Parma City School District Performance Audit. The chart below provides an overview of the HRD s organizational structure and staffing levels.

Transcription

1 Human Resources Background Organizational Chart The following section summarizes the performance review of Parma City School District s (PCSD) human resources and the operations of the human resources department (HRD). For purposes of the performance audit, the personnel responsible for benefits administration are considered a part of the HRD although they are under the supervision of the treasurer s office. The chart below provides an overview of the HRD s organizational structure and staffing levels. Human Resources Department Organization Function Human Resources 3-1

2 The human resources department (HRD) and the business manager are responsible for coordinating the activities and programs for the recruitment and selection of employees, administering benefits, monitoring compliance with employment standards (criminal record background check and teacher certification requirements), facilitating employee performance evaluations, administering and monitoring the district s grievance policies and procedures, conducting disciplinary hearings, negotiating and administering labor contracts, maintaining job descriptions, maintaining employees personnel files and placing substitute teachers and selected substitute classified employees. Summary of Operations All Parma City School District (PCSD) employees are categorized as either certificated or classified staff. Certificated staff includes principals, teachers, counselors, therapists, librarians and psychologists. Classified staff includes educational assistants, secretaries, maintenance and custodial employees, bus drivers, food service employees and other miscellaneous employees. The assistant superintendent of human resources reports to the superintendent and manages all of the department s primary functions for certificated personnel. These functions include but are not limited to negotiating and administering the Parma Education Association s (PEA) union contract, recruiting and hiring certificated employees, administering personnel policies, preparing and maintaining certificated job descriptions, ensuring timely completion of certificated evaluations and managing the teacher transfer process. The business manager reports to the superintendent and spends approximately 30 percent of his time performing human resources functions for classified employees. These functions include negotiating and administering the Ohio Association of Public School Employees (OAPSE) union agreement, preparing and maintaining job descriptions, hiring classified employees, ensuring timely completion of evaluations, and managing the classified employee transfer process. Currently benefits administration is a responsibility of an account clerk reporting directly to the treasurer. However, the related responsibilities are included in the human resources section for consistency and comparative purposes among the peer districts. Staffing Human Resources 3-2

3 Table 3-1 represents current HRD staffing for PCSD. Table 3-1: Human Resources Staffing Position # Staff # of FTEs Assistant Superintendent, Human Resources Business Manager Account Clerk (Benefits) Certificated Supervisor Classified Supervisor Executive Secretary Clerk Total Source: HRD Financial Data Table 3-2 presents the HRD s actual expenditures for FY and FY and the budget Human Resources 3-3

4 for FY Appropriation Account Table 3-2: Budget - Human Resources Department Actual Actual Budgeted Salaries 1 $296,961 $284,488 $306,233 Fringe Benefits 1 83,216 76,286 82,549 Purchased Services N/A 3,408 0 Materials and Supplies N/A 497 3,560 Equipment N/A 2,684 1,000 Substitute Teachers N/A 1,256,264 1,304,675 Total $380,177 $1,623,627 $1,698,017 Source: Treasurer s office 1 Includes salary and benefits for the classified supervisor and the general clerk reporting to the business manager N/A - District was unable to identify actual costs Customer Satisfaction Survey A Customer Satisfaction Survey was distributed to a random sample of 290 PCSD employees. The Human Resources 3-4

5 purpose of the survey was to obtain employees feedback and perceptions of employee relations and human resources/personnel issues. Responses were received from 134 employees, for a response rate of about 46 percent. The survey solicited responses to 20 statements concerning human resources functions, procedures and policies. The respondents overall rating of the 20 statements was 3.55 which is a slightly above average response in that 5.00 represents the highest level of satisfaction, 3.00 represents a neutral response and 1.00 represents the lowest level of satisfaction. Respondents demonstrated an above average level of satisfaction regarding awareness of duties required by job descriptions and the accuracy of the job descriptions reflecting actual daily routine with overall average responses of 4.49 and 3.91 respectively. The clerical staff indicated dissatisfaction with the effectiveness of job training with an average response of Respondents level of satisfaction regarding evaluations as a valuable means of staff development and a means of timely and relevant feedback appeared to be positive as indicated by responses of 3.47 and 3.52 respectively. Administrators and clerical employees expressed some level of dissatisfaction with the evaluation form as indicated by an average response of 2.92 and 2.80 respectively. Teachers demonstrated a positive level of satisfaction toward the qualifications and effectiveness of substitutes and toward the effectiveness of the current substitute system with an average response of 3.74 and District employees in each of the various categories demonstrated satisfaction with the procedures regarding insurance benefits with an overall average response of Respondents demonstrated a positive level of satisfaction in response to the question regarding district employee satisfaction and morale with an overall average of The respondents overall evaluation of the timeliness and types of services provided by the human resources department was an average of The chart on the following page details the results of all statements included in the customer satisfaction survey. Human Resources Attribute Teachers Other Food Service Admin Clerical Cust. / Maint. Educat. Assts. Weighted Avg. 1) I am aware of the duties required by my job Human Resources 3-5

