📋
Extracted from Consolidated Report

This investigation was originally published as part of a larger consolidated report containing multiple investigations. View the consolidated PDF for the complete document.

Santa Cruz County Grand Jury • 2001-2002

A Review of the Structure and Administration of the Santa Cruz County Public School Systems

View PDF View Full Original

Findings 89 findings

F1 Page 130
Table 2 illustrates that having ten school districts in the county creates a duplication of administrative functions. 2001–2002 Santa Cruz County Grand Jury Final Report A Review of the Structure and Administration -3 of the Santa Cruz County Public School Systems Administrative Functions Matrix COE PVUSD SC SV SLV SOQ LO (4) One- School Districts Superintendent X X X X X X X X Assistant Superintendent X X X X X X X
F2 Page 132
Table 3 details the cost per student in each of the school districts in Santa Cruz County. Cost Per Student Comparison
F3 Page 132
Santa Cruz County school administrators agree that all of the school districts are concerned about the effects of declining enrollment.
F4 Page 132
Santa Cruz School District lost 720 students in 2000/2001.
F5 Page 132
Bonny Doon School District lost 112 students over five years.
F6 Page 132
Soquel School District lost 140 students over five years.
F7 Page 132
Administrators at Live Oak, Pacific and San Lorenzo Valley state that they have all experienced declining enrollment.
F8 Page 132
Many schools that have not shown a drop in enrollment have zero growth.
F9 Page 132
According to the State Franchise Tax Board, Santa Cruz County will lose an additional 2,200 students by the year 2010. 2001–2002 Santa Cruz County Grand Jury Final Report A Review of the Structure and Administration -5 of the Santa Cruz County Public School Systems
F10 Page 133
Some northern classrooms have empty desks while many southern classrooms experience overcrowding. Deficits
F11 Page 133
Most school districts are experiencing financial difficulties. Studies suggest that by the year 2010, Santa Cruz County public schools will lose approximately $21,455,390 due to a drop in Average Daily Attendance (ADA).
F12 Page 133
Additional funds are available from the State as incentives for more efficiently organized districts. Based upon today's figures the incentives are $20 per student, which equates to approximately $800,000 potentially available to County schools.
F13 Page 133
School districts in Santa Cruz County do not employ professional project managers to oversee major building renovation projects. This exposes the districts to cost overruns and waste. Special Education Programs
F14 Page 133
Special Education Programs are Federally and State mandated but many are only partially funded. These programs are extremely expensive and impose a severe financial burden on the entire education system.
F15 Page 133
The special education program in Santa Cruz County has two administrative staffs. Pajaro Valley Unified School District runs its own Special Education Local Program Administration (SELPA) program. The COE and the other nine school districts are in a consortium called Northern County SELPA.
F16 Page 133
The County of Santa Cruz receives approximately $22 million dollars annually for special education funding. 40% of this funding comes from federal sources and 60% from state revenues.
F17 Page 133
The COE administers the north county SELPA and serves as a conduit for special education funds from the state to the school districts.
F18 Page 133
Districts utilizing special education services provided by the COE are charged for additional “excess cost.”
F19 Page 133
The funds for the consortium in the northern county area are approximately $11 million annually. The COE retains 50% to cover the cost of programs they provide (including 61 special education teachers’ salaries) and the remaining funds are distributed to the consortium members. If there are excess costs for the program, the school districts may have to reimburse the COE for participating in the program.
F20 Page 133
Pajaro Unified School District has its own SELPA in the southern county area and is funded directly from the state, thereby eliminating additional administrative costs. Grant Money
F21 Page 133
Each individual district must procure federal, state and private grant money in its own behalf.
F22 Page 133
Preparing grant documents is costly and time consuming. 2001–2002 Santa Cruz County Grand Jury Final Report -6 A Review of the Structure and Administration of the Santa Cruz County Public School Systems
F23 Page 134
While there are ten school districts in the County, a cooperative grant application system does not exist.
F24 Page 134
The COE does not regularly prepare grant applications for individual school districts.
F25 Page 134
The criteria for many federal, state and private grant monies are family income levels (based on federal guidelines) within the district, and/or the number of non-English speaking students.
F26 Page 134
Many of the county school districts do not meet the criteria of family income level or non-English speaking students to qualify for grants.
F27 Page 134
The data indicate the southeastern portion of the county has a larger percent of lower- income families and non-English speaking students, which qualifies Pajaro Valley Unified School District for a larger number of grants. County Office of Education
F28 Page 134
In 1861 D.J. Haslam served as the first Superintendent of Santa Cruz County schools, supervising twenty-one schools, 1,756 students and a budget of $6,344.
F29 Page 134
