FCMAT
Lassen County Office of Education Report
fiscal review of the Westwood Unified School District
Read the report at Lassen County Office of Education ↗
Lassen County Office of Education
regarding the
Westwood Unified School District
Fiscal Review
April 24, 2009
Joel D. Montero
Chief Executive Officer
Fiscal Crisis & Management Assistance Team
April 24, 2009
Jud B. Jensen, Superintendent of Schools
Lassen County Office of Education
472-013 Johnstonville Road, North
Susanville, California 96130-8752
Dear Superintendent Jensen:
In October 2008, the Fiscal Crisis and Management Assistance Team (FCMAT) entered into
an agreement for a fiscal review with the Lassen County Office of Education regarding the
Westwood Unified School District. The study agreement specified that FCMAT would:
1. Assist the district with the year-end closing of the 2007-08 financial transactions, for
all funds.
2. Conduct a review of the district’s 2008-09 adoption budget and prepare a multiyear
financial projection of the general fund for 2009-10 and 2010-11 using FCMAT’s
Budget Explorer software.
3. Prepare a multiyear cash flow projection for the current and first subsequent year to
verify future cash shortfall amounts.
The attached final report contains the study team’s findings with regard to the above areas of
review. We appreciate the opportunity to serve you, and we extend our thanks to the staffs of
the Lassen County Office of Education and the Westwood Unified School District.
Sincerely,
Joel D. Montero
Chief Executive Officer
FCMAT
Joel D. Montero, Chief Executive Officer
. .
1300 17th Street - CITY CENTRE, Bakersfield, CA 93
.
301-4533 Telephone 661-6
.
36-4611 Fax 661-63
.
6-4647
422 Petaluma Blvd North, Suite. C, Petaluma, CA 94952 Telephone: 707-775-2850 Fax: 707-775-2854 www.fcmat.org
Administrative Agent: Larry E. Reider - Office of Kern County Superintendent of Schools
Fiscal Crisis & Management Assistance Team
TABLE OF CONTENTS i
Table of Contents
Foreword ...........................................................................iii
Introduction ...................................................................... 1
Executive Summary ......................................................... 3
Findings and Recommendations ................................... 9
Multiyear Financial Projection........................................................................................................9
Fiscal Health Risk Analysis ............................................................................................................41
Cash Management ............................................................................................................................51
Update per February 2009 State Budget ..........................................................................55
Appendices ......................................................................63
FOREWORD iii
Foreword - FCMAT Background
The Fiscal Crisis and Management Assistance Team (FCMAT) was created by legislation
in accordance with Assembly Bill 1200 in 1992 as a service to assist local educational
agencies (LEAs) in complying with fiscal accountability standards.
AB 1200 was established from a need to ensure that LEAs throughout California were
adequately prepared to meet and sustain their financial obligations. AB 1200 is also a statewide
plan for county offices of education and school districts to work together on a local level to
improve fiscal procedures and accountability standards. The legislation expanded the role of the
county office in monitoring school districts under certain fiscal constraints to ensure these dis-
tricts could meet their financial commitments on a multiyear basis. AB 2756 provides specific
responsibilities to FCMAT with regard to districts that have received emergency state loans.
These include comprehensive assessments in five major operational areas and periodic reports
that identify the district’s progress on the improvement plans.
In January 2006, SB 430 (charter schools) and AB 1366 (community colleges) became law and
expanded FCMAT’s services to those types of LEAs.
Since 1992, FCMAT has been engaged to perform nearly 750 reviews for local educational
agencies, including school districts, county offices of education, charter schools and community
colleges. Services range from fiscal crisis intervention to management review and assistance.
FCMAT also provides professional development training. The Kern County Superintendent of
Schools is the administrative agent for FCMAT. The agency is guided under the leadership of
Joel D. Montero, Chief Executive Officer, with funding derived through appropriations in the
state budget and a modest fee schedule for charges to requesting agencies.
Study Agreements by Fiscal Year
80
70
60
50
40
30
20
10
0
92/93 93/94 94/95 95/96 96/97 97/98 98/99 99/00 00/01 01/02 02/03 03/04 04/05 05/06 06/07 07/08 08/09
Projected
Total Number of Studies....................743
Total Number of Districts in CA ..........982
Management Assistance.............................705 (94.886%)
Fiscal Crisis/Emergency ................................38 (5.114%)
Note: Some districts had multiple studies.
Districts (7) that have received emergency loans from the state.
(Rev. 1/22/09)
Lassen County Office of Education re: Westwood Unified School District
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Fiscal Crisis & Management Assistance Team
INTRODUCTION 1
Introduction
Background
The Westwood Unified School District is a rural school district nestled between the
Cascade Mountain Range and the Sierra Nevada Mountain Range in Lassen County. The
town of Westwood has one K-12 school district with an enrollment of approximately 292
students, and one independent charter school. The district is governed by a five-member
board.
The district consists of one elementary/middle school and one high school. It also oper-
ates a continuation high school and offers ROP and Opportunity classes funded primarily
from the Lassen County Office of Education. The Lassen COE supports the cost of the
ROP and Opportunity programs. The district supports facility, utility and supply costs.
On October 22, 2008, the Lassen COE contracted with FCMAT to conduct a review of
specific financial issues concerning the district following a disapproved adopted budget
report. The study agreement states that FCMAT will do the following:
1. Assist the district with the year-end closing of the 2007-08 financial transactions
for all funds.
2. Conduct a review of the district’s 2008-09 adoption budget and prepare a mul-
tiyear financial projection of the general fund for 2009-10 and 2010-11 using
FCMAT’s Budget Explorer software.
3. Prepare a multiyear cash flow projection for the current and first subsequent year
to verify future cash shortfall amounts.
Study Guidelines
FCMAT representatives visited the district in November and December 2008 to conduct
interviews, collect data and review documents. This report is the result of those activities.
After the initial fieldwork, the team determined that the key data sets for payroll, health
care benefits and retiree costs that were uploaded to the MYFP were incorrect. As a
result of this and delays in receiving correct information from the district, the MYFP was
updated several times to incorporate these changes. The team also calculated the effects
of the amended state budget signed on February 20, 2009, and updated the MYFP accord-
ingly.
To complete this study, FCMAT obtained the district’s financial data and information at
periodic intervals. In addition, the team reviewed the data processing system, which is
QSS. The expertise of the business office staff members and their ability to utilize exist-
ing technology in their work assignments also was reviewed.
Lassen County Office of Education re: Westwood Unified School District
2 INTRODUCTION
Study Team
The FCMAT study team was composed of the following members:
Deborah Deal Lynn Kamph
Fiscal Intervention Specialist FCMAT Consultant
Fiscal Crisis and Management Chico, California
Assistance Team
Los Angeles, California Laura Haywood
Public Information Specialist
Fiscal Crisis and Management
Assistance Team
Bakersfield, California
Fiscal Crisis & Management Assistance Team
EXECUTIVE SUMMARY 3
Executive Summary
On September 10, 2008, the Lassen County Office of Education disapproved the
Westwood Unified School District‘s adopted budget for 2008-09. This action was taken
in accordance with Education Code sections 42127, 42127 (c)(1) and 42127 (c)(2),
because the district had not closed the books for the previous fiscal year, had unreason-
able and/or unrealizable budget assumptions, and was unable to demonstrate its ability to
meet financial obligations for the 2008-09 and subsequent two fiscal years.
The Lassen COE requested the district to revise its 2008-09 budget and multiyear projec-
tion and develop a recovery plan that would ensure that the district could meet its finan-
cial obligations for the current and two subsequent years. The Lassen COE also asked the
district to expedite the closing of its 2007-08 books to more accurately reflect the 2007-
08 ending fund balance, and to submit this information no later than October 15, 2008.
On October 15, 2008, the district’s Board of Trustees approved and submitted a revised
2008-09 budget and multiyear projection, which was disapproved by the Lassen COE on
October 22, 2008.
By mutual agreement, the district and Lassen COE agreed to have School Services of
California conduct an independent review of the district’s budget and make recom-
mendations. School Services’ assessment concluded that the district’s financial situation
was very serious. In accordance with Education Code section 42127.1, Lassen COE, the
district, and the Superintendent of Public Instruction agreed to waive the formation of a
budget review committee and request assistance from the Fiscal Crisis and Management
Assistance Team (FCMAT) under Education Code section 42127.3. FCMAT’s scope of
work included closing the 2007-08 books, revising the 2008-09 fiscal year budget and
preparing a multiyear projection, assessing the district’s fiscal and budgetary condition,
and developing a fiscal recovery plan.
The district’s current financial status and multiyear budget assumptions indicate that the
district will have a negative fund balance for the current and two subsequent fiscal years
and will not meet the 5% required reserve level without a detailed plan to reduce expen-
ditures and cease deficit spending. The board, administration and community should iden-
tify potential areas of reduction to eliminate deficit spending and sustain fiscal solvency.
It is possible that immediate and decisive action may allow the district to avoid having
to obtain outside financial assistance. Failure to make the proper budget reductions
places the district at risk, with the potential loss of local governance and decision-making
authority through state intervention.
FCMAT has identified multiple issues that have contributed to the district’s financial
condition and include the following:
Lassen County Office of Education re: Westwood Unified School District
4 EXECUTIVE SUMMARY
• multiyear history of deficit spending
• declining enrollment
• lower than average enrollment to average daily attendance ratio
• small class loads
• 100% district-paid employee health and welfare package with minimal
deductibles
• a lucrative retiree benefits plan
• higher than average percentage of administrative cost for the size of the
district
• lack of fiscal expertise in the business office
While school districts need to maintain competitive salaries and benefits to retain staff
members, those experiencing declining enrollment should exercise extreme caution in
negotiations. The single largest expense for a school district is salaries and benefits. The
scattergram showing the salary placement of teachers at the district depicts an uneven
distribution throughout the salary schedule. In fact, most of the teachers are on the high-
est range or step and column on the schedule. This can be common in rural areas, where
employees may remain with the same employer for their entire career.
To prepare for potential certificated layoffs, the district provided legal notification by
March 15, 2009 to two certificated employees. The district has not settled negotiations
with the certificated or classified bargaining units for the 2008-09 fiscal year. Retaining
qualified staff members while balancing the budget will be a difficult challenge. AB 1200
and AB 2756 require districts to clearly delineate their ability to support the effects of any
collective bargaining agreement and require a full disclosure to the Lassen COE of the
fiscal effects of any tentative settlement agreement.
Health and welfare benefits are contractually required for active employees and retirees.
The district’s benefit package offers employee and family health, dental and vision
insurance. At retirement, the coverage is extended to employees who have worked in the
district for the last ten years and have attained age 55. As an alternative, the district pays
annual in lieu cash payments equivalent to the cost of the health and welfare package.
Consistent with the district’s collective bargaining agreements, FCMAT did not adjust
employer/employee contributions in the multiyear financial projection.
As enrollment continues to decline, the district should review class loads to maximize
student-teacher ratios. Westwood is a small district, which makes it more challenging to
manage class loads, especially when there is one class for each grade level in the primary
grades. However, the district has some opportunities to create combination classes.
Districts are funded on average daily attendance (ADA) calculated using the number of
days students attend school for a defined number of days in a fiscal year. The district’s
Fiscal Crisis & Management Assistance Team
EXECUTIVE SUMMARY 5
ratio of enrollment to ADA has averaged 89.87% over the last three years, well below the
average of 94%-95% for most unified school districts. Increasing the ADA percentage
would increase the district’s revenue limit funding with minimal or no increases in staff-
ing. It is imperative for the district to monitor enrollment and ADA monthly and develop
projections to measure progress to aid in revenue projections and maximize funding.
Offering low-cost incentives to individual classrooms, grade levels, or school sites could
help improve student attendance percentages.
More than half the state’s school districts are experiencing declining enrollment.
Westwood’s enrollment over the last decade has declined more than 40%. The district
experienced a 10.7% drop in enrollment from the 2007-08 to the 2008-09 fiscal year, or a
net loss of 35 students.
The effects of this decline on the district’s general fund are exacerbated by the state’s cur-
rent fiscal crisis. The district faces substantial fiscal challenges that will require it to make
difficult decisions as it navigates through this fiscal instability.
Factors at the state level that will ultimately affect the district include a significant loss
in tax revenues and a decline in consumer spending. Home sales and values continue to
decline, which may lower property tax collections in many counties and are backfilled by
the state for school districts. All of these potential losses of revenue at the state level may
equate to less revenue available for schools.
The district has 2.5 full time equivalent administrators for approximately 292 students.
Comparable districts have one superintendent/principal and a part-time assistant princi-
pal. These comparisons will be fully characterized in this report.
The district is experiencing extreme financial distress that will require a high level of
fiscal expertise and a working knowledge of California finance to assist district admin-
istrators with potential budget solutions and accompanying cost estimates. The business
manager admittedly lacks the experience and expertise in school finance to be effective in
this vital role. The Lassen COE recognizes that a fiscal advisor is needed immediately to
assist in this process and has assumed this role.
The district must manage the shortfall in revenues against expenditures that continue to
rise for health care, utilities, equipment and other operating expenses. Operating budgets
have been reduced for the last several years as the enrollment declined, but not at the
same level as the drop in revenues.
Without intervention, the district’s declining enrollment, shortfall in revenues, increas-
ing expenditures in operational costs, generous health care benefits, higher than normal
administrative costs and lack of fiscal expertise in the business office will continue to
cause its budget to exceed the available funding.
Lassen County Office of Education re: Westwood Unified School District
6 EXECUTIVE SUMMARY
The district’s prior deficit spending has completely exhausted the recommended reserves
for economic uncertainties in the general fund.
Districts that exceed their reserve requirements can deficit spend for a period of time.
However, districts that fail to address deficit spending trends and/or continued declining
enrollment inevitably experience a depletion of cash resources and normally require some
level of county or state intervention.
Based on its cash flow projections, Westwood USD has requested a loan of $350,000 to
assist the district in meeting its financial obligations through June 30, 2009.
State intervention occurs when a district is unable to support payroll and other financial
obligations with its existing cash resources. The district’s financial situation is extremely
serious and will require both short- and long-term solutions. The district will have
to strategically manage its cash reserves while making budget reductions or it could
require an emergency appropriation and fall under state receivership. If that occurs,
the Superintendent of Public Instruction or State Administrator could exercise several
options under Education Code 41325-41326. Based on the projected budget and levels of
deficit spending, the district will need to make substantial budget reductions immediately
or require state intervention in the 2009-10 fiscal year. FCMAT’s Fiscal Health Risk
Analysis, which measures a district’s risk of fiscal insolvency, places the Westwood
USD in the extremely high risk category. The complete Fiscal Health Risk Analysis is
included later in this report.
To maximize unrestricted general fund resources, the district should take advantage of
the reduced matching requirements for Restricted Routine Maintenance and Deferred
Maintenance along with categorical flexibility options approved in the emergency legisla-
tion SBX3 4, signed into law on February 20, 2009.
FCMAT prepared a comprehensive multiyear financial projection (MYFP) based on
information known at the time of fieldwork. Subsequent to the fieldwork, the team
determined that the key data sets for payroll, health care benefits and retiree costs were
incorrect. The MYFP was updated to include these changes. The team calculated and
incorporated the effects of the amended state budget signed on February 20, 2009.
