Study: Richland District 2 Organizational Effectiveness

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Richland Two School DistrictOrganizational Effectiveness

and Efficiency Study

FINAL REPORT

April 1, 2011


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Richland Two School District

Organizational Effectivenessand Efficiency Study

FINAL REPORT

Submitted by:

Evergreen Solutions, LLC2852 Remington Green Circle, Suite 101

Tallahassee, Florida 32308

April 1, 2011


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Table of Contents Richland Two Effectiveness and Efficiency Study

E v e r g r e e n S o l u t i o n s , L L C

PAGE

EXECUTIVE SUMMARY ......................................................................................................................... i

1.0 INTRODUCTION ................................................................................................................... 1-1

1.1 Scope of the Study .............................................................................................................. 1-1

1.2 Methodology....................................................................................................................... 1-1

1.3 Overview of the Report ...................................................................................................... 1-3

2.0 DISTRICT ORGANIZATION AND MANAGEMENT ...................................................... 2-1

2.1 Governance and Board Issues ..................................................................................... 2-1

2.2 Policies and Procedures ................................................................................................ 2-6

2.3 District Organization and Management ...................................................................... 2-13

2.4 School Management and Staffing ............................................................................... 2-19

2.5 Planning ...................................................................................................................... 2-262.6 Legal Services............................................................................................................. 2-33

2.7 Public Information and Community Relations ........................................................... 2-37

3.0 EDUCATIONAL SERVICES DELIVERY .......................................................................... 3-1

3.1 Organization and Management of Curriculum and Instruction .................................... 3-1

3.2 Instructional Delivery and Student Performance ........................................................ 3-30

3.3 Special Education ....................................................................................................... 3-42

3.4 Student Support Services ............................................................................................ 3-55

3.5 Instructional Professional Development .................................................................... 3-67

4.0 FINANCIAL MANAGEMENT ............................................................................................. 4-1

4.1 Financial Organization and Management ..................................................................... 4-3

4.2 Budgeting ................................................................................................................... 4-14

4.3 Purchasing .................................................................................................................. 4-26

4.4 Payroll and Accounts Payable .................................................................................... 4-34

4.5 Cash, Investments, and Bond Management ................................................................ 4-39

4.6 Asset and Risk Management ...................................................................................... 4-46

4.7 Food Services Financial Operations ........................................................................... 4-54

5.0 HUMAN RESOURCES MANAGEMENT ........................................................................... 5-1

5.1 Organization and Management ..................................................................................... 5-1

5.2 Personnel Policies and Procedures ............................................................................ 5-10

5.3 Human Resources Records ......................................................................................... 5-17

5.4 Recruitment, Hiring, and Retention ............................................................................ 5-19

5.5 Compensation and Classification ............................................................................... 5-25

5.6 Performance Management ......................................................................................... 5-32

5.7 Human Resources Technology .................................................................................. 5-38


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Table of Contents Richland Two Effectiveness and Efficiency Study


PAGE

6.0 FACILITIES ........................................................................................................................... 6-1

6.1 Facilities Planning ........................................................................................................ 6-7

6.2 Facilities Maintenance ................................................................................................. 6-176.3 Custodial and Grounds Operations .............................................................................. 6-27

6.4 Energy Management ................................................................................................... 6-31

6.5 Community Use of Facilities ........................................................................................... 6-37

7.0 TECHNOLOGY MANAGEMENT ....................................................................................... 7-1

7.1 Organization and Staffing ............................................................................................. 7-1

7.2 Technology Planning and Management ..................................................................... 7-23

7.3 Instructional Technology ............................................................................................ 7-33

7.4 Staff Development ...................................................................................................... 7-42

8.0 TRANSPORTATION ............................................................................................................. 8-1

8.1 Organization and Management ..................................................................................... 8-8

8.2 Efficiency and Effectiveness ...................................................................................... 8-13

8.3 Policies and Procedures .............................................................................................. 8-16

8.4 Routing ....................................................................................................................... 8-24

8.5 Maintenance and Fuel ................................................................................................. 8-27

8.6 Student Discipline....................................................................................................... 8-30

8.7 Recognition ................................................................................................................. 8-31

9.0 SAFETY AND SECURITY .................................................................................................... 9-1

10.0 FISCAL IMPACT OF RECOMMENDATIONS ............................................................... 10-1

APPENDIX: SURVEY RESULTS


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EXECUTIVE SUMMARY


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E v e r g r e e n S o l u t i o n s , L L C Page i

EXECUTIVE SUMMARY

In January 2011, the Richland Two School District contracted with Evergreen Solutions, LLC toconduct an Organizational Effectiveness and Efficiency Study in all functional areas, including

district administration, educational services, human resources, financial management, facilities,transportation, technology, and safety and security. The study concluded in April 2011, whenrecommendations and findings were submitted to the Superintendent and School Board byEvergreen in the form of a comprehensive report.

SCOPE OF THE STUDY

The purpose of the study was to conduct an external review of the effectiveness and efficiencyof all departments and operations within Richland Two, and to present a final report of thefindings, commendations, recommendations and projected costs or cost savings associated withthe recommendations. For each operational area, Evergreen reviewed the overall structure,

staffing, processes, practices, and organizational culture in order to ensure services have beenoptimized by the district in terms of efficiency, effectiveness, and customer service. Workingon-site with district staff, faculty, and administrators, Evergreen was able to capture and presenta complete picture of the district; identify gaps in performance efficiencies; and offer solutionsto increase the performance of the district overall to improve in its primary goal of educatingchildren.

Furthermore, the study did not simply aim to identify immediate cost savings and improveshort-term operations, but focused on identifying appropriate means by which to increasedistrict efficiency well into the future. Recommended improvements are realized through the

implementation of best practicesincluding reorganization, economies of scale, and long-term

investment to the districts infrastructure. These improvements were identified through thecareful review of district operations as well as through the tedious review of instructionalservices and delivery. The results of the instructional efficiency review provide guidance toRichland Two in determining whether educational dollars are being used to the fullest extentpossible; and when indicated, provide recommendations to reduce costs while maintaining orimproving the quality of education.

Leaders in the Richland Two School District outlined specific objectives for the OrganizationalEffectiveness and Efficiency Study prior to engaging services. Requirements included reviewingexisting documents, data, and reports available to the district. Evergreen reviewed thesedocuments to ensure that work was not replicated and that findings in past reports wereintegrated into or addressed, and study recommendations where applicable.

In addition to data available at the district level, Evergreen collected data on Richland Twoavailable at the state level.


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Executive Summary Richland Two Effectiveness and Efficiency Study

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METHODOLOGY

Evergreens approach to conducting the Organizational Effectiveness and Efficiency Study forRichland Two was designed to evaluate district operations at the macro level (the school district asa whole) as well as at the micro level (by specific department and operational area). That is, the

Evergreen Team examined how the district and individual departments or operational areasfunction individually, as well as how they work together to create synergies and enforcecoordination with other operational areas and the community. At both levels, Evergreenconsultants conducted internal and external analyses to increase and ensure validity of outcomes.This approach ensures that a comprehensive study is conducted, and that the district is evaluated asthe sum of its parts and as a whole.

