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ED 108 378 EA 007 303

TITLE Report of the Massachusetts Business Task Force forSchool Management.

INSTITUTION Massachusetts Advisory Council on Education,Boston.

PUB DATE Dec 70NOTE 107p.; Prepared in collaboration with the Associated

Industries of Massachusetts; This study was directedby Warren King and Associates,pc., Chicago

EDRS PRICE MF-$0.76 HC-3'5.70 PLUS POSTAGEDESCRIPTORS' Bibliographies; *Educational Administration;

*Educational Facilities; *Educational Finance;Educational Needs; Educational Planning; ElementarySecondary Education; *Management Information Systems;*Management Systems; Regional Cooperation; StatewidePlanning

IDENTIFIERS *Massachusetts

ABSTRCTThis report is a detailed analysis-of business

practices within the Massachusetts public school system. _It is theresult of a three-month examination and evaluation of Massachusetts'schools by .a volunteer task force of 33 corporation executives andmanagers. The evaluations and recommendations are organized into fourmajor sections of the report. Section 1 summarizes the principalfindings and recommendations of the task force; section 2 discussesthe need for long-range planning, school district cooperation, and astatewide management information system; section 3 examines theissues of school funding, manpower, and facilities; and section 4discusses different aspects of a school business management system,including fiscal management, facilities planning and acquisition,facilities operation and sa4tenance, transportation, materialsprocurement, food service, information systems, and interfacingsystems.ln addition, there is a bibliography of publicationsrelevant to various school management topics, as well as a topicalindex of subjects discussed, throughout the report. (JG)

\

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EDUCATIONTHIS DOCUMENT HAS BEEN REPRODUCE° EXACTLY A5 RECEIVED FROMTHE PERSON OR ORGANIZATION ORIGINATING IT POINTS OF VIEW OR OPINIONSSTATFO 00 NOT NECESSARILY REPRESENT OFFICIAL NATIONAL INSTITUTE OFEDUCATION POSITION OR POLICY

REPORT OF THEMASSACHUSETTS

BUSINESS TASK FORCEFOR SCHOOL MANAGEMENT

IF

MASSACHUSETTS ADVIITSODYRYFCOUNCIL ON EDUCATION

I

. V

MASSACHUSETTS ADVISORY COUNCIL, ON EDUCATION

Members of the Council

Mr. Philip C. Beals, Chairman of the Advisory Council, Trustee, WorcetterDr. John L. Sprague, Vice-Chairman of the Advisory Council, Senior Vice:. President

Research & Development, Sprague Electric Company, WorcesterMr. Hazen H. Ayer, Chairman of the Board, Standish, Ayer and Wood, Inc., BostonDr. Morton R. Godine, Vice - President, Market Forge Company, EverettMrs. Shirley R. Lewis, Attorney, Lewis & Lewis, TauntonMr. Walter J. Ryan, Business Manager, International Union of Operating Engineers,

Local No. 4,12oslindaleDi. Nina E. Scarito, Obstetrician, MethuenMr. Verne W. Vance, Jr., Attorney, Foley, Hoag & Elliot; BostonMis. Mary Warner, Engineer, Sunderland

Ex /Officio Members

Dr. Neil V. Sullivan, Commissioner of Education--Dr. Edward C. Moore, Chancellor of Higher Education

Council Staff

Dr. William C. Gaige, Direcibni of ResearchDr. Allan S. Hartman, Associate DirectorDr. Ronald B. Jackson, Associdte Director

The Massachusetts Advisory Council on Education

expresses appreciation to

Federal Reserve Bank of Boston

First National Bank of Boston

Honeywell, Inc.

National Shawmut Bank of Boston

State Street Bank and Trust Company

for making possible this second printing of

the report

December .1970

34

Massachusetts Business Task Forcefor School Manigement

September 1970

Dr. William C. GaigeDirector of ResearchThe Commonwealth of MassachusettsAdvisory Council on Education13th Floor - 182 Tremont StreetBoston, Massachusetts 02111

Dear Dr. Gaige:

We submit this report on school business management with a firm belief,in the-efficacy of our recoMmendation-s and the deep desire to be helin their implementation. Almost every school system in the\state has beenconsulted and members of the Task Force perstMally visited some 200 'sys-tems. During thes1Nrisits, we talked with superintendents, businessmanagers, principals, consultants, and other members of school staffs.Many of their suggestions are included in the report.

1We found much dedication but also much, frustration. Almost everyone wasof the opinion that the Department of Education should provide professionalassistance in critical business areas. There were clear indications of theneed for stronger state-wide leadership, more effective planning, bettercommunications, more cooperation between school districts, and broaderapplication of management systems. The implementation of our recommen-dations will correct this situation and bring about substantial economies.We urge all concerned to support adtively the effort to achieve early imple-mentatiOn of these recommendations.

1

It is impossible for us to overemphasize the willing and friendly cooperationthat we have received from all those whom we contacted during the course ofthe study. This has been an envigorating, challenging, and enlighteningtask. If opportunities can be found for more of our\ fellow citizens to exper-ience the satisfactions that accrue from public service of this kind, we thinkgreat benefits can accrue to the Commonwealth.

Re s per. tfully. y4urs

e,0 4 Vst a 14 vCarl H. NordstromChairman

4A study of the Advisory Council on Education in collaboration with the Associated Industries of Massachusetts

Directed by Warren King and Associates, Inc., Chicago

MASSACHUSETTS BUSINESS TASK FORCE

FOR SCHOOL MANAGEMENT

EXECUTIVE Carl H. Nordstrom, ChairmanCOMMITTEE Staff Director, Facilities

Planning and Control (Retired)Government Products Group --Avco Corporation,Wilmington

John W. CarleyManager of Procurement'DA-Optical Systems Division, Lexington

John B. ChaffeeLiaison, School District Organization Study, .and Assistant Director, Center for Eield Researchand School Services, BostoirCollege

H. Felix de C. PereiraSenior Vice PresidentThe First National Bank of Boston

William R. Powers, 2ndVice President, Services (Retired)Mit National Stores, Inc., Somerville

ain B. SchminkVice PresidentNational Shawmut Bank of Boston

Warren A. TuckerAssistant to The General ManagerRaytheon CompanyMissile Systems Division, Bedford

PROGRAMDIRECTOR

. Warren King and Associates, Inc..Consultants to ManagementChicago

DIRECTOR OFMANPOWER ANDFINANCE

Robert A. ChadbourneExecutive Vice PresidentAssociated Industries of Massachusetts

STUDYADVISORYCOMMITTEE

Elden L AukerPresidentAssociated Ind es of Massachuse;V i c e P --ienit General ManagerAvco Bay Stare Abrasives DivisionAvco Corporation, Westboro

Dr. James F. BakerAssistant Commissioner of Research and DevelopmentDepartment of Education

Phillip C. Beals/Chairman and Trustee

Massachusetts Advisory Council on EducationWorcester

Mrs. Helen BowditchPresidentMassachusetts Association of School CommitteesWorcester

Robert A. ChadbourneExecutive Vice PresidentAssociated Industries of Massachusetts

John. B. ChaffeeLiaison, School District Organization Study,and Assistant Director, Center for Field Researchand School Services, Boston College

Douglas A. ChandlerAssociate Commissioner for AdministrationDepartment of Education

Dr. William C. GaigeDirector of ResearchMassachusetts Advisory Council on Education

Dr. John S. GibsonLiaison, Study of the Functions of theDepartment of Education, and Director,Lincoln-Filene Center, Tufts University

5

George H. GorforthPresident

. Educational Salesmen's Association ofNew EnglandHarper & Row, Hingham

The Honorable Kevin B. HarringtonMajority Leader of the Semite,Second Essex District

Dr. Allan S. HartmanAssociate Director of ResearchMassachusetts Advisory Council on Education

Alexander MacMillanAssistant Commissioner -Administration and FinanceRepresenting Governor Sargent

The Honorable John F. MeliaState Representative,15th Suffolk District

Dr. Robert J. NaglePresidentMassachusetts Association. of School Superintendents;Superintendent of Schools, Fall River

The Honorable Harry A. ReadState Representative;3rd Barnstablebistrict

Richard B. SovdeLiaison, Study of the Boston School Systems,Student Administration Careers Program,Harvard University

John StalkerDirector, School Lunch ProgramsDepartment of Education

Dr. Ferdy J. TaglePresidentMassachusetts Association of School Business Officers;Assistant Superintendent of Schools, Brookline

TASKTEAM

FORCE Elfred G. BartooMEMBERS Assistant Vice 4°resident

Liberty Mutual Insurance Co., Boston

Albert J.- Blackburn, Jr.Manager, Systems and ProgrammingRCA Corporation, Burlington

Charles W. BogartSenior erations AnalystThe Prudential Insurance Company of America, Boston

Alan Bright-----n.itruction and Facilities Engineer

Texas Instruments, Inc., Attleboro

Robert A. CiampaManufacturing Project ManagerUSM Corporation, Boston

George C. CutlerAttorney (Retired)Massachusetts Hospital Life Investment Co., Boston

Gerald L. DreherAssistant Manager, Food ServicesJohn Hancock Mutual Life Insurance Co., Boston

Adrian E. EckbergAssociate Member (Retired)Chas. T. Main, Inc., Boston

Walter H. FlinnDepartment Chief, Computer Systems DevelopmentWestern Electric Co., Inc., North Andover

George F. GallagherDirector, Commuter ServiceBoston and Maine Corporation, Boston

John F. GarrityControllerSears, Roebuck & Co., Boston

C. Alvin GoldsmithDirector, Home Office ServicesNew England Mutual We Insurance Co., Boston

Michael M. GrayFinancial AnalystThe Gillette Company, Boston.

James C. Hebard, Jr.Manager, Product SupportHoneywell, Inc., EDP Division, Wellesley

Chandler W. JonesVice President (Retired)New England Electric Systems, Westboro

Paul G. Knouse 'Marketing OfficerState Street Bank and Trust Company,-Boston

Peter A. KushnierukMarketing RepresentativeData Processing DivisionInternational Business Machines Corporation,Cambridge

John R. LeyonSystems Planning EngineerNew England Telephone & Telegraph Co., Boston

Frank R. LockeDirector of Customer ServicesWestern Mass. Electric Co., Springfield

Albert J. McNultyControllerBoston Edison Company, Boston

Logati J. MasseePlanning Secretary (Retired)Massachusetts Mutual Life Insurance Co., Boston

John J. MaynardConsultant, Stationery DepartmentL. G. Balfour Company, Attleboro

Edwin C. Smiley .

Manager, Production Engineering (Retired)Crompton & Knowles Corp., Worcester

David -H, SmithSystems & Procedures AnalystUnited-Carr Incorporated, Boston

Gordon L. StoryAssistant Regional Manager, New England (Retired)Employees- Commercial Union Companies, Boston

Herbert_ F.. Wass-

EconomistFederal Reserve Bank of Boston

Robert H. YoungManager of International LightingTechnology CoordinationSylvania Electric Products, Inc., Danvers

Associated Industries of Massachusetts participated in the organization of the Mass-achusetts Business Task Force for SchooVanagement and was responsiblefor the recruitment of management talent as 'well as outside financial support.

6

PROJECT SPONSORS

Abbey Rents, Boston

Avco Corporation, Wilmington

American Optical Corporation, Southbridge

Arthur D; Little, Inc., Cambridge

Barry Wright Corporation, Watertown

Berkshire Life Insurance Co., Pittsfield

Boston and Maine Corporation, Boston

Boston Edison Coftipany, Boston

Boston Gas Company, Boston

Cabot, Cabot & Forbes Co., Boston

Chas. T: Main, Inc., Boston

Courier-Citizen Company, Lowell

Crompton & Knowles Corp., Worcester

Davis Press, Inc., WorcesterEmriloyees-Commercial Union Companies,

Boston

Federal Reserve Bank of Boston, Boston

First National Stores, Inc., Somerville

General Electric Company, Lynn

General 'Rio Company, West Concord

Goodwin, Proctor & Hoar, Boston

Honeywell, Inc.,. EDP Division, Wellesley

Houghton-Mifflin Company, Boston

International Business Machines Corporation,Cambridge

Itek-Optical Systems Division, Lexington

John Hancock Mutual Life Insurance Co.,Boston

L. G. Balfour Company, Attleboro

Liberty Mutual Insurance Co., Boston

Manpower, Inc., Boston

Massachusetts Hospital Life Investment Co.,Boston

Massachusetts Mutual Life insurance Co.,Boston

Milton Bradley Company, Springfield

National Blank Book Company, Inc., Holyoke

National Shawmut Bank of Boston, Boston

New England Electric Systems, Westboro

New England Gas and Electric Association,Cambridge

New England Mutual Life Insurance Co.,Boston

New England Telephone & Telegraph Co.,Boston

Norton Company, Worcester

Olivetti-Underwood Corp., Bo Mon

Peat, Marwick, Mitchell & Co., Boston

Polaroid Corporation, Cambridge

Raytheon Company, Bedford

RCA Corporation Burlington

Remington Rand Office Machines, Division ofSperry Rand Corporation, Boston

Sanders Associates, Inc., Bedford

Sears, Roebuck & Co., Boston

State Street Bank and Trust Company, Boston

Sylvania Electric Products, Inc., Danvers

Texas Instruments, Inc., Attleboro

The First National Bank of Boston, Boiton

The Gillette Company, Boston

7

The Kendall Company, Boston

The L. 'S. Starrett Company, Athol

The Prudential Insurance Company of America,Boston

United-Carr Incorporated, Boston

United States Steel Corporation, Worcester

USM Corporation, Boston

Western EleCtric Co., Inc., North Andover

Western Mass. Electric Co., Springfield

Wyman-Gordon Company, Worcester

Xerox Corporation, Boston

CONTENTS

SECTION iv

Introduction 1 Facilities Planning and_Acquisition_System---.47---,..--

Planning and Utilization 48SECTION I /

Design and Construction 49Principal Findings and

Recommendation Summary 3

SECTION II ,i Operations 56 !

Critical Needs Tl7 Maintenance 60

Long-Range Planning 17 Transportation System 63 \School District Cooperation 19

Administration 64

Contracted Services 67Management Information SystemState 23 Owned and Operated Fleet 68

SECTION IIITransportation of the Handicapped- 69

:'

Resources for Public School Education 27 Procurement Systein 69

Funding 27TeXtboolcs 75

-

ManpowerSchool Food Service System 76

29

Department of Education , . 29

Town/CitySchool CommitteeRelationship 32

Insurance , 84School CommitteeSuperintendentAttendance ServicesRelationship 33 86

Volunteer Services 34 Health Services 88

Collective Bargaining. 35 Library Services 90

Facilities 37Property and Inventory Control 92

'

Staff TraveL. 94

School Business Management System 43

Fiscal System 44

Budgeting 44

Accounting 47

Facilities Operation and MaintenanceSystem 56

Management Information SystemLocal 81,,

Interfacing Systems 84 ,

SECTION V

Bibliography 95

SECTION VI

Index - 99

.14

8

A

introductionThe Advisory Council on Education presents thisunique and important analysis of business prac-tices in the billion-dollar publitschool system ofMassachusetts. The report speaks authoritativelybecause it was compiled by 33 top corporationexecutives and managers who devoted more thinthree months, on a full-time basis, to anevaluatien'of the public schools. Modern American corporatemanagement, the finest in the world, uses themost accurate and sophisticated tools. The extentand goals of the public School system make itperhaps the best in the world, but its businessand management practices are fragmented intohundreds of small, insufficient units. Even thelarge systems are often inefficient In Massar.hu-Setts school systems, only half have businessoffi_ eon, and these are often inadequately pre-

'', .pired. In the other half, the superintendents mustserve as their own business officers. In addition,many school business functions are conducted bycity and town governments beyond the controlof school systems.

In these days of rapidly rising taxes and costs, itis unlikely that school costs can actually bereduced: 'However, the use of efficient modernmanagement practices can save millions of dollarsand arrest the rapid growth rate of increasingcost The council began exploring the possibilityof such savings two years ago but quickly dis-covered that it alone did not have the financialresources to conduct the study. First, it requested

! the services of the 'Associated Industries of Massa-',chusetts for the recruitment, on loan, of businessmanagers from successful corporations. AIM ac-cepted the challenge and did recruit the loanedcorporation executives. Second, it engaged themanagement consulting firm of Warren King andAssociates, Inc:, to assist these executives inexamining problems of public management.

The cost of planning, .eiLuipping, and managingthe Btu*, as well as editing and printing the

9

report, totals $75,000 in the council hinds. Thevalue of the services of the loaned oxecutives,whose salaries and expenses Were paid by theircompanies, exceeds $200,000. -Througr the 'effortsof the Associated' Industries of 'Massachusetts,many companies donated money, office space,supplies, equipment, end printing valued in excessof $20,000. In addition, school business officersrequested that how-t9.do4t manuals.* preparedin certain areas. The Commissioner of Eductitionearmarked $15,0* of Title' V federal tocover the cost oreparing, editing, and tinttwo manuals, oñ on school purchasing and an,other on pupil transportation. It is hoped-that theDepartment of Education can keep these manualsUp-to-ate and, develop others. Thus, th Com-monwealth has received services valued t over

cl

$300,000, of which the state has contributedonly $75,000.

But there is an additional important and intan-gible promise resulting from this study. Nearlyhalf of all Commonwealth school systems werevisited, intd their superintendents and businessofficers were invariably enthusiastic and appre-ciative. Moreover the loaned executives foundthat these edticational leaders are carrying heavyresponsibilities, often with inadequate Manage-ment training and insufficient help. As a result,there is a new understanding between an im-portant portion of the business community andlarge numbers of iublic school executives. Now,it is quite possible that school systems can obtainthe advice, assistance, and support of businessleaders throughout the Corrunostwealth in secur-ing the resources and services needed to assurecompetent school management.

The most brilliant findings of any study. are use-less if the recommendations are not effeeted.Moreover, project results are seldom implementedunless those being studied understand the need:'and cooperate wholeheartedly. In this case, super-

1

intendents and school business officers throughoutthe Commonwealth were contacted prior to thestart of the study., These men were unanimous inasking for help and in supporting the council'seffort to initiate the project. Further, their asso-ciations were fully supportive during the conductof the program.

As the results so clearly reveal, improvement ofbusiness practices and implementation of modernManagement methods require state and regionalleadelitrip, Most school_ systems, even sizablecities, cannot dividually afford all the servicesand resources that will assure efficiency andeconomy. State and regional leadership and ser-vices must be provided by the State Departmentof Education, anti the .Governor and the Legisla-ture must authiirize and suppoit such leadershipand services. Although the advantages of localcontrol must be treasured, the taxpayers can nolonger afford its costly disadvantages. The loanedexecutives, themselves local citizens, clearly re-state these premises and fOrcefully present recom-mendations in support of state leadership andschool district cooperation.

The original, investigations indicated *ble an-. nual savings of $30-million to $60-mi lion. How-ever, before appreciable savings can assured,the teams of managers state clearly t relativelysmall amounts of.money must be spe to provideneeded knowledge, staff, and servic Only thencan larger sums be saved. Althoug maximuindollar savings are not estimated for many recom-

-P

mendations, their full and early adoption couldassure annual savings of more than $60-million.In addition, the quality of education, and learningwould be greatly enhanced.

The Advisory Council on Education gratefullyacknowledges the support and cooperation it hasreceived from all agencies and individuals con-cerned with this study. Also, on behalf of theGovernoi and the Legislature, the council ex-presses its deep appreciation to the companieswhich so generously donated their executives andother resources. Moreover, it is grateful to theAssociated Industries of Massachusetts and itsstaff, without whose support and services thestudy could not have been conducted.

Finally, the Advisory Council on Education trans-mits these findings and recommendations to thepolitical leaders, the State Board of Educationand its department, the school committees andschool systems of the Commonwealth, and thestate and local officials so intimately involved. Iturges all to study these findings and recom-mendations and to play their appropriate rolein developing the efficiency and economy neededto assure high-quality education at 'the lowestpossible cost.

Dr. William C.. GaigeDirectOr of Research,MassachuSetts AdvisoryCouncil on Education-

_ September, 197rt

t SECTION I

Pri cipal Findings

and

Rec,nmendatioilSurrary

r

Principal Findings

Any:I billion-dollar operationand that is thpresent-day scope of public primary and second-ary education in Massachusettsmust be regardedas big; business. Consider its massive. physicalplant facilities and thousands of professional andsupport personnel. Think of the growing fleets of

vbusses.in entories of supplies, books, and equip-ment; athletic and recreation programs; main-tenance 'and new construction; health and foodservices; recordkeeping and reporting require-ments; and wide geographic coverage. Add 'tothese a new, era of collective bargaining andpersistent demands for better and more compre-hen.live services. ,With the application of themanagement concepts fundamental to efficient andproductive operation, the analogy to big businessis complete.

.

Although the resources devoted to public school, education are large, they are managed in a frag-mented fashion. There is little coordination atthe state, level and almost no interchange ofinformati*, formal or informal, between schooldistricts. The Massachusetts Business Task Forcefor School Management found' widely varyingprocedures. Good practices in one district werenot being used to advantage by neighboringdistricts with similar problems, because thereis no organized method for exchanging suchinfOrmation.

Effective working relationships between sc\ooland d school administrators t in

many districts, but in others policies arc t eand limits of executive authority unclear. Dellation of responsibilities and basic organicitionel,structure simply do not exist in some singlet \systems. Too often, day-to-day problems are dealtwiith on an ad hoc basis.

The Task Force found instances where sound andsystematic management practices have been intro..duced into local school systems. Actually, there

are no inherent obstacles to the initiation andapplication of .modern business methods andmanagement systems throughout the Common-wealthif local school districts are given the

stools, guidance, and community sup rt.

There are many benefits to' be derivimplementation of the Task Force- rtions.- ¶fhe most important of theseship that can be exercised throughuse of the recommended manageme

from theOmmenda-the leader-

the prudentt tools.

Other benefits are those resulting from improvedefficiency and productivity of personnel in per-forming their duties under the proposed manage-ment system. In most cases, no estimate wasmade of the dollarNalue of such benefits. Dollarbenefits were ,estimated in connection with 25recommendations. They are not additive becausein some areas options are available. For example,in the transportation area, a school district caneither contract for bus services or own and,operate its own busses; cities and towns can eithermodernize existing buildings or contract for newones.

The Task Force believes the implementation oftheir reco r ndations can result in a reduction1

of total ex ditures (operating plus construc-tion) equal to "6% of the total expenditure& that

ould be incurred under the present systenm of, ratioiiThe 6% reduction does not take into

unt the effect on tot expenditures of corn -school district coo ration. When that islished, a 10% redu tion can be anticipated.eduction are th dollar benefits to be

torn the itnplem ntation effort.\the p t four ye public school operat-

ina\ nditu have inc eased about 13% peryear\ov = r the eding ar, and constructioncosts at flit 10 per ye r over the precedingyear. Tot \expe ditures f r the1968 .69 schoolyear were appro = tely 1.1-billion. The pro-

31, ;le

STATE SECONDARY AND PRIMARY SCHOOLTOTAL EXPENDITURE PROJECTIONS

17

16

15

g

14

a: ,13

3

11

MAXIMUM

...a Pretext Method POTENTIALSAVIN5S

Gradual Imolementstoon A tOK$100 WWI

Accelerated Implementation

POTENTIALSAVINGS

Aloe540 Moon

1960-60 1969-70 1970-71

YEARSjected expenditures for the next four school years,assuming a conservative increase of 10% pet yearover the preceding year, is illustrated in the solidline in the graph shown above.

1971-72

IIC

1972 -73

The broken lines show the effect of the rate ofimplementation on dollar benefits. The lowerline is based on the assumption that implementa-tion is already in effect and the achievable 6%reduction was reached at the beginning of the1969-70 school year. The middle line is based onthe assumption of a gradual implementation witha 1.5% reduction for the 4969-70 school year, 3%for 1970-71, 4.5% for 1971-72,,and 6% for 1972-73.The vertical distance between the respectivelines portrays an estimate of the potential re-ductions in expenditures resulting from gradualor accelerated implementation as compared to noimplementation progress It is obvious that delaysin implementation can be very expensive.

Costs will be incurred in effecting full imple-mentation. The T%,' ',nee., estimates that theDepartment of 'n need an additionalappropriation . tately $1.1-million toengage the proie......mal staff and the servicesnecessary to carry' out its very essential role inthe implementation effort. No estimate has beenmade of costs to local districts. It is certain,however, that they will be significantly greaterif the Department of Education is unable to pro-vide the leadership and professional assistancethat the local districts can rightfully expect.

Critical Needs

The absence of several key elements essential toeffective management was evident" throughout thestudy conducted by the Task Force. These aresummarized in this section.

Long-Range PlanningFormal long-range planning should be initiatedat both the local and state levels. Five-year plansshould be prepared annually because updating atleast that often is essential to keep pace withchanging conditions. Long-range planning is nota static function but an evolutionary processthat fact clearly is not recognized by the educa-tional community in Massachusetts.

There are many developments which can affectthe future of education. Executives must evaluatethese developments and make decisions whichwill enable them to react to-change effectively aswell as to contingency and crisis-Soch decisionsare critical and the Task Force belieires strongly'that they cannot be made wisely without thekinds of information ant guidance which long-range planning provides.

4

Sdhoof District Cooperation-'Optimum economic size is one important charac-teristic of a successful district operation. How -ever, many local school systems in Massachusetts

\ are not large enough to obtain the most effectiveeducational return for the dollars expended. In-escapably, conditions today require more co-operation between school systems and on a largerscale than has been envisioned in Massachusetts.Methods of achieving this vary, but regardless ofmethod, the Department of Education must providea unified policy and adequate communications.Without increased' cooperation between schooldistricts, Commonwealth taxpayers must be re-signed to continued duplication of costs, competi-tion for tax dollars and personnel, as well as anunbalanced educational system frequently favor-ing the better financed communities.

Local control has been traditional in M, ichu-setts education, but such control, as we know ittoday, suffers in a fragmented system. Local unitsoften are uneconomical in operation and politi-cally impotent. A system which combines central

leadership with strong centers of local control willProduce significant economies, cut waste, and offer.thi'adclitional benefits of greater scholastic chal-lenges ecial programs. In addition, it willproNtide betterikilities and management, as wellas financially self-slfficient local school groupingswhose voters can truly control the importantaspects of their childien' education.

The Task Force examined and considered in greatdetail the history, 'status, problems, and benefits

school district cooperation. After discussingthe issues at -srth, it recommends a transitiontowards 7 trims in a manner whichshould pri qficial and acceptable to thelocal commktnities.

Management Information Sy StateThere is also a need f a ntrally administeredinformation system in olving the rdinated ef-

forts of the Office of Planning and- ProgramCoordinion, the Department of Education, aswell as users and contributors of educationalinformation. An Advisory Committee should beestablished to oversee the activities of the Massa-chusetts Educational Management - InformationSystem, determine acceptable project( riorities,and ensure that the full capabilities of e systemare made available to its constituents.

It is imperative that the Department of Educationbe able to describe the current and future needsof the users of educational information. Addition-ally, it should have a plan for an informationsystem to tie in with the larger state system andbegin implementation where it is onomicallycfeasible as soon as possible. This ill require ,astudy of the needs for management information,the-design of a data base, as well/as documented

4 computer programs. 4

// Ilitsources for Public School Education

Sound management of three basic resourcesfunding, manpower, and facilitiesis essential foran effective public school system 'operation. Theparagraphs below summarize the content of thesesections.

FundingMassachusetts taxpayers are plagued by the cur,rent imbalance botlween the support to educationprovided by local property taxes and the morebroadly based state support. Aggravated by risingcosts, taxpayers have reacted by restricting re-sources for local education.

1

The questions of state aid and local funding arecomplex, and involve many aspects beyond thepurview of this management study. However,from a business standpoint, it is obvious thatmany schools are operating inefficiently becauseof inadequate funding. Therefore; the GeneralCourt should give prompt and serious considera-tion to findings of the various expert groups whohave recently studied this problem.

Manpower /Manpower is an indispensable and critical re-source for education. The Department of Educa-

------ tion as presently funded and organized, cannotmake the fullest and most effective use of thisresource and is not in a position to implementmany of the recommendations in this report. TheGeneral Court should fund -this department ade-

14

quately and give it the authority to select, com-pensate, and classify its professional staff withinthe overall limits of its budget: If not, considera-tion should be given to deactivating the Depart-ment of Education.

Assuming that adequate funding is madeable, the department should establish an expandedBureau of School Management Services. Thisorganization would assist 'all school districts inquestions of building operation and maintenance,collective bargaining, data processing, programbudgeting, purchasing, transportation, and volun-teer manpower.

The department should also appoint a professionaladministrator in the Office of the Commissionerto direct departmental communications and toplan and execute a long-range public relationsprogram. Communications are an essential tooland function of modern management. It is vitalfor public understanding and support of the edu-cational system. Yet, the Massachusetts

the

of Education now has no effective com-munications program.

School districts should solicit support from localbusiness -and industrial organizations to assist inspecial instructional areas and administrativematters. Some districts are now deriving benefitsfrom this approach, and the practice should beexpanded.

School costs have been impacted heavily in recentyears by collective bargaining. In general, the

bargaining units in the school system have beenrepresented by professional negotiators. The TaskForce strongly recommends that the school com-mittees secure similar representation. In anycase, the negotiations should not be conducted byinexperienced personnel.

FacilitiesSchool building)s the biggest construction busi-ness in Massachusettsabout 4-million squarefeet each yearbut it also is the most fragmentedin terms of management! 'Experiences gained inone community are seldom shared with another.In addition, the benefits of :mass buying andstandardization of methodi -are not realized.School building problems are being compoundedas parochial schools continue to close.

Innovation in construction methods is one of themost powerful means of combating high costs.The Department of Education should promotestrongly the development of modular systemsconstructiot. There is an urgent need for the

Department of Education to provide coordinationand expanded assistance in all areas of schoolconstruction, including cost savings analysis, siteplanning, building design, architectural planning,and a central data bank.