Fiscal Crisis & Management Assistance Team
EXECUTIVE SUMMARY 7
Table 1 - MYFP, Combined Ending Fund Balance General Fund Summary
Historical Base Year Year 1 Year 2
Name
Year 2007-08 2008-09 2009-10 2010-11
Revenues 3,963,779 3,319,365 3,022,784 2,878,746
Expenditures 4,197,589 3,609,068 3,675,441 3,904,192
Excess (Deficiency) of Revenues Over
-233,810 -289,703 -652,657 -1,025,446
Expenditures
Other Financing Sources/Uses 111,604 -50,000 -50,000 -50,000
Net Increase (Decrease) in Fund Balance -122,206 -339,703 -702,657 -1,075,446
Beginning Fund Balance 262,553 154,223 -185,480 -888,137
Audit Adjustments 13,875 0 0 0
Ending Fund Balance 154,223 -185,480 -888,137 -1,963,583
Components of Ending Fund Balance
Revolving Cash 2,500 0 0 0
Legally Restricted Balance 215,455 167,901 149,602 138,388
Designated for Economic Uncertainties 213,299 182,953 186,272 197,710
Undesignated/Unappropriated 0 0 0 0
Shortfall -277,031 -536,334 -1,224,011 -2,299,680
Lassen County Office of Education re: Westwood Unified School District
8
Fiscal Crisis & Management Assistance Team
MULTIYEAR FINANCIAL PROJECTION 9
Findings and Recommendations
Multiyear Financial Projection
California school districts and county offices use many different software products
to prepare multiyear financial projections. FCMAT’s Web-based fiscal forecasting
software, Budget Explorer, was designed exclusively for California school districts and
county offices of education. Utilizing the Budget Explorer software, districts can create
and update financial projections instantly by interfacing with the State Account Code
Software (SACS) or may be imported from the district’s financial system.
The primary purpose of a multiyear financial projection (MYFP) is to project the district’s
budget over a period of multiple years based on specific economic factors and budget
assumptions, allowing the district to achieve and sustain a balanced budget. District man-
agement can use Budget Explorer software to make more informed budget decisions and
incorporate educational goals and objectives into a financial scenario.
To resolve an estimated $536,334 unrestricted general fund budget shortfall in the 2008-
09 fiscal year, the Westwood Unified School District should immediately begin to prepare
for a period of fiscal instability. In attempting to balance the budget, the district will need
to make difficult choices about which expenditures and programs will continue to be
funded and those that may need to be scaled back, reconfigured or eliminated. In the short
term, the district should take immediate actions to address the shortfall for the current and
subsequent two fiscal years.
FCMAT’s MYFP indicates that the district will not meet its reserve requirement in the
current and two subsequent fiscal years without a detailed plan to increase revenue and/
or reduce expenditures and cease deficit spending. The general fund projection uses the
2007-08 unaudited actuals as a base year for salary and benefits and the 2008-09 state
budget revisions per the special emergency legislative session that ended on February
20, 2009 and the revised School Services of California (SSC) Financial Dartboard for the
subsequent two fiscal years. The projection excludes annual increases for cost of living
adjustments for employee salaries in the current and two subsequent fiscal years because
this item is subject to collective bargaining.
To evaluate the multiyear projection, attention is focused on the district’s ability to meet
its reserve requirement of 5% and demonstrate a positive, unappropriated fund balance.
The team has analyzed all funding sources and expenditure categories. When the unap-
propriated fund balance is negative, the deficit balance is the amount by which the budget
must be reduced under AB 1200 guidelines. The unrestricted general fund summary
below indicates a negative balance in all years.
Lassen County Office of Education re: Westwood Unified School District
10 MULTIYEAR FINANCIAL PROJECTION
Table 1: MYFP, Combined Ending Fund Balance General Fund Summary
Historical Year Base Year Year 1 Year 2
Name 2007-08 2008-09 2009-10 2010-11
Revenues 3,963,779 3,319,365 3,022,784 2,878,746
Expenditures 4,197,589 3,609,068 3,675,441 3,904,192
Excess (Deficiency) of Revenues Over -233,810 -289,703 -652,657 -1,025,446
Expenditures
Other Financing Sources/Uses 111,604 -50,000 -50,000 -50,000
Net Increase (Decrease) in Fund Balance -122,206 -339,703 -702,657 -1,075,446
Beginning Fund Balance 262,553 154,223 -185,480 -888,137
Audit Adjustments 13,875 0 0 0
Ending Fund Balance 154,223 -185,480 -888,137 -1,963,583
Components of Ending Fund Balance
Revolving Cash 2,500 0 0 0
Legally Restricted Balance 215,455 167,901 149,602 138,388
Designated for Economic Uncertainties 213,299 182,953 186,272 197,710
Undesignated/Unappropriated 0 0 0 0
Shortfall -277,031 -536,334 -1,224,011 -2,299,680
Because employee salaries and benefits average between 85% and 92% of the unre-
stricted general fund balance for unified districts throughout the state, the district should
develop staffing formulas for all positions and ensure that ratios are within employee
contract guidelines, meet students’ needs and agree with approved goals and objectives,
including the goal of regaining fiscal solvency.
Determining the district’s average salary and benefit cost is not so straightforward
because the budget has been overspent by $536,334. Normally, average salary and ben-
efits are calculated as a percentage of the expenditures plus transfers out of the general
fund. If the district’s budget were in balance and expenditures were reduced accordingly,
then the district’s average salary and benefit would be 88.5%, which is within statewide
averages for unified districts. Westwood is a small rural school district and has a higher
than average ratio of fixed operating costs to discretionary spending; therefore, the per-
centage distorts the district’s ability to support non-employee compensation expenditures
outside of its control such as utilities, fuel and insurance costs. The district’s challenge is
Fiscal Crisis & Management Assistance Team
MULTIYEAR FINANCIAL PROJECTION 11
to reduce expenditures to regain fiscal solvency while still incurring increased expendi-
tures beyond its control.
The district’s overall expenditure budget decreased in response to declining enroll-
ment, yet increases in overall expenditures have outpaced annual increases in funding.
Increased costs for employee health benefits and lucrative retiree benefits have contrib-
uted significantly to this trend.
Contributions from unrestricted to restricted programs continue to increase each fiscal
year. Several restricted programs require unrestricted general fund support. District man-
agement should carefully review these contributions and insist that restricted programs
are self-sustaining except for the special education and home-to-school transportation
programs, as these programs traditionally encroach on the unrestricted general fund
because of insufficient state and federal funding.
Some of the district’s greatest obstacles will be addressing options for health care benefits
for current and retired employees, reducing administrative staffing levels, increasing
enrollment-to-ADA percentages and developing a plan to attract students to the district.
This process will also help raise general awareness of the district’s financial status and
may prompt collaborative efforts to find solutions.
Multiyear projections are required by AB 1200 and AB 2756 and are a part of the adop-
tion budget and interim reporting process. In June 2004, AB 2756 (Daucher) was passed
and signed into law on an urgency basis. This legislation made substantive changes to
the financial accountability and oversight used to monitor the fiscal position of school
districts and county offices. Among other things, AB 2756 strengthened the roles of the
Superintendent of Public Instruction (SPI) and county offices of education and their abil-
ity to intervene during fiscal crises, including requesting assistance from FCMAT.
The following 15 conditions represent the most common indicators of fiscal distress and
are referenced in AB 2756 (Daucher) and included in Education Code sections 42127 and
42127.6:
1. Governance crisis
2. Absence of communication to education community
3. Lack of interagency cooperation
4. Failure to recognize year-to-year trends
5. Flawed ADA projections
6. Failure to maintain reserves
7. Insufficient consideration of the effects of long-term bargaining agreements
8. Flawed multiyear projections
Lassen County Office of Education re: Westwood Unified School District
12 MULTIYEAR FINANCIAL PROJECTION
9. Inaccurate revenue and expenditure projections
10. Poor cash flow analysis and reconciliation
11. Bargaining agreements beyond state COLAs
12. Lack of integration of position control with payroll
13. Limited access to timely personnel, payroll, and budget control data and reports
14. Escalating general fund encroachment from restricted programs
15. Lack of regular budget monitoring
Conditions at the district meet several of the criteria, and the district will require assis-
tance from either the Lassen COE or the state to meet its financial obligations.
If at any time during the fiscal year a district is unable to meet its financial obligations
for the current or two subsequent fiscal years, or has a qualified or negative budget
certification, the county superintendent of schools is required to notify the district govern-
ing board and the SPI. The county office is required to follow Education Code section
42127.6 in assisting a school district in this situation. Lassen COE has assigned a fiscal
advisor to assist the district on financial issues. The fiscal advisor will help the district to
formulate a recovery plan to regain fiscal solvency and restore the required ending fund
balance reserve levels.
School districts receive funding from a variety of local, state and federal resources. Some
funds are designated for specific purposes that include grant and entitlement categorical
funding. Most funding sources support the district’s general operating expenses. The state’s
complex revenue limit funding calculation provides for funding per ADA using a combina-
tion of local property taxes and state aid. The district receives revenue limit funding for
grades kindergarten to 7th grade and a necessary small school allowance for grades 8 to 12.
For high schools, the necessary small school allowances are allocations instead of per-
pupil amounts that are based on a combination of the ADA for the school and the FTE
of certificated employees at the school. Districts are eligible for necessary small school
allowance in lieu of revenue limit funding if the following criteria are met:
• The district has less than 2,501 ADA
• The district has an elementary school with fewer than 96 ADA and/or a high
school with fewer than 286 ADA, and
• The district meets the standard for a necessary small school per Education Code
42280, et seq.
Regular and frequent budget monitoring becomes critical in times of fiscal uncertainty. The
district will need to ensure that multiyear forecasts are kept up to date and that the informa-
Fiscal Crisis & Management Assistance Team
MULTIYEAR FINANCIAL PROJECTION 13
tion they contain is accurate and based on the most current assumptions. Economic indica-
tors will change rapidly as California continues to struggle to balance its budget, so staying
connected to current financial information and support such as that provided by professional
education business organizations will help keep the district informed.
FCMAT has updated the multiyear projections to include the latest adjustments signed
into law from the special legislative session that ended February 20, 2009. The MYFP
developed for this report indicates that the district will not be able to maintain its required
reserve of 5% in all three fiscal years. The district faces substantial fiscal challenges that
require difficult decisions to be made and implemented immediately.
Multiyear Forecast Assumptions
Financial projections for the district’s general fund were prepared using FCMAT’s mul-
tiyear Budget Explorer projection software. Multiyear financial projections help provide
for more informed decision making and the ability to forecast the fiscal effect of current
decisions, but should be evaluated and updated at least during each interim financial
reporting period and in preparation for negotiations. Any forecast of financial data has
inherent limitations because calculations are based on certain assumptions and criteria
that include enrollment trends, cost-of-living adjustments, and forecasts for utilities, fuel,
supplies and equipment. Financial projections must account for the changing economic
conditions at the state, federal and local levels.
Multiyear expenditure decisions for salary and benefits require the district to analyze
the compounding effects over multiple years. According to AB 1200 guidelines, school
districts are required to estimate the cost effects in a tentative agreement for salary and
benefits in the current and two subsequent fiscal years. Using a multiyear software pro-
gram allows district staff to clearly determine the effect of these proposals on the unap-
propriated fund balance from year to year to ensure that reserve levels are maintained.
FCMAT’s projection includes the impact of the approved SBX3 4 emergency legislation
that amended the state budget act for the 2008-09 and 2009-10 fiscal years. This includes
significant midyear funding reductions in the current fiscal year as well as additional
reductions in the 2009-10 fiscal year.
The first phase of this review required FCMAT to prepare adjusting entries and close the
2007-08 books. Closing out the financial records involved verification of all revenue sources;
recalculation of the revenue limit; posting interfund obligations; calculating indirect costs for
restricted programs; and preparing a listing of accounts receivable and payables.
The multiyear projection uses the district’s 2007-08 unaudited actuals financial report as
the MYFP baseline. The team used budget assumptions based on the 2008-09 Governor’s
Budget Act as amended February 20, 2009 following the special legislation session and
the School Services of California (SSC) Financial Dartboard assumptions. FCMAT’s
Lassen County Office of Education re: Westwood Unified School District
14 MULTIYEAR FINANCIAL PROJECTION
MYFP does not include any increases for salary in the current or projection years, beyond
the current negotiated agreement. Included in the projection years are the following:
• The average cost of step-and-column movement for all contracted salaries
and the associated cost of employer-paid statutory benefits of 2% for certifi-
cated staff and 1.75% for classified employees.
• A 10% increase in health and welfare costs in 2009-10 and 2010-11.
• Increases in general operating expenditures based on the California Con-
sumer Price Index and the most recent economic indicators.
To build the base year of the multiyear projection, FCMAT prepared spreadsheets for
certificated, classified and management salary and benefit costs; the actual year-to-date
activity of paid stipends and other extra duty salary expenses; internal and external
documents along with the CDE Web site to verify the district’s current year revenues,
and a review of the actual revenue and expenditure detail to identify adjustments in each
resource and major object code sections of the general fund.
In addition to staff interviews, FCMAT utilized a number of district documents to develop
a baseline and future assumptions for the MYFP including the following:
• Approval letters from the county office regarding the adopted budget reports
• Review, analysis and recommendations relative to the district’s financial condition
from SSC
• Financial system budget comparative reports that correspond to amounts in the
2007-08 Unaudited Actuals financial report and 2008-09 actuals to date
• The financial summary report reflecting all general ledger balance sheet accounts
by fund for 2007-08 and 2008-09
• Revenue limit worksheets, including all supporting schedules for 2007-08 and
2008-09
• Historical enrollment information for the current and prior three fiscal years and
projections for the subsequent five years
• P-1, P-2 and annual attendance reports including CBEDS data for the district and
the charter school, 2005-06 through 2008-09
• Information on supplemental revenue sources such as forest reserves.
• Identification of any one-time revenues and expenditures included in the 2007-08
budget
• Salary schedules and salary placement information for all employee groups
• District and departmental organization charts
• Long-term debt schedules from the 2007-08 audited financial statements and
related contracts
• The district’s calculations of multiyear projections done outside the SACS multi-
year format for 2007-08
Fiscal Crisis & Management Assistance Team
MULTIYEAR FINANCIAL PROJECTION 15
• Collective bargaining agreements for all employee groups
• AB 1200 disclosure documents for the most recent salary settlement for all
employee groups
• Historical information on the health and welfare rates for the prior three fiscal years
• Independent audit reports, 2004-05 through 2006-07
• Copies of Office of Public School Construction agreements or any other financing
mechanism for facility financing
• Charter school agreements, Memorandum of Understanding, enrollment records
and property tax distribution
• Related party transactions as disclosed in the audit reports
General Fund
2008-09 General Fund
The team focused attention on the general fund portion of the district’s budget although
all funds were reviewed independently.
The latest state budget information does not include the impact of Lassen COE-operated
special education. As state reduction/cuts affect district programs, they will also affect the
county office. This could prompt unanticipated excess cost billings to the district.
