Progress Report
Lyford Consolidated Independent School District
October 2003Introduction
In October 2001, Texas Comptroller Carole Keeton Strayhorn began a review of the Lyford Consolidated Independent School District (LCISD) as part of a four-district project that also included neighboring Lasara, San Perlita and Raymondville school districts. Based upon six months of work, the Texas School Performance Review (TSPR) report, which was released in April 2002, identified LCISD's exemplary programs and suggested concrete ways to improve district operations. If fully implemented, the Comptroller's 42 recommendations could result in net savings of $613,797 over a five-year period.
Since 1991, TSPR has recommended more than 7,600 ways to save taxpayers more than $780 million over five-year periods in 100 public school districts throughout Texas. TSPR also conducts follow-up reviews of districts that have had at least one year to implement the recommendations. More than 60 subsequent reviews showed that school districts have acted on more than 90 percent of TSPR's proposals, saving taxpayers nearly $135 million. The Comptroller's office expects the full savings 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 Willacy 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.
Located in the Rio Grande Valley, LCISD covers more than 300 square miles in Willacy, Hidalgo and Cameron counties. The district encompasses the town of Lyford, the neighboring towns of Sebastian and Santa Monica, as well as several farming communities. The district is served by the Texas Education Agency's (TEA) Regional Education Service Center I (Region 1) in Edinburg.
The Comptroller contracted with three Austin-based consulting firms: Gibson Consulting Inc., Texas Public School Consulting, Inc., and Academic Information Management Inc., to assist us with this review. The review team interviewed district employees, school board members, parents, business leaders and community members and conducted a public forum on
October 30, 2001, at the LCISD auditorium. To obtain additional comments, the review team conducted small focus group sessions with teachers and principals. The Comptroller's office also received letters and phone calls from parents, teachers and community members.To ensure that all stakeholder groups had input, TSPR sent surveys to students, parents, teachers, school and central administrators and support staff. The review team received 328 responses from 50 district administrators and support staff, three principals or assistant principals, 41 teachers, 55 parents and 179 students.
The review team also consulted two TEA databases of comparative educational information-the Academic Excellence Indicator System (AEIS) and the Public Education Information Management System (PEIMS).
During its six-month review, TSPR developed recommendations to improve operations and save taxpayers $990,829 by 2006-07. Cumulative net savings from all recommendations (savings minus recommended investments or expenditures) could reach $613,797 by 2006-07.
LCISD selected five peer districts for comparative purposes, based on similarities in student enrollment, student performance and community and student demographics. The districts chosen were Progreso, Santa Rosa, Raymondville, La Feria and Rio Hondo ISDs. TSPR also compared LCISD to district averages in Region 1, to which the district belongs, and to the state as a whole.
In 2002-03, LCISD served 1,505 students in pre-Kindergarten through grade 12. LCISD's students consisted of 96.1 percent Hispanic, 3.2 percent Anglo and 0.4 percent African American. The district has 82.2 percent of its students classified as economically disadvantaged.
During 2002-03, the district employed 286 individuals of which teachers made up 39.5 percent. The district had expenditures of nearly $14 million in 2001-02. That same year, the district generated 12.5 percent of its revenues from local taxes; 4.3 percent from other local and intermediate sources; 65.5 percent from the state; and less than 17.7 percent from the federal government. In 2002-03, LCISD's budgeted $13.2 million for expenses expenditures.
In 2002-03, LCISD budgeted 44 cents of every tax dollar on classroom instruction compared to the state average of 51 cents.
In 2001-02, 72.6 percent of all students passed the Texas Assessment of Academic Skills (TAAS). This was a slight decrease compared to the district's 2000-01 passing rate of 73.7 percent and below the regional average of 81.2 percent and the state average of 85.3 percent. In 2001-02, 87.8 percent of students passed the math portion of the test; 79.5 percent passed the writing portion; and 82.7 percent passed the reading portion.
During 2001-02 and 2002-03, TEA rated the district as Academically Acceptable. In 2002-03, 86 percent of the LCISD grade 11 students tested met the reading standard of the Texas Assessment of Knowledge and Skills (TAKS); 65 percent met the mathematics standard; 88 percent met the social studies standard; and 52 percent met the science standard. Only 46 percent of LCISD students tested met the standard for all tests taken.
