Placer Hills Union School District Report

Placer Hills Union School District Special Education Review April 30, 2010 Joel D. Montero Chief Executive Officer April 30, 2010 Fred Adam, Superintendent Placer Hills Union School District 16801 Placer Hills Road Meadow Vista, California 95722 Dear Superintendent Adam: In December 2009, the Placer Hills Union School District School District and the Fiscal Crisis and Management Assistance Team (FCMAT) entered into an agreement to provide a review of the district’s special education programs and placements. Specifically, the agreement stated that FCMAT would perform the following: 1. Conduct a review of the district’s Special Education Department and provide recom- mendations regarding the instructional strategies and delivery model for services. This component will provide an analysis of operational improvements to assist the department to operate a more efficient and cost effective program. 2. Evaluate district student placement in the Placer County Office of Education Special Education programs and make recommendations or placement options that include the following: a. The cost and academic impact of transferring district students in the Placer COE programs to regional programs. b. Conduct the same cost and academic analysis of the district serving these students versus the Placer COE. The attached final report contains the study team’s findings and recommendations with regard to the above areas of review. We appreciate the opportunity to serve you, and we extend our thanks to all the staff of the Placer Hills Union 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: Christine L. Frazier - Office of Kern County Superintendent of Schools 4 Fiscal Crisis & Management Assistance Team TABLE OF CONTENTS TABLE OF CONTENTS 1 Table of Contents Foreword .............................................................. 3 Introduction ......................................................... 5 Executive Summary ............................................ 7 Findings and Recommendations ...................... 9 Operational Efficiency ..........................................................9 District Program Options .....................................................13 Appendices ....................................................... 17 Placer Hills Union School District 1 2 2 Fiscal Crisis & Management Assistance Team FOREWORD 3 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 09/10 Projected Placer Hills Union School District 3 seidutS fo rebmuN 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 districts could meet their financial commitments on a multiyear basis. AB 2756 provides specific responsibilities to FCMAT with regard to districts that have received emer- gency 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 com- munity 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 request- ing agencies. Total Number of Studies....................743 Total Number of Districts in CA ........1,050 Management Assistance.............................705 (94.886%) Fiscal Crisis/Emergency ................................38 (5.114%) Note: Some districts had multiple studies. Eight (8) districts have received emergency loans from the state. (Rev. 12/8/09) 4 4 Fiscal Crisis & Management Assistance Team INTRODUCTION Introduction Background The Placer Hills Union Elementary School District is located in Placer County. With an enrollment of 1,133 students, 9.3% of its students are identified for special education. The general fund contribution for special education for the 2009-10 school year is 65% ($850,000), which includes transportation costs. The statewide average general education contribution for special education is between 25% and 29%. The district has requested a FCMAT study to determine the cost effectiveness of operating its own special education programs in an effort to reduce the encroachment of special education on the general fund. In December 2009 the district requested FCMAT to review the special education programs and services provided by the district and county office of education. The study agreement specifies that FCMAT will perform the following. 1. Conduct a review of the district’s Special Education Department and provide recom- mendations regarding the instructional strategies and delivery model for services. This component will provide an analysis of operational improvements to assist the department to operate a more efficient and cost effective program. 