The following table illustrates the projection variables that were utilized to project the
district’s multiyear general fund for 2008-09, 2009-10 and 2010-11 fiscal years. The table
includes adjustments enacted through the emergency session for revenue limit funding,
deficits and categorical reductions in Tier II and Tier III programs (a complete list of
these programs is found later in this report).
Table 2: Multiyear Projection Rules
CertCOLA Certificated COLA % 0.00% 0.00% 0.00%
ClassCOLA Classified COLA % 0.00% 0.00% 0.00%
CertColumn% Certificated Staff Column Increase % 0.0000% 0.2500% 0.2500%
CertStep% Certificated Staff Step Increase % 0.0000% 1.7500% 1.7500%
ClasStep% Classified Staff Step Increase % 0.00% 1.50% 1.50%
CPI California CPI (SSC) 1.90% 0.80% 1.90%
LOT-Res California Lottery Restricted (SSC) $11.50 $11.50 $11.50
LOT-Unr California Lottery Unrestricted (SSC) $109.50 $109.50 $109.50
Interest Rate Trend for 10 Year
INT 2.90% 3.00% 3.40%
Treasuries (SSC)
NetCOLA Net Funded Revenue Limit COLA (SSC) -2.63% -0.10% 0.70%
RLDef Revenue Limit Deficit: K-12 (SSC) 7.8400% 13.0900% 13.0900%
SpEdDef Special Education Base Deficit (SSC) 0.00% 0.00% 0.00%
Lassen County Office of Education re: Westwood Unified School District
16 MULTIYEAR FINANCIAL PROJECTION
Table 2: Multiyear Projection Rules
CatCOLA State Categorical COLA (SSC) 0.00% 0.00% 0.50%
StCOLA Statutory COLA (SSC) 5.6600% 5.0200% 0.7000%
HW% Health & Welfare Benefit Increase 0.00% 10.00% 10.00%
CustAmt Custom Amount $0.00 $0.00 $0.00
Cust% Custom Percent 0.00% 0.00% 0.00%
Cust1Amt Custom One Time Amount $0.00 $0.00 $0.00
Cust1% Custom One Time Percent 0.00% 0.00% 0.00%
ManInput Manual Input $0.00 $0.00 $0.00
PRO Proportional 0.00% 0.00% 0.00%
Zap Zero Out $0.00 $0.00 $0.00
Enr Year-to-Year Change in Enrollment -9.72% -11.28% -5.20%
RL-ADA Year-to-Year Change in RL ADA 0.00% -12.19% -5.20%
Year-to-Year Change in Teacher
TchrStfg 0.00% 0.00% 0.00%
Staffing
SalFrcstr Salary Forecaster $0.00 $0.00 $0.00
P2-ADA/ PRIOR YEAR ANNUAL
P2ADA 0.00 176.94 155.37
ESTIMATE
BasicGrant Title I Part A (Resource 3010) 3.20% 0.00% 0.00%
SpecEduc Special Education (Resource 3310) 1.40% 0.00% 0.00%
TeachQual Title II Part A (Resource 4035) 0.70% 0.00% 0.00%
RLDefCOE County Office Revenue Limit Deficit 0.00% 5.36% 5.36%
EnEducTech Title II Part D (Resource 4045) -6.90% 0.00% 0.00%
LangAcqu Title III Language (Resource 4203) 4.70% 0.00% 0.00%
SafeDrugFree Title V Safe and Drug (Resource 3710) -15.40% 0.00% 0.00%
InnProg Title V Part A (Resource 4110) -100.00% 0.00% 0.00%
21CLC (IV) Title V now IV Part B (Resource 4124) 3.40% 0.00% 0.00%
ReadFirst Title I Part B (Resource 3030) -64.30% 0.00% 0.00%
Title I Part B, Even Start (Resource
EvenStart -24.10% 0.00% 0.00%
3105)
CTechEdGrant Career and Technical Ed Grants -2.60% 0.00% 0.00%
SSC CSR SSC-CSR/ SSC CSR $0.00 $0.00 $0.00
K3 CSR K3-CSR/ K3 CSR $0.00 $0.00 $0.00
AutoBal Autobalance Rule $0.00 $0.00 $0.00
FedCOLA Federal COLA 0.00% 0.00% 0.00%
IndirectRate Indirect Rate 0.00% 0.00% 0.00%
Tier III State Cuts with flexibility -15.40% -4.40% 0.00%
Tier II State Cuts with No Flexibility -15.40% -4.40% 0.00%
(SSC) – based on School Services of California Financial Dartboard February 2009
Fiscal Crisis & Management Assistance Team
MULTIYEAR FINANCIAL PROJECTION 17
MYFP Adjustments
The district submitted an Adopted Budget 2008-09 dated June 28, 2008 (approved by the
governing board on August 20, 2008) to the Lassen COE. That budget was disapproved
on September 10, 2008.
An amended budget prepared by district staff was also disapproved on October 22, 2008.
The Lassen COE requested FCMAT to prepare a 2008-09 general fund operating budget
the district’s behalf.
The following tables summarize the adjustments FCMAT made from the district’s adop-
tion budget for 2008-09 dated June 28, 2008, and the final calculations made by FCMAT
in the 2008-09 base year.
Table 3: Combined Summary of Changes
Westwood USD FCMAT
Object budget dated budget
All Resources Combined Code 06/28/08 2008 - 09 Difference
Revenues
Revenue Limit Sources 8010 - 8099 2,236,864 2,212,254 -24,610
Federal Revenues 8100 - 8299 192,678 392,272 199,594
Other State Revenues 8300 - 8599 747,017 469,198 -277,819
Other Local Revenues 8600 - 8799 348,759 245,641 -103,118
Total Revenues 3,525,318 3,319,365 -205,953
Expenditures
Certificated Salaries 1000 - 1999 1,388,136 1,231,561 -156,575
Classified Salaries 2000 - 2999 511,361 500,517 -10,844
Employee Benefits 3000 - 3999 1,022,630 1,030,857 8,227
Books and Supplies 4000 - 4999 183,941 227,353 43,412
Services and Other Operating 5000 - 5999 570,462 600,051 29,589
Expenditures
Capital Outlay 6000 - 6900 82,882 0 -82,882
Other Outgo 7000 - 7299 0 0 0
Direct Support/Indirect Cost 7300 - 7399 0 0
Debt Service 7430 - 7439 10,786 18,729 7,943
Total Expenditures 3,770,198 3,609,068 -161,130
Excess (Deficiency) of Revenues Over -244,880 -289,703 -44,823
Expenditures
Other Financing Sources/Uses
Lassen County Office of Education re: Westwood Unified School District
18 MULTIYEAR FINANCIAL PROJECTION
Table 3: Combined Summary of Changes
Interfund Transfers In 8900 - 8929 0 0 0
Interfund Transfers Out 7600 - 7629 64,000 50,000 -14,000
All Other Financing Sources 8930 - 8979 0 0 0
All Other Financing Uses 7630 - 7699 0 0 0
Contributions 8980 - 8999 0 0 0
Total Other Financing Sources/Uses -64,000 -50,000 14,000
Net Increase (Decrease) in Fund -308,880 -339,703 -30,823
Balance
Fund Balance
Beginning Fund Balance 9791 272,519 154,223 -118,296
Audit Adjustments 9793 0 0 0
Other Restatements 9795 0 0 0
Adjusted Beginning Fund 272,519 154,223 -118,296
Balance
Ending Fund Balance -36,361 -185,480 -149,119
Components of Ending Fund
Balance
Legally Restricted Balance 9740 - 9759 0 167,901 167,901
Economic Uncertainties 0 0 0
Percentage
Designated for Economic 9770 0 182,953 182,953
Uncertainties
Other Designated 9780 0 0 0
Undesignated /Unappropriated 9790 0 0 0
Shortfall 9790 -36,361 -536,334 -499,973
Fiscal Crisis & Management Assistance Team
MULTIYEAR FINANCIAL PROJECTION 19
Table 4: Unrestricted Summary of Changes
Westwood USD FCMAT
Object budget dated Budget Difference
Unrestricted Resources Code 06/28/08 2008 - 09 Incr/(decr)
Revenues
Revenue Limit Sources 8010 - 8099 2,158,995 2,136,760 -22,235
Federal Revenues 8100 - 8299 0 209,335 209,335
Other State Revenues 8300 - 8599 143,916 120,333 -23,583
Other Local Revenues 8600 - 8799 287,115 205,500 -81,615
Total Revenues 2,590,026 2,671,928 81,902
Expenditures
Certificated Salaries 1000 - 1999 1,056,933 1,080,997 24,064
Classified Salaries 2000 - 2999 255,689 254,022 -1,667
Employee Benefits 3000 - 3999 777,325 810,562 33,237
Books and Supplies 4000 - 4999 65,700 55,100 -10,600
Services and Other Operating 5000 - 5999 501,103 560,825 59,722
Expenditures
Capital Outlay 6000 - 6900 0 0 0
Other Outgo 7000 - 7299 0 0 0
Direct Support/Indirect Cost 7300 - 7399 -41,400 -35,432 5,968
Debt Service 7430 - 7439 0 7,943 7,943
Total Expenditures 2,615,350 2,734,017 118,667
Excess (Deficiency) of Revenues Over -25,324 -62,089 -36,765
Expenditures
Other Financing Sources/Uses
Interfund Transfers In 8900 - 8929 0 0 0
Interfund Transfers Out 7600 - 7629 64,000 50,000 -14,000
All Other Financing Sources 8930 - 8979 0 0 0
All Other Financing Uses 7630 - 7699 0 0 0
Contributions 8980 - 8999 -219,606 -180,059 39,547
Total Other Financing Sources/Uses -283,606 -230,059 53,547
Net Increase (Decrease) in Fund -308,930 -292,148 16,782
Balance
Fund Balance
Beginning Fund Balance 9791 230,268 -61,232 -291,500
Audit Adjustments 9793 0 0 0
Other Restatements 9795 0 0 0
Lassen County Office of Education re: Westwood Unified School District
20 MULTIYEAR FINANCIAL PROJECTION
Table 4: Unrestricted Summary of Changes
Adjusted Beginning Fund Balance 230,268 -61,232 -291,500
Ending Fund Balance -78,662 -353,380 -274,718
Components of Ending Fund Balance
Legally Restricted Balance 9740 - 9759 0 0 0
Economic Uncertainties 0 0 0
Percentage
Designated for Economic 9770 0 182,953 182,953
Uncertainties
Other Designated 9780 0 0 0
Undesignated/Unappropriated 9790 0 0 0
Shortfall 9790 -78,662 -536,333 -457,671
Table 5: Restricted Summary of Changes
Westwood FCMAT
Object USD budget Budget
Restricted Resources Code dated 06/28/08 2008 - 09 Difference
Revenues
Revenue Limit Sources 8010 - 8099 77,869 75,494 -2,375
Federal Revenues 8100 - 8299 192,678 182,937 -9,741
Other State Revenues 8300 - 8599 603,101 348,865 -254,236
Other Local Revenues 8600 - 8799 61,644 40,141 -21,503
Total Revenues 935,292 647,437 -287,855
Expenditures
Certificated Salaries 1000 - 1999 331,203 150,564 -180,639
Classified Salaries 2000 - 2999 255,672 246,495 -9,177
Employee Benefits 3000 - 3999 245,305 220,295 -25,010
Books and Supplies 4000 - 4999 118,241 172,253 54,012
Services and Other Operating 5000 - 5999 69,359 39,226 -30,133
Expenditures
Capital Outlay 6000 - 6900 82,882 0 -82,882
Other Outgo 7000 - 7299 0 0 0
Direct Support/Indirect Cost 7300 - 7399 41,400 35,432 -5,968
Fiscal Crisis & Management Assistance Team
MULTIYEAR FINANCIAL PROJECTION 21
Table 5: Restricted Summary of Changes
Debt Service 7430 - 7439 10,786 10,786 0
Total Expenditures 1,154,848 875,051 -279,797
Excess (Deficiency) of Revenues Over Expen- -219,556 -227,614 -8,058
ditures
Other Financing Sources/Uses
Interfund Transfers In 8900 - 8929 0 0 0
Interfund Transfers Out 7600 - 7629 0 0 0
All Other Financing Sources 8930 - 8979 0 0 0
All Other Financing Uses 7630 - 7699 0 0 0
Contributions 8980 - 8999 219,606 180,059 -39,547
Total Other Financing Sources/Uses 219,606 180,059 -39,547
Net Increase (Decrease) in Fund Balance 50 -47,555 -47,605
Fund Balance
Beginning Fund Balance 9791 42,251 215,455 173,204
Audit Adjustments 9793 0 0 0
Other Restatements 9795 0 0 0
Adjusted Beginning Fund 42,251 215,455 173,204
Balance
Ending Fund Balance 42,301 167,900 125,599
Components of Ending Fund Balance
Reserved Balances 9700 0 0 0
Legally Restricted Balance 9740 - 9759 0 167,900 167,900
Designated for Economic 9770 0 0 0
Uncertainties
Other Designated 9780 0 0 0
Undesignated/Unappropriated 9790 106,241 0 -106,241
Shortfall 9790 0 0 0
The information in the tables above is a compilation of the following detail by individual
resource category that reconciles the total adjustments prepared by FCMAT. The team
prepared supporting schedules for certificated, classified and management salary and
benefit information to properly balance total compensation across all resource categories.
Lassen County Office of Education re: Westwood Unified School District
22 MULTIYEAR FINANCIAL PROJECTION
Analysis by Resource
Unrestricted Resources:
Revenues
The revenue limit objects were adjusted to $2,136,760, a decrease of $22,235. Other fed-
eral revenues were increased by $209,335 to include forest reserve funding of $162,354,
and $46,981 for the Medi-Cal Administrative Activities (MAA) reimbursement amount
received as on March 10, 2009.
Certificated Salaries
Certificated salaries were increased by $24,064, representing 20% of the superintendent’s
salary, which was originally budgeted in resources 2200 and 2430 and has been trans-
ferred to unrestricted this year.
Classified Salaries
Classified salaries were decreased by $1,667 to agree with the updated spreadsheet.
Employee Benefits
Employee benefits were increased by $33,237, of which $14,613 was adjusted to pay for
Golden Handshake payments.
Other Services
Other services increased by $59,722. The budget for general property and liability insur-
ance was increased by $12,381 on the unrestricted budget and eliminated in restricted
resources 2200 and 2430. The budget for utilities was increased by $16,297 to reflect an
increase of 2.5% over the prior year and to realign all utilities in the unrestricted resource.
The direct cost transfer to resource 2730 increased by $12,000 to $77,815.
Debt service
Debt service was increased by $7,943 to account for loan payment for the 2007-08 pur-
chase of a school bus.
Transfers Out
After discussions with the district, the deferred maintenance match transfer of $24,000
was deleted because the new state budget agreement does not require a match in the
current year. The transfer out to the cafeteria fund was increased by $10,000 to a total of
$50,000.
Indirect Cost
Indirect costs were reduced by $5,968. These costs were calculated utilizing the state-
approved indirect cost rate for the district.