Other Task Force recommendations for reducingcall fschool building costs or the General Court

to establish a central state contracting agency andfor the towns to expand the use of stabilizationfunds for school construction. The latter approachwould eliminate or reduce expenditures for bondissues which can amount to as much as two-thirdsof construction costs.

Finally, in this expensive and vital area of schoolconstruction,-educational and town planners mustrecognize the premium on time. A three-yeardelay can increase the cost of a building by one-third. Long-range planning would avoid this

. delay, and would result in buildings being con-structed when they actually are required by thelocal systemnot two or three years later, as hasbeen the usual experience itissachusetts.

School Business Management System

The operating problems confronting school districtbusiness managers as well as other Interfacingactivities are highlighted in the following para-graphs.

Fiscal SystemThe Task Force recognized the need to modifyand standardize educational budget content andpreparation procedures to obtain greater publicunderstanding of the objectives of school pro-grams. Budgeting by objectives rather than byfunction provides opportunities for decision-making on the basis of priorities. In addition,uniform formats would facilitate comparisonsbetween systems and measurements of perform-ance against stated goals. After budget com-ponent costs and revenue sources have beenproperly identified, the budget should be approvedas one total. This would permit the superintendentto make transfers freely within the overall budget.

The greater accountability provided by programbudgeting and performance comparisons shouldmake this increased flexibility acceptable fromthe standpoint of control. The temptation to makeunnecessary expenditures, in order to avoid re-turning unspent monies to the general funds ofthe community would be greatly reduced. 15

Facilities. Planningand Acquisition System

Long-range facilities planning by the school dis-tricts must be improved, if they are to meetsuccessfully the problems of increasing pupilpopulation, rising construction and land costs, andparochial school closings. The Department ofEducation should be funded to a level at whichit can provide assistance to town school planners.As part of this assistance, the department shoulddevelop, in cooperation with the towns, standardcriteria and formats for space utilization records,so that emerging space needs can be clearlyidentified and justified to the taxpayers.

Facilities Operation andMaintenance System

The Task Force's review of this key area discloseda serious lack of effective custodial training pro-grams for establishing and maintaining adequateskill leltils among the more than 6,000 custodiansin the public school system. Such programs wouldcombine on-the-job training, a custodian's hand-

\ book, and improved custodial supervision, whichwould inc orporate comprehensive schedulingbased on 'Work measurement techniques. Per-formance time standards would provide uniform

schedules for all custodial tasks and establish amore even distribution of work loads amongemployees. The Department of Education is nowprepared to conduct training programs, uponrequest from any town. Such action would bringa rapid improvement in efficiency.

Maintenance management of physical facilities inmany school systems is ineffective. In some cases,this is because maintenance responsibility is as-signed outside the _school's authority., In otherinstances, maintenance management expertiseamong local school administrators is limited. Ingeneral, preventive maintenance programs areeither inadequate or noAexistent. These condi-tions jeopardize the long-term serviceability ofschool facilities throughout the Commonwealth.Prompt action is required if this potential wasteof the taxpayers' money is to be stopped:

Transportation SystemReview of the Commonwealth's numerous schooltransportation systems, which serve 500,000 pu-pils with more than 4,200 vehicles, disclosedopportunities for significant cost reductions. Thegreatest opportunity for achieving transportationeconomy is through combining individual schooldistricts into larger area transportation facilities,which would be administered by transportationspecialists, and through eventual public owner-ship and operation of bus fleets.

The Department of Education should provideexpert and timely guidance to the. local districtsand area specialists so that effective and economi-cal transportation systems can be implemented.Such aqgistance should encourage more coopera-tive arrangements between school districts wheretransportation is required for special purposessuch es vocational and technical schools. Assis-tance in the form of centrally developed computerrouting and scheduling and the establishment ofpupil pick-up stations, bus and driver standards,effective service complaint processing procedures,formal rules of pupil conduct, and procedures forreporting and reviewing rule violations shouldalso be give-3.

When transportation services are contracted, bidsand proposed contracts should be analyzed andapproved at the state level. Ftirthermore state-developed forms and procedures should be util-ized, and performance bonds should be requiredas an integral part of every request for bid andtransportation contract. Moreover, legislatiou ,isrequired to enable school committees to negotatecontracts of longer duration to effect cost savings.

Local transportation cost reimburseMent by thestate should be limited to a maximum cost per

pupil to ensure maximum effort to effect economi-cal transportation: Finally, the operating manualon pupil transportation prepared by the Task \

. Force should receive wide disteibution in theschool districts.

Procurement SystemA uniform business system for purchasing at thelocal level is critically needed, so the Task Forceprepared a school purchasing manual to meetday-to-day operating requirements. Furthermore,a procurement specialist position should be estab-lished in the Bureau of School ManagementServices to coordinate purchasing activities anddisseminate information among Commonwealthschool districts. 'Since lower prices inevitablyresult from higher-volume procurement and ad-ministrative cost reductions are achieved whenseveral schools are served by a single advertisingand bidding procedure, cooperative purchasingshould be developed on a regional basis.

School districts should also be informed of com-modities available under state contracts, and theState Purchasing Office should encourage themto use such contracts. A serious lack of com-munication among local school districts and theState Purchasing Office now hinders this process;this gap should be bridged immediately. Incorpor-ation of large-volume school requirements intostate purchasing orders would result in lowerprices for all state agencies.

School Food Services SystemThe Task Force believes substantial improvementsin the Commonwealth's school lunch programwould result fromAthe creation of a Division ofNutrition Education..and School Foods Serviceswithin the Department of Education. This divi-sion would provide financial and technical assis-tance to the local districts, handle governmentcommodity distribution for the schools and even-tually other institutions, and provide innovativeand creative nutrition education.

However, the tgreatest economies could beachieved by using central kitchens to serve morethan one school; and the division -should activelypromote this concept. In addition, the state shouldtake full advantage of government-donated com-modities by c ntra Ong the processing of thisfood for op ersiori into finished products forresale to va us school district systems.

Mnagement InformationI

' System LocalIt is essentii1 that the Commonwealth have a stateLwide mans ement information system. Theretothe local districts should participate in-its develo

16

ntent in coordination with the Department ofEducation, whose functions in the system havebeen described previously.

The Task Force suggests a one-year moratoriumon the addition of data processing 'equipment.During this period, the Department of Educationwill establish the input-output configuration ofthe system. Thereafter, as mutually agreed, thelocal districts and the department should cooper-ate in the development testing and implementa-tion of the system.

Interfacing SystemsThe Task Fo.-ce has defined interfacing systemsas those which govern functions which are notgenerally considered in the business area, but

RecommendationRECOMMENDATIONS

General Court ActionConsider the findings and recommendationsof the various' individuals and groups thathave studied the school funding problem,and take appropriate action.

* grant the Department of Education author-ity to Select, compensate, and classify theirprofessional staff within overall limits of

.its budget ....

Orsini school committees responsibility forinsurance coverage on school buildings andcontents.

Invest full authority for purchasing suppliesand services used in the school district withthe school committee.

Authorize the school committees in all townsand cities in the Commonwealth to maintainthe school buildings.

Permit school districts to keep their ownbooks of account or contract this functionto the parent town or city.

Require the town treasurer to pay promptlyand without further authorization all pur-chase orders and requisitions on certificationby the school committee or its appointedrepresentative providing the amount due /and-payable is within the approved budget.

"Top Priority i /a

which depend on the business area for servicessuch as purchasing and budgeting. Such functionsare insurance; attendance, health, and libraryservices; property and inventory control; andthe like.

Many disparities were observed among the schooldistricts' vast array of insurance programs. Direc-tion and coordination are required at the statelevel to ensure adequate protection of schooldistrict property and personnel and to achievethe economies that group rates provide. The costof attendance services could be reduced by con-ducting the school census and street-list canvassessimultanemiSly. Finally, important financial andeducational benefits could be achieved by co-ordinating the purchasing and processing of li-brary materials on a regional basis.

SummarySECTION RECOMMENDATION

NUMBER PAGE

IIIFunding 1 . 27

IIIManpower 1 31

IIIManpower 4 32

IIIManpower 5 32

IIIManpower 7 33

IIIManpower 8 33

IIIManpower 9 33

RECOMMENDATIONS

Authorize the school committees to delegateexecutive authority to the superintendent

Exclude principals and assistant principalsfrom any collective, bargaining unit.

Estabillih a central state agency to contractfir construction of all elementary and secon-dary public school buildings.

Use the Commonwealth's credit rating toWOWS, bond interest costs.

Require all school committees to submitbudgets that are program-oriented ratherthan Enaction - oriented.

Require *cheat builiits to display revenuearras and contributed services, all an-ticipated expenditures for whatever pur-poses within or without the school system,and indicate the net amount to be raised bylocal taxation.

Pros foror periodic destruction of records.

Permit school districts to advance funds inanticipation of payment by state or federalauthorities for projects which have beenPM** approved.Establish a limitation on state financial aidfor-school construction projects.

Permit the use of a brae bid and alternatefions.

Enab and encourage school committees toand negotiate bus contracts for

periods of longer than the presently allowedthree years.

Umit state reimbursements to school dis-tricts for pupil transportation costs.

Required municipiditir¢ which do not carryprimarpInsurance on their buildings andcontents to purchase of -loss coverage.

Amend the Workmen's Compensation Actto make -mandatory the provisions of thelaw to all local and regional district schoolsystem employees.

Require municipalities not insured against-liability for Workmen's Compensation tocarry single accident excess insurance orreinsurance.

SECTION RECOMMENDATION

NUMBER PAGE

IIIManpower 10 '\ 33

IIIManpower 17 37

IIIFacilities 2 39

IIIFacilities 3 40

IVFiscal System 1 46



IVFiscal System 47

IVFacilities PlOningand AcquisitionSystem 12 55

IVFacilities Planninganri AcquisitionSystem 15 55

N- TransportationSystem 10 67

IVTransportationSystem 13 69

IVInterfacing Systems 2 85

IVInterfacing Systems 3


RECOMMENDATIONS

Extend indemnification to all employees forapenses or damages resulting from an acci-dent due to their own negligence arising outof their employment.

Require that all Ourdcipalities provide gen-.eras insurance, including products and ve-hicle liability protection, with a minimumcombined of $1-million per occurrenceeither by primary insurance orpurchasing ppropriate excess insurancecoverage abo e a retention for each occur-rence.

Create a state which will be theinsuring en for the single packaging ofgroup health d life insurance for all schoolemployees and other municipal and countyomPloYaca

Allow the schooleensui and town listings tobe taken_ simultaneously and require townofficials responsible for compiling street liststo collect-information on all-residents.

Base local school aid on pupil enrollment forOctober 1 rather than on net average mem-bership attendance by amending Chapter 70,Section 4 of the Genial Laws.

Department of /Education Action**Propel* and annually submit a five-year

plan to the -Beard of Education' for action,beginning in /117L

**Eatitblish an effice, designated as the Officeof School District Cooperation, reportingdirectly to theCommissioner, with exclusiveresponsibility to promote and coordinateschool district cooperation.

**Establish, with appropriate funding from theGeneral Court, a Massachusetts EducationalManagement Information System (MEWS).

* *Establish an advisory committee on infor-nation systems for education.

* *Activate immediately an expanded Bureauof School Management Services within theMassachusetts Department of Education.Engage a professional administrator to directcommunications within' the department andcreates proposed Office for Communicationswith responsibility for planning and execut-ing a long-range public information program.

**Top qty 1910


NUMBER PAGE



IVInterfacing Systems

WInterfacing *stems 8


IILong-Range Planning 2

IISchool DistrictCooperation

86

88

19

1 21

IIManagementInformationSystemState 1

IIManagementInformationSystemState 2

# IIIManpower

IIIManpoiver

2

3

24

25

31

31

__RECOMMENDATIONS,

Distribute the existing collective bargainingmanual to all school authorities.

**Create a division of School Construction andFacilities.

Establish standard criteria and records forevaluation of space utilization.

Provide school districts with experience rec-ords of school architects.

Develop procedure manuals for educationalspecifications, building design and construe-tionlidte selection, site development, andsandal assistance.

* *Immediately implement the provision forstate financial aid to rehabilitate and mod-ernize older schools.

Upgiumle minimum school building lightingstandards to conform with the latest Elam-inadng Engineering Society recommendledlevels.

Require the Division of School Constructionand Facilities to act as consultants to schooldistricts on building construction to reduceoperating and maintenance costs.

Develop bidding forms and procedures foruse by school districts.

Develop computer-assisted routing andscheduling techniques for use by the schooldistricts.

**Encourage the establishment of area trans-, portation districts in Massachusettn

Develop and implement a uniform purchas-lug system for, use by school districts.

Establish a state-wide continuing purchasingcommittee.

Create a Division of Nutrition Educationand School Food Services.

Adopt criteria for measuring efficiency ofindividual school and district food serviceoperations.

ChannelOvailable government-donated com-modities to food processors for conversioninto finished products for resale to variousschool district systems.

**Top pool*, rro

--SECTION RECOMMENDATION

NUMBER PAGE

IIIManpower 14 36

C\ 1 38

IVFacilities Planningand AcquisitionSystem 2 49

IVFacilities Planningand AcquisitionSystem 8

IVFacilities Planningand AcquisitionSystem 10 54

IVFacilities Planningand AcquisitionSystem

IViacilities Planningand AcquisitionSystem

11 54

13 55

WFascilities Operationand MailitenanceSystem 7 59

IV Transportation. System 3 64



IVProcurement System 1

IVProcurement System 5

71

74

IVSchool FoodService System 1 77

N=- School FoodService System

IV-fSchoolFood

Service System 4

77

78

RECOMMENDATIONS.

Redesign the Report and Claim for Reim-bursement form by substituting a monthlybalance sheet and profit-and-lossItateMent.

Publish a cafeteria personnel haridbOok atthe state level to emphasize selection, moti-vation, and training of cafeteria employees.'

Create a position of, Supervisor of Insurance.

Promote the concept and establishment ofregional instructional media centers.

Establish a program to providh a system ofmutual support among all lib

School Committee Action"Increase solicitation of volunteers throubc

civic organizations and lcal citizens to aid//local school administrators.

**Solicit volunteers froth local business andindustry to assist instructionalareas and adminis ti matters.

**Secure the se of a professional sego-tiator to rep the school committee incollective sessions.

Adopt a poll that the superintendent actonly in an advisory capacity in collectivebargaining.

Approve the school budget as one total.

Require all school superintendents to make\a report at the end of each school yearsho the financial results by programcom with budget and also the educa-tional results compared with those forecastwhen the budget was prepared.

Establish security procedures for handling,counting," and depositing cash.

**Increase use of proper long-range planningtechniques.

*.

Reactivate custodial training programs con-ducted by the Division of Occupational Edu-cation at regional vocational high schoolsand other locations.

Procuit: a handbook for all custodial per-sonnel.


NUMBER PAGE

IV----School FoodService System 5 80

IVSchool FoodService System 6 80


IVInterfacing Systems 14 '91

IVInterfacing Systems 15 91.

A

IIIManpower 11

IIIManpower 12 35

IIIManpower 15 38

IIIManpower 16




IVFacilities. Planningand AcquisitionSystem 1 49

IVFacilities Operationand MaintenanceSystem 1 . 57

IVFacilities Operationand MaintenanceSystem . 3 58

21

7,4

RECOMMENDATIONS

**Develop cooperative maintenance arrange-ments between cities and towns.

* *Establish cooperative arrangements wheretransportation is required for special pur-poses such as vocational and/or technicalschools, and the like.

Include- a provision in all contracts givingthe school department authority to set theconditions of bus and driver behas;lor.

Require pe4armance bond4as an integralpart of every request forsitand Transpor-tafion *Contract.

"Develop cooperative purchasing a re-gional basis with assistance from the Depart-went of Edutiiition.

Organize regional committees to select andmaintain lists of recommended textbooksfor each subject level and establish proce-dures for their procurement.

*Require the use of central kitchens to servemore than one school.

Coordinate =the purchase and processing ofmaterials on a regiOnal basis.

Establish written policies governing traveland reimbursement regulations for schooldistrict personnel based on guidelines to bedeveloped by the Massachusetts Departmentof Education.

School Administration Action**Prepare, beginning in 1971, and annually

submit a live-year plan to the school com-mittee for action and forward a copy to theDepartment of Education for review.

Make special purpose areas available forother activities.

Improve on-the-job training for new cus-todians.

Improve the quality of custodial supervision.

Institute schedules for custodians usingwork-measurement techniques.

_**Top priority 22


- NUMBER PAGE

IVFacilities Operationand MaintenanceSystem

IV TransportationSystem =

IV TransportationSystem

IVTransportationSystem

IV ProcurementSystem

s-

WProcurementSystem

IVSchool FoodService System 3


IV Interfacing Systems 18 11

I;

IILong-RangePlanning

N Facilities Planning /and AcquisitionSystem - / 3

IVTleilities Operationand MaintenanceSystem 2

IVFacilities Operationand MaintenanceSystem 4

IVFacilities Operationand MaintenanceSystem 5

RECOMMENDATIONS

Install a suggestion system for custodiansand maintenance personnel.

Involve the pupils in the care of their schoolbuilding.

Limit assignment of maintenance planningand administration responsibilities to prop-erly qualified employees.

Develop and implement maintenance man-agement systems which include sound prin-ciples of preventive maintenance.

Analyze tl school's contracted services todetermine if employment of full -time crafts-men is justified.

Encouraggitustodians to perform minormaintenance jobs.

Establish centralized student pickup loca-tions unless safety considerations dictateotherwise. $'.-designate a telephone number and a personto whom parents can call to obtain businformation or register complaints.

Issue written rules of conduct to pupils andparents every year and post the regulationsin each-bus.

Require written reports of rule violationsfrom bus drivers and establish formal reviewprocedures.

Assign responsibility for transporting_handi-capped-students-talhe -agency responsiblefor their education.

* *Expand school distiict purchasing understate contracts with assistance from theDepartment of Education. --

_

Use paperback-ooka, where practical andeconomical.

**Develop and implement Local EducationalManagement Information Systems (LEMIS).

Designate guidance personnel as supervisorsof attendance and,, where possible, shift dis-ciplinary aspects of the position to localpolice departments.

**Top priority

14

23


NUMBER PAGE

IV Facilities Operation:sanydsteMainm tena,,,, nee

WFacilitiei ai;e14inand MaintenanceSystem



IVFacilities Operation.and MaintenanceSystem


I4TransportationSystem

6 59

9 60

_11 61

12 62

13 62

15

5

IVTransportationSystem 7

62

WTransportationSystem 8 -66


_ ----Transportation

System 14 69

IVProcurementSystem 4 73

-WProcurementSystem 7 . -76

IV ManagementInformationSystein--Local 1 81


RECOMMENDATIONS

Use nonprofessional adults on a part-time,full-time, or volunteer basis to perform cler-ical and other nonprofessional work taskswhich consume much tine of school nurses.

Improve the availability of library materials' and

Install property control syitents within eachschool district.

City and Town ActionDesignate a Membielthe school committeeaiid the superintendent or his appointee asidling members of the School BuildingCommittee.

**Promote the development and use of themodular systems approach to reduce ion-struction costs.

**Establish local stabilization funds fort newschool construction to reduce financintcosts.

**Make early decisions and commitments tonew buildings.

Require the architect selected for a newschool building to evaluate proposed newschool building design technologies andniiithods.

Require the architect selected for a newschool building to. study alternate types ofheating and ventilation systems prkii tocompletion of the final design, and specifyhigh-nudity, easily maintained mechanicaland electrical

Involve maintenance and custodial personnel'in the design and planning of new facilities.

Make the kiMl health agencies responsiblefor health serVices in all public schools.

**Top priority

24

(

ECTION RECOMMENDATION

PAGE

89

f'NUMBER


IVLInterfacing Systems 16


IIIManpower 6

IIIFacilities 4

5

IIIFacilities 6

IVFacilities Planningand Acquisition

.System 6 ,

NFacilities Planningand Acquisition

92

92

32

40

41

52

System 53

IVFacilities Operationand Maintenance, 8 59


C Rica

The school system of the Commonwealth, 'viewedas a whole, suffers from several basic sh m-inas, which together, make the introduc on ofeffective and economical business practi un-necessarily difficult. These shortcomings c beroughly grouped in three categories:

111! Lack of long-range planning.

*Problems of district size.Absence of adequate and timely infoima ionon which management decisions can be ba d.

Long-

In business, there is a continuing high-level plning program. This effort results in the prepa

b 404,0p4nanagement_annwIlof an operating plan which looks ahead one ye

Needs

This seciion of the report deals with these critical. needs and makes specific recommendations de-signed to correct them. These recommendationsand many of \ those in other sections cannot befully implemented without strong leadership froma well-staffed and well-funded Department ofEducation. The \ibjects of adequate financialsupport and effecti utilization of skilled person-nel are critical, and ate ' addressed within theFunding and Manpower sections of Resourcesfor Public School Education.

ange Planning

as well as a long-range plan for, at least, threefive years. In the public school system there is aplanning effort in each district and within theDepartment of Education to prepare iond submitan annual budget to the school committee and theBoard of Education, respectively.

To the business executive, the_ operating-plan is ,akey document- beca,u-se it projects sales, profits,and return on investment. These are the yard-sticks by which the board of directors and thestockholders measure success. The plan also iden-tifies the,, resources required to implement theprogram and emphasizes the areas which arecritical to success.

Within the public school system, the annualbudget serves a similar purpose. However, itdoes not contain the type of information neededby Ichool committees, the Board of Education,and taxpayers to measure management successbecause yardstieks comparable to profit and re-

turn on investment are not established.\ Thetechnique of budgeting by objective is an attemptto fill this void.

In business, several kinds of plans ple-mented at various levels within the organization.Examples are program, project, financial, andfacilities plans. SuCh plans are the result ofdecisions made by top management. Subsequentdecisions may require the amendment-ofplans.-

Long-range planning is a continuing activity. Keyexecutives are charged with responsibility ofinforming top management immediately of anyactual or anticipated developments which willaffect the future.

Once -a year, key executives prepare and submita formal long-range plan, usually covering a fiveyear period to management. This is a fundamentaland necessary document because it forecasts busi-ness prospects based on occurrence of the mostprobable set of.impacting developments. Further,it includes contingency plans which recommendaction to be taken should a significantly morefavorable set of developments occur, and the

17

yz

action to be taken shoulc: the least favorable setof impacting developments occur, The areas inwhich risk capital could be invested profitablyare also pinpointed. In addition, it recommendswhat existing programs, projects, or business linesshould be expanded, curtailed, or discontinued aswell as incorporating the financial, manpower,and facilities plans to support the forecast.

The long-range plan is an authoritative forecast.Inevitably, it begins to lose its validity almost assoon as it is published because operating condi-tions change. Nevertheless, the long-range planis invaluable in helping the top executive de-

-tenni:fie direction and make the right implement-ing decision that is so necessary to successful

There is very little formal long-range planningat either the local or state level. Therefore, theBusiness Task Force feels strongly thaflong-range planning is essential .in public education.Executives within the public school system aremaking critical decisions without the informationand guidance afforded by a workable long-rangeplanning function.

RECOMMENDATIONS

1. School administrations should, beginning in1971, prepare and annually submit a five-year plan to the school committee for actionand forward a copy to the Department ofEducation for review.

Participation in long-range planning should beorganization-wide. Personnel should ask andanswer questions such as: What developmentsmight affect the future of public education, par-ticularly in my area? What is the probability oftheir happening, anct.when? What action should

and when? What are alternativei?'What woidcrbeilie-effeet-oktaking no action?

Results of this continuing process must ---mitted to key executives for evaluation, then tothe superintendent for decision. Those executiveOfficers then assign the overall responsibility) forthe long-range planning effort to key memberswithin the organization, They would, in turn,identify actual and' anticipated developmentswhich might affect the future of public schooleducation. Examples are:

II- Impact of legislation on the design and costof facilities.

P.. Effect of changes in government policy onproviding educational funds for special pur-pose programs.

Reaction of parents and pupils to effective-ness of the public school system.

is

P:Influence of television in gen ral, and educa-tional television in part cular, on the attitudeof children including those o preschool agetoward formal education':

I' Use of contract teaching servic s for selectedsubjects.

IN' Stand of, the taxpayer on fundi

IN' Result of experimental teachingpreschool children.

g.

ograms for

10. Improvement in audio-visnal tech iques anddevices.

IN' Availability of professional perso nel,, par-ticularly in the buSiness Management area.

Intention' of the unions e.tive -w thin thepublic school system, with respect to\salaries,fringe benefits, working, conditions, and, asso-ciated possibility of strikes.

Add ally, these school executives would estab-lish -, protedures gOverning the participation ofperknne Tat all levels of 'the organization and''expl e long-range planning effort to them.

Having ut the long-range planning effort intoeffect, continuing responsibilities of the key per-sonnel would be to: . -----

----- -IN' Inform the superintendent immediately of

actual and Anticipated developments whichwill affect/the future of publicschool edu-cation.

PPrepare and submit annually to the superin-tendent a formal long-range plan coveringa five year- period.

The long -range plan includes for each project orprogram:

Po. A statement of objectives411hid their needs

An analysis Of developments which mightiffecl-the-pregrarn.

lo.A forecast based on the progrear --expectover the next five years.

IN' An alternative course 'of action.

Po. A financial plan, a manpower plan, as welas a facilities plan.

A small school district may' find it frustrating toplan five years ahead because of difficulty insecuring financial resources to implement thebest of plans. In that case, the district .shouldconsider getting together with other small dis-tricts and prepare a cooperative five-year long-range plan. See section on School DistrictCooperation.

In large school districts, it may be 'advisable tohave a key manager act as coe..iinator duringpreparation of the long-range plan.

2. The Department of Education should beginin 1971 to prepare and annually submit a

- five-year plan to the Board of Education.The Commissioner of Education should assign theoverall responsibility for organizing and carryingout the Jong-range planning effort to key execu-tives within his organization. They should followthe procedure outlined for the local districtexecutives under the prededing recommendation.To be successful, the planning effort must beeffectively coordinated. Therefore, we suggestthat the proposed Office of Long-Range Planningbe changed to the Office of Long-Range PlanningCoordination. This office should:

Coordinate the long-range planning effortwithin the Department of Education includ-ing preparation of the five-year plan.

II...Review the five-year plans submitted by thelocal districts with particular emphasis onthose items which should be consideret, forinclusion in the department's plan.

110' Advise and assist the local districts in thepreparation of their five-year plans, when-sorequested.

Develop, in conjunction with district repre-sentatives, a general format to provide uni-formity as to subject matter and thelirder inwhich it is to be, presented in the plan. Thisshould be initiated after the first submissionand introduced in 1972.

School District Cooperation

As businessmen, we are aware of the problemssmall businesses encounter in competition withlargerbusinesses. Although size is only one factorin a successful operation, visits to school systemsin Massachusetts, comparisons with developmentsin other states, and study of literature, indicatethat a great many of the state's school systems arenot of a size capable of producing the most effec-tine education value for the dollars expended.There are many studies which show a positiverelationship between size on the one hand, andcost, efficiency, quality, and economy, on theother. Evidence, that progress can and should bemade to reduce the number of school districtsalong these lines is contained in the figures shownin table to the right. The total nation-wide numberof school districts decreased by 79% between 1932and 1966. On the other hand, the number ofschool districts in Massachusetts during this sameperiod grew from 365 to 392.

Present Commonwealth policy appears to bepointed to increased cooperation, but actual per-formance has been tentative and progress is slow.Cooperation between school systems on a scalelarger than has yet been envisioned is essential.This cooperation may take many forms. Amongthem are the following, all of which have beenput into practice in some degree or combination:

Mandatory consolidation of districts by theGeneral Court and the Department of Edu-cation.

10. Expansion of the existing system of financialinducements for districts to consolidate.

Establishment of separate school districts toprovide those services which require special-ized facilities such as vocational-technicaleducation.

Encouragement of contiguous groups of com-munities to set up cooperative facilities forservices v: rich they cannot afford individually.

These approaches can be used selectively, incombination, or in sequence. Whatever method.is selected, it appears necessary that the Depart-ment of Education should take a leading role to

STATISTICS ON SCHOOL DISTRICT REOROANIZATION

States Neaber of idol Districts Decrease ie Sclieel Districts

11132 1N1 1H111324111

Ni. %11324111

Ns. %

California 3,589 1,650 1,357 1,939 54 2,232 62

Colorado 2,041 341 184 1,700 83 1,857 9!Illinois 12,070 1,552 1,354 10,518 87 10,716 88

Indiana 1,292 442 404 31 850 66

Iowa 4,870 1,391 984 3,479 71 '3N6 79

Kentucky 384 207 200 177 46 184 48

Michigan 6,985 1,981 150 5,004 72 5,835 83

Minnesota 7,773 2,420 1,439 5,353 69 6,334 81

Mississippi 5,560 150 149 5,410 97 5,411 97

Missouri 8,764 1,735 1,028 7,029 80 7,736 89

Nebraska 7,344 3,348 2,546 3,996 54 4,798 65

Nevada 266 17 17 249 94 249 94

New York 9,467 1,280 997 8,187 87 8,470 89

North Dakota 2,228 1,066 603 1,162 52 1,625 73

Ohio 2,043 840 738 1,203 59 1,305 64

Oregon 1,995 475 409 1,520 76 1,586 79

Pennsylvania 2,587 956 863 1,631 63 1,724 66

South Carolina 1,792 109 108 1,683 94 1,684 94

West Virginia 450 55 55 395 88 395 88

Wisconsin 7,662 1,967 572 5.695 7v 7,090 92

TOTAL 89,162 22,428 15,195 66,635 75 73,967 83

TOTAL ALL STATES 127,649 36,402 26,983 91,247 72 100,666 79

19rt6"-*--

provide a unified policy and adequate communica-tion between systems. Fragniented education,re-sults in duplication of overhead, lack of programcoordination, competition for the tax dollar with-out planned priorities, and competition for per-sonnel, in which the better-financed entities tend"to prevail.