2. Evaluate district student placement in the Placer County Office of Education special education programs and make recommendations or placement options that include the following: a. The cost and academic impact of transferring district students in the PCOE programs to regional programs b. Conduct the same cost and academic analysis of the district serving these students versus the PCOE. Study Guidelines FCMAT visited the district on February 25 and 26, 2010 to conduct interviews with county and district staff and parents, and to collect data and review documents. This report is the result of those activities and is divided into the following sections: • Executive Summary • Operational Efficiency • Program Options • Appendices Placer Hills Union School District 5 INTRODUCTION Study Team The study team was composed of the following members: William P. Gillaspie, Ed.D. Chief Management Analyst Fiscal Crisis and Management Assistance Team Sacramento, California JoAnn Murphy FCMAT Special Education Consultant Santee, California Anne Stone FCMAT Special Education Consultant Mission Viejo, California Laura Haywood Public Information Specialist Fiscal Crisis and Management Assistance Team Bakersfield, California 6 Fiscal Crisis & Management Assistance Team EXECUTIVE SUMMARY Executive Summary Placer Hills Union Elementary School District has a district enrollment of 1,133 students and currently serves 106 students in special education. As a small district it has limited options for special education services and has relied on the Placer County Office of Education to serve its severely handicapped students. The costs for those services are billed back to the district. The costs of district-operated special education programs/services and escalating bill- back costs from the Placer COE for special education services has increased the general fund contribution to 65% ($850,000) for fiscal year 2009-10. This includes transportation costs. The statewide average contribution for special education is between 25% and 29%. After analyzing the bill-back costs for Placer COE special education services along with the current service delivery model for the district’s special education students and transportation costs, FCMAT was able to provide the district with findings and recommendations that could reduce the general fund contribution from 65% ($850,000) to 32% ($415,011) for the 2010-11 school year. The reduced encroachment would result from increased efficiency of district-operated programs and services for a savings of $191,240, and the expansion of district options that would eliminate the need for some students to attend county programs, yielding an estimated savings of $223,771. Full implementation of these recommendations will involve the essential recommended staffing reductions and the creation of new district-run program options. Both present challenges to the district but would benefit students by allowing them to attend a school in their district of residence. The district leadership has demonstrated a firm commit- ment to building solid programs and services for students with disabilities while meeting the goal of reducing encroachment. Placer Hills Union School District 7 8 8 Fiscal Crisis & Management Assistance Team OPERATIONAL EFFICIENCY Findings and Recommendations Operational Efficiency Students identified for special education equal 9.3% of the district’s enrollment of 1,133, which is below the statewide average of 10%. Twenty-seven percent of the district’s special education students attend programs outside the district in both Placer COE and Auburn Union School District. A redesign of the district’s delivery model and support services could achieve greater efficiency and provide more in-district educational options. The district offers no in-district programs for preschool age students. Seven students attend preschool programs at the Placer COE, and five more students will be eligible for services at age The district has the capacity to expand 3 for the 2010-11 school year. Because of the its in-district programs to include both increased number of students, the district now has the capacity to develop its own preschool resource and special day class services. program. In-district services for special education students are limited to designated instruction (speech and language) pull-out and resource specialist services. Students requiring special day class services attend Placer COE or regional programs outside the district, with the costs billed back to the district. The district has the capacity to expand its in-district programs to include both resource and special day class services. No new resources will be needed to complete this program expansion. District resources for resource specialist program (RSP) services could be used more effi- ciently. EC 56362(6)(c) defines the maximum caseload for resource specialists as 28 students. The current average caseload for the district’s resource specialists is 22 students. The district will achieve greater efficiency with a staffing formula no less than 26 students per RSP. The district should reduce the RSP position by .5 for a savings of $38,547 or use this resource as part of the RSP/SDC expansion of services. The district should consider creating an RSP/SDC option that would provide services for students requiring specialized academic instruction, which is defined in 34 CFR 300.26(b)(3) as: “adapting, as appropriate to the needs of the child with a disability the content, methodol- ogy, or delivery of instruction to ensure access of the child to the general curriculum, so that he or