Fiscal Crisis & Management Assistance Team
MULTIYEAR FINANCIAL PROJECTION 23
Resource 1100 – State Lottery
Revenue was reduced by $10,600 per the current funding formula. Expenses were
reduced accordingly to balance the resource.
Resource 1300 - Class Size Reduction, K-3
Revenue was reduced by $6,426 based on the current funding formula of students cur-
rently enrolled in grades K-3. Certificated salaries and benefits were increased by $7,067
to agree with the amounts paid to the CSR teachers. An unrestricted contribution of
$235,295 was added to balance the resource.
Restricted Resources:
Resource 2200 – Continuation Education
Certificated supervisor salaries of $15,000 were moved to the unrestricted general
fund. Classified salaries were increased by $2,896 to agree with the analysis of salaries.
Employee benefits were increased by $19,836 to cover the retiree insurance premiums
that had not been previously budgeted. The $5,608 budget for noncapitalized equipment
was eliminated. The $8,158 budget for insurance and utilities was moved to the unre-
stricted resource. The direct cost transfer totaling $105,376 for services was replaced by a
block grant transfer from resource 7390, Pupil Retention Block Grant, of $60,626.
Resource 2430 – Community Day Schools
All revenue and expenses were eliminated from this budget because there are no students
in this program this fiscal year. Actual year-to-date expenditures should be moved. The
district has received an advance apportionment of $117,247 that will need to be returned
to the state.
Resource 3010 – Title I, Basic Grant
Federal revenues were decreased by $5,194 to agree with the Consolidated Application.
Budgeted certificated salaries were eliminated because there are no teachers paid out
of this resource this year. Employee benefits were increased by $3,168 to cover retiree
health care benefits that had not been budgeted. The supply budget was increased by
$4,965 to balance the resource.
Resource 3710 – Title IV, Drug Free Schools
Federal revenues were decreased by $1,383 to agree with the Consolidated Application.
The other services budget was reduced to balance the resource.
Resource 4110 – Title V, Innovative Education Strategies
All revenue and expenses were eliminated from this budget because there is no funding
this year.
Lassen County Office of Education re: Westwood Unified School District
24 MULTIYEAR FINANCIAL PROJECTION
Resource 5810 – Other Federal, REAP
Revenue was reduced by $2,390 per the Grant Award Notification dated August 29, 2008.
Supplies and other services budgets were adjusted to balance the resource.
Resource 6020 – CSIS Best Practice Cohort
This resource was not in the original budget. One-time funding of $13,511 was added to
the budget along with the related expense to balance the resource.
Resource 6300 – Lottery Instructional Materials
Revenue and expenses were adjusted to $3,609 per the current funding formula.
Resource 6310 – School/Law Enforcement Mini Grant
All revenue and expenses budget amounts were eliminated from this resource because
there is no funding this year.
Resource 6350 – ROC/P Apportionment
The revenue in this resource is transferred in from Lassen COE. Revenues were origi-
nally decreased by $15,122 to $41,438, which is the amount budgeted for the covered
expenses. It was later reduced to $35,057 because it is a Tier III categorical program
subject to state budget reductions. Certificated salaries were reduced by $14,042 to agree
with projected salaries. Employee benefits were reduced by a corresponding $4,683. The
unrestricted contribution of $6,381 was required to balance the resource.
Resource 6405 – School Safety and Violence Prevention, Grades 8-12
Revenues were originally adjusted to $16,004, which is the funding level posted on the
CDE Web site, but were later reduced by 15.4% to $13,539 because this is a Tier III
categorical program. Salaries and benefits were decreased by $3,044 to agree with current
staffing projections. Books and supplies budgets were increased to balance the resource.
Resource 6660 – Tobacco-Use Prevention Education, Grades 4-8
Revenue was adjusted to $409, the funding level posted on the CDE Web site. Books and
supplies budgets were reduced to balance the resource.
Resource 6760 – Arts and Music Block Grant
Revenues were originally decreased by $5,563 to $13,812, which is the funding level
posted on the CDE Web site. They were subsequently reduced to $11,685 because this
is a Tier III categorical program subject to a 15.4% reduction in the current fiscal year.
Supplies and non-capitalized equipment budgets were decreased to balance the resource.
Resource 7055 – CAHSEE Intensive Instruction and Services
All revenue and expense budgets were eliminated from this budget because there is no
funding this year for Westwood High.
Fiscal Crisis & Management Assistance Team
MULTIYEAR FINANCIAL PROJECTION 25
Resource 7090 – Economic Impact Act
This resource was not in the original budget. However, ongoing salary and benefit
expenses have been posted to this resource in the current year. Revenue of $32,456 was
added to agree with the apportionment posted on the CDE Web site. Classified salaries
and benefits were budgeted to cover the aides that are being paid from this resource and
a block grant transfer from resource 7394 for $5,009 was posted to support the current
level of expenditures.
Resource 7140 – Gifted and Talented Education (GATE)
Revenues were increased by $829 to $16,132, which is the funding level posted on the
CDE Web site, but were subsequently reduced to $13,648 because this is a Tier III cat-
egorical program.
Resource 7156 – K-8 Instructional Materials Realignment Program
Revenues were decreased by $1,179 to $23,322, the funding level posted on the CDE
web site. They were later further decreased to $19,730 because this is a Tier III categori-
cal program. Books and supplies budgets were reduced to balance the resource.
Resource 7230 – Transportation, Home to School
The entitlement for transportation funding was adjusted to $13,751 per the CDE Web site,
an increase of $2,249. A block grant transfer of $10,000 from resource 7394 was added
because this funding can be transferred to support home-to-school transportation services.
The supplies budget was increased from $8,059 to $25,000 to cover actual expenses and
encumbrances to date. The insurance budget of $7,300 was moved to the unrestricted
general fund. An unrestricted contribution of $13,967 was required to balance the
resource.
Resource 7235 – Transportation, Bus Replacement
All revenue and expense budgets were eliminated from this resource because there is no
funding this year. This was a one-time grant for last year that was incorrectly budgeted
this year.
Resource 7390 – Pupil Retention Block Grant
Revenues were originally increased by $8,317 to reflect the $139,956 amount posted on
the CDE Web site, but were later reduced to $118,403 because this is a Tier III categori-
cal program. Certificated salaries were increased to $7,519 and employee benefits were
adjusted to the current year-to-date activity. The $105,376 direct costs transfer of services
was eliminated and replaced by a contribution to resource 2200 – Continuation Education
of $60,626.
Lassen County Office of Education re: Westwood Unified School District
26 MULTIYEAR FINANCIAL PROJECTION
Resource 7394 – Targeted Instructional Improvement Block Grant
Revenues were increased by $6,452 to the current funding level of $46,396 per the CDE
Web site, but were later reduced to $39,251 because this is a Tier III categorical program.
Classified salaries and benefits were decreased by $7,712 to adjust to the projected
amount of instructional aide salaries. Two block grant flexibility transfers were budgeted:
1) $10,000 to resource 7230, and 2) $5,009 to resource 7090 to help relieve the encroach-
ment to the unrestricted general fund.
Resource 7395 – School and Library Improvement Block Grant
State revenues were increased by $1,307 to agree with the funding level on the CDE
Web site, but were later reduced to $32,826 because this is a Tier III categorical program.
Classified salaries and benefits were reduced by $27,400 to adjust to this year’s projected
staffing level for instructional aides. A $1,532 budget for books and supplies was added to
cover the library supplies being moved out of resource 1100 – Lottery. The $12,000 direct
cost transfer was eliminated. A budget of $12,260 for other services was added to cover
the audiovisual contract with Lassen COE. The unrestricted general fund contribution of
$24,286 was eliminated because it was not needed.
Resource 8150 – Routine Restricted Maintenance Account (RRMA)
Classified salaries and benefits were increased by $11,285 to cover increased substitute
salaries and statutory benefit costs. A supplies budget of $25,000 was added for main-
tenance supplies that had been previously paid out of the unrestricted general fund or
lottery money. The contribution from unrestricted revenues was increased accordingly by
$36,285 to $155,455.
Contributions to Restricted Programs
Most restricted programs operated by the district do not exceed available funding.
However, some programs require a contribution from the district’s unrestricted general
fund to support shortfalls in federal and state funding. The team has analyzed the effect
of unrestricted general fund contributions to restricted programs and notes that several
restricted programs encroach as illustrated in the table below:
Fiscal Crisis & Management Assistance Team
MULTIYEAR FINANCIAL PROJECTION 27
Table 6: MYFP - Projected Contributions to Restricted Programs
Resource Historical Base Year Year 1 Year 2
Name
Code Year 2007-08 2008-09 2009-10 2010-11
Unrestricted Resources
Unrestricted 0000 -361,145 -415,354 -467,563 -515,350
Class Size Reduction Operations,
1300 0 235,295 -254,139 272,981
Grades K-3
Total Unrestricted -361,145 -180,059 213,424 -242,369
Restricted Resources
Continuation Education (Education
2200 207,905 60,626 53,746 45,413
Code sections 42244 and 48438)
NCLB-Title I, Part A, Basic Grants
3010 9,662 0 0 0
Low Income and Neglected
NCLB: Title II, Part D, Enhancing
Education Through Technology, 4045 182 0 0 0
Formula Grants
NCLB: Title V, Part A: Innovative
4110 156 0 0 0
Education Strategies
ROC/P Apportionment 6350 1,037 6,381 7,779 9,388
Special Education 6500 1,470 2,000 19,972 35,306
Tobacco-Use Prevention Education:
6660 1,181 0 0 0
Elementary Grades 4-8
Economic Impact Aid (EIA) 7090 35,016 5,009 4,901 6,227
Transportation: Home to School 7230 90,081 23,967 27,449 31,409
Staff Development: Administrator
7325 1,000 0 0 0
Training
Pupil Retention Block Grant 7390 -105,376 -60,626 -53,746 -45,143
Targeted Instructional Improvement
7394 0 -12,753 -6,575 -5,240
Block Grant
Discretionary Block Grant School
7396 1,022 0 0 0
Site
Ongoing & Major Maintenance
Account (RMA: Education Code 8150 117,808 155,455 159,898 165,009
Section 17070.75)
Total Restricted 361,145 180,059 213,424 242,369
Lassen County Office of Education re: Westwood Unified School District
28 MULTIYEAR FINANCIAL PROJECTION
Although encroachments are common in special education, home-to-school transporta-
tion and ongoing and major maintenance programs, the district is providing contributions
to other restricted programs that should be self-sustaining. These encroachments continue
in future years as illustrated in the table above. The district should review these encroach-
ments and manage the contributions accordingly.
Enrollment
Proper enrollment tracking and analysis of ADA are essential to providing a solid
foundation for budget planning. Since the primary funding is based on total number of
student days in the attendance cycle, monitoring and projecting student enrollment and
attendance is a crucial function. When enrollment and related ADA decline, the district
must consider the budgetary impacts of the decline on teacher-to-student ratios and plan
accordingly.
FCMAT reviewed the district’s enrollment and ADA trends for 2004-05 through 2007-08.
The review compared the October California Basic Educational Data System (CBEDS)
student enrollment counts to the second period Principal Apportionment (P-2) to deter-
mine the average enrollment-to-ADA ratios.
Historical data indicates the district has experienced declining enrollment for several
years, including the current year. In fact, the district has lost over 40% of its enrollment
over the last decade. FCMAT projects this trend will continue into future years.
The district should explore options to attract and retain students. One option would be to
create an in-district charter school operated by district staff and teachers. The district has
one independent charter school, Westwood Charter School (WCS), that is non-classroom
based and attracts students from several outlying areas in five contiguous counties.
Because WCS is independent, it is only required to contribute up to 3% of its revenues to
the district for administrative oversight. WCS also pays an additional 3% for the use of
district facilities including administrative space and computer labs. The revenues beyond
the oversight fees are retained by the nonprofit corporation.
The method utilized to project future enrollment utilizes the traditional cohort survival
technique, which groups students by grade level upon enrollment in the district and tracks
them annually thereafter. This method focuses on the number of students passing from
one grade to the next in the subsequent year. It closely accounts, grade-by-grade, for
retention and for students who enroll in or exit the district. Although other enrollment
forecasting techniques are available, the cohort-survival method usually is the best choice
for school districts because of its sensitivity to incremental changes in several key vari-
ables (see enrollment variables below.)
Percentages are calculated from historical enrollment data to determine a reliable
weighted average percentage of increase or decrease in enrollment between any two
Fiscal Crisis & Management Assistance Team
MULTIYEAR FINANCIAL PROJECTION 29
grades over the projection forecast period. Ratios are calculated between grade levels
from year to year generally using data from the last three to five years. Enrollment vari-
ables include the following:
• Birth rates and trends
• The historical ratio of enrollment progression between grade levels
• Changes in educational programs
• Inter- and intradistrict transfers
• Migration patterns
• Changes in local and regional demographics
• Industry changes such as a new industry coming to the area or an existing one
leaving
• Residential housing starts and the generation factor per household
• The approval of charter schools, pending applications, and the recruitment efforts
of approved charter schools within the district boundaries
FCMAT used a weighted average of the last three years using CBEDS historical enroll-
ment information and applying the cohort-survival technique to project enrollment for
grades 1 through 7 (grades 8 through 12 utilize a different funding methodology) in the
Budget Explorer program. The following two tables reflect the district’s historical and
projected enrollment:
Table 7: Historical Enrollment Data
Historical 4 Historical 3 Historical 2 Historical 1 Base Year
Enrollment
2004-05 2005-06 2006-07 2007-08 2008-09
K 29 29 21 19 17
1 23 29 27 20 18
2 32 17 25 28 18
3 17 33 23 23 30
4 30 19 27 15 19
5 27 32 18 27 15
6 34 31 28 17 26
7 36 36 26 29 17
Total Grades K - 7 228 226 195 178 160
Lassen County Office of Education re: Westwood Unified School District
30 MULTIYEAR FINANCIAL PROJECTION
Table 8: Projected Enrollment Data
Base Year Year 1 Year 2
Enrollment
2008-09 2009-10 2010-11
K 17 15 13
1 18 16 14
2 18 17 15
3 30 19 18
4 19 24 15
5 15 19 24
6 26 14 18
7 17 26 14
Total Grades K - 7 160 150 131
Average Daily Attendance
To calculate the district’s revenue limit, state aid is calculated using the greater of current
or prior year P2 reports for average daily attendance (ADA). Because the district is in
declining enrollment, the multiyear projection used the prior-year ADA to calculate the
2008-09 state apportionment.
As previously mentioned, the district’s average ADA ratio of 89.87% is below the normal
average of 95% for most unified school districts. The district should investigate options to
increase this percentage. Increasing the percentage of ADA would increase the district’s
revenue limit funding with minimal or no increases in staffing.
Since ADA is the primary source of funding for the general fund operating budget, the
district should take the time necessary to manage and monitor these projections. ADA
projections will change over time and should be adjusted frequently, at a minimum during
the adoption of the district budget and during the interim budget report filing periods. The
district must monitor enrollment and ADA and develop projections to measure progress
monthly to aid in revenue projections and maximize funding. Monthly adjustments that
calculate the difference between the projected ADA and the actual ADA reported will
provide management with the most up-to-date information to respond immediately to
changes in trends.
