Chapter 1
Planning and Decision-makingCURRENT SITUATION
CCISD is governed by a seven-member board of trustees serving alternating four-year terms (Exhibit 1-1). Three of the board members are elected at large and four are elected from single-member districts.
Exhibit 1-1
CCISD Board of Trustees
1996-97
Board Member, Title Elected Term Expires Dorothy Adkins, President At-Large January 2000 Frank R. Reyes, Vice President District 2 January 2000 Pinky Brauer, Secretary At-Large January 2000 Manuel Flores, Assistant Secretary District 1 January 1998 Bill Hamrick At-Large January 2000 Edmund H. Hecht District 3 January 1998 Henry Nuss District 4 January 1998 Source: Who's Who and Where in the CCISD, 1996-97
CCISD policy states that the board is primarily responsible for planning, setting policy, and approving the annual budget (Exhibit 1-2).
Exhibit 1-2
Powers and Duties of the CCISD Board of Trustees
Powers and Duties Of The Board of Trustees 1. Manage and govern the public schools of the district. 2. Adopt such rules, regulations, and by-laws as the board may deem proper.
3. Approve a district-developed plan for site-based decision-making and provide for its implementation.
4. Levy and collect taxes and issue bonds.
5. Select tax officials as appropriate to the district's needs.
6. Prepare, adopt, and file a budget for the next fiscal year and file a report of disbursements and receipts for the preceding fiscal year.
7. Have district fiscal accounts audited at district expense by a Texas-certified or public accountant holding a permit from the Texas State Board of Public Accountancy following the close of each fiscal year.
8. Publish an annual report describing the district's education performance, including campus performance objectives, and the progress of each campus toward those objectives.
9. Receive bequests and donations or other funds coming legally into its hands in the name of the district.
10. Select a depository for district funds.
11. Order elections, canvass returns, declare results, and issue certificates of elections as required by law.
12. Acquire and hold real and personal property in the name of the district.
13. Execute, perform, and make payments under contracts.
14. Exercise the right of eminent domain to acquire property.
15. Hold all rights and titles to the school property of the district.
16. Authorize the sale of property.
17. Sell minerals in land belonging to the district.
18. Employ, retain, contract with, or compensate a licensed real estate broker or salesman for assistance in the acquisition or sale of real property.
19. Employ by contract a superintendent, principals, teachers, and other executive officers and set salary schedules.
20. Close the schools or suspend operation if necessary to maintain law, peace, and order.
21. Sue and be sued in the name of the district.
Source: CCISD Policy Manual
The board conducts regular meetings on the second and fourth Monday of each month and holds special board meetings as needed. Certain topics, such as employee matters and litigation, are discussed in executive sessions that are closed to the public. Exhibit 1-3 summarizes board meetings held from September 1996 through February 1997.
Exhibit 1-3
CCISD Board Meeting Statistics
September 1996 through February 1997
Meeting Type Members Total Meeting Length Length of Split Sessions Date Reg. Spec. Present Reg. Spec. Open Exec. 9/9/96 1 7 4:19 2:05 2:14 9/23/96 1 6 2:55 1:02 1:53 10/1/96 1 7 0:25 0:25 10/14/96 1 7 5:51 2:51 3:00 10/21/96 10/28/96 1 6 4:48 1:48 3:00 11/11/96 1 6 4:55 0:56 3:59 11/25/96 1 7 7:49 6:10 1:39 12/9/96 1 6 3:31 1:30 2:01 12/18/96 1 6 2:51 1:43 1:08 1/13/97 1 5 3:05 1:56 1:09 2/3/97 1 7 4:06 2:56 1:10 2/10/97 1 7 2:29 1:55 0:34 2/24/97 1 7 3:37 1:32 2:05 Total 11 2 Average 6.46 4:18 1:38 2:03 1:59 Percentage 85% 15% 73% 27% 51% 49% Source: CCISD Board Minutes
As indicated in the exhibit, the board conducts most of its business during regular meetings. Board member attendance is good at all meetings, and slightly less than half of all board meeting time is spent in executive session.
The board's only standing committee, the Audit Committee, monitors external and internal audit activities. The board creates ad hoc committees from time to time to study key issues such as year-round education.
The superintendent is the chief executive officer of the school district and reports to the board. Dr. Abelardo Saavedra, the superintendent, assumed the position in 1992-93. The superintendent's role is to execute board policies and administer district operations. Specific responsibilities of the superintendent include planning, program and personnel evaluation, communication, budget recommendations, and consistent application of policies.