she can meet the educational standards within the jurisdiction of the public agency that apply to all children.” A combined RSP/SDC option provides the flexibility to meet the range of student needs for most of the school day if necessary. EC 56362(6)(f) requires an aide for 80% of the resource specialists. The district currently provides each RSP with a six-hour aide. A reduction in the level of RSP instructional aide support to within the requirements of the Education Code will yield a savings of $15,906. Placer Hills Union School District 9 OPERATIONAL EFFICIENCY In addition to the mandated level of instructional aide support, the district also provides 5.7 additional six-hour aides to support the resource program. Most of these aides are assigned to the middle school. While the additional aides enhance the classroom supports for students, they are not required for students to receive an appropriate program. The district should eliminate 5.7 instructional aide positions for a savings of $151,130. The district has a practice of providing six-hour benefitted aide positions. Many districts have changed their practice in this area and hire two three-hour aides to fill a need for six hours of aide time. The district would eliminate the cost of benefits for an additional savings of approximately $15,000 if they The extended school year services can and adopted the practice of two three- hour aides rather than six-hour aides. should be provided by the district. The district has one speech therapist with a contract equal to 125%. This contract was negotiated because the therapist has carried caseloads that exceeded the statewide average of 55 students per therapist in the recent past. The current average caseload for 2009-10 is 50 students, and that caseload will remain within the statewide average. The district should reduce the contract for the speech therapist to 1.0 for the 2010-11 school year for a savings of $24,204. The district has forwarded referrals for four RSP students to receive extended school year (ESY) services through the Placer COE programs. County staff reported that the referrals were sent by a teacher without prior review or approval from the superintendent or director of special education. The Placer COE staff has indicated that there is no existing program for these students but expressed a willingness to design a program; however, additional bill- back costs would be incurred. The extended school year services can and should be provided through the district. Recommendations The district should: 1. Increase the staffing formula to 26 students per resource specialist to maximize resources. 2. Eliminate .5 RSP positions for a savings of $38,547. 3. Reduce the level of instructional aide support for all resource specialists to align with Education Code requirements for a savings of $15,906. 4. Eliminate 5.7 additional instructional aides provided to RSP programs for a savings of $151,130. 5. Eliminate (through attrition) the six-hour benefitted instructional aide positions and replace with two three-hour aide positions for a savings of $15,000. 6. Reduce the contract for the speech therapist from 125% to 100% for a savings of $24,204. 10 Fiscal Crisis & Management Assistance Team OPERATIONAL EFFICIENCY 7. Rescind the four referrals to Placer COE for extended school year services to avoid further bill-back costs. Develop in house ESY services for these students. 8. Develop internal review processes that include the director of special education and the superintendent as a mechanism for controlling district costs. 9. Develop an in-district preschool program to serve the increased number of district students who are eligible for this service. Summary of Projected Annual Savings for Placer Hills UESD Area Potential Reduction Savings to the district Resource specialist .5 position $38,547* Reduction in RSP aide support RSP instructional aides $15,906 to align with ED requirements Additional RSP aide Reduce additional RSP aides $151,130 support support by 5.7 positions Eliminate six-hour benefitted 6 hour benefitted aide aide positions and replace with $15,000* positions two three-hour aides Reduce speech therapist con- Speech Therapist $24,204 tract from 125% to 100% Total Potential Reductions $244,787 2010-11 Reductions $191,240 *These areas are included in potential reductions but may take longer than one year to implement. For that reason, they are not included in the overall savings for 2010-11. Placer Hills Union School District 11 12 12 Fiscal Crisis & Management Assistance Team DISTRICT PROGRAM OPTIONS District Program Options According to the December 2008 pupil count, 106 special education students are served in the district’s schools. The district was billed by the Placer COE for 17.5 special day class (SDC) students and 4.25 language intensive (LI) students during the 2008-09 school year. Seventeen percent of all Placer Hills special education students attended a Placer COE pro- gram. The final bill-back for these students was $348,813. Sixteen students attend