DISTRICT LEADERSHIP, ORGANIZATION
AND MANAGEMENT
This chapter reviews the district leadership, organization and management of the Llano Independent School District (LISD) in the following sections:
- A. Governance
- B. District Management
- C. Planning and Evaluation
- D. Personnel
- Part 1
- Part 2
- E. Community Involvement
D. PERSONNEL (PART 2)
In May 2003, the board voted to close Llano Middle School. Fourth graders will remain on their elementary campus in 2003-04 as fifth graders. As a result, Packsaddle Elementary will gain 56 students and Llano Elementary will gain 49 students. The district told the review team that existing teachers from each school will be used for the most part to cover the extra grade level and increased enrollment.
Exhibit 1-20 shows student enrollment compared to professional staff. LISD has the lowest professional staff-to-student ratio of its peers for 2002-03. With the RIF of 36 professional positions for 2003-04, the professional staff-to-student ratio will rise to 1:9.
Exhibit 1-20 Source: TEA, PEIMS, 2002-03
Enrollment and Professional Staff
LISD and Peer Districts
2002-03
District Students Professional
FTEProfessional
Staff-to-Student
RatioBarbers Hill 2,945 283 1:10.4 Wimberley 1,812 190 1:9.5 Ingram 1,510 176 1:8.6 LISD 1,890 246 1:7.7 Glen Rose 1,678 198 1:8.5 The Southern Association of Colleges and Schools (SACS) accredits more than 12,000 public and private educational institutions, from pre-kindergarten through university levels, in 11 states in the Southeastern United States (including Texas) and in Latin America. SACS minimum personnel requirements for elementary schools is based on enrollment as listed in its 2002-03 Checklist of Standards for the Accreditation of Elementary Schools. Exhibit 1-21 shows the minimum standards for elementary schools compared to LISD.
Exhibit 1-21 shows that there are a total of six secretarial positions assigned to LISD elementary schools; three secretaries at Packsaddle Elementary and three secretaries at Llano Elementary.
Exhibit 1-21 Source: LISD Assignment Report and SACS Checklist of Standards for the Accreditation of Elementary Schools, 2002-03.
LISD's Elementary Schools Compared to SACS Standards
2003-04
Position Llano
ElementarySACS
StandardOver/
(Under)Packsaddle
ElementarySACS
standardOver/
(Under)Enrollment 414 391 Principal 1 1.0 0.0 1 1.0 0.0 Counselor 1 0.5 0.5 1 0.5 0.5 Librarian 1 1.0 0.0 1 1.0 0.0 Library aide 0 0.0 0.0 0 0.0 0.0 Secretary 3 1.0 2.0 3 1.0 2.0 Total Over/(Under) 2.5 2.5 Using SACS standards to compare staffing at LISD's two elementary schools, LISD is overstaffed by four secretarial positions at Llano Elementary and Packsaddle Elementary. However, SACS does not consider the PEIMS data collection activities supported in Texas public schools, so after making an allowance for one clerk for PEIMS, overstaffing is reduced by two positions.
Packsaddle and Llano Elementary schools have a combined total of two counselor positions. The SACS personnel standard for guidance services in elementary schools is 0.5 positions for enrollment up to 499. TEC Section 33.002 requires school districts with 500 or more elementary students to employ one certified counselor for each 500 students. Therefore, LISD appears to have an appropriate number of counselors at the elementary level.
SACS recommends minimum personnel requirements for middle schools (grades 5-8), based on enrollment in its 2002-03 Checklist of Standards for the Accreditation of Middle Schools.
Exhibit 1-22 shows the minimum standards for middle schools compared to LISD. The middle school standard also applies to junior high schools.
Exhibit 1-22 shows that LISD's junior high school is overstaffed by one full-time equivalent secretarial position compared to the 2.0 SACS standard based on enrollment and understaffed by one half-time library aide position.
Exhibit 1-22 Source: LISD Personnel Directory and Assignment Report and SACS Checklist of Standards for the Accreditation of Middle Schools, 2002-03.
