Progress Report
Laredo Independent School District
October 2003Introduction
In April 2002, Comptroller Strayhorn released the results of the Texas School Performance Review (TSPR) of the Laredo Independent School District (LISD). Based on more than six months of work, the report identified 101 recommendations that could, if fully implemented, result in net savings of more than $13 million over the next five years for the district. The TSPR staff returned to LISD in June 2003 to assess the district's progress in implementing the report recommendations.
Since 1991, TSPR has recommended more than 7,600 ways to save taxpayers more than $780 million over a five-year period in more than 100 public school districts throughout Texas. TSPR also conducts follow-up reviews of districts that have been allowed at least one year to implement the TSPR recommendations. These more than 60 subsequent reviews show that more than 90 percent of TSPR's combined proposals have been acted upon, saving taxpayers nearly $135 million, with the full savings estimated to grow in the future.
Improving the Texas School Performance Review
Comptroller Carole Keeton Strayhorn, 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 TSPR more valuable, even vital, to the state's more than 1,000 school districts. With the perspective of a former teacher, and school board president, the Comptroller has vowed to steer TSPR toward increased accountability to local school districts and the communities they represent.
Comptroller Strayhorn began by establishing new criteria for selecting school districts for future reviews. Priority is now given to districts judged poor performing academically or financially, and to hands-on reviews that benefit the greatest number of students. To ensure this process also serves small districts, reviews of numerous school districts in close proximity, regardless of academic or financial status, are also completed to achieve some economy of scale, as was the case with the smaller districts reviewed in Tom Green County.
Recognizing that only about 51 cents of every education dollar is spent on instruction, Comptroller Strayhorn's goal is to drive more of every education dollar directly into the classroom. In addition, no longer are school districts' best practices and exemplary models left buried inside individual TSPR reports. Instead, Comptroller Strayhorn has ordered TSPR to share best practices and exemplary programs 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 well to keep the solution to itself. Comptroller Strayhorn 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 will be included in the Comptroller's best practices database, A+ Ideas for Managing Schools (AIMS), which is on the Web at www.aimsdatabase.org.
Under Comptroller Strayhorn's approach, the TSPR team and consultants 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 continuously assessed and improved;
- understand the links among 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 Strayhorn 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.
The Comptroller's office selected Resource Consultants, Inc. (RCI, Inc.), a Delaware, Maryland-based consulting firm with an office in Austin, to assist the agency with the review at a cost of $190,000. The review team interviewed district employees, school board members, parents, business leaders and community members and held three public forums at each of LISD's three high schools on November 5, 6 and 7, 2001 from 5 p.m. to 8 p.m.
To obtain additional comments, the review team conducted focus group sessions with teachers, principals, parents and community members. To ensure that all stakeholder groups had input, TSPR asked students, parents, teachers, school and central administrators and support staff to complete surveys.
The review team received 304 completed surveys from: 45 administrative and support staff; 27 principals and assistant principals; 48 teachers; 50 parents and 134 students. Details from the surveys and public forums appear in Appendices A through F of the original TSPR report of LISD.
The review team also consulted two Texas Education Agency (TEA) databases of comparative educational information-the Academic Excellence Indicator System (AEIS) and the Public Education Information Management System (PEIMS).
LISD selected five peer districts for comparisons based on similarities in student enrollment, student performance and community and student demographics. The selected peer districts were Eagle Pass, Edgewood, Edinburg, Harlandale and United ISDs. TSPR also compared LISD to district averages in TEA's Regional Education Service Center I (Region 1), to which LISD belongs, and to the state's overall averages.
Established more than a century ago, LISD has grown from a single-room schoolhouse to a district in Webb County that covers more than 13.83 square miles. In 2001-02, LISD ranked among the 40 largest school districts in the state.
During the review in 2001-02, the district served more than 23,188 students in 30 schools: 21 elementary schools, four middle schools, three high schools and two magnet schools. In 2001-02, LISD's students consisted of 98.9 percent Hispanic, 0.9 percent Anglo, 0.1 percent African American and 0.1 percent other.
In 2002-03, the LISD student population increased to 23,881 students. This caused a small shift in ethnic composition to: 99.2 percent Hispanic, 0.1 percent African American, 0.1 percent Asian/Pacific Islander and 0.7 percent Anglo. The district has 95.5 percent of its students classified as economically disadvantaged.
The district received an accreditation rating of Academically Acceptable from TEA for 2001-02. The TAAS student passing rate on all tests taken was 74.4 percent.
