final report service units (esus) nebraska educational · of services and on organizational...
TRANSCRIPT
Nebraska EducationalService Units (ESUs)A Study of Mission, Services, and
Organizational Structure
FINAL REPORT
Prepared by the
Statewide ESU Regionalization/RestructuringTask Force
December 2003
Table of Contents
Executive Summary ............................................................................... .........Page 1
Background Materials ........................................................................... .........Page 9
I — Introduction .................................................................................................Page 10
II — Mission .....................................................................................................Page 11
III — Organization .............................................................................................Page 13
History of ESUs (Nebraska Educational Service Units)History of Core FundingCritical Question #1 — What is the current cost of "doing business"? (cost analysis)Critical Question #2 — What is the current structure and cost of ESU administration?Critical Question #3 — Are there ways to provide administration more efficiently?Critical Question #4 — What is the current structure and cost of ESU governance?Critical Question #5 — Are there ways to provide governance more efficiently?Critical Question #6 — What are the existing inequities in resources among ESUs and
how does that impact the quality and delivery of services?Critical Question #7 — What are the implications of the state's geography and
changing demographics for the organization and structure of ESU's?FindingsSummary
IV — Services .....................................................................................................Page 24
Summary of Current Local ServicesSummary of Current Regional PracticesLocal Tax Dollars in Support of Core Service ProgramsWhat Services Should be Identified as EssentialAdditional Necessary Regional ServicesFindingsSummary
V — Recommendations ........................................................................... ......... Page 36
Appendixes
Executive Summary
2003 ESU Statewide Study Executive Summary
Section I - Introduction
Nebraska Department of Education Commissioner Doug Christensen asked theNebraska Educational Service Unit boards and administrators to develop a pro-activeplan to reduce costs and improve delivery of services to school districts throughregionalization and/or reorganization of ESUs. It was urged that this plan include thefollowing focus:
I. ESUs continue to be true to the mission and purpose of serving schools2. ESUs be an educational system and not eighteen independent units3. ESUs have a "bottom-line" accountability; an effect on school improvement4. ESUs add value to what schools are doing; improve student achievement
A Task Force, consisting of the administrator and a board member from eachESU, was formed in April, 2003 and began preparing this report. The Task Force wasfacilitated by Dr. John Boniuto, Executive Director of the Nebraska Association ofSchool Boards, Burma Kroger, Director of Board Development, Nebraska Association ofSchool Boards, and Dr. Larry Dlugosh, Department of Educational Administration,University of Nebraska —Lincoln.
Section II - Mission
Critical Question #1 — Is the Mission of ESUs Changing? The committee reviewedthe following documents: 1) 79-1204, the statute that outlines the role and mission ofESUs; 2) A concept paper developed in 2002 by the Nebraska ESUs that redefines themission of ESUs; and, 3) A study on ESUs completed by Bob Stevens (1995) as part of alegislative study.
Finding: "The role and mission of the educational service units is to serve as educationalservice providers in the state's system of elementary and secondary education." (79-1204)This mission has been constant; however, it has become more focused on issues ofteaching and learning (e.g. STARS, NCLB). There is an expectation that ESUs provideequitable services to all Nebraska schools.
Critical Question #2 — What is the relationship to the Nebraska Department ofEducation (NDE)? The Committee briefly reviewed Rule 84, the rule that governsESUs, and reviewed current and past relationships between NDE and the ESUs. StatutoryRelationships include:
1) NDE is a creation of the Nebraska Legislature; 2) ESUs are creations of theNebraska Legislature; 3) ESU funding for Core Services, as provided by the NebraskaLegislature, is administered by NDE; 4) NDE, through statutory authority, devises"rules" or Administrative Codes for the accreditation of ESUs. Rule 84 states that ESUs"act in a cooperative and supportive role with NDE in developing plans, strategies, and
2003 ESU Statewide Study Executive Summary
3
goals for the enhancement of educational opportunities in elementary and secondaryeducation." ESUs and NDE collaborate on numerous activities including themanagement of grants, sharing of staff and expertise, sharing of resources, and planningfor state initiatives.