MYFP, Combined General Fund Summary
The following MYFP prepared by FCMAT identifies the district’s projected revenues,
expenditures and changes in fund balance for the unrestricted and restricted general fund
in the current and two subsequent fiscal years.
Fiscal Crisis & Management Assistance Team
MULTIYEAR FINANCIAL PROJECTION 31
Historical
Object Base Year Year 1 Year 2
Name Year
Code 2008 - 09 2009 - 10 2010 - 11
2007 - 08
Revenues
Revenue Limit Sources 8010 - 8099 2,485,327 2,212,254 2,062,305 1,940,709
Federal Revenues 8100 - 8299 347,593 392,272 312,192 299,427
Other State Revenues 8300 - 8599 818,860 469,198 429,689 425,012
Other Local Revenues 8600 - 8799 311,999 245,641 218,598 213,598
Total Revenues 3,963,779 3,319,365 3,022,784 2,878,746
Expenditures
Certificated Salaries 1000 - 1999 1,386,720 1,231,561 1,252,270 1,270,844
Classified Salaries 2000 - 2999 577,929 500,517 508,025 515,645
Employee Benefits 3000 - 3999 1,278,464 1,030,857 1,081,584 1,265,381
Books and Supplies 4000 - 4999 194,217 227,353 188,102 185,991
Services and Other Operating
5000 - 5999 624,236 600,051 608,794 614,385
Expenditures
Capital Outlay 6000 - 6900 107,791 0 0 0
Other Outgo 7000 - 7299 0 0 17,938 33,217
Direct Support/Indirect Cost 7300 - 7399 0 0 0 0
Debt Service 7430 - 7439 28,232 18,729 18,729 18,729
Total Expenditures 4,197,589 3,609,068 3,675,441 3,904,192
Excess (Deficiency) of Revenues Over
-233,810 -289,703 -652,657 -1,025,445
Expenditures
Other Financing Sources/Uses
Interfund Transfers In 8900 - 8929 180,000 0 0 0
Interfund Transfers Out 7600 - 7629 68,396 50,000 50,000 50,000
All Other Financing Sources 8930 - 8979 0 0 0 0
All Other Financing Uses 7630 - 7699 0 0 0 0
Contributions 8980 - 8999 0 0 0 0
Total Other Financing Sources/Uses 111,604 -50,000 -50,000 -50,000
Net Increase (Decrease) in Fund
-122,205 -339,703 -702,657 -1,075,445
Balance
Fund Balance
Beginning Fund Balance 9791 262,553 154,223 -185,480 -888,137
Audit Adjustments 9793 13,875 0 0 0
Other Restatements 9795 0 0 0 0
Adjusted Beginning Fund
276,428 154,223 -185,480 -888,137
Balance
Ending Fund Balance 154,223 -185,480 -888,137 -1,963,582
Lassen County Office of Education re: Westwood Unified School District
32 MULTIYEAR FINANCIAL PROJECTION
Historical
Object Base Year Year 1 Year 2
Name Year
Code 2008 - 09 2009 - 10 2010 - 11
2007 - 08
Components of Ending Fund
Balance
Revolving Cash 9711 2,500 0 0 0
Legally Restricted Balance 9740 - 9759 215,455 167,901 149,602 138,388
Economic Uncertainties
0 0 0 0
Percentage
Designated for Economic
9770 213,299 182,953 186,272 197,710
Uncertainties
Undesignated/Unappropriated 9790 0 0 0 0
Shortfall 9790 -277,032 -536,334 1,224,011 -2,299,679
Fund Balance and Reserve for Economic Uncertainties
Fund Balance: The shortfall in the 2007-08 actual revenues compared with the 2008-09
budgeted revenues, including transfers in, is $824,414 whereas the reductions in expen-
ditures, including transfers out, total $606,916 for a difference of $217,498. This demon-
strates that although the district made adjustments to bring expenditures down as revenues
declined, the adjustment in expenditures fell short of the amount necessary to keep pace
with declining revenues.
The district was already deficit spending and had a shortfall from 2007-08; therefore, the
total amount necessary to adjust 2008-09 should have been a total of $536,334 to bring
the reserve levels up to the required amount.
Reserve For Economic Uncertainties - The FCMAT projection indicates that the district will
not be able to meet the required reserve level in fiscal years 2008-09, 2009-10 or 2010-11.
MYFP, Unrestricted General Fund
The following MYFP prepared by FCMAT identifies the district’s projected revenues,
expenditures and changes in fund balance for the unrestricted general fund in the current
and two subsequent fiscal years.
Fiscal Crisis & Management Assistance Team
MULTIYEAR FINANCIAL PROJECTION 33
Historical
Base Year Year 1 Year 2
Name Object Code Year
2008 - 09 2009 - 10 2010 - 11
2007 - 08
Revenues
Revenue Lim-
8010 - 8099 2,485,327 2,212,254 2,062,305 1,940,709
it Sources
Federal Rev-
8100 - 8299 347,593 392,272 312,192 299,427
enues
Other State
8300 - 8599 818,860 469,198 429,689 425,012
Revenues
Other Local
8600 - 8799 311,999 245,641 218,598 213,598
Revenues
Total Revenues 3,963,779 3,319,365 3,022,784 2,878,746
Expenditures
Certificated
1000 - 1999 1,386,720 1,231,561 1,252,270 1,270,844
Salaries
Classified
2000 - 2999 577,929 500,517 508,025 515,645
Salaries
Employee
3000 - 3999 1,278,464 1,030,857 1,081,584 1,265,381
Benefits
Books and
4000 - 4999 194,217 227,353 188,102 185,991
Supplies
Services and
Other Oper-
5000 - 5999 624,236 600,051 608,794 614,385
ating Expen-
ditures
Capital Out-
6000 - 6900 107,791 0 0 0
lay
Other Outgo 7000 - 7299 0 0 17,938 33,217
Direct Sup-
port/Indirect 7300 - 7399 0 0 0 0
Cost
Debt Service 7430 - 7439 28,232 18,729 18,729 18,729
Total Expenditures 4,197,589 3,609,068 3,675,441 3,904,192
Excess (Deficiency) of Revenues
-233,810 -289,703 -652,657 -1,025,445
Over Expenditures
Other Financing Sources/Uses
Interfund
8900 - 8929 180,000 0 0 0
Transfers In
Interfund
7600 - 7629 68,396 50,000 50,000 50,000
Transfers Out
Lassen County Office of Education re: Westwood Unified School District
34 MULTIYEAR FINANCIAL PROJECTION
Historical
Base Year Year 1 Year 2
Name Object Code Year
2008 - 09 2009 - 10 2010 - 11
2007 - 08
All Other
Financing 8930 - 8979 0 0 0 0
Sources
All Other Fi-
7630 - 7699 0 0 0 0
nancing Uses
Contributions 8980 - 8999 0 0 0 0
Total Other Financing Sources/
111,604 -50,000 -50,000 -50,000
Uses
Net Increase (Decrease) in Fund
-122,205 -339,703 -702,657 -1,075,445
Balance
Fund Balance
Beginning
9791 262,553 154,223 -185,480 -888,137
Fund Balance
Audit
9793 13,875 0 0 0
Adjustments
Other
9795 0 0 0 0
Restatements
Adjusted Be-
ginning Fund 276,428 154,223 -185,480 -888,137
Balance
Ending Fund
154,223 -185,480 -888,137 -1,963,582
Balance
Components of Ending Fund Balance
Revolving
9711 2,500 0 0 0
Cash
Legally
Restricted 9740 - 9759 215,455 167,901 149,602 138,388
Balance
Designated
for Economic 9770 213,299 182,953 186,272 197,710
Uncertainties
Shortfall 9790 -277,032 -536,334 -1,224,011 -2,299,679
MYFP, Restricted General Fund
The following MYFP prepared by FCMAT identifies the district’s projected revenues,
expenditures and changes in fund balance for the restricted general fund in the current
and two subsequent fiscal years.
Fiscal Crisis & Management Assistance Team
MULTIYEAR FINANCIAL PROJECTION 35
Historical Year Base Year Year 1 Year 2
Name Object Code
2007 - 08 2008 - 09 2009 - 10 2010 - 11
Revenues
Revenue Limit Sources 8010 - 8099 16,913 75,494 85,376 96,552
Federal Revenues 8100 - 8299 184,877 182,937 182,937 182,937
Other State Revenues 8300 - 8599 694,242 348,865 322,380 322,459
Other Local Revenues 8600 - 8799 107,204 40,141 38,598 38,598
Total Revenues 1,003,236 647,437 629,292 640,546
Expenditures
Certificated Salaries 1000 - 1999 277,203 150,564 153,273 156,036
Classified Salaries 2000 - 2999 293,484 246,495 250,192 253,945
Employee Benefits 3000 - 3999 321,737 220,295 227,133 243,986
Books and Supplies 4000 - 4999 103,558 172,253 139,573 139,656
Services and Other Op- 5000 - 5999 111,774 39,226 40,144 33,975
erating Expenditures
Capital Outlay 6000 - 6900 82,882 0 0 0
Other Outgo 7000 - 7299 0 0 17,938 33,217
Direct Support/Indirect 7300 - 7399 41,016 35,432 21,974
22,528
Cost
Debt Service 7430 - 7439 12,072 10,786 10,786 10,786
Total Expenditures 1,243,727 875,051 861,014 894,129
Excess (Deficiency) of Revenues Over Expendi- -240,491 -227,614 -231,723 -253,583
tures
Other Financing Sources/Uses
Interfund Transfers In 8900 - 8929 0 0 0 0
Interfund Transfers Out 7600 - 7629 0 0 0 0
All Other Financing 8930 - 8979 0 0 0 0
Sources
All Other Financing Uses 7630 - 7699 0 0 0 0
Contributions 8980 - 8999 361,145 180,059 213,424 242,369
Total Other Financing Sources/Uses 361,145 180,059 213,424 242,369
Net Increase (Decrease) in Fund Balance 120,654 -47,555 -18,299 -11,214
Fund Balance
Beginning Fund Balance 9791 80,926 215,455 167,901 149,602
Audit Adjustments 9793 13,875 0 0 0
Adjusted Beginning 94,801 215,455 167,901 149,602
Fund Balance
Ending Fund Balance 215,455 167,901 149,602 138,388
Components of Ending Fund Balance
Legally Restricted 9740 - 9759 215,455 167,901 149,602 138,388
Balance
Lassen County Office of Education re: Westwood Unified School District
36 MULTIYEAR FINANCIAL PROJECTION
Communication with the Governing Board, faculty and community is essential during
this time of fiscal uncertainty. The information used should be current and accurate to
assist these groups in making appropriate decisions.
There is no definitive list of budget reductions or cost containment strategies that the
district should follow when identifying budget solutions, but the recommendations listed
below will provide a framework for the district to use.
Employee Health Care and Retiree Post-Retirement Benefits
As double digit health insurance premiums plague public and private entities, the district
has not been exempt from these increases over the last several years. This is especially
problematic for the district because the full cost of the health care premiums is paid 100%
by the district, with no contribution from employees or retirees. Furthermore, coverage is
extended to spouses and other family members at no additional cost.
The fact that retirees can opt out for cash in lieu of health care benefits creates adverse
selection because the healthier retirees are the ones opting out. Adverse selection occurs
when employees that are generally healthier or have other insurance options have the
ability to opt out of the policy, leaving potentially high-risk employees in the rating pool.
Generally this leads to an increase in price, resulting in higher than normal pricing than
for a fully insured group.
The health care package is very generous, consisting of medical, dental and vision
coverage for employees, spouses and other family members with a $100 annual deduct-
ible. The same coverage levels are extended to age 65 for employees who retire having
attained age 55 and served 10 years in the district.
Like many other districts, Westwood USD supports the ongoing cost of retiree health care
premiums on a pay-as-you-go basis rather than pre-funding them. The pay-as-you-go
method fails to recognize or measure the cost of other postemployment benefits (OPEB)
during the period(s) that employees render services. Because the liability for approved
but unfunded benefits can result in an enormous cost, new regulations that changed gov-
ernmental financial reporting were released in July 2004. The Governmental Accounting
Standards Board (GASB) issued GASB No. 45, Accounting and Financial Reporting by
Employers for Postemployment Benefits Other Than Pensions, with a three-year phase-in
period based on the size of district annual revenues. The district must be fully imple-
mented by fiscal year 2009-10 and has yet to determine the effect of this pronouncement
on the financial statements.
For many years, the district funded the retiree benefit obligation from forest reserve
funds, federal E-Rate refunds and charter school administrative fees. These dollars were
transferred into a special fund and were sufficient to fund the annual cost of retiree ben-
efits. As the retiree population grew, so did the obligation until the premiums cost more
Fiscal Crisis & Management Assistance Team
MULTIYEAR FINANCIAL PROJECTION 37
than the targeted revenue streams to support them. The table below illustrates the total
number of retired employees in the pool, the identified revenue and cost of the health care
premiums:
Table 9: Correlation of Retiree Health Care Cost
Number of Insurance Average Cost
Fiscal Year Revenue Stream
FTE Retirees Expense per Retiree
2006-07 23 $124,583 $417,693 $18,161
2007-08 16.5 $169,352 $432,303 $26,200
2008-09* 11.5 $180,000 $279,951 $24,344
* Projected information
The cost has significantly decreased as some retirees attained age 65 and several par-
ticipants of the STRS Golden Handshake were fully paid. The district is in the last year
of the PERS Golden Handshake, but continued obligations exist for the STRS Golden
Handshake until 2014-15. The current year payment on these debts is $42,489.
Superintendent/Principal Comparisons
The following table displays the student enrollment and numbers of superintendent/
principals in each of the unified schools in the comparison district groups. The survey
results are expressed as the number of enrolled students per superintendent/principal or as
designated superintendent/principal (superintendent.) The average number of students per
superintendent in the surveyed districts was 130.6, while the median was 126.1.
Each district school has one principal, with additional support from the athletic director at
the high school. The high school principal is assigned to support the continuation school
in addition to the traditional responsibilities. The number of students per administrator at
Westwood USD is 116.8, or 13.8 below the survey average.
Table 10: Administrative Staffing in Selected School Districts
Students per
District Admin
Administrator
Westwood USD K-12 292 2.5 FTE 116.8
Big Valley Joint Unified K-12 237 1.75 FTE 135.4
Princeton Joint Unified K-12 224 2.0 FTE 112.0
Surprise Valley Joint Unified K-12 158 1.0 FTE 158.0
* As reflected in 2007-08 CBEDS. Source: Ed-Data Partnership
Lassen County Office of Education re: Westwood Unified School District
38 MULTIYEAR FINANCIAL PROJECTION
Fiscal Expertise
As previously mentioned, the district is experiencing financial distress that will require
a high level of fiscal expertise and working knowledge of California finance to assist
district administrators with potential budget solutions and accompanying cost estimates.
The current business manager admits that she lacks the experience and expertise in
school finance to be effective in this crucial role. Lassen COE recognizes that the district
requires a fiscal advisor and has appointed a staff member from the county office fiscal
services division to fill that role temporarily until a permanent selection can be made.