LISD's Junior High Compared to SACS Standards
2003-04
Position Llano Junior
High SchoolSACS
StandardOver/
(Under)Enrollment 295 Principal 1 1.0 0.0 Counselor 1 1.0 0.0 Librarian 1 1.0 0.0 Library aide 0 0.5 (0.5) Secretary 2 1.0 1.0 Total 0.5 SACS further recommends minimum personnel requirements for high schools (grades 9-12), based on enrollment, in its Standards Checklist, Accreditation Standards for Secondary and Middle Schools, 2000. Exhibit 1-23 shows the minimum standards for high schools compared to LISD.
LISD's high school is overstaffed by one full-time equivalent secretarial position and understaffed by one library aide and a half-time counselor position compared to the SACS standard based on enrollment.
Exhibit 1-23 Source: LISD Personnel Directory and Assignment Report and SACS Standards Checklist, Accreditation Standards for Secondary and Middle Schools, 2000.
LISD's High School Compared to SACS Standards
2003-04
Position Llano
High SchoolSACS
standardOver/
(Under)Enrollment 510 Principal 1 1.0 0.0 Assistant principal 1 1.0 0.0 Counselor 1 1.5 (0.5) Librarian 1 1.0 0.0 Library aide 0 1.0 (1.0) Secretary 4 3.0 1.0 Total (0.5) Exhibit 1-24 displays LISD's staffing from 1998-99 through 2002-03.
Exhibit 1-24 Source: TEA, AEIS, 1998-99 through 2001-02 and PEIMS, 2002-03.
LISD Staffing from 1998-99 through 2002-03
Staff 1998-99 1999-2000 2000-01 2001-02 2002-03 Percent
ChangeTeachers 125 131 142 164 173 38.0% Professional Support 13 16 17 21 25 95.3% Campus Administration 7 8 7 8 8 14.3% Central Administration 4 4 4 5 5 25.0% Educational Aides 31 33 32 33 35 11.5% Auxiliary Staff 71 74 80 84 81 14.6% Total Full Time Equivalent
Employees251 266 282 314 327 30.1% Enrollment 1,578 1651 1682 1817 1890 19.8% Teacher-to-Student Ratio 12.6 12.6 11.8 11.1 10.9 - Staff-to-Student Ratio 6.3 6.2 6.0 5.8 5.8 - As shown in Exhibit 1-24, several staffing areas grew at rates that exceeded the student growth rate for the district. The recent RIF will bring the overall teacher-to-student ratio to 1:13, which is still below the statewide average of 1:14.7, but other areas not covered by SACS standards also need to be examined. For example, the professional support staffing, which includes positions such as librarians, therapists, diagnosticians, nurses, supervisors and department heads, grew by 95.3 percent from 1998-99 through 2002-03.
By maintaining staffing allocations for elementary and secondary schools, Spring ISD (SISD) distributes staff resources in an equitable manner. SISD personnel/support services develops staff allocations for each school and monitors its allocations regularly, including each time enrollment figures become available. The allocations become the basis for the salary portion of the budget each year. Campus site-based teams and principals have some flexibility to change positions within those allocated dollars. Grades 1-4 are governed by state law requiring one teacher for every 22 students, unless a waiver is granted. For grade five, the allocation is one teacher for every 23 students. At the middle school, a teacher may be added during the year when the overall student-teacher ratio reaches 1:24.5; a teacher may be reassigned if the ratio drops to 1:22. The staffing allocation for high schools call for the addition of a teacher when the student-teacher ratio reaches 1:26, or a reassignment if the ratio drops to 1:24. Special staffing allocations exist for special education, the alternative education program, the pyramid program, athletics, occupational/technical education and certain departments with classified employees, such as food service.
Recommendation 12:
Develop staffing formulas linked to enrollment and maintain district staffing levels accordingly.
TSPR understands the immediate need for the district to reduce its instructional staffing levels in order to remain financially solvent, but in the future as staffing formulas are developed and implemented, consideration should be given to the contribution that each employee adds to classroom instruction. In particular, the board and administration should consider which support positions are needed and whether some of those positions could or should be shifted back into classroom teaching positions.
