Student Based Budgeting (SBB) SCS Board Update...ES Balmoral/Ridgeway Elementary Sharonda Beard ES...

Tuesday, September 26, 2017

Student Based Budgeting (SBB) SCS Board Update

Objective for today’s session:

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Answerthefollowing3ques2ons:

1.   WhyisSCSimplemen2ngSBB?

2.   WhatistheSBBimplementa2onplan?

3.   WhatarethenexttouchpointswiththeBoard?

#1. Why is SCS implementing SBB?

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SBB helps to support SCS’s Managed Performance Empowerment System (MPES) Theory of Action:

SCS Board of Education’s theory of action is two-fold: 1)  implementation of an Aligned Instructional

System (AIS), and

2)  gradual transition into a Managed Performance/Empowerment System (MPES) with earned levels of autonomy as schools become high performing, demonstrated by student academic achievement, operational efficiency, and continuous improvement.


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A Managed Performance Empowerment System (MPES) has two components:


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SBB strengthens the funding system:

Flexibility

School leaders define the resources they

need to drive student achievement

“Principals own their budgets”

Equity

Resources are distributed equitably

based on student need

“Dollars follow the student”

Transparency

Clear and easily understood rules for where, how, and why

dollars flow

“The formula tells you what you get”


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84% believe that the current funding system is TRANSPARENT

45% believe that the current funding system is EQUITABLE

33% believe that they have enough FLEXIBILITY over staffing/budgets

SCS school leaders have expressed concern over the current funding system. In a recent survey:

Source:PrincipalSurvey2017(n=142),ERSanalysis

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Just over half of SCS’ operating resources are reported at the school level

#1. TRANSPARENCY–Why is SCS implementing SBB?

Source:SCSSY1617AdjustedBudget,ERSanalysis,ERSBenchmarkDatabase

District Governance, Management of the support services provide to Schools

Example: Superintendent, Strategy, Director of Transportation

Leadership & Management

7%

Shared Services

All FTEs, services, and materials that provide support to schools but

generally on as-needed or irregular basis

Example: Maintenance

21%

School on Central

All FTEs, services, and materials not reported in the financial system at schools, but play out in

schools on a regular and predictable basis

Example:

Pupil services, Enrichment

20%

School Reported

All FTEs, services, and materials allocated directly

to schools in the district expenditures

Example: Most school based staff

52%

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SCS has less budget transparency than peers with only 52% of expenditures reported at schools



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SCS also holds significantly more resources at the district level



#1. EQUITY –Why is SCS implementing SBB?

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Analysis shows that current funding is inequitable, with some schools getting 2x more per pupil than other schools even after adjusting for student need.

Note:CalculaEonsexcludeAvon/ShrineSchools,HollisF.Price,MiddleCollege,CampusElementary,AlternaEveSchools,CTEsSource:SCSSY1617AdjustedBudget,ERSanalysis

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This variation is higher than in most districts ERS has studied

Source:SCS1617Adjustedbudgetdata;ERSanalysis;ERSbenchmarkdatabase


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Having variation across schools is not necessarily a bad thing, but the question is – what is driving this variation?

Source:SCS1617Adjustedbudgetdata;ERSanalysis;ERSbenchmarkdatabase

ü Deliberate/ByDesign

ü Alignedwithdistrict’sstrategicgoals

ü Gives“needier”schoolsaddiEonal$s

ü Unplanned/UnintenEonal

ü Non-strategic

ü Resourcesnotgoingtothe“needier”schools

GoodVaria2on BadVaria2on

Anyguessesastowhat’scausingthevaria2on?


13Source:SCS1617Adjustedbudgetdata;ERSanalysis;ERSbenchmarkdatabase

Not drivers in SCS Why?