Supporters of local control should be concernedabout a system which so fragments the functionsof communities that they have, in fact, very littlecontrol over their destiny. Some cities and townshave even been 'forced to hand over control ofimportant parts of their programs to bodies withwhich they, as communities, feel very littleaffinity.. Therefore, local control, especially if itis considered as limiting the necessary and some-timet overforceful activities of state and federalauthority, can be more effective and economicallyoperated if the local units can call upon a largerand more diverse group of citizens to representtheir interests.

The growing complexity of the educational pro-cess makes-today's situation increasingly critical.The concept of cooperation in education is onewhich has not, in the past, appealed to a largesegment of the Commonwealth's citizens. How-ever, aside from purely educational advantages,we are convinced that a system which combinescentral leadership with strong centers of localcontrol will best produce economies of operation.

It will also minimize the wasteful and oftendilatory processes of bureaucracy.

Cooperation between school districts produces thefollowing specific advantages:

lib Greater challenges, higher scholastic achieve-ment, and more efficient use of teachingstaffs.

Construction of facilities at lowest cost tomeet needs of the community.

Use of funds for educational purposes ratherthan excessive administration costs.

*More capable business management and theresulting economies. Specific examples of thiswill be found elsewhere in this report, par-ticularly in the sections dealing with trans-portation, purchasing, libraries, textbooks,and management information system.

Special programs for all children in need ofthem at the lowest cost;

lb. School groupings which are financially self-sufficient and whose voters can truly be incontrol of all aspects of their childrens'education.

20 two

Orderly planning of future developments ofthe system based on financial projections.

IP. Establishment of a state aid equalization,system which can be easily administered andstill make possible equitable results.

Ability to employ consultants and expertsand improve general managerial effectiveness.

10. Capability of systems to appraise and employnew educational technology, including ma-chine teaching and ether purchased serviceswhich promise to free the classroom teacherfor the more important problems causedibythe rapidly expanding body of availableknowledge. This is an area where substantialsavings will be made in the near future.

For more than 20 years, the expressed policy ofthe Commonwealth has been to "promote the . . .

establishment of consolidated, regional schools."(Chapter 645 General Laws 1948), In 1948, aprocedure was inaugurated (Chapter 71 GeneralLaws as amended, Sections 14 to 161) throughwhich regional schools would be created andoperated. During this periods over 120 communi-ties have combined -into 50 regional school dis-tricts, not counti% the establishment of 19 re-gional vocational-tee/haslet school districts. Thmajority of these districts have not regionalizeat the elementary level and the main thrust ofthe,effort has been to eliminate all school systemswith a total school, population of less than 2,000.The next immediate objective of the Massachu-setts Department of Education is to increase thescope of the existing regions to include the rangeof kindergarten through grade 12.

The time has come when Massachusetts should,not and need not be satisfied With such limitedobjectives. In recognition of this situation, theBoard of Education has instructed the Departmentof Education to prepare legislation making man-datory the regionalization of smaller districts.This courageous attack on the basic problem iswelcomed. However, the Task Force stronglyquestions the desirability of mandatory legislationat this time because:

IP. Public opinion needs a period of informedand in-depth discussion if such a prog am isto receive the popular support essent al forits success. Some deep-seated tradition 1 atti-tudes must be changed. This 1,1,411 r quirepublic meetings, identification of powersources within the community, iwolvementof citizens and legislators, gathering of rele-vant statistics and information, and a positiveattitude that what is educationally and eco-nomically useful can take place.

tf

IP' Norms that have hitherto been accepted bythe Department of Education for district st,t:need careful reexamination. It is doubtfulwhether a district with a pupil population of2,900 is today adequate to support an effec-tive and economical program.

P.. Possible forms of cooperation or regionaliza-tion plans have not received sufficient con-sideration from all concerned parties. It isvitally important that this subject be carefullystudied in the light of present conditions andthe solution be more than a patchwork super-imposed upon exkscing laws and regulations.Changes that will ultimately be regarded asnecessary may be so sweeping that a periodof experimentation is desirable if the op-timum program is to be accepted and adopted.

The Task Force envisions a gradual but steadytransition in the direction of larger school dis-tricts. This proceas needs the comillete commit-ment of the General Court, the Board of Educa-tion, school committees, teachers, and the generalpublic. It should be a process by which all personsexperiment and learn together with the commonobjective of devising the most effective and eco-nomical educational system. Such a process, whichappeals to the traditional independence and goodsense of the citizens of Massachusetts, is the onewhich, has the greatest possibility of success.

In considering school district cooperation, thefollowing guidelines were adopted:

P.. Education is a function and responsibility ofthe Commonwealth, which it may delegate inwhole or in part to other groups.Massachusetts is committed to providing anequal opportunity for a quality public educa-tion to all its children, in accordance withtheir abilities. This opportunity should de-pend on the individual's desire to learn ratherthan accidents of geography or local wealth.

P.. Policy-making and direction of public educa-tion beyond the authority of the local schoolsystems should be concentrated in the De-partment of Education.

A local school district should be the basicorganizational unit as it has traditionallybeen. Cooperation by local school systemswill serve to strengthen, rather than weaken,local control.

Local cooperation must depend on factorssuch as density of population, length of traveltime, local wealth, character of the com-munities involved, and the like. No absolutefigure for the size of such groupings can bedetermined.

tr319

P.. Participation by a community in a proposedcooperative effort should take place with thefull understanding and consent of voters inthe planned districtLor entity.

P.. Cooperation must be ,guide orne formof logical planning, even though plan aybe changed from time to time. If this is notdone, there is substantial risk (as experiencein other states has prOved) that certaincommunities would be in a situation whereall their neighbors had been preempted.

There shottld be an equalization of the taxburden in such a way that poorer districtsare able to piovide an adequate education fortheir childre'n',-but also in a way that does notprevent any *district from providing whateverlevel of educational services it desiresandcan afford.

RECOMMENDATION

1. The Department of Education should estab-lish an office, designated as the Office ofSchool District Cobperation, reporting di-rectly to the Commissioner, with exclusiveresponsibility to promote and coordinatescho.,i district cooperation.

This function is too important to be treated as asecondary responsibility of the School BuildingAssistance Bureau. It should be headed by anofficial who would report to the Commissioner.Further, the personnel o the Massachusetts De-partment of Education 4hould be strengthenedso that it is in a position to pursue this aimvigorously in accordance with the General Court'sexpressed policy. The first duty of the officewould be to prepare a Master Plan outliningproposed groupings of school systems for purposesof cooperation.

The aim of such a plan is to identify groupingsof school systems which, in terms of size andother criteria, could best meet the educationalobjectives of the Commonwealth. It should alsoprovide for ultimate inclusion of vocational-technical education and other forms of specialeducation as a function of a total comprehensivesystem in each grouping of districts, even thoughseveral of such groupings are to combine theirresources to provide these facilities. By implica-tion, this involves consideration of breaking intosmaller districts those few cities whose schooladministration may have become unwieldy andunresponsive to local influences. It is not intendedto be a basis for compulsion and would need tobe flexible in response to changing conditions. j

Nevertheless, it is not realistic to expect theGeneral Court, the Department of Education, or

21

the public to give support to vague and unplannedactivities. Whether the ultimate policy invo17escompulsion, persuasion, or a combination of 'hetwo, an objective is a practical necessity. Anyplan that is adopted must be long-range and havea sufficient degree of commitment from theeral Court to assure that such planning can takeplace with confidence. Much money has beenwasted in the Commonwealth through partialimplementation of plans.

The process of cooperation should proceed fromthe informal to the more formal stage with stresson informality in all cases where it can be madeto work. A maximum of local participation anda minimum of bureaucracy, will be effective andmore in conformity with the attitudes and tradi-tions of Massachusetts' citizens.

The first 'step in the direction of cooperationshould be encouragement of contiguous groupsof communities, within the framework of theMaster Plan, to set up cooperative nonprofitfacilities to provide services that are out of thereach of the typical smaller systems. These in-clude cooperative purchasing, first-class businessmanagement, computer programming and servic-ing, information systems design, evaluation ofperformance contract services, supportive servicesto guidance and counseling staffs, innovative pro-grams, summer activities; development of specialprograms to qualify for state aid, and advice onprogram budgeting. Initial steps in this directioncan and should be taken by local school adminis-trations on their own initiative at the earliestpossible time.

Funds for these facilities would be provided on acontinuing bases by a modest per pupil member-ship fee from the communities involved, througha direct grant from the state, and from specificpayments by communities for actual servicesrequested and supplied. Additional funds couldbe,, available, from time to time from federal,programs such as Title III and private foundationswhere innovative programs are involved. Pro-grams of this nature are successfully operating invarious parts of the country. They have meritsince they do not violate the principle of localcontrol and bring services and sources of fundsnot previously available to the communitiesinvolved.

Certain highly successful cooperative ventures ofthis type already exist in Massachusetts (for.mample, Merrimack Educational Center andSPOKE). These organizations were brought intoexistence through the use of federal funds. Inspite of the success of the ventures and the highregard in which they are held, it is doubtfulwhether the communities involved can afford to

22 30

continue them without monetary aid. Therefore,it is important that the Commonwealth providethe limited funds necessary for their continuation,pending adoption of broader programs. I,

The next step can be expected to developnaturally as the advantages of this cooperationemerge. Those groupings which have / becomeaccustomed to working together, either by them-selves or in combination with others, would takeover the operation of vocational-technical andother special schools. In addition, they couldcoordinate the_activities of such special schoolswith the regular facilities of the schocd districtsinto comprehensive educational systeins. Suchschools could be financed in a manner; similar tothe cooperative ventures described above by abasic per-pupil contibution from ea eh groupeddistrict involved, by state aid including, in thiscase, building funds, by federal funds, and bypayments from each district for servie(3s rendered.

These activities would need more formal arrange-ments for voter control and election of officials.Here again, the customer-supplier/ relationshipmaximizes the possibility of effective local control.The General Courtnd the Massachusetts Depart-ment of Education have tended, not unnaturally,to deal first with those situations having a highvisibility and offering the greatest immediatepocsibility for federal contributioni. These areasinclude vocational-technical schools and institu-tions for various types of special /students. Thisapproach tends to short change the normal educa-tional process which involves by I far the greateriiumb'r of students. It has served to limit theabili of local communities to either aloneor in combination, a comprehensive system.It is understood that such preSsures for actionhave brought about establishment of independentspecial schools and, in particular, vocational-educational schools, but we que4ion whether thisfinancially wasteful structure should be retainedwithin the framework of a state-wide, forward-looking plan for education. /

The final step, which we hope could take placewithin 10 years, would involve( the formal organi-zation of school districts of a size considerablylarger than has been the general rule in Massa-chusetts. The public, as a result of experience inless formal groupings, should by this time beready to accept the proposition that such actionwould provide further economies and more sig-nificant local control.It is clearly in the interest of our citizens, of theBoard of Education, and ofl the members of theGeneral Court that this step be taken by comrnOnconsent and with full understanding of the factsthat make it desirable both educationallzi and

fiscally. This result can be .::stained if a programalong the lines described above is skillfully guidedand promoted and receives the strong backing ofall parties concerned. However, the Common-wealth cannot afford protracted delays in theimplementation of this program. Therefore, werecommend that a maximum period of 10 yearsbe set for the fulfillment of the Master Plan byvoluntary means. At the end of this period, theDepartment of Education with the assistance ofMACE or possibly of a commission to be set upspecifically for the purpose, should be empoweredto complete the process of district organization inaccordance with the Master Plan. Until this hasbeen accomplished, many of the recommendations

made by this Task Force can only be implementedto a limited extent.

Finally, we consider it to be of vital importancethat in every situation involving cooperativeaction, all elected officials should be voted uponat large by all voters in the grouped district.Further, it 'should not be required that appointedofficials be selected on the basis of individualcommunity representation. We are convincedthat a system by which voters combine on thebasis of like educationali social, or economic viewswill better serve the Public than one which isgeared to lines on a map which have little rele-vance to existing conditions.

Management Information SystemState

A management information system must involvethe coordinated efforts of the Office of Planningand Program Coordination, 'the Department of.Education, as well as users and contributors ofeducational information.

It is imperative that the Department of Educationbe able to describe the current and future needsof the users of educational *formation. Addi-tionally, it should have a plan for an informationsystem to tie in with the larger state system andbegin implementation where it is feasible.

The, technique of developing management infor-mation systems implies a study of the needs formanagement information, the design of a database, as well as written computer programs.Often, the results of such developments have beenunsatisfactory. Frequently, the development staffmissed scheduled dates, more equipment wasneeded for the applications, and total costs ex-ceeded estimates. When action was taken toresolve those problems, they discovered theoriginal system design concept was inatiequate tomeet information requirements of the operation.

The Division of Research and Development hasbeen developing a statistical educational databruik for the Commonwealth. The intent of thisdata bank was to supply information as requiredto the Board of Education as well as the schooldistricts. This bank also promised to be thecornerstone for future development of informationsystems. In general, it contains information per-taining to pupil enrollment, finance, personnel,and curricula pertaining to public education.Typical reports supplied by the bank include:

31

Data necessary to administer approximately$330-million of state and federal aid to publiceducation.

IP. Annual report of the Department of Edu-cation containing enrollment statistics andfinancial data for all school districts in theCommonwealth.

+Salary schedules of superintendents andprincipals.

+ Age at entrance and number of sessions inMassachusetts' school/ Systems.

Three-year salary trend data of the Common-wealth's professional staff.

IP. Teacher mobility analysis.

Distribution of graduating class.

There seems to be some confusion about thepurpose and function of this operation. Althoughhampered by inadequate staff and funds, it hasthe capability to accumulate and store data.Historical information is available which can beused for statistical and comparative purposes.

Local districts have not been involved in the'design of the input or the type of output reportsto be supplied. As a result, reports are beingdistributed which are not used. Most districtsfeel they do not get output which is timely enoughOr in proper for., to be used for planning andthe decision-making process. Moreover, the ac-curacy of information supplied by the districts isquestionable, possibly because they view a largepart of the information as irrelevant. Therefore,they are not too concerned about its accuracy.

23

If accurate input from the districts, as, suggestedin the section on Budgeting is not made available,it will be impossible to develop a managementinformation system which is meaningful to plan-ning within the local systems.

The cost to develop and establish a managementinformation system in the Department of Educa-tion would be approximately $1.3-million over athree-year period. Thereafter, the annual operat-ing cost would be about $500,000. The systemwould provide all local districts with neededinformation without development costs on theirpart. The possibility that the system still may be'inadequate even after this amount has beenexpended has led to a detailed recommendationdesigned to assure the needed information.

RECOMMENDATIONS

1. The Department of Education, with appro-priate funding from the General Court,should establish a Missichusetts EducationalManagement Information System (MEMIS).

Selection of a man as Director, MassachusettsEducational Management Information System isthe first step. He must have a working knowledgeof the operations of the Department of Educationas well as be professionally qualified in informs-top systems and data processing. His level mustgran him authority to structure the organizationand select key personnel to develoP and implementthe system.

The first effort of the director and his staff wouldbe to reestablish confidence in the annual reportof the Department of Education. This was theinitial attempt at establishing state-wide informa-tion systems: That report requires massive databe gathered on an annual basis from the localdistricts. This - .promised to provide a base forfuture development of information systems. How-ever, it no..a, consists largely of untimely andhistorical data. Therefore, the director mustconcentrate on improving the annual report tosimplify the input so as to process the datapromptly and deliver clear and flexible results.The second step would be to develop preliminaryspecifications for MEMIS. In formulating thesespecifications, the director must establish a rela-tionship with users and identify expertise in theDepartment of Education as well as local andregional school districts. During development,coordination with the Modernization Systemsunit within the Department of, Administrationand Finance must also be maintained. Specifica-tions must recognize present and future needssuch as increased financial accountability inschool management and long-range planning. Thesystem *must continue current applications in24 32,

pupil accounting, personnel, and finance. Allexisting systems should be reviewed to ensurecompatibility with MEMIS specifications.

Revamping of the annual report and the prelim-inary systems design should be completed withinone year. These specifications must include:,

Scope and objectives.

Information sources.

lo Repoli descriptions listing all data elementsinvolved, level of management use, and fre-quend of distribution.

Fogacists in specific areas with suggested-'techniques for analyzing data, determiningtrends, possible problems, and alternativesolutions.

10. Communication requirements with federal,state, regional, and local systems.Suggested methods to simulate and deteplinethe best solution in school bus scWules,classroom scheduling, school construction,building finance, operating budgets, supplyorder quantities, and the like.Proposed hardware configuration.

Personnel requirements.lb. Implementation schedule.115' Costs and savings.

To assure broad acceptance, the preliminaryspecification must be distributed widely. Com-ments should be solicited and suggestions incorp-orated where necessary. Upon approval andacceptance of the preliminary specifications, thenext phase is implementation. The size of the sys-tem, available resources, and 1,he impact -on userswill dictate the logical steps 3t this procedure.

Plans must include completion dates, specificpersonnel assignments, and scheduled progress-status reviews by the director and a committeeof Department of Education executives. Thesereviews must include results, user reactions, andcosts. Effectiveness of MEMIS can be assuredin this manner. In addition, adherence to docu-mentation standards, scheduled user trainingprograms, as well as continued updating andexpansion of the systems will further assure thatit achieves its objectives at all levels.

The MEMIS staff must be the only systems groupwithin the Department of Education and musthave access to the department's computer. Theorganizational location of the personnel in chargeof computer operations is not critical, but thegeographic proximity; and the relationship be-tween the MEMIS staff and this group, is critical.

Much of the Important output of MEMIS will beon an ad hoc basis. Requests for these one-timereports will come from legislators, local districts,and others. To satisfy these requests in a timelymanner, the staff must be responsible for estab-lish processing priorities within the groupoperating the computer. The operating group willalso have the responsibility of distributtng4theoutput reports in accordance with instructionsfrom the MEMIS staff.

2. The Department of Education should estab-,- lish an advisory committee on' information

systems for education.

The purpose of this committee is to make cer-tain We capabilities of MEMIS are made fullyavailable to its constituents. This involves acombination of technical expertise and educationalknoWledge which would rarely be encountered

33

in one individual. It would also help ensureacceptable priorities are established and com-munication is maintained between all partiesinvolved in IVIEMIS. The committee should beselected by the commissioner and include repre-sentatives from the associate and assistant com-missioners, the Superintendents Association, theBusiness Managers Association, recognized infor-mation system authorities who are not in theDepartment of Education, as well as the MEMIScoordinator.Activities of the staff attached to the committeemust include periodic surveys and reviews ofMEMIS and provide suggestions for its mainten-ance and develoent. The advisory committeewould be respble to, the commissioner Indadvise him of the success of MEMIS. It must alsowork in an advisory capacity in the developmentand approval of the MEMIS budget.

25

S &GA"; ay. it'

Resources for Public School EducationThe success of any business undertaking is depen-dent upon identification and management of theresources required to conduct it. This principleis applicable to education as well as any commer-cial enterprise. There are three basil resources

funding, manpower, and facilities. Within eachof these broad classifications are many subdivi-sions. Therefore, the discussion in this sectioliwill be limited to salient items that,' are mostcritical to the viability of the public schopl system.

Funding

One of the primary resources in the successfuloperation of the state's public school system ismoney. However, many problems plague thetaxpayers of Massachusetts, The outstanding .oneis the tremendous - imbalance existing betweensupport to education provided by local propertytaxes and the more broadly-based state support.This inequality, combined with rising costs, hasreached the point where voter reaction in manyareas is beginning to restrict unduly those re-sourcesavailable to local school districts. Withouta minimum level of funding, these systems cannotoperate effectively from either a business or aneducational viewppint. Concurrently, the formulafor distribution of state aid, which is intended toprovide each school district with essentialequivalent operating resources by equalizing face'tax burdens, has proven ineffective.

EVALUATIONThe funding situation noted requires. prompt cor-rection if the cause of education is to be served.The subject of state aid to education is complex,and involves many aspects not within the purviewof this Task Farce. These include the matter oflocal educational control, tax sources for addi-tional state funds, and how much money isrequired to educate a child. From a businessstandpoint, however, it is apparent that many

34

school districts are operating inefficiently becauseof inadequate funding. .

s RECOMMENDATIONI. The General Court should consider the find-

ings and recommendations of the variousinuividuals and groups that have studied theschool funding problem, and take appro-priate action.

The taxpayer finds himself beset by several con-flicting pressures. On the one hand, he recognizesthe desirability and need of providing a goodeducation for children. This makes good economicsense. The Bureau of the Census statistics showthit the difference in income between a highschool graduate and a student who drops out afterfinishing the eighth grade is about $2,000 per year.The present dropout rate in Massachusetts at theend of eighth grade is 15%. If this were reducedto 5%, the added annual taxable personal incomewould amount to $200-million.

On the other hand, the taxpayer sees school costs,as well as other expenditures, rising inexorablyyear after year. Many factors influence this' rise.Inflation accounts for no small of it. Thegrowth in student population has ..ought withit a commensurate growth in expenditures. Othercost increases are brought about by public de-

27

mand for additional services for handicappedchildren, extra school bus transportation, com-munity use of schools, and the like. An additionalimpact, just now beginning to be' felt, resultsfrom the closing of an increasing number ofparochial schools.

From the year ending June 30, 1967, when thetotal cost of elementary and secondary educationin the Commonwealth was $732-million, or $687per pupil, the level rose to $949-million in 1969-69,or $828 per pupil. The per-pupil costs have beenrising at rates of 5% to 10% each year since 1960.

Taxpayers throughout the Commonwealth haveincreasingly felt the pressure of these rising costs.Conseqtiently, they have become.more vocal andactive in expressing their concern.

Many court decisions have established the author-ity of local school committees to set the size ofschool budgets and to require the communities toappropriate the necessary funds. However, voters,in general, have continued to voice concern andopposition to increases in schodl budgets: Forexample, this opposition has been manifested inthe election of school committeemen pledged to"axe the budget." 'In other instances, referendahave prevented or delayed (with correspondinglyhigher final costs) the construction of essentialschool buildings. In one case, a town's schoolsystem lost its accreditation by the New EnglandAssociation of Colleges and Secondary Schoolsbecause the town, by referendum, defeated aproposal to construct a new high school. Tax-payer associations have been formed in manycommunities to combat rising tax rates.That the school budget should bear the brunt ofattack by local taxpayer associations or by lessorganized groups is not surprising. In medium-sized and small towns in the Commonwealth, theschool appropriation represents a very large pro-portion of the total budget. On a state-wideaverage -basis, school expenditures account for65% of total local spending.

The tradition of local autonomy, so jealouslyguarded in Massachusetts, carries with it, alongwith its many real advantages, an equally realprice. Due to insistence on a high degree of localautonomy, the burden of school support has fallenupon the local property taxpayer.In 1968-69, as 'shown in the graph at the right,52% of the support for public elementary and

. secondary schools on a nation-wide basis was,funded by local taxation, 40.7% was appropriatedby the state, and 7.3% by the federal government;The corresponding figures for Massachusetts were70.7% local, 22.4% state, and 6.9% federal.Clearly, the taxpayer is looking for a way to shift

26

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SUPPORT OF PUBLIC ELEMENTARY ANDSECONDARY SCHOOLS 1911489

Era NATIONAL AVERAGE

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LOCAL STATE

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FEDERAL

more of the school support to the state and federalgovernment, without relinquishing control of thelocal school system.

tiCompared with support given to education inother states, 'Massachusetts cannot be proud ofits standing. Although one of the richer states,eighth in per capita income and fifth in personalincome peiicliebl-age child, Massachusetts rankstwenty-fifth iiiitctual expenditures per pupil.

This stands in contrast to the statelt:comparativerank of tenth in per capita expenditures for policeprotection, first for fire protection, and fifth forwelfare. (Rankings of the States, 1970, preparedby the National Education Association).

The other aspect of funding has to do with thevariation of school support within the state.Although annual per-pupil spending is not thesole criterion of educational opportunity or ad-ministrative efficiency, the variation in expendi-tures, from little more than $400 per pupil insome districts to over $1,000 per pupil in others,is a clear indication of disparity.

''Obviously, a reform in the state's equalizationkitociedure is desperately needed. A penetratingan ysis of this issue is presented 'by Stephen J.Weiss, "The Need for Change in State PublicSchool Financial Systems," New England Eco-nomic Review, Federal Reserve Bank of Boston,January/February 1970. An additional study ofthe Massachusetts procedure, in more detail, isgiven in a report to the Massachusetts AdvisoryCouncil on Education by Andre Daniere, "Cost-Benefit Analysis of General Purpose State School-

35

Aid Formulas in Massachusetts," /Institute ofHuman Sciences, Boston College.

The urgency of the funding problem is widelyrecognized. On March 19, 1970, the Assembly onlillassachusetteGovernment held at Tufts Univer-sity passed a resolution urging the Legislature toincrease the level of state funding to 50% in thenext two Yeats. The Master Tax Plan Commis-sion, > created by Chapter 162 of the Resolves of1967, is charged with making an in-depth' studyof the revenue needs of the Commonwealth andwith recommending ways and means of providingthe revenues necessary to meet the needs. Thework of this commission, which is expected to bereported by the end of 1970, includes state aidfa education trod the distribution formula. < TheCommissioner of Education has created an ad hocCommittee on Equal Educational Opportunity tostudy and recommend changes to the presentequalization formula. The Master Tax Plan Com-mission is- represented on the Committee forEqual Educaral Opportunity.

The General Court should review carefully therecommendations of these groups and take timelyaction. Concurrently, the findings should be madethe subjects of an intensive educational campaignthat will bring all the funding issues before the

public. Only an informed citizenry can votewisely; tinis, the facts involved in the problem of

èducati.:nal funding must be presented to thevoters. This campaign could be coordinated bythe Education Conference Board.' However, sincethe citiiens will make their wishes known byvoting for elected officials, it behoove.t. individualmembers of the Legislature to bring the questionbefore/ their constituents and make their positionsknown. The information/ given to the public inthe proposed educational campaign would include:

Ili' A comparison of eiducational spending inMassachusetts with 'the other states.

1,11Informationon the variation in spending from/ district to district in the CommonwealtW

/P. The quantitative effect on local property/ taxes of increased state assistance.

The optional sources for increased state/ funding.

//Until such tithe as these actions are effected, the/I taxpayer should have assurance that the monies

he is now committing _to education are being/ effectively managed. The report deals very spe-

cifically with this subject in the section entitled// School Business Management System.

Mankower,

As in all activities involving imaginative solutionsto problems and intricate interpersonal relations,manpower is one of the most important resources.available to education in Massachusetts. The firstof these is, of course, the personnel of the indi-vidual school districtsa subject which is notpart of this , report. Close behind this in im-portance should be a Department of Educationstaffed by well-qualified specialists whose abilitieswould be available to local school systems. /Otherimportant manpower resources can be found inthe -w:lationship of .school committees to theircommunities and to their superintendents and inthe use òt'vulunteers.

Department of EducationThe Board of Education has delegated to thisdepartment responsibility to implement policy.It is the agency of the Commonwealth forproviding leadership and services to education.Current legislation gives the department' ampleauthority to exercise this function if it is ade-quately funded and staffed.

EVALUATIONThe Department of Education must take a muchstronger and more decisive role in public educa-tion. Many areas of operation require professionalpersonnel at the state level to bring about theneeded strengthening.

The chart on the next 'page depigts the organi-zation of the Department of Education whichwould result from full implementation of therecommendations in this report within the frame-work of the existing organizationiqUwever, theTask Force considers this organizational structureto be unwieldy and a hindrance to effectivemanageinent. It is strongly suggested that theorganization be streamlined by dividing, betweentwo deputy commissioners, the functional respon-sibilities for curriculum and instruction and foradministration and business services, respectively.Task Force suggestions for the establishment of/ agencies are emphasized on the chart by double-line boxes accompanied by appropriate footnotesindicating where specific recommendations aremade in this report.

3629

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The professional personnel necessary to man thenew agencies are discussed in detail in this andother sections of the report. The Task Force hasalso prepared specifications of the qualificationswhich would be -required of these professionals.These specifications, although not part of thereport, are available in the Task Force files. Webelieve that the salaries for this professional staffwould, in the initial stages, amount to about$750,000 annually. This figure might rise in thethird or fourth year. However, by that timetangible evidence should be available to substan-tiate the value of the recommendations.

RECOMMENDATIONS1. The General Court should pass legislation

granting the Department of Education au-thority to select, compensate, and classifytheir- professional staff within overall limitsof budget.

The commissioner, as chief executive officer forthe Board of Education, must have a qualifiedstaff of diversified, specialized professionals if heexpects to be the guiding force in an effectiveeducational system. There is a great desireamong the school districts for qualified assistanceat the state level. This must be provided by theDepartment of Education.

In order to attract and retain qualified personnel,the department must compete in the open market.Therefore, standard business practice dictates theneed for complete flexibility in the recruitmentof staff. A precedent for this approach alreadyexists in legislative provisions covering the em-ployment of professional personnel at the Univer-sity of Massachusetts.

All of the' recommendations of the Task Forcerequiring a professional staff in the Departmentof Education are predicated upon implementationof this specific recommendation.

2. The Department of Education should activateimmediately an expanded Bureau of SchoolManagement Services within the Massachu-setts Department of Education.

Local school districts have indicated strongly thatthe Department of Education should provideservices and advice, on request, to assist them insolving problems in various business areas. Inresponse, the department has already proposedfurnishing some services to local school districts.