Since completion of TSPR's review, the district has implemented significant changes. In response to TSPR's financial management findings, the district hired a new business manager. Staff updated all job descriptions and correlated them to evaluation instruments. In addition, the staff planned new career and technology courses that better match current career trends. Overall, the district has improved instructional and administrative technology use. As a result of the district's decision to build a new elementary facility in Lyford, community relations have improved. LCISD developed additional interlocal agreements with Texas State Technical College and the University of Texas-Brownsville. The district also strengthened the interlocal agreement between the LCISD
Police Department and the Willacy County Sheriff's Department by better defining off-campus responsibilities.
LCISD's staff and TSPR team members have a sense of steady progress in the district. The district implemented 23 recommendations; is working towards completing 15; reviewed but has not implemented two recommendations; and rejected two recommendations. Appendix A provides the details on the status of each recommendation from the original TSPR report.
Lyford Consolidated ISD Report Card
Excellent = More than 80% complete
Chapter Total Complete In Progress Not Implemented Rejected Percent Complete/ In Progress Grades District Organization and Management 8 4 2 1 1 50%/28% Needs Work Educational Service Delivery 11 8 3 0 0 73%/27% Satisfactory Financial Management 11 7 2 1 1 64%/18% Satisfactory Operations 12 4 8 0 0 33%/67% Satisfactory Overall Grade 42 23 15 2 2 55%/36% Satisfactory
Satisfactory = 80% to 100% complete or in progress
Needs Work = Less than 80% complete or in progressExemplary Programs and Practices
TSPR identified numerous "best practices" within LCISD. Through commendations in each chapter, this report highlights model programs, operations and services provided by LCISD administrators, teachers and staff. The Comptroller encourages other school districts throughout Texas to examine these exemplary programs and services to see if they can be adapted to meet their own needs. TSPR's commendations include the following:
- LCISD effectively uses the consent agenda and Robert's Rule of Order to conduct efficient board meetings. Board meetings are well run and held to a two-hour timetable in most cases. Efforts that have contributed to shorter board meetings include the use of a consent agenda, where certain items are consolidated and voted on as a whole. The board president also said that Robert's Rules of Order is followed more strictly than in the past and board meetings start on time. Conducting efficient board meetings enables the district to get work accomplished in a reasonable length of time.
The board continues to use the consent agenda and Robert's Rule of Order for meetings. The board president elected in May 2003, attended TASB's Leadership Training and indicated a commitment to using both tools at all board meetings.
- The district's operating procedures manual is a comprehensive and effective tool for guiding district activities. The district maintains a comprehensive operating procedures manual developed by the superintendent. The manual contains operating procedures for 70 different areas of district operations, including budget development, fixed asset inventory, maintenance requests and UIL activities. This manual serves as an excellent training guide for new employees and as a reference tool for all employees. The manual is centrally maintained by the superintendent's office to ensure that all procedures are coordinated and current.
The district has added a board-approved budget calendar to its operating procedures manual. The budget calendar has helped the district improve the budgeting process by establishing specific dates for task completion.
- LCISD involves the community in school activities. LCISD makes a great effort to involve parents and the community in school activities through various activities. On Parent's Day, parents have a chance to visit with teachers and booths are setup with orientation information for the students. Open House/Meet Your Teacher Night gives parents an opportunity to visit their children's classrooms. Freshman Orientation night is also held where eighth graders and their parents are given information about the upcoming year. At Health Fair/Safe Haven, health care providers are on hand to conduct free screenings and provide information on health improvement. School departments sponsor booths to provide activities for children. On Career Day, area business leaders provide information on a wide variety of career possibilities. Around Veterans Day, a ceremony is held to recognize and honor veterans within the community.
The district continues to involve the community in school activities. The Health Fair experienced an excellent turnout, and a Science Family Night drew approximately 200 people. The UIL banquet served 68 students and parents. The district hosted a Career Fashion Show for the community and sent three parents to a leadership conference. Also, 22 district parents earned their GED in classes taught by LCISD personnel.