Evergreens process includes a variety of quantitative and qualitative data analyses in order toensure information is sufficiently validated and also to ensure data reflect actual stakeholderperceptions, operational occurrences, and overall operations. As such, throughout the report,Evergreen shares both nationally recognized research data collected by our expert consultants, aswell as feedback from teacher and administrator surveys, focus groups, and interviews. This mix ofbest practice research data, data collected from the district and the state, and stakeholder feedbacksolidifies the findings and recommendations developed by the Evergreen Team.

Evergreens methodology for this study followed a four-phase, 15-task work plan as shown inExhibit 1, which included the following components:

reviewing existing studies, reports, and databases of Richland Two; obtaining data on student achievement, revenues and expenditures, staffing, etc., from

district, state, and national sources;

conducting a diagnostic review and interviews with district leaders, principals, teachers,students, and parents; conducting employee surveys; making comparisons with national benchmark and best practices databases; making comparisons to peer school districts; conducting the formal on-site review; visiting 14 schools in Richland Two; and preparing the draft and final reports.

Review of Existing Records and Data Sources

Initially, Evergreen consultants collected existing reports and data sources that provided the teamwith information related to the various administrative functions, instructional delivery processes,and operations to be reviewed in the school district. This process ensured that the consultants not


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Exhibit 1Work Plan for the Organizational Effectiveness and Efficiency Study

of Richland Two School District

Information Technology

TASK 1:Initiate Project

TASK 2:Develop Preliminary Profile of the

Richland Two School District

TASK 3:Conduct Diagnostic

Review of OperationsTASK 4:

Conduct Surveys ofCentral Office

Administrators, Principals,and Teachers

PPoentao

P

Da

cRew

P

Cmpe

vOaoRewSanSu

TASK 6:Review Central Office

ManagementTASK 7:

Review HumanResources and

Personnel Management

TASK 9:Review Facilities Use

and ManagementTASK 10:

Review FinancialManagement

TASK 11:Review

Transportation

TASK 12:Review

Food ServicesTASK 13:Review

Information Technology

TASK 13:Prepare Draft and Final Reports

P

V

PoeR

nTASK 15:

Prepare Draft and Final Report

TASK 5:Conduct Benchmarking

and Best PracticesReview

TASK 8:Review Curriculum and

Instruction

TASK 14:Review

Safety and Security

Source: Created by Evergreen Solutions, 2011.


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only understood past events at Richland Two, but also that this information was integrated withinthe study. In addition, this information helped the team to conduct a preliminary assessment ofdistrict reporting standards, ultimately identifying any shortfalls in data collection anddissemination at Richland Two.

Over 200 items were requested prior to beginning the study, and ranged from finance-relatedinformation to safety and security documents. Examples of materials Evergreen requestedincluded, but were not limited to, the following:

Board of Trustees policies and administrative procedures; organizational charts; program and compliance reports; staffing information and standards; annual performance reports; annual budget and expenditure reports; job descriptions; salary schedules; past reports created by third-party contractors; and procedural handbooks.

District leaders played an integral role in this process, and successfully facilitated thecollection of the majority of available documents. However, as in most school districts,there were documents and data not available. Data and reports were analyzed from eachof the above sources and the information was used as a starting point for collectingadditional data during our on-site visits. Many of the documents and data sets collectedwere integrated into various chapters of this report, and used to support Evergreensfindings and recommendations.

Diagnostic Review

A diagnostic review ofRichland Two School District was conducted from February 1 throughFebruary 4, 2011. Evergreen consultants interviewed Board members, central officeadministrators, and staff concerning the management and operations of Richland Two. Thediagnostic review provided the overview and baseline necessary for conducting a successful andcomprehensive Organizational Effectiveness and Efficiency Study.

Employee Surveys

To secure the involvement of employees in the study, online surveys were disseminated on

January 28, 2011one for central office administrators, one for principals/assistant principals,and one for teachers. To access the surveys, group participants were provided with a uniqueURL which directed them to instructions on how to complete the survey. On February 10, 2011,the surveys were closed for participation so that data could be analyzed.

Overall survey participation rates for district employees were outstanding. Specifically, both thecentral office and school administrator survey groups boasted a survey completion rate of over

95 percent98.1 percent and 95.9 percent, respectively. The teacher survey group realized a


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survey response rate of 72.8 percent. While the teacher response rate is significantly lower thanthe other survey groups, it is important to understand that there are over 1,700 teachers in thedistrict. Taken together, Richland Two realized an 88.9 percent average survey response rate.

Through the use of this anonymous survey, central administrators, school administrators, andteachers were given the opportunity to express their views about the management and operationsin Richland Two. Many survey items were similar in format and content to provide a databasefor determining how the opinions and perceptions of these groups vary. The survey contained104 unique items and asked stakeholder opinion and informative questions pertaining to:

district administration; instruction; human resources; community involvement; facilities use and management; financial management; purchasing; transportation; food services; technology management; overall operations; and general questions.

Richland Two survey results were compared to administrators and teachers in Evergreenssurvey database. This database is a culmination of recent responses and feedback from a mix oflarge and small school districts across the nation. Evergreens data, collected in-house by ourteam, is constantly updated with new school district feedback. This practice allows Evergreen to

benchmark Richland Two against current trends in school districts operating in the same contextof todays dynamic economic, political, and cultural environment.

The survey results are provided in the Appendix of the full report. Specific survey itemspertinent to findings in the functional areas are presented within each chapter as appropriate tosupport study findings.

Moving forward, it may be beneficial for Richland Two leaders to use these surveys on anannual basis to assess stakeholder perception, and use Evergreens results as a baselinebenchmark to measure yearly improvements.

Peer School Districts

Peer school districts are generally neighboring or regionally located districts that are comparablein size, demographics, budget, and a number of other features. In most effectiveness andefficiency studies, peers are chosen in order to provide a group average for comparison with thedistrict under review. For the Richland Two study, peer school districts were chosen incollaboration with district leaders.


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The five comparison school districts for this study include:

Beaufort Berkeley Dorchester Two Richland One Rock Hill (York Three)

Our research on these districts included the aggregation of state-level data, district-level data(generally found on each districts website), and direct contact with leaders of the peer districtsto solicit additional data not available through other means. The third option is usually exercisedwhen highly specific data are necessary. Collected information was essential to an effectivestudy of Richland Two operations, and throughout the report, a number of exhibits shareRichland Two data compared to peer school district data.

On-Site Review

Evergreen consultants conducted the formal on-site audit of Richland Two during the week ofFebruary 21, 2011. Prior to conducting the on-site review, each team member was providedwith an extensive set of information about Richland Two operations, pertaining to both thedistrict as a whole and their specific area of assignment. During the on-site work, team membersconducted a detailed review of the structure and operations in their assigned areas ofresponsibility. Richland Two school facilities were visited during this on-site review; the 14schools visited included:

Windsor Elementary School Summit Parkway Middle School Spring Valley High School Muller Road Elementary Blythewood High School Blythewood Middle School Langford Elementary School Bethel-Hanberry Elementary School Richland Northeast High School Sandlapper Elementary School Longleaf Middle School Dent Middle School Joseph Keels Elementary School Kelly Mill Middle School

OVERVIEW OF THE REPORT

The final report for the Organizational Effectiveness and Efficiency Study consists of the followingten chapters:


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Chapter 1: Introduction Chapter 2: District Organization and Management Chapter 3: Educational Services Delivery Chapter 4: Financial Management Chapter 5: Human Resources Management

Chapter 6: Facilities Chapter 7: Technology Management Chapter 8: Transportation Chapter 9: Safety and Security Chapter 10: Fiscal Impact of Recommendations

Chapters 2 through 9 contain findings, commendations, and recommendations for each operationalarea, provided in the following sequence:

a description of the operation in Richland Two; a summary of Evergreens study findings; a commendation or recommendation for each finding; and estimated costs or cost savings over a five-year period which are stated in 2011 dollars.