District decision-making is governed by state laws and regulations, board policies and procedures, and the district's site-based decision-making plan, called Planning and Decision-Making (PDM) by district officials. The Planning and Decision-Making Handbook lists the district's mission and goals, outlines its responsibilities, defines the roles of participants in the decision-making process, and outlines reporting requirements. Guidelines for Planning and Decision-Making, another reference guide for schools, provides guidance in budget amendments, curriculum modifications, waivers, and other procedural matters.
CCISD maintains district and campus decision-making committees. The District-Level Planning and Decision-Making Committee consists of 20 district employees, two parents, two community representatives, and two business representatives. Based on requirements of the PDM, at least two-thirds of the 20 district employees must be teachers. Each Campus-Level Planning and Decision-Making Committee consists of the school's principal, teachers, non-teaching professional employees, and two or more parents, two business representatives, and two community representatives. At least two thirds of each Campus-Level Planning and Decision-Making Committee must be made up of teachers. These committees annual revise Campus Action Plans and the District Action Plan, which spell out short-term goals and implementation steps.
FINDING
CCISD has a reputation for innovation in Texas and nationally. Three aspects of district operations drew the attention of the Comptroller's review team: academic standards, site-based management, and accounting practices.
CCISD's academic standards, which set goals that students must achieve in each grade and subject, resulted from a four-year effort to stretch student performance beyond levels measured by the state in its mandatory Texas Assessment of Academic Skills (TAAS). These standards have received national recognition, including coverage in USA Today. The Educational Service Delivery chapter of this report presents additional information on the academic standards.
In October 1988, CCISD identified site-based management as a strategy to enhance the roles of teachers, parents, and principals in determining the direction of their individual schools. Pilot programs began in 1990 at Miller High School, Driscoll Middle School, Houston Elementary School, and Crossley Special Emphasis Elementary School. During 1991-92, all district schools introduced site-based management. The state required school districts to develop site-based decision-making plans in 1991-92, three years after CCISD began such planning efforts.
In 1993, CCISD began accruing, or recording a liability for, payroll at the end of the school year. At the time, the Texas Education Agency (TEA) did not require school districts to record this liability; however, TEA later required this practice of all school districts. This approach more accurately presents the financial position of a school district at the end of each year.
COMMENDATION
CCISD aggressively identifies and implements innovative educational practices.
FINDING
Site-based management decentralizes decision-making within school districts, ideally giving the staff of each school the authority to plan, budget, and act on individual priorities. In each district, however, questions must be resolved over how to divide planning and management responsibilities among principals, school staff, and central administrators. Some districts spell out standards or parameters for decision-making in areas where consistency is needed. In CCISD, the Planning and Decision-Making Handbook does not address standards in areas such as grading, safety and security, and technology. Other district reference materials leave decisions in these areas to school principals or campus planning and decision-making teams. The lack of standards in the Planning and Decision-Making Handbook appears to contribute to inconsistency and confusion across the district.
Grading
Until recently, CCISD's academic standards include a flexible approach to grading, allowing individual schools to develop their own grading policies. According to district management, this approach helped sell academic standards to principals. This decision, however, resulted in tremendous confusion and inconsistent grading standards. During the review, many residents questioned the academic standards grading policy. Exhibit 1-4 presents a representative sample of comments received through public forums, focus groups, and other interviews.
Exhibit 1-4
Comments on CCISD Academic Standards Grading Policy
Source Comment Parent Interview Different grading policy every year. Only test scores and performance measures count (not homework; not participation). Inconsistency makes transferring difficult. Public Forum Education is not standardized within the district, much less statewide, so many students who transfer must start over again. Public Forum Some students have 10 chances to redo a performance standard--others do not.
Public Forum Teachers are teaching different things and using different assessment criteria. Source: Public Forums and Interviews
During the June 1997 regular board meeting, the board adopted districtwide grading policies for academic standards to be applied in the 1997-98 school year.
Safety and Security
CCISD's Student Code of Conduct governs disciplinary actions by school principals and teachers, providing principals with significant flexibility in handling poor student behavior. However, the Planning and Decision-Making Handbook does not address principal and teacher roles in safety and security matters. Parents told the review team of significant inconsistencies in disciplinary practices and referrals to alternative education among different schools. State law specifies actions for responding to discipline and safety incidents. District safety and security is further discussed in the Safety and Security chapter.