Teacher Compensation Higher-paid teachers are not concentrated in a few schools

Concentration of Student Need Additional spending on student needs is largely accounted for through per-weighted-pupil adjustment

Optional Schools Optional ES receive some additional resources ($400pwp), but secondary programs do not

Enrollment Projections Projections are relatively aligned with actual enrollment

School Level Median $pwp in HS/MS and ES/K8 are similar (~$7,500)

It may be surprising, but these factors do NOT drive variation:


14Source:SCS1617AdjustedBudget;SCS1617StudentMasterFile;SCS1617SchoolFile;ERSAnalysis

Driver of Variation #1: The investment in iZone schools is one of the greatest drivers in variance in $pwp spending


15Source:SCS1617AdjustedBudget;SCS1617StudentMasterFile;SCS1617SchoolFile;ERSAnalysis

Driver of Variation #2: As in most systems, SCS’ 24 traditional but subscale schools are more expensive to operate


16Note:ThisdataonlyincludesSCSElementarySchoolsandexcludesanyK8soriZoneschoolsSource:SCS1617AdjustedBudget;SCS1617StudentMasterFile;SCS1617SchoolFile;ERSAnalysis

Driver of Variation #3: Ad-Hoc one-off exceptions account for the rest of the variance in $pwp across schools.


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What are ad-hoc one-off exceptions?

“Squeaky wheels” Principals advocate for the resources to support new

initiatives on an ad hoc basis

Rolling over old structures Starting staffing & budgeting processes with whatever the

district did last year


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As part of SBB, SCS has to decide what resources schools will have flexibility over:

LOCKED Resources are managed centrally •  Central office is responsible for determining how much to

spend on a service or position and/or how to deliver it •  Locked Resources are not part of the SBB Pool and are

not allocated out via the SBB Formula

UNLOCKED Resources are managed by schools •  Schools are responsible for providing these services using

their SBB Allocations and meeting any applicable federal, state, local, funding, union requirements

•  Unlocked Resources are part of the SBB Pool and are allocated out via the SBB Formula

#1. FLEXIBILITY–Why is SCS implementing SBB?

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Under SBB, principals are typically given flexibility over 50-70% of school-based resources.


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Having sufficient and flexible resources is an enabling condition for Strategic School Design


SCS Goal: Student

Success!

Strategic School Design To create the best possible context for excellent teaching and learning, schools organize resources (people, time, technology, and money) around their vision for student and teacher success.

The Right People in all Schools

Effective Instructional Support

Sufficient and Flexible Resources

Strong Central Processes for Innovation and Continuous

Improvement

Student Based Budgeting (SBB)

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Our research shows that strategic schools organize resources around six interrelated design essentials


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Since 2013, ERS has partnered with 6 districts to train 300+ principals and intensively support ~50 schools through the Strategic School Design process


Throughout the strategic school design process, school leaders reflect, revise initial answers, and approach

each step with a willingness to make trade-offs.

Assess Needs & Resources

Clarify & Communicate

Priorities Design

the Strategy Reorganize to Make it

Work Implement & Monitor

Step 1 Step 2 Step 3 Step 4 Step 5

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Our analysis of FY17 course and schedule data shows that SCS schools have opportunities to improve their student and teacher experience


DesignEssen2al Opportunity

PersonalizedTime&ANen2on

•  DifferenEategroupsizesandEmeinpriorityclasses•  DifferenEategroupsizesandEmeintransi2onyears•  Providestudentswhostrugglewithaccesstorigorous

instrucEonwithaddiEonalEmeandaaenEoninhigh-needareas

ExpertLedCollabora2on&ProfessionalLearning

•  Ensurethatallshared-contentteachingteamshave90+min/weekintheirscheduletomeettogetherwithacontentexperttocollaborate

TalentManagement&TeacherLeadership

•  AssignteachersacrossandwithinschoolstohighpriorityareastobalanceexperEse

•  CreateteacherleadershiprolesforeffecEveteacherstoextendtheirimpact

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For example, the average class size is approximately the same for core and non-core classes


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ClassSize Core Core Diff

ShelbyCounty 23 23 +0

PeerMedian 23 26 -3

Aus2n 21 23 -2

Aldine 25 27 -2

CharloNe 25 26 -1

Denver 24 26 -2

Knox 22 25 -3

PalmBeach 20 31 -11

ClassSizes Core Core Diff

ShelbyCounty 24 23 +1

PeerMedian 23 24 -1

Aus2n 22 24 -2

Aldine 25 24 +1

CharloNe 24 24 0

Denver 22 22 0

Knox 19 23 -4

PalmBeach 23 30 -7

Middle Schools High Schools

Source:SCSSY1617CourseScheduleData,ERSAnalysis

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SCS teachers have less time to plan compared to teachers in peer districts because they teach a higher % of their day


25Source:SCSSY1617CourseScheduleData,ERSAnalysis

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Highly effective and effective teachers are not more likely to be assigned to high-priority grades or to students who struggle



How could a “typical” Shelby County school adapt in light of these findings?