The district employs a staff of 3,384 individuals, 42.7 percent of which are teachers. In 2001-02, the ethnic breakdown of LISD's teachers consisted of 92.4 percent Hispanic, 6.8 percent Anglo, 0.3 percent African American, 0.3 percent Asian/Pacific Islander and 0.1 percent Native American.
LISD's 2002-03 budget was $159 million. The district budgeted 51.9 cents of every tax dollar on classroom instruction compared to the state average of 51 cents. Since 2000-01, the district has decreased the amount it spends on classroom instruction from 54 cents on every dollar to 51.9 cents, a decrease of 2.1 cents.
Over the last year, the district experienced significant changes. Dr. Paul Cruz, the district's former superintendent, accepted a position with TEA and the LISD board appointed Dr. Jerry Barber as the district's interim superintendent. On November 15, 2002, Dr. Barber officially became LISD's new superintendent.
As one of his first initiatives, Dr. Barber reviewed TSPR's complete report, assembled a team of administrators to further analyze each of the 101 recommendations and to recommend implementation as appropriate. The superintendent then developed 10 priority goals for LISD that will provide direction for student achievement and will be used to reformulate the district's improvement plan. The board approved these goals in February 2003.
LISD also converted its board meeting process to a paperless procedure. Board members now use laptop computers and designated diskettes to view the agenda or agenda items. This new process has not only saved the district in funds spent on printing and paper, but more importantly has saved staff time in producing voluminous binders.
Other significant changes in 2002-03 include the district's commitment to increase the quality and number of career technology courses and improve the performance of all LISD students as measured by the Texas Assessment of Knowledge and Skills (TAKS). In 2002-03, 56 percent of all sixth grade LISD students tested met the mathematics standard of TAKS; 65 percent met the reading standard; and 57 percent of all ninth grade LISD students met the reading standard. The district's fourth grade scores meeting TAKS standards for reading and mathematics were 74 percent and 81 percent, respectively.
The district also implemented effective human resources practices and a construction and facilities maintenance program. It also provides quality instructional and administrative technology for students, staff and the community, including acquisition and maintenance of appropriate hardware and software.
In December 2002, the district dedicated its newest elementary schools, Sanchez-Ochoa and Dovalina Elementary. Sanchez-Ochoa Elementary includes new classrooms for 750 students while Dovalina Elementary under-went a 90 percent renovation of its original structure, adding classrooms and a gym/cafeteria.
On April 24, 2003, LISD initiated a new wave of school construction by breaking ground for Bruni, Alma Pierce and MacDonell elementary schools. The three elementary schools will replace older schools under the district's $144 million construction bond program approved by voters in 1999. Completion of these facilities is scheduled for August 2004.
In addition, on July 2003, the board approved a $1.9 million pay raise for staff effective September 2003; including a 6-percent increase for its 1,590 para-professionals, a 4-percent increase for its 1,959 professionals and a $2.8 million pay raise for the district's 1,688 teachers, librarians and counselors.
The district held its first-ever Summer Leadership Academy on June 3-4, 2003. The superintendent coordinated the professional development event to facilitate learning and teaching for all staff. Presentations included the Texas Open Records Act, student code of conduct, campus and student activity funds and other critical information for administrators and key staff.
While work continues in the district, both LISD staff and TSPR team members have a sense of steady progress.The district has implemented55 recommendations; has 36 in various stages of progress; reviewed eight not yet implemented; and rejected two recommendations. (See Appendix A for details on the recommendations' status.)
Exemplary Programs and Practices
TSPR identified numerous "best practices" in LISD. Through commendations in each chapter, the report highlights model programs, operations and services provided by LISD administrators, teachers and staff. The Comptroller encourages other school districts throughout Texas to examine these exemplary programs and services to see if they could be adapted to meet local needs. TSPR's commendations include the following:
- LISD provides opportunities for students to explore their interests in communications, fine arts, health and science. LISD maintains two magnet schools offering varied curricula in science and fine arts. Advanced Placement courses are available for both gifted and talented students and regular students, which increases their chances of going to college. A committee of parents, gifted and talented teachers and regular teachers, principals and central administrators evaluate and suggest modifications to program offerings at the magnet schools, ultimately improving the quality of the education offered to enrolled students.
Since the review, LISD has continued to improve its magnet schools. The district has expanded its gifted and talented (G/T) program and ensured that its teachers receive the appropriate training. In addition to the required 30-hour gifted and talented certification requirement, G/T teachers attend six hours of required G/T training. Students in the Fine Arts Magnet School who are active in the Laredo Philharmonic Orchestra will have the opportunity to play at Carnegie Hall in New York City. In addition, the University of Texas Area Health Education Center began a partnership with LISD's Health and Science Magnet School to increase student awareness of health and science careers.