Recommendations
The district should:
Enrollment and ADA
1. Ensure that enrollment and ADA projections are up to date and based on current
data. Compare the projection to the actual California Basic Educational Data
System (CBEDS) P-1 and P-2 reporting periods, and make the necessary adjust-
ments to align the district’s projection to actual data.
2. Review the ratio of student attendance/enrollment percentages along with projec-
tions monthly, comparing data from the current attendance month to the same
time period in the prior year.
3. Create a plan to attract students to the district. One option is to create an in-district
charter school operated by the district.
4. Investigate options to increase the enrollment-to-ADA percentage. Increasing the
ADA percentage would increase the district’s revenue limit funding, with minimal
or no increases in staffing.
Staffing Impacts
1. Project the enrollment decline. Adjust staffing loads in accordance with district
guidelines, bargaining unit contracts, and class size reduction funding provisions
as the enrollment declines.
2. Utilize the class size reduction flexibility options available under the new state
budget act.
3. Prepare seniority lists for all bargaining unit members in case employee layoff
notifications need to be issued.
4. Review all vacant positions to determine on a case-by-case basis which vacancies
must be filled and which can remain open.
5. Minimize overtime, extra time and the use of substitutes when possible.
6. Minimize special assignment positions.
Fiscal Crisis & Management Assistance Team
MULTIYEAR FINANCIAL PROJECTION 39
Health Benefits
1. Review the current health plan for cost-containment opportunities such as encour-
aging urgent care facility use instead of emergency room visits, second opinion
requirements and mail-in prescription drug programs.
2. Review the method used to coordinate Medicare benefits with retiree health plan
benefits.
3. Establish a policy of primary and secondary coverages for employees that are
covered under other health insurance policies.
4. Consider negotiating:
• A cap on health benefit plans that limits the district’s annual obligation for
employees and retirees.
• Employee co-payments for the health care premiums.
• Employee co-payments for spousal or family coverages.
• Higher deductibles on the medical, prescription drug, vision and dental care
benefit plans.
• Elimination of coverages for benefit plans beyond the basic medical package.
5. Refrain from entering into early retirement incentive plans that obligate the dis-
trict in future years.
Negotiations
1. Carefully estimate the effect of future collective bargaining agreements in accor-
dance with AB 1200 and AB 2756 guidelines. Demonstrate the ability to support
the increases in conjunction with the budget adjustments necessary to balance
the general fund budget. The district has not settled with the bargaining units or
management staff in the current year.
Restricted Program Dollars and Encroachments
1. Ensure that categorical restricted resources and other funds are self-supporting,
thus limiting general fund contributions. This should include paying for indirect
costs and post-retirement benefits percentage attributable to restricted programs.
2. Utilize federal and state flexibility options contained in the new state budget,
including the following:
• Reduce set-aside requirements for the routine restricted maintenance account
from 3% to 2%.
• Eliminate the deferred maintenance match requirements for 2008-09 only.
Lassen County Office of Education re: Westwood Unified School District
40 MULTIYEAR FINANCIAL PROJECTION
• Redirect restricted categorical carryover balances from 2007-08 to the unre-
stricted general fund. However, the district will need to identify categorically
funded activities that will no longer be offered if these program dollars shift.
• Maximize mega-item flexibility in any AB 825 block grant program transfer
out from 15% to 20%, and transfers in from 20% to 25%.
• Maximize federal flexibility options.
3. Expend restricted dollars first whenever possible. Complete an in-depth review
of expenditures being charged to unrestricted funding. Identify what constitutes
a core program as opposed to an auxiliary support service and redirect restricted
resources to activities, programs and positions funded with unrestricted dollars.
4. Review existing encumbrances in all restricted programs and liquidate any bal-
ances that will not be expended.
Budget
1. Identify and obtain board approval for budget reductions and/or revenue enhance-
ments that adjust the budget and multiyear projections in 2008-09, 2009-10 and
2010-11 to eliminate deficit spending and meet the reserve requirement in the
current and two subsequent fiscal years.
2. Prepare multiyear projections that provide current data and a recovery plan for use
in making decisions to achieve financial stability and solvency.
3. In the multiyear projection, identify all one-time sources of revenue and/or expen-
ditures in the budget to present the most accurate financial position.
4. Delay making final decisions on any new ongoing costs, such as collective bar-
gaining negotiations and capital leases, until the district is able to determine the
financial impacts on the multiyear budget.
5. Ensure that the Governing Board approves all financial reports on or before the
statutory deadlines.
Facilities
1. Ensure that the 3% administrative charge is being assessed from the developer
fee fund as allowed by law to reimburse the district for the administrative cost of
collecting and administering developer fees.
Fiscal Crisis & Management Assistance Team
FISCAL HEALTH RISK ANALYSIS 41
Fiscal Health Risk Analysis -
Key Fiscal Indicators
FCMAT developed the Fiscal Health and Risk Analysis to evaluate key fiscal indicators
that will help a school district measure its financial solvency for the current and two
subsequent fiscal years as required by AB 1200. The presence of any single criteria is not
necessarily an indication of a district in fiscal crisis. However, districts exceeding the risk
threshold of six or more “No” responses may have cause for concern and require some
level of fiscal intervention. Diligent planning will enable a district to better understand
its financial objectives and strategies to sustain its financial solvency. A district must con-
tinually update its budget as new information becomes available from within the district
or from other funding and regulatory agencies.
The Fiscal Health and Risk Analysis includes 17 components of key fiscal indicators to
measure a district’s potential risk.
Key Fiscal Indicators:
1. Deficit Spending
Is the district avoiding deficit spending in the current year?
Is the district avoiding deficit spending in the two subsequent fiscal years?
Has the district controlled deficit spending over the past two fiscal years?
Is the issue of deficit spending addressed by fund balance, ongoing revenues, or
expenditure reductions?
Has the board approved a plan to eliminate deficit spending?
Rating: No
• The district is projected to deficit spend in the current and subsequent two
fiscal years. In the 2007-08 fiscal year, the district overspent the general fund
by $277,032. This trend is expected to continue. The Governing Board is
working on potential budget solutions. The district will be unable to meet AB
1200 requirements if expenditure trends continue at the current rate.
Lassen County Office of Education re: Westwood Unified School District
42 FISCAL HEALTH RISK ANALYSIS
2. Fund Balance
Is the district’s fund balance at or consistently above the recommended reserve for
economic uncertainty?
Is the fund balance stable or increasing due to ongoing revenues and/or expendi-
ture reductions?
Does the fund balance include any designated reserves for unfunded liabilities or
one-time costs above the recommended reserve level?
Rating: No
• The district’s fund balance is not at or above the recommended reserve for
economic uncertainty. Therefore, the district will be unable to meet its reserve
requirement in the current and subsequent two years. The fund balance will
experience a significant decline by 2010-11 fiscal years unless a viable fiscal
recovery plan is implemented immediately.
3. Reserve for Economic Uncertainty
Is the district able to maintain its reserve for economic uncertainty in the current
and two subsequent years based on current revenue and expenditure trends?
Does the district have additional reserves in fund 17, special reserve for non-
capital projects?
If not, is there a plan to restore the reserve for economic uncertainties in the dis-
trict’s multiyear financial projection?
Rating: No
• The district is unable to maintain its reserve for economic uncertainty in the
current and two subsequent years based on current revenue and expenditure
projections. The district does not have a special reserve fund and has no
other sources of funding available.
4. Enrollment
Has the district’s enrollment been increasing or stable for multiple years?
Is the district’s enrollment projection updated at least semiannually?
Are staffing adjustments for certificated and classified employee groups consistent
with the enrollment trends?
Does the district analyze enrollment and ADA data?
Does the district track historical data to establish future trends between P-1 and
P-2 for projection purposes?
Fiscal Crisis & Management Assistance Team
FISCAL HEALTH RISK ANALYSIS 43
Has the district implemented any attendance programs to increase ADA?
Have approved charter schools had little or no impact on the district’s student
enrollment?
Does the district have a board policy that attempts to reduce the effect that trans-
fers out of the district have on the district’s enrollment?
Rating: No
• The district’s enrollment has been in decline for the past several years.
Enrollment projections are not updated periodically or monitored. Monitor-
ing ADA trends in a district that is experiencing declining enrollment is
a critical function. The district should make this a priority. The district is
making staffing adjustments commensurate with declining enrollment.
• The district has one independent charter school. The charter school’s enroll-
ment has shown a steady increase. Since this charter is non-classroom based
and most of the students reside outside of the district’s boundaries, there is
minimal impact.
5. Interfund Borrowing
Can the district manage its cash flow in all funds without interfund borrowing?
Is the district repaying the funds within the statutory period in accordance with
Education Code Section 42603?
Rating: No
• The district is unable to sustain adequate cash in the general fund without
borrowing from other funds. During the last two fiscal years, the district
has required a loan from the Lassen COE. Current cash flow projections
indicate that this trend will continue in 2008-09 and 2009-10. Therefore, the
district will need to access its options to borrow sufficient cash or request an
emergency state loan. It is anticipated that the district will run out of cash if
it does not reduce expenditures by December 2009. This assumes that Lassen
COE will provide a temporary loan in June 2009 and that the California
Department of Education will approve a waiver request by the district not to
defer the July and August apportionments to September.
6. Bargaining Agreements
Has the district settled the total cost of the bargaining agreements at or under
COLA during the current and past three years?
Did the district conduct a pre-settlement analysis identifying an ongoing revenue
source to support the agreement?
Lassen County Office of Education re: Westwood Unified School District
44 FISCAL HEALTH RISK ANALYSIS
Did the district correctly identify the related costs above the COLA (i.e., statutory
benefits, step and column)?
Did the district address budget reductions necessary to sustain the total compensa-
tion increase, including a board-adopted plan?
Did the superintendent and CBO certify the agreement prior to ratification?
Is the governing board’s action consistent with the superintendent’s/CBO’s certification?
Did the district submit to the county office of education the AB 1200/2756 full
disclosure as required?
Rating: No
• The district has not settled negotiations for the 2008-09 fiscal year with the
bargaining units. However, the district is supporting the total increase in
costs for the health, vision and dental plans per the existing contract. The
district should carefully review and estimate the cost for proposals that have
compounding effects in future years.
7. General Fund
Is the percentage of the district’s general fund unrestricted budget allocated to
salaries and benefits at or under the statewide average?
Is the district making sure that only ongoing restricted dollars pay for permanent
staff?
Does the budget include reductions in expenditures proportionate to one-time
revenue sources, such as parcel taxes, that will terminate in the current or two
subsequent fiscal years?
If the district receives redevelopment revenue that is subject to AB 1290 and SB
617, has it made the required offset to the revenue limit?
Rating: No
• Determining the district’s average salary and benefit cost is not straightforward
because the budget has been overspent by $536,334. Normally, average salary
and benefits are calculated as a percentage of the expenditures plus transfers
out of the general fund. If the district’s budget were in balance and expenditures
were reduced accordingly, then the district’s average salary and benefit would
be 88.5%, which is within statewide averages for unified districts. Westwood is
a small, rural school district and has a higher than average ratio of fixed oper-
ating costs to discretionary spending. Therefore, the percentage distorts the
district’s ability to support non-employee compensation expenditures outside of
its control such as utilities, fuel and insurance costs.
Fiscal Crisis & Management Assistance Team
FISCAL HEALTH RISK ANALYSIS 45
• The district should ensure that only ongoing dollars pay for permanent staff
members. All one-time revenues and expenditures have been denoted in the
budget and sunset within the proper fiscal year.
8. Encroachment
Is the district aware of the contributions to restricted programs in the current year?
(Identify cost, programs and funds)
Does the district have a reasonable plan to address increased encroachment
trends?
Does the district manage encroachment from other funds such as adult, cafeteria,
child development, etc.?
Rating: No
• Several restricted programs encroach on the unrestricted general fund in the
current and subsequent two fiscal years. The district should prepare a reason-
able plan to address increased encroachment trends.
9. Management Information Systems
Is the district’s financial data accurate and timely?
Are the county and state reports filed in a timely manner?
Are key fiscal reports readily available and understandable?
Is the district on the same financial system as the county?
If the district is on a separate financial system, is there an automated interface
with the financial system maintained by the county?
Rating: No
• The district utilizes the same financial system as Lassen COE. Quintessential
School Systems (QSS) is a reliable operating system and is used extensively
throughout the state. Information is available in several reporting formats;
however, the Business Manager has difficulty utilizing the system even after
extensive training. Therefore, management is unable to obtain timely infor-
mation.
Lassen County Office of Education re: Westwood Unified School District
46 FISCAL HEALTH RISK ANALYSIS
10. Position Control
Does the district maintain a reliable position control system?
Is position control integrated with payroll?
Does the district control unauthorized hiring?
Are the appropriate levels of internal controls in place between the business and
personnel departments to prevent fraudulent activity?
Does the district use position control data for budget development?
Is position control reconciled against the budget during the fiscal year?
Rating: No
• The district is very small and does not require the use of a position control
system. The district uses spreadsheets to track employees and their salary
placement. This information is not integrated with the payroll system or the
budget system.
• The budget did not agree with the actual payroll records because the Busi-
ness Manager had not updated the spreadsheets for the current year. Payroll
is processed using the certificated employee contracts. The district lacks
experienced personnel in the business office and as a result, individual
contracts do not agree with budget placement.
11. Budget Monitoring
Are budget revisions completed in a timely manner?
Does the district openly discuss the impact of budget revisions at the board level?
Are budget revisions made or confirmed by the board at the same time the collec-
tive bargaining agreement is ratified?
Has the district’s long-term debt decreased from the prior fiscal year?
Has the district identified the repayment sources for long-term debt or nonvoter-
approved debt, i.e., certificates of participation, capital leases?
Does the district’s financial system have a hard-coded warning regarding insuf-
ficient funds for requisitions and purchase orders?
Does the district encumber salaries and benefits?
Rating: No
• The district has not implemented a periodic system to monitor the budget.
Salaries and benefits are not encumbered in the financial system. As a result,
it is difficult to determine whether the district is staying within budget at any
Fiscal Crisis & Management Assistance Team
FISCAL HEALTH RISK ANALYSIS 47
point in time. Compounding this situation is that the district lacks the exper-
tise in the business office to properly monitor the budget, or assist manage-
ment with reasonable budget projections.
• The district should consider updating and reporting to the governing board
monthly, especially as the district experiences fiscal distress and declining
enrollment. It is essential to keep the board and management informed
regarding the budget.
12. Retiree Health Benefits
Has the district completed an actuarial valuation to determine the unfunded liabil-
ity under GASB 45 requirements?
Does the district have a plan for addressing the retiree benefits liabilities?
Has the district conducted a re-enrollment process to identify eligible retirees?
Rating: No
• The district has not conducted re-enrollment to identify ineligible dependents
or retirees past age 65. In July 2004, the Governmental Accounting Stan-
dards Board released GASB No. 45, Accounting and Financial Reporting by
Employers for Postemployment Benefits Other than Pensions (OPEB). School
districts generally use a pay-as-you-go method, which fails to recognize
or measure the cost of OPEB during the period(s) that employees render
services. GASB No. 45 has a phase-in period for implementation. The district
will be required to implement provisions of this statement by fiscal year 2009-
10 and has not determined the effect of this pronouncement on the financial
statements.