•  Drastically reduce class sizes in ELA from 23 to 16 while increasing class sizes to state maximum in non-core subjects

•  Create a weekly 90+ min collaborative block for shared-content teachers by shifting from a 6-period to a 7-period day

•  Assign the most effective teachers to the highest need students and/or transition grades

•  Reduce “student load” for ELA teachers from 120 to 70 students by increasing ELA staffing and assigning teachers to the same students for core instruction and intervention blocks

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Shifts require significant change from status quo but no incremental cost to SCS

#2. What is the SBB implementation plan?

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The SBB Rollout in SCS will be staggered with the SBB formula rolling out first to support equity/transparency

SBB Formula which determines how much money each school receives will roll out to all schools for 2018-19.

All schools* will receive an SBB formula budget instead of a traditional staffing allocation.

*TBD if alt/sped schools will be part of SBB.

SBB Flexibilities which determines what schools can do with the money will roll out more slowly with schools piloting flexibility in 2018-19.

Feb 2018: 6 cohort schools will receive extensive ERS coaching to pilot full SBB flexibilities

Feb 2018:

27 early adopters will pilot some SBB flexibilities with support from ERS/ILDs

Remaining schools will have no new SBB flexibility and will be told how to use SBB $s


Status Update – September 2017:

•  SBB Design Team (includes principals and central office staff) has been meeting since June to develop SBB recommendations.

•  Intensive principal training and support has already begun for 6 cohort schools and 27 early adopter schools (see appendix for list of names and example training)

•  Central Office departments (like Finance, HR, Academics, etc.) have begin preparations to shift towards a more “collaborative service center” approach to better support schools under SBB

These 6 cohort schools will receive intensive coaching to pilot full SBB flexibilities in 2018-19.

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Level School PrincipalES KingsburyElementary WynnEarleMS KingsburyMiddle TarciaGilliamHS KingsburyHigh TerryRossES BrownsvilleElementary CharlesNewbornMS CraigmontMiddle LaTrendaHicksHS CraigmontHigh TishaDurrah

Source: ERS

6 Cohort Schools

These 27 early adopter schools will pilot some SBB flexibilities with ERS/ILD support

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Level School PrincipalES Balmoral/RidgewayElementary SharondaBeardES BerclairElementary HarryS.ShawES BethelGroveElementary AudreanBond-JonesES CharjeanElementary TamekaAllenES CherokeeElementary SunyaPayneES FordRoadElementary LaquitaLTateES FoxMeadowsElementary RhondaBowlesHowardES GoodleaElementary NadiyahMcMurrayES HighlandOaksElementary MarcheraJamesES IdlewildElementary RandyThompsonES JacksonElementary YolandaY.HeidelbergES OakshireElementary GloriaGoldenK-8 DouglassK-8 KamiahTurnerK-8 LowranceElementary KelvinBatesMS BellevueMiddle KevinMaloneMS IdaB.WellsAcademyMS SandraJohnsonMS KateBondMiddleSchool ChristopherMurrahMS RidgewayMiddle CoreyWilliamsMS WhiteStaEonMiddle ShawnPageHS CentralHigh GregMcCulloughHS MiddleCollegeHigh DociaGenereaeHS MitchellHigh KelvinMeeksHS OakhavenHigh MelanieBlackHS ShrineSchool CharlieReeseHS SouthwindHigh TerrenceBrownHS WhitehavenHigh VincentHunter

Source: ERS

27 Early Adopter Schools


SBB Design Team has been discussing what resources to lock/unlock to define SBB flexibilities

TypicallyLOCKED Differsbydistrict TypicallyUNLOCKED

•  Payroll•  LegalServices•  Audit/ComplianceServices

•  FoodServices•  CoreITServices(i.e.,email,studentinfosystems,etc.)