Finding: There is no single relationship between NDE and the ESUs, but a constantlyevolving relationship, dependent on numerous factors, both internal and external toESUs. NDE provides support and funding to ESUs with the expectation that ESUs assistin the implementation of state initiatives (e.g. statewide writing). ESUs provide thedelivery system and technical expertise to assist NDE.
Critical Question #3 — Who do ESUs serve? The Committee reviewed the statutesspecific to ESU customers.
Finding: The primary customers for ESUs are elementary and secondary public schools.As individual ESUs identify other local supplemental services, there are additionalcustomers (e.g. non-public schools, state supported schools such as School for VisuallyImpaired). To a degree, NDE is a secondary customer.
Critical Question #4 — What are the implications of geography and demographics?The Committee reviewed five documents: 1) A comparison of ESU student populationand valuations; 2) A map of current ESU boundaries; 3) A map of ESUs with countypopulations; 4) Assessed Property Valuations; Tax Levies & Core Services; and 5) Anenrollment history and projection to 2013 for ESUs.
Finding: Simply, the mission remains largely the same for ESUs, however, geographyand demographics have (and will continue to have) a tremendous impact on the deliveryof services and on organizational structures of ESUs. It will be necessary to considergeography and demographics in any future reorganization of ESUs.
Ntbraska Educational Sarvic* Unit
2003 ESU Statewide Study txecutive Summary
4
Section III - Organization
History of Nebraska Educational Service Units: The Nebraska Legislature creatededucational service units in 1965 to deliver numerous requested services to schools.These services were locally identified and delivered either individually or collectivelythrough locally administered, organized and funded programs, such as special education.
Additionally, in 1997 the State of Nebraska through legislative action assignedESUs the responsibility to organize and administer, through state-supported funding, coreservices that included instructional technology, staff development, instructional materials,and technology infrastructure.
Educational service units have become increasingly involved in carrying out Stateand Federal initiatives, such as No Child Left Behind, at the local level; and assistingschool districts in improving student success through school improvement.
History of Core Funding: LB 1110 (1998) appropriated nine million seven hundredthousand dollars from the General Fund for the initial year (FY98-99) to be distributedproportionally to each ESU by the Department of Education based on the membership inmember districts in the preceding school fiscal year, except that no unit was to receiveless than two and one-half percent of the funds appropriated. LB 386 (1999) appropriatedthree million dollars for FY99-00 for use by ESUs for technology infrastructure with anincrease calculated each following fiscal year. With this State funding for Core Services,the ESU taxing authority was reduced from three and one-half cents to one and one-halfcents for the General Budget (and the one-half cent telecomputing authority waseliminated). The following graph shows the funding history for Core Services:
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2003 ESU Statewide Study Executive Summary
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Critical Question #1 — What is the current cost of "doing business"? (cost analysis)The committee studied the various ESU data, including valuation, student enrollment,levy, taxes generated, and funding. The current cost of "doing business" could beexamined several ways; however, since the business of ESUs is delivery of services toschools and students, then it follows that the local and state funding are areas to bestudied. Federal grants and contracted services are flow-thru monies and were notincluded in the data analysis.
Finding: Local property taxes per student and State core funds per student are influencedby smaller student populations in the units. The combined taxes per student and corefunds per student ranges from $83.52 to $232.66 with $97.79 being the average.
Critical Question #2 — What is the current structure and cost of ESU administration?The committee examined the 2002-2003 cost data for each ESU administrator (i.e. salary,benefits, travel, etc.) and the source of funding.
Finding: The current structure of ESU administration is one chief administrator plusoffice staff per ESU. The data indicated that administrative cost was a local levy expensethat averages roughly twelve percent of the local taxes; however, this equates to anaverage of one percent of the total statewide ESU budget of expenditures. No state corefunds were used for administration of the ESUs.
Critical Question #3 — What is the current structure and cost of ESU governance?The committee reviewed the 2002-2003 fiscal year expenses for each unit's board and itsfunding source.
Finding: The current structure of ESU governance is an elected local board member percounty plus four at-large members. The cost of governance includes travel to meetings,organization dues, election costs, legal notices, supplies, etc. This is a local levy expensethat averages two percent of the local taxes. No state core funds were used forgovernance of the ESUs.