- LISD's efforts have increased scholarship funding for students. To encourage students to enroll in college, LISD has developed strong partnerships with higher education and local businesses and is dramatically increasing the amount of money available for student scholarships. In addition, the Scholarships and Special Projects Department has succeeded in increasing the amount of scholarship money available to students from $1.3 million in 1996 to $3.3 million in 2001.
Working with the district's Webmaster, the LISD Scholarship Office created a scholarship Web site launched in spring 2003. Since its debut, the site has had more than 3,000 visitors. The Web site provides information on local and out-of-town scholarship applications and deadlines; scholarship criteria; scholarships by interest or major(s); financial aid resources; and other valuable Internet-based resources.
- Energy management and conservation program has produced significant savings during the first year of operation. The Energy Management Department began a comprehensive energy conservation program in September 1998 with the final retrofit completed in June 2000. The program included a comprehensive lighting retrofit, the addition or replacement of approximately 162 heating, ventilation and air conditioning (HVAC) units, the installation of a building automation system for districtwide control of mechanical and electrical equipment and a pilot water conservation project. First year energy savings totaled $669,859.
After experiencing success with its energy management and conservation program, LISD turned its attention to air quality management districtwide. By patterning Environmental Protection Agency (EPA) model programs, LISD has conducted indoor air quality testing for its schools and prepared reports on standards. In addition, a committee of teachers and nurses identified air quality concerns, issues and solutions. The district has designated department and school-based quality coordinators who have been trained on a variety of air quality issues.
- Improved financial reporting has provided LISD with multiple awards. LISD's Finance Department has emphasized and improved its reporting processes, and as a consequence, has repeatedly received national recognition. LISD received the Distinguished Budget Presentation Award from the Government Finance Officers Association for 1997-98, 1998-99 and 1999-2000 and also received the Certificate of Achievement for Excellence in Financial Reporting for its Comprehensive Annual Financial Reports for the fiscal years ending August 31, 1997, August 31, 1998 and August 31, 1999.
LISD continues to enhance its financial reporting. In 2002-03, the district provided financial reports to board members and requestors on compact discs. The district's Web site also continues to provide well-organized and comprehensive "Financial Facts About Laredo ISD" including its financial goal of "maximizing fiscal and human resources and utilizing sound fiscal planning."
- LISD's process for identifying, selecting and writing grants has increased funding for technology improvements. As a result of technology grants, all of LISD's schools are fiber optically wired, and an extensive server network has been installed. While the district has no full-time grant writer, the chief financial officer, the administrative assistant for Instructional Technology and the director of Information Technology have worked well together to identify and obtain the funding required to continuously improve LISD's information technology infrastructure.
Since the review, the district has appointed a grant writer to coordinate all grants and maintain a centralized database of grant applications by title, amount, organization, project name and award dates. The grant writer also provides technical writing support to divisions and has developed and distributed a 2003-04 "Grants Application Packet" that includes comprehensive procedures, technical writing tips, multiple sources of grant funding and other valuable grant-related information.
- Long-range planning has helped to improve the district's transportation facility needs. The Transportation Department has had severely limited available space for parking and maintaining buses, housing parts and administrative offices. A new facility funded by a 1999 bond issue will be built on land already owned by the district and be used in conjunction with the Transportation Department's existing facility. This facility will help increase the space necessary to meet the Transportation Department's needs.
The district has continued to improve its transportation services by hiring two regular part-time bus driver substitutes who will cover routes when staff absences occur. Starting in 2003-04, the district will implement a staggered bell system and achieve greater routing efficiencies.
- Sale of weighted average daily attendance (WADA) credits have increased revenue to the district. LISD has aggressively searched for other school districts as potential partners under the state's current school finance system. One option under this system allows school districts with property wealth exceeding the equalized wealth level of $300,000 per student to purchase weighted average daily attendance (WADA) credits from property poor school districts like LISD. Under this option, the property poor school district receives payments for WADA credits sold to property wealthy school districts to reduce the wealthy district's property wealth per student. Laredo ISD partnered with Deer Park ISD in 2000-01, resulting in an additional $2.6 million in revenues. For 2001-02, LISD has contracts with four districts for an estimated $4 million in additional revenues.