•  StudentTransportaEon•  UEliEes

•  ELLteachers•  SWDteachersandTAs•  GuidanceCounselors•  SocialWorkers•  CustodialStaff&Resources

•  Curricula&Assessments

•  Prof’lDevelopmentresourcesandstaff

•  GeneralEducaEonteachersandTAs

•  Art/Music/PE/OtherNonCoreTeachers

•  AssistantPrincipals•  SchoolClerical/AdminSupportStaff

•  SchoolLibrarians

Example Resources that are typically …


SBB Design Team has also been discussing what student needs to weight under the SBB formula – here are some of the options that are being discussed:

Weight Descrip2on

Concentra2onofPoverty/Poverty Tieredweighttoeitherallstudentsataschoolbasedontheschool’s%EDconcentraEon–3Eersproposed:0-69%,70-89%,90-100%

PriorAcademicPerformance(highandlow)

Weightstobothbelow-proficientstudentsandadvancedstudentsusingincomingstudentperformance%asproxyforenEreschool

At-Riskstudents(overage,transient,immigrant,suspension/expulsion,chronicallyabsentdata)

CouldeitheroperatelikeaEeredconcentraEonofpovertyweightoraflatweightbasedonnumberofeligiblestudents.MainchallengeiswhetherSCShassufficientdataforthis.

SWD(ontopofLocked$s) SWDsreceivingaweight(ontopofLockedSPEDteachers/$s)

GradeLevel StudentsingradesXandYreceivingaweight

ELL(ontopofLocked$s) ELLsreceivingaweight(ontopofLockedELLteachers/$s)

AverageDailyANendance Givingadd’lmoneytoschlswithanADAhigherorlowerthanX%

Homeless StudentsidenEfiedashomelessreceivingaweight

GidedStudents Studentslabeledasgitedreceivingaweight

#3. Next touchpoints with the Board?

Upcoming SBB Review with Board: Aug 28th Overview, Q&A

Sept 26th Review findings about equity, transparency, and flexibility of current system; Review SBB implementation plan

Oct 24th? Review preliminary recommendations around SBB Formula and Flexibilities and consider key questions like: which student characteristics should receive additional weights (i.e. additional $) under the SBB formula?

Nov 28th or Dec 5th?

Review final SBB recommendations.

Thoughts? Other topics to discuss?

Appendix Slides

35Source:ERS

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Example: Principal Budgeting Training

Strategic School Design is a process to align a school’s resources against its strategy and most urgent needs

Assess Needs & Resources

Clarify & Communicate

Priorities Design

the Strategy Reorganize to Make it

Work Implement & Monitor

Step 1 Step 2 Step 3 Step 4 Step 5

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One example from the training that we do is a card game called School Budget Hold’em:

Objective of the Game: Create a “hand” of investment and savings cards that enables a hypothetical school to meet its strategic goals while staying budget-neutral.

Play online at … School Budget Hold’em: https://www.erstrategies.org/hold-em-school-level District Budget Hold’em: https://www.erstrategies.org/hold-em

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Screenshot from online version of School Budget Hold’em https://www.erstrategies.org/hold-em-school-level

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Screenshot from online version of School Budget Hold’em https://www.erstrategies.org/hold-em-school-level

#2. How does SBB work?

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Thereare2partstoanSBBsystem:

1.  SBBFormula

2.  SBBFlexibili2es

Formoredetails,pleasesee:ERS’sGuidetoImplemenEngStudent-BasedBudgeEng

Let’stalkthroughacasestudyexample*…

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Nashville – 3rd year of implementation

* We are using Nashville’s SBB system to help explain how a SBB system works. We are in NO WAY saying that what Nashville did is what Shelby County should do or intends to do.

Shelby County is in the process of developing its SBB system.

#2. How does SBB work?

