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Chapter 1
DISTRICT ORGANIZATION AND MANAGEMENT

This chapter reviews the district organization and management of the Rosebud-Lott Independent School District (RLISD) in the following sections:

A. Governance, Policies and Procedures
B. District Management and Planning
C. Personnel Management
D. Community Involvement Initiatives

C. PERSONNEL MANAGEMENT

Management of personnel is of critical importance to school districts. Most Texas districts spend 70 to 80 percent of their budgets for salaries and personnel related costs. An effective personnel and human resources operation enables a district to recruit and retain quality employees at all levels; provides a comprehensive compensation and benefits program which balances employer and employee needs; and provides for various staff development programs which allow staff members to sharpen professional skills and knowledge.

An assessment of the functional areas of a personnel system includes recruitment, staffing, policy administration, performance management, employment law compliance and staff development programs. The key areas of personnel management for any school district are:

  • clearly written and legally-compliant policies and procedures;
  • effective recruitment and uniform selection practices for the selection of qualified candidates for employment;
  • competitive compensation practices to attract and retain a skilled workforce;
  • accurate and timely processing and documentation of all personnel actions and changes;
  • up-to-date record collection and maintenance procedures that comply with federal and state regulations; and
  • comprehensive staff development programs for teachers, administrators and other staff.

RLISD allocated 84.9 percent of its 2001-02 budget for payroll costs and professional and contracted services, including TASB unemployment insurance, waste hauling and tax collection services.

Exhibit 1-6 shows budgeted expenditures for 1999-2000 through 2002-03.

Exhibit 1-6
RLISD Budgeted Expenditures
1999-2000 through 2002-03
Category 1999-2000 Percent of
Budget		 2000-01 Percent of
Budget		 2001-02 Percent of
Budget		 2002-03 Percent of
Budget
Payroll costs $5,116,536 79.0% $4,992,814 79.5% $4,920,948 77.9% $5,110,022 78.4%
Professional and contracted services $386,942 6.0% $415,953 6.6% $440,290 7.0% $429,215 6.6%
Subtotal - payroll costs and professional and contracted services $5,503,478 85.0% $5,408,767 86.1% $5,361,238 84.9% $5,539,237 85.0%
Supplies and materials $599,931 9.3% $582,005 9.3% $602,084 9.5% $640,864 9.8%
Other operating costs $186,554 2.9% $186,805 3.0% $208,971 3.3% $219,419 3.4%
Debt service $0 0.0% $0 0.0% $0 0.0% $0 0.0%
Capital outlay $188,400 2.9% $101,402 1.6% $141,525 2.2% $115,248 1.8%
Total $6,478,363 100.0% $6,278,979 100.0% $6,313,818 100.0% $6,514,768 100.0%
Source: TEA, AEIS, 1999-2000 through 2001-02 and PEIMS, 2002-03.

While the district's payroll costs have slightly decreased from 79 percent of the budget in 1999-2000 to 78.4 percent in 2002-03, its budget spending for professional and contracted services has increased from 6.0 to 6.7 percent for the same period. RLISD's professional and contracted services include Region 12 services, including an internet access interlocal agreement; and payment to the Falls County tax assessor for tax collection.

As part of its school performance review, the Texas School Performance Review (TSPR) asks districts to select several other school districts as peer districts. TSPR compares the district against the selected peer districts to identify the district's strengths and areas in need of improvement. For comparison purposes, RLISD selected Rogers, Mart, Franklin and Corrigan-Camden as peer districts. Exhibit 1-7 compares RLISD's budget to selected peer districts for payroll and professional and contracted services. Among its peers, RLISD has the highest percentage of its budget dedicated to payroll costs and professional and contracted services.

Exhibit 1-7
Budgeted Payroll Costs and Professional and Contracted Services
RLISD and Peer Districts
2002-03
District Enrollment Payroll Costs
and Professional
and Contracted
Services		 Total
Budget		 Percent of
Budget
RLISD 953 $5,539,237 $6,514,768 85.0%
Rogers 863 $4,697,061 $5,814,512 80.8%
Mart 678 $4,452,889 $5,530,135 80.5%
Franklin 945 $6,184,948 $7,608,100 81.3%
Corrigan-Camden 1,142 $7,044,680 $8,839,638 79.7%
Source: TEA, PEIMS, 2002-03.