6 description. 2) My job description accurately reflects my actual daily routine. 3) Our department could effectively maintain productivity in event of short term absence; cross training has been implemented. 4) Staff training is effective. 5) Evaluation process is a valuable means of staff development. 6) Evaluation process provides timely and relevant feedback. 7) The instrument by which staff members are evaluated is effective. 8) Management responds and acts on recommendations made in evaluation sessions. 9) District s employee substitutes are qualified and effective. 10) Current substitute system is quite effective in placing substitutes. 11) I am aware of few lapses in certificate/licenses due to an oversight of the human resource department. 12) I am satisfied that I am informed of changes in policies & procedures Human Resources 3-6

7 13) The district s overall recruitment process is effective. 14) The district s procedures regarding job posting and hiring are effective. 15) I am satisfied with the procedures regarding insurance benefits. 16) Current grievance procedures are fair and effective. 17) Current discipline procedures are fair and adequate. 18) Current follow-up procedures for dismissal and discipline are adequate. 19) I am satisfied with overall effectiveness of the district s current HR management policies and procedures. 20) I feel that overall district employees satisfaction and morale is positive. Overall Average Number of responses received Scale - 5-Strongly Agree, 4-Agree, 3-Neutral, 2-Disagree, 1-Strongly Disagree Performance Measures The following is a list of performance measures that were used to review PCSD s human resources coupled with the functionality typically performed by a human resources department (HRD): Human Resources 3-7

8 Clearly defined roles, responsibilities, accountabilities and authorities of key participants in the affairs of personnel administration Appropriate allocation of resources in relation to workloads Appropriateness of human resources system for retention and utilization of critical personnel data Adequacy of systems and procedures for compiling candidate information Assessment of staffing classifications and respective ratio to total full time equivalents Assessment of the allocation of the ratio of direct instructional personnel to district educational support personnel Appropriateness of staff levels and mix Analysis of teachers work day as defined by the union contract versus actual work day worked Assessment of number of instructional minutes taught per teacher, class sizes and staffing ratios Assessment of implementation of new legislation Assessment of total FTE employees in comparison of the ratio of total salaries per classification to total district salaries Assessment of utilization and compensation for supplemental pay and stipends Assessment of salary schedule and maximum step structure Assessment of W-2 wages in correlation to salary schedules Utilization of paid leaves Appropriate use of substitute personnel Assessment of employee benefit costs and administration including workers compensation Assessment of contract administration (collective bargaining) and contractual issues Accuracy/completeness of job descriptions Assessment of procedures to document proper qualifications and certification of candidates Assessment of teacher certification process Appropriateness of training programs for staff involved in the interview and selection process Assessment of a comprehensive staff development program available for all employees Effectiveness of employer/employee relations program regarding grievances and disciplinary actions Assessment of performance appraisal system Efficiency/effectiveness of recruitment efforts including turnover rates Findings/Commendations/Recommendations Organizational Issues F3.1 Table 3-3 illustrates that PCSD s human resources FTE staffing levels are the second Human Resources 3-8

9 lowest when compared to the peer districts. Table 3-3: Comparison of HRD Staff by Position - FTEs Parma Canton Dayton South-Western Administrators HRD Staff Member Total FTE Regular Employees 1, , , ,988.6 Source: Preliminary FY EMIS Profile 1 Includes vacancies F3.2 Table 3-4 presents the ratio of full-time equivalent (FTE) employees per HRD staff. The ratio of PCSD employees assigned to the HRD staff is 214.5:1. PCSD has the highest amount of employees per personnel staff member when compared to peer districts. Table 3-4: FTE Employees Per HRD Staff Parma Canton Dayton South-Western Total HRD FTE Employees FTE Regular Employees 1, , , ,988.6 Ratio 214.5: : : :1 Source: Preliminary FY EMIS Profile 1 Includes vacancies F3.3 The business manager has indicated that the 30 percent of his time currently spent performing human resources functions for classified employees may be better utilized if spent performing other operational functions. Additionally, the assistant superintendent of human resources currently responsible for human resources functions for certificated personnel has indicated consolidating human resources functions for both certificated and classified employees would allow for a higher and more consistent level of benefits for all district personnel. R3.1 In order to increase consistency in procedures performed across employee groups and to more appropriately align human resources functions, PCSD should consolidate and realign all human resources functions. This will allow the assistant superintendent of human resources to have full human resources responsibilities and allow the business manager to more effectively manage the operational side of the district. Human Resources 3-9