Technology
School principals are allowed to select computer hardware platforms and make decisions on types of training. Across the district, this freedom has resulted in a computer system supporting both PC and Macintosh environments. Sixty percent of the district operates Macintosh computers and 40 percent operates PCs. This approach requires two types of computer management and support systems and appears to be more expensive than operating a single hardware platform.
Software choices and training also are left largely to individual school principals, resulting in inconsistent applications of technology across the district. Implementation of CCISD's Technology Plan, a five-year, $50 million plan to upgrade and expand CCISD's computer capabilities, may be hindered without consistent hardware, software, and training standards. The Technology Plan is discussed further in the Computers and Technology chapter.
Recommendation 1:
Identify areas where district standards should guide site-based decisions and document roles and responsibilities in the Planning and Decision-Making Handbook.
CCISD should amend its Planning and Decision-Making Handbook to specify standards for different functional areas. Some standards, such as those relating to safety and security, also may require changes in board policy. Exhibit 1-5 provides a framework for CCISD to address standards.
Exhibit 1-5
Sample Framework for CCISD Standards Development
Functional Area Decision Current Approach Standardized Approach Education Grading Principals/Teachers Apply single, consistent grading standards at all schools, for all students. Technology Hardware
Some decisions centrally made; most dictated at campus level. Select one hardware platform and restrict future purchases to this platform. Technology Software Some decisions centrally made; most dictated at campus level. Develop list of software available for use, and support only these applications. Identify specific types of applications that can be selected at school level. Technology Training Some decisions centrally made; most dictated at campus level. Develop minimum hardware and software training standards for each classification of employee. Safety and Security Discipline Actions Flexibility provided in many discipline matters. Review state law to assure compliance. Amend district policy and incorporate into Planning and Decision-Making Handbook. Custodial Services Use of Custodians Custodians provide services other than cleaning on some campuses, such as moving furniture and minor maintenance activities. Develop standards for percentage of time custodians may perform non-cleaning duties. Source: neal and Gibson.
IMPLEMENTATION STRATEGIES AND TIMELINE
1. The District Planning and Decision-Making Committee conducts three meetings to identify all areas where district standards should guide site-based decisions. October 1997 2. The District Planning and Decision-Making Committee modifies the Planning and Decision-Making Handbook to include these standards and the roles and responsibilities of district employees in following standards. December 1997
FISCAL IMPACT
Identifying responsibilities and documenting them in the Planning and Decision-making Handbook can take place within existing resources. In addition, implementation of this recommendation should allow financial resources to be diverted from existing uses to new, more efficient uses. For example, the cost of supporting a single hardware platform may be less than the cost of supporting a dual platform.
FINDING
In 1988, CCISD's board and superintendent initiated a strategic planning process. With the assistance of an outside adviser, the administration and board assembled a 25-member strategic planning team including a cross-section of individuals from the community and schools. Action teams developed 17 strategies and 228 action plans for the district, 173 of which were approved and incorporated into a strategic planning document in September 1989. This plan was modified annually until 1991. Exhibit 1-6 presents the strategies in the most recent strategic plan of October 14, 1991. While the district has prepared other planning documents since then, the 1991 plan represents the most recent long-range strategic plan.