It is the opinion of the Task Force that suchservices must be provided in the areas ofbuilding operations and maintenance, collectivebargaining, data processing, program budgeting,purchasing, transportation (already proposed),and volunteers. Additional services may be

38

requested from local districts. These could includeaccounting, administration, systems and proce-dures, property control, Insurance, health, andattendance

There are many diverse functions and qualifica-tions of the personnel to staff this bureau. Spe-cific staff qualifications for each functional areahave been carefully identified by the Task Force.These, as well as detailed functional specificationsof each bureau activity are available within thepermanent files of the Task Force. Briefly stated,these functions would include the following:

10- Provide 'advice and assistance to schooldistricts.

10- Plan and help establish training programs.

lo DisSeminate new and timely information.

Do. Develop a staff of functional specialists.

Maintain functional reference libraries.10- Direct and coordinate the data collection of

the various school districts.

Establish general systems and procedures forinstallation and maintenance of budgeting byobjectives.

10- Encourage development of cooperative pur-chasing relationships among school districts.

3. The Department of Education should engagea professional administrator to direct com-munications within the department andcreate a proposed Office for Communicationswith responsibility for planning and execut-ing a long-range public information program.

The importance of cornnfunicating to local educa-tors and school administrators is inherent in themission of the department. Thus, the need forgaining public confidence and support should beself evident. Communication is the essence ofeducation but is also an essential function ofmanagement. No large corporation could operateefficiently without an extensive internal informa-tion system. Further, few companies can succeedwithout paying attention to assessment of publicattitudes and acceptance of its services, products,or place in the community. In complexity, theDepartment of Education and the state's publicschool system exceed the largest corporations.

Nevertheless, even though previous studies haveemphasized the need for a well-organized publicrelations program anci an effective informationalsystem within the department, none has beencreated. Study team members noted the informa-tion services provided by the Division of Researchand Development in the area of data collectionand provision of summary reports as public in-

31

formation and internal memoranda; the outputof the Bureau of Public Information; and theoutput of the Public Information Officer. How-ever, the department does not have adequateprofessional personnel, a meaningful organization,Gr sufficient funding to provide the communica-tions service that is needed.

Since the communications officer would speakdirectly for the department and commissioner, heshould have access to the plans and goals of thedepartment at virtually all stages of their develop-ment. Furthermore, he should have a personaland regular contact with the commissioner andother departmental officials who determine policyand make decisions at the executive level.

An awareness of policies, recommendations, andforthcoming events in education by the generalpublic and those in the education system eon-

- tributes toward efficiency of the system. Inbusiness, management has realized a substantialreturn on investment when it utilized improvedcommunications to increase productiVity. Also,business can relate direct gains to public relationsand advertising its products or services to specialsectors of its markets.

The Task Force recogiam the General Courtand taxpayers as special sectors of the publiceducation market. Without them, the Massachu-setts Department of Education could not operate,make direct payments for special purposes, pro-vide local aid reimbursements, and administerfederal aid.

The management principles currently in use, andapplicable to school business management, dictatethese efforts be coordinated and planned througha long-range program to meet specific goals. Thus,functions of the communications officer mustinclude planning and coordinating informationprograms for Massachusetts Department of Edu-cation personnel, the General Court, the executivebranch of the Commonwealth, public school em-ployees, and the general public. The informationprogram could include publications, presentations,trebling seminars, radio 'and television, confer-ences, press relations, advertising, as well as"community activities.

Town/City-School Committee RelationshipA good coordinated working relationship betweenthe town or city government and the schoolcommittee is necessary to obtain the most efficientutilization of manpower available in these areas.

EVALUATION

The school committee should have the responsi-bility and the authority to manage its entire

39

operation. It is not good business practice for acity or town to manage part of the operation asis now the case in some school districts with

' respect to maintenance, operation, and purchas-ing. Having full responsibility and authority, theschool committee would, of course, have theoption to contract with the city or town forservices on mutually agreeable terms.

RECOMMENDATIONS4. The General Court should enact legislation

to agate the school committee responsiblefor insurance coverage on school buildingsand contents.

Towii administrations which have the legal au-thority to place insurance frequently ao notinclude school administrations in selection of thetype and amount of insurance protection on schoolbuildings. School committees generally operate,maintain, staff, and equip school buildings. Thus,they have primary interest and knowledge con-cerning the structures and contents.

Insurance coverage can usually be obtained mosteconomically on a group basis. In the case ofschools, it can be -acquired under the PublicInstitutional Property (PIP) form, combined withother town real estate possessions, or jointly_ withother entities under one policy. Therefore, theschool committee should be responsible for pro-Jiding the details of kinds and amounts ofcoverage on school buildings.

S. The General Court should enact legislationto invest full authority for purchasing supplks and services used in the school districtwith the school committee.

Placing final authority with city or town purchas-ing agents for aceeptahee of bid items oftenin dissatisfaction with product received theschool district. While the principle of cen .purchasing practices on a city or town level isbasically sound, personality conflicts and lack ofsensitivity for user's values can often nullify anybenefits gained.

To overcome differences between schools andcities, a common list of items should be reviewedby the school administrator and town purchasingagent at school budget preparation time. Differ-ences between siacifications can then be resolvedprior to bidding.

S. Cities and towns should designate a memberof the school committee and the superinten-dent or his appointee as voting members ofthe School Building Committee.

Under the existing system, often neither theinglool committee nor operating personnel etch

\ as the superintendent have a direct, official voicein the design and construction of facilities to beassigned to them. Any influence they can exerton the process, after the educational specificationshave been prepared, is informal and indirect. .Asa consequence, many building decisions causebuilt-in problems in the new school. Typically,such problems occur in areas of building layout,materials, rovision of adequate administrativeand suppo space, and facilities.

The Task F e observed that effectiveness ofthe final buil g it directly related to the degreeof participation of the school committee and thesuperintendent. 'Therefore, such participationshould be made \ voting one.

7. 'The General Court should amend the law togive the school committees in all towns andcities in the 'Commonwealth authority tomehttain the school buildings.

This recommendation, is discussed in greater detailin the section on Maintenance. Basically, it hingeson the fact that several cities have reserved . forthemselves the functioii of maintaining the schoolbuildingerThis has not been as effective as whenthe---niaintenance responsibility is vested in theschool' committee.

It was found in some cases that maintenanceprojects were handled by the city under bondissues, which is an appropriate practice for majormaintenance items. However, there are indica-tions the procedure has also been used to handle

" maintenance and equipment items- of a routinenature. Although this has the effect of keepingthe current tax rate down, final costs to thetaxpayers are increased.

8. The General Court should amend the lawto permit school districts to keep their ownbooks of account or contract this functionto the parent town or city.

Implementation of thii recommendation willeliminate duplicate bookkeeping. Currently, thelaw requires the town treasurer to keep thebooks. Usually, however, the school_-departmentalso keeps its own set because information pro-vided by the town is neither timely nor in theform desired. Despite the form of this recom-mendation, it is urged that all tow.,,s arrange tokeep books and provide information in a mannersatisfactory to the schools, so that the bookkeepingfunction can be concentrated in the town whereother accounting operations must necessarilytake place. In that way, maximum economies canbe effected. The arrangement is working verywell in those towns that have recognized thebenefits of this kind Of cooperation.

40

9. The General Court should amend the law torequire the town treasurer to pay promptlyand without further authorization all pur-chase orders and requisitions on certifictitionby the 'school committee or its appointedrepresentative providing the amount dueand payable is within the approved budget.

Such a procedure, together with the bonding oftown employees and the retention of the powerof the auditor (or selectmen in tol.vns),Ito examineand question purchase orders, requisitions, doriginal books of account, provides adequate e-guards and will improve, efficiency.,* In m = sys-tems, the. additional step of requiring the issuanceof a warrant signed by the selectmen or the cityaccountantlas degenerated into an irritating andmeaningless formality.

School Committ SuperintendentRelatio ship

Although education in Massachusetts is the re-sponsibility of the Commonwealth, it is adminis-tered at the local level by the school: committees:They are faced today with moie difficult problemsthan ever before: angry payers, disturbed stu-dents, and demands of goyee groups bothprofessional and nonprofesiloil. In view of this,it is timely to -examine fromi a businessman'spoint of view the functional' relationship betweenthe school comrlittee and its executive officer,the superintendent.

EVALUATIONThe manpolite. r represented by the school com-mittee can most efficiently be utilized by settingpolicies covering major issues and delegating theadministration of their policies to the professionaladministrationthe superintendent. In a businesssense, the school committee is comparable to aboard of directors and should, therefore, be apolicy-making body.

RECOMMENDATION10. The General Court should amend the

statutes to authorize the school committeesto delegate executive authority to the super-intendent. 1

The missions and objectives of the school com-mittees should be directed toward the develop-ment of short- and long-range goals as well asplans for their accomplishment. These objectivesand plans .for implementation must be reviewedand updated on an annual basis due to -theconstantly changing educational environment andtechnology. The superintendent must playa----leading role in this program.

33

In addition, the school committees should evolveclearly stated major policies covering principles,guidelines, and directives within which the systemis to be administered. The need for written poli-cies reflecting the basic thinking of competentmembers of the local community has never been

-greater. Such policy enables the school committeeto be consistent and act uniformly in situationswhere the composition of the board may changesomewhat each year. These written policiesshould be accessible to key employees of theschool system and, perhaps, to selected membersof the community. When no written policy existscovering a problem, the superintendent shouldhave authority to act. His decision would besubject t, review by the school committee at itsregular int.eting.

The superintendent should be given the authorityand responsibility of carrying out all administra-tive functions for operating the school system. Asexecutive administrator for the school committee,it should be his responsibility to obtain, supervise,and delegate duties to all personnel. He shouldalso have authority to contract for and purchasesupplies and equipment within the confines ofbudget limitations. It is important that the super-intendent have major administrative capabilities.He should either have or obtain an associate tofunction as business manager. This person shouldhave a degree in Business Administration or at_least five years of business background. Clearly.some smaller systems with limited resourceswould find it impossible to meet this requirement.This again points up the problem of system size.

The superintendent should be hired under acontract rather than tenure. Use of a contractwill tend w free him from pressure imposed bygroups or individuals that may threaten his sud-den and perhaps unjustified remov from office.Use of a contract will also cause the schoolcommittee to review the problems of the superin-tendent on a regular basis as the contract comesup for renewal. His performance* should beevaluated on Ae-basis -61 his overall contributionand-effe"Siiiness in meeting objectives and ad-ministering the committee's policies.

Volunteer ServicesAn estimated 25% to 40% of most teacher's timeis expended on routine administrative paperwork.Significantly reducing these non-teaching hoursrepresents a grata potential in obtaining more forthe instructional dollar.

In 1968, the Dig .ant of Curriculum and Instruc-tion and Research and Development in the De-partment of Education conducted a study ofapproximately 1,700 elementary and secondary34

schools throughout Massachusetts. It was foundthat approximately 1,400 parents or other laypeople were serving as teacher-aides. Approx-imately 66% were paid while the balance servedon a purely voluntary basis.

The Task Force found some districts makingextensive use of volunteer and part-time em-ployees while others apparently had not exploredthe possibilities. Almost without exception, re-actions to such progranis have been dxcellerritwith a desire to extend them.

EVALUATION

The majority of volunteers involved in educationrepresent local citizens and civic organizationswho want to help in whatever way possible. Whilethe impact of this group can be significant, thebackground and experience of these volunteersdoes not necessarily provide the expertise re-quired to solve the vast number of administrativeproblems facing today's educators.

Local business and industry has a reservoir oftalent that can be employed for classroom assis-tance on specialized but related topics. Assistancecan also be provided in many fields of businessprocedures and practices. Purchasing procedures,selection of office equipment, maintenance tech-niques, and transportation scheduling are exam-ples of areas where business and industry havehad to perform economically and effectively formany years.

A reduction in present teaching staffs may not bepossible, but the requirement for additional teach-ers could be reduced. However, additional timeavailable to teachers could be utilized by holdingextra classes or increasing the number of pupils.This can be accomplished without reducing thetime available for each individual in the class.Consider also the potential curununity relationsvalue of a well-organized iolunteer program.A group of citizens giving their time in the schoolsystem provides a built-in sounding board forpublic opinion and support of acceptable schoolpolicies.

RECOMMENDATIONS11. School committees should increase solicita-

tion of volunteers through civic organizationsand local citizens to aid local school ad-ministrators.

Successful volunteer programs are in use in someschool districts and results substantiate the factthat potential savings in salary expenses exist.The key to a successful operation is to delegateits development to an individual with initiativeand interest. Today, volunteer programs aresuccessfully operated by school personnel as well

as community organizations. However, the pro-gram must originate and have active support fromthe school district.

The problem of volunteer assistance not beingdependable has been successfully resolved byproper solicitation, training, and follow-up. Thistype of civic service can have the same appeal as,for example, hospital volunteers.

A local community group may well serve as toeorganization behind the school volunteer move-ment if approach, cooperation, and appreciationare evident. Diverse functions which could beperformed by volunteers or part-time personnelinclude libraries, activity periods, teachers aides,special reading assistance, lectures on specialtopics, field trips, clerical work, custodial duties,drivers for special purposes such as special classes,athletics, field trips, and tutoring.Solicitation of personnel was through direct per-sonal contact with groups as well as use ofnewspapers, radio, television, and individualschool publications.

The amount of ingenuity and planning directedtoward the use of volunteer and part-time per-sonnel will directly determine the dollar valueto the system. Potential sources of volunteersinclude the PTA, women's clubs and civic organi-zations, and colleges. Additionally, help could beprovided by students who may perform clericaljobs as part of their classroom training. Retiredpeople, often eager to be of service, may providecapable personnel at wages which do not interferewith social security payments. Furthermore, as-sistance could be obtained from established or-ganizations such as School Volunteers for Boston,which has obtained, trained, and organized some1,200 volunteers for the city's schools.The School Volunteers of Boston solicit, train,organize, and direct their program at a cost ofapproximately $4E fcr each volunteer per year.Translated inio e spent in the schools, thisamounts to a cost of $0.42 per hour, per volunteer.An appraisal of the dollar value of volunteers andpart-time assistance cannot be made. It dependsupon the mix of the volunteers and part-timeassistance as well as the extenrof their use. Oneschool system indicated that volunteers in itslibrary program saved approximately $4,000 ayear per library' over the past two years. Whatis the value of of teachers' time which couldbe made available for teaching? As a guide, theminimum teacher's starting salary is $5,750 and25;; of this amounts to $1,438.

There is no question, however, that this is a re-source of personnel which can be of extremevalue to the school districts. ,2

12. School committees should solicit volunteersfrom local business and industrial organiza-tions to assist in special instructional areasand administrative matters.

Business organizations, as well as school systems,should be anxious to support and expand thisactivity. The local business community is areservoir of experience which could be tapped forclassroom discussion on specialized subjects. Theirhelp should also be solicited for assistance in thesolution of business and operating problems.

School management need not hesitate to seekhelp on individual problems because businessmanageme t is well aware of the value of educa-tion in th community. They will and shouldgladly shar their expertise with schoolment .officia s.

collective BargainingSince the en ctment of the statutes of 1965 whichamended Section 178 of Chapter 149' of theGeneral Laws of Massachusetts, collective bar-gaining 3has gained impetus in the Common-wealth's school districts. This has increased theost of elementary and secondary education.

/ages of teachers and nonprofessional personnelwhich represent about 80% of the average schooldistrict budget, are rising rapidly. Additionally,other contract provisions are being negotiated toaffect working conditions and fringe benefits.While not directly related to wages, nevertheless,they raise the cost of education.

Collective bargaining has a very strong impacton attitudes and relationships between teachers,principals, nonprofessional employees, superin-tendents, school committees, pupils, and parents.This has forced a modification of the historicattitudes and prerogatives of school administra-tions as well as employees to comply with collec-tive bargaining laws.

EVALUATIONLeadership, increased understanding, and guid-ance are necessary if the results of collectivebargaining in the school systems are to be equita-ble for employee, pupil, and taxpayer.

Elementary and secondary school teachers in theCommonwealth are well organized and profes-sionally represented through membership in theMassachusetts Teachers Association, the AFL-CIO locals and various independent unions. Theyhave statistical information of a state-wide nature,and the services of professional labor negotiators.By contrast, school committees, with responsi-bility for collective bargaining, are often less

35

informed. Many lack professional guidance andfrequently fail to recognize the need for expertassistance.

Other than the preparation of an excellent manualon collective bargaining, no strong leadership,assistance, and information to negotiate effectivelywith the unions has been supplied from the statelevel. Under these conditions, bargaining canbecome an emotional rather than an intellectualprocess. As a result, everyone suffers.

In some instances, the superintendent is placed inthe awkward position of being the school commit-tee's negotiator. Regardless of competence, hisrelationship with teachers and employees may bedamaged.

There seems to be a growing tendency for thelabor unions to extend demands into areas whichshould be the prerogative of administration. It isimportant that inexperienced bargaining and at-tempts to meet these demands do not result inthe erosion of the authority of schoolinanagement.

Nevertheless, since one of the basic 'areas of con-cern among teachers is curriculum, there shouldbe an opportunity for continual dialogue onthis matter between teachers and management.Discussions should not be a part of collectivebargaining sessions, but be under constant re-examination by the teachers and management.This group will only be meaningful if it is givenstrong support by the school committee whichmust implement constructive curriculum sugges-tions for improving teaching. Such , a procedureshould help the process of collective bargainingto run more smoothly.

The subject of tenure may have to be reappraisedin view of the greater security that teachers nowenjoy through union membership. There is agrowing tendency to strike illegally to enforceunion demands. This can have a serious effect onpupils' respect for law and authority, A reportnow being prepared for the Massachusetts Ad-visory Council on Education under the super-vision of Dr. John S. Gibson points out thisgrowing problem. A statement from the critiqueindicates the need for collective bargaining of aprofessional nature.

RECOMMENDATIONS13. The Department of Education should desig-

nate within the Bureau of School Manage-ment Services an individual responsible forthe provision of professional services /toschool administrators and school committees.

Strong leadership and service is needed to assistthe local school authorities with collective bar-36 /13

gaining. Therefore, programs should be developedto establish effective collective bargaining proce-durei. These programs and workshops should beinstituted, based on local requirements and con-ducted jointly with professional and nonprofes-sional employee organizations, and local schoolauthorities. In addition, consulting service shouldbe available to aid all parties involved withcollective bargaining, mediation, and conciliation.

14. The Department of Education should dis-tribute the existing collective bargainingmanual to all school authorities.

The manual entitled A Guide to Collective Bar-gaining in the Public Schools of Massachusettsshould be distributed immediately to all localschool authorities and employee organizations.This informative and instructional manual wasprepared by a committee of the MassachusettsBoard of Education Task Force on CollectiveBargaining. To reflect any changes or new pro-visions in the General Laws pertaining to thesubject, it should be updated and redistributed assoon as possible.

15. School committees should secure the servicesof a professional negotiator to represent theschool committee in collective bargainingsessions.

The school committee should not attempt to bar-gain directly with teachers. Teachers, as a rule;are represented by professional negotiators. In agreat many cases, this places the school committeeat a disadvantage. Collective bargaining is sotime consuming that a school committee is ham-pered in performing its other duties if it alsoattempts to negotiate with teachers.Originally, one of the objectives of collectivebargaining was to afford an opportunity for teach-ers and school committee members to meet Ladexchange ideas. As bargaining became more com-plicated and professionalized, these meetings have,in many instances, generated more heat than light.The areas of discussion have expanded beyondthe subjects of wages, hours, and conditions ofemployment prescribed for -collective bargaining.Without the advice of negotiators, school commit-tees may bargain away their management prero-gatives because they are generally not able to .

determine the technical parameters of the condi-tions of employment. The first business of aprofessional negotiator would be to define thesemeasures ly,fore formal negotiations began.

16. School committees should adopt a policythat the superintendent act only in an ad-visory capacity in collective bargaining.

Superintendents are a part of school managementand should not enter collective bargaining except

in an advisory capacity. The ability of a superir.tendent to manage is seriously jeopardized whenhe directly combats '3..mands of teachers whosecooperation he must have for a successful schooladministration.17. The General Court should amend the law to

exclude principals and assistant principalsfrom any collective bargaining unit.

The principal is the director of his school in thesame sense that a superintendent is the executhofficer of a school system. Therefore, like asuperintendent, a principal and ,his assistantshould be excluded from the definition of

1

ployee under the statutes. Taking a vital memberof the management team out of the employeecollective bargaining group would constitute achange in he Collective Bargaining Act.

The principal is responsible for administration ofthe teachers in his school. Thus, his executivepositi n is jeopardized by abdicating that roledur g collective bargaining. Not only is thepr 'cipal's expertise and authority denied to

anagement in collective bargaining, but he is/often in an anomalous position of initiating theteachers' demands with respect to wages, hours,

/ and conditions of employment.

Facilities

School construction is` big business in M chu-setts. In fact, it is t)fe largest single constructionspecialty in the state. During 1969, the 1,otal oflow bids for eleMentary and secondary schoolconstruction amounted to $173-million, pr 27.8%of all construction. The next highest area wasfor highways, which totaled $122-million, or19.6%. Other items such as office buildings, air-ports, and the like, are relatively minor, Expendi-tures, for comparison, are illustrated in the tableshown directly below.

SIASSACMISETTS CONSTRUCTION EXPENDITURES -1111

(.Htius of dollars)Elementary and secondary schools $173

Highways 122

Higher education facilities 103

Hospitals 56

Government service 52

Private manufacturing plants 31

Offices 25

Stores and shopping centers 21

Airports 19

Other items not listed 20

Total $622

EVALUATIONEach new school is planned and built by a com-munity as an individual project. No advantageis taken of mass buying, standardization of con-struction methods, or experience gained on otherfacilities. On the average, each community buildsa new school every five or six years. Thus,although the state-wide volume is very large andfairly constant on a yearly basis within anindividual community, volume is quite small andhighly sporadic. There is no continuing source ofdesign, construction, or cost expertise within the

//.14

community. Such expertise, furthermore, is notavailable at the state level, Only in matters ofschool safety, health, and educational require-ments does the state provide extremely helpfulassistance to the communities.In view of the fragmented approach to schoolbuilding construction across the state, it is notsurprising that the results are uneven. Withinany particular time period, the building costs persquare foot vary almost two to one from schoolto school. Admittedly, some of this variation isto be expected because of the different types ofschools, differences in local labor rates, ;Ind otherfactors. However, a variation of two to one is anindication that net all communities are effectivein providing quality schools at a reasonable cost.The high costs per square foot are not alwaysfound in the affluent districts. Those poorer com-munities which build high-cost schools exemplifythe penalties exacted by fragmentation of theschool construction program.To complicate matters, school facility costs iswell as bond interest rates are rising. The graphon the next page shows historical trends ofschool facility costs in Massachusetts. Basic inrformation was derived from data supplied/byindividual school districts and the School- Build-ing Assistance Bureau, and includes all costsexcept for the site. In recent years, constructioncosts alone have been rising at a rate of about10% per year. The largest part of this growth iscaused by wage rate increases resulting fromtrade union negotiations. However, a significantimpact has been manifested by an escalation inmaterial costs. Furthermore, there is no indica-tion that the roughly 10% annual increase islikely to change in the near future.

37

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5

0

HISTORICAL TREND OF SCHOOL FACILITY COSTS

HIGN -

4 AVERAGE

4 LOW

PRE.1900_,

19001920

1920.1940

This dynamic inflationary spiral has several harm-ful effects, aside frain the direct mcrease in dollarcosts. For example, in making preliminary costestimates for anew school an architect can easilyunderestimate the costs tit will prevail at thetime firm bids are recehr Thus, when bidsexceed the preliminary eat ate, a communitymay refuse to authorize the r quired bond issue.At this juncture, several ate tes may be em-ployed. A common approach is to have thecurrent or a different architect drawup plans fora smaller school which would not meet the knownneeds. This requires time and during the hiatus,construction costs per square foot would increaseat a steady rate. Oftentimes, taxpayers end uppaying the initial bid price for a school which is10% or 15% smaller in size than the original plan.Immediately, the community is under pressureto provide additional school space. Consequently,the cycle begins again.'

This situation is not unique in Massachusetts. Arecent study by the City of New York PlanningCommission indicated that delays added $30-million to the cost of all schools planned in 1969.The study notes, " . . , the longer a school isdelayed in the planning and design process, themore its construction will cost when the schoolfinally reaches the construction stage."38

40wwmis.0"..

1940. 19501950 1960

1960'1969

1970

The costs of building a new school are highlyvisible to the taxpayer, more so than the annualschool operating budget, since the building costappears as a lump sum in a particular year. Inaddition, a new school is an.ever-present physicalentity, and any features not to the taxpayer'sliking can readily 'be pointed out to neighbors.Thus, comments on "monuments to architects,""contractors' errors," and the like are common.These comments reflect the taxpayer's uneasyfeeling that he has not received full value for hismoney. The situation resolves itself into thefollowing factors:

A large state-wide, but fragmented manage-, ment of the school construction process.

Widely varying per-square-foot costs.

Rising overall building costs each year.

Taxpayer dissatisfaction.

RECOMMENDATIONS1. The Department of Education should create

a division of School Construction and Facili-ties as soon as possible.

Currently, the School Building Assistance Bureauis responsible for rendering aid in legal, financial,educational, and site planning functions. These

PROPOSED ORGANIZATIONDIVISION OF SCHOOL CONSTRUCTION AND FACILITIES

DIVISION OFSCHOOL CONSTRUCTION

AND FACILITIES

SCHOOL BUILDINGASSISTANCE BUREAU

LEGALAID

IFINANCIAL

AID

_____L__EDUCATIONAL

AID

I

LIBRARY RECORDSSTAFF

ENGINEERINGBUREAU

COST ESTIMATINGAND ANALYSIS

SECTION

ISITE PLANNING

SECTION

....1

BUILDINGDESIGN

SECTION

111111111

A.../CONSTRUCTION

COSTANALYST

iUTILITIESENGINEER

... STRUCTURALENGINEER

ESTIMATORCIVIL..1

ENGINEER

MECHANICALAND

ELECTRICALENGINEERS

operations, however, are only part of the assis-tance needed by school districts. The proposeddivision would have an 'additional bureau as wellas a library records staff. The organization chartshown directly above depicts the suggested ar-rangement of the School Building AssistanceBureau, the Engineering Bureau, and the libraryrecords staff.

This division would have complete authority indealing with matters presently covered by theSchool Building-Assistance Bureau. Additionally,it would provide services in the areas of newbuilding construction and rehabilitation projects,and, consolidate and finalize all building plans.Further, the division would provide engineeringdata and specifications, as well as furnish informa-tion on building materials with longer life andbetter maintenance values. It would also providerecommendations on cost saving items andmethods. In addition, it would compile records,cost data, surveys, reports, studies, and place itsstamp of approval on all plans and specificationssubmitted by any school district. Under this newstructure, the site planning ,activity would betransferred to the Engineering Bureau. Thelibrary records staff would be responsible foraccumulating technical data on school buildingdesign, construction, and educational specifica-

1 6

ARCHITECTURALSECTION

....1EQUIPMENT. LAYOUTPLANNER

SITE LAYOUTPLANNER

tions. It would provide a facility to store thisinformation which would be made available to allschool districts.

About 12 additional people will be required tostaff this function. However, in services rendered,a minimum 5% savings per project can beachieved by this new organization. School dis-tricts will benefit by this change because reliableinformation and data will help in compiling andformulating plans for new or old constructionprojects. Part of the savings will be passed ontothe state; this will help offset the added expendi-ture. The annual cost of the additional personnelapproximates $200,000. However, savings will heabout $5-million per year, based on an annualconstruction level of $100-million. This recom-mendation is referred to in the Facilities Planningand Acquisition section of School Business Man-agement System.

2. The General Court should establish a centralstate agency to contract for construction ofall elementary and secondary public schoolbuildings in the Commonwealth.

Thisall

agency, acting as a single customerfor all school buildings, would stimulate widercompetition and more favorable contract termsand conditions than any individual town. It could

38

negotiate contracts containing positive and nega-tive incentive provisions as well as require accessto detailed cost information on specific contracts.Since all data on contract petformance would beavailable within the central agency, records couldbe kept of performance of individual contractorsand architects. At least three possibilities existfor this central agency. For example:

The proposed Divisiqn of School Constructionand Facilities, within the Department of Edu-cation, could have the contracting functionassigned to it.

A Bureau of Public School Construction,similar to the Bureau of Building Construc-tion, could be established in the Departmentof Administration and Finance.

OP' A school building authority with an indepen-dent status that is similar to the State CollegeBuilding Authority, could be established.

The central agency would function much moreeffectively if the public bidding laws were -modi-fied to allow the use of negotiated contracts.

3. The General Court should enact legislationpermitting cities and towns to use the Com-monwealth's credit rating to minimize bondInterest cost&

At present, each individual town must float itsown bond issue for a new school. However, onlyfour or five municipalities have credit ratingswhich are higher than that of the state; most havelower ratings. If the, state's rating could be usedby the towns, appreciable savings would result.

ual school 'building costs, on a state-widebasis, average over $100-million. Thus, if a 1%reduction in bOnd interest cost could be realizedby taking advantage of the state's rating, annualsaving would be $1-million.

There are several ways in which this approachcan be mechanized. Some are being implementedin other states. Vermont, for example, has estab-lished a municipal bond bank which buys munici-pal bonds issued by communities and, in turn,floats bond issues using the state's credit rating.Connecticut has recently enacted legislation en-abling the state to buy municipal school bonds at4%. This approach, of course, goes beyond thesuggested concept and amounts to additional directfinancial assistance by the state. Another approachwould be to have the proposed state contractingagency handle the bond issue in the name of thestate and then lease the schools back to the towns.Payments from the towns would be used to retirethe state bonds.

No matter which method is used, the savings tothe taxpayer would be appreciable. This recom-40 .

7

mendation is referred to in the Facilities Designand Construction section of School BusinessManagement System.

4. Cities and towns, with the assistance of theDepartment of Education, should promotethe development and use of the modularsystems approach to reduce constructioncosts.