10 Financial Implication: Because no additional staff would be required to realign the HRD, no financial implication would be recognized for this recommendation. F3.4 In 1986, PCSD contracted with Block Development, a computer programming company, to create a Human Resources Information System (HRIS) and to upgrade the system in June The system is used to track applicant information, certification data, employee evaluations, base salaries, certificated employee leave usage and substitute information. However, the system is not integrated with the payroll system nor is it used to track grievances, disciplinary actions or exit interviews. The HRIS does not have a position control feature that would enable the district to define the budgeted organizational structure in terms of specific positions and would prevent the district from hiring more employees than budgeted. The district is currently tracking supplemental pay manually. The district is currently using the Uniform Staff Payroll System (USPS) which is state software. The policy of the Ohio Department of Education (ODE) relative to state software such as USPS is that no one may alter data structures used by state software with software not supported by the ODE. This policy is to maintain data integrity within the state software systems. Therefore, the district s HRIS, that is not software supported by the ODE, cannot directly interface with USPS. R3.2 PCSD should consider creating a program which would compare certain data from the USPS to the same data in the HRIS. The program should be able to create a mismatch report which would identify any discrepancies between the two systems. Additionally, the district should work together with other school districts using state software and approach the ODE, as a group, about the feasibility of creating a HRIS as part of the USPS. An integrated HRIS and payroll system provides the district with the tools to effectively and efficiently manage workload drivers; eliminates the need for duplicate databases and the time spent maintaining and reconciling them; reduces the amount of staff needed to maintain the information; and provides immediate access to all employee information. R3.3 In order for the HRIS to further meet the HRD s critical business needs, the system should be upgraded to measure the following key areas: Position control Grievances Disciplinary actions Supplemental pay Exit interviews Human Resources 3-10

11 Staffing/Compensation Analysis F3.5 The district s total FTEs were divided into six classifications of personnel as defined in Table 3-5. These classification are used for further assessments in F3.6 and F3.7. Table 3-5: Personnel Classifications and Positions Descriptions Classification Administrative Employees Teachers Pupil Services Employees Support Services Other Classified Employees Technical Position Descriptions Superintendent, Asst Supt, Admin Asst, Prin, Asst Prin, Sup/Mgr/Dir, Treas, Asst Treas, Coordinators, Planning, Admin Interns, Curriculum Specialist Remedial Specialists, Teachers, Secondary Tutors, Adult Ed Teachers, Visiting Teacher Counselors, Librarian/Media, Psychologist, Speech Hearing Therapists, Head Start/Spec Ed, Nurses, Interpreters, Social Workers, Parent Mentors, COTA Operative, Laborer, Custodians, Food Service, General Maintenance, Mechanics Attendance Office, Monitors, Clerical, Teaching Aides, Library/Media Aides, Public Relations, Bookkeepers, Purchasing Agents, Library/Media Technicians Computer Operator, Computer Programmer Human Resources 3-11

12 F3.6 Table 3-6 illustrates the ratio of six classifications of personnel to the district s total number of FTE employees and the percentage of total employees in each classification for each of the peer districts. Table 3-6: Breakdown of Total FTE Employees and Percentage of Total Employees Classification Classification Parma Canton Dayton South-Western # of Emp. % of Total Employees # of Emp. % of Total Employees # of Emp. % of Total Employees # of Emp. % of Total Employees Administrative % % % % Teachers % % 1, % 1, % Pupil Services % % % % Support Services % % % % Other Classified % % % % Technical % % % % Total 1, % 1, % 3, % 1, % 1 Employees providing technical support are currently provided by an outside contractor Table 3-6 illustrates an analysis of the total FTEs categorized as instructional personnel versus support services personnel. PCSD has the highest percentage of other classified FTEs as indicated by the bolded number above when compared to the peer districts. Other classified employees include monitors as defined in Table 3-5. As indicated in F3.15, PCSD has significantly more monitors than the peer districts. As defined in the Parma Educational Association (PEA) contract, PCSD teachers are not required to perform additional supervising duties thus requiring the district to employ numerous monitors to fulfill such duties. Human Resources 3-12

13 F3.7 Table 3-7 presents employees categorized by instructional personnel as compared to educational support personnel. Included in the instructional personnel classification are teachers and pupil services employees while educational support personnel include administrative, support services, other classified and technical employees. Table 3-7: Ratio of Direct Instructional Personnel to District Educational Support Personnel Classification Parma Canton Dayton South-Western # of Emp. % of Total Employees # of Emp. % of Total Employees # of Emp. % of Total Employees # of Emp. % of Total Employees Direct Instructional Personnel % % 2, % 1, % District Educational Support Personnel % % 1, % % Total 1, % 1, % 3, % 1, % As illustrated in Table 3-7, or 51.8 percent of PCSD s total FTEs make up the direct instructional personnel. When compared to the peer districts, PCSD has the lowest percentage of direct instructional personnel. Although Table 3-7 indicates that more than 50 percent of total employees are categorized as direct instructional personnel, Table 3-6 illustrates only 47.7 percent of total employees are actually teachers. Additionally, Table 3-7 illustrates that 48.2 percent of total employees are categorized in the district educational support personnel category which is the highest among the peer districts by 7.4 percent to 10.4 percent. Human Resources 3-13