- LCISD is preparing for the more rigorous Texas Assessment of Knowledge and Skills (TAKS) by aligning and updating curriculum guides and ensuring that the guides address TAKS objectives at each grade. The district has created vertical alignment teams of "expert" teachers in each core content areas to revise the kindergarten through grade 12 curricula.
The district has developed a new instructional plan for each school. The plan requires all principals to foster discussions with campus leadership teams and solicit ideas from the assistant principal, facilitator and administrator for Curriculum and Instruction to address TAKS objectives each mid-winter.
- LCISD participates in numerous academic-improvement programs, many of which target "at-risk" students, in its efforts to provide a high quality education program to the district's students. LCISD aggressively pursues and implements programs such as Success for All to improve reading success for pre-kindergarten through elementary grades. The Ninth-Grade Success Initiative targets ninth-grade students with a goal of decreasing dropout rates. Even Start is designed to improve educational opportunities for low-income families and Gear Up prepares students to succeed in postsecondary education.
The Rural Systemic Initiative selected LCISD to test a pilot program that enlists lay people (the parents of 50 kindergarten through grade three students) in providing leadership and assistance with elementary school science and math projects. The program is funded by a $20,000 National Science Foundation grant that targets parents in the Sebastian area.
- LISD developed a useful, updated and comprehensive Crisis Management Plan Emergency Handbook. In 2000, the district developed a comprehensive Crisis Management Plan Emergency Handbook, which is distributed to the staff to help them respond during a crisis or emergency situation.
The district updates the Crisis Management Plan Emergency Handbook every summer and distributes copies during staff development activities.
- LCISD has reduced its workers' compensation costs by implementing a strong safety/loss prevention program. The district received an $8,215 early renewal credit because of the district's exemplary performance resulting from an aggressive safety program that included: the creation of a safety committee; loss control manual; safety kit; and training for high-risk employees, office employees and professional staff. The safety committee conducts routine safety inspections of district facilities and playgrounds, documents findings and makes recommendations for correction of unsafe practices or situations. By implementing a strong safety program, the district has reduced its workers' compensation losses and associated costs.
The district provides monthly safety training materials for each department. The topics include proper lifting techniques, ladder safety and disposition of hazardous materials. As a result, the number of filed workers' compensation claims continues to decline.
- LCISD sought and obtained grants to support a strong technology infrastructure. Over the past four years, LCISD has effectively used available grant funds to build a solid technology infrastructure. According to the district's 2001-04 technology plan, technology in 1997 was almost non-existent and few computers were available in the district. Today the district has more than 450 computers, 98 percent of which are networked. The district used grants and federal funds as the primary funding sources for developing the technology infrastructure.
LCISD continues to seek and obtain technology grants. Since TSPR completed its review of LCISD in April 2002, the district has obtained $408,343 in technology grant funding.
- The district has a bus replacement plan. The district has developed a plan to retire older buses and replace them with newer ones. The plan is designed to maintain the necessary fleet size and reduce bus hazards by replacing buses once they reach the end of their life cycle, and it enables the district to stagger replacement costs over a period of years.
District administrators said they continue to use the bus replacement plan to help control the acquisition and retirement of new and old buses. Since 1998, the district has purchased four buses and sold four buses.
- LCISD Food Services Department increased breakfast participation by serving breakfast in the elementary classrooms and serving breakfast during the zero hour period at the middle school and high school cafeteria. From 1998-99 to 2000-01, the LCISD Food Services Department increased student participation in the meal program at breakfast from 60 percent to 91 percent by providing breakfast in the classrooms and before school.
High school breakfast participation increased to 100 percent in 2002-03 by implementing breakfast in the classroom. This was accomplished by cooperation between the high school administration and the Food Services Department.
The following are some of the key recommendations that administrators and staff said had the greatest impact on district operations. The highlighted recommendations are organized by chapter and by area of operations as contained in the original report. The comments came from district administrators during the TSPR team's follow-up visit to the district.
District Organization and Management
Recommendation 5: Update all employee job descriptions. This recommendation encouraged the district to update job descriptions regularly.The district updated all job descriptions by summer 2002.The updated job descriptions ensure employees understand their job responsibilities and help reduce the risk of employee grievances and lawsuits by clearly stating the expectations and duties of staff.