Based on experience in California, Toronto, andFlorida, overall savings approaching 25% caneventually be realized using modular design andconstruction techniques. Some activity in thisarea has already started in the state; the city ofBoston is now planning a prototype school basedon modular construction. The Massachusetts Ad-visory Council on Education has recently con-

-tracted with Campbell, Aldrich, and Nulty, Bostonarchitects, for a study entitled "A Study of SchoolBuilding Costs." This study will highlight themodular systems approach.

The actual achievement of significant savingsrequires a sizable volume of construction. Thetotal annual volume in the state is about 4-millionsquare feet. Thus, a central state contractingagency fits logically into the total schen Anincentive that could be used to- encourage townsto follow this route would be to allow a higherpercentage of state financial assistance to townselecting to use modular construction.

The proposed Division of School Construction andFacilities and the state contracting agency, dis-cussed in previous recommendations, should takethe lead in this development.

To take full advantage of modular constructiontechniques, the public bidding laws should bechanged to remove the "low-bid" restriction. Thisrecommendation is discussed in more detail inthe Facilities Planning and Acquisition sectionof School Business Management System.

5. Cities and towns should establish local sta-bilization funds for new school constructionto reduce financing costs.

Stabilization funds are allowed under the GeneralLaws, but they are not commonly used. If suchfunds were to be used in a town with needs fornew facilities, almost 70% of the total cost couldbe saved. Most of the savings' results from areduction of interest costs. For example, anaverage loan of $3-million has an interest chargeof close to $2-million over a 20-year period,assuming a 6% interest rate.

The graph to the right depicts effects on thetax rate by financing a school building programthrough three different methods of funding.Method A, the conventional bonding method in

EFFECT Of THREE FUNDING APPROACHES ON TAX RATE

aaaaa

Ow Im

MET/400 A - 20 YEAR KINDS

scum s . 12 YEAR STABILIZATION FUNO

METHOD C S YEAR STABILIZATION FUNO

II 111. emir al*. ir"... li. .... 11.,0,9 .....arem...... ......

... 11 i'...... ..../ ; .......1,,

... ...11 . .........Om OM dialli ....Mal aim Oa MIN;

6

mEseNr TAX RATE

ION INDICATES YEARS IN WHICH SCHOOLS CONSTRUCTED

I0 1131

............

TOTAL NET COST TO TOWNFOR FOUR SCHOOLS

METHOD A E14,700030

METHOD P 10.166,000

METHOD C 4,500002

IIS ON 20 (26) 30 36 40

YEARS

use today, costs three times as much as Method Cwhich uses a stabilizition fund.

To more easily understand this saving, a briefdescription is in order. The hypothetical townused in the example has an assessed valuation of$100- million and a tax rate of $40 per $1,000. Thetown plans to build a new school six years fromnow and three more schools, one every sixthyear. Thus, there are four buildings to be con-structed over a 24-year period. These schools areestimated to cost $3-million each and state aid isexpected to be 40%. The illustration shows theeffect on the tax rate for funding such a buildingprogram. For clarity, the tax rate is assumed toremain constant except for the increases resultingfrom building costs.

Method A represents the effects of the conven-tional bond issue which is floated when thebuildings are constructed and paid off over a20-year period. The total net cost to the towns,using a 6% interest rate, is $14.76-million whichincludes principal and interest costs, minus stateaid.

Method C, on the other hand, represents theestablishment of a six-year stabilization fundwherein the money for the first school is com-pletely raised before the construction begins. Suchfunding is continued throughout the buildingprogram. This method benefits further by beingeligible for accelerated state aid. The total costof this method is only $4.56-million, roughly 30%of the conventional bonding method. Costs includethe principal, minus state aid and 7% interestincome earned on the fund as it is accumulating.In fact, the town need only raise about $2.4-million

7\45

for each building. The accrued interest willaccount for the remaining $600,000 needed tofinance eacfr school.

Method B represents a combination of the twomethods. It includes establishment of a 12 -yearfund and use of bonds as required to make up thedifference. This plan costs the town about 310.162million, a savings of 30% when compared toMethod A. The smaller savings in this instanceare offset by a smaller tax rate increase in thefirst few years of the program.There are an infinite number of other alternatives.All of them, however, are aimed at reducing thehigh interest costs of bond issues. For example,a town may have to start its building programimmediately, not six years from now. If a stabili-zation fund were to be set up, the first schoolwould still have to be financed by a bond issue.Even under these circumstances, savings of upto 50% can be realized. If each town in the statewould use the stabilization fund approach, up to$70-million annually could be saved. The possibleeffects of inflation should, of course, be consideredin establishing a stabilization fund. Consideringthat each town will take an individual approachto its needs for financing, it seems reasonable toexpect that half of the maximum savings, or$35-million, might be attained.

6. Cities and towns should make early decisionsand commitments to new buildings.

The inflationary rise in construction costs puts apremium on time. Although there are no factualdata available for all school districts, it is esti-mated that most schools are built two to threeyears after they are needed. Thus, using a

4 41

conservative value of building cost index growthf 10% per year, the price of each school is 20%

30% higher than it need be.

No xpayer wants to feel he is being stampededinto mmitting himself to support an -expense ofsevers million dollars without being convincedthe expenditure is worthwhile and necessary. Theprocess of arriving at a final decision by thecommunity is a lengthy one. This is the logicalreason that most schools are not built when theyare needed.

How, then, can this process be shortened? Theobvious answer seems to be in having each districtdevelop a viable long-range building plan whichwould be updated periodically. This last provisois the key to the success of any long-range plan.Many communities have generated excellent long-range five- to 10-year plans, only to have themhopelessly outdated and cast aside after a year ortwo. Most successful industrial concerns havelearned that a long-range plan must be con-tinually updated, often on a semiannual or annualbasis, if it is to remain viable in the face ofchanging conditions.

A successful long-range plan for school construc-tion in any district should cover a span of at least

42

10 years. It should include an analysis of buildingneeds based on condition of the present plant andestimated pupil population. In addition, it shouldinclude an estimate of the costs involved whichwould incorporate the projected effect on taxrates over the years, a plan for site acquisition,and preliminary plans for the next school to beconstructed. Such a comprehensive plan willallow early discussion among all interested parties.Most important, a concerted campaign should beconducted on the part of the school departmentand the town building committee to involve thetaxpayers in the plan, and to update it continuallymaking it a working plan, not a book filed in acabinet. Thus, the taxpayers would be in aposition to reach a decision and a commitment oneach new schoZl at least two years earlier than atpresent. This would result in saving about 25%of the prime building cost: On a state-wide basis,new school building volume is over $100-millionper year, and bond costs add at least another $50-million to this figure. If only half of this construc-tion were to be committed two or three yearsearlier, annual savings to the taxpayers wouldapproximate $20-million. This recommendationis alsh referred to in the Facilities Planning andAcquisition section of School Business Manage-ment System.

S ea.k or. %NJ

School Business Ma agement System

The business management section is concernedprimarily with school district operations. It is,in reality, a family of functions including non-instructional activities which are usually the directresponsibility of a business manager. Additionally,other noninstructional functions are discussedunder Interfacing Systems. These are generallynot of concern to the business manager.

Through school district action, many of the recom-mendations presented can be put into effect im-mediately to improve the business managementsystem. However, the system will become moreeffective as recommendations made in precedingsections are implemented by the Department ofEducation and the General Court. In some in-stances, these recommendations are repeated toemphasize their importance.

A system is a timed-phased sequence of thingsto do and how to perform them to accomplish aprescribed mission efficiently and effectively.. This -requires people, organization, and facilities whichmust be part of the system. A successful systemmeets the following criteria which should be keptin mind when establishing the proposed system.

The individuals involved are competent andtheir responsibilities are clearly defined.The chain of command and lines of communi-cation are firmly established.The organization is compatible with its as-signed mission.The laws, regulations, and policies whichaffect the system are well known.The required facilities, equipment, and sup-plies are readily available.The system provides a built-in capability tointroduce all required changes molt easilyand effectively.

It ill cost money to establish a system and theamo nt will vary significantly from district todistri . The use of help from the business corn-munit reduce overall casts. Smaller districtscan ben- from cooperative efforts as outlined inthe section devoted to School District Coopera-tion. These costs are really an investment witha high yield potential.

The Task Force has estimated, in certain areas,the reductions in operating expenses uldbe achieved through the systems apoach.other areas, the benefits include many iitangiblesand, therefore, no dollar value has been assigned.However, the best way of getting the most outof the roninstructional dollar is through goodmanagement and operational systems. The chart,below, illustrates the percentage breakdown ofthe total public school expenditures in the 1969fiscal year., (Source: Facts About Education inMassachusetts, Feb. 1970. Division of Researchand Development, Department of Education).

DISTRIBUTION OF TOTAL SCHOOL EXPENDITURES.(8949-MILLION)

YEAR ENDING JUNE 30, 1969

FACILI TIES 0.111ATIONAND MAINTENANCE

AT TtNDANCE 'OWN F000AND GU DAKC SEW/MS

AND DINE* STUDENTACTIVITIES

WWI MD01 VOt v INC E DA.

0.1". TAANSTONTATIOH

29%

AvISION ANODINDPALS OFFICES

All OTNiNS

TIACtitN5 SAtANIIS

TUTSOONS, ONNANitSAND AU003 VISUAL

2

43

Fiscal System

The budgeting, accounting, and auditing proce-dures which have developed over the years are apatchwork of independent laws and regulations.They are designed to ensure that every dollarappropriated is expended for the exact purposeand in the manner described in the "budget"presented to the town meeting. Because of thisapproach, wasteful and unnecessary procedureshave developed. As a result, they are not effec-tive even for this limited purpose as they mightbe. No attention has been paid to developing theimportant informational function of the fiscalsystem. Furthermore, no method has been pro-vided for discovering whether the funds havebeen effectively expended for the intendedpurposes.

BudgetingExpanding business and cultural requirements ofour society have led to wider programs of educa-tion. The basic educational objectives of the stateor local community must, therefore, be reexam-ined. It is generally accepted that a basic educa-tion should be provided at public expense forall children on an equal basis. However, thereis no agreement on what comprises a basic.edykaatien and what constitutes an enriched pro-gram. In this doubtful area, the taxpayer needsinformation on the cost of proposed programs anda. report on how well they have achieved theirobjectives. .

A budget is a financial plaiiby which funds areallocated to a project or program. The process ofpreparing a budget forces those involved to thinkaboutorequirements to attain stated objectives.Today, taxpayers who underwrite requested bud=gets desire to hold their agents accountable formeeting the budget and reaching the stated goals.This accountability requires an indication of pro-gram goals and a measurement of achievement.

EVALUATION

To mt this taxpayer concern, the traditionalform of budgetary presentation must be revised.

Ir. Resources to support the proposed budgetmust be indicated.

lb' Programs planned and objec ives includingthe number of participating pupils should bepart of the budget presentation. Taxpayersmay then judge the relative merits of pro-posed programs with knowledge of the costper participating pupil.

,N. Cost elements of each program must beidentified and tabulated. These include salar-

44 51.

ies, supplies, materials, heat, custodial care,maintenance, and the like.

The Table of Accounts used in the Commonwealthdisplays these dollar amounts in great detail. It iscompatible with that used by the MassachusettsDepartment of Education and the U. S. Depart-ment of Health, Education, and Welfare.Budgets are prepared and approved based onamounts allocated to these accounts. The budgetsare not, however, meaningful presentations ofongoing programs to further the education ofcitizens in Massachusetts. In most cases, they areincomprehensible masses of figures which confusethe average taxpayer. Moreover, the Table ofAccounts does not disclose either the total cost ofeducation nor its contributions to nonschool ac-tivities and programs of the community. Forinstance, interest costs and bond redemptions forschool building construction do not appear in theschool budget.This table makes use of seven digit code numbers.The first four digits identify functions such asAdministration, Instruction, Operation and Main-tenance of Plant, and Acquisition of Fixed Assets.The budget is usually presented as summarizedtotals of these accounts. These dollar numbersare interesting for an analytical appraisal, of thecosts of the functions indicated. However, theyare not helpful in answering the question as towhy taxpayers are being asked to spend theirdollars.The "so called" program areas, covered by thebudget, are identified by the fifth and sixth digitsof the accounts code numbers. They are brokendown under. the following headings: Not Classi-fied by Program Area, Elementary Schools, JuniorHigh Schools, Senior High Schools, Beyond grade,12, Community Colleges, Adult Education, AdultCivic Education, and Continuation Schools. Theseare classified as "so called" because they appearto identify the age brackets of pupils and not thetype of program offered.The last of the seven digits in the usual accountcode identify objects to be purchased. They are:Not Classified, Teachers Salaries,, Clerical Salar-ies, Other nonprofessional salaries, ContractedServices, Supplies and Materials, Other Experises,Principal and Interest, Land, Buildings, andEquipment, and Transfer.Programs of instruction at all levels are becomingmore complex and are geared to differing pupilrequirements. At the high school level, electivecourses are now the rule. The number of these

offerings is likely to increase as the body of avail-able knowledge increases.

All programs have a cost and they are offered tovarying numbers of pupils. Therefore, the tax-payer is entitled to know what the cost per pupilis for each program and make a choice betweenthem on a priority basis. For example, a program-oriented presentation might disclose that a courseis offered because of the proficiency of a facultymember and not because there is an educationalneed in the community.

Budgeting by objective, already a common tech-nique in the business world, offers an answer tothis need. Through this technique it is possibleonce a plan has been agreed upon, to identifYalternative means. It can be used to budget thosealternates in terms of objectives and measureeffectiveness of the means selected in terms ofresults and dollars expended.Recently, much has been learned about this typeof approach in educational circles, largely becauseit is becoming clear that education needs bothdirection and accountability. In Massachusetts,the New England School Development Council isone group which has done some preliminary workin the area of program budgeting. Much of thefrustration among teachers and students arisesfrom a lack of agreement on goals and objectivesand a feeling that little progress is being madetowards whatever goals and objectives may begenerally accepted. Equally, the taxpayer is frus-trated by lack of understanding of goals and ob-jectives and the absence of reliable measuresthrough which he can decide how his money is tobe spent. Further, there is no way of measuringwhether it is, in fact, being spent effectively forthe intended purpose.

Unfortunately budgeting by objectives frequentlydescribed under the title of Planned ProgrammingBudgeting System or PPBS seems to have becomesurrounded with a certain amount of mystery.It has been considered a rather esoteric processthat could only be dealt with by experts. Onedifficulty that seems to have baffled many adminis-trators who have tried to adapt this technique toeducational systems is the problem of allocationof administrative and other overhead items aswell as supportive services such as audio-visualaids, guidance counselors, and the like to indi-vidual programs. Obviously, this is a processwhich can be quite subjective and cannot becarried out with complete accuricy. Nevertheless,approximations can be made which are adequatefor the purpose. They are reliable as a compara-tive measure and, in any case, create only a smallpercentage of error. This is a problem inherentin any cost accounting system and is one which no

longer presents any serious difficulty to costaccountants in business or finance. The amountswhich must be allocated to each program varyfrom a high of 40% to a low of less than 10%.Where the amounts are large, the allocations tendto be fairly obvious because they are dealing witheasily identifiable items such as audio-visual aidior remedial teaching. On the other hand, itemsthat are harder to allocatesuch as light, heat,or administration represent a much smaller) pro-portion of the total percentage open to disputeand are in the area of 1% or 2%. To neglect theclear value of program budgeting because of pos-sible variations of this magnitude seems undulypedantic:

The time period covered by a budget request willusually be one fiscal year. Nevertheless, manyprograms are presented which cover a longerperiod. Only that portion of the total cost whichwill be paid for out of the year's operating fundscan be budgeted in the current year. However,the total continuing cost, and the term of yearsthat it is expected to cover, should be part of thepresentation. Only if those responsible for plan-ning budgets are willing to reveal these costs, andthose responsible for approving them are willingto commit themselves and the community to theexpenditures involipd, can budget planning beeffective. One important cause of waste in oureducational system is the partial implementationand subsequent abandonment of projects.

Preparation of the budget is a complicated pro-cess. It should begin with a request at the pointwhere the function is to be performed or theobject used. Similarly, good management requiresthat any change or deletion of an item recmestedin a budget be communicated back to the initiatorof the request and he should know he will have anopportunity to indicate his priorities. If such com-munication does not take place, it will result inbudget padding and other defensive attitudes onthe part of teachers who feel their effectivenessis being threatened.

The estimated cost totals of the functions andobjects should be allocated to programs and pre-sented as a budget request. The programs havingbeen presented and approved with component

Nr costs established, the budget should be approvedas one total. If responsibility for the administra-tion of the school system is to be delegated by theschool committee to the superintendent, suchauthorization should carry with it the right tomake adjustments within the budget as needed.This does not, of course, mean that the reportedresults for the year will not reflect a strict com-parison with the budget. As long as this type ofaccountability is required, the right of the super-

43

intendent to overspend on items while stayingwithin the budget total will result in savings tothe taxpayer. There will no longer be any induce-ment to expend money unnecessarily to avoidturning it back to the general funds of the .-community.

An inherent part of the presentation of any pro-gram is to establish and identify the resourceswhich will support the program. Of most im-mediate interest to the taxpayer is the revenuefrom local sources such as real estate taxes andincome from the Commonwealth which is usuallyin the form of reimbursements for expendituresalready budgeted, such as transportation, specialeducation classes, and vocational education andrevenue from the federal government; which re-flects the impact of school population and isusually a direct grant, such as school 'lunch act,commodity distribution, school maintenance, andspecial milk program.

With a few exceptions, most of the federal orstate aid funding generated by or for the schoolprogram is paid into the general fund of thecommunity and is not reserved for use by theschool department. It is difficult to sustain theprinciple of school department accountability un-less the department is given entire responsibilityfor its revenue and disbursements. This does notprevent the accounting or bookkeeping operationsbeing contracted out- to the city, town, or anyother outside body with control being exercisedthrough periodic reports.

The budget for disbursements, should, for thepromotion of understanding by the average tax-payer, be presented as simply as possible foranticipated programs Of the school system. TheTable of Accounts used to supply data in prepar-ing the budget may be as complex gas requiredto meet the needs of state and federal qualifica-tions. These accounting complexities are adminis-trative details, but 'the budget does not need toshow them. Without this basic understanding,there is little possibility that either the educatorsor the taxpayers will ever be satisfied with theperformance of the other.

RECOMMENDATIONS

1. The General Court should enact legislationrequiring all school committees to submitbudgets that are program-oriented ratherthan function-oriented.

This action will further public understanding ofthe objectives of school programs. Additionally,a uniform format will facilitate comparison be-tween systems. Furthermore, it will create theopportunity to make choices between programs.

4$ 53

Such legislation must be backed up by an infor-mation program conducted by the MassachusettsDepartment of Education to demonstrate how asimple but adequate program-oriented budget canbe installed in a modest-sized school syste'm. Thisshould be a function7 of the Bureau of SchoolManagement Services as described in the sectionentitled Manpower.

2. School committees should approve the schoolbudget as one total.

This procedure would permit the superintendentto make transfers freely within the overall budget.Some systems already operate on this rinciple.However, there is considerable pposin fromthose who favor tight controls. Under th pro-posed system of program budgeting and sannual accountability reports, actual results by,program compared with budget will be available \for scrutiny and the extent to which the superin-tendent has used this privilege will be immedi-ately apparent. The ability to make transfers willresult in economies because' there will be lessinducement to Spend money unproductively toavoid returning it to the general funds of thetowns.

3. The General Court should enact legislationthat school budgets display revenue sourcesand contributed services, all anticipated ex-penditures for whatever purposes within orwithout the school system, and indicate thenet amount to be raised by local taxation.

The present system is not completely candid aboutschool costs. Currently, the usual budget dapsnot disclose the value ofkservices contributed bythe school department. In addition, the cost ofrepayments on school bonds and the cost ofinterest payments on such bonds are not divulged.Last, but not least, the contribution made by theCommonwealth is not disclosed.

4. Local school committees should 'require all. school superintendents to make a report at

the end of each school year showing- thefinancial results by program compared withbudget and also the educational results corn-pared with those forecast when the budgetwas prepared.

Without this strict accountability, the primarypurpose of program budgeting would be nullified.The freedom of transfer within the budget con-ferred on the superintendent as stated in theprevious recommendation would also be unwisewithout this protection. The form of this reportshould be designed by the Department of Educa-tion which should receive copies of all completedreports.

AccountingFor purposes of accounting, as opposed to budget-ing; the system and organization of accountspresented by the Massachusetts DepartniPent ofEducation appears to be adequate. However,effort is duplicated, some practices are wasteful,and security procedures are inadequate. Statutesrequire that accounts shall. be kept by the townaccountant. Nevertheless, nearly all school sys-tems duplicate the accounting procedures withmodifications to meet state and federal educa-tional requirements. Additionally, the generalLaws require bills and orders for payments of alldepartments be examined by the town accountantwho then issues a warrant upon the town treas-urer. The state's statutes also provide that theauditor (or selectmen) may disallow for paymentany bill or pay order if he considers it fraudulent,unlawful, or excessive. Finally, the town treas-urer is the only person authorized to pay all bills.

EVALUATION

The complicated system of checks and balancesleaves open the possibility of extended delays,extra paper work, and misunderstanding betweenofficials in some cases motivated by political andpersonal considerations rather than a desire forfinancial control. This in turi leads to loss ofdiscounts, reluctance of suppliers to quote lowprices, and general demoralization of townemployees.

The laws of the COmmonwealth provide for re-tention of certain records but there is no provisionfor their destruction. This problem is also dis-cussed in the Management Information Systemsection as it relates to attendance records. Fromobservatioris, cash handling procedures were con-sidered extremely poor and not consistent withsound financial practices.

Facilities Planning and

The money spent annually for school facilities inMassachusetts is about equal to the total non-instructional expenditures by all school commit-tees. However, each school district establishes anannual operating budget, but it builds a. newschool only once every five or six years. Thus,planning for the acquisition of a new facilityshould be on a longer-range basis than that re-quired for the annual operating budget. Theeffectiveness of the planning and acquisition pro-cess varies greatly from community to community.

RECOMMENDATIONS5. The General Court should' enact legislation

to provide for periodic destruction of records.

The Massachusetts Department of Educationshould be charged with the responsibility to sug-gest a destruction date for records which mustbe . retained according to law. In addition, allrecords now retained"- Should be reviewed anddestruction dates recommended. Annual savingsof $50,000 are possible.

6. School committees should establish securityprocedures for handling, counting, and de-positing cash.

The handling of cash by school personnel. is quitecareless. In lunchrooms and elsewhere, it is fre-quently left unattended within view of passers-by.Frequently, the cash is counted by one person"only. In some cases, one individual, frequently awoman, will transport cash to the bank withoutpolice or other protection. TheMassachusettsDepartment of Education should examine all'situations where cash is handlediin school dis-tricts. ,Then, it should suggest procedures inaccordance with sound business practices.

7. The General Court should enact legislationpermitting school districts to advance fundsin anticipation of payment by state or fed-efid authorities for approved projects.

This permission should apply whether the ad-vances are in anticipation of grants or reimburse- .-'

--/cynent. At present, useful prefects may be delayedor payment of salaries and other expenses de-terred because school committees or town treas-ures*, fear the original advance or repaymentwould' be held technically illegal and that thecommunity may, therefore, be liable for suchdisbursements. Reference is also made to recom-mendations within the Town/City-School Com-mittee Relationship section of this report.

Acquisition System

54

It is all too common to find existing facilities over-crowded because of delays in acquiring neededbuildings. The reasons for these delays have beendiscussed in the Facilities section of Resourcesfor, Public School Education.

The entire process of facilities planning andacquisition should be improved. All districtswould benefit greatly by having more assistancethan can now be provided by the Department ofEducation. The following sections discuss thepresent system and recommended improvements.

47

Planning and UtilizationConditions in Massachusetts' public schools rangefrom severely overcrowded to comparatively ex-tensive unused space accommodations. However,the latter are more the exception than the rule..On one hand, approximately 7% of the systemsare now operating on double sessions for one ormore grade levels or portions of separate grades.On the other hand, a few systems are not expectedto reach their available pupil capacity for severalyears. Most districts that are at or very close tofull space utilization expect to exceed their ca-pacity in the immediate future. A major influenceon space planning, now just beginning to createproblems, is the phasing out of many parochialschools.

To avoid double sessions or overcrowding, somesystems are using renovated, but otherwise un-desirable areas. Others are co f cling for outsidespace by renting locally or ()it e ion-fee basisin an adjacent community. Also, iain districtsare utilizing area.i for other than their intendeduse or are operating staggered sessions byrescheduling classroom sessions. At least onesystem is experimenting with a year-round kin-de program.

Many excelleat examples of utilization have beenafforded in recently constructed buildings. Theyinclude the flexibility of adjustable partitions,open-area teaching spaces, eget, :iums, multi-purpose areas, and sharing of certain facilities incampus or house-type complexes.

Much the work of classroom scheduling isbeing performed manually.. However, computers

quite widely used in analyzing and promotingmaximum use of facilities for secondary schoolprograms.

Evening school:, usually for adult education, andsummer school programs are on the rise. Lastyear, 184 school systems operated s _immer schoolprograms. Enrollments were almost equally di-vided between the 'elementary and secondarygrade levels.

Other uses of school facilities, outside of regularlyscheduled school hours, by a community for civicmeetings, club or fraternal organization functions,recreation, and the like vary from limited toextensive. By the same token, policies and regu-lations for such use range from virtually non-existent to quite formal and complete. Thequestion of space utilization, covering the topicstouched upon, is one that actively occupiesthe effort' of most school administrators on acontinuing basis.

48a-1U

EVALUATION

Changes in the character of educational programsand growth in pupil population appear to havethe greatest impact on utilization of school facili-ties in Massachusetts. Most communities haveendeavored to meet and supply appropriate fa-cilities consistent with local school departmentprograms and enrollment. Their efforts ht. :e,however, achieved varying degrees of success.

In many cases, there is a lack of sufficient long-range planning or appreciation of the results. Asa consequence, numerous towns have inadequatefacilities. Planning studies have often been madeeither locally or by outside agencies, but seldomhas there been proper and periodic updating.Many communities do not have permanent schoolneed committees. Such committees are establishedonly when requirements become iruminent andthe community is suddenly confronted with asizable building program to maintain its statusquo. This has, in some cases, deferred desiredadditional education programs. In contrast, mostsystems observed showed excellent and effectiveshort-range planning for the current year, as wellas contemplated needs for the coming year.

The contrast between short- and long-range plan-ning effectiveness may be explained in this man-ner. Many administrators have planned carefullyand diligently in both phases. However, they aredealing in the short-range case with existingconditions over which they have virtually com-plete control, while in the long-range situation,they must also consider unpredictable publicreactions over which they have no direct influence.Thus, a considerable amount of effort has goneinto reports and brochures to keep the publicinformed. All too often, however, and more so inrecent months, voters have chosen either to putoff or drastically reduce needed building funds.

In the absence of sufficient factuai data, it is diffi-cult to make a precise evaluation of actual spaceutilization during regularly scheduled schoolhours. However, observations indicate that ex-tremely conscientious efforts are made to makethe best use of existing facilities. Additionally,there has been an awareness of utilizationin planning future facilities. The fact that somepractices have been implemented by necessityrather than design does not modify the favorableay ssment. The few systems that appeared to beless efficient at first have very recently added newspaces as the end result of timely and appropriateplanning. These facilities will be fully utilized inthe coming year by kindergarten or other classes.

The low level of facility use during evening hoursand summer months is a situation unique to the

school system. Although many districts havevarious programs during these Periods, they areusually confined to few of the available schoolbuildings. This, in itself, is good practice insofaras needs of the particular programs are concerned.However, it has little bearing on utilization duringthe regularly scheduled school year.

RECOMMENDATIONS

1. School committees should use proper long-range planning techniques.

Increasing costs in all aspects of public educationdemands better long-range planning. The needfor such planning is even more acute in thoseareas concerned with rapidly developing parochialschool problems which are expected to becomemore critical in future years. Indeed, it hasalready become a short-term or emergency plan-ning function in several school districts.

Goals should be defined as accurately as possible.However, they must he consistent with the indi-vidual community's ability to support such plans.The possibility of securing federal or state aidshould not be overlooked. Increased involvementby the public in their school system by open dis-closure of planning programs can be expected toachieve better overall results. Goals and planningshould be coordinated with other communityprojects for public works, zoning, conservation,and the like.

A long-range revolving plan covering a 5 to 10year period is recommended. Periodic reviewsand updating are essential to keep al:utast ofcontrollable and uncontrollable factors whichcould influence desired or necessary changes inthe school system. Updating should be done onan annual basis and during any period when amajor development creates sufficient justification.A comprehensive review of actual and plannedaccomplishments, as well as those factors whichmay have a direct influence on one another,should be undertaken as often as practicable tomaintain the integrity of the overall planningstructure.

2. The Department of Education should estab-lish standard criteria and records for evalua-tion of space utilization.

For purposes of evaluation and planning by indi-vidual ' .tems, and for analysis and publicationby the Department of Education, carefully con-sidered criteria and formats for :pace utilizationrecords should be designed and put into state-wide use. Making optimum use of existing facili-ties a vital pr, -equisite to determining whethernew space is needed. Withoitt continually updatedinformation on room use and pupil loads in a form

or-r>1-

that facilitates continuing analysis, a school sys-tem cannot satisfactorily determine whether itsfacilities are being properly utilized. The sameinformation, in projected form, will be needed toapply to planning of n"w facilities and help justifyproposals submitted for local or state action.Through a uniform basis of comparison, systemswould ultimately benefit by exchange of tech-niques used., to accomplish better methods ofspace utilization.

A report entitled To Build or Not to Build isavailable without charge from the EducationalFacilities Laboratories, Inc., 477 Madison Avenue,New York, N. Y. 10022. This corporation is anon-profit organization established by the FordFoundation to help communities with their schoolconstruction problems. The report is a study ofthe utilization of instructional space in smallliberal arts colleges. It contains a do-it-yourselfwork book for use by those institutions planningto survey their own utilization levels.The pro-posed criteria and records, in some cases, wouldbe used to avoid the construction of unnecessarytypes of facilities. In other cases, they would beused to justify expenditures for new buildings.