• The district is in the last year of STRS Golden Handshake, but continued
obligations exist until 2014-15. The current year payment on this debt is
$12,646. The district is in the last year of a PERS Golden Handshake. The
final obligation on this debt is $30,252.
13. Leadership/Stability
Does the district have a superintendent and/or CBO that has been with the district
more than two years?
Does the governing board adopt clear and timely policies and support the admin-
istration in their implementation?
Is the district’s fiscal health acceptable in the following areas?
Lassen County Office of Education re: Westwood Unified School District
48 FISCAL HEALTH RISK ANALYSIS
Rating: No
• The district has had the current superintendent for several fiscal years. The
governing board has approved a one year leave of absence for the superin-
tendent effective with the 2009-10 fiscal year.
• The Business Manager has been with the district for two years and lacks the
technical skills necessary to oversee and manage the budgets.
14. Charter Schools
Has the district identified a specific employee or department to be responsible for
oversight of the charter?
Has the charter school submitted the required financial reports?
Has the charter school commissioned an independent audit?
Does the audit reflect findings that will not impact the fiscal certification of the
authorizing agency?
s the district monitoring and reporting the current status to the board to ensure that
an informed decision can be made regarding the reauthorization of the charter?
Rating: No
• The district has one in-district charter school, Westwood Charter School,
pursuant to Education Code 47605. The charter school operates as a non-
classroom based charter school operating in five contiguous counties. Most
of the students reside outside of the district’s boundaries.
• As noted in the Audited Financial Statements dated June 30, 2008 as a
“related party transaction,” the superintendent of Westwood USD is also the
superintendent of the charter school to which he has oversight responsibility.
• Concurrent loyalties to both entities brings into question the ability of the
superintendent to ensure that informed decisions presented to the district’s
board of trustees are without prejudice.
15. Audit Report
Did the district receive an audit report without material findings?
Can the audit findings be addressed without impacting the district’s fiscal health?
Has the audit report been completed and presented within the statutory time line?
Are audit findings and recommendations reviewed with the board?
Did the audit report meet both GAAP and GASB standards?
Fiscal Crisis & Management Assistance Team
FISCAL HEALTH RISK ANALYSIS 49
Rating: No
• The district’s last audit report for fiscal year 2006-07 showed the following
findings representing either a material weakness and/or significant defi-
ciency:
1. Material Weakness – Internal control, lack of segregation of duties.
2. Significant Deficiency – Internal control, student body fund bank
deposits – untimely.
3. Significant Deficiency – Internal control, incomplete documentation
for expenditures – 22 of 38 for purchase orders, 21 of 38 for payment
approvals and five of 38 for receipt of goods and services.
• According to the audit report, “There were no instances of noncompliance or
other matters that are required to be reported under Governmental Auditing
Standards.”
16. Facilities
Has the district passed a general obligation bond?
Has the district met the audit and reporting requirements of Proposition 39?
Is the district participating in the state’s School Facilities Program?
Does the district have sufficient personnel to properly track and account for
facility-related projects?
Has the district met the reporting requirements of the Williams Act?
Is the district properly accounting for the 3% routine repair and maintenance
account requirement at the time of budget adoption?
If needed, does the district have surplus property that may be sold or used for
lease revenues?
If needed, are there other potential statutory options?
Joint Use: Can the district enter into a joint use agreement with some entities
without declaring the property surplus and without bidding?
Joint Occupancy: The Education Code provides for a joint venture that can autho-
rize private development of district property that will result in some educational
use.
Does the district have a facilities master plan that was completed or updated in the
last two years?
Lassen County Office of Education re: Westwood Unified School District
50 FISCAL HEALTH RISK ANALYSIS
Rating: Yes
• The district has passed a general obligation bond (GO bond) that represents
voter-approved debt. Education Code 15100 authorizes a school district to
issues GO bonds for capital outlay. The bonds can include the land acquisi-
tion, new construction of building(s) or the modernization of existing build-
ings.
• The district does not participate in the state’s School Facilities Program.
17. General Ledger
Has the district closed the general ledger (books) within the time prescribed by
the county office of education?
Does the district follow a year-end closing schedule?
Have beginning balances in the new fiscal year been recorded correctly for each
fund from the prior fiscal year?
Does the district adjust prior year accruals if the amounts actually received (A/R)
or paid (A/P) are greater or less than the amounts accrued?
Does the district reconcile all payroll suspense accounts at the close of the fiscal
year?
Rating: No
• The district has not met all time lines prescribed by the Lassen COE for
annual closing activities. FCMAT closed the 2007-08 books, as previously
noted in this report.
Total “No” Responses: 16
Key
Low Risk 0-4 “No” Responses
Moderate Risk 5-9 “No” Responses
High Risk 10-14 “No” Responses
Extremely High Risk: 15-17 “No” Responses
The district’s number of “no” responses places it in the Extremely High Risk category.
Fiscal Crisis & Management Assistance Team
CASH MANAGEMENT 51
Cash Management
As the previous section demonstrates, the district’s financial situation is serious and will
require both short- and long-terms solutions. In FCMAT’s Fiscal Health and Risk Analysis,
the district had “no” responses to 16 of the 17 key indicators that measure fiscal solvency.
Deficit spending, declining enrollment, lack of stable leadership, lack of a position control
system, lack of budget monitoring, and many other indicators have contributed to the district’s
fiscal distress. It is crucial for the district to strategically manage cash reserves while making
budget reductions, or it will require a state emergency apportionment in the 2009-10 fiscal
year. Eligibility for an emergency apportionment is determined when a district is without suf-
ficient internal or external cash reserves to make payroll and fulfill other financial obligations.
Education Code Sections 41325-41328 define the conditions of an emergency apportion-
ment, intervention by the Superintendent of Public Instruction (SPI) or State Administrator
and several other options that the SPI could authorize for an insolvent district. Under state
receivership, the SPI assumes control of the district to ensure it regains solvency. Based on
the district’s projected budget and levels of deficit spending, it will need to make substantial
reductions in the MYFP or require state intervention in the 2009-10 fiscal year.
California school districts rely on state revenue limit sources, most of which come from
state aid and local property taxes. State revenue limit funds are distributed to school districts
monthly throughout the fiscal year on four different schedules. However, most property taxes
are received in December and April. Payroll for most districts starts in July and increases sig-
nificantly in September when teachers and school support staff members return to school. As
a result, fluctuations in cash flow generally occur in November, December, March and April,
because of the unequal distribution of property taxes throughout the fiscal year.
District Apportionment Schedule
The Education Code provides four apportionment schedules for school districts and
county offices. The district is apportioned according to EC Section 14041(a)(7). This
section provides for eligible school districts to be issued warrants of 15% in July, August,
September and October; 0% in November and December, and 6% in January. For the
months of February to May, inclusively, the amounts are equivalent to one-sixth of the
difference between the amount certified by the State Superintendent of Public Instruction
(SSPI) as the first apportionment and the amounts paid as certified by the advance appor-
tionment. An additional one-sixth amount is included in the February apportionment.
The first principal apportionment (P-1) is the midyear ADA certified by the school district
in December. After districts report the final ADA to the SSPI in April, commonly referred
to as P-2, the state recalculates the remaining amount due for the month of June.
In accordance with EC Section 14041.5(a) and starting with the 2002-03 fiscal year,
warrants for the apportionments for June are required to be drawn in July of the same
Lassen County Office of Education re: Westwood Unified School District
52 CASH MANAGEMENT
calendar year. This deferral of cash by the state is continued throughout FCMAT’s cash
flow statements.
Apportionment Deferrals
On February 20, 2009, the Governor signed special session bill SBX3 4 under the provi-
sions of Proposition 58. For 2008-09 only, the bill shifts 99.1% of the July 2008 advance
apportionment to September 2008 with some limited exceptions. The budget act also
defers the February 2009 apportionment to July and defers 60% of the July and 55% of
the August apportionments to September 2009. Absent subsequent trailer bill legislation
or new legislation in the future, these deferrals will continue.
District experiencing financial hardship may apply to the CDE for a wavier of this provision
no later than May 15, 2009. The district should exercise this waiver option immediately.
As the state continues to evaluate the scope of the current fiscal crisis and ways to
manage it, cash is a significant factor. The state has deferred apportionment payments
so it can meet its own cash obligations. Local educational agencies’ (LEA) cash flow
requirements are affected by this crisis. The district must begin monitoring and strategi-
cally planning for significant cash shortages over the next several months.
Internal Borrowing
Education Code Section 42603 allows local agencies to borrow between funds temporar-
ily to address cash flow shortages. According to FCMAT’s assessment of the district’s
cash flow, the district may need to borrow funds in January, March, May and June 2010
to meet its financial obligations. This situation will need to be assessed monthly and will
depend on the district’s spending pattern throughout the fiscal year. Borrowing between
funds is a common method for school districts to cover cash shortages if there is cash
available in other funds. It appears that the district can borrow from the building and
capital facilities funds.
The limitations of this type of borrowing stipulate that no more than 75% of the money
held in any fund during the current fiscal year can be transferred. In addition, funds must
be repaid in the same fiscal year (that is, by June 30) if the transfer is completed prior to
the last 120 days of the fiscal year. If funds are transferred within the last 120 days of the
fiscal year, repayment must be made before June 30 of the subsequent year.
External Borrowing
External borrowing requires additional time because it requires an LEA to access funds
from an outside agency. Options for external borrowing include the following:
Borrowing from the county office - This option, detailed in Education Code sections
42621 and 42622, depends on the county office’s willingness and ability to provide funds.
Based on the current economic outlook, this may not be an option because county offices
Fiscal Crisis & Management Assistance Team
CASH MANAGEMENT 53
are monitoring their own cash for the future. The Lassen COE has indicated its willing-
ness to explore this option further with the district.
Borrowing from the county treasurer - Education Code Section 42620 allows districts
to borrow from the county treasurer. Under Article XVI, Section 6, of the California
Constitution the county treasurer is required to provide funds to an LEA that is unable
meet its obligations. However, the county treasurer cannot loan districts money after
the last Monday in April of the current fiscal year. In addition, the governing board’s
approval by formal resolution is required. The loan cannot exceed 85% of direct taxes
levied on behalf of the school district. An advantage to this approach is that the treasurer
can take repayment directly from property tax receipts before they are distributed to the
school district. Repayment must be made from the first monies received by the school
district before any other obligation is paid.
Borrowing with TRANs - The most common external borrowing mechanism is using
Tax and Revenue Anticipation Notes (TRANs). This form of short-term borrowing allows
LEAs to sell notes against future tax receipts. Since tax receipts do not come monthly
but are received in April and December, it is common for school districts to utilize this
option. Although Lassen COE has approved this type of borrowing in the past, the district
is not eligible for this type of short-term borrowing unless specifically approved by
Lassen COE because of the district’s negative certification for the 2008-2009 fiscal year.
Conclusion
The district is experiencing a serious fiscal crisis that requires immediate intervention.
The district’s governing board and administration have been proactive in their approach
to reduce spending budgets in response to declining enrollment but are not able to keep
pace with the sharp declines in revenues.
The board and administration are working diligently to regain fiscal solvency while navi-
gating through a very difficult and evolving state budget crisis. Great care must be taken
to balance the educational needs of students with the availability of resources to support
programs.
Budget projections are inherently subject to change, especially when federal, state and
local economics conditions are uncertain and constantly change. The district will need
to ensure that multiyear forecasts are up to date and that the information they contain
is accurate and based on the most current assumptions. Because economic indicators
will change rapidly as California struggles to assess and project tax revenues to balance
the state budget, staying abreast of the most current financial information and support
will help keep the governing board informed. District staff should run several budget
scenarios to assess the effects of the apportionment deferrals, cost-of-living and deficit
reductions approved in the amended state budget act on February 20, 2009.
Lassen County Office of Education re: Westwood Unified School District
54
Fiscal Crisis & Management Assistance Team
UPDATE PER FEBRUARY 2009 STATE BUDGET 55
Westwood Unified School District
Update per February 2009 State Budget
March 24, 2009
FCMAT prepared the Westwood Unified School District’s 2008-09 budget and multiyear
projection on the basis of information available at the time fieldwork was conducted
in early December 2008. During this time, the Governor declared a fiscal emergency
to deal with a projected budget and cash shortfall, the magnitude of which the state of
California has never experienced. As the economy continued to deteriorate rapidly,
the state legislature struggled with options to close the budget gap through a series of
funding solutions and expenditure reductions to address the crisis. The new revenue
and borrowing proposals include tax increases in several categories, borrowing and the
expansion of the state lottery through the issuance of bonds that require voter approval.
Cash management strategies include several deferrals of apportionment payments to
school districts that span the 2008-09 and 2009-10 fiscal years.
On February 20, 2009, the special legislative session to address the crisis came to a close.
This legislation eliminated the previous cost of living adjustment and increased the deficit
factor on the principal apportionment. To help school districts, the Legislature allowed
them broad flexibility to backfill these major midyear revenue reductions through a series
of flexibility and transfer options that include:
• Programmatic flexibility in targeted state categorical programs
• Reduction in the required contribution of routine restricted maintenance
and deferred maintenance
• Categorical fund balance transfer, with some exceptions, to unrestricted
general fund programs.
At the time of this writing, several trailer bills are in process. Specific details of these
are not available; however, these bills should not have a significant effect on the district’s
financial situation.
New State Budget – Summary of Impacts
Table 11 provides the significant differences between the governor’s January proposal and
the final state budget approved in February 2009.
Lassen County Office of Education re: Westwood Unified School District
56 UPDATE PER FEBRUARY 2009 STATE BUDGET
Table 11: Comparison of Governor’s State Budget Proposals to Final State
Budget Act for Public Education
Proposed Final State
Fiscal Year Budget Budget Difference
2009-10 2009-10
Revenue Limit - Deficit
2008-09 9.69% 7.844% -1.846%
2009-10 16.16% 13.094% -3.066%
2010-11 16.16% 13.094% -3.066%
State Categorical Program Funding Reductions
2008-09 0.00% 15.40% 15.40%
2009-10 0.00% 4.50% 4.50%
2010-11 0.00% 0.00% 0.00%
The net effect of the above changes to FCMAT’s Multiyear Financial Projection (MYFP)
over the 2008-09 through 2010-11 fiscal years is a decrease to the general fund ending
balance of $16,225. At the end of 2010-11, the district is projected to experience a short-
fall of $2,299,679, absent additional budget reductions or revenue enhancements (see
Table 16 of this addendum).
Table 12 provides a summary of the estimated total impact of the new state budget on
Westwood USD relative to FCMAT’s original projection.
Table 12: Impact of State Budget on Westwood USD’s MYFP
Revenue Limit and State Categorical Programs
2008-09 2009-10 2010-11 Total
Revenue Limit Funding 44,788 73,517 69,222 187,527
Categorical Programs -58,283 -74,866 -70,603 -203,752
Total Impact -13,495 -1,349 -1,381 -16,225
Categorical program reductions were implemented in the final state budget in three tiers,
with no reductions for Tier I programs, and reductions as noted below for Tier II and III
programs.