Exhibit 1-6
CCISD Strategic Plan Elements
October 1991
Strategy Key Elements of Strategy 1. We will organize strategically to define functions and achieve accountability of staff at all levels. Mission statement, job descriptions, performance reviews 2. We will develop and implement a program of site-based management in CCISD. Pilot program, training, decision parameters 3. We will develop and implement a system of schools with each school featuring an area of specialization, while maintaining an exemplary core curriculum. Identify specialization, application for magnet status 4. We will develop an aggressive, continuing modernization and expansion program for facilities and equipment. Bus replacement, computer routing system, special education space needs, district security program, energy management program, roof repair, central receiving facility, modernize central kitchens, music/art classrooms, upgrade and maintenance of all buildings and grounds, computer assisted instruction, repair of air conditioning systems 5. We will aggressively pursue innovative funding from public and private sources. Creation of Education Foundation, training on grants 6. We will develop and implement a comprehensive program to meet current and emerging social needs of students. Chemical free schools, self-esteem building program, TEA pupil-nurse ratio, Teen Court Program 7. We will develop and implement a comprehensive program to identify potential dropouts/failures and retain them in school Expand volunteer program, improve Adopt-A-School, expand dropout counseling, training, reporting systems 8. We will develop and implement a program to aggressively recruit and retain quality personnel and provide for professional growth for all personnel. Competitive salaries and benefits, child care program, comprehensive training and recruitment programs 9. We will develop a comprehensive athletic program and facilities noted throughout the state for their excellence. Shared sports complex, eliminate overcrowding, coach recruitment, athletic facility upgrades 10. We will develop and implement a comprehensive program of counseling and guidance to meet the needs of all PreK-12 students and their families. Counseling and training programs, community services referral program, conflict resolution, parenting training 11. We will develop a comprehensive marine program which will include a scientific complex and a floating learning center. Marine science consultant, marine vocational program, marine life exhibit 12. We will mobilize the full resources of the community to accomplish the objectives of the CCISD by forming effective partnerships with businesses and other influential segments of our community. Development of partnerships, education summit 13. We will incorporate the use of technology to improve the administrative and instructional functions of the District. New computer, better data network, technology plan, consolidate instructional technology activities 14. We will guarantee the positive and effective involvement of all parents and the entire community in our educational system. Office of parent involvement and volunteer services, campus liaisons, parent contact, annual report of volunteer service, parent communication cards, parent rooms 15. We will aggressively examine existing curricula and will design new programs and instruction improvements to meet individual needs and to strengthen special areas. Forecast job trends and create viable training programs, academic program enhancements, teacher training, full day Pre-K program 16. We will achieve governmental support necessary to realize our mission and objectives. Participate in coalition of education groups 17. We will develop alternative scheduling of instruction to accommodate the diverse needs of our students and community. Year-round education pilot, block scheduling Source: CCISD Strategic Plan 1989-1995
In June 1995, CCISD developed a strategic planning report identifying various goals and action teams assigned to develop plans to reach them. However, this document was more of an operating plan than a strategic plan. Strategic plans address long-range strategies and incorporate input from the community. CCISD's planning document is prepared by the school district and addresses only short-term goals, as opposed to longer-term strategies. Several board members said that strategic planning has been abandoned. The superintendent said that strategic planning efforts have stalled due to disagreements among board members regarding the district's direction.
In the absence of an up-to-date strategic plan, the district's primary planning tool has been the District Action Plan, which annually establishes short-term goals and plans for the school year. Each year, district administrators propose short-term goals and the board approves them. The 1996-97 District Action Plan, for instance, outlined nine goals and defined specific performance targets for selected areas, most of them oriented toward academic achievement (Exhibit 1-7).
Exhibit 1-7
District Action Plan Goals and Performance Targets
1996-97
Goal Performance Targets 1. All students will achieve their full academic potential. 2. A well-balanced and appropriate curriculum will be provided to all students.
3. Qualified and effective personnel will be attracted and retained.
4. The organization and management of all levels of the district will be productive, efficient and accountable.
5. The allocation of public education money will be distributed equitably to all students in the district.
6. Parents will be full partners in the education of their children.
7. Businesses and other members of the community will be partners in the improvement of schools.
8. Instruction and administration will be improved through research that identifies creative, effective methods.
9. Communications among all public education entities will be consistent, timely, and effective.
Academic Standards: 75 percent TAAS passing rate Discipline: 2.5 percent or lower dropout rate
Middle School Reform: 90 percent TAAS passing rate target for eighth graders (75 percent acceptable, and all special populations will reach acceptable level)
Attendance: 94 percent or better attendance rate
College Admission: 55 percent of all students tested on college admissions tests will achieve the acceptable standard increment of the 10 percent criterion or better
General: 90 percent of all students will achieve grade-level performance standards.
Source: 1996-97 District Action Plan
In short, CCISD has not prepared a long-range strategic plan since 1991, despite the fact that the strategic planning process begun in 1988 was effective in establishing a vision for the school district. The review team concluded that the abandonment of this process has contributed to several problems.
First, the lack of ongoing strategic planning has contributed to poor long-term planning, particularly regarding facilities. CCISD has no long-range facilities master plan. The district has asked the Corpus Christi community to vote on particular bond issues without clarifying what projects were needed over the long term. The lack of a master plan also contributes toward the district's spread of bond money among many schools and programs, while little substantive facilities renovation occurs. This issue is explored further in the Facilities Management chapter.