14 F3.8 Table 3-8 presents the staffing levels of FTEs per 1,000 students enrolled for PCSD and the peer districts. Table 3-8: FTE Staff per 1,000 Students Enrolled Category Parma Canton Dayton South- Western Peer District Average ADM 13,116 12,560 25,972 17,347 17,249 Administrators: Central Site Based Supervisor/Manager/Dir. Other Professional Education: Curriculum Specialists Counselors Librarian - Media Teachers - Elem and Sec Others Professional - Other Technical: Computer Operator Computer Programmer/Analyst Others Office/Clerical: Clerical Teaching Aides Library/Media Aides Others Crafts/Trades Transportation Laborer - Groundskeeping Custodial Food Service Service Work - Other Total Source: Preliminary FY EMIS Profile Notes: 1) Figure appears to be incorrect. Human Resources 3-14

15 PCSD has the highest FTEs in six categories as indicated by the bolded numbers above when compared to the peer districts and has the highest FTEs overall. In addition, the average FTE staff per 1,000 students enrolled for all districts which have had a performance audit performed to date is FTEs. PCSD exceeds this average by approximately 16.7 percent. Because of the district s current financial situation, the district will be forced to make difficult decisions regarding the district s operating costs. Table 3-8 indicates several areas where the district could potentially reduce staff. F3.9 PCSD has approximately 1.3 FTEs per 1,000 students in the other administrator classification. PCSD ranks highest when compared to the peer district average of 0.7 FTEs per 1,000 students. Included in this category are seven teachers enrolled in the administrative internship program (see F3.97 for more detail on the internship program). Without the seven administrative interns, PCSD would be in-line with the peer districts in the other administrative classification. Therefore, no reduction in other administrators is recommended. F3.10 PCSD has approximately 1.1 FTEs per 1,000 students in the librarian classification. PCSD ranks highest when compared to the peer district average of 0.6 FTEs per 1,000 students. In addition, a comparison of the ratio of total librarians to total number of school buildings indicated PCSD is the highest with a ratio of 0.76 librarians per building when compared to the peer district average of 0.37 librarians per building. For example, South-Western City School District maintains 28 buildings and currently only has five librarians. Additionally, PCSD employs 29 library aide/technicians as further detailed in F3.11. Furthermore, Ohio Administrative Code (OAC) section sets minimum standards for educational service personnel. It provides for a district wide average of a minimum of five full time equivalent (FTE) educational service personnel for each 1,000 pupils in the district s average daily membership (ADM). Included in the educational service personnel category are visiting teachers, counselors, librarians, nurses, art, physical education and music teachers. PCSD currently averages approximately 6.1 FTE educational service personnel employees per 1,000 pupils when compared to the minimum FTE requirement of 5.0 FTEs. R3.4 In order to achieve the peer district FTE average of 0.6 FTEs librarians and 0.37 librarians per building and to be more in line with the OAC minimum requirement of 5.0 FTE educational service personnel per 1,000 students, PCSD could possibly reduce seven librarian positions. Financial Implications: Assuming an average salary of $52,715 for a librarian and benefits constitute 30 percent, reducing seven librarian positions would create an annual savings of approximately $479,709. F3.11 PCSD has approximately 1.9 FTEs per 1,000 in the library aides classification. The peer Human Resources 3-15

16 districts coded library aides in various other EMIS categories for a peer district average of 1.6 FTEs in the library aides classification. The HRD indicated the district strives to staff at least one library aide at each school building and realizes that additional costs are incurred by staffing library technicians at this level. However, PCSD currently employs 29 library aides/technicians but only maintains 21 buildings. R3.5 PCSD has 0.3 library aides per 1,000 more than the peer districts. Continuing to maintain this level of library aides costs the district $56,963 annually in salary and benefits. Because of PCSD s pending financial situation, the district might consider reducing library aides. In order to achieve the peer district FTE average of 1.6 library aide FTEs, PCSD could possibly reduce three library aide positions. Financial Implications: Assuming an average salary of a library aide is $14,606 and benefits constitute 30 percent, reducing three library aide positions would create an annual savings of approximately $56,963. F3.12 PCSD has approximately 1.5 FTEs per 1,000 students in the other office/clerical classification. Included in this classification is 1.1 FTE account clerks and payroll clerks per 1,000 students. However, the peer districts code the account clerks and payroll clerks in the office clerical classification as opposed to the other office/clerical classification. Additionally, PCSD has 12 FTE clerical positions which are paid with federal funds. Combining the account and payroll clerks and removing the 12 federally funded positions, leaves PCSD with approximately 9.0 FTEs per 1,000 students in the clerical classification which is the highest when compared to peer district average of 7.8 FTEs. Further analysis indicates that the peer districts averaged approximately six office/clerical positions in each high school. However, PCSD averaged 12 office/clerical positions in each high school. R3.6 In order to achieve the peer district FTE average of 7.8 FTEs, PCSD could possibly reduce 15 clerical positions. The district should consider reducing these positions at the high school level. Financial Implications: Assuming an average salary of $19,936 for a clerical position and benefits constitute 30 percent, reducing 15 clerical positions would create an annual savings of approximately $388,752. F3.13 PCSD has approximately 1.9 FTEs per 1,000 students enrolled in the crafts/trades classification which is not the highest when compared to the peer districts. However, Human Resources 3-16