Until 1890 the County Superintendent was a part-time employee. Today the County Office of Education has a budget of $34,097,978 and employs 286 persons supporting 40,000 students.
F30 Page 134
The County Office of Education currently consists of: • 37 Administrators • 61 Special Education Teachers • 49 Vocational Teacher • 55 Classroom aides • 10 Student support – therapists, work experience teachers • 24 Administrator assistants – secretaries • 40 Clerical • 5 Technology support staff • 5 Maintenance staff
F31 Page 134
The mission statement of the COE states: "The County Superintendent of Schools is to oversee and further the progress of education in all school districts within the County and serve as an intermediate link between those local districts and the State Department of Education."
F32 Page 134
The County Superintendent has the responsibility of providing those services that can be more economically and efficiently provided by a central office rather than an individual local school district.
F33 Page 134
The COE generally does not offer services that compete with the districts, or impose programs or laws.
F34 Page 134
Four of the state-mandated functions of the COE are: • Information and coordination services 2001–2002 Santa Cruz County Grand Jury Final Report A Review of the Structure and Administration -7 of the Santa Cruz County Public School Systems • Program and staff development services • Fiscal oversight of the County's school districts. • Registration of teaching credentials for teachers who teach within Santa Cruz County
F35 Page 135
The four one-school districts in the County receive financial and accounting assistance from the COE for which they are not billed.
F36 Page 135
Funding for the COE is divided into two categories: 85% is restricted to special education, vocational education and schools at detention facilities. The funding is partially based on Average Daily Attendance (ADA, the amount per student funded by the State to the schools). The remaining 15% covers administrative costs.
F37 Page 135
The COE bills districts utilizing programs administered by the COE for excess costs.
F38 Page 135
The COE has the primary responsibility of reviewing the yearly audits of the school districts’ budgets.
F39 Page 135
All school and district payrolls pass through the COE, which also passes along an administrative charge to the school districts.
F40 Page 135
As of April 1st 2002, the county wide declining enrollment dilemma has not resulted in budget or staff reductions at the COE. One-School Districts
F41 Page 135
These four one-school districts have a total student enrollment of 540: • Bonny Doon Union Elementary School District • Founded 1940. 170 students. • One school K-6. • Happy Valley Elementary School District • Founded 1864. 130 students. • One school K-6. • Mountain Elementary School District • Founded 1869. 158 students. • One school K-6 • Pacific Elementary School District • Founded 1906. 82 students. • One school K-6 • Yearly budget (combined): $4,660,810 • Total Number of Employees (combined): 122
F42 Page 135
Each district is a self-contained business entity, i.e., it includes hiring, budgeting, employee contract, curriculum and fund raising functions.
F43 Page 135
The Principal has the dual role of District Superintendent and School Administrator.
F44 Page 135
Since family income levels are generally above federal guidelines in these districts, very little grant money is available. 2001–2002 Santa Cruz County Grand Jury Final Report -8 A Review of the Structure and Administration of the Santa Cruz County Public School Systems
F45 Page 136
Due to the cost of special education programs, a very serious financial threat is posed to these small districts. If a student needs an aide or a tutor with him/her or if the student needs education outside of the district, the district must pay for it.
F46 Page 136
Test scores in these one-school districts lead the county, but the cost per student is much higher than the other six county school districts.
F47 Page 136
An Administrator stated, “Parental involvement and a dedicated, committed staff are a key component to the success of the district."
F48 Page 136
Families are moving from the area, one of the least affordable in the nation, due to the high cost of housing.
F49 Page 136
Declining enrollment severely impacts small districts. A family with any children leaving the school district poses a serious financial loss due to the loss of payment for ADA for that student. Six Multi-School Districts
F50 Page 136
The six multi-school districts range from 1,994 to 19,863 students.
F51 Page 136
Each District Office operates as an individual business entity.
F52 Page 136
Staff in each District Office consists of Administrative, Human Resources, Purchasing, Facilities, Food Service, Curriculum, and Staff Development personnel.
F53 Page 136
Each district negotiates its own union contacts.
F54 Page 136
The ten school districts set policy and administration for all schools within their jurisdiction.
F55 Page 136
Boundaries of school districts make it difficult for teachers and students to transfer between districts where declining enrollment is severely impacting a district’s financial viability.
F56 Page 136
With the multi-school districts in the North County, students from one family may attend K-6 in one district, middle school in another and high school in yet a third. This creates a lack of uniformity in the curriculum, transportation and family vacation schedules. Live Oak School District
F57 Page 137