Exhibit 1-8 shows that the average number of years of experience for RLISD teachers was below the state's average from 1997-98 through 1999-2000, but exceeded the state average from 2000-01 to 2002-03.

Exhibit 1-8
Average Years of Teaching Experience
RLISD and State
1997-98 through 2002-03
Entity 1997-98 1998-99 1999-2000 2000-01 2001-02 2002-03
RLISD 10.9 11.6 11.2 12.8 14.1 13.0
State 11.8 11.8 11.9 11.9 11.9 11.0
Source: TEA, AEIS, 1997-98 through 2001-02 and PEIMS, 2002-03.

School districts require adequate staffing levels to provide quality education to students. TEA categorizes school district staff into six groups including teachers, professional support, campus administration, central administration, educational aides and auxiliary staff.

The state mandates the minimum base salary that school districts must pay classroom teachers, full-time librarians, full-time counselors and full-time nurses. There is no state minimum salary for any other position classification. Exhibit 1-9 provides the state base salary schedule for 2002-03 for teachers, librarians, counselors and full-time nurses only.

Exhibit 1-9
State Minimum Salary Schedule
2002-03
Years of
Experience
Credited		 Monthly
Salary		 Annual
Salary
(10 month contract)
0 $2,424 $24,240
1 $2,481 $24,810
2 $2,539 $25,390
3 $2,596 $25,960
4 $2,717 $27,170
5 $2,838 $28,380
6 $2,959 $29,590
7 $3,072 $30,720
8 $3,178 $31,780
9 $3,279 $32,790
10 $3,373 $33,730
11 $3,464 $34,640
12 $3,549 $35,490
13 $3,628 $36,280
14 $3,705 $37,050
15 $3,776 $37,760
16 $3,844 $38,440
17 $3,908 $39,080
18 $3,968 $39,680
19 $4,026 $40,260
20 and more $4,080 $40,800
Source: TEA, Division of State Funding, November 2002.

Exhibit 1-10 displays RLISD averaged salary trends by employee classification. Average salaries have increased for teachers and school administration and have decreased for professional support and central administration from 1998-99 through 2002-03.

Exhibit 1-10
RLISD Average Salaries (Regular Duties Only)
1998-99 through 2002-03
Classification 1998-99 1999-2000 2000-01 2001-02 2002-03 Percent
Change from
1998-99 through 2002-03
Teachers $30,879 $33,784 $34,082 $35,390 $35,421 14.7%
Professional Support $40,077 $41,582 $35,753 $37,014 $37,115 (7.4%)
School Administration $43,618 $46,473 $47,500 $48,024 $49,700 13.9%
Central Administration $59,200 $56,230 $50,097 $42,220 $46,875 (20.8%)
Source: TEA, AEIS, 1998-99 through 2001-02 and PEIMS, 2002-03.

Exhibit 1-11 shows RLISD's teacher turnover rate exceeded the state average by 6 to 7 percentage points in 1997-98 and 1998-99; however, the district fell below the state average in 2000-01 and 2002-03.

Exhibit 1-11
Turnover Rate for Teachers
RLISD, Peer Districts and State
1997-98 through 2001-02
District 1997-98 1998-99 1999-2000 2000-01 2001-02
RLISD 20.7% 21.9% 16.1% 12.0% 15.1%
Mart 17.3% 7.4% 16.7% 21.6% 41.7%
Corrigan-Camden 12.8% 18.3% 14.4% 15.6% 21.3%
Rogers 8.0% 41.5% 15.7% 7.5% 12.2%
Franklin 7.4% 4.5% 11.3% 8.6% 12.1%
State 13.3% 15.5% 15.0% 16.0% 15.7%
Source: TEA, AEIS, 1997-98 through 2001-02.

Exhibit 1-12 presents a comparison of RLISD's average salaries to its peer districts and the state in 2002-03. RLISD teachers earned the second highest salaries among its peers, though less than the state average. Professional support positions, school administrators and central administrators earned less than selected peers and the state.