We conclude this report with a summary of the fiscal impact of our recommendations in Chapter10, which is also included at the end of this Executive Summary.

MAJOR FINDINGS, COMMENDATIONS AND RECOMMENDATIONS

In this section we include the major findings, commendations, and recommendations for eachoperational area as found in Chapters 2 through 9 of the full report.

District Organization and Management

Leaders of school districts are typically at the forefront of decision-making processes and mustconstantly decide on actions that impact the overall direction of the district as a whole. A soundorganizational structure can assist in facilitating communications and increasing efficiency inproviding guidance. This responsibility is met with the challenge of consistently adhering topolicies and procedures to ensure decisions are made in an equitable and effective manner.Additionally, the organization and management of a school district involve cooperation betweenelected members of the school board and district administrators.

Evergreen commends Richland Two for:

maintaining a model school board, and receiving high ratings from central office andschool administrators regarding its important governance and leadership roles;

its paperless school board agenda and meeting operation; its comprehensive policy manual and making the manual available online; and multiple avenues of positive communication with its internal and external stakeholders.


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Major recommendations on District Organization and Management include:

Conduct a comprehensive review of administrative rules to determine where theseimportant procedures are missing.

Email Richland Two administrators policy updates following each Board meeting atwhich policy changes are adopted by the Board.

Reorganize the central office of Richland Two. Significantly reduce staffing at the school administrator and clerical levels. Evaluate principals and central office administrators annually. Reorganize the Planning Office and rename it the Planning and Accountability Office. Expedite plans to develop a new Strategic Plan for Richland Two. Hold legal firms accountable. Merge the public information and community relations under a Director of Public

Information and Community Relations.

Restructure the Richland Two Education Foundation.Educational Services Delivery

The educational service delivery of a school district depends on central office administrators and

staff to serve as the support system, and provide leadership and coordination for education that isprovided in the districts schools. The effectiveness of instructional delivery depends on factors suchas organization, staffing, and procedures that have been created and monitored in order to ensureconsistency of instruction and student assessment. The way in which these central office operationsare designed can either support or prevent progress towards high achievement for students.


encouraging its administrators to be active in professional organizations; consistent high percentages of students meeting or exceeding standards across all grades

in Math and English/Language Arts;

integrating technology into district meetings and communications; the depth and breadth of enriching learning experiences for its elementary gifted and

talented students;

its strong program of induction of new teachers into the district; and


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for recognizing and supporting the merits of teachers becoming accomplished to equipstudents with 21st Century skills through National Board Certification.

Major recommendations for Educational Services Delivery include:

Revise the organizational structure for the curricular and instructional offices of RichlandTwo.

More equitably allocate clerical support staff among instructional administrators. Continue the district direction of focusing on student needs to develop uniform

expectations and capacity among all teachers wherever they teach.

Systematize the use of student data for decisions regarding program and instructionaleffectiveness, staffing, and professional development.

Make program evaluation a core underpinning district actions and effectiveness. Reduce school staffing positions to levels closer to those recommended by AdvancED

and/or in line with peer district staffing, and centralize some school-based functions.

Identify and replicate successful processes, procedures, and best practices wherestandards-driven curriculum is operationalized and student performance is improving.

Expand magnet applications and alternative education assignment processes to collectdata on transportation barriers to student access to programs.

Revise the organizational structure for the Richland Two Special Education Department. Maintain staffing levels for psychologists and nurses, and move towards recommended

staffing levels for school social workers.

Establish uniform transition procedures among schools to ensure that special educationand alternative student needs are clearly communicated.

Integrate components of effective alternative programs into a district plan to strengthenthe Richland Two alternative school by more concertedly basing its staffing, instruction,and operations on best practices.

Formalize the districts approach to instructional professional development and set asideadditional time for adult learning.

Financial Management

Financial management in any school district must ensure that resources are properly aligned withdistrict goals and objectives. When this equation is balanced, school districts realize the optimumamount of success based on the resources available. With recent fluctuations in economic


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conditions, it has become even more imperative to ensure that financial management policies,procedures, and practices used foster optimized gain. The planning and budgeting process mustsupport district goals.

In addition, an effective purchasing program provides districts with quality materials, supplies,services and equipment in a timely manner at the lowest price. Proper accounting reduces therisk of lost assets and ensures their appropriate use. The district must provide the Board,administrators, and interested external stakeholders with timely, accurate, and useful reportsconcerning the districts financial condition.


receiving Certificates of Excellence for its Comprehensive Annual Financial Reports thatindicate the district is adhering to the highest standards in government accounting andfinancial reporting;

maintaining an unrestricted general fund balance of between 7 to 12 percent of the annualoperating budget which has resulted in strong bond ratings;

its safety training and awareness programs, which have significantly reduced the numberof workers compensation claims throughout the district;

requiring cafeterias to perform at least four different collection activities before turningthe account over to the central office for collections; and

its universal free breakfast program at the districts four high-poverty schools which iscost-effectively providing a nutritious breakfast to all students on those campuses.

Major recommendations in Financial Management include:

Reorganize the Business Services Division/Finance Office to focus and align functionsand create a succession plan for key finance positions, particularly those where theincumbent is eligible for retirement within the next five years.

Develop a comprehensive procedural manual to guide and institute appropriate levels ofcontrols over finance-related functions carried out by principals, bookkeepers, and otherdepartments throughout the district.

Adopt the GFOA Budgeting Standards for budget preparation, including the adoption ofa formal budget calendar, and apply for the GFOA Distinguished Budget PresentationAward.

Work with the Alio support team and the campuses to develop a way to enter all budgetsinto the accounting system at the beginning of the fiscal year.


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Reduce and consolidate the number and type of fees collected, establish an accurate anddependable system for assessing the fees, and provide online payment options to reducethe amount of cash handled by staff.

Reorganize warehouse operations and eliminate the supply function by implementingcampus-level supply ordering and delivery direct from vendors.

Implement a standard practice of requesting an annual legal review of the districtspurchasing templates, including the standard RFP template, to ensure that the districtcontinues to comply with state and federal guidelines.

Implement an automated time accounting system that has an automated interface withAlio to ensure that time worked is accurately recorded and paid for all groups andcategories of employees.

Enlist the services of a financial or investment analyst to assist Richland Two in makinginvestment decisions.

Engage the services of an actuary to determine the amount of annual contributionrequired to cover past and future workers compensation claims.

Contract with a third-party administrator to administer the districts 403 (b) Plan, andshare the cost of these services with plan participants.

Create a centralized fixed and controlled asset accounting system that not only fulfillsfinancial and accounting requirements, but also protects the district assets and enhancesaccountability.

Collaboratively develop a plan for increasing high school meal participation, including anexamination of the number and length of lunch hours.

Human Resources Management

The Human Resources function has evolved significantly in the last quarter century. As anincreased need for competitive compensation, resolving work place issues, and administeringcomplex benefits programs has emerged, human resources has changed from a once minimaltask, to a full-fledged and crucial operation. Managing a public education agency is a labor-intensive undertaking; personnel costs typically consume the largest portion of the averageschool district budget. Consequently, successful and effective school districts place a major

emphasis on human resources management.