Critical Question #4 — What are the existing inequities in resources among ESUsand how does that impact the quality and delivery of services? The committeestudied ESU changes in valuation, local taxes generated, and student population.
Finding: The existing inequities in resources among ESUs include the vast range instudent population with four ESUs having large numbers, eight with average numbers,and six with small enrollment totals. ESUs with population increases realize increases inproperty valuations that provide for greater local tax funds that somewhat offsetdecreases in state funding and increases in costs of delivery of services.
2003 ESU Statewide Study Executive Summary
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Critical Question #5 — What are the implications of the state's geography andchanging demographics for the organization and structure of ESUs? The committeestudied the square mileage of each ESU and the east-west travel factors in the State.
Finding: The ESUs with greater geographic area have challenges providing points fordelivery of services. The new locations of merging schools and the highway connectionsare important in delivery of services.
Section IV - Services
The Services Committee was charged with the task of identifying services offered byESUs across the state. Through the use of a survey, both local and regional services wereidentified that were provided to meet the needs of local, state, and federalrequests/mandates.
In addition to this information, three other questions were proposed. The first questionfocused on the amount of tax dollars being used to support core service programs. Thesecond question attempted to better define what were considered essential servicesoffered by ESUs. The third question was an attempt to identify any additional regionalservices that should be provided in the state.
Findings: After looking at a summary of the data received from the statewide servicessurvey the committee found a number of findings that seem significant.
1. All ESUs in the state provide similar basic services to the school districts in theirassigned region through the use of all funding mechanisms.
2. Numerous regional and statewide programs that involve more than one ESU arealready being utilized in the state.
3. Those regional programs financed through special education funding orstate/federal grants have higher statewide participation levels.
4. There seem to be two tiers of "essential service".
a. Self-funded essential services — special education, cooperative purchasing,distance learning.
b. Funded essential services — professional development, technologytraining, instructional materials, and technology infrastructure.
5. $6,609,490 of local tax levy dollars (above and beyond State Core service fundsof $10,618,303) is budgeted to fund core service programs in 2003-2004.
6. Local ESU discretionary spending for locally identified needs is diminishing.
2003 ESU Statewide Study Executive Summary
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529
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4,31
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8,60
84,
026
3.90
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3,54
615
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1994
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4,07
34,
114
4,17
34,
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4,28
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211
4,21
429
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4,42
24,
318
8,74
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39
3,98
33,
799
3.68
315
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53,5
804
1995
/96
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168
4,13
74,
269
4,16
14,
306
4,30
129
,543
4,35
44,
466
8,82
04,
357
4,20
33,
959
3,69
516
,214
54,5
77
1996
/97
4,30
5,4,
360
4,21
84,
311
4,36
04,
289
4,40
930
,252
4,41
04,
416
8,82
64,
668
4,33
14,
116
3,76
216
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55,9
55
1997
/98
4,17
24,
415
4,44
84,
293
4,34
64,
421
4,34
030
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4,
542
4.44
88,
990
4,61
44,
566
4,28
34,
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17,5
3756
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1998
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385
4,56
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301
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4,59
54,
482
4,44
942
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57,1
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1999
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4,22
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196
4,42
24,
600
4,35
24,
382
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59
4,51
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2000
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9,11
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4,65
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468
4,28
518
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57,5
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2001
/02
4.14
04,
159
4,23
34,
212
4,30
24,
491
4,71
130
,248
4,50
24,
564
9,06
64,
846
4,63
14,
630
4,40
518
,412
57,7
26
2002
/03
4,26
14,
176
4,25
24,
338
4,32
94,
427
4,59
130
,374
4,89
64,
581
9,47
74,
942
4,72
44,
479
4,54
618
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58,5
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2003
/04
4,25
94,
192
4,11
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231
4,28
64,
273
4,39
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583
4,64
79,
430
4,64
84,
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4,54
84,
305
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2004
/05
4,25
84,
190
4,12
54,
089
4,18
04,
231
4,24
329
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4,38
74,
536
8,92
34,
917
4,45
34,
558
4,37
118
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56,5
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2005
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4,25
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189
4,12
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105
4,04
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127
4,20
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343
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4,71
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4,12
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528
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