17 multiple subclassifications are included in the crafts and trades category including transportation mechanics. Further analysis in the transportation section of the performance audit report indicates PCSD may be overstaffed in bus mechanics. See the transportation section of the report for recommendations and financial implications. F3.14 PCSD has approximately 8.7 FTEs per 1,000 students enrolled in the custodial classification which includes custodians and cleaners and is the highest when compared to the peer district average of 7.1 FTEs. The facilities section of the performance audit report conducts a more detail assessment of PCSD s custodial staff and responsibilities. See the facilities section of the report for further analysis and recommendations. F3.15 PCSD has approximately 19.1 FTEs per 1,000 students in the other service work classification. Included in this classification is monitors. Because monitors and educational assistants perform the same functions in most school districts and are coded accordingly, an additional analysis comparing total monitors plus total educational assistants was performed. This analysis indicated that PCSD has the highest FTEs with approximately 19.4 FTEs per 1,000 students when compared to the peer district average of 15.0 FTEs. Because the PEA contract does not require teachers to perform additional supervisory duties such as lunch and bus duty, the district must hire numerous monitors to perform these functions. R3.7 In order to achieve the peer district FTE average of 15.0 FTEs in the monitor and educational assistant classifications, PCSD could possibly reduce 57 monitor positions. Financial Implications: Assuming an average salary of $4,434 for a monitor and benefits constitute 30 percent, reducing 57 monitor positions would create an annual savings of approximately $328,559. F3.16 Table 3-9 compares the number of FTEs as classified in Table 3-6 to the number of administrators responsible for supervising and coordinating the staff for PCSD to the peer districts. Human Resources 3-17

18 Table 3-9: Comparison of FTEs to Administrators Parma Canton Dayton South- Western Peer Average Average Daily Membership 13,116 12,560 25,972 17,347 17,249 Administrators TOTAL FTEs (Excluding Administrators) 1, , , , ,041.6 FTE per Administrator Source: Preliminary FY EMIS Profile Table 3-9 indicates PCSD has the lowest number of administrators when compared to the peer districts. The table also indicates PCSD has approximately 23.1 FTEs per administrator which is the highest when compared to the peer district average of F3.17 Table 3-10 summarizes the average workday of an elementary teacher as defined in the PEA contract. The table indicates that approximately 15 minutes per day are undefined in the contract. The district indicated that elementary teachers are actually in the classroom for 265 minutes even though the contract indicates 250 minutes of student Human Resources 3-18

19 contact time. The district has attempted to renegotiate the contract language to reflect actual student contact time of 265 minutes. However, the issue has not been resolved to date. Table 3-10: Analysis of Elementary Teacher Workday Description of Activity Length of Regular Teaching Day as Defined by Contract Duty free lunch Planning Time (before and after school) Additional planning time during art, music and gym Student supervision before and after lunch Student contact time 1 Student arrival time Total minutes defined in contract Balance of minutes not defined Per PEA Contract 7 hours and 15 minutes or 435 minutes 50 minutes 60 minutes Approximately 35 minutes per day 5 minutes before lunch and 5 minutes after lunch 300 minutes less approximately 35 minutes per day with scheduled specialists and 15 minutes per day for student arrival time for a total of 250 minutes student contact time 15 minutes 420 minutes 15 minutes Length of Student Day 6 hours or 360 minutes, including lunch and recess Source: PEA contract 1 Although the contract indicates 250 minutes of student contact time, the district has indicated that actual student contact time for elementary teachers is 265 minutes. The balance of minutes not defined assuming 265 minutes student contact time would be 0 minutes. F3.18 The PEA contract contains language stating the work day for secondary teachers will not exceed 465 minutes, including a duty-free lunch period. The contract stipulates the daily workload for middle school teachers is five regular class periods, one academic assistance/individual instruction period, two conference/planning periods and one lunch Human Resources 3-19

20 period. The contract stipulates the daily workload for high school teachers is five instructional or supervisory periods, two conference/planning periods and one lunch period. The middle schools have nine 42-minute periods scheduled per day and the high schools have eight 48-minute periods per day. Table 3-11: Analysis of Teachers Work Day Description of Activity Middle School per Contract High School per Contract Average Middle School Average High School Length of Regular Teaching Day as Defined by Contract 465 minutes or 7 hours/45 minutes 465 minutes or 7 hours/45 minutes 465 minutes or 7 hours/45 minutes 465 minutes or 7 hours/45 minutes Pre-defined Periods Specified in Contract or Based on District Practice Regular class periods Maximum 5 teaching or supervisory periods or 210 minutes Maximum 5 teaching or supervisory periods or 240 minutes 210 minutes 240 minutes Duty-free lunch 1 period or 42 minutes 1 period or 48 minutes 42 minutes 48 minutes Conference/Planning 2 periods or 84 minutes 2 periods or 96 minutes 84 minutes 96 minutes Academic Assistance 1 period or 42 minutes 25 minutes 42 minutes 25 minutes Hall passing time 27 minutes 32 minutes 27 minutes 32 minutes Homeroom 5 minutes N/A 5 minutes N/A Before &after school 55 minutes split before and after school 24 minutes 55 minutes split before and after school 24 minutes Total Pre-defined Minutes Specified or Actual Average Minutes 465 minutes 465 minutes 465 minutes 465 minutes Balance of Minutes Not Defined 0 minutes 0 minutes 0 minutes 0 minutes Length of Student Day 410 minutes 416 minutes 410 minutes 416 minutes Source: PEA contract Table 3-11 details the teachers workday and indicates that PCSD teachers are fulfilling their contractual obligations in terms of the teacher workday. However, when compared to the peer districts, it appears PCSD s total secondary teachers teach the lowest number of instructional minutes. Additionally, PCSD s middle school teachers teach approximately 20 percent less than the average number of instructional minutes taught by the school districts which have had performance audits conducted to date. Furthermore, Human Resources 3-20