3. Local school administrations should makespecial purpose areas available for otheractivities.

Areas such as cafeterias and auditoriums areoften not fully utilizel during off -peak periods.An example of effective utilization was observedin which a cafeteria could be divided to providespace for study or r'udent lounge activities. Thestudents were free to select the activity of theirchoice. Auditoriums, in particular, can usuallybe structured to accommodate additional instruc-tional space or serve more than one school. Thefollowing reports are available without chargefrom Educational Facilities Laboratories, Inc.

lo. Divisible Auditoriums: Operable walls convertlittle-used auditoriums into multipurpose,highly utilized space for performing arts andinstruction.

10- The High School Auditorium: Six Designsfor RenewalRenovation of little-used audi-toriums in old and middle-aged schools toaccommodate contemporary educational, dra-matic, and music programs.

Design and ConstructionAs of October 1969, there were 2,415 schoOls,encompassing a total of 3,188 buildings in ap-proximately 400 school districts throughout theCommonwealth. The total replacement cost forthese buildings is close to $3.8- billion. About 33%of the buildings and 24% of the instructional

49

classrooms used for schools were constructedprior to 1920. Thus, these buildings have beenin use for over 50 years and are beyond thelimits of most depreciation formulas in capitalconstruction.

Replacement of these older buildings would costapproximately $700-million at an average con-struction rate of $30 per square foot. Annually,the Commonwealth is constructing approximately1,200 rooms at cost of well over $100-million.The trend is expected to.continue for the next fiveyears, at least. Enrollment in the public schoolsystem as of October 1969 in grades one to 12 wasmore than one-million students. There is anannual increase of approximately 3% per year.

In 1969, 38 school building projects were approvedfor construction at an expenditure of $115-million.State aid reimbursement to the cities and townsaveraged around 45%, or over $50-million of theoverall amount. Also, 19 other projects wereapproved but have not been acted upon. Con-struction cost recently has risen at an averagerate of 10% annually. Indications are that thisspiraling condition will continue.

The construction cost of individual buildings builtin 1969 varied from $22 per square foot to $38per square foot, not including architect fees,equipment, site, and the like. The many factorsinvolved in the dollar spread are the basic design,framing methods, selection of materials, interiorand exterior wall materials, lighting, floor cover-ing, size, location, labor rates, and esthetics.

The average construction cost of new schoolbuildings in Massachusetts in 1969 was approxi-mately $30 per square foot. Over the past 10)years,the average has increased about $10 per squarefoot. That growth is in line with the rise in thegeneral building construction cost index duringthis period. The construction bidding volume fornew school buildings in 1969 amounted to $173 -million, which is 28% of the bids orr all buildingserected in Massachusetts.

Vocational schools ordinarily cost \more thanregular high schools. This is due to specializedbuilding design, heavier construction,,, greaterutility requirements, and specialized needs suchas toolroom equipment, woodworking, sheetmetal.and automotive repair shops.

The average school project costs from $3-millionto $7-million and takes two years to complete.Rising costs for construction mean additionalborrowing and debt service charges. Currently,there is a backlog of construction needs for re-ducing overcrowding and, in some cases, eliminat-ing double sessions, as well as replacement of50

older buildings, and the like. The new staterequirement for kindergartens, and increasingparochial school transfers, will have a tremendousimpact on strained budgets and programs.

EVALUATION

When a school district has need for additionalclassrooms and a building program, the superin-tendent and his staff are responsible for preparingthe educational specifications for those facilities.It was found that administration departments inmany school districts are understaffed, and jobcommitments do not allow necessary time forfacility planning. In addition, there is a lack ofknowledge in planning adequate facilities. Thereare several books, articleS, and studies availableand some state departments are willing. to helpin this area. However, many districts cannot,by themselves, develop a comprehensive pro-pbsal encompassing the detailed specificationrequirements.

Upon occasion, communities hire a consultant toconduct building feasibility studies. These involveall phases of current operations with investigationinto alternatives such as additions to existingfacilities, remodeling or rehabilitating older struc-tures, or erecting portable or demountable build-ings. Also included are new building arrange-ments, utilities, site development, parking space,roadways, walks, recreation facilities, financialrequirements, and effect on local taxes. Recom-mendations are made with regard to the bestalternative and an implementation plan is pre-sented. These consulting services are relativelyexpensive, with the average project costing from$10,000 to $50,000. However, this professionalapproach assists school parnsonnel to justify facilityexpenditures. In most cases, the recommendedchoice proves to be satisfactory and has resultedin cost savings and a better facility.

Districts with good facilities have spent the time,money, and effort to develop their long-range sitean building programs. Preliminary meetingsarranged with the School Business AssistanceBureau of the Department of Education, Depart-ment of Public Safety, and the Department ofHealth have prevented costly errors and delays.The combination of good preliminary planning,including cost comparisons of various buildingmethods and equipment, and lack of delay hasbeen of great value to the towns following thisapproach. By contrast, the experience of townsthat have not carried out early cost-effectivenessstudies, or have delayed the commitment to con-struction in the face of rising prices, has beencostly. These towns could have avoided muchgrief by requiring the architect to perform corn-

parative studies of various construction methodsand types of mechanical and electrical utilities.They then could reach an early decision on theirbuilding program.

In the area of utilities, several school districts thatbuilt schools in the last three years have haddifficulties with their mechanical or electricalequipment. The cause of trouble was traced tolegislative action which amended Chapter 30,Section 39M of the General Laws in 1967. Thisamendment although doubtless of worthy intent,has in practice, introduced into several newschools some heating and other equipment ofinsufficient quality to perform adequately. Inseveral cases, sections of schools had to be closedin mid-winter because temperatures in the class-rooms could not be maintained at reasonablelevels.

In a :elated area, the lighting levels in some newschools, although conforming to state require-ments, were noted to be below the latest standardsrecommended by the Illuminating EngineeringSociety, Although this discrepancy is not major,the Task Force feels the state requirementsshould be upgraded.

State aid reimbursement for new school buildingshas been approved under the General Laws,Chapter 645, relating to education. To obtainsuch aid for new construction, the school districtmust submit a complete proposal to the SchoolBusiness Assistance Bureau. The bureau mayapprove or disapprove the program. Failure tocomply with any of the bureau's recommenda-tions denies the district state aid. Today, stateaid averages 40% to 50% of the total project cost.Regardless of the projected cost per square foot,be it $20 or $50, state aid of up to 50% is available.This Tangement is not fair to the districts whichcannot afford expensive schools.

As an alternative to the high cost of new con-struction, some communities have rehabilitatedolder buildings. If the building's exterior andframing is sound, there is no reason why thismethod should not be 'used; many years of lifecan be added depending upon the extent of re-construction. As a rule, the cost should not beexpected to exceed one-third of new constructioncosts. Few architects and building contractorsfavor this approach, because- the monetary re-wards are greater from new projects. A law,relative to financial assistance for reconstruction,rehabilitation, and modernization of school build-ings, was approved under Chapter 754. The statutestates this type of aid is limited to one-third ofnew construction expenditures made in the pre-vious year. The various departments involvedat the state level are not staffed to handle prob-

lems dealing with refurbishing old buildings. Asa result, relatively little work has been doneto date.

The Commonwealth is also faced Nw iti, gradualphasing out of the parochial school system. Thiswill have a great impact on local economies. Theeffects will be greater in communities whereparochial schools have a high percentage of pupils.Today, there are approximately 700 parochialschools with an enrollment of nearly 500,000 stu-dents. Construction of facilities to accommodatethis total, at an average cost of $2,000 per pupil,would require an investment of $1-billion. Torehabilitate existing parochial facilities to meetstate standards will require a minimum of 60%of the cost of new construction or $600-million.No state aid is available for rehabilitation of theseschools. Recently, two parochial schools wereacquired by different towns; special legislationwas required to allocate funds for thoSe pur-chases. The Task Force found no evidence of along-range plan to handle the parochial schoolproblem. In addition, racially imbalanced schooldistricts have required significant new construc-tion. This problem has affected and will affectfuture planning and location of facilities in situa-tions of disparity,

Population growth, overcrowded housing, ancientschools, and lack of available building space haveplagued many cities for years. Shortsightednessin the past has led to many current-day ,problems.For instance, insufficient funds have been madeavailable to those responsible for building upkeepand maintenance.

However, in many places a series of progressiveideas, programs and concepts have been developedand innovations brought on by limited space havebeen made. For example, in Boston a 10-storyhigh-rise school building is in the process ofconstruction. In another section of the city, afive-story parking garage was constructed witha school house on the top floor, In still anotherarea, where a new elementary school lackedspace, the building roof was redesigned and theplayground installed on the roof.

Of the many plans and new concepts the onethought tc,- have the most merit is the modularsystems approach to school house constructiondeveloped in California, Toronto, and Florida.Copies of the California report, entitled SCSD:The Project and the SChools (1967) are availablefrom Educational Research Laboratories, Inc.,477 Madison Avenue, New York, N., Y. 10022. TheToronto study, entitled SEF Report T-1, Intro-duction to the First SEF Building System (196$)has been published by the Metropolitan TorontoSchool Board, Toronto, Canada.

51

A prototype school using similar design, will bebuilt as a test facility. This will be followed bya full-scale building program. According to spon-sors of the program, actual on-site constructiontime can be cut by almost 50% and total costsavings of as much as 25% c.,n be achieved. Thisconcept will bring about drastic changes to pro-curement -methods and standards. To reap thefullest benefits, changes in the bidding laws willbe required.

ThroughoUt the state, undue emphasis on initialcost, rather than life-cycle cost, was noted. TheNational Council on Schoolhouse Constructionin session at Milwaukee, October 1957, reaffirmedthe principles of true economy in school construc-tion as set forth in its bylaws and a publicationentitled Thirteen Principles of Zconomy in SchoolPlant Planning and Construction. The counciltook the position that isolated instances of ap-parent waste should not be used to imply thatschoolhouse construction, in general, is not eco-nomical. Initial cost is not a measure of lifetimeeconomy. Inexpensive/low quality construction,resulting in high maintenance costs and a shortlife, is wasteful.

The measure of wise investment in a school isdetermined by how well it serves the educationalneeds of the community. The building is only asmall contribt to the entire process of educa-tion. If better methods, up-to-date design, pre-fabrication, or other ways can lower the cost, itis our responsibility to use them.

RECOMMENDATIONS4. The Department of Education should assist

towns to develop and implement the mod-ular systems concept for school buildingprograms.

More money is spent for building design and con-struction than on any other phase of the schoolbuikling program. Because of new educationalconcepts, alternative methods of layout and de-sign, and ever-increasing costs, this area hasbecome most controversial. Present-day methodsare outdated and cannot cope with the problem.It should be recognized that industry has beenplagued with it for years.

The modular systems concept is one good answerand has been applied in some school systemsinitially in California and more recently in Tor-onto, Canada, and Florida. It has been success-fully tested and proven. Much of the earlydevelopment was sponsored by the EducationalFacilities Laboratories of the Ford Foundation.

The modular systems concept reduces school costsby use of standard components which fit and52 59

operate compatibly as a system. These structural,ceiling, lighting, heating, ventilating, and parti-tion components are designed to fit a commonmodule or standard size. They can be mass-produced to minimize fabrication costs. Thedesign-in compatibility reduces on-site assemblytime and labor. The interchangeable nature ofthe components allows classrooms to be easilyrearranged to meet new requirements. Becausethe system is based on standard components,rather than standard plans, the architect is givengreat flexibility in designing the school to meetparticular needs imposed by the site or the educa-tional requirements.The City of Boston, after study, has adopted asimilar approach which will be altered slightlyto comply with local laws and building codes aftera prototype building has established its utility.The Massachusetts Advisory Council on Educa-tion (MACE) has recently sponsored a study ofschool building costs conducted by the Bostonarchitectural firm of Campbell, Oldrich, and Nultywhich includes consideration of the modular sys-tems approach on a state-wide basis.This concept is not intended to eliminate thearchitect, but was developed to standardize ma-terials systems. It is a tool which allows buildingsto be assembled into many shapes and sizessimilar to a simple mechanical toy set. Cost sav-ings in construction can contribute badly neededfunds for other areas of education.

Savings which approach 25% can be realited bythe modular systems approach and field construc-tion time can be cut by almost 50%. In 1969, 38building projects were approved for constructionat a total cost of $115-million. If a minimumsaving of 10% is achieved by this method, annualdollar savings would be well over $10-million.

5. Cities and towns should make early deci-sions relating to new building commitments.

By having each town develop a workable andperiodically-updated long-range plan, voters couldreach a decision on each new school buildingabout two years sooner than at present. Thisrecommendation is considered in greater detailin the Facilities section of Resources for PublicSchool Education.

6. Cities and towns should require the architectselected for a new school building to eval-uate proposed new school building designtechnologies and methods.

A small number of school districts have peoplewho are knowledgeable and talented in the areasof building design and construction. Most are lessfortunate because they do not possess the person-nel, money, or the ability to evaluate cost-saving

design methods and construction techniques.Therefore, the architect selected by each townshould be required to make these evaluationsuntil such time as the Department of Educationcan provide this service. The following typicalareas should be evaluated for possible costsavings:

II' Modular systems construction.

II' Steel framing versus reinforced concrete sys-tems. It is estimated that 10% savings canbe realized through the proper selection ofmaterials and design methods.

So Elimination of as many load-bearing wallswhere possible. Flexibility is gained, andcosts are reduced by as much as $20 perlinear foot of wall.

II' Roofing can involve many methods and de-signs. Improper selection can cause futureexpensive maintenance problems.

Floor covering comparisons should considercarpeting, various types of tiles, terrazzo, andseamless epoxy resin materials. The totallife-cycle cost initial plus maintenance --should be evaluated.

Installation of air handling metal duct sys-tems above ceilings in all new school build-ings. This would serve the dual function ofmake-up air ventilation and future air con-ditioning. Installation during building con-struction is less costly than relocating servicelines and removing ceilings at a later date.

II' Combinations of exterior wall materials. Thearchitectural nature of the material couldvary the price from $25 to $200 per squarefoot. This is an area of significant cost-savingpotential.

II' Reduction of large expanses of windows, andprovision of sun glare shielding in new andold buildings.

II' Lighting systems, including the use of striplighting fixtures installed above egg-crateceiling panels. This is an economical ap-proach to lighting and ceiling cost. It is alsoan effective method of providing even distri-bution of light throughout the area.

T-bar suspended ceiling arrangements. Thisapproach allows easy accessibility to servicethe equipment.

II' Provision of adequate spare for record stor-age, housekeeping and maintenance equip-ment and operations, including racks forsupplies and materials.

GO

II' Design provisions for future building con-nections and expansion programs.

II' Provision of access openings or entrances forlarge service equipment which may requirereplacement or removal at a future date.

Estimated minimum savings of 10% of buildingcost can be realized if proper cost studies aremade in the areas listed. An evaluation of savingsshould be part of the required responsibilities ofany architectural firm. This request should notcost the school system any additional fees. Theannual school building construction cost through-out the state is about $100-million. Thus, a savingof about $10-million per year should be expected.

7. Cities and towns should require the archi-tect selected for a new school building tostudy alternate types of heating and ven-tilation systems prior to completion of thefinal design, and specify high-qualitymechanical and electrical equipment.

,

Each town or community considering a newschool should require the architect to conducteconomic studies of alternate heating and ventila-tion systems to determine those to be incorporatedin the final design. The costs of operating man-power, capital outlay, and maintenance should beincluded in the study,Operating experience for equipment in recentlycompleted school projects should be reviewedprior to preparation of the final design. In addi-tion, adequate provision should be made to pro-vide access to all equipment for custodial andmaintenance staff personnel. This can be pro-vided by involving maintenance and operationpersonnel in the final design.In certain recently completed school projects,some equipment has not been satisfactory., As aresult, considerable time and extra costs in somecases, have been required for necessary modifi-cations or replacements. These, schools wereequipped with inadequately designed heating andventilation systems because minimum require-ments of the Building Regulations for School-houses had not been met. Therefore, specificationsshould be carefully written to provide high-quality mechanical and electrical systems.Simplified systems and controls should be pro-vided and critical services sectionalized for savingmaintenance time and expense. Improperly sec-tionalized heating systems, power services, plumb-ing, and water lines result in costly outages,difficult maintenance, and inconvenience. Properplanning should be given to the routing of lines,placement of shutoff valves, drain facilities, elec-trical distribution, and the like. Prior to comple-tion of the final design, consideration should be

53

given to providing for future addition of airconditioning equipment to the ventilation systems.

8. The Department of Education should pro-vide school districts with experience recordsof school architects.

During the preliminary planning period for newschool projects, infor *iation should be providedto the town by the School Building AssistanceBureau or the proposed Division of School Con-struction and Facilities which tabulates, the ex-perience records of school architects. These datashould include a list of similar schools designedby the architect, the location, date of construction,and the major features as well as the estimatedand actual cost per square foot of the buildings.Inspection of similar facilities, during the pre-liminary planning period, should also benefit theschool districts.Most of the recently constructed schools havebeen designed by competent architects and, ingeneral, good performance has resulted. However,in a few cases, new schools have been designed byarchitects with little or no experierke on schoolprojects. Such schools have required costly con-struction changes to overcome some unsatisfactorydesign features.

9. The Department of Education should createa Division of School Construction and Facili-ties to provide data and technical assistanceon school design and construction, includinginformation on cost 'wing approaches, aswell.us perform the e Aizting functions of theSchool Building Assistance Bureau.

The need for a central source of assistance to thelocal communities has been made clear in pre-ceding discussions. The work load activity in theschool construction field is sufficient to require aseparate division. The proposed division shouldprovide assistance in the areas of financial aid,educational specifications, legal functions, databank, cost estimating and analysis, site planning,building design, and architectural planning.Implementation of this recommendation is dis-cussed in greater detail in the Facilities sectionof Resources for Public School Education.10. The Department of Education should de-

velop procedure manuals for educationalspecifications, building design and construc-tion, site selection, site development, andfinancial assistance.

The majority of school representatives havestressed a need for such reference manuals. Theywould be a tremendous asset and a source ofknowledge to the school districts as well as to anygroup of building planners. The readily availableinformation they abuld provide would save time

54 61

and money on the part of the school districts. Themanuals should be based on detailed statisticaldata, studies of alternatives, method studies,reports, and recommendations from individualschool districts.

The proposed Division of School Construction andFacilities should generate these manuals. Untilsuch time as this division is activated, the SchoolBuilding Assistance Bureau should develop themanuals for educational specifications, site selec-tion, and financial assistance.-

11. The Department of Education should im-mediately implement the provision for statefinancial aid to rehabilitate and modernizeolder schools. .

Considerable rehabilitation and modernization ofolder school buildings has been accomplished inschool districts, particularly in larger cities duringthe past several years. In view of the current highcost of building construction, this program hasresulted in appreciable savuigs when comparedwith costs of equivalent new school buildings. Aninvestment of a few hundred thousand dollnrshas, in some cases, extended the life of a soundbuilding by 10 to 20 years.

Recently, state legislation has been passed tomake state funding available for rehabilitationand modernization of older school buildings. Inorder to implement this aid, specific regulationsfor funding eligibility should be compiled by theSchool Building Assistance Bureau or the pro-posed Division of School Conitruction and Facili-ties. These should be made available to all schooldistricts. The regulations should be coordinatedwith the Building Regulations for Schoolhouses.Qualified personnel should be made available forthe School Building Assistance Bureau to imple-ment state financial aid for a program of rehabili-tation and modernization.When this has been accomplished, many schooldistricts could take advantage of the program.Appreciable savings would result when comparedto the cost of new school buildings.The City of San Francisco recently completed astudy for modernization of older school buildings.This report indicated that savings of up to ap-proximately 55% can be `made, when comparedto the cost of equivalent new buildings. Some ofthe larger school diitirrets- in iMassachusetts havecompleted modernization programs of older schoolbuildings at savings up to about 75%.Present legislation allows one-third of the totalannual allocation of about $45-million appropri-ated for state aid to school construction to be usedfor rehabilitation and modernization. This amountsto about $15-million annually. Assuming this

state aid to cover, on the average, 50% of thetotal cost, the amount spent for renovation wouldbe $30-million. By the rule of thumb citedpreviously, equivalent new construction wouldcost $90-million. The apparent total savings of$60-million would not be fully realized becausethe lifetime of the renovated schools would beless than the life expected of new schools. How-ever, it seems reasonable to estimate that half ofthis, or $30-million, would be saved if themaximum amount of state aid were granted.

12.- The General Court should establish a lintita-*.ion on state financial aid for school con-struction projects.

State financial aid is provided by a formula basedon the approved total cost of construction of eachschool project. However, no limitation has beenestablished on the building construction cost persquare foot. Therefore, a community electing tobuild an elaborate school, with features that raisethe per-square-foot cost above the level to acquirea sound and serviceable facility, is entitled toreceive the same percentage of state aid as onethat cannot afford luxuries. Equity could bereached by setting a ceiling on per-square-footcost above which the state-aid formula would notbe applied. Thus, all towns would be reimbursedequitably, and thoie communities desiring toconstruct more lavish facilities would still be atliberty to do so.The ceiling for application of the state aid formulashould, probably, be multivalued depending onthe type of school project for which aid is re-quested; that is, elementary school, high school,and the like. Additionally, the ceilings should berevised each year to conform with any increaseor decrease in the cost of building construction.This may be accomplished by applying the build-ing construction cost index as published in thequarterly roundup issue of Engineering News-Record. The Building Cost Index for Bostonshould be used to compare the average of quar-terly cost indices of the current year with thoseof the previous year. The percentage changewould be applied to the limitation used for theprevious year to establish the ceiling applicablefor the current year. Thus, establishment of abaiic limitation for state financial aid would re-sult in preventing excessive costs of constructionof future school building projects.

13. The Department of Public Safety shouldupgrade minimum school building lightingstandards to conform with the latest Illum-inating Engineering Society recommendedlevels.

The minimum lighting levels, as indicated in theDepartment of Public Safety Regulations for

Schoolhouse Construction, fall far below the ac-cepted minimums recommended by the Illuminat-ing Engineering Society (IES)..

The following comparison, measured in foot can-dles, between the Department of Public SafetyRegulations and the IES Lighting Handbookillustrates the differences:

lepertmeet, of Mk

Am Safety 1ES

ClassroomsNormal classrooms, study halls, libraries 30 70Manual arts, and drafting 50 100Sewing rooms, sightsaring classes,

laboratory benches, and so forth 50 150

Corridors and stairways 10 20

Auditoriums 10 30

GymnasiumsGeneral 20 30Exhibitions and games 20 50

Cafeterias 20 50

Lighting levels should meet today's standards.This should hold true especially in classrooms,libraries,' and study hall areas. The IES andlighting equipment manufacturers have provenbeyond a question that improper layouts andlow-level lighting outputs cause eye strain andadversely affect a person's effectiveness andproductivity.

The Illuminating Engineering Society Handbookis now being revised and many of the recom-mended lighting levels will increase. Copies ofthe handbook can be obtained from the IES, 345East 47 Street, New York, N. Y. 10017.

14. The General Court should enact legislationpermitting towns to use the credit rating of.the Commonwealth to reduce bond interestcosts.

Most of the towns in Massachusetts have lowercredit ratings than the state itself. Thus, they paya higher interest rate on their bond issues. Theuse of the state's credit rating would reduce theseinterest charges. This recommendation is dis-cussed in more depth in the Facilities section ofResources for Public School Education.

15. The General Court should amend the lawto permit the use of a base bid and alternatespecifications.

The existing law, Chapter 30, Section 39M, whichdeals with buying of mechanical equipment, forexample, heating systems, has been in effect forapproximately three years. During this period,serious deficiencies in the law have become mani-fest. Basically, the effect of the law has placedthe buying decision in the hands of mechanicalcontractors, rather than with the school districtsas was formerly the case. As a consequence, anumber of schools have been built with equip-

55

ment which, although it met the basic intent ofthe specifications, as written in the law, was infact not of a quality high enough to meet the need.In some cases, substitutions have been made bycontractors against desires of school buildingcommittees, architects, and engineers responsiblefor the school design.

There is a provision in this law which allows aschool district to limit specifications to one manu-facturer, However, the procedure is cumbersomeand requires that a motion listing the reasons beadopted by the school building committee and 'recorded in the minutes of the meeting. As a

result, school committees are reluctant to do thisbecause competition is eliminated.

A base bid and alternate specification whichwould allow the building committee to specify onemanufacturer and take alternate prices for othermanufacturers is now illegal under this law. Theprevious law included a procedure for base bidsand alternatives which did create competition.Where differences in price existed, it allowed theowner to decide whether the high-priced itemwas worth the expenditure. Because this law hashad effects inimical to construction of soundquality schools, it shotild be changed.

Facilities Operation and Maintenance System

Cities and towns in Massachusetts have a verylarge capital investment in school buildings andfacilities. Currently, this investment representsapproximately $3.8-billion in replacement value.It is being added to each year by over $100 -million. The useful life of these buildings willdepend to a large extent on proper custodial careand wisely-administered preventive maintenanceprograms. The largest part of the noninstruc-tional school committee budget is spent on opera-tion and maintenance. For this reason, we haverecommended in the section entitled Manpowerthat this subject be a specific responsibility of theproposed Bureau of School Management Services.

For the year 1968-69, total expenditures fo. r

operation and Maintenance by school committeesamounted to $83-million. The largest portion ofthis amount, 51%, was expended for custodialservices as depicted in the pie-chart as shownbelow. In addition to the above amount, about$7.5-million was spent by certain cities and townsfor operation and maintenance.

DISTRIBUTION OF SCHOOL COMMITTEEEXPENDITURES FOR OPERATION AND MAINTENANCE

YEAR ENDING JUNE 30, 1969

CUIST00111.SUTLITS

56

UTILITY STRY,CIS

HEATING

CLYIT001041.SVOYLIfE

MAITITtNAITCt

63

OperationsSchool building operation embraces many diversefunctions. It includes provisions for keepingbuildings clean at all times, lighting them prop-erly, and maintaining the rooms at the propertemperature. In addition, it entails clearing iceand snow from walkways during winter months,mowing the grounds when necessary, and othertasks to provide the best environment for teachersand students. Operation is distinguished frommaintenance, which includes repair of buildingsand equipment.

There are over 3,000 school buildings in the Com-monwealth with a total floor.area of approximately133-million square feet. They are cared for by6,200 custodians at a cost of about $50-million.

All of the school districts visited had their custo-dial services performed by either the schooldepartment or town department personnel asopposed to having it contracted to outside firms.A sampling of medium and large school districts,depicted in the table directly below, showed thefollowing:

UM!District

A

B

C

E

F

G

Weighted Average

Cut per sparefeet, per year

$0.480.410.450.340.600.420.390.430.48

$0.42

As indicated, the weighted average cost in thissampling was $0.42 per square foot, per year.This compares favorably with the national averagefor contract cleaning of $0.57 per square foot.

EVALUATION

From the point of view of custodial care, thegeneral appearance of school buildings coveredin this study was favorable. Even older woodenstructures were clean and well kept although thefacilities showed signs of wear. In a couple ofschool buildings, the students were careless inthrowing candy wrappers and papers on the floor.This was creating unnecessary custodial work.

The operation and maintenance of school build-ings was the responsibility of a town or citydepartment in a few school district's. This ar-rangement should be discouraged, because byplacing responsibility for performing the neces-sary custodial and maintenance duties outside theschool district, a less-than-satisfactory operationresults.

There are practical advantages for performingin-house school custodial work. During the day,a custodian has many responsibilities besides hisjanitorial tasks. If cleaning operations were con-tracted, they would normally be done after schoolhours. Therefore, somebody would have to beassigned for duty during the day. Furthermore,if this day service was contracted, the work mightnot be done as satisfactorily when compared tothat of a person on the school payroll. In addition,it would tend to further increase contract charges.

In the larger school districts, there is usually asupervisor who has the responsibility of directingthe work of the custodians. Frequently, thesesupervisors are former custodians who lack tech-nical understanding of modern heating and con-trol systems, air handling systems, and the like.On the other hand, a few of the new businessmanagers, who are responsible for the operationand maintenance function, have some technicalbackgiound. This should prove very helpful incarrying out their supervisory responsibilities.

A number of custodian supervisors belong toassociations which deal with custodial activitiesand from which they derive good information.These groups include the New England HeadJanitors Association, the Institute of SanitationManagement, and the American Association ofSchool Building Officials. Additionally, a numberof magazines dealing with building operations areavailable. One such magazine frequently notedwas National Custodian. Increased involvementin the associations noted would be helpful to allschool districts. However, membership fees andtravel expenses are usually severely cut in schoolcommittee budget reviews.

From the standpoint of efficient operation, itwould be advantageous if each school district hada supervisor of operation and maintenance who

64

had technical background in the areas of buildingand equipment care. This, of course, can only beaccomplished in districts large enough to justifysuch supervision. In districts where this type ofsupervision is not possible, the head custodiansshould, at least, be provided with a custodian'shandbook.

Some districts have developed their own custodialmanual while others have adopted a standardpublication. The scarcity of inanuals among cus-todians and their supervisors indicates that newcustodians do not have the benefit of basic funda-mentals of their job. The lack of a manual alsodeprives the supervisor or custodian of valuableinformation when problems or questions arise.

Training newly hired custodians is generally ac-complished by placing them with an experiencedsenior custodian. This works well unless thatemployee is not up-to-date on new techniques orproducing up to his capacity.