In 2003-04, the district will contact more than 50 districts statewide seeking additional partnerships. As a result of the district's canvassing effort, LISD will propose contracting with Deer Park, La Porte, Texas City, Eanes, Spring Branch, Plano and Sweeny ISDs at an estimated $8 million gain. If successful, the district will achieve an increase of $1.8 million in WADA credit sales.
- Awarding prizes to students has improved participation in the district's breakfast program. The Child Nutrition Program increased student participation in the district's breakfast program by periodically awarding prizes to students who eat breakfast at school. The staff purchases stuffed animals and other items and raffles these prizes off to the students who participate in the breakfast meal program. The prizes are distributed to students by attaching a winning number or color to the bottom of one breakfast tray. The cafeteria servers or cashiers then announce the winning tray and the student claims their prize.
The district has progressively improved student participation in the district's breakfast program. Using themes to increase participation, LISD hosted cafeteria events including National School Lunch Week (October 21-25); Winter Wonderland (November and December); Valentine's Day (February 14) and Cinco de Mayo (May 5). During the themed events, LISD awards prizes to students who eat breakfast at school.
- Use of the LISD's Web site has improved the purchasing process. The Purchasing Department efficiently uses the district's Web site in its bid process. In 2001-02, LISD began placing bid invitations and requests for proposals (RFPs) on its Web site. The department submits the information to the district's Web site administrator, and bidders may download the RFP. The department continues to mail RFPs to vendors upon request, but expects use of the Web site to reduce the costs of printing and postage for mailings to 8,000 potential vendors.
As a result of its online purchasing and requisitioning capabilities and achieving greater workflow efficiencies, the district was able to eliminate a buyer position and provide intensive training to staff on the online purchasing system.
- The district's safety program and accident prevention plan have reduced LISD workers' compensation claims. LISD has designated a safety representative for each campus and department and holds monthly meetings of safety representatives. Monthly safety training, monthly facility audits/inspections, detailed quarterly analyses and completion of monthly safety checklists have also reduced claims. In 1998, the Texas Workers' Compensation Commission designated LISD as an extra-hazardous employer because the district's record of injuries was higher than the expected claims rate. By June 2000, LISD completed six months of monitor status for the Hazardous Employer Program and was removed from the program because of its improved performance.
By educating its employees on safety practices and purchasing protective equipment, the district has significantly reduced employee injury claims. In 1997-98, LISD was classified "extra-hazardous" based on a scale used by the Texas Workers' Compensation Commission and insurance companies to rate a district's safety performance. However, since 2001-02, the district has been rated "exceptional" because of its reduced employee injury claims. The district also implemented an integrated return-to-work policy, practice and program that allows injured workers to return to duty as soon as medically authorized using a "work-hardening" methodology that restores the injured employee to full duty in the shortest time possible.
LISD has made steady progress in implementing TSPR recommendations. The district has implemented 56 recommendations; has 36 in various stages of development; reviewed but not implemented six; and rejected two.
In June 2003, TSPR staff returned to Laredo to assess the district's progress toward implementing the recommendations contained in the April 2002 report. This section addresses key areas requiring additional attention by LISD.
District Organization
TSPR recommended that the district replace standing committees with a Committee of the Whole and train its board members on using the Committee of the Whole effectively (Recommendation 2). LISD instead created three standing committees: the Finance Committee; the Quality and Assurance Committee for Safety and Operations; and the Quality and Assurance Committee for Curriculum and Technology, on which all board members serve. Some board members and administrators report that the lengthy committee meetings do not cover all agenda items as planned.
During the review team's onsite progress visit in June 2003, the board members had three meetings scheduled in one day. This recommendation was intended to assist the district in curtailing the need for extensive meetings that were duplicative in nature with those of the regular board meeting. By creating a Committee of the Whole and obtaining training in how to conduct effective meetings, LISD's board members and stakeholders can achieve greater efficiency. The superintendent is currently coordinating board training by an experienced consultant on running effective meetings. However, in the interim, the district needs to reconsider its meetings process to ensure the discussion of agenda items as planned and to maximize efficiencies.
TSPR recommended that the district apply administrative staffing guidelines for elementary, middle and high schools to reflect differences in enrollment (Recommendation 6) and apply staffing formulas for custodial positions (Recommendation 55). While the district has reduced staff in certain areas and administrators have begun to meet and discuss administrative staffing guidelines, the district has not yet implemented the guidelines. As a result, the district has left nearly one-half of the potential savings of $7.8 million on the table. The district has grown by 693 students over the course of the last year and must ensure that staffing is equitable and appropriate, providing services for all.