Part 1. SBB Formula

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TheSBBFormuladecideshowmuchmoneyeachschoolwillreceive:

BaseWeight1.0=$4,250

Mark Maria

Schoolsgetabaseamountofmoneyforeverysinglestudent

BaseWeight1.0=$4,250

Non-Proficient0.1=$425

SPEDOp2on20.5=$2,125

ELL0.2=$850

1.60=$6,800 1.2=$5,100

Addi2onalmoneyisgiventoreflecttheincreasedcosttomeetcertainstudentneeds

Important:$sshownarehypothe1cal.TheydonotrepresentSCS$s.

Part 1. SBB Formula

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Districts have made different decisions about which student characteristics to weight:

Forexample:herearetheCharacteris2cs

weightedinNashville

Commonlyweightedcharacteris2cs:•  GradeLevels•  Academic Performance: High •  Academic Performance: Low •  Poverty•  SPED•  ELL•  Founda2onAmount/SchoolSize•  Others

Part 1. SBB Formula

44Source:ERS

School budgets are then calculated using the school’s enrollment and the SBB formula …


Enrollment Weight Total Base Weight 500 1.0 = $4,250 $2,125,000 ELL 50 0.2 = $850 $42,500 Below Proficient 300 0.1 = $425 $127,500 Economically Disadv. 100 0.05 = $212 $21,200

TOTAL : $2,316,20

Schoolsget$s,notstaff

School A: •  500 students •  NO ELL, Below Prof., or

Poverty Students

Enrollment Weight Total Base Weight 500 1.0 = $4,250 $2,125,000

TOTAL : $2,125,000

School B: •  500 students

•  10% are ELLs •  60% are Below Prof. •  20% are Economically

Disadvantaged

Part 2. SBB Flexibilities

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… and principals have to decide how to use those $ to budget for staff and resources that best meet the unique needs of their building.


FTEs Avg Salary Total Classroom Teacher 22.0 $50,000 $1,210,000 Assistant Principal 2.0 $75,000 $150,000 ELA Coach 1.0 $60,000 $60,000 Library Books $1,000 $1,000 etc. etc.

TOTAL Budgeted: $2,316,200

School B’s Hypothetical Budget

Part 2. SBB Flexibilities

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Let’s be very clear: “Unlocking resources” does not mean that schools can do whatever they want

Schools must still abide by: •  All applicable federal, state, and union

requirements •  District rules and guidelines

We like to call this “bounded flexibility.”

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ESL Teachers & Bilingual Cultural Mentors •  $15.1M, 227 FTEs ESL Teachers •  0.5M, 16 FTEs Bilingual Cultural Mentors (General Fund Only)

Current Situation: §  All ESL services are centrally

controlled and assigned

Considerations: §  For ESL teachers, must meet state/

external compliance §  No state compliance over Bilingual

Cultural Mentors

Tight/Lock Loose/Unlocked

. CentralOfficeassignsESLstaffFTEtoschoolsandmakesdecisionsonwheretoinvestbeyondminimum.

SchoolsuseSBBfundstobudgetforESLFTEsanddecidehowtoprovidetheservice(e.g.pullout,immersion,etc.)

#3. Discuss some SBB flexibilities?

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Guidance Counselors •  $17.4M, 229 FTEs Guidance Counselors

Current Situation: §  Each schools is allocated X Guidance

Counselors per Y students

Considerations: §  State requirement has minimum of

1 guidance counselor per school (MS/HS) or 0.5 (ES)

Tight/Lock Loose/Unlocked

. Central office continues to determine how many counselors are staffed at each school

Principals get money via SBB funds and can decide how many counselors to hire as long as they meet state minimums.



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Guiding principles on whether to LOCK or UNLOCK a resource under SBB:

REASONS TO LOCK

•  Is this resource a key CENTRAL ROLE such that devolving it impacts the district’s ability to fulfill a vital function?

•  Is this specific program a DISTRICT-WIDE PRIORITY that the district wants to occur at specific schools or at all schools?

•  Is this resource needed INFREQUENTLY OR UNPREDICTABLY, making it hard to budget for it?

•  Is there EXTERNAL COMPLIANCE that the district or schools are accountable for?