the SDC classes operated by the Placer COE. The diverse ages and disabilities of the Placer Hills students in the Placer COE classes do not lend themselves to a sufficient number of students in any one category and age group to establish a specific class, as shown in the table below: Placer COE Programs and District Students in Each Program SDC classes at PCOE Placer Hills Students Enrolled Deaf/Hard of Hearing (Elementary) 1 Deaf/Hard of Hearing (Infants) 2 Functional Living Skills 5 Language Intensive 7 Multiple Handicapped 3 Autism 4 Emotionally Disturbed 2 Visually Impaired 1 Placer COE’s projected base cost for the LI program in 2009-10 is $281,709. The Placer Hills portion of that bill is estimated to be $128,049. However, since that projection two addi- tional district students have been enrolled in the program, so the district’s cost will increase. Placer COE staff indicated that the referral rate for the LI class will decrease in 2010-11 because programs are being developed in other member districts to serve the LI population. If Placer Hills continued to refer students to that program, it would be billed for the full cost of the program, which could easily be close to $250,000. Six district students are enrolled in special education programs in the Auburn School District. There is no formal Memorandum of Understanding (MOU) for this enrollment, but there is a verbal agreement between the districts regarding costs. The cost to Placer Hills to send students to Auburn Union for 2009-10 without the cost of transportation is projected to be: Speech/Language (only at a Head Start preschool) $ 9,200 Language Intensive SDC Class $11,800 Other SDC class 9,500 Placer Hills Union School District 13 DISTRICT PROGRAM OPTIONS After reviewing the data and interviewing the superintendent, FCMAT found that if the district develops an SDC for moderate severe students with an emphasis on language and autism, most of these students could receive their special education in the district at a signifi- cant savings (see table below). Summary of Costs, Proposed Reductions, New Costs and Final Reductions Proposed 2008-09 2009-2010 Costs Final Reductions Reductions Rock Creek New Placer Hills SH/SDC SH/SDC autism 3 @ Pre-K class $51,222 $348,813 $356,016 $17,074 = $100,000 + $51,222 Rock Creek Language Language Language $25,000 start-up Intensive Intensive Intensive 7@ $56,749 costs $92,402 $181,749 $25,610 = $181,749 Transportation $11,500 Salary & Transportation Transportation Transportation $96,500 Benefits + $119,000 $119,000 $119,000 $10,000 Mileage = $22,500 Auburn Auburn Auburn Program Program Program $9,200 $19,300 $16,112 $37,700 $28,500 FCMAT reviewed the files of 18 Placer Hills special education students and documented the program changes that would occur for these students if new programs were developed in the district. Numbers have been assigned to students to protect confidentiality. 14 Fiscal Crisis & Management Assistance Team DISTRICT PROGRAM OPTIONS Current and Proposed Placement for Placer Hills Special Education Students Recommended Placement Placement Being Student Current Placement if New District Programs Considered for 2010-11 Developed 1 PCOE – LI District K program District K program 2 PCOE – LI Head Start w/Auburn speech Head Start w/district speech 3 PCOE – LI District K program District K program 4 PCOE – LI Head Start w/Auburn speech Head Start w/district speech 5 PCOE – LI District speech District speech 6 PCOE – LI Auburn LI District SDC preschool/K class 7 Auburn – LI District K program District K program Auburn Head Start w/Auburn 8 Auburn – SDC Head Start w/Auburn speech speech 9 PCOE – autism Auburn LI District SDC preschool/K class 10 PCOE – autism Auburn – K LI District SDC preschool/K class 11 PCOE – autism PCOE – autism District SDC preschool/K class 12 Auburn – preschool Auburn – SDC District SDC preschool/K class 13 Auburn – preschool Head Start w/Auburn speech Head Start w/district speech 14 Auburn – preschool District K program District K program 15 PCOE – SDC PCOE – SDC PCOE - SDC 16 PCOE – SDC PCOE – SDC PCOE - SDC 17 PCOE HH PCOE – HH PCOE - HH 18 PCOE – autism PCOE – autism PCOE – autism (age 6) Recommendations The district should: 1. Notify Placer COE that Placer Hills will not refer any students to its language intensive program for the 2010-11 school year and may not send any students to its preschool/kindergarten autism program. 2. Begin meeting with the parents of students enrolled in the preschool and autism program regarding possible changes for the 2010-11 school year. 3. Carefully review the IEPs and observe each of the district’s students in Placer COE and Auburn Union programs to determine: a. Which students may be able to return to the district if additional service options are available b. What will be required to operate a comparable program to meet the IEP goals for these students Placer Hills Union School District 15 DISTRICT PROGRAM OPTIONS 4. Meet regularly with the SELPA, Placer COE, Auburn Union and the other small districts in the area to determine which districts could operate SDC and preschool programs in a regional model to serve some of the students now in Placer COE pro- grams. a. Develop MOUs with the other small districts regarding but not limited to: i. The referral process for a regional class ii. The cost of serving the students iii. The responsibility of the district of residence for excess costs iv. The responsibility of the district of residence regarding any due process/ complaints that may arise. 