21 PCSD teachers are the highest paid when compared to the peer districts and are not required to perform additional supervisory duties without additional compensation unless it is part of their regular schedule of five periods. The low number of instructional minutes taught by secondary teachers indicates an inefficient utilization of the district s largest expense which directly correlates to the current financial condition of the district as further detailed in the financial section of the performance audit report. F3.19 Table 3-12 illustrates the number of traditional high school and middle school teachers and the number of instructional minutes taught and periods per day spent teaching for FY The following high level analysis does not take into consideration the curriculum provided by the district. Table 3-12: Teachers per Instructional Period - FY Middle School Teachers High School Teachers Teaching Minutes per Day # of Periods per Day # of Teachers Teaching Minutes per Day # of Periods per Day # of Teachers Total 109 Total 161 Source: Master teaching schedules F3.20 Table 3-12 above shows that 20 percent or 33 of the traditional high school teaching staff teach less than 240 minutes per day or the equivalent of four or less periods per day which is less than defined in the PEA contract. Approximately 125 periods are actually being taught by the 33 traditional high school teachers. If each of the 33 teachers were required to teach five periods per day, the district could possibly reduce eight high school teaching positions. If each of the 161 high school teachers were required to teach an additional period, in place of one of their two conference/planning periods, the district could possibly reduce 32 teaching positions. F3.21 Table 3-12 above also shows that 13 percent or 14 of the middle school teaching staff teach less than 210 minutes per day or the equivalent of four or less periods per day which is less than defined in the PEA contract. Approximately 52 periods are actually being taught by the 14 middle school teachers. If each of the 14 teachers were required to teach five periods per day, the district could possibly reduce two middle school teaching positions. If each of the 109 middle school teachers were required to teach one additional Human Resources 3-21

22 period, in place of one of their two conference/planning periods, the district could possibly reduce 19 middle school teachers. R3.8 The PEA contract stipulates that the daily workload for secondary teachers includes five regular teaching or supervisory periods and two conference/planning periods. Additionally, teachers are currently not required to cover non-teaching supervisory duties in excess of the five periods previously mentioned. Thirty-three high school and 14 middle school teachers teach less than five periods per day. If all teachers were required to teach a minimum of five periods per day, PCSD could possibly reduce 10 secondary teaching positions. If all secondary teachers received one conference/planning period instead of two and teachers were required to teach six periods per day, the district could possibly reduce 51 secondary teaching positions. Financial Implications: Based upon PCSD s adjusted five year forecast, the district is facing financial difficulties. Because of PCSD s expected financial deficit, the district will need to reduce operating costs. See the financial systems section of the performance audit report for more detail on the projected deficit. One possible area PCSD could consider would be to reduce teaching positions at the secondary school level. However, reductions should not be in excess of those needed to balance the budget. Maximizing the number of periods taught per teacher to concur with the PEA contract, the district could possibly reduce 10 secondary teaching positions. Assuming the average salary of a secondary teacher is $46,614 and benefits constitutes 30 percent of the salary, this reduction would create an annual savings of $605,982. If all secondary teachers were required to teach six periods per day, the district could possibly save $3,090,508 by allowing staffing levels to decrease through attrition or a reduction in force or by redirecting secondary teaching resources to the elementary level. Another option PCSD could consider in lieu of staff reductions might be redirecting teaching resources to enhance educational programming. Additional course offerings could be added with no additional personnel costs to the district by utilizing existing teachers and increasing instructional minutes taught per teacher. As indicated in F3.24, PCSD has a high student/teacher ratio at the elementary level. Fully utilizing secondary teachers would enable the district to reduce operating costs which would allow the district to hire additional elementary teachers thereby reducing the student/teacher ratio at the Human Resources 3-22