Exhibit 1-12
Average Staff Salaries
RLISD, Peer Districts and State
2002-03
District Teachers Professional
Support		 School
Administration		 Central
Administration
Corrigan-Camden $34,964 $39,415 $52,712 $58,568
Franklin $40,792 $39,748 $55,089 $59,633
Mart $34,802 $42,613 $61,291 $64,892
Rogers $35,268 $39,710 $58,190 $56,379
RLISD $35,421 $37,115 $49,700 $46,875
Peer Average $36,457 $40,372 $56,820 $59,868
State $39,972 $47,640 $61,214 $64,259
Source: TEA, PEIMS, 2002-03.

FINDING

The district has not adjusted its staffing levels to be proportionate with the decline in its student enrollment. RLISD has experienced a steady decline over a six-year period, except for 2000-01 when the district had a slight enrollment increase of 1.8 percent from the previous year. Since 1997-98 the district's student enrollment has declined 10.9 percent while staffing levels have dropped 6.0 percent. In addition, the district has reduced staff in the classroom and in the campus administrative level while central administrative positions and support staff have increased.

Exhibit 1-13 shows enrollment and staffing trends.

Exhibit 1-13
RLISD Enrollment Decline and Staffing Allocation
1997-98 through 2002-03
School
Year		 Enrollment
Count		 Percent
Change From
Previous Year		 Total Staff Percent
Change From
Previous Year
1997-98 1,070 N/A 162.2 N/A
1998-99 1,045 (2.4%) 155.7 (4.0%)
1999-2000 1,022 (2.3%) 156.9 1.0%
2000-01 1,041 1.8% 147.1 (7.0%)
2001-02 968 (7.5%) 155.7 6.0%
2002-03* 953 (1.6%) 152.5 (2.1%)
Source: TEA, AEIS, 1997-98 through 2001-02 and PEIMS, 2002-03.

Based on AEIS and PEIMS information reported by RLISD in 1997-98, the district had one position in central administration. In 2002-03, with nearly a 10.9 percent decrease in student enrollment the district filled three additional positions in its central administration staffing; a 200 percent increase. The district also increased its professional support ranks from 2.9 positions to five during the same period; a 72.4 percent increase. Conversely, RLISD decreased its number of teachers by 7.4 percent from 1997-98 to 2002-03. At the same time, the district cut educational aides by 16.4 percent and reduced campus administration by 19.4 percent.

Exhibit 1-14 summarizes the district's staffing levels from 1997-98 through 2002-03.

Exhibit 1-14
RLISD Staffing
1997-98 through 2002-03
Staff/Enrollment Classification 1997-98 1998-99 1999-2000 2000-01 2001-02 2002-03 Percent
Change
Teachers 82.4 81.0 79.2 79.4 81.0 76.3 (7.4%)
Professional Support 2.9 4.0 3.0 4.0 4.0 5.0 72.4%
Campus Administration 6.2 5.5 5.3 5.0 4.5 5.0 (19.4%)
Central Administration 1.0 1.0 2.0 2.0 3.0 3.0 200.0%
Educational Aides 25.0 25.4 24.5 23.7 21.0 20.9 (16.4%)
Auxiliary 44.7 41.4 42.9 33.0 42.2 42.3 (5.4%)
Total Staff 162.2 158.3 156.9 147.1 155.7 152.5 (6.0%)
Total Student Enrollment 1,070 1,045 1,022 1,041 968 953 (10.9%)
Source: TEA, AEIS, 1997-98 through 2001-02 and PEIMS 2002-03.

Some districts use staffing allocation formulas to project the number of teachers, administrators and other positions that are needed to operate the district. These formulas and workforce planning strategies help districts maintain control of staffing levels and staffing equity across schools while taking enrollment levels into consideration. Elgin Independent School District (EISD) is in the process of implementing a staffing allocation formula that ties directly to student enrollment in order to reduce its non-teaching positions. EISD has recognized a $99,000 savings just in the initial year of its implementation.

Recommendation 4:

Implement a staffing allocation formula based on fluctuations in student enrollment.

The district should establish staffing allocation formulas and calculate the appropriate staffing levels for each school and department as enrollment trends dictate.