The employees of any school district are its most valuable asset. They possess distinctiveinstitutional knowledge and experience that can be difficult and costly to replace. Therecruitment, selection, orientation, training, salary, and benefits provided to the workforcecontribute greatly to the effectiveness of the district.


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In Human Resources, Evergreen commends Richland Two for:

focusing on and delivering high quality customer service in its Human ResourcesDepartment as evidenced by Evergreen survey results;

developing a procedures manual for its human resources operations; making a commitment to transition to electronic personnel files; and the implementation of the Alio ERP for human resources.

Major recommendations on Human Resources include:

Remove the Administrative Services unit from the Human Resources Department. Terminate the relationship with the Human Resources Consultant and distribute any

related position control tasks to existing staff.

Reorganize the Human Resources Department in the context of a classification andcompensation study with the goal to flatten the organizational structure and identify anyunnecessary management titles or misclassified employees.

Develop key performance indicators, monitor performance results on a quarterly or semi-annual basis, and provide an annual report of accomplishments to the Superintendent andSchool Board for the human resources function.

Adopt a clear and well-defined administrative rule on salary supplements, and createspecific parameters for each supplement provided.

Develop a policy and administrative procedure on electronic and school-based personnelrecords that ensures security of access, confidentiality, consistency of contents, legalcompliance, and a process for purging of these personnel records.

Standardize school handbooks to ensure that they are consistent in format and content,and that they contain information which applies only to the individual school.

Develop a succession plan to ensure continuity of services in Richland Two. Review, revise, and create job class descriptions that accurately reflect Richland Two job

duties and requirements with consistent and legally defensible content and formatting.

Conduct a comprehensive compensation and classification study at least every five years. Implement a plan to phase out working retirees. Set a goal of reducing summer extra duty pay by 50 percent for teachers in the coming

fiscal year.


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Facilities

Effective facilities management inevitably leads to the success of many other functions in the schooldistrict. Useful, well-maintained, up-to-date, and cheerful learning environments can help reinforcepositive attitudes and performance by students, teachers, and administrators. In addition, theseconditions lead to a sense of pride and passion in both students and staff. Aside from these results,facilities that are optimized lead to a safe environment, as well as promote savings and revenue forthe district.


its steadfast use of a facility master planning process with a ten-year horizon and annualupdates;

its traditional commitment to soliciting input from building users during the earlyprogramming and design phases;

its detailed design standards; its excellent management of change orders, resulting in a typical performance below two

percent of construction cost;

its commitment to preventive maintenance by operating two Preventive Management(PM) Teams that have saved the district millions of dollars;

the consistent state of cleanliness in its school facilities; and its efforts to keep energy use below nationally accepted ratios and benchmarks.

Major recommendations on Facilities include:

Establish an Agency Selection Committee for the qualification-based selection ofArchitectural Engineering (A/E) and Construction Management (CM) firms.

Reduce the number of portable classrooms and replace the remaining portables with moreenergy-efficient, better-constructed units.

Change the work request process to require the generation of work orders reflectingaccurately the work that was accomplished, the time spent, and any equipment orsupplies purchased for completion.

Restructure its Community Use of Facilities policies and procedures to significantlyincrease income to the district.


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Technology

Technology is one area of a school district that supports all administrative and instructionalpersonnel, allowing employees to conduct business in a way that maximizes resource utilization.Organizing technology resources to effectively achieve this outcome can be challenging, but isessential for operational success. Accomplishing this goal not only requires optional staffing levels,but also necessary skills, tools, and leadership.


the integration of technology into the curriculum, reliable performance of majorapplications, networking infrastructure, technology standards, best practice processes,and timely infrastructure support for schools and district programs;

having a comprehensive, strategic Technology Plan that provides direction in terms ofoverall vision, action planning, monitoring progress, and focusing of efforts andresources at both the district and school levels;

having technology hardware and software standards and procurement controls/support inplace;

bringing the student and ERP systems online, at the pace this was done, and with thelevel of success as reported by users and administrators; and

using contracted services for project development and implementation support on an as-needed basis, and using staff augmentation resources effectively to provide training andsupport for specific projects.

Major recommendations on Technology include:

Restructure the current Project Leadership Team to be more proactive and involve all keystakeholders in planning for new or upgraded system implementations and integrations.

Maintain technology assignments to specific schools for longer periods (at least 3-6months), and cluster the sites to minimize mileage and travel.

Implement multi-tier technical support positions and advanced/continuing trainingincentives.

Purchase and implement a unified, comprehensive, network-based system for managinghardware and softwareincluding asset management, imaging, software and securityupdates, wired and wireless network management, desktop servicing, knowledgebase,help desk and service tracking, and energy management programs.

Relocate the Accountability and Evaluation Unit to the Planning Office and StudentAssessment to the Academics Office.


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Develop a formal, IT disaster recovery/business recovery document to provide specificguidance on steps necessary to limit the impact of a disaster.

Establish a process for re-use, re-deployment, or re-sale of computer and othertechnology equipment no longer used, but fully functioning.

Standardize SharePoint web development and templates for school, department, andservices websites, including teacher and curriculum resource/learner support websites.

Schedule IT services during the summer for start-of-school preparations and support. Create consistent districtwide teacher course websites. Provide regular training and direct access to network-based imaging and desktop

management tools, as well as access to knowledgebase documentation and HelpDesk/work order systems, to both district and school-based technology staff.

Transportation

The safe and timely transportation of students is important to every school district. However, whenfaced with budget cuts or increased ridership, it can be extremely difficult to balance these factors.When looking to increase efficiency in transportation, safety is the number one priority, followed bya strategic approach to planning routes and driver times to most cost effectively transport students toand from school. In addition, activities requiring additional transportation needs (such as field trips,athletic events, and summer school programs) must be analyzed.

Evergreen commends Richland Two Transportation for:

maintaining school bus drivers and other transportation personnel as full-time employeeswith benefits;

an innovative and responsive program enhancing activity buses and bus driveravailability to support field trips and extracurricular activities;

maintaining an excellent training and safety program for transportation employees; assigning an adequate number of students on school buses and making prudent use of

passenger seating on school buses; and

the installation and use of radios and cameras on school buses.Major recommendations on Transportation include:

Provide a more timely response to the transportation of special education students. Ensure that issues involving workers compensation are imbedded in standard operating

procedures, and provide transportation managers with the procedures for workerscompensation.


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Initiate a dialogue with the South Carolina Department of Education regarding busreplacement in Richland Two.

Examine each schools loading and unloading plan, and determine if it meets safety andefficiency standards set by the district.

Enforce pre- and post-operations maintenance checks by bus drivers at the Spring Valleyhub; emphasize the importance to conduct this required procedure and not to leave bussesrunning unattended.

Secure fuel operations and security at the Spring Valley fuel pump used by warehouseand ground support personnel.

Install oil-water separators at all three vehicle parking hub facilities. Improve student discipline on school buses.