23 elementary level. However, areas of teacher certification should be assessed prior to any reductions in positions or addition of course offerings. F3.22 Ohio Admin. Code Section provides guidelines for educational programs. The OAC provides general guidance for topics of study including career education, citizenship and human relations. However, AM. Sub. S.B. 55 revises the minimum course requirements necessary for graduation after September 15, The total number of units that must be taken in grades nine through twelve increases from 18 to 21 units. The district has revised its graduation requirements accordingly. AM. Sub. S.B. 55 reduces the number of elective units that count toward the required number for graduation and increases the required units of English language arts, mathematics, science and social studies. For the 1999 graduating class, the district requires 18 units of study for graduation. The district has phased in an increase in the required units of study for graduation over the next two years with 21 units being required for students graduating in F3.23 Table 3-13 presents a review of the middle school FY master teaching schedules which revealed 16 traditional periods with 15 or less pupils. These classes do not include any special education or vocational classes. Examples of classes with 15 or less pupils include art, computer science, math, choir, science and metals. Table 3-13: Middle School Teaching Periods with 15 or less Pupils Number of Students 5 or less Number of Periods Source: FY Master teaching schedule - HRD Table 3-14 presents a review of the high schools FY master teaching schedules which revealed 25 traditional periods with 15 or less pupils. These classes do not include any special education or vocational classes. Examples of classes with 15 or less pupils include US history, world history, art, advanced art, computers, honors biology, chemistry, honors chemistry, Latin, French, English, honors English, honors algebra, earth science, social studies and accounting. The district has indicated that several of these classes are English as a second language. Classes offered at one PCSD high school are not required to be offered at the other high schools in the district. Human Resources 3-23

24 Table 3-14: High School Teaching Periods with 15 or less Pupils Number of Students 5 or less Number of Periods Source: FY Master teaching schedule - HRD F3.24 Minimum standards for elementary and secondary education provide for a ratio of teachers to pupils on a district wide basis of at least one full time equivalent classroom teacher per 25 pupils in average daily membership. A building ratio less than 25 to one potentially increases the number of teaching positions. Table 3-15 illustrates the student/teacher ratio of traditional students to traditional teachers in the elementary schools is 23.2:1. Additionally, the district s student/teacher ratio in the elementary schools exceeds the average for all schools having a performance audit conducted to date by approximately 10.5 percent. Am. Sub. H.B. 650, effective FY 1999, requires that each district with a Disadvantaged Pupil Impact Aid (DPIA) index of greater than 1.00 must use a portion of their DPIA money to implement all day kindergarten. A portion of the remaining DPIA money must be used to implement the third grade guarantee. The third grade guarantee consists of increasing the instructional attention given to each pupil in kindergarten through third grade by reducing the ratio of students to instructional personnel, extending the length of the school day, or extending the length of the school year. H.B. 650 also specifies that districts must first ensure a ratio of instructional personnel to students of no more than 15:1 (in kindergarten and first grade) in all buildings, before they can spend DPIA money for activities to increase instructional attention in any other building. Although PCSD s DPIA is less than 1.0, maintaining a 23.2:1 ratio at the elementary level indicates PCSD may have a shortage of elementary teachers. Requiring secondary teachers to teach more instructional minutes would reduce operating costs and allow the district to focus on maintaining a lower elementary student/teacher ratio by hiring additional elementary teachers. Table 3-15: Elementary Staffing Levels Building Average Daily Membership (ADM) Non-Special Education Students Non-Special Education Teachers Student/ Teacher Ratio Elementary Totals 6,356 6, Source: EMIS class database F3.25 Table 3-16 illustrates the staffing levels at the middle and high school buildings for FY The student/teacher ratios are representative of the number of traditional Human Resources 3-24

25 students which excludes special education students to the number of traditional teachers which exclude special education, vocational education and traveling/itinerant teachers. Table 3-16: Middle School and High School Staffing Levels Building Average Daily Membership (ADM) Non-Special Education Students Non-Special Education Teachers Student/ Teacher Ratio Middle Schools: Greenbriar Hillside Shiloh Middle School Totals 1,972 1, High Schools: Normandy Parma Senior Valley Forge 1,119 1,468 1,642 1,101 1,448 1, High School Totals 4,229 4, Source: EMIS class database F3.26 Traditional student to traditional teacher class size ratios in the middle and high schools average 16.7:1 and 21.1:1 respect ively as illustrat ed in Table Averag e class sizes less than minimu m standar ds will require more teachin Human Resources 3-25

26 g positio ns for the same number of student s. Current ly, PCSD maintai ns a 16.7:1 student /teache r ratio which results in 38 additio nal middle school teachin g positio ns. Also, maintai ning a 21.1:1 ratio at the high school level results in 23 additio Human Resources 3-26

27 nal high school teachin g positio ns. Contin uing to maintai n levels which exceed minimu m standar ds will cost PCSD approxi mately $3,696, 490 annuall y in teacher s salaries and fringe benefit s. This financi al implica tion was calcula ted prior to any Human Resources 3-27