IMPLEMENTATION STRATEGIES AND TIMELINE
1. The superintendent implements a hiring freeze and directs campus administrators to only fill critical positions. June 2003
2. The superintendent and the business manager develop staffing allocations for each school and department based upon enrollment projection and analyses. June - July 2003
3. Staffing allocation formulas are presented to the board for approval. July 2003
4. The superintendent uses the staffing allocation formulas and enrollment projections in the 2003-04 budget process. August 2003
and Ongoing

FISCAL IMPACT

RLISD's total district staffing has decreased by 6 percent along with the 10.9 percent decrease in its student enrollment. In order for RLISD staffing levels to mirror student enrollment the district will need to adjust its staffing levels by another 5 percent (152.5 employees x 0.05 reduction = 7.6 positions) or 7.6 positions. To be conservative, the review team estimates only reducing that number by half or 3.8 total positions. The average salary of an RLISD employee is $26,792 adding a benefit rate of 12 percent ($26,792 average salary x 1.12 benefit rate = $30,007 average salary plus benefits) equals $30,007. This totals an annual savings estimate of $114,027 (3.8 positions x $30,007 average salary = $114,027 in total savings). TSPR assumes that only half the savings will be realized in the first year.

Recommendation 2003-04 2004-05 2005-06 2006-07 2007-08
Implement a staffing allocation formula based on fluctuations in student enrollment. $57,014 $114,027 $114,027 $114,027 $114,027

FINDING

RLISD does not recruit minority teachers to better reflect the demographic make-up of its students. Exhibit 1-15 shows the minority composition of the teaching staff is 2.6 percent and does not mirror the 41.1 percent composition of the district's minority student population. RLISD does not have a recruitment plan, nor does it have a minority recruitment strategy.

Exhibit 1-15
RLISD Teachers and Students by Ethnicity
2002-03
Ethnicity Ethnic Percent
Distribution
of Teachers 		Ethnic Percent
Distribution
of Students
African-American 1.3% 19.4%
Hispanic 1.3% 21.7%
Anglo 97.4% 58.3%
Asian/Pacific Islander 0.0% 0.0%
Native American 0.0% 0.5%
Total 100.0% 100.0%
Source: TEA, PEIMS, 2002-03.

There were two minority teachers at RLISD in 2002-03. Exhibit 1-16 shows that there were no Hispanic teachers in the district from 1997-98 through 2000-01. In addition, the number of African-American teachers on staff declined from 2.5 in 1997-98 to 1.0 in 2002-03.

Exhibit 1-16
Number of Teachers by Ethnicity
1997-98 through 2002-03
Teachers by Ethnicity 1997-98 1998-99 1999-2000 2000-01 2001-02 2002-03
African-American 2.5% 1.5% 1.5% 1.0% 1.0% 1.0%
Hispanic 0.0% 0.0% 0.0% 0.0% 1.0% 1.0%
Anglo 79.9% 79.5% 76.7% 77.4% 79.0% 74.3%
Asian/Pacific Islander 0.0% 0.0% 0.0% 0.0% 0.0% 0.0%
Native American 0.0% 0.0% 1.0% 1.0% 0.0% 0.0%
Total Teachers 82.4% 81.0% 79.2% 79.4% 81.0% 76.3%
Source: TEA, AEIS, 1997-98 through 2001-02 and PEIMS, 2002-03.

In interviews, the superintendent said the district hopes to increase the ethnic diversity of its teaching staff. However, the district has no plan to target recruiting efforts toward minority teachers who have ethnic backgrounds similar to some of RLISD's students. The superintendent said that the district has had a hard time just ensuring that it has certified teachers in the classroom. He added that the district does not receive many minority applicants. Currently, the district relies on the effort and initiative of qualified minorities who may apply, as opposed to districtwide recruitment strategies to target qualified minorities.

According to a collaborative study conducted by TEA, the Texas Higher Education Coordinating Board, State Board for Educator Certification and the Texas Center for Education research, strong recruitment is one half of the equation to increase the supply of good teachers. There is not a strong effort by RLISD to market for minority teachers even though RLISD has a sizable minority student population.