Recommendation 7: Rebuild the relationship between the Lyford and Sebastian communities. District officials said they recognized that the relationship between Lyford and Sebastian had deteriorated over time and used this recommendation as a starting point to improve the relationship. Lyford and Sebastian community relationships have significantly improved as evidenced by partnerships entered into by the county commissioner and city commissioners. Also, the district funded a Literacy Center in Sebastian; and donated land to build a baseball field and sports complex in Sebastian. The lack of opposition to incumbents during the recent school board election serves as another indicator of the improved relationship.
Educational Service Delivery
Recommendation 9: Improve students' reading skills by strengthening the district's reading improvement programs. District administrators said this recommendation increased their awareness of available reading resources and programs. As a result, the district conducted a thorough and systematic analysis of its reading program needs and developed strategies for improvement. At the end of each year, the district requires a region1 consultant to evaluate and coordinate district efforts to continue strengthening reading skills.
Recommendation 12: Integrate technology into curriculum and instruction. This recommendation made the district realize the importance of including technology integration in the district improvement plan and the campus improvement plan. Principals are now required to report all progress in integrating technology in the classroom. LCISD acquired several reading and math software programs for use in the classroom such as: Sleek for special education and English as a Second Language students; Computer Curriculum Corporation (CCC) for elementary and middle school students; Orchard for elementary students; Waterford for pre-kindergarten students; and English Discoveries for secondary ESL students. LCISD also obtained software including A+ remediation and enrichment programs that strive to help students improve scores on standardized tests and enhance overall academic performance. For 2003-04, district teachers will have available the Web-accessed Comprehensive Curriculum Assessment Tool (Web-CCAT). The district has also installed wireless computer labs in the high school.
Recommendation 17: Offer a school-to-career program that mirrors the current job market needs. In response to this recommendation, the career and technology education (CATE) program has changed course offerings to align with current market trends. The district now receives job market trends from Region 1 and has entered into agreements with Texas State Technical College and the University of Texas at Brownsville to receive classroom or programmatic assistance in developing career fields. For example, the innovative course Ready, Set, Teach has been approved for implementation during 2003-04.
Financial Management
Recommendation 25: Ensure compliance with IRS rules for cafeteria plans. District officials said this was one of the most valuable report recommendations because it saved the district from having to pay penalties for noncompliance with IRS rules. After issuing a request for proposal (RFP) to find an independent third-party administrator and reviewing proposals, the district selected a vendor to administer this program and bring the district into compliance with the IRS Code, Section 25. The third party administrator is not allowed to sell its products to district employees. The recommendation also helped the district make changes to prevent employee benefits from being taxed.
Recommendation 26: Develop cash management procedures to ensure compliance with board-approved policies and the Public Funds Investment Act. LCISD administrators report the district has developed cash management procedures and approved the business manager as the district's investment officer. Also, the current business manager has obtained the required training and consistently monitors the policies and procedures to ensure continued compliance.
Recommendation 30: Centralize contract management in the business office and develop a contract management plan, procedures and a training program. Administrators said this was another important recommendation because it helped the district eliminate unauthorized approval of contracts and centralize the contracting process. Because of this new process, the district anticipates it will save on future purchases.
Operations
Recommendation 33: Apply a modified industry standard of at least 17,000 square feet per custodian and provide custodians additional training. The report showed that LCISD's 26 custodians cleaned an average of 11,400 square feet compared to a modified industry standard of at least 17,000 square feet per custodian. In response, the district reduced its custodial staffing by five positions and plans to eliminate two more positions after moving into a new elementary facility.
Recommendation 39: Request state reimbursement for routes designated as hazardous. District administrators said that since becoming aware of the reimbursement option, the district has improved its reporting process, which will generate an additional $10,475 over a five-year period.
Recommendation 41: Develop a contingency plan for disruptions in service at the central cafeteria due to power outages or other catastrophes. The district has purchased and modified equipment that provides an automated power backup system. Generators were purchased to provide power to the cafeteria in case of power outage. Region 1 can also help restore all information.