Safety and Security

Maintaining school safety and security has unfortunately become an increasingly complicatedpart of school operations. Traditionally, most school safety actions involve surrounding schoolswith fences to create safe zones and creating alternative education programs for violent ordisruptive students. However, in todays environment, school districts need a morecomprehensive approach that involves awareness, prevention and intervention, and recognizesschool violence as part of a community problem that requires community involvement.Recognizing this, more opportunities and resources than ever exist to supplement and improveschool safety. School leaders must look to these resources to maximize campus safety whileensuring that an appropriate level of student privacy is maintained.


its design and operation of a highly effective safety program; installing and maintaining cameras in its schools and school grounds, and improving its

inventory of cameras;

using its state-of-the-art entry screening technology; the pro-active security at large sporting events attracting many students and visitors from

other districts; and

maintaining a Security Officer Program to keep schools secure and safe.Major recommendations on Safety and Security include:

Expand the Safety Officers position to full-time status and prepare a succession plan.


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E v e r g r e e n S o l u t i o n s , L L C Page xvii

Train all building users to be safety conscious. Install intrusion and fire alarms in portables. Apply for grant funds to help fund new surveillance technologies and police personnel. Secure and alarm secondary exterior doors at all schools, or reconfigure side and back

doors if they are used as major access and egress points to match the existing front doorsecurity.

Reconfigure the Support Service Center lobby to create a secure entry with a screeningdevice identical to those found in schools.

Outsource security services to a private security company. Identify specific needs and reasons for non-uniformity in emergency responses at certain

school locations in the next update of the Richland Two Emergency Plan.

FISCAL IMPACT

Based on the analyses of data obtained from interviews, surveys, community input, Richland Twodocuments, and first-hand observations, the Evergreen Team developed 161 recommendations inthis report; 59 recommendations have fiscal implications.

Exhibit 2 shows the total costs and savings summary for all study recommendations that have afiscal impact. As can be seen, the total net savings is about $57.3 million over five years.

The five-year costs and savings are shown in 2011 dollars. It is important to keep in mind thatthe identified savings and costs are incremental.

Exhibit 2Summary of Annual Costs and Savings by Year

Over Five Years Recommendations

Costs/Savings

YearsTotal 5-

Year(Costs) orSavings

One-Time(Costs) orSavings

2011-12 2012-13 2013-14 2014-15 2015-16

TOTAL COSTS ($500,986) ($771,901) ($1,052,816) ($2,243,731) ($2,475,463) ($7,044,897) ($546,500)

TOTAL SAVINGS $9,362,875 $12,722,432 $13,668,957 $14,086,815 $14,796,532 $64,637,611 $214,000

TOTAL NET SAVINGS $8,861,889 $11,950,531 $12,616,141 $11,843,084 $12,321,069 $57,592,714 ($332,500)

TOTAL FIVE-YEAR NET SAVINGS MINUS ONE-TIME COSTS $57,260,214


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CHAPTER 1:

INTRODUCTION


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E v e r g r e e n S o l u t i o n s , L L C Page 1-1

1.0 INTRODUCTION

Evergreen Solutions, LLC, was retained by the Richland Two School District to complete anOrganizational Effectiveness and Efficiency Study beginning in January 2011. The study

included a comprehensive analysis of instructional programs and non-instructional operationswith the overall goal of identifying areas for improvement in efficiency and effectiveness. InMarch 2011, Evergreen Solutions presented the findings and recommendations contained in thereport to Richland Two School District.

Richland Two consists of 36 schools and centers, enrolling over 25,000 students. Over 2,000staff support the district in carrying out day-to-day activities. The districts total general fundbudget for FY 2011 is $191 million.

1.1 SCOPE OF THE STUDY

The comprehensive Organizational Effectiveness and Efficiency Study conducted at Richland TwoSchool District included review of the following eight functional areas:

District Administration Instruction Finance Personnel and Human Resources Management Facilities Technology Management Transportation Safety and Security

For each function, Evergreen was tasked with identifying areas for improvement in efficiency andeffectiveness through careful review of available data, benchmarking, interviews, and surveyfeedback. Further explanation on the methodology used can be found in the following section.

1.2 METHODOLOGY

Evergreens approach methodology for conducting this organizational study included the followingsteps:

reviewing existing reports and data sourcesincluding independent financial audits,annual budget and expenditure reports, budget guidelines and procedures, accountingprocedures, salary schedules, organizational charts, staffing ratios, board policies, strategicplan, technology plan, facilities data, safety and security data, transportation data, studentachievement data, and annual performance reports;

conducting surveys with Richland Two employees, including central office administrators,school administrators, and teachers;


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Introduction Richland Two Effectiveness and Efficiency Study


generating comparisons to peer school districtsthe peer group of South Carolina schooldistricts included:

- Beaufort- Berkeley-

Dorchester Two- Richland One- Rock Hill (York Three)

conducting a diagnostic review and interviews with board members, the Richland TwoSuperintendent, and other Richland Two administrators and staff;

providing a channel for members of the community to provide input; collecting additional reports and data from sources inside and outside Richland Two; conducting the formal on-site review with a team of seven consultants; and preparing draft and final reports.

Diagnostic Review

A diagnostic review of Richland Two School District was conducted in the second week ofFebruary 2011. Evergreen consultants interviewed central office administrators and boardmembers concerning the management and operations of the district.

On-Site Review

A team of seven consultants conducted the formal on-site review of Richland Two School

District during the week of February 20, 2011.* Prior to conducting the on-site review, eachteam member was provided with an extensive set of information about Richland Two operations.During the on-site work, team members conducted a detailed review of the structure andoperations in their assigned functional areas.

In addition to central office locations, Evergreen visited 14 Richland Two schools during this on-site review, including:

Bethel-Hanberry Elementary School Blythewood High School Blythewood Middle School Dent Middle School Joseph Keels Elementary School Kelly Mill Middle School Langford Elementary School Longleaf Middle School

*one consultant conducted the review early in February.


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Introduction Richland Two Effectiveness and Efficiency Study


Muller Road Elementary Richland Northeast High School Sandlapper Elementary School Spring Valley High School Summit Parkway Middle School Windsor Elementary School

1.3 OVERVIEW OF THE REPORT

The final report for this study consists of the following 10 chapters:

Chapter 1: Introduction Chapter 2: District Organization and Management Chapter 3: Educational Services Delivery Chapter 4: Financial Management Chapter 5: Human Resources Management Chapter 6: Facilities Chapter 7: Technology Management Chapter 8: Transportation Chapter 9: Safety and Security Chapter 10: Fiscal Impact of Recommendations

Chapters 2 through 9 contain findings, commendations, and recommendations for specificoperational areas, and are organized in the following sequence:

a description of the operation in the Richland Two; a summary of our study findings; a commendation or recommendation for each finding; and estimated costs or cost savings over a five-year period which are stated in 2011 dollars.


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CHAPTER 2:

DISTRICT ORGANIZATION AND MANAGEMENT


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2.0 DISTRICT ORGANIZATION AND MANAGEMENT

This chapter reviews the staffing, organization, and management of Richland School DistrictTwo, and includes seven major sections:

2.1 Governance and Board Issues2.2 Policies and Procedures2.3 District Organization and Management2.4 School Management and Staffing2.5 Planning2.6 Legal Services2.7 Public Information and Community Relations

2.1 GOVERNANCE AND BOARD ISSUES

Local school boards have traditionally governed public education in the United States withauthority vested in them by the state. From the mid 1800s through the early 1900s, the numberof school boards increased dramatically. The last major reform of school boards involved a shiftto smaller elected school boards comprised of community members with a professionalsuperintendent as the CEO. There are approximately 95,000 school board members on 15,000local boards across the nation. Most boards have five to seven members. Eighty (80) percent ofschool districts across the country have fewer than 3,000 students.

