involves one student and his/her parent) participated in the STAND program. Since the program's inception, 1,688 students have participated.Improved attendance rates. By implementing the Assisting Student Attendance Program to reduce the number of truancies by notifying parents of student absences and conducting home visits, the district increased its average daily attendance (ADA) from 95.8 percent in 1998-99 to 96.5 percent in 1999-2000. FBISD received $827,892 in additional state aid for 1999-2000 for increasing its middle school and high school ADA.In order to prevent any high schools from being rated "low performing" because of dropout rates, the district added an additional phase to the Assisting Student Attendance Program (ASAP). This new phase in the ASAP consists of police officers locating and interviewing approximately 200 dropout students each year. The district either re-enrolls these students in school or signs up the students to complete a GED program.Technology stipends. FBISD has developed a stipend program that attracts and retains technical staff. Often after the district trains technicians, they move into the business field for more pay. In addition to reimbursing the technical staff members for their certification, training and awards, the district provides a $1,500 annual stipend for each test successfully completed toward technical certification.The district also developed, and now offers, training courses that include the capabilities of specific modules in its Comprehensive Information Management System. District staff initiated this recommendation by forming a "super users" group and asking the group what it needed by way of training.FBISD has made steady progress in implementing TSPR recommendations, particularly considering that it transitioned in a new superintendent during this time. Ninety percent of the TSPR recommendations either have been implemented or are being implemented at this writing. District administrators rejected one of the report's recommendations, and have provided their reasons for their delay or inaction on eight others. This section addresses the key areas requiring additional attention.
Campus Administrative Staffing Guidelines
FBISD administrators told TSPR that the board continues to study Recommendation 8, implement minimum staffing guidelines for elementary, middle and high schools to reflect differences in enrollment, for possible future implementation; however, they strongly feel the need to keep assistant principals in the classroom monitoring teachers' instruction. TSPR certainly recognizes the board's desire to maintain instructional monitoring and does not recommend that the district dismantle this practice. TSPR's analysis, however, showed the district was overstaffed with assistant principals in elementary and middle schools and understaffed with assistant principals in its high schools. TSPR also found inequitable distribution of secretaries and clerks throughout the schools. As such, the recommendation emphasized the district's need for minimum staffing guidelines that reflect differences in enrollment among schools and allow the equitable distribution of baseline administrative staffing.
TSPR strongly encourages the board to implement this recommendation because minimum staffing guidelines will allow the district to allocate more budget resources to the classroom after a thorough assessment of each school's administrative requirements
Internal Audit
FBISD made progress with two of four TSPR recommendations to improve the effectiveness of internal auditing. The district adopted a formal audit plan based on a risk assessment of its organization and is in the process of adopting a charter for the Internal Audit Department that references the Standards for the Professional Practice of Internal Auditing. The district decided, however, to continue to require that the internal auditor report to the CFO and superintendent. Additionally, the district did not hire an additional auditor because it was a low budgetary priority.
The internal audit function is a vital link in the system of internal controls. As such, 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 FBISD. A strong internal audit function is a vital management tool that helps administrators and the board manage and govern the district. Consequently, TSPR encourages FBISD to reconsider its decision that the internal auditor not report to a standing audit committee of the board as this would ensure independence-one of the most important standards for internal auditors. And, while TSPR understands the need to prioritize the hiring of personnel, we urge the district to hire an additional internal auditor as soon as its budget allows to ensure reasonable audit coverage.
FBISD's Ideas for Improving the Texas School Performance Review
The Texas School Performance Review team does not assume that its process for performing school reviews works so well that it cannot be improved. Therefore, as part of the progress report preparation, TSPR asked FBISD staff members and administrators what went right and what went wrong-and how the process could be improved.
The feedback TSPR has 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 to achieving the desired results. But, it is important for TSPR to continually be mindful of those things that did not work as intended so that the review process can be continually improved.
Fort Bend administrators and board members made the following observations:
According to the Interim Superintendent and the President of the Board, "the review made us really reevaluate ourselves and look inwardly to see where we needed to make significant improvements. Everyone is on board about the report." In addition, the administration felt that the process was well done, but like any process, there is always room for improvement. While the scheduling of interviews was well done, it may have been easier on some administrators to have had extra time in the interview and therefore, avoid added email and telephone time with the consultants. Some board members questioned why some trustees had been interviewed individually while others had been interviewed with other members present.
Additionally, some administrators voiced the fact that TSPR needed to have been more cognizant of issues facing "fast-growth" districts so that in conducting a future audit of this type, the auditing team remains sensitive to the issues surrounding an ever-changing target. Others suggested that TSPR should consider shortening the report and thus make it easier for districts to tackle the very key areas that truly need attention.
Finally, on a more technical note, the district mentioned that another level of proofing would have been helpful and ideally would have liked to have seen one more meeting other than the "Findings Meeting" to have a chance to provide revisions, especially in the area of updating numbers one final time.
All of these are good recommendations and TSPR will give them careful consideration as it prepares for future reviews.