LCISD has made progress towards implementing TSPR's recommendations. The district has implemented 23 recommendations; has 15 in various stages of progress; has reviewed but not implemented two; and rejected two. This section addresses the key areas requiring additional attention.
District Organization and Management
The district has postponed developing the strategic plan in anticipation of a change in administration (Recommendation 1). Although the current superintendent is preparing for retirement and will be replaced by a new superintendent, the process could and should be started without delay. TSPR urges the district to start developing a long-range strategic plan that clearly identifies goals, objectives, implementation strategies, timelines and performance measures. The board could organize a committee responsible for developing the strategic plan. The district also rejected Recommendation 6, which suggested revising the district's at-will employment policy. Although the TexasEducation Code (TEC) requires that certain district employees have contracts, the original report showed that LCISD contracts not only with these individuals but also with professional and support staff. District administrators said that they need to offer contracts because of LCISD's location. However, the original report noted that offering contracts has made it difficult for the superintendent to reassign staff. The original report also pointed out that placing employees on contract made it difficult for the district to downsize staff when enrollment declines, which has occurred since the report. The board should reconsider this recommendation and limit the number of employee contracts to those required by the TEC as a way to protect itself from unnecessary and avoidable risks or litigation.
Staffing Formula
The district has been unable to implement staffing formulas, although it has been studying the issue (Recommendation 4). Between 1997-98 and 2002-03, LCISD staffing levels increased while student enrollment declined. The district has tried to establish a uniform staffing formula by comparing its staffing levels to other districts. Those efforts proved frustrating and disappointing because no standardized formula emerged from this exercise. TSPR originally recommended that the district use industry standards for comparative purposes. The Southern Association of Colleges and Schools (SACS) recommends minimum staffing levels for a broad range of employee positions at the school and district level. The district has only performed a staffing analysis using AEIS data. The district should contact districts that have successfully implemented staffing formulas and use their approach to develop a staffing formula they have contacted eight districts in the valley to ensure the district equitably distributes staff when enrollment increases or decreases.
Operations
TSPR urges rapid completion of a long-range facilities master plan (Recommendation 31). When the TSPR report was issued, the district operated 29 separate facilities for 1,500 students. Although work has begun on a facilities master plan, the momentum slowed while the district finds a new superintendent. However while searching for a superintendent, the board could still organize a committee and assign it responsibility for developing a facilities master plan.
The district implemented Recommendation 40 in 2002-03, which suggested installing a point-of-sale (POS) system to replace Food Services' manual recordkeeping. However, the district's meal participation has decreased significantly. As a result of improved recordkeeping, which results from automated POS systems, a district generally increases reimbursement for meals. Generally, districts report that this recommendation helps them improve staff and increase average daily attendance (ADA) recording for breakfasts and lunches. Although LCISD implemented a POS system in 2002-03, it reduced ADA from 2001-02. District administrators said the students object to the identification cards and either lost the cards or damaged them. LCISD clearly has had an implementation failure that needs to be corrected immediately. The district needs to contact the POS system vendor, explain how the system was implemented and take remedial steps to get students back into the cafeteria and eating meals.
LCISD'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 process report preparation, TSPR asked LCISD staff members and administrators to discuss what went right, what went wrong and how the process could be improved.
The feedback the team 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.
LCISD administrators and board members made the following observations.
District officials said it is very important to remain objective and not draw conclusions too quickly based on incomplete information. Some district staff said the TSPR team was not open-minded enough, particularly when reviewing the transportation and maintenance functions. Although the district provided the team with relevant data and supporting documentation for certain processes, some administrators said that not all of the data was considered or incorporated into the final report.
TSPR uses staff and consultants to gather and data, analyze district data and develop findings. These findings are then included in a draft report, which TSPR takes to the district for accuracy verification purposes. Changes are made to the findings based on district comments and additional documentation supplied by district officials. LCISD carefully reviewed the findings document and made comments. Changes were made to the final report when fully supported documentation was presented to confirm the changes. The TSPR process naturally requires the review team to make certain judgments about the credibility of some interview comments when supporting documentation is not provided. Efforts will be made to better communicate with individuals when comments cannot be verified through conventional means.