IMPLEMENTATION STRATEGIES AND TIMELINE
1. The superintendent and key administrators institute a hiring freeze and fill only critical vacancies. October 2003 2. The superintendent and key administrators examine SACS staffing standards districtwide and develops ratios by campus based on projected revenue estimates and enrollment. December 2003 3. Principals apply the new staffing formulas to their assigned campus(es). February 2004 and Ongoing
4. The assistant superintendent reviews requests for positions to determine whether the positions are within budget and the district's staffing allocations prior to authorizing vacancies. February 2004 and Ongoing 5. The superintendent tasks the director of Business/Finance and the human resources secretary with dual control oversight of all positions to be filled to ensure that the district achieves and maintains optimum staffing levels. February 2004 and Ongoing 6. The superintendent informs staff of positions that will be eliminated due to implementation of staffing standards. April 2004 7. The assistant superintendent, director of Business/Finance and the human resources secretary develop, document and implement a human resources and budget position control methodology and tracking procedure to ensure that the district meets its staffing allocation objectives prior to offers of employment being extended and/or positions being filled. March 2004 and Ongoing FISCAL IMPACT
The fiscal impact is based on eliminating two secretarial positions and two professional support positions. The secretarial positions earn an average salary of $24,223 plus benefits. LISD total fringe benefits of $3,051 consists of a variable portion of 1.45 percent for Medicare and a fixed component of health insurance costs of $2,700 a year. The estimated savings to the district for the secretarial positions, including salary and benefits, is $54,548 ($27,274 x 2).
The two professional support positions earn an average salary of $40,836 plus fringe benefits of $3,292, consisting of a variable portion of 1.45 percent for Medicare and a fixed component of health insurance costs of $2,700 a year. The estimated savings to the district including salary and benefits is $88,256 ($44,128 x 2).
By eliminating the four positions identified in this recommendation, LISD will save $142,804 annually. Through attrition, LISD should be able to achieve one-half of these savings in the first year.
Recommendation 2003-04 2004-05 2005-06 2006-07 2007-08 Develop staffing formulas linked to enrollment and maintain district staffing levels accordingly. $71,402 $142,804 $142,804 $142,804 $142,804 FINDING
The district paid four performance stipends to coaches without following TEA guidelines and without any explanation or criteria for paying the stipend. The performance stipend criteria are not documented and/or communicated districtwide. The lack of documented and published criteria means that LISD staff do not know whether they are eligible or could strive to obtain the stipend for specific levels of performance achievement(s).
The coaches being paid the performance stipends in 2002-03 received the stipend for 2001-02 performances with their respective athletic team. The girl's basketball team won state in 2001-02 and the performance stipends were placed in the salary schedule in 2002-03 only for select coaches. The superintendent recommended the stipends in the salary proposal for the 2002-03 budget. Head girls basketball coach receives $5,220; boys track coach-$1,000; cross country coach-$3,000 and the varsity football/baseball coach-$2,000. The stipend is titled performance in the salary schedule.
Recommendation 13:
Implement a performance stipend by developing guidelines that notify all employees of the criteria required to achieve the stipend award.
IMPLEMENTATION STRATEGIES AND TIMELINE
1. Superintendent reviews the athletic performance stipends and discontinues stipends until guidelines, criteria and notices can be sent to all employees prior to the implementation of the performance stipend. October 2003 2. Superintendent places on a board agenda an item to discuss performance stipends and establish guidelines if the board of trustees wishes to implement performance stipends. November 2003 FISCAL IMPACT
The annualized cost of this fiscal impact is the sum of each of the four 2002-03 stipends ($5,220 + $1,000 + $3,000 + $2,000 = $11,220.)
Recommendation 2003-04 2004-05 2005-06 2006-07 2007-08 Implement a performance stipend by developing guidelines that notify all employees of the criteria required to achieve the stipend award. $11,220 $11,220 $11,220 $11,220 $11,220 FINDING
The district purchased nine state championship rings for the superintendent, athletic director, high school principal and six coaches for a total cost of $3,199, in effect a gift of public finds. The district purchased the rings as a performance award. The expenditure was not approved in the initial budget or in the approved 2001-02 salary schedules. At the time the purchases were being considered by the superintendent now on administrative leave, the director of Business/Finance questioned whether the rings were an expense related to public education. However, once the board approved a budget amendment to pay for the rings, the director of Business/Finance complied with the board's directive and authorized payment. The rings ranged in price from $300 to $400 each. The Texas Constitution, Article 3, Section 52 (a) does not allow ".... political corporation or subdivision of the state to lend its credit or to grant public money or a thing of value in aid of or to any individual".