In a widely cited report (entitled Recommendations for 21st Century School Board/Superintendent Leadership, Governance and Teamwork for High School Achievement),Goodman and Zimmerman found that school districts with quality governance had, among other

things:

a focus on student achievement and policy making; effective management without micromanagement; a trusting and collaborative relationship with the superintendent; a yearly evaluation of the superintendent, according to mutually agreed upon goals and

procedures;

governance retreats for evaluation and goal setting; long-term service of board members and the superintendent; and a budget that provides needed resources.


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District Organization and Management Richland Two Effectiveness and Efficiency Study


As stated in the Richland Two Policy Manual,

The law of the state requires district boards to discharge certain duties and confers upon

them many legislative, judicial and executive powers including the following (statutory

references to sections of the S.C. Code, 1976, as amended).

Legislative (rule-making powers)- General: Boards...may prescribe such rules and regulations not inconsistent with

the law as they deem necessary or advisable. (59-19-110)

- Specific: The board shall promulgate rules prescribing the scholastic standards ofachievement and standards of conduct and behavior that must be met by all pupils

as a condition to the right of the such pupils to attend the public schools. (59-19-

90[3])

Judicial powersThe board may conduct hearings to delegate this power to one or more members

who will report to the board. (59-19-110)

Executive powersIn the executive area, the board's powers include, but are limited to the following:

- managing and controlling the district, subject to legal requirements (59-19-90[7]);

- controlling the educational interests of the district, with the right to operate or notoperate any school or schools (59-19-90[7]);

- suspending or dismissing pupils when the best interest of the schools makes itnecessary (59-19-90[3]);

- transferring and assigning pupils (59-19-90[9]);- prescribing conditions of attendance for children not meeting eligibility

requirements, subjects to certain conditions (59-19-90[10]);

- providing school-age child care programs or facilities (59-19-90[11]);- controlling school property of the district (59-19-90[5]);- acquiring land by condemnation (59-19-180, 59-19-200);- providing suitable school houses (59-19-90[1]); and- selling or leasing school property, with a report to county board or county

council (59-19-250).


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The School Board has four major goals relating to the governance of Richland Two (as stated inthe Richland Two Board Policy Manual):

Setting the long-range vision (examples include strategic planning, budget planning,other planning procedures such as facilities planning or curriculum audit, inclusion of

all community groups, and taking proactive stance for education).

Establishing the basic structure (examples include personnel, quality of staffing andstaffing patterns, budget development, curriculum and instruction, appropriate

environment such as facilities and behaviors, and district operations).

Ensuring accountability (examples include budget; legal requirements; studentperformance; community/parental involvement; community/parental support; dealing

with pressure groups; recognizing the difference between private citizen and public

official role/responsibility; working together as an effective team; and evaluating all

aspects of district including the board, superintendent, staff, student and community).

Engaging in advocacy (examples include working with elected and appointed officials;cooperating with agencies serving children; being advocates for children; and promoting

the value of public education with business, retired persons, and other groups).

FINDING

The Richland Two Board of Trustees is comprised of seven members. As can be seen in Exhibit2-1, five of the seven board members have served for five years or more; the range in tenure ofboard members is from less than a year to over 20 years.

Exhibit 2-1

Members, Board of TrusteesRichland School District Two2010-11 School Year

School Board MemberPosition on

School Board ProfessionYear First

Elected

CurrentTerm

Expires

Melinda Anderson, R.N. Member Retired Nurse 1990 2014

Susan A. Brill Member Former County CouncilMember

2006 2012

Stephanie Burgess, Ph.D. Chair USC Faculty 2004 2012

William Flemming, Jr., D.M.D. Member Dentist 1994 2014

Calvin "Chip" Jackson Vice Chair Retired Educator 2008 2012

James Manning, M.A.T. Member IT Network SecurityAdministrator

2010 2014

Barbara Specter Secretary Marketing for SouthernWesleyan University

2002 2014

Source: Created by Evergreen Solutions, 2011.


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The Superintendent, in consultation with the Board Chairman and Vice Chairman, develops anagenda and background information for each meeting. This information is provided to Boardmembers on the Friday before the Tuesday Board meeting. Meetings are held twice a month onthe second and fourth Tuesday of the month commencing at 6:00 p.m. The public is welcome toattend, and there is time on the agenda for citizen comments.

Richland Two Board members are well-informed and highly regarded by the school staff andcommunity. Survey results indicate that Board members receive high marks when compared tosurvey respondents in other school districts.

84 percent of Richland Two principals/assistant principals agree with the statement thatschool board members know and understand the operations of the school district,compared to fewer than 61 percent in the comparison group of building administrators.

81 percent of Richland Two central office administrators agree with the statement thatschool board members know and understand the operations of the school district,compared to fewer than 72 percent of the comparison group of central office

administrators.

These results were reinforced in Evergreen consultant interviews in Richland Two. Commentsincluded the following:

The Board does not micromanage. The Richland Two Board of Trustees is a model school board for others to emulate. The Board is trustworthy and honest. The School Board is supportive of administrators. The School Board has no political agenda.

As stated in Board Policy BBAA:

Because all powers of the board of trustees lie in its action as a group. Individual board

members exercise their authority over district affairs only as they vote to take action at a

legal meeting of the board.

In other instances, an individual board member, including the chairman, will have power

only when the board, by vote, has delegated authority to him/her. The board will not be

bound in any way by any action or statement on the part of any individual board member not

delegated that authority by the board.

The board and its members will deal with administrative services through the superintendent

and will not give orders to any subordinates of the superintendent either publicly orprivately, but may make suggestions and recommendations.

The board will make its members, the district staff and the public aware through its actions

and policies that only the board acting as a whole has authority to take official action.


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Policy BC further states that it is the responsibility of each Board member to:

become familiar with district policies, rules and regulations, state and federal schoollaws, and regulations of the state department of education;

have a general knowledge of educational aims and objectives of the district; work harmoniously with other board members without trying either to dominate the

board or neglect one's share of the work;

vote and act in the board meetings impartially for the good for the district; accept the will of the majority vote in all cases and give wholehearted support to the

resulting policy;

represent the board and district to the public in such a way as to promote both interestand support; and

refer complaints to the proper school authorities and abstain from individual counsel andaction.

The Richland Two School Board fully complies with its roles and responsibilities as stated in itspolicy manual and commensurate with best practice standards for boards of education.

COMMENDATION

The Richland Two Board of Trustees is commended for being a model school board,receiving high ratings from central office and school administrators regarding itsimportant governance and leadership roles.

FINDING

Richland Two is the first school district in which Evergreen consultants have found the Boardmeetings and agenda are completely paperless.

Richland Two usesElectronic School Board Perpetual as its electronic software system for theBoard. The district maintains the following modules:

agenda manager; meeting manager; closed session manager; and virtual board packet.

The use of this software has saved the district significant dollars in printing and mailing costs.


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COMMENDATION

Richland Two is commended for its paperless school board agenda and meeting operation.

FINDING

School board meetings are rotated among schools. This best practice enables schools toshowcase exemplary programs. This practice also enables parents to attend Board meetingslocated in geographic proximately to their childrens schools, and the public to attend meetingscloser to home.

COMMENDATION

The Richland Two School Board conducts board meetings in schools throughout thedistrict.

