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Review of the Organizational Structure and Operations of the Los Angeles Unified School District

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Review of the Organizational Structure and Operations of the Los Angeles Unified School District Review of the Organizational Structure and Operations of the Los Angeles Unified School District Submitted to the Los Angeles Unified School District By the Council of the Great City Schools January 2006 Review of the Organization and Operations of the Los Angeles Schools Council of the Great City Schools 2 Review of the Organization and Operations of the Los Angeles Schools TABLE OF CONTENTS Table of Contents Acknowledgments………………………………………………………………………. 7 Executive Summary…………………………………………………………………….. 9 I. Project Overview…………………………………………………………………….17 II. Overview of LAUSD………………………………………………………………...25 III. Organizational Structure............................................................................................43 IV. Accountability and Metrics…………………………………………………………81 V. Business Services…………………………………………………………………. 103 VI. Financial Management……………………………………………………………..129 VII. Human Resources………………………………………………………………….143 VIII. Enterprise Resource Planning (ERP)……………………………………………..161 IX. Synopsis and Discussion…………………………………………………………..167 Appendix A. Strategic Support Team Bios……………………………………………..171 Appendix B. Documents Reviewed………………………………………….. ………..181 Appendix C. Individuals Interviewed…………………………………………………..187 Appendix D. Working Agendas…………………………..………….............................197 Appendix E. Staffing Ratios in the Great City Schools………………………………...213 Appendix F. Survey of Urban School Expenditures……………………………………215 Appendix G. Business Services Survey and Respondents…………………………….. 223 Appendix H. Financial Management Survey and Respondents……………………….. 259 Appendix I. Human Resource Management Survey and Respondents...........................297 Appendix J. Curriculum-based Budgeting……………………………………………...321 Appendix K. About the Council………………………………………………………..323 Appendix L. History of Council Reviews…………………………………………….. 325 Exhibits Exhibit 1. School District Enrollment, 2003…………………………………………… 25 Exhibit 2. Enrollment by Race/Ethnicity, 2003…………………………………………26 Exhibit 3. Number of Schools and Centers, 2004……………………………………….26 Exhibit 4. Total Budget by Revenue Source, FY 2005………………………………….27 Council of the Great City Schools 3 Review of the Organization and Operations of the Los Angeles Schools Exhibit 5. Revenue Budget by Fund and Source, FY 2005……………………………..28 Exhibit 6. Expenditures by Fund and Major Object, FY 2005…………………………..28 Exhibit 7. Expenditure Distribution by Fund and Major Object, FY 2005……………...29 Exhibit 8. Academic Performance Index (API) Change from 1999 to 2005……………33 Exhibit 9. API Growth Report by Schools, 2003-04……………………………………33 Exhibit 10. API Subgroup Results………………………………………………………34 Exhibit 11. Comparison of LA Schools’ 4th-Grade NAEP Reading Scores with Other Large Cities and the Nation …………………………………………………..…..35 Exhibit 12. Comparison of LA Schools’ 8th-Grade NAEP Reading Scores with Other Large Cities and the Nation..…………………………………………………….. 35 Exhibit 13. Comparison of LA Schools’ 4th-Grade NAEP Math Scores with Other Large Cities and the Nation.……………………………………………………………..36 Exhibit 14. Comparison of LA Schools’ 8th-Grade NAEP Math Scores with Other Large Cities and the Nation.……………………………………………………………..36 Exhibit 15. Total Capital Projects Completed…………………………………………..37 Exhibit 16. Summary Table Comparing the LAUSD with Others, 2002-03....................41 Exhibit 17. Organization of the Board of Education........................................................45 Exhibit 18. Board of Education Budget Summary, FY 2005……………………………46 Exhibit 19. Board of Education Budget Distribution, FY 2005……………………….. 46 Exhibit 20. Organization of Central Support System………………………………….. 47 Exhibit 21. Office of the Superintendent Budget Summary, FY 2005…………………..47 Exhibit 22. Office of the Superintendent Budget, FY 2005…………………………….48 Exhibit 23. Organization of the Instructional Services Division………………………..49 Exhibit 24. Instructional Services Budget Summary, FY 2005………………………….50 Exhibit 25. Instructional Services Budget Distribution, FY 2005………………………50 Exhibit 26. Organization of the Educational Services Division……………………….. 51 Exhibit 27. Educational Services Budget Summary, FY 2005…………………………..52 Exhibit 28. Educational Services Division Budget Distribution, FY 2005…………….. 52 Exhibit 29. Organization of the Chief Operating Officer……………………………….53 Exhibit 30. Chief Operating Officer Budget Summary, FY 2005.…………………….. 54 Exhibit 31. Chief Operating Officer, Budget Distribution, FY 2005…………………...55 Exhibit 32. Capital Project Funds and Routine Repair and General Maintenance Budget Summary……………………………………………………………………….. 