Several other districts promote cultural diversity in staffing programs and practices by exploring collaborative opportunities to target and recruit qualified minority teachers. For example, Glen Rose ISD (GRISD) holds an annual joint job fair with Somervell County that provides an opportunity for mutual benefit. This small community pools resources in marketing its area. Teachers who would require relocation to accept a position in GRISD can simultaneously have spouses interviewed at the county for employment opportunities.

Recommendation 5:

Develop a policy and long-term plan for recruiting and hiring qualified, ethnically diverse teachers to better match the district's student demographics.

If the district hired additional qualified minority teachers, it could provide its minority students with additional role models and enable teachers to communicate with students based on shared cultural backgrounds.

RLISD needs to take steps to target and recruit qualified minority teachers, including using current minority teachers as technical advisors in developing a sound recruitment strategy, enlisting local and regional media to publicize the minority teacher shortage; providing incentives to teachers who are currently working toward certification; and developing a college recruitment and relations program with predominantly minority institutions of higher education as well as other teacher training instructions. Other resources are available through TEA.

IMPLEMENTATION STRATEGIES AND TIMELINE
1. The superintendent creates a team of school administrators and teachers to develop a comprehensive teacher workforce diversity plan. July 2003
2. The workforce diversity team sets goals for recruiting qualified ethnic minority teachers including long-range staffing requirements. October 2003
3. The workforce diversity team develops and recommends internal processes to increase diversity in minority retention using elements such as mentoring, task force assignments, community outreach to minority parents and other special assignments. October 2003
4. The workforce diversity team presents the proposed workforce diversity teacher recruitment plan to the superintendent and board for approval. December 2003
5. The superintendent implements the workforce diversity teacher plan. January 2004
6. The workforce diversity team continuously monitors and evaluates the effectiveness of the minority teacher recruitment plan and suggests any improvements to the superintendent, as appropriate. Ongoing

FISCAL IMPACT

The cost of developing a workforce diversity teacher plan includes recruiting at colleges and universities that produce qualified minority candidates. The cost of attending at least two career fairs at predominately minority institutions of higher education can be estimated at $500 per event, annually, including registration and travel costs. The suggested media releases should not cost the district and should include special news features, district releases and stories of local interest. The district could also use free mediums, such as the Internet, to recruit minority candidates.

Recommendation 2003-04 2004-05 2005-06 2006-07 2007-08
Develop a policy and long-term plan for recruiting and hiring qualified, ethnically diverse teachers to match the district's student demographics ($1,000) ($1,000) ($1,000) ($1,000) ($1,000)

FINDING

The district does not have written, standard operating procedures for human resources administrative procedures, functions and processes. RLISD does not have an operating procedures manual that reflects board policies and provides day-to-day instructions for staff.

The secretary to the superintendent performs most of the administrative tasks related to personnel activities and operations, including:

  • posting job vacancies; maintaining personnel files;
  • verifying employment references; and
  • preparing special employment reports.

Staff members who were interviewed said the district does not have a systematic method or practice for communicating internal policies or procedural changes. They said that they often do not learn about revised procedures until after-the-fact. During focus group interviews, support staff expressed a high level of dissatisfaction and said they felt "kept in the dark" about performance expectations. Some staff interviewed said that performance expectations are not always made clear.

Recommendation 6:

Develop an operating procedures manual for human resources functions and cross-train an additional staff member to perform human resources duties.

A manual will provide standardized procedures and keep staff informed on processes and expectations. Each area should develop desk manuals to ensure continuity of work during absences and vacancies. The manual should contain goals, organizational structure and detailed procedures for carrying out the functions of the human resources. The superintendent should also require cross training of an additional position in human resources processes as a backup to his secretary.

IMPLEMENTATION STRATEGIES AND TIMELINE
1. The superintendent identifies an administrative staff person to handle human resources duties. June 2003
2. The secretary to the superintendent documents operating procedures and compiles these procedures into a human resources manual. June - September 2003
3. The secretary to the superintendent presents the completed manual to superintendent for approval. October - November 2003
4. The secretary to the superintendent uses the manual to cross-train the individual designated to perform back-up human resources duties. November 2003
5. The secretary to the superintendent and the designated backup updates the human resources manual as needed. Ongoing

FISCAL IMPACT

This recommendation can be implemented with existing resources.