16 Fiscal Crisis & Management Assistance Team APPENDICES Appendices Appendix A - Study Agreement Placer Hills Union School District 17 APPENDICES 18 Fiscal Crisis & Management Assistance Team APPENDICES FISCAL CRISIS & MANAGEMENT ASSISTANCE TEAM STUDY AGREEMENT December 14, 2009 The FISCAL CRISIS AND MANAGEMENT ASSISTANCE TEAM (FCMAT), hereinafter referred to as the Team, and the Placer Hills Union ElementarySchool Districthereinafter referred to as the District, 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 District has requested that the Team provide for the assignment of professionals to study specific aspects of the Placer Hills Union ElementarySchool Districtoperations. 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. 2. SCOPE OF THE WORK A. Scope and Objectives of the Study The scope and objectives of this study are to conduct the following: 1. Conduct a review of the District’s Special Education Department and provide recommendations regarding the instructional strategies and delivery model for services. This component will provide an analysis of operational improvements to assist the department to operate a more efficient and cost effective program. 2. Evaluate district student placement in the Placer County Office of Education Special Education programs and make recommendations or placement options that include the following; a. The cost and academic impact of transferring district students in the PCOEprograms to regional programs b. Conduct the same cost and academic analysis of the District serving these students versus the PCOE. 1 Placer Hills Union School District 19 APPENDICES B. Services and Products to be Provided 1) Orientation Meeting -The Team will conduct an orientation session at the District to brief 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) Exit Meeting-The Team will hold an exit meeting at the conclusion of the on-site review to inform the 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 District administration for review and comment. 6) Final Report -Sufficient copies of the final study report will be delivered to the 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 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. Bill Gillaspie, FCMAT Chief Management Analyst B. JoAnneMurphy, FCMAT Consultant C. AnneStone, FCMAT Consultant Other equally qualified consultants will be substituted in the event one of the above noted individuals is unable to participate in the study. 2 20 Fiscal Crisis & Management Assistance Team APPENDICES 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 at other locations, preparing and presenting reports, or participating in meetings. B. All out-of-pocket expenses, including travel, meals, lodging, etc. The District will be billed for the daily rate and expenses of the independent consultant, only. Based on the elements noted in section 2 A, the total cost of the study is estimated at $9,000.00. The District 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 District. C. Any change to the scope will affect the estimate of total cost. Payments for FCMAT services are payable to Kern County Superintendent of Schools- Administrative Agent. 5. RESPONSIBILITIES OF THE DISTRICT A. The District will provide office and conference room space while on-site reviews are in progress. B. The District 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 (2) prior year's audit reports 5) Any documents requested on a supplemental listing C. The District Administration and the Placer County Office of Education 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. Pursuant to EC 45125.1(c), representatives of FCMAT will have limited contact with District pupils. The District shall take appropriate steps to comply with EC 45125.1(c). 3 Placer Hills Union School District 21 APPENDICES 6. PROJECT SCHEDULE The following schedule outlinesthe planned completion dates for key study milestones: Orientation: January/February Staff Interviews: January/February 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 Name of contact person: Fred H. Adam, Superintendent Telephone: 530-878-2606 FAX E-Mail: adam@phusd.k12.ca.us Fred H. Adam, Superintendent Date Placer Hills Union Elementary School District December 14, 2009 Anthony L. Bridges, Deputy Executive Officer Date Fiscal Crisis and Management Assistance Team In keeping with the provisions of AB1200, the County Superintendent will be notified of this agreement between the District and FCMAT and will receive a copy of the final report. 4 22 Fiscal Crisis & Management Assistance Team