Complete categorical program flexibility was included with the governor’s proposed
budget. The final state budget includes flexibility for only the Tier III programs, which is
extended through the 2012-13 year.
Fiscal Crisis & Management Assistance Team
UPDATE PER FEBRUARY 2009 STATE BUDGET 57
Tier I programs – No Reductions and No Flexibility
After School Education and Safety
Child Development
Child Nutrition
Economic Impact Aid (EIA)
Home to School and Special Education Transportation
K-3 Class Size Reduction
Quality Education Investment Act
Special Education
Tier II programs – Reductions and No Flexibility
Adults in Correctional Facilities
Apprenticeship Programs
Agricultural Vocational Education
Charter School Facility Grants
English Language Acquisition Program
Foster Youth Educational Services
K-12 High Speed Network
Partnership Academies
Pupil Testing
Year-Round Education
Tier III programs - Reductions and Flexibility
AB 825 Targeted Instructional Improvement Block Grant
AB 825 Teacher Credentialing Block Grant
AB 825 Professional Development Block Grant
AB 825 Pupil Retention Block Grant
AB 825 School Safety Consolidated
AB 825 School and Library Improvement
Admin Training Program (AB 430)
Adult Education
Alternative Credentialing
Arts and Music Block Grant
Bilingual Teacher Training
California High School Exit Exam (CAHSEE) Intervention
California School Age Families Education (CalSAFE)
Student Leadership
Lassen County Office of Education re: Westwood Unified School District
58 UPDATE PER FEBRUARY 2009 STATE BUDGET
Tier III programs - Reductions and Flexibility
Center for Civic Education
Certificated Staff Mentoring Program
Charter Schools Categorical Block Grant
Child Oral Health Assessments
Community Based English Tutoring (CBET)
Community Day Schools
Counselors, Grades 7-12
Class-Size Reduction-9th Grade
Deferred Maintenance
Educational Technology
Gifted and Talented Education (GATE)
High Priority Schools and II/USP
Indian Education Centers
Instructional Materials Fund
International Baccalaureate
National Board Certification
Peer Assistance and Review
Physical Education Teacher
Recruitment Grants
Readers for the Blind
Regional Occupational Centers/Programs
SB 472 Professional Development
School Safety Competitive Grant
Specialized Secondary Programs
Supplemental Hourly Programs
Teacher Dismissal Apportionments
Williams Audits
Table 13 provides FCMAT’s estimate of categorical program funding reductions for the
district during the MYFP period.
Table 13: Estimated Categorical Program Funding Reductions
Categorical Programs 2008-09 2009-10 2010-11 Total
Tier I -0- -0- -0- -0-
Tier II -1,647 -2,045 -2,099 -5,791
Tier III -56,636 -72,821 -68,504 -197,961
Total Effect -58,283 -74,866 -70,603 -203,752
Fiscal Crisis & Management Assistance Team
UPDATE PER FEBRUARY 2009 STATE BUDGET 59
Attached to this report are Appendices A and B that provide SACS resource-level pro-
jection detail of how these reductions and the related flexibility options will affect the
district for the 2008-09, 2009-10 and 2010-11 years.
FCMAT did not assume any flexibility in its original MYFP because the team could not
know which proposals the district would ultimately choose to implement. FCMAT has
not assumed any flexibility in this update to the district’s projection.
FCMAT did not assume the district would take advantage of the reduced K-3 class size
reduction program penalties because the team could not know what level of penalties the
district would ultimately accept.
Table 14 provides a side-by-side comparison of the flexibility provisions in the gover-
nor’s proposal and the final state budget.
Table 14: Comparison of Categorical Program and School Year
Flexibility Options
Proposed Budget Final State Budget
Program Fiscal Year
2009-10 2009-10
Categorical Flexibility 2008-09 100% Tier III Only
2009-10 100% Tier III Only
2010-11 100% Tier III Only
K-3 CSR Flexibility 2008-09 100% Penalty Reduced
2009-10 100% Penalty Reduced
2010-11 100% Penalty Reduced
Update to FCMAT Report Tables
Tables 15, 16, and 17 provide updates to information contained in FCMAT’s original
report regarding the following:
Table 15 – Surplus/-Deficit Spending, General Fund
Table 16 – Components of Ending Fund Balance, General Fund
Table 17 – Shortfall, Ending Fund Balance, General Fund
In all of these tables, the impact of the final state budget is reflected. While the impact
is less severe than originally projected, the district is still in need of substantial budget
reductions or revenue enhancements to avoid a state loan and the assignment of a state
administrator.
Lassen County Office of Education re: Westwood Unified School District
60 UPDATE PER FEBRUARY 2009 STATE BUDGET
Table 15: Surplus/-Deficit Spending, General Fund
2006-07 2007-08 2008-09 2009-10 2010-11
Revenues 4,497,103 3,963,779 3,319,365 3,022,784 2,878,747
Expenditures 4,334,829 4,197,589 3,609,068 3,675,441 3,904,192
Subtotal 162,274 -233,810 -289,703 -652,657 -1,025,445
Transfer In/Out -152,043 111,605 -50,000 -50,000 -50,000
Surplus/-Deficit 10,231 -122,205 -339,703 -702,657 -1,075,445
Fund Balance:
Beginning 200,457 262,553 154,223 -185,480 -888,137
Audit Adjustment 51,865 13,875
Ending 262,553 154,223 -185,480 -888,137 -1,963,582
Table 16: Components of Ending Fund Balance, General Fund
2008-09 2009-10 2010-11
Ending Fund Balance -185,480 -888,137 -1,963,582
Revolving Cash
Stores
Prepaid Expenditures
Designated for Economic -182,953 -186,272 -197,710
Uncertainties
Legally Restricted -167,901 -149,602 -138,387
Shortfall -536,334 -1,224,011 -2,299,679
Table 17: Shortfall Ending Fund Balance, General Fund
2008-09 2009-10 2010-11
Negative Ending Fund Balance
FCMAT - Projected -185,480 -888,137 -1,963,582
Westwood USD – disapproved budget -78,662 584,279 590,898
dated 06/28/08
Difference -106,818 -1,472,416 -2,554,471
Fiscal Crisis & Management Assistance Team
UPDATE PER FEBRUARY 2009 STATE BUDGET 61
Federal Economic Stimulus Legislation
Another significant event since the completion of FCMAT’s fieldwork is the passage
of the federal American Recovery and Reinvestment Act in February 2009. This act
contains significant new funding for public education. However, it is unclear how much of
this funding will directly benefit local public school districts. Thus, the FCMAT team has
not included new funding from the act in this addendum.
Cash Deferrals
The new state budget provides for a modified set of deferrals of both principal apportion-
ment as well as class size reduction revenues. This, coupled with existing deferrals,
creates increased stress on school district cash flow, making it more imperative for the
district to regularly monitor its cash balances.
Table 18 provides the principal apportionment deferrals as approved in the new state
budget. Note: Some trailer bill legislation may adjust these amounts and/or dates.
Table 18: Cash Deferrals - Principal Apportionment
Amount and Timing of Deferrals
P-2 shift enacted in legislation 2002-03 – no
exceptions 100% of June 2009 paid in July 2009
New state budget, February 2009* 50% of February 2009 paid in July 2009
New state budget, February 2009* 60% of July 2009 paid in September 2009
55% of August 2009 paid in September
New state budget, February 2009* 2009
* Waivers must be submitted no later than May 15, 2009 for financial hardship consideration.
Source: California Department of Education
Lassen County Office of Education re: Westwood Unified School District
62
Fiscal Crisis & Management Assistance Team
APPENDICES 63
Appendices
• Appendix A – Tier II Programs – Final State Budget – Reductions/Flexibility
• Appendix B – Tier III Programs – Final State Budget – Reductions
• Appendix C – Study Agreement
Lassen County Office of Education re: Westwood Unified School District
64 APPENDICES
Appendix A
Tier II Programs - Final State Budget - Reductions/Flexibility
Tier II Programs 2008-09
FCMAT 15.4%
Projection Reduction Adjusted Flexibility
Agricultural Vocational 10,696 9,049 -1,647 -0-
Education
Total Reduction 10,696 9,049 -1,647 -0-
Fiscal Crisis & Management Assistance Team
APPENDICES 65
Appendix B
Tier III Programs - Final State Budget – Reductions
Tier III Programs 2008-09
FCMAT 15.4%
Adjusted Flexibility
Projection Reduction
AB 825 Targeted Instructional 46,396 39,251 -7,145 4,445
Improvement Block Grant
AB 825 Professional 28,228 23,881 -4,347 29,366
Development Block Grant
AB 825 Pupil Retention Block 139,956 118,403 -21,553 24,695
Grant
AB 825 School and Lib 38,801 32,826 -5,975 15,619
Improvement
Arts and Music Block Grant 13,812 11,685 -2,127 8,887
Gifted and Talented Education 16,132 13,648 -2,484 5,893
(GATE)
Instructional Materials Fund 23,322 19,730 -3,592 27,917
Peer Assistance and Review 3,684 3,117 -567 3,960
Regional Occupational 41,438 35,057 -6,381 0
Centers/Programs
School Safety & Violence 16,004 13,539 -2,465 4,482
Prevention
Total 367,773 311,137 -56,636 125,264
*eliminated in 2009-10
**complete flexibility to transfer to any other educational purpose, unrestricted or restricted, through 2012-13
n/a = not applicable to the general fund
Lassen County Office of Education re: Westwood Unified School District
66 APPENDICES
Appendix C
Study Agreement
FISCAL CRISIS & MANAGEMENT ASSISTANCE TEAM
STUDY AGREEMENT
October 22, 2008
The FISCAL CRISIS AND MANAGEMENT ASSISTANCE TEAM (FCMAT),
hereinafter referred to as the Team, and the Lassen County Office of Education,
hereinafter referred to as the COE, mutually agree as follows:
1. BASIS OF AGREEMENT
The Team provides a variety of services to school districts and county offices of
education upon request. The COE has requested that the Team provide for the
assignment of professionals to study specific aspects of the Westwood Unified
School District, hereinafter referred to as the District. These professionals may
include staff of the Team, County Offices of Education, the California State
Department of Education, school districts, or private contractors. All work shall
be performed in accordance with the terms and conditions of this Agreement.
The District has not filed the Unaudited Actuals report for the 2007-08 fiscal
year, received a $350,000 loan from the COE in order to pay its bills, continues to
experience declining enrollment, and is impacted by its charter school. The COE
estimates that based current cash balances, the district could deplete its cash by
April 2009.
The COE is preparing to notify the Superintendent of Public Instruction that it
has disapproved the District’s budget. The COE, in accordance with its authority
under Education Code 42127 is requesting the Team to review the fiscal condition
of the district and complete specific tasks.
2. SCOPE OF THE WORK
A. Scope and Objectives of the Study
Fiscal Crisis & Management Assistance Team
APPENDICES 67
1) Assist the district with the year end closing of the 2007-08 financial
transactions, for all funds.
2) Conduct a review of the District’s 2008-09 Adoption budget and
prepare a Multi-Year Financial Projection of the General Fund for
2009-10 and 2010-11 using FCMAT’s Budget Explorer software.
3) Prepare a Multi-Year Cash Flow Projection for the current and first
subsequent year to verify future cash shortfall amounts.
B. Services and Products to be Provided
1) Orientation Meeting - The Team will conduct an orientation
session at the COE to brief COE and District management and
supervisory personnel on the procedures of the Team and on the
purpose and schedule of the study.
2) On-site Review - The Team will conduct an on-site review at the
District office and at school sites if necessary.
3) Progress Reports - The Team will hold an exit meeting at the
conclusion of the on-site review to inform the COE and District of
significant findings and recommendations to that point.
4) Exit Letter - The Team will issue an exit letter approximately
10 days after the exit meeting detailing significant findings and
recommendations to date and memorializing the topics discussed
in the exit meeting.
5) Draft Reports - Sufficient copies of a preliminary draft report will
be delivered to the COE administration for review and comment.
6) Final Report - Sufficient copies of the final study report will be
delivered to the COE and District following completion of the
review.
7) Follow-Up Support – Six months after the completion of the study,
FCMAT will return to the District, if requested, to confirm the
District’s progress in implementing the recommendations included
in the report, at no cost. Status of the recommendations will be
documented to the COE and District in a FCMAT Management
Letter.
3. PROJECT PERSONNEL
The study team will be supervised by Anthony L. Bridges, Deputy Executive
Officer Fiscal Crisis and Management Assistance Team, Kern County
Superintendent of Schools Office. The study team may also include:
A. FCMAT Fiscal Intervention Specialist
B. FCMAT Fiscal Consultant
Lassen County Office of Education re: Westwood Unified School District
68 APPENDICES
Other equally qualified consultants will be substituted in the event one of the
above noted individuals is unable to participate in the study.
4. PROJECT COSTS
The cost for studies requested pursuant to E.C. 42127.8(d)(1) shall be:
A. $500.00 per day for each Team Member while on site, conducting
fieldwork and analysis at other locations, preparing and presenting reports,
or participating in meetings.
B. All out-of-pocket expenses, including travel, meals, lodging, etc. Based on
the scope of work identified in section 2 A, estimated total cost is $15,000.
The COE will be invoiced at actual costs, with 50% of the estimated cost
due following the completion of the on-site review and the remaining
amount due upon acceptance of the final report by the COE.
C. Any change to the scope will affect the estimate of total cost.
D. At the completion of the study and upon payment to FCMAT by the COE,
the COE is eligible to submit a claim for reimbursement of 25% of the total
cost pursuant to the provisions of AB 1200 and Education Code 42127.
Payments for FCMAT services are payable to Kern County Superintendent of
Schools- Administrative Agent.
5. RESPONSIBILITIES OF THE COE
A. The COE will provide office and conference room space while on-site
reviews are in progress.
B. The COE will provide the following (if requested):
1) A map of the local area
2) Existing policies, regulations and prior reports addressing the study
request
3) Current organizational charts
4) Current and four (4) prior year’s audit reports
5) Any documents requested on a supplemental listing
C. The COE Administration will review a preliminary draft copy of the
study. Any comments regarding the accuracy of the data presented in the
report or the practicability of the recommendations will be reviewed with
the Team prior to completion of the final report.
Fiscal Crisis & Management Assistance Team
APPENDICES 69
Pursuant to EC 45125.1(c), representatives of FCMAT will have limited contact
with COE or District pupils. The COE and District shall take appropriate steps to
comply with EC 45125.1(c).
6. PROJECT SCHEDULE
The following schedule outlines the planned completion dates for key study
milestones:
Orientation: to be determined
Staff Interviews: to be determined
Exit Interviews: to be determined
Preliminary Report Submitted: to be determined
Final Report Submitted: to be determined
Board Presentation: to be determined
Follow-Up Support: If requested
7. CONTACT PERSON
Please print name of contact person: Jud Jensen, County Superintendent
Telephone 530 257-2196
FAX 530 257-2518
Internet Address jjensen@lassencoe.org
Jud Jensen, County Superintendent Date
Lassen County Office of Education
October 22, 2008
Barbara Dean, Deputy Administrative Officer Date
Fiscal Crisis and Management Assistance Team
Lassen County Office of Education re: Westwood Unified School District