In one large school district, a study of house-keeping programs was made by a consulting firmto recommend the optimum plan for supervisingand staffing as well as the best operating methods,equipment, and materials. Another large schooldistrict has an in-house training program for allnew custodians. This is a very complete coursewith classroom work and provides instruction inthe proper use of custodial equipment and sup-plies. Work schedules for custodians are carefullydeveloped based on the time required to performvarious duties. The supervisor of custodians holdsregular seminars with his area 'supervisors todiscuss current problems so they can take back totheir custodians new and timely information.These districts, however, are exceptions. In general, the approach to training is inconsistent andimprovement could be realized by a well-organ-ized system.

RECOMMENDATIONS

1. The Department of Education should re-activate custodial training programs con-ducted by the Division of Occupational Edu-cation at regional vocational high schoolsand other locations.

The proper training of a new custodian to providehim with knowledge and skills to perform hisduties efficiently is very important, Today, thereare many different kinds of chemicals, syntheticdetergents, waxes, sealers, polishes, power-drivenfloor washing machines, and polishing equipment.The understanding of these products to attain themost efficient and effective use by custodians mustbe acquired. An untrained employee cannot be aseffective on his job as one who has been schooledin basic fundamentals of his work.

57

There are . over 6,200 custodians in the publicschool districts of Massachusetts. Becausle o1 re-tirements and persons leaving their jobs, a sub-stantial number of new custodians has beenhired each year, To provide the best foundationfor the new man, the school district superinten-dents should take advantage of a custodial trainingcourse that is available through the Division ofOccupatiorial Education of the Massachusetts De-partment of Education. This division is ready toprovide a basic course for custodians at any ofthe regional vocational high schools and otherlocations throughout the state. These courses canbe scheduled during the day or evening to fit theneeds of the various school districts.There are other custodial training programs avail-able. For example, the Custodial Training Foun-dation of Algonquin, Illinois has a new national'workshop program. It is a traveling workshopand teaches the rudiments of housekeeping andbuilding maintenance. Attendance at their one- ortwo-day courses can be arranged through affiliatesof the Foundation in most large cities. Also, theBureau of Adult Education and Extension Serviceof the Department of Education provides a 10-assignment correspondence course to prepareapplicants for the Junior Building Custodians'Examination under Massachusetts' civil serviceregulations.

2. School administrations should improve on-the-job training for new custodians.

Every new custodian should be placed with a headcustodian or someone who has had proper trainingand is adept at instructing others. Hopefully, thenew employee participated in a training coursefor custodians before being hired. If not, he shouldbe asked to enroll shortly thereafter. Additionally,he should have a custodian's handbook to studywork methods during his training period. Thiscould be loaned to him by the school district. It isimportant the_new recruit learns the right way todo his job so he does-not develop_ bad habits whichhave to be broken later.Several large school districts have well-organ-ized in-service training programs for custodians.These include orientation and general instructionthrough classroom work and instruction in properwork procedures u er the supervision of anexperienced custodian.The results of a good raining program are asimportant in a small district as in a large one.Therefore, new recruits should be given a cus-todial training course if possible. It is hoped thedemand for such a course will be sufficient tojustify the Division of Occupational Education inconducting courses for custodians at regionalvocational schools throughout the state.

5165

3. School committees should procure .a hand-book for all custodial personnel.

In most school districts, a newly hired custodianis placed under the direction of a head custodianwho has had years of experience in his job. Thequality of training is determined by the ability ofthe head custodian to convey the techniques ofthe job. This type of on-the-job training of newpersonnel is often excellent but frequently leavessomething to be desired.

If the new employee, as well as his instructor,derived the benefits of a custodian's handbook inthe training process, the important reasons fordoing the job in a certain manner would not beoverlooked. Also, the proper tools and equipmentused for a particular job as well as the best de-tergent, chemical, sealer, or wax would be ex-plained. The new custodian could continuallyrefer to ithe handbook as he becomes familiar withhis job. Additionally, his work schedule could bedevelop, ed by using units of time to perform spe-cific tasks as outlined in the handbook. Referencematerial in the handbook could also be beneficialto the older custodians who may not ,be familiarwith some of the newer techniques' or work-scheduling procedures. There are many hand-books on this subject, and several are listed in thebibliography. Implementation will require a one-time outlay of approximately $12,000.

4. School administrations should improve thequality of custodial supervision.

Closer supervision of custodians in each schoolwill result in better planning of the work sched-ules and correction of poor work habits at anearly itage. It will also hasten introduction ofnew or improved methods for doing the jobbetter and easier.

The supervisor of custodians should be as wellinformed about custodial duties as the custodian

'himself He should also be knowledgeable aboutthe mechanical, electrical, and communicationsystems! of the schools under his supervision toprovide intelligent direction. In addition, heshould keep up-to-date on new developments inthe fields of operation and maintenance to be alertand responsive to them.

The supervisor of custodians should make periodicinspections with the head custodian of each build-ing to ensure the required, level of cleanliness isbeing maintained. He should also discuss anyproblems the head custodian may have to deter-mine ways of improving the operation. If thesupervisor is not thoroughly familiar with allaspects of his job, he should participate in thecustodial training program available from theDivision of Occupational Education.

5. School administrations should instituteschedules for custodians using work-meas-urement techniques.

Efficient custodial personnel are an asset to anyorganization. They will perform their assignedtasks with ease and without wasted effort. Thedevelopment of a custodian's work schedule basedon past practices or actual time taken is not effec-tive. However, work schedules developed byup-to-date time standards for performing variousfunctions make it possible to provide uniformschedules for all custodians and establish fairdistribution of the workload among employees.Also, it sets the standard of performance for newcustodians.

Standard time elements for performing specificduties have been developed by industrial en-gineering studies and are proven in practice. TheHandbook for School Custodians by Alanson D.Brainard, University of Nebraska Press, is anexcellent reference for standard time information.It also sets standards of productivity for secondshift custodians, who are generally less supervised.

6. School administrations should install a sug-gestion system for custodians and mainte-nance personnel.

Suggestion systems stimulate employees-to recom-mend operational changes or improvements thatwould save money: Custodians and maintenancepeople should be able to spot weaknesses inbuilding designs and layouts that would causeunnecessary work in performance of their duties.They are also in a position to develop ways ofdoing their job to save on labor or produce betterresults. Frequently, good ideas are not offered byemployees because there is no incentive. If theirideas could be presented to the superintendent orschool committee with the assurance of receivingconsideration, more good recommendations willbe advanced and adopted.

Usually, a certificate anda small monetary rewardwould result from acceptance of a suggestion.Experience shows the cost of such a programwould be overshadowed by resulting savings.

7. The Division of School Construction andFacilities as proposed in the section of Re-sources for Public School Education,. shouldact as consultants to school districts on build-ing construction to reduce operating andmaintenance costs.

At present, there is no central point where schooldistrict superintendents or building committeescan obtain reliable and up-to-date information oncurrent practices in building layouts and materi-els that will reduce operating and maintenancecosts. Much time and effort is spent by separate

66

building committees to study the, best type offloor for a particular area, composition of wallsand wall covering, size and location of closets forcustodians, and, many other labor-saving features.

In many cases, these comparative studies areduplicated in several school districts. Therefore,an appropriate group should have responsibilityfor providing information on all asnects of schoolbuilding construction. This group Ju ld serve asconsultants to all school districts in recommendingthe most desirable material or equipment to beused under certain conditions. It would keepabreast of new developments and informed on theresults of thcir recommendations. Implementationwould provide a central location where, reliableunbiased information could be obtained. In addi-tion, it would reduce duplication of effort, speedup the decision-making proceis, and help to getthe job finished sooner.

Consulting firms could be employed to make im-partial studies of the application of variousmaterials in school building construction. Forexample, a long-range economic study could bemade of the best type of floors for corridors,classrooms, cafeterias, kitchens, libraries, gym-nasiums, and the like. A more expensive floormight easily be justified if cleaning and care ofits surface is materially reduced.A typical study of this type, The Economics ofCarpeting and Resilient FlooringAn 1° valuationand _Comparison, was prepared by the Industrial..Research Unit, Wharton School ef oinance andCommerce, University of Pennsylvania, Phila-delphia, Pa. 19104. Copies of the report may besecured from this address.Another area to study would be a new techniquefor care of vinyl asbestos flooring in commer-cial installations. This new no-wax maintenancemethod, which shows promise to lower floormaintenance costs by 50%, was suggested by theAsphalt and Vinyl Asbestos Tile Institute. Itwould eliminate the waxing and stripping opera-tion now considered necessary. One company hasused this method in an office building since 1956with apparent success.Implementation costs of $75,000 per year to hiremanagement consultants will be more than offsetby potential annual savings of $1-million. Thesefigures are included in the discussion on Facilitiesin the section entitled Resources for Public SchoolEducation.

8. School building committees should involvemaintenance and custodial personnel in thedesign and planning of new facilities.

The primary concern in the design features of anew school facility is the adequacy of educational

59

st

specifications. All too often, however. mainte-nance and custodial requirements are given little,if any. attention. As a result. poor layouts aredeveloped from the operational viewpoint. thusincreasing the total life-cycle costs of the build-ings. Typical examples include:

Inadequate storage areas which prohibit sav-ings related to volume or off-season purchases.

10. Poorly located custodial rooms which requireadditional walking time when cleaning thebuilding.

Remotely located receiving docks which in-volve extra handling costs. .

Low cost materials (for floors, walls', and thelike) which increase annual cleaning costs.

IP. Poorly located electrical outlets which maketheir use. impractical.

Non-standardized hardware- which require-ss,an excessive inventory of replacement parts.

Buried water and steam lines under the floorwhich make repairs costly.

Sinks instead of floor drains which requireraising mop buckets.

No single school building contained all, of theabove faults. However, these examples representan area of consideration which is, too often,ignored. Custodial and maintenance personnelare most knowledgeable in this regard. With theirhelp and involvement, future operating costs ofa new building can be reduced.

9. School administrations should involve thepupils in the care of their school building.

Pupils can be of help to teachers and custodiansin keeping their school building neat and clean.One example is the system of having the pupilsdeposit their luncheon utensils, dishes, and traysin the designated location when leaving the cafe-teria. In some schools, the last group of studentsto leave the cafeteria place their chairs upon thetables to assist the custodian in cleaning up afterlunch. Such practices should be encouraged.

There are probably many other ways in whichpupils assist teachers and custodians in the per-formance of their duties. If this activity could beintensified by assigning responsibility for smallduties to the pupils, their sense of involvementand pride in the school environment would heincreased. To be most effective, such involvementshould concentrate on pupils who aie least con-cerned with appearance of their school. Thiswould be beneficial from the point of view ofreleasing the custodian's time for more important

60

duties. In addition. it would create an atmosphereof respect for property. Definite action on thepart of school personnel to involve students istimely because of the general concern for a cleanenvironment and conservation of our naturalbeauty,

MaintenanceMaintenance of school property can be defined as"fix -it" type jobs performed in the buildings asopposed. to "clean -up' functions which are nor-mally classified as custodial work. Maintenanceprocedures include functions such as electricalrepair; boiler upkeep; care of the grounds; equip-ment repair; as well as facilities improvementinvolving painting, plastering, carpentry, plumb-ing, and other craftsmen skills.

There is no typical maintenance organization inthe Commonwealth since laws, customs, and re-quirements vary extensively from community tocommunity, For .example, in some urban com-munities, school buildings are maintained by acity maintenance staff (usually part of a Depart-ment of Public Works).; The school department,in these localities, has very little control over thescheduling or costs of required projects. Insmaller towns, however, basic similarities do exist.

In the 1968-69 school year, close to $19-millionwas spent for the maintenance of school facilities.Of that amount, approximately $5- million wasexpended for salaries. The remaining $14-millionwas for contracted services, supplies, and otherexpenses. In addition, maintenance servicesprovided by other municipal agencies totaledapproximately $7-million.

Quite often, the maintenance staff and mainte-nance programs are directly supervised by thesuperintendent _or an assistant superintendentwho has an educational background. In othercases, responsibilities are delegated to an indi-vidual typically titled director of buildings andgrounds, head custodian, or the like. If the schoolsystem has a business manager, he may have theadministrative responsibilities.

Depending on the town's size, the maintenancestaff usually comprises two to five men who nor-mally travel from building to building as theneeds arise. Their capabilities vary and the workthey perform depends on the skills they possessand the size of the job. If they feel that theycannot do theipb,at is normally contracted witha local craftsman or contractor With many func-tions. the principle element of cost is labor.Therefore. any thing which can be done eitherto save labor or make it more efficient should beconsidered.

EVALUATIONThe maintenance function is performed in allcommunities However, its quality and degree ofeffectiveness varies. Furthermore, maintenanceof school facilities ha, over the years. taken aback seat to other school department expendi-tures, The attitude of those involved seems tohave been that limited corrective maintenancewas sufficient Little thought was given to thefuture when major corrective measures wouldhave to he taken In many communities, thisattitude continues to prevail and is nurtured bythe increasing costs of materials, labor, and con-tracted services. Additionally, taxpayer concernis quite often about the curriculum, not theenvironment in which the curriculum is presented.

There are several basic easons fdr the absenceof quality maintenance in the school systems. Insome instances, it is- quite simple.N,The city ortown has not given the schJol department author-ity to maintain its buildings. Therefore, the schooldepartment could not improve maintenance activi-ties. A second reason is that in many communities,the school administrator who is responsible forthe maintenance function has only limited experi-ence in this area. Because he is an educator, mostof his efforts are devoted to education, the areahe knows best. Consequently, the quality of thebuildings is decreasing and costs of repairs areincreasing.

A third reason is the absence of any preventivemaintenance plan. A properly coordinated pro-gram would tend to reduce the more costlyrepair projects by implementing a preventive planinvolving relatively small annual maintenanceexpense.

RECOMMENDATIONS

10. The General Court should amend the law toauthorize school committees in all towns andcities to maintain their respective schoolbuildings.

Several cities have specific departments which areresponsible for the maintenance of all municipalbuildings In most cases, this is nut the mostefficient method Given the amount of moneythese cities indicate they spend on school facilities,the school departments could greatly improve thequality of the educational enviro' ient.

In one ('its, the school buildings were old and ina serious state of disrepati. The city's publicworks department claimed to have spent severalhundred, of thouinds of dollais on school main-tenance. However. there was little evidence ofthis expendituie. Where something was done, the

f8

symptom: not the cause of the problem wasaddressed For example. a missing downspoutallowed- water to seep through the masonry andcause considerable spoilage, chipping, and peelingof plaster and paint After repeated calls forassistance, maintenance personnel came and re-paired the interior wall. Shortly thereafter, thesame wall required more attention. This situationshould have been more wisely managed.

If the school department is responsible for educa-tion of the children, it should also have the re-sponsibility for the teaching environment. Whenthe schools are given this responsibility, theywould be in a position to efficiently coordinatepriorities of a sound educational program withthose of a carefully considered maintenance plan.Having a separate maintenance staff within theschool department would allow for expansion ofthe staffs knowledge of building systems. Addi-tionally,- it would instill a sense of pride by beingresponsible for a specific group of buildings,facilitate coordination of maintenance jobs withthe custodial staff. and promote a higher degreeof efficiency and output. A 2% increase in effi-ciency would produce annual savings of $1.10,000out of the $7- million expended by cities and townsin the Commonwealth.

11. School committees should limit assignmentof maintenance Planning and administrationresponsibilities tb qualified employees.

For the most part, the persons who administermaintenance programs are educators. Althoughthey appear to be exerting a very sincere effort,they have not been sufficiently exposed to orproperly trained in techniques of maintenancemanagement to make their efforts most effective.There are several ways in which this problemcould he solved, Either of the two followingmethods, could he adapted to meet local needs.

First, a person with experience in maintenancefunctions could be hired to fill a newly createdposition. In smaller towns, this solution is noteconomically defensible if maintenance adminis-tration is the sole responsibility. ,However, sucha position could possibly be justified if it were toinclude other nonacademic responsibilities suchas transpoi t anon. purchasing, financial planning.and the like.

A second means would he' to encourage thepresent administrators to participate in and/orsubscribe tiekvarams seminars, publications, orprofessional groups to learn and observe thetechniques and ideas of sound, economical main-tonancc' management methods Maintenance man-agers should be' encouraged to broaden theirexperience and knowledge in the same manner

81

that teachers are required to continue with theireducational credits.

12. School administrations should develop andimplement maintenance management sys-tems which include sound prin:oles ofpreventive maintenance.

Such management systems should be completeentities They would start with a thorough inven-tory or inspection of the fac:lities to be followedby a review of the estimating and schedulingfunctions Further, the programs should be con-tinued to the' point where hey provide goodreporting systems so the process may be per-petuated and improved upon. There are manysystems in use today. For example, the U. SNavy's Maintenance Management Manual is anexcellent refer?nce guide

The purposes and goals of a sound system are to:I...Protect the investment in the facilities.

Prolong the useful life of the I eliding.

I...Promote health and safety.

I...Give the teachers and students the bestpossible environment,

To achieve these goals, administrators, schoolcommittee members. and taxpayers should beconscious of the following:

The quality of the maintenance programaffects the educational program

T' -e maintenance function is as importantas any other function.

se The persons responsible must take pride intheir work.

IP. Service to users of the facilities is of primeimportance.

II...Savings of tax dollars CT" be realized byplanning and cost analysis.

The proposed Bureau of School ManagementService in th., Department of Education shouldoffer assistance in this regard In 1968-69, ap-proximately $5-million was spent by the schoolsfor maintenance labor If efficiency could beincreased from estimated current level of 30'to ;15' t labor sa% mg of approximately $400,000could ,e iealizcd.

13. School administrations should analyze con-tracted services to determine if employmentof full-time craftsmen is justified.

It is not unusual to find ,1 maintenance staff com-posed primarily of men «ith one common skillsuch as carpentry. Thus. 'Ili, prunar fun:tion of.,these maftsmen would be to modify and renovate

62

Ito

existing facilities to create more classroom spacein overcrowded buildings. This is, no doubt, asound etionornic alternative versus contracting forthe' worjobs arethe skills

How ever, the remaining maintenancetypically contracted out since neithernor the manpower are available.

One mus remember that the primary cost ele-ment of a maintenance job is labor. When a jobis contract .d, charges include travel, set-up time,and time to get acquainted with the particularsystem bent repaired In addition, the contractoralso mclu4s a profit in the labor rate as well ason the materials All of these extra costs couldbe avoided if maintenance operations were per-formed by ,school personnel.

A comprehensive revie, f all contractedservicescould quickly tell where avings could be realizedand determine if positions such as electrician,plumber, mason, and the like are economicallyjustified. It might also be found that more thanone such craftsman is required. This could de-velop into an additional benefit of flexibility be-tv -.1.en 'ound preventive maintenance programand tht. êssary nonrecurring repairs. A 10%profit fer mr traeted services plus a 5% increasein eff1cien, will produce savings of about $1-million out of the $7-million expended annually.

14. School committees should develop coopera-tive maintenance arrangements betweencities and towns.

The conclusions reached in analyzing contractedservices could be that additional staffing is notjustified. However, the joint requirements of twoor more towns could justify a cooperative main-tenance staff. Arrangements of this nature shouldbe explored and encouraged and a workable plandeveloped and placed in operation.

15. School administrations should encouragecustodians to perform several minor main-tenance functions.

It is not unusual to find: particularly in cityschool systems, that job descriptions for cus-todian; are so rigid they will not touch any toolsbecause it is "not their job". Such v rkingarrangements are costly. Therefore, custodiansshould he encouraged to make minor repairs andadjustments to door,, windows, furniture:and thelike They are normally among the first to noticesuch faults and their efforts world avoid morecostly future repairs and wasted time Savingsare based upon custodians spending one-half dayper month in each school building in the Common-S ealth to perform minor maintenance tasks AtS4 per hour Ito :skilled craftsmen, this avoids$600,000 in labor costs each year.

Transportation System

Transportation of school children is a large andgrowing operation in the Commonwealth. Theneed for pupil transportation has grown steadilywith movement of people to the suburbs and thecountry, location and building of school systemsat greater distances from populated areas, lack ofsafe walking provisions on many roads, andnecessity to conserve travel time. In fact, thereis evidence of a growing trend towards bussingall children regardless of the distance they residefrom school,

In 1969, about 500,000 pupils. or 35%, weretransported from home to public and privateschools out of a total student population of morethan 1.38-million. The cost of transportation wasover $27-million, representing 2.9% of the totalexpenditures for education. It involved 4,437busses as well as 848 smaller vehicles whichtraveled a distance of about 34.4-million miles,Providing for special education, athletic teams,field trips, and special events added substantiallyto the overall costs of transportation requirements.Laws requiring the transportation of nonpublicschool children have also added to the growth andcosts. In 1969. 9.1';'o of the students transportedwere nonpublic school pupils. Transportationcharges have been rising at an annual rate ofapproximately 11% since 1960.. These increasingcosts stress the necessity for operation of schooldistrict transportation systems in the most effi-cient and eco,-)mical manner possible, consistentwith safety.

Presently, each school district is responsible fortransportation of its pupils. It establishes policyunder which transportation is provided -withinminimum standards defined by law. This resultsin a number of different approaches. Most com-monly, districts contract for pupil transportationwith private operators for a three-year period;the maximum contract period permitted by statelaw. Others purchase or lease transportationequipment and operate their own fleets. Somedistricts, usually in metropolitan areas, contractwith local municipal transit systems for service.Currently, one district has separate contractswith over 24 owner-operators of school busses.

Administration of the transpoi tation systems isthe responsibility of school committees and schoolsuperintendents. In small districts, the superin-tendent may personally administer operations.However, in larger districts, the task is usuallydelegated to a business manager, assistant super-intendent, or stafT assistant Many of the person..nel who administer transportation systems do not

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possess experience or training for this respcknsi-bility, Primarily, they are educators who havebeen assigned the task as an additional dt.ty.Unfortunately, this requires a significant portionof their available time,

EVALUATION

There is little transportation expertise availableat the state level to help the school system ad-ministrators. An exception is the work performedby the Bureau of Research and Field Servicesin preparing a manual of transportation guide-lines and assisting various districts solve theiroperational problems..

To avoid operational and driver recruitment prob-lems, most districts contract for transportationservice rather than purchase and operate theirown systems. In most cases, the cost of contractedservice is higher than the expense of operating anefficient school district-owned fleet. Contractorsmust, pay federal as well as state taxes on equip-ment and supplies purchased and operate at aprofit. This is not the case with school fleets.Bidding for transportation service is not usuallycompetitive. Rarely is there more than one bid -de,r, even though three bids are required. In manycases, several operators divide up a district byagreement./There is need for state assistance in the purchaseof school buses, equipment, and supplies. The

/ Commonwealth should provide minimum specifi-/ cations as well as establish state bid prices and

make them available to the school districts. The/ price paid for busses of equal capacity and specifi-

cations varies greatly from district to district.This is also true of the prices paid for suppliesand parts.

School districts are reimbursed by the state fora portion of the cost of transportation operations.However, the reimbursement le mula, as pres-ently written, provides no incentive for schooldistricts to economize since they are reimbursedfor all costs above a fixed base.There are approximately 400 school districts inthe Commonwealth which are individually oper-ated by school committees, 'and superintendents.These vary from small operations of one bus tovery large operations using over 50 vehicles.The magnitude of the complex and fragmentedpupil transportation problem, which is adminis-tered by personnel who are not necessarily trainedfor the responsibility, results in an inefficient anduneconomical noneducational operation. This oh-

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sorbs an excess amount of educational dollars.Therefore, a method should be devised for com-bining the district transportation systems Intolarger, more manageable units which would bedirected by experienced personnel Additionally,assistance from the state level must be developedif the Commonwealth is to have efficient low costtransportation. The school district administratorsshould be relieved of this time-consuming andburdentome function Recommendations forstrengthening the Department of Education areIncluded in the section on Resources for PublicSchool Education.

A system is defined as an arrangement of relatedor connected functions to form a unity or organicwhole such as a group of transportation linesunder a common management, Pupil transporta-tion in the Commonwealth does not possess unitybecause t: e individual school districts must,according to law provide service in their area.They do so by various means. In many instances,this results in higher costs than would be theease if transportation were provided under anefficient system utilizing expert administratorsat the state and area level. A chart which de-picts the proposed pupil transportation organiza-tional relationships is illustrated to the right onthe following page,

RECOMMENDATIONS

1. The proposed Bureau of School ManagementServices should provide expert and timelyguidance to enable local districts to imple-ment an ef7ective and -economical transpor-tation system.

As stated in the section on Resources for PublicSchool Education, the establishment of a group ofexperts on transportation within the Departmentof Education is necessary to provide efficientmanagement of pupil transportation systems inthe Commonwealth.

2. School committees should establish coopera-tive arrangements where transportation isrequired for special purposes such as voca-tional and/or technical schools, and the like.

Individual school districts which supply transpor-tation for pupils to regional vocational schoolsand the like', often traverse other areas and areproviding separate' transportation to the sameschools. Through cooperative agreements, fewervehicles could he used to transport more than one'districts' pupils at a resultant savings in cost tothe' taxpayersMany financial advantages have' been gained bythose' districts where coopelatie arrangementswere made for sham mg the same transportationfacilities.

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3, The Department of Education should de-velop bidding forms and procedures for useby school districts.

As Indicated in the section on Resources forPublic School Education, use of standard formsand methods will allow a technically complete andaccurate contract to be written. Additionally,they will provide a base .from which meaningfulcomparative data may be drawn. The schooldistricts will then be able to evaluate the cost oftheir transportation service with other schooldistricts and thus become fully aware of problemareas.

AdministrationThe routing and scheduling function for pupiltransportation is usually directed by the Issistantsuperintendent, business manager, or the schoolsuperintendent., Such routes and schedules areestablished manually from pupil, lists, knowledgeof the roads, and experience. It is customary fora conti.,tor to cooperate with the delegatedofficial when a contracted service is used, Theseroutes and schedules are often reviewed annually.However, in scattered districts the routes are leftunchanged for the duration of a contract withoutregard to shifting pupil populations.

In some cases, the contractor is allowed to estab-lish bus routes and schedules based on a pupillist and school hours. Many communities staggertheir school hours in order to allow more thanone trip per bus.Pupils are normally picked up at collection points.Where a door to door program is operated, it wasinstituted either through an administrative deci-sion based on road and traffic conditions orparental pressures. Relatively fe% susses carrypupils to more than one school on any given trip.Complaints from parents are normally telephonedto the school principal and are usually referredto the superintendent's office for disposition. Typi-cal complaints include late bus arrival, allegedroute inequities, bus conditions, driver or pupilbehavior, and other real or fancied problems.Placating late bus complaints consumes muchtune in the superintendent's office during incle-ment days. Being able to pass many complaintson to the contractor is a reason given by severalsuperintendents for not operating their ownbusses. Despite the fact that the school depart-ment is responsible for transportation of children,not all contracts provide the school administratorwith authority to reject a contractor's driver.Regulation of pupil conduct on the bus is gen-erally recogniied as a function of the' schooldepartment. However, this responsibility is turnedover to the contractor in many districts and is

PROPOSED ORGANIZATIONPUPIL TRANSPORTATION ORGANIZATIONAL RELATIONSHIPS

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ignored as much as possible by the school'sadministration. In many places, rules for pupilconduct are not publicized and/or enforced.Additionally, some school committees do not backup the disciplinary measures of the school staff.Many disciplinary reports are verbal and thepenalties are not published. Very few districtsutilize monitors on busses. Those that do, utilizethem to enforce rules of safety on busses usedfor transportation of elementary school children.

EVALUATION

ihe initial make-up of bus routes and schedulesis a trial and error exercise performed by schooladministrators such as superintendents and busi-ness managers who have little expertise in suchactivity. The routing network is then reviewedand modified annually. While spotty, the resultsare generally good although further efficienciesare possible.The first few weeks of the school year are spentsmoothing out any transportation problems sothey can be ignored for the balance of the year.Because routing and scheduling is a manualoperation, the alternatives that can be investi-gated are severely limited. In fact, most routesand schedules are not changed from year to yearuntil factors such as overcrowding of busses or alarge new subdivision requires attention.One of the most significant determinants of routeefficiency is the number of bus stops required.

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Door to door pickup, or use of many/collectionpoints for reasons other than safety can'materiallyraise the cost of bussing. These factOrs increaseroute time and wear and tear on the bus. Thiscould lead to reducing the pupil load per bus tokeep the route time within acceptable limits.

In many cases, parochial school requirementshave been superimposed on the public schoolnetwork with no attempt made to integrate re-quirements. Such action results in duplicationof routes and underutilization of equipment.

Information on routes and schedules is oftenbroadcast or published by the local news media.

-At best, the entire structure is mimeographed andgiveh to every pupil. Each student must thendetermine his own assignment. Under currentoperating procedures, individual assignments andschedules would be extremely costly.

Complaints about bus service are to be expectedunder any system of operation. At present, theyrequire the superintendent's office to spend fromone to four man-hours per day to provide answers.Many contracts do not include clauses whichallow the school department to police busses anddrivers. Thus, the superintendent is unable toset and enforce standards. School managementofficials allow the superintendent to transfer com-plaints to the contractor. However, this tends toincrease the number of complaints when con-tractors fail to take corrective action.

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The administration of rules for pupil conduct onbusses suffers from inconsistency and a lack ofpublished information The most effective systemsof controlling pupil conduct are based on printedrules which are issued to' each pupil and senthome to parents. The other extreme is repre-sented by the district which places responsibilityfor maintaining discipline on busses with thecontractor and then refuses to take action. It isnormal for these districts to complain that pupilconduct is not as good as it should be, The lackof written policies and rules leads to inconsistenttreatment of conduct problems Additionally, itputs a burden on the contractors as well as theprincipals to set policy.

RECOMMENDATIONS4. The Department of Education should develop

computer-assisted routing and schedulingtechniques for use by the school districts.

This would be a function of the proposed Bureauof School Management Services. In the interim,local districts can improve, effectiveness of theirrouting and scheduling by forming large cooperat-ing units. This will enable the districts to hire afull-time transportation supervisor who wouldbe responsible for the function.