The lack of a strategic plan also appears to contribute to conflict between board members and the superintendent's office. According to board policy, the superintendent is to "ensure development of long and short-range plans for district growth and improvement." The superintendent told the review team that the board is not providing consistent direction to develop a strategic plan. Several board members said the superintendent has abandoned strategic planning altogether. In practice, the board focuses on short-term issues and evaluates the issues outside the context of a long-term plan.
CCISD did not achieve many of the strategies in its 1991 Strategic Plan or goals in its 1996-97 District Action Plan. Exhibit 1-8 suggests how CCISD has measured up against its strategies and goals.
Exhibit 1-8
Review Team's Assessment of CCISD Accomplishment Of Selected Strategies and Goals
Selected Strategy / Goal
Assessment Performance targets (1996-97 District Action Plan) Have achieved target dropout and attendance rates; meeting many of academic targets. Accountability (Strategy 1, 1991 Strategic Plan) Mission statement established; job descriptions not current; evaluations of programs and people not consistently effective in removing poor performing programs and people. Management information provided to board does not adequately reflect performance nor hold district accountable. Site-Based Management (Strategy 2, 1991 Strategic Plan) Done. District standards needed in several areas, however. Modernization and Expansion of Facilities (Strategy 4, 1991 Strategic Plan) Implemented specific projects relating to computers, special education, energy management, central kitchens, music rooms and selected repairs. However, a series of renovations and additions has not substantively improved overall facilities condition, and has increased maintenance burden. Pursue funding from public and private sources (Strategy 5, 1991 Strategic Plan) Grant funding has increased since the early 1990s; however, the Education Foundation received only $47,000 in 1996-97. Social needs of students (Strategy 6, 1991 Strategic Plan) Implemented Teen Court and increased pupil-nurse ratio. Drug programs have not lowered drug-related offenses. Technology (Strategy 13, 1991 Strategic Plan) Implementing $50 million technology plan, but management controls are needed. Community involvement (Strategy 14, 1991 Strategic Plan) Construction of parent rooms included in bond program. This was in response to earlier strategy, but does not represent the most critical facility needs of the district. Alternative scheduling (Strategy 17, 1991 Strategic Plan) Discussing year-round education, but a pilot that was planned has not occurred. Sources: 1991 Strategic Plan, 1996-97 District Action Plan
Recommendation 2:
Initiate a long-range strategic planning process.
The superintendent should lead an effort to develop a long-range strategic plan for CCISD. The district should use the same model it applied in 1988, with a strategic planning team. The board and superintendent should conduct an initial meeting to discuss candidates for the strategic planning team, and the team should draft a shared, single vision for consideration by the superintendent and board.
Exhibit 1-9 outlines the components of an effective strategic planning document. This framework should be used as a starting point by the strategic planning team in developing the plan.
Exhibit 1-9
Components of an Effective Strategic Plan
1. Shared Vision 2. Shared Values 3. Purpose/Mission Statement 4. External Data Collection/Analysis * External Factors
* Key Stakeholders
* Competing Factors
5. Internal Data Collection/Analysis * Student Outcomes
* Learning Environment (Campus, Classroom, and Home)
* Supporting Environment (District, Community)
6. Critical Issues 7. Threats/Opportunities 8. Student Outcomes 9. District Goals 10. Best Ideas/Innovations 11. Operational Plans/Objectives 12. Annual Review and Update Source: Texas Association of School Boards
IMPLEMENTATION STRATEGIES AND TIMELINE
1. The superintendent conducts a strategic planning workshop with the board to prepare it for this process. October 1997 2. The superintendent proposes a list of members for a strategic planning team and submits it to the board for modification and approval. This team represents a cross-section of the community and provides adequate representation of schools. October 1997 3. The strategic planning team uses the 1991 Strategic Plan and 1996-97 District Action Plan as starting points of discussion and develops a draft six-year strategic plan for CCISD. December 1997 -April 1998 4. The strategic planning team conducts public forums to discuss the draft planning document and incorporate any needed changes. April 1998 5. The strategic planning team submits the strategic plan to the superintendent and board for review and approval. May 1998 6. The superintendent updates the format and content of the District Action Plan for 1998-99 to show a broader range of historical and planned performance against specific targets. The superintendent establishes specific performance targets for all functional areas of the district; district level targets include efficiency measures, expenditure levels, and expenditure growth percentages. June 1998 FISCAL IMPACT
Time devoted to the strategic planning process should be volunteered by community members or provided within the job descriptions of CCISD board and staff members.
B. MANAGEMENT INFORMATION AND ACCOUNTABILITY
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