28 staff reducti on as a result of recom mendat ion R3.8. F3.27 Table 3-17 compares the average salary of each classification to the peer districts for FY Table 3-17 indicates that PCSD has the highest average salaries among the peer districts in the administrative, professional education and other professional categories, as indicated by the bolded numbers. The salaries average between 7 and 15 percent higher than the peer district averages. Table 3-17: Average Salary by Classification Parma Canton Dayton South-Western Peer Average # FTEs Avg Salary # FTEs Avg Salary # FTEs Avg # Salary 1 FTEs Avg Salary # FTEs Avg Salary Official/Admin $62, $56, $51, $62, $58,316 Prof/ Education , ,447 1, ,258 1, ,982 1, ,723 Prof/Other , , , , ,144 Technical , , , , ,253 Office/Clerical , , , , ,035 Crafts/Trades , , , , ,995 Transportation , , , , ,405 Laborer , ,715 Custodian , , , , ,224 Food Service , , , , ,412 Other Service , , , , ,923 Source: Preliminary EMIS Profile 1 Per 1997 W2 report Human Resources 3-28

29 Human Resources 3-29

30 F3.28 Table 3-18 illustrates total FTEs and salaries presented in Table 3-17 but have been recategorized into the ratio of six classifications of personnel as defined in Table 3-5 and further compares the ratio of total salaries per classification to total district salaries. Table 3-18: Breakdown of Total FTE Employees and Percentage of Total EMIS Salaries by Classification Classification # of Employees % of Total Employees Total Salaries % of Total Salaries Administrative % $4,568, % Teachers % 37,610, % Pupil Services % 3,622, % Support Services % 4,709, % Other Classified % 6,455, % Technical % 59, % Total 1, % $57,025, % Source: Preliminary FY EMIS Profile When PCSD s ratio of administrators to total FTEs are compared to their respective salary ratio, administrators make up 4.2 percent of total staffing. However, administrators salaries account for eight percent of total salaries. PCSD s average salary for professional education is approximately 10 percent higher when compared to the peer district average. As reflected in Table 3-18, teachers, who are included in the professional/educational category in Table 3-17, make up 47.7 percent of total FTEs. However, teachers salaries account for 66 percent of total salaries. R3.9 PCSD s secondary teachers are provided with two planning periods and an extended lunch hour which provides for additional planning time as further explained in F3.18. Additionally, PCSD teachers are not required to perform additional supervisory duties. In total, there are approximately two and one-half periods per day where secondary teachers are not teaching or performing supervisory duties. The peer districts average between one and one and one-half periods of planning time per day. Furthermore, PCSD teachers are the highest paid among the peer districts and 9.7 percent higher than the peer district average for FY PCSD teachers also have the second highest average salary at $45,429 just behind Cincinnati City School District at $46,695 when compared to the total school districts having a performance audit conducted to date. Such schools include Columbus City Schools, Akron City Schools, Toledo City Schools, Cincinnati City Schools, Lorain City Schools, Elyria City Schools, Springfield City Schools and Hamilton City Schools. However, within Cuyahoga County, PCSD s starting salary for teachers with a bachelor s degree ranks 29 th lowest of the 33 school districts. Also, PCSD s maximum salary for a master s degree ranks 21 st lowest of the 33 school districts. Because Human Resources 3-30

31 of PCSD s current financial situation, the district should negotiate changes that would allow the district to redistribute teachers workload and reduce unnecessary operating costs. PCSD should pursue the following options: The district should require teachers to teach, at a minimum, an additional period rather than receiving two planning periods. PCSD should require teachers to perform supervisory duties in place of one of the two planning periods which would reduce the number of monitors needed. Additionally, the district should reduce the cost of living adjustment (COLA) for teacher salaries at the end of the current contract period (August 1, 1999). The negotiation of a reduction in the COLA would be a first step in equalizing the difference between the wages for PCSD teachers and the peer districts and also the current compensation inequities between teachers and PCSD s classified personnel. Financial Implication: Based upon PCSD s adjusted five year forecast, the district is forecasting significant deficits in future years. Because of PCSD s pending financial deficit, the district will need to reduce operating costs. As indicated in R3.7, requiring teachers to perform supervisory duties would save PCSD approximately $328,559 in monitor salaries. Because teacher salaries and benefits are the greatest expense to the district, implementing a reduced COLA for PCSD s teachers for FY , FY and FY and assuming employee staffing remains consistent, a cost avoidance of $739,039, $768,601 and $1,191,146 respectively in wages and salaries would be achieved. In addition, a cost avoidance of approximately $221,712, $230,580 and $357,344 respectively in benefits (calculated at 30 percent of salaries) would be achieved. The total accumulated cost avoidance achieved by the district over the three year contract period would be approximately $3,508,421. F3.29 As indicated in Table 3-18, pupil services personnel, who are categorized as professional/other in Table 3-17, make up 4.1 percent of total FTEs. However, pupil services personnel salaries account for 6.3 percent of total salaries. As illustrated in Table 3-17, PCSD s transportation, custodian and food service employees salaries are less than the peer district average. These salaries range between 15 and 25 percent less than the peer district average. Additionally, Table 3-18 reflects the support services classifications, which includes transportation, custodian and food service employees, makeup 16.5 percent of total FTEs. However, support services salaries only account for 8.3 percent of total salaries. The results of the respective staffing to salary ratios indicate PCSD may have a compensation inequity among the individual employee Human Resources 3-31