FINDING

Richland Two convey background information to the Board through the use of a cover pagewhich is part of the Boards software package. This cover page is displayed in Exhibit 2-2.Evergreens review of several agenda items found that two important aspects are rarelycompleted on this cover page: the funding and strategic plan components.

RECOMMENDATION

Recommendation 2-1:

Complete the cover page for each meeting agenda item requiring Board action.

Senior administrators are not providing important information to the Board for ActionRequested items. Most critical among these are information on funding source and linkage tothe districts strategic plan. Such information is critical so that the Board has all the information,including fiscal data, needed to support the action it is being asked to take.

FISCAL IMPACT

This recommendation can be implemented with existing resources.

2.2 POLICIES AND PROCEDURES

All states require school boards to develop policies to ensure the efficient operation of schooldistricts. Commonly, policies are drafted by staff and adopted by the school board at a publicmeeting.


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Exhibit 2-2Example Richland Two Cover Page

for Board Materials Package

Source: Richland School District Two, 2011

Policies reflect the rules that govern the implementation of district operations. Administrativeprocedures or regulations, on the other hand, relate to the implementation of Board policies. Asnew processes change over time, so should Board policies and administrative procedures (rules).Policies and procedures must be continually reviewed for currency, accuracy, andappropriateness.

There is a definite distinction between governing the school district and administering its dailyactivities. While school boards are ultimately responsible for major decisions concerning the

school district, they employ a professional staff of administrators (led by the schoolsuperintendent) to manage day-to-day functions.

The National School Boards Associations (NSBA) definition includes the following statement:

Like Congress, state legislatures, and city or county councils, school boards establish

the direction and structure of their school districts by adopting policies through the


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authority granted by state legislatures. Policies are the means by which educators

are accountable to the public.

NSBA provides the following distinction between board policies and administrativeprocedures/regulations/rules.

Policies are principles adopted by the board to chart a course of action. They tell

what is and may include why and how much. They are broad enough to indicate a

line of action to be taken by the administration in meeting a number of day-to-day

problems; they need to be narrow enough to give the administration clear guidance.

Regulations (or administrative rules) are the detailed directions developed by the

administration to put the boards policy into practice. They tell how, by whom,

where, and when things are to be done. Often the state and federal governments

require school boards to make detailed rules. Included in this category would be

federally funded programs, such as Title I.

Policies and procedures are an important vehicle for communicating expectations to students andemployees. In addition, policies and procedures provide a way to:

establish a distinction between board policymaking and procedures development by theadministration;

provide guidelines for personnel and students to use; provide some assurance of consistency and continuity in decision making by staff; help orient board members and employees to the school district; and assist the general public in understanding how decisions are made.

Board policies are an important tool for a school board, and they should be stated clearly enoughto provide appropriate direction to staff.

FINDING

In Richland Two, Policy BG/BGD establishes the basic structure for the development of policyby the Board of Trustees.

This policy on the creation of policies states:

The board considers policy development one of its chief functions. The board will develop

written policies to serve as guidelines for its own operations and for the successful and

efficient functioning of the public schools. Written policies are guides for the discretionary

action of those to whom the board delegates authority and are a source of information and

guidance for all those who are interested in and affected by the district schools.


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Proposals regarding policies may originate with a member of the board, the superintendent,

a staff member, parent, student, consultant, civic group, advisory committee or any resident

of the district. The board will use a careful and orderly process in examining such proposals

prior to action upon them by the board.

The board will continually study and evaluate the written policies and the reports concerning

the execution of its written policies to determine the adequacy and effectiveness of those

policies. Changes in needs, conditions, purposes and objectives will require revisions,

deletions and additions to the policies of present and future boards.

Each proposed policy will require two readings at regular meetings of the board. The formal

adoption of the policies will be recorded in the minutes of the board. Only those written

statements so adopted and so recorded will be regarded as official board policy.

The Richland Two Board Policy Manual is organized according to the classification systemdeveloped by the National Education Policy Network for the National School BoardsAssociation. This classification system has been adopted by the South Carolina School Boards

Association. The system provides an efficient means for coding, filing and finding boardpolicies, administrative rules and other documents. The Policy Manual addresses the provisionsspecified in state code.

There are 12 major classifications, each bearing an alphabetical code. These are listed below:

A. Foundations and Basic CommitmentsB. School Board Governance and OperationsC. General School AdministrationD. Fiscal ManagementE. Support ServicesF. Facilities Planning and DevelopmentG. PersonnelH. Negotiations (no policies used in S.C. manuals)I. InstructionalJ. StudentsK. School-Community-Home RelationsL. Education Agency Relations

The coordination of policy development in Richland Two is managed through the Office of theDeputy Superintendent.

The Richland Two Policy Manual was completely revised, in a comprehensive manner, andadopted by the Board in March 2003. The South Carolina School Board Association (SCSBA)provided and continues to provide this service to Richland Two. Since 2003, the manual hasbeen updated on a regular basis, using SCSBA as a source.

A review of board agenda minutes found that policies are routinely revised and adopted at boardmeetings. In addition, as needed, new policies are added. For example, five policies werepresented for a first reading at the February 22, 2011 Board meeting. These include:


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AC (Nondiscrimination/Equal Opportunity); JB (Equal Educational Opportunity/ Nondiscrimination); JFAA (Admission of Resident Students); JI (Student Rights and Responsibilities); and JII (Student Concerns, Complaints and Grievance).

After the Board meeting at which new or revised policies are presented for the first reading, theyare then usually adopted by the Board at the following meeting. Following adoption, the new/revised policy is placed on the Richland Two website.

While the manual is comprehensive, a few policies need to be revised (i.e., use of a 2003organizational chart).

Some policies have administrative rules (yellow pages; coded as R) within the policy manual(see Recommendations 2-2 and 2-3).

COMMENDATION

The Richland School District Two is commended for its comprehensive policy manual, andfor making the manual available online.

FINDING

The Richland Two Board Policy Manual has many policies that require consistent regulationsand/or guidelines for administrators to use during the implementation of the policy. As stated,there are some administrative rules incorporated into the Richland Two Board Policy Manual asyellow pages and labeled R. However, the user must read through a comprehensive manual tofind these administrative rules, which can be a time-consuming task. Exhibit 2-3 shows a list of

these rules which was prepared for Evergreen by the Office of the Deputy Superintendent. Thislist is not contained in the policy manual, yet should be.

While effective administrative rules are in use, and while some departments have developed theirown procedures, there is no central listing of these administrative procedures or rules. As stated,a central listing of these documents would also be helpful.

SB Policy BG-BGD addresses the review of administrative rules by the Board. This part of thepolicy states:

Often policies of the board are accomplished by rules and exhibits and are referred to as

administrative rules. These rules are generally drawn up by the administration to execute

the policies of the board.

The board will approve administrative rules when such approval is required by law or

otherwise advisable. The superintendent will have freedom, however, to issue additionalrules and procedures consistent with board policies.

The board may nullify any administrative rules determined to be inconsistent with the

policies adopted by the board.