56 Exhibit 33. School Facilities Budget Distribution, FY 2005……………………………57 Exhibit 34. General Organization of the Local Districts………………………………..58 Exhibit 35. Local District Demographics and Resource Allocations…………………...58 Exhibit 36. Local District Budget Summary, FY 2005…………………………………59 Exhibit 37. Local District Budget Distribution, FY 2005………………………………60 Exhibit 38. Comparing the Regional Structure of LAUSD with Other Urban School Districts, 2004-05………………………………………………………………..60 Exhibit 39. Comparing the Organizational Placement of High Schools in LAUSD with Other Urban School Districts, 2004-05…………………………………………….63 Exhibit 40. Comparing LAUSD Staffing Levels per Pupil with Selected Cities, and Urban and National Averages, 2002-2003………………………………………………65 Exhibit 41. Comparing LA Schools’ Current per Pupil Spending with Urban School Averages, 2004-2005…………………………………………………….66 Council of the Great City Schools 4 Review of the Organization and Operations of the Los Angeles Schools Exhibit 42. Comparing LA Schools’ Salaries and Benefits per Pupil with Urban School Averages, 2004-05………………………………………………………..68 Exhibit 43. Proposed Central Office Organization Structure…………………………...77 Exhibit 44. Links between Instructional Program Objectives, Board Goals, and the Strategic Plan……………………………………………………………………84 Exhibit 45. Links between Non-instructional Program Objectives, Board Goals, and the Strategic Plan……………………………………………………………………86 Exhibit 46. Performance Measures for Instructional Program Goals and Objectives…...89 Exhibit 47. Performance Standards for Non-instructional Goals and Objectives……….90 Exhibit 48. Tracking of Instructional Programs and Performance against Goals……….94 Exhibit 49. Organization of the Business Services Division..........................................103 Exhibit 50. Business Services Budget Summary, FY 2005…………………………….104 Exhibit 51. Business Services Budget Distribution, FY 2005.........................................105 Exhibit 52. Organization of the Food Services Branch………………………………..106 Exhibit 53. Food Services Budget Summary, FY 2005……………………………….. 106 Exhibit 54. Food Services Budget Distribution, FY 2005…………………………….. 107 Exhibit 55. Organization of the Transportation Division…………………………….. 108 Exhibit 56. Transportation Budget Summary, FY 2005………………………………..108 Exhibit 57. Transportation Budget Distribution, FY 2005……………………………..109 Exhibit 58. Organization of the Procurement Services Group…………………………110 Exhibit 59. Organization of the Materiel Management Branch………………………..111 Exhibit 60. Materiel Management Branch Budget, FY 2005…………………………..112 Exhibit 61: Materiel Management Budget Distribution, FY 2005……………………..112 Exhibit 62. Organization of the Purchasing Branch……………………………………114 Exhibit 63. Purchasing Branch Budget, FY 2005………………………………………114 Exhibit 64. Purchasing Branch Budget Distribution, FY 2005………………………...115 Exhibit 65. Organization of the Contract Administration Branch……………………..116 Exhibit 66. Contract Administration Branch Budget Summary, FY 2005……………..116 Exhibit 67: Contract Administration Branch Budget Distribution, FY 2005…………..117 Exhibit 68. Organization of the Financial Services Division…………………………..129 Exhibit 69. Financial Services Budget Summary, FY 2005…………………………...130 Exhibit 70. Financial Services Budget Distribution, FY 2005…………………………131 Exhibit 71. Organization of the Human Resources Division………………………….143 Exhibit 72. Human Resource Services Budget Summary, FY 2005…………………..144 Exhibit 73. Human Resource Services Budget Distribution, FY 2005………………...144 Council of the Great City Schools 5 Review of the Organization and Operations of the Los Angeles Schools Council of the Great City Schools 6 Review of the Organization and Operations of the Los Angeles Schools ACKNOWLEDGEMENTS The Council of the Great City Schools thanks the many individuals who contributed to this review of the Los Angeles Unified School District. Their efforts and commitment were critical to the Council’s ability to present the school district with a fair and balanced overview and provide recommendations aimed at improving the organizational and operational performance of the district. First, the Council thanks the school board for its leadership. Marlene Canter, board president, and Jon Lauritzin, who initiated this review, and the whole board deserves credit and thanks for inviting such a study, particularly at a time when the district is under such critical external scrutiny. Second, we thank Superintendent Roy Romer. Under his leadership, the Los Angeles Unified School District has made remarkable progress. Student test scores have improved substantially and new schools are being built at an unprecedented rate. Superintendent Romer’s willingness to have the Council invite other cities to critique the district’s organization and business operations is further testimony to his determination to make the Los Angeles Unified School District one of the nation’s urban school turn- around stories.
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