Live Oak School District, surrounded by the Soquel and Santa Cruz school districts, has housing that is increasingly out of the reach of many working families. Consequently the Live Oak School District is experiencing declining enrollment.
F58 Page 137
Live Oak will face budget deficits within two years unless costs in the school district are lowered; additional funding is acquired or transfers of students from other districts are achieved.
F59 Page 137
The district has been proactive in addressing their budget issues by doing the following in an effort to attract more students: • Opened day care to all residents in the community • Opened a community center • Formed a parent/teacher committee to examine budget and declining enrollment issues. • Are preparing to open a magnet school (a school which emphasizes a specific area of study) and plan to enroll students who live anywhere in Santa Cruz County who are interested in that subject. Soquel Union Elementary School District
F60 Page 137
Soquel suffers from declining student enrollment with approximately 140 students lost over the last five years.
F61 Page 137
Lack of affordable housing and the high cost of special education severely impact this district. District Administrators expect budget deficits in the future.
F62 Page 137
Family income levels tend to be above federal guidelines that make it very difficult for the district to qualify for grants.
F63 Page 137
Administrators state that the cost of preparing grant applications greatly reduces the net amount funded to the district. 2001–2002 Santa Cruz County Grand Jury Final Report -10 A Review of the Structure and Administration of the Santa Cruz County Public School Systems Scotts Valley Unified School District
F64 Page 138
Scotts Valley High School was opened on September 3rd 1999. This increased the total enrollment for the school district. However, by doing so other districts lost enrollment.
F65 Page 138
Declining enrollment has not impacted the district, but the Scotts Valley district does not anticipate future growth.
F66 Page 138
The district is in the process of remodeling its middle school campus.
F67 Page 138
On November 8, 1994 voters approved two bond measure totaling $22.7 million for a new high school.
F68 Page 138
On May 1, 1995, $4.5 million was released with the remaining $18.2 million released on August 1st 1997.
F69 Page 138
Voters rejected additional school bonds for the district in March 2002. San Lorenzo Valley Unified School District
F70 Page 138
San Lorenzo Valley School District is located in the mountainous region of Santa Cruz County.
F71 Page 138
The district faces numerous challenges with transportation and declining enrollment. 2001–2002 Santa Cruz County Grand Jury Final Report A Review of the Structure and Administration -11 of the Santa Cruz County Public School Systems
F72 Page 139
While district buses operate daily during school hours, late after-school activities pose a problem.
F73 Page 139
Missing scheduled morning pick-ups and return trips home often discourages students from attending school or participating in after school activities.
F74 Page 139
School officials feel free bus passes for public transportation would help daily attendance.
F75 Page 139
At the close of fieldwork, the Superintendent stated the budget would have a deficit in the 2002-2003 school year. Santa Cruz City School District
F76 Page 139
The district has lost approximately 720 students since 1999. 322 students were lost during the 2001 school year alone.
F77 Page 139
In order to remain solvent, the district must reduce its budget by $3.2 to $4.9 million dependent on receiving additional funding.
F78
A parcel tax measure was recently passed. According to district officials, these amounts will not be sufficient to cover growing deficits.
F79 Page 139
In 1998, voters approved bond measures totaling $86 million designated for school remodeling.
F80 Page 139
The District has been in the processing of renovating older school buildings in order to bring them into compliance with federal mandates. 2001–2002 Santa Cruz County Grand Jury Final Report -12 A Review of the Structure and Administration of the Santa Cruz County Public School Systems
F81 Page 140
The district recently announced that Strategic Construction Management Consulting Company would receive $1.2 million to oversee these renovations.
F82 Page 140
Recently two high school principals resigned their positions citing the high cost of housing, declining enrollment, and budget concerns. One principal was quoted as saying; “I’ve been having to make budget decisions that honestly are difficult for me to deal with, reducing people’s work day, their work year. Unfortunately this is the beginning of a cycle that is not going to go away for a while.”
F83 Page 140
Many students from the Santa Cruz City School District were transferred to Scotts Valley High School, which opened in 1999. This negatively impacted the school district’s ADA. Pajaro Valley Unified School District
F84 Page 141
Pajaro Valley Unified School District is the largest school district in the County.
F85 Page 141
The migrant population and other non-English speaking students create unique expenses and challenges for PVUSD.
F86 Page 141
According to State of California statistics, thirteen schools in the district have unacceptably low-test scores.
F87 Page 141
The District is continuously initiating programs to reverse low academic achievement.
F88 Page 141
Overcrowding at the high schools is a major concern.
F89 Page 141
A new high school is scheduled to open in approximately two years. Conclusions

Recommendations 6