TEA recommends that districts be conservative and also consider the potential public relations risks involved if an expenditure may give the appearance as being a gift of public funds, even if legally upheld. The subject of the championship rings purchased by LISD was raised as an area of concern during the TSPR public forum held on April 7, 2003. Some attendees expressed anger because the parents had to pay for the athlete's rings, but the district purchased rings for staff. Parents who attended the forum were very vocal about the athletic director, principal and superintendent receiving a district-purchased ring. They were less upset that the coaches received a ring as a reward for their dedication and work with the team. Parents' comments to the review team are consistent with the appearance issue identified by the TEA.
Recommendation 14:
Discontinue the practice of purchasing personal items for employees to avoid the appearance of giving gifts from public funds.
IMPLEMENTATION STRATEGIES AND TIMELINE
1. The superintendent develops guidelines for staff to follow regarding the purchase of personal items for employees. October 2003 2. Board members review proposed guidelines, make modifications and adopt. November 2003 FISCAL IMPACT
This recommendation can be implemented with existing resources.
FINDING
The district does not have a consistent recruitment strategy. LISD's administrators said that they attend one or two job fairs annually sponsored by various colleges in an effort to recruit new employees. The district does not maintain records of any recruiting activities. In the past year, the district did not participate in any job fairs because of financial constraints. LISD did not budget money in 2002-03 for staff to attend the job fairs. District administrators' participation in job fairs is limited to answering questions about the district and accepting resumes from interested individuals. All interviews take place in the district. Positions are also advertised in local newspapers as well as on the LISD Web site.
The district generally has an ample qualified applicant pool for its posted positions. Even though some LISD teachers expressed concerns about perceived non-competitive salaries, most teachers said that their original attraction to the district was not its salaries, but the district's Central Texas location and proximity to the Austin metropolitan area. The work environment includes small class sizes, updated well-kept facilities and high academic standards, and an attractive total compensation package that includes competitive benefits.
The district has used signing bonuses on occasion to attract teachers in critical teaching areas that are in short supply statewide. The signing bonuses were used to hire math and chemistry teachers and a school psychologist.
LISD had the lowest teacher turnover rate in 2001-02 as compared to peer districts (Exhibit 1-25). Low teacher turnover results in less recruitment and hiring needed.
Exhibit 1-25 Source: TEA, PEIMS, 1999-2000 through 2001-02.
Teacher Turnover
LISD and Peer Districts
1999-2000 through 2001-02
District 1999-2000 2000-01 2001-02 LISD 6.7 14.6 6.8 Glen Rose 7.8 10.1 7 Wimberley 8 5.8 9.3 Barbers Hill 23.4 5.8 15.4 Ingram 13.9 20.4 15.8 Some districts create successful recruitment strategies to recruit qualified individuals through short and long-term workforce planning, systematic marketing of the district and competitive compensation packages, including benefits.
Recommendation 15:
Attend recruitment fairs to be proactive in targeting qualified staff and marketing the district as an employer of choice.
IMPLEMENTATION STRATEGIES AND TIMELINE
1. The superintendent assigns principals to attend job fairs. December 2003 2. Principals coordinate with each other to anticipate staffing needs districtwide prior to attending job fairs. January 2004 3. Each principal attends one job fair per year and provides applicant volume and quality information to the assistant superintendent for review and trend analysis. Ongoing 4. Principals and the assistant superintendent meet to share job fair resources and information and to look at short- and long-term recruitment trends, including cost and number of hires. Ongoing 5. The assistant superintendent and principals develop a districtwide recruitment plan and strategy. Ongoing FISCAL IMPACT
This recommendation can be implemented with existing resources.