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Exhibit 2-3Administrative Rules for Richland School District Two

Section A

ADA-R School District Goals and ObjectivesADF-R School Wellness

Section B

BDF-R Advisory CommitteesBDG-R School Attorney/Legal Services

Section D

DI-R Fiscal Accounting and ReportingDIE-R Audits/Financial MonitoringDKC-R Expense Authorization Reimbursement

Section E

EBAB-R Acceptable Use of PesticidesECA-R SecurityEGAD-R Copyright Compliance

Section FFF-R Naming New Facilities

Section G

GBAA-R Sexual Discrimination and Harassment

GBEC-R Drug-Free SchoolsGBGA-R Staff HealthGBGAA-R MedicinesGBK-R Complaints and GrievancesGCC/GDC-R Employee Personal Leaves & AbsencesGCK-R Professional Staff Assignments & TransfersGCOA-R Evaluation of Instructional StaffGCQF-R Discipline, Suspension & Dismissal of

Professional StaffGDBC-R Support Staff Supplementary Pay/OvertimeGDJ-R Support Staff Assignments and Transfers

Section I

IHBG-R Home SchoolingIHBIB-R Primary/Pre-Primary EducationIHCD-R Advanced College PlacementIJJ-R Textbook Selection & AdoptionIJND-R Electronic Communications & Data

ManagementIJOA-R School-Sponsored Field StudiesIJOC-R School VolunteersIKA-R Grading/Assessment SystemsIKF-R Graduation RequirementsILB-R Test/Assessment AdministrationILBB-R State Program Assessments

Section J

JEB-R Entrance AgeJFAA-R Admission of Resident StudentsJFAB-R Non-Resident StudentsJFABD-R Admission of Homeless StudentsJH-R Student Absences & ExcusesJI-R Student Rights and ResponsibilitiesJICA-R Student DressJICDA-R Code of ConductJICFAA-R Harassment, Intimidation or BullyingJICH-R Drug & Alcohol Use by StudentsJIH-R Student Interrogations & Searches

JIHC-R Use of Metal DetectorsJJ-R Student ActivitiesJJE-R Student Fund-Raising ActivitiesJKD-R Suspension of StudentsJKE-R Expulsion of StudentsJKEE*-R Urinalysis Drug & Alcohol Testing for

Certain Expelled StudentsJLCC-R Communicable/Infectious DiseasesJLCD-R Assisting Students with MedicinesJRA-R Student Records

Section K

KD-R Public Information & Communication

KEC-R Public Concerns & Complaints AboutInstructional Resources

KF-R Community Use of School & DistrictFacilities

Source: Office of the Deputy Superintendent, 2011.


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RECOMMENDATIONS

Recommendation 2-2:

Conduct a comprehensive review of administrative rules to determine where theseimportant procedures are missing.

The administrative rules shown in Exhibit 2-3 are an important first step to the process ofcreating necessary administrative rules/procedures. Throughout this report, reference will bemade to additional administrative rules/procedures which do not exist, and which are consideredcritical for the effective implementation of Board policies for many programs and operations.

Recommendation 2-3:

Develop a comprehensive Administrative Procedures (Rules) Manual that containsadministrative rules, and which can be used by school and central office administrators to

ensure consistency in implementation by Richland Two employees.

The Administrative Rules Manual can remain a part of the policy manual (with a clear index) orbe a separate document. The Rules Manual should include information that reflects variousboard policies and appropriate departmental procedures which have been developed toimplement board policy. The manual would be an important reference tool that would be readilyaccessible to administrators.

Sections should include, but are not limited to the following:

General Information Instruction Records Management Student Services Special Education Health Services Financial Procedures Technology Human Resources Transportation Maintenance Food Services

The Rules Manual should be cross-referenced to board policy and also available online.

FISCAL IMPACT



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FINDING

Following Board approval of new and revised policies, there is no formal nor consistent processin place to inform central office and school administrators that policy updates have been adoptedby the Board. Therefore, unless an administrator attends the Board meeting or reads Boardminutes, he/she would not be aware of important changes in Board policy.

The changes are merely put online by the Deputy Superintendents Office.

RECOMMENDATION

Recommendation 2-4:

Email Richland Two administrators of policy updates following each Board meeting atwhich policy changes are adopted by the Board.

Effective communication of changes in Board policy is essential to ensure that district managers

are aware of the need to implement policy changes, and also to alert managers to any neededchange in administrative rules as the result of policy changes.

FISCAL IMPACT


2.3 DISTRICT ORGANIZATION AND MANAGEMENT

The organizational structure and management system of a large public school district are keyfactors in determining the districts ability to meet its goals and to operate in an effective and

efficient manner. An effective organizational structure systematically arranges the functionalareas of the school district in a manner that supports the mission and goals of the local educationagency. A successful organization has the capacity to alter its structure to meet the changing

needs of its customers. The management system of a organizationincluding the ability to makeinformed decisions, communicate effectively, and provide appropriate planning and

accountability functionsultimately determines the extent to which the school district cansuccessfully carry out its mission and accomplish its goals.

The development and maintenance of an effective organizational structure for a large schooldistrict is a formidable task. Fundamentally, an organizational structure is a support system,designed to facilitate the primary mission of the district and sustain its efforts to accomplish its

goals. To the extent that the mission of the school district does not drive its organizationalstructure, the support system is weakened, and consequently the organization's ability toaccomplish its primary mission is compromised.

A large school district, like any big organization, is often bureaucratic and subject to the inertiacreated by tradition and size. In many instances, the organizational structure of the systemevolves based more upon tradition and the special interests of the Superintendent, rather thanbeing developed systematically. Often times, little organizational analysis is done and the school


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district continues, in large part, to resemble its predecessors. Nonetheless, to maintaineffectiveness, a school district must continue to focus its energy on the needs of its students andconstantly adapt the organization to serve student needs.

While maintaining an effective organizational structure is a challenging task, the end results canyield enormous benefits for the system, the schools, and the students that the system supports. AsCarter McNamara said inBasic Context For Organizational Change, Typically, organizationsmust undertake organization-wide change to evolve to a different level in their life cycle.

FINDING

The timing is right for organizational change in Richland Two. A new Superintendent is at thehelm after over 16 years of service by the previous Superintendent. Since July 2010, Dr. Brochuhas been carefully studying the organizational structure to determine where change might bewarranted.

The current organizational structure of Richland Two, and the structure inherited by Dr. Brochu,

reflect a traditional pyramidal organization, often characteristic of medium to large schooldistricts. Executive and administrative functions are organized into line and staff relationshipsbased on the major functions of the organization as shown in Exhibit 2-4. Authority emanatesfrom the Superintendent and flows down through departments, divisions, and sections. As canbe seen in the exhibit, the current executive level of the school district is comprised of a deputysuperintendent and five chiefs.

As the chief executive officer, the Superintendent is responsible for providing leadership andoverall management of the school district. The Superintendent, in keeping with her role as theschool districts chief executive, spends a considerable amount of time promoting the system'sgoals, programs, and initiatives with a wide variety of community organizations and municipal

officials. Her visibility and participation in the broader school community are well received bythe public and school employees.

Evergreen consultants found, in reviewing the senior staffing structure of Richland Twoexecutive management with specific reference to the number of senior managers who superviseand oversee departments, that the senior staffing level is not excessive and compares favorably toother school districts of comparable size that Evergreen has studied.

Exhibit 2-4, depicting the current organizational structure of Richland Two, shows that:

The Superintendent has nine direct administrative reports including the Deputy, PublicInformation Officer, an Assistant to the Superintendent, an Internal Analyst, and fivechiefs.

The current org

Study: Richland District 2 Organizational Effectiveness

Documents

Transcript of Study: Richland District 2 Organizational Effectiveness