•  Does this resource have ECONOMIES OF SCALE such that the savings for centralizing outweighs desire of school control?

•  Is this a HIGHLY SPECIALIZED HIGH COST PROGRAM that schools have differential access to?

REASONS TO UNLOCK

•  Does school control of this resource fit within the district’s VISION OF THE PRINCIPAL’S ROLE?

•  CENTRALITY TO SCHOOL MISSION: Is school control over this service central to the school’s mission and ability to impact student achievement?

•  SCHOOL DESIGN INNOVATION: Can schools benefit by providing this service/activity differently based on their unique needs?

•  PROXIMITY TO RESOURCE USE: Does the principal’s proximity to the service make it likely that he/she could manage it more effectively than could the central office?

•  COST SAVINGS: Are there opportunities for increased efficiencies and savings if principals manage the program/service at the school level.


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Another way to think about it is that under SBB, there will be 3 components to a school budget:

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If SCS schools increased noncore class sizes to the state max, SCS could dramatically lower ELA class sizes – see this example in representative MS:



FROM TO 21.5 core teachers (5.5 ELA) 11 noncore teachers 32.5 total teachers

108 core classes (27 ELA) 54 noncore classes 162 total classes offered

23 = avg. ELA core class 23 = avg. core class size 23 = avg. noncore class size

24 core teachers (9 ELA) 8.5 noncore teachers 32.5 total teachers

120 core classes (39 ELA) 42 noncore classes 162 total classes offered

16 = avg. ELA core class 23 = avg. other core class size 30 = avg. noncore class size

SCS schools can increase collaborative planning time for teachers by redesigning their schedules – see this example in a representative MS:



FROM TO •  6 period day •  83% teaching time (teach 5 of 6 periods) •  65 min of planning time 4x a week •  65 min of collaborative planning time 1x a week

Mon Tues Wed Thurs FriPer1 ELA ELA ELA ELA ELAPer2 ELAInt ELAInt ELAInt ELAInt ELAIntPer3 ELA ELA ELA ELA ELAPer4 ELAInt ELAInt ELAInt ELAInt ELAIntPer5 ELA ELA ELA ELA ELA

Per6 ELAInt CollabMtg ELAInt ELAInt ELAInt

Per7 Planning CollabMtg Planning Planning Planning

•  7 period day •  83% teaching time (5 periods 1x/wk, 6 periods 4x/wk) •  55 min of planning time 4x a week •  110 min of collaborative planning time 1x a week

Sam

ple E

LA Te

ache

r Sch

edul

e

Sam

ple E

LA Te

ache

r Sch

edul

e

Mon Tues Wed Thurs FriPer1 ELA ELA ELA ELA ELAPer2 ELA ELA ELA ELA ELAPer3 ELA ELA ELA ELA ELAPer4 ELA ELA ELA ELA ELAPer5 ELA ELA ELA ELA ELA

Per6 Planning CollabMtg PlanningPlanning Planning

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SCS schools can use teacher assignment to extend the reach of highly effective teachers and targeted coaching to support struggling teachers



FROM TO •  Highly effective

teachers are randomly distributed

•  No difference in teaching load by subject or grade (115)

•  Teachers receive same coaching regardless of need

•  Reassign 3 highly effective teachers (1 math, 2 ELA) from 7th/8th to 6th •  Lower ELA teacher loads to <70 by reducing class sizes (in shift #1) and

assigning teachers to teach ELA core and intervention w/same students. •  Create coaching schedule using existing staff (principal, 2 APs, Inst’l

Coach) that enables weekly novice teacher coaching.

CoachingSchedule PrincipalSS

APScience

APMath

CoachELA

Caseload 4 8 8 10

#Obs/Debriefs:2hr/each 2 5 5 8

#PlanningMtgs:90min+60minprep 3 3 3 3

#NoviceTchrsoncaseload 0 1 1 3

%weekspentincontentsupport&obs 33% 50% 50% 67%

Student Based Budgeting (SBB) SCS Board Update...ES Balmoral/Ridgeway Elementary Sharonda Beard ES...

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