Personnel Management
TSPR also recommended that the district develop job descriptions to clearly identify
job requirements for every district position (Recommendation 44). Since the review,
the district has implemented many position reassignments and redeployed its human resources, in some instances without first developing specific job descriptions for reassigned personnel. By identifying job duties prior to filling vacancies or reassigning personnel, LISD will ensure greater organizational efficiency; ensure proper classification and compensation of all district positions; and manage overtime eligibility issues for non-exempt position classifications as required under the Fair Labor Standards Act.Asset and Risk Management
While LISD has amended its local policy to clearly define and assign responsibility for its assets, the district has not performed periodic unannounced audits as recommended by TSPR (Recommendation 59). LISD's long-standing history of problems with its fixed asset system and procedures requires appropriate follow-up by the district to ensure that LISD records are accurate and that fixed assets are added and deleted from the inventory records in a timely manner.
Computers and Technology
Computers and Technology remains an area that needs work. The district has not implemented one-fourth of the recommendations and has left potential savings on the table.
While the district reorganized and assigned technicians to specific schools as recommended by TSPR (Recommendation 84), LISD's IT Department still has not yet created comprehensive written procedures (Recommendation 90).
TSPR also recommended that the district eliminate 11 campus trainers (Recommendation 85) because of overstaffing and unclear reporting lines. Instead, LISD's IT Department retained all 30 of its campus trainers and added responsibilities to their positions. LISD's decision to retain all of the campus trainers has not addressed overstaffing, skills or inadequate experience levels and related issues identified by TSPR and is ultimately impacting the ability of teachers to acquire needed technology skills.
TSPR recommended that the district acquire adequate tools, hand-held test equipment, work benches, and other supplies (Recommendation 94) to facilitate IT technicians. The district has purchased limited supplies-to-date.
TSPR recommended that the district hire a chief information officer who reports directly to the superintendent and serves as a member of the superintendent's cabinet (Recommendation 86). While LISD reassigned the former director of IT to serve as the chief technology officer, the position still reports to the director of Finance, not to the LISD superintendent. By not acting on TSPR's recommended reporting relationship for LISD's chief technology officer position, the superintendent is unable to receive timely first-hand information about IT plans, projects and programs. The district needs to reconsider the existing reporting structure and develop a unified technology organization that operates as a strategic partner and delivers IT services in the most cost-effective manner.
Transportation
TSPR recommended that the district charge user departments a rate that reflects actual transportation costs (Recommendation 79). Although the district prepared a cost analysis in May 2003 and submitted the analysis to its chief financial officer, as of June 2003, no further progress has been made on this recommendation. Sound fiscal policy and generally accepted accounting principles require that costs be allocated to the correct user department. Therefore, it is important for the district to ensure adherence to sound accounting methods.
LISD's Ideas for Improving the Texas School Performance Review
TSPR 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, TSPR asked LISD staff members and administrators to discuss what went right and what went wrong-and then talk about 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. 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 improved.
In order to obtain feedback on the review process, TSPR sent surveys to board members and interviewed board members and administrators. One board member returned a survey to TSPR and other board members were interviewed while onsite in June 2003.
In interviews, board members voiced a wide range of opinions about the review process. Some indicated the review was useful while others said the report heightened their awareness of the school board's role and responsibility versus that of the superintendent. Another board member questioned why TSPR assumed that LISD is a "poor" district that would need to eliminate positions. Another board member said that the performance review fairly portrayed the exemplary programs as well as the challenges facing LISD. More than one board member expressed concerns that TSPR did not "verify" reports of micromanagement by the board or other allegations prior to releasing the LISD report. TSPR respects the opinions voiced by LISD board members and uses multiple strategies to carefully cross reference information during all reviews.
The survey completed by one of the district's board members disagreed with statements that fiscal timetables given by TSPR in the report were realistic and attainable.
TSPR will continue to consider mitigating circumstances and a district's competing priorities when recommending implementation timelines and strategies.
Similarly, district administrators expressed a wide range of opinions about the review process. Some administrators said that the review and some of the recommendations resulted in raising teacher awareness of different teaching strategies.
A few administrators suggested that TSPR improve its requests for information from the district to avoid redundancy. Another administrator suggested that TSPR conduct additional interviews with staff to ensure a good cross-sectional representation of staff. Responsive to the administrators' concerns, TSPR will examine ways to improve its coordination of all requests for preliminary data and work closely in preplanning sessions with consultants. TSPR always welcomes all district staff input, especially during the onsite public forums.