It is estimated that a substantial reduction inbusses would be accomplished if the most efficientsystem is utilized. An attainable goal would be a5% reduction. This would generate savings ofabout 8480.000 per year after data processingcosts are deducted.

5. School administrations should establish cen-tralized student pickup locations unlesssafety considerations dictate otherwise.

The use of established collection points has thefollowing advantages. They will help to:

Minimize route miles.

IN. Diminish time consuming stops.

Load the bus as soon as possible.to. Lower student travel time.

*Reduce weal and tear on busses, particularlytransmissions and brakes.

Pupils should walk to their school bus A distanceof up to one mile is not unteasonable if otherstudents are expected to walk two miles school.

6. School committees should include a provi-sion in all contracts giving the school depart-ment authority to set the conditions of busand driver behavior.

This contract provision would allow the schooldepartment to force the contractor to clean up a66 "!43

bus, remove a driver, or take other action toremedy situations leading to complaints. Also,existence of the agreement would tend to makethe contractor more cognizant of these and otherpressing matters.

7. School administrations should designate atelephone number and a person to whomparents can call to obtain bus informationor register complaints.

The practice of parents calling school principalsto register bus complaints results in duplicationof effort. It causes unnecessary referrals sincethe necessary knowledge is usually available fromthe person responsible for transportation. Whileprincipals should be advised as soon as possibleof any delays or changes in schedules, they shouldnot handle complaints. The appropriate name andnumber should be publicized and sent to theparents. Thereafter, all complaints should bereferred to that person. This will provide con-sistent treatment of complaints. In addition, itwill provide the transportation administrator withan accurate picture of parental concern.

Appropriate information should be incorporatedin any pamphlet that is directed and sent toparents and students explaining the transporta-tion system, rules of conduct, and administrativeprocedures.

8. School administrations should issue writtenrules of conduct to pupils and parents everyyear and post the regulations in each bus.

It is impractical to expect anyone to obey unpub-lished rules. However, the rules should be ofsuch nature that the school administration canand will enforce them. A few unenforceableregulations will weaken their execution. Class-room time should be taken as required to ex-plain all rules and penalties to the students. Apamphlet should be issued which would includethe rules of conduct as well as the telephonenumber to be called to ask questions or registercomplaints.

9. School administrations should require writ-ten reports of rule violations from busdrivers as well as establish formal reviewprocedures.

In order that discipline can be consistent andsupported later, a report form should be sub-mitted by the bus driver to the school superinten-dent's office. The superintendent would thenforward this report to the appropriate principalfor perusal. The action taken should be recu'dedon the report. A copy would be retained by theprincipal and another returned to the superin-tendent's office Then: the pupil involved shouldbe notified and advised of penalties for this and

any future violations. The notations on the reportcould be used if future charges are received orquestions as to the violation are raised.

The driver submitting this report should beadvised of its disposition. A time limit of 72 hoursshould be set for replies.

Contracted ServicesContracted services for pupil transportation dur-ing the 1968-69 school year accounted for $26-million, or more than 90% of total transportationexpenses. Over the last several years, such costshave been increasing at an annual rate ofapproximately 11%.

Transportation contracts have been signed withpublic carriers, municipal carriers, and priVateindividuals. As such, the administration of con-tracts for pupil transportation consumes a signifi-cant portion of time and energy of designatedofficials. Bus contracts range from an agreementto lease one bus to a fleet of more than 50.

Contracted pupil transportation is, in itself, alegal agreement which is drawn up by theschool superintendent or a member of his staff.Nominally, it stipulates terms and agreementbetween the school committee and the carrier.

Contracts usually specify the route, school, pupilpopulation, or mileage. They are required by lawto be advertised for bid purposes. Bus servicemay be provided through contracts with bus-fleetowners, individual owner-operators, transporta-tion companies, or public transit systems. Pay-ment for regular and/or additional busses maybe based on a per mile, per route, per pupil, perspecified time. or a combination of these factors.

F:e:d trips, eaucational and scenic tours, athleticevents, and special purpose accommodations maybe bid separately or in addition to regular pupiltransportation requirements.

Transportation for handicapped students may alsobe bid separately or negotiated between thesuperintendent and the parent involved. Often,a contract with a local taxi service is drawn upto provide transportation for this group. In sev-eral cases, a school district may own a smallvehicle to provide bussing services to pupilsrequiring special education. However, it mayform a cooperative arrangement with surroundingdistricts to furnish such transportation.

EVALUATION

Bus specifications, for the most part, are notdirectly controllable factors in contract services.This is due to the fact that carriers are required

by state law to meet a certai minimum standardof safety, mechanical, and p ysical specifications.A problem relevant to 90% of the school districtswhich contract for pupil transportation is theconstruction of bid requests:, These encompassnot only bus specifications, but sound businessand legal aspects that provide the district withadequate transportation services and assurancethe contract is binding and enforceable.

In many instances, effective bidding on bus re-quirements is nonexistent because several quali-fied carriers are not available in the town ors4eol district. In a significant portion of thes#11er school districts, contract pupil transpor-taiictn is negotiated with owner-operated carriers.Thus, each route is the responsibility of anindividual who owns and operates his bus. It isnot surprising to find these owner-operated sys-tems producing the total income for the familyinvolved.

An overall analysis of the administration of con-tract services associated with pupil transportationindicates it is handled adequately, With assistanceavailable from a central committee or staff locatedat either the regional or state level, local schoolcommittees and superintendents could, however,construct, bid, and analyze bid requests moreeffectively to obtain better transportation systemsat lower costs.

RECOMMENDATIONS

10. The General Court should enact legislationto enable and encourage school committeesto consider and negotiate bus contracts forperiods of longer than three years.

Contractors may consider subr"'ng lower bidsfor transportation systems if longer write-offperiods were available. Per year costs, includingdepreciation, would be less over a five-year periodversus three years.

For example, assume a school bus costs $7,000.After three years, it has a residual value of$2,000 and the depreciation is $5,000 or $1,667 peryear The same bus, with a residual value of$1,000 after five years, would have depreciatedat the rate of $1,200 per year Thus, the differencein annual depreciation between three and fiveyears would be $467 per bus. Assuming thisamount could be saved on the 3,600 contractedbusses, annual savings of about $1.7-million arepossible.

11. School committees should require perform-ance bonds as an integral part of everyrequest for Bid and Transportation Contract.

Performance bonds will lend assurance to theschool committee that transportation services will

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be provided during the life of the contract regard-less of the ability of the carrier to provide it.These bonds should be on an annual basis. How-ever, the contractor should not be expected toprovide, a 100% performance bond for the entirecontract period. Nevertheless, the district should,because of necessity, be primarily interested incovering itself until other arrangements can bemade.

Owned and Operated FleetThe reimbursement formulas in Massachusettsfor pupil transportation provide no incentive forschool districts to economize on these costs. Thus,school administrators tend to follow the courseof least resistance. In practice, more than 90%of the Commonwealth's districts contract forpupil transportation services. This leaves a smallpercentage which own er lease bus fleets. Nation-wide, the situation is reversed as public ownershipapproaches 80%.

Out of approximately 400 school districts, onlyfour lease busses and 31 own their busses. Of thesubtotal, 18 districts contract for pupil transpor-tation using their own busses for field trips,athletics, and the like. This leaves 17 districtswhich manage their own bus fleets and employdrivers and maintenance personnel.

In districts which do operate, their own transpor-tation systems, a wide variance exists in pricespaid for supplies purchased. For instance, thecost of gasoline varied from $0.193 to $0.294 pergallon. Except for gasoline, most districts do notadvertise for bids. Other items purchased include:

Prices PaidNiel Lew

Oil (per quart) $ 0.65 $ 0.125Antifreeze (gallon) 2.50 0.99

Tires (9:00 x 20) 90.00 43.00

Batteries 75.00 17.00

Similarly, in vehicle maintenance, no uniformpractices exist. About 50% of districts providetheir own maintenance while others use municipal,or private maintenance facilities.

EVALUATION

Independent studies commissioned by variousschool districts have concluded that costs to thecommunity would be reduced if it owned andoperated a pupil transportation system. Otherstates have followed the lead of South Carolinaand North Carolina where state-operated pupiltransportation systems produce dramatically lowper-pupil-costs. In Massachusetts, the cost-per-pupil for transportation in the 1967-68 school yearwas $51.46. In South Carolina it was $19.38, andk.1.53 in North Carolina.

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; 4.3

It is recognized that conditions in Massachusettsdiffer from the areas mentioned. However, theevidence is conclusive. A great amount of moneyshould be saved through public ownership andoperation of fleets of busses for pupil transporta-tion. This is true where fleets of approximately50 to 250 busses, possibly to serve more than onedistrict, can be utilized.

RECOMMENDATIONS

12. The Department of Education should en-courage the establishment of area transpfr-tation districts in Massachusetts.

Presently, each school district is responsible 'fradministering its own transportation operation.Because of high costs, strong efforts should bemade toward combining individual school districtsinto larger area transportation facilities. Addi-tionally, the responsibility for transportation oper-ations should be delegated to smaller but morequalified groups of administrators.

Area directors, operating under guidelines estab-lished by the state and in cooperation with theschool district administrations, should evaluatethe school district operations. In addition, theyshould assist with operational matters, and formu-late long-range plans for achieving low cost,improved. service consistent with maximum safetyof operation. This should be done in full accord-ance with individual needs of each school district.

These directors should be responsible for func-tions such as contracting services, purchasing ofequipment and supplies, operational procedures,maintenance of vehicles and facilities, driver re-cruitment and training, scheduling and routing,safety programs and performance, as well asoperating costs and reports.The ultimate objective should be fleet ownershipand establishment of adequately staffed areamaintenance facilities. Both North Carolina andSouth Carolina have done this. They providegood examples of efficient, low-cost regionalizedpupil transportation at $17.53 and $19.38 per pupil,respectively, In Massachusetts, the per pupil costfor the same year was $51.46. The average cost inthe United States is $46.95.

About 80% of all school busses in this country areowned by schcill districts; whereas approximately10% are publicly owned in the Commonwealth.The higher cost of public transportation in Massa-chusetts reflects some of this difference.

The cost-per-pupil of transportation in Massachu-setts could be lowered at the very minimum tothe national average. This would result in areduction of 8.7% and represent an annual savingof approximately $2.5-million.

13. The General Court should amend the lawto limit state reimbursements to school dis-tricts for pupil transportation costs.

The state reimbursement laws do not set amaximum cost for pupil transportation over whichthe districts would not be reimbursed. Thus,there is no incentive for the districts to negotiatethe lowest contract price for service rendered norto achieve maximum efficiency in the case ofowned and operated systems. Bids and contractsshould be analyzed and approved at the state levelwith the objective of providing pupil transporta-tion at a realistic cost per pupil. In these caseswhere costs exceed an established maximum for'either contracted services or costs for new busses,the school districts should be accountable for theexcess costs.

Transportation of the HandicappedHandicapped students are transported to a num-ber of locations, both within and outside theschool district. The number of pupils conveyedto any single destination from a district variesfrom one to 20, with the majority being less than10. Many districts contract for such transportationwith local taxicab companies. Others reimburseparents, provide their own, or contract with a buscompany supplying day school transportation ofthese students.

Transportation of handicapped children is usuallya minor part of the duties of the district transpor-tation administrator. However, the per-pupil-costis substantial. It varies from $115 to $2,000 peryear; the majority reporting costs in the $200 to$400 range. This is the result of -mall numbersof students being transported relatively long dis-tances. Coordination between districts is limited.

EVALUATION

School districts in Massachusetts are not provid-ing transportation for handicapped students in themost effective manner because efforts are frag-mented. Due to the fact that each district issending a few students to a number of locations,the transportation network required for any par-ticular destination is not coordinated. This resultsin costs to individual districts which are higherthan necessary.

RECOMMENDATION

14. Agencies responsible for education of handi-capped persons should also be responsiblefor their transportation.

The agency providing the educational service.should be given responsibility for arranging thetransportation requirements of its students. Suchaction will make the operation similar to othertransportation functions in that movement of allstudents arriving at a single location will becoordinated by one office. This would allowdevelopment of a coordinated transportation net-work to serve each facility. A further benefit ofthe plan would be the continuing application ofexpert knowledge to their transportation needs.The simplest-method-of `funding is for the Com-monwealth to reimburse the coordinating agencydirectly for 100% of the cost. However, thiswould require legislative action since the currentreimbursement is 50%. Necessary legislationshould i:e introduced by the Department of Edu-catit/., ,ne Department of Mental Health, and theDepartment of Public Health. A less desirablemethod of funding would be for the agency to billthe participating districts based on pupil-milecosts plus special charges for lift-equipped vehiclesto convey the severely physically handicapped.

Procurement System

A recent survey of more than 200 corporationOfficials reveals that 89% believe procurementperformance would improve if responsibilitieswere more clearly pinpointed and capabilities ofpresent employees were developed to a higherlevel. In th;,.. Commonwealth of Massachusetts,$70-million are spent annually for educationalmaterials. Additionally, $139-million are allocatedfor purchased services and $115-million are pro-vided for new,_, school construction projects.

Influenced by school district size and local politics,school purchasing authority varies tremendouslythroughout the state. The personnel responsible

for spending large sums of money range fromnumerous individuals who grew up with thesystem to the occasional professional who isconcerned with procurement as well as all areasof school business management.

With occasional exceptions, formal procurementpolicies and procedures are virtually nonexistent.The lack of communication among districts andthe state purchasing officer greatly affects poten-tial cost savings from the function. The qualityof the procurement inventory management systemas a whole, differs throughout the various schooldistricts of the state. In general:

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Supply needs are identified by individualschools or departments. There are few plansto organize this process in order to distributeprocurement work load throughout the year.

Requirements are consolidated centrally.However, accurate records are rare fromwhich to question particular needs or balancevarious requirements among schools.

Bid laws, which vary from city to city indollar level, do not reflect current costs ofmaterials. Often, items are bid in the samemanner, regardless of complexity or costs.

Bid notices are placed in newspapers by cityofficials or the school superintendent's office. Mostoften, specifications are prepared by the user orthose who have time. Consequently, specificationsvary in quality and completeness. Records ofsupplier performance or evaluation are rare.Procedures are usually developed by someone inthe superintendent's office and distributed througha district with appropriate instructions.

EVALUATIONWide differences in the procurement function areexpected because of school district resources.However, variations in basic procurement princi-ples and practices across the Commonwealth pointout the need for improved understanding of whatan efficient system must contain, regardless ofbudget or size.There is a lack of clear-cut authority and re-sponsibility between school administrations andschools. This results in inadequate specificationsand poor communication with little or no follow-up of purchases. It was noted that:

The personalities involved affected efficiencywherever a town or city administration isinvolved in school procurement. The effortis, at best, diluted and considerable frictionoften results.Procurement has been downgraded as amanagement function. This was evidencedby clerical solutions rather than concentrationon supplier evaluation, cooperative purchas-ing, and quantity consolidation.Communication about prices, suppliers, newitems, unique systems, or improved purchas-ing techniques between districts are informaland limited.Procedures are developed for clerical needsrather than providing controls and informa-tion necessary to make procurement decisions.Most schools approach the market at the sametime and thus work unnecessary hardshipson suppliers. 7

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Bid laws, in some cases, require bidding atridiculously low dollar levels which do notrepresent current costs and price levels.

Specifications for similar items vary. In manycases, they are also incomplete and do notmeet performance levels desired.

Internal control of supplies and materials ishaphazard.

Methods of payment and invoicing are slowand cumbersome. No consideration is givento the size of purchase.

There is no single individual at the state levelto whom business officials can turn for leader-ship in the area of purchasing.

Very few districts have investigated the useof open-end or requirements contracts.

In larger districts, little thought is given todesigning a procurement system which couldeventually utilize a computer.

Prices for similar items differ from com-munity to community.

Because of the lack of communication, it isvirtually impossible to effect standardizationon commonly used items.

With few exceptions, purchasing people donot take leadership and provide users withinformation on lead time, available sourcesof supply, competitive brands, or systems.

Practically all business officials would wel-come cooperative procurement assistance andstate contract aid.

Most 'business officials would use a pur-chasing manual which detailed the areas ofspecification writing, inventory control, andnegotiations.

It is doubtful if negotiation is used. Tech-niques of establishing correct prices arerestricted to three quotes or bids.

There are some follow-up or expediting systemsin use. However, most districts ignore vendorcontacts unless an emergency develops. Incomingmaterial is normally checked by a person in thereceiving school. These materials are stocked inmany locations and little control was evidenced.Payments to suppliers often lag due to lengthyinvoice approval cycle. As a result, vendor dis-counts are lost in many instances.

A well-organized purchasing system in eachschool district should result in streamlined andefficient operating methods. However, it will notnecessarily produce substantial price reductions

for goods and services. Collectively, school dis-tricts represent the largest single dollar purchas-ing source in the state. Individually, they arepowerless to effect quantity purchases. Therefore,the Task Force recognized both needs by prepar-ing a school purchasing manual to answer day-to-day operating needs.

RECOMMENDATIONS

is The Department of Education should de-velop a uniform purchasing system for useby school districts

A sound business system will integrate and organ-ize a series of tasks or objectives which enablesmanagement to fulfill its purpose. Throughout theCommonwealth, each school district performs thefive basic procurement functions of requisitioning,bidding, purchasing, receiving, and payment. Themanner in which these roles are performed oftenproduces inefficient results.

It was recognized early that a need for practicalassistance existed in the pi ocureinent field. There-fore, a manual was prepared to outline a systemwhich a vast majority of the districts could adoptwith benefit. It might be considered as an interimsystem and a step toward :omputerization. Properuse of this operating manual should yield man-power savings and form the _basis for uniformreports. In addition, it will produce more usahlemanagement data on a state-wide basis. Includedin the manual are a number of subsystems which,if adopted, would simplify clerical processing.Certain proposed areas include:

A "small purchase" system. Since more than500 of all purchasAc other than annualorders, are for low-dollar-value items, a short-cut system for handling them was developed.Adoption of this system will reduce clericaleffort to a considerable degree.Development of uniform procurement formsincluding purchase requisition, purchase or-der, bid request, request for quotation, blanketorder release. and small purchase order sys-tem. Use of these forms on a state-wide basiscould result in savings in printing costs.An open-end or blanket order approach topurchasing. Adoption of this system willsimplify the procurement function.

Other suggestions for improved operation are::

Establish a signature approval system forpurchase orders and invoice payments basedon dollar amount involved. In most districts,the same procedure IS followed in preparationof a purchase order and payment thereofregardless of the money involved. Modern

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purchasing techniques delegate responsibilityfor these actions to lower levels.

Most school districts have four levels ofauthority which could be responsible foraction. In the area of purchase orders, thehead custodian, lunchroom supervisor, andschool principal should have approval author-ity to $50. The business manager or assistantsuperintendent should be delegated approvalauthority to $200. Approval authority up to$500 should be given to the superintendentand the school board should have approvalauthority for purchases over $500. In thearea of invoice payment, the business man-ager or assistant superintendent should haveapproval authority up to $500. The superin-tendents should be granted approval authorityto $2,000 and the school board given approvalpayment authority for invoices of more than$2,000.

A standard competitive quoting and formaladvertising procedure. All school districtsshould be permitted to adopt the $2,000 ax-imum limit for public advertising 4nd writtencontracts as prescribed in the Acts of 1967.Often, the costs involved in the bid cycleoffset any potential savings. In addition, in-flation and rising prices have lowered thevalue of the purchasing dollar, For purchasesunder $2,000 in value, oral or written com-petition would be required. Further, allpurchases should be fully documented as toselection of source and justification of price.

Local interpretations occasionally are sound.However, in the overwhelming number of schooldistricts, large savings can be attained throughstate-wide standardization of these forms.

2. The Department of Education should createa position in the Bureau of School Man-agement Services to coordinate purchasingactivities.

This individual will assist all school districts incarrying out decisions of the continuing purchas-ing committee. In addition, he would provide thecontinuity needed for effective committee opera-tion. One significant contribution this specialistcan offer is to coordinate procurement informationamong school districts in the Commonwealth.Finally, he will provide the initiative and direc-tion necessary for special studies, reports, andother committee needs.

Qualifications for this position should include adegree in Business Administration, and a min-imum of seven years professional purchasingexperience.

71

At present, each school district is operating com-pletely independently in the area of purchasing.They are not aware of the availability of statecontracts and, in many instances, not cognizant ofprices being paid by neighboring communities foridentical items. In an area involving technicalknowledge, organized methods are required todisseminate information of a practical nature.

Therefore, a publication devoted to procurementshould be developed under the guidance of thecontinuing purchasing committee, and issued ona monthly basis to all school districts. It shouldreport the state-wide effort at implementing therecommendations of this report. Furthermore, thispublication should report on new products, printspecifications, list surplus school equipment forsale, as well as print brief articles on good ideasdeveloped in local school districts.. It should alsocontain a summary of each meeting of thecontinuing purchasing committee.

3. School committees, with assistance from theDepartment of Education, should developcooperative purchasing on a regional 'oasis.

The advantages of developing this activity on aregional basis are twofold. First, there would bea reduction of cost through a single advertisingand bidding procedure covering a number ofschools. Second, lower prices on procured ma-terials will inevitably result fcom . the combinedvolume. The suggested procedure would resultin a contract to a bidder on a regional basis. Then,each school district would place purchase ordersdirectly with the vendor at the award price.

Although the practice is common in other statesand legislation in Massachusetts permits coopera-tive buying between political subdivisions, onlyone significant example of such cooperation wasnoted during the study. This is an excellentillustration because it recognizes the rapidly ex-panding field of multi-sensory conununications.Unlike textbooks, items such as film libraries,loops, tapes, and sensory bits are unique andexpensive. Consequently,, utilization is limited to

sporadic use. Under the leadership of ProjectSPOKE. nine Massachusetts school districts sharea $100,000 film library. Approximate savings of75( are realized through central purchasing whencompared with commercial costs to memberschools contracted separately. Not included inthese savings is the availability of expert trainingaimed at the student's total learning process.Another example of a cooperative purchasingeffort was developed in Bergen County, NewJersey. The county, operating under permissivelegislation recently offered a cooperative biddingprocedure to its 55 municipalities and 50 schooldistricts. Each of these units has joined the pro-gram on a voluntary basis, maintaining the rightto drop out if they wish. None has done so.Consideration of a tighter form of organizationwas discussed but rejected. Advocates of theBergen County system state it is the 'spirit andnot the letter of the law which gives life to theprogram. The cooperative effort was started on asmall scale with one commodity. When no prob-lem developed, other items were added. At thispoint, annual savings of $100,000 have been ob-tained. Estimated savings of $500,000 per yearwill be realized when all possible items arepurchased in this manner.

Under the program, the activity leadership islimited to bidding and control preparation. Eachlocal purchasing specialist buys directly from theselected vendor. The county purchasing agentconsiders the success of the program is due topersonal involvement of local purchasing peoplein the program.

Substantial savings can result from The 'organiza-tion of all school districts into a number ofregional buying groups in a similar manner. Asurvey was made` f 70 school districts coveringa number of supplies. The data are shown in thetable below, and the range of prices for each itemis large. This results from a combination ofvariation in specifications, volume, and buyingacumen. As the table indicates, if all schoolsrepresented in the survey purchased at the low

COST ON SELECTED ITEMSINDIVIDUAL VERSUS UNIFIED BUYING

High

PriceLow

PriceWeightedAverage ---

TotalCost

LowPriceCost Sarin

PeltedSaving

Spirit duplicating paper $099 $070 $0,806 $138,302 $120,171 $18,131 13.10

Construction paper 122 0.78 0 879 18,285 16,222 2,063 11.28

Mimeograph paper 1.15 011 0 842 28,510 24,039 4,471 15 68

File folders 2.00 1 21 1 432 30,009 25,358 4,651 15A9

Chalk 1.13 0.79 0.942 2,987 2,504 483 16 17

liquid floor cleaner 3.40 127 2 167 34,645 27,370 7,275 20.99

Floor wax 3.85 2 00 2 813 57,257 40,712 16,545 28.89

Fluorescent bulbs 21.60 10.80 13 505 38,247 30,585 7,662 20 03

$348,242 $286,961 $61,281 1 17.60

Ie../ IA t,

72 .-,

price there would have been a saving of 17.6 ?.Extending this saving to all office, teaching, cus-todial, and maintenance supplies purchased wouldresult in annual savings of about S4-million.

It can be argued that all supplies could not bepurchased through a regional organization. Thisis probably true and, to some extent. the savingsare overstated. However, it is also true that toobtain full savings, school districts which havenot given much consideration to quality grada-tions may want to turn to utility grades of somesupplies.

On the other hand, it is very likely that savings,as large as they seem to be. are actually under-stated. The low prices have been obtained bysingle school districts. If these items are soughton a regional basis, it would be reasonable toassume that bids will be lower than the ones inthe table.. Consequently. vendors will have to bemore competitive in a larger scale biddingsituation.

The problem of advancing toward a completeregional buying system is considerable. It wouldbe highly desirable to start on a test basis withthe formation of a pilot group. A number ofcontiguous communities could get together andselect one commodity and prepare a specificationfor that item which is acceptable to all members.This could be bid and a contract awarded. If theresults are satisfactory, the program can be ex-panded into additional regional groups and otherproducts.There will be a number of problems to solve;development of the system for accumulatingvolume requirements. method of sharing adminis-trative and advertising costs. who will sign thecontracts, and the like. The availability of com-puter time would be extremely helpful as theprogram develops. For these reasons, the con-tinuing purchasing committee should he repre-sented on the pilot group and the aid of thespecialist in purchasing see vices at the state' levelbe obtained. In addition, a representative fromthe State Purchasing Division could be veryhelpful. On a long-range basis, the state shouldbe divided into regional committees with everyschool district represented Responsibilities ofthe committees would be to:

low Select commodities for cooperative purchase.

low Prepare specificatiors for these commodities.

low Accumulate the volume requirements andshipping points.

low Advertise for bids.

low Award contracts.

low Issue copies of the contract to all members.

SO

low Notify the purchasing specialist in the Bureauof School Management Services of actionstaken, for inclusion in the monthly newsletterfor distribution to all school districts.

It will be the responsibility of each memberschool district to purchase their proportionateshare of the guaranteed amount directly from thevendor. In the early development stages of theprogram, it will be very important that a formalfeedback system be established. Thus, any dis-satisfaction with the system can be uncovered andcorrective action taken.

4. School administrations, with assistance fromthe Department of Education, should ex-pand school district purchasing under statecontracts.

In a few isolated instances, school districts havepurchased articles under existing state contracts.Most districts are not aware of the availability ofsuch contracts or that they may make use ofthem. In 1968, permissive legislation was enactedmaking this possible. At the present time, a newbill is being enacted to simplify the process oflocal purchasing under these contracts.

The state has under contract many of the itemsthat school districts now are buying. In mostcases, the price paid by the state is substantiallylower than those indicated in the table below.,

LOW PRICES VERSUS STATE PRICES FOR THREE COMMODITIES

Low Price State Price

WA Floor Cleaner $ 1.27 $0.57 per 55 gallon drum0.70 per 10 gallon drum0.80 per 5 gallon can

Floor Wax 2.00 0.80 per 55 gallon drum1.01 per 5 gallon'can

Fluorescent Bulbs 10.80 9.12 per case

Since the total school volume, in most instanceswould far surpass the normal state agency volume,there is likelihood that lower prices could beobtained if these items and others were incorpor-ated into state bids. The supplies and equipmentmost suitable for school-state cooperative buyingwould be office furniture, equipment, custodialsupplies, as well as automotive products.

School district participation in state contracts isoperating successfully in 13 states according toa 1967 survey. In New York State, where it hasbeen in effect for 16 years, it is estimated that90' of the school districts participate. A recentcustomer service evaluation indicated overwhelm-ing satisfaction with the system.

Although dollar savings are not available fromNew York State, a recent survey of schooldistricts revealed:

73

Some 99% of the schools used Diwtsitsri ofPurchase award announcements as priceguides for comparison, reference, or negotia-tion purposes.

About 87% believed they obtained morefavorable prices or terms in their regularpurchasing as a direct result of state contracts.

10' The general quality of items purchased,through state contracts was satisfactory topractically all of the school districts.

One of the first responsibilities of the continuingpurchasing committee would be to establish aworking relationship with the State PurchasingDivision. Together, they should:

10' Establish an order in which state contractsshould be made available to school districts.If all districts were to start doing so for everypossible commodity it would result chaos.

II" As each contract is agreed upon; determinespecifications acceptable to both state andschool districts. Ascertain if each district isto submit guaranteed purchase volume inadvance of bidding or if a total state estimateis sufficient.

111' Stipulate in the contract that vendors honorpurchase orders from the school districts.

In order for this program to develop to fullutilization, it will be necessary to furnish addi-tional staff for the State Purchasing Division. Theincrease can be made on a gradual basis as itemsare added on a state-wide basis.

To anticipate objections that acceptable qualitymaterials cannot be purchased for prices paid bythe state, Task Force members checked with oneof the larger school districts in the state. Theyhave developed their own specifications for afloor cleaner with which they are quite satisfied.

The potential for savings is great. School districtscurrently spend ,$15-million to $20-million a yearon equipment and supplies available under statecontracts. These expenditures do not include anyfood or lunchroom equipment. The price com-parison sampling indicated the range of possiblecost reduction. Therefore, the possibility existsof a ?0% reduction over the list prices obtained inthe sampling. This would amount to annualsavings of $3-million over the savings indicatedfrom regionalized cooperative buying.

5. The Department of Education should estab-lish a state-wide continuing purchasingcommittee.

The committee should serve in an advisory ca-pacity to school business officials. To organize

this group, the Director of the Bureau of SchoolManagement Services as proposed in the sectionentitled Manpower would appoint members froma list of candidates submitted by the school dis-tricts. These members, normally superintendentsor business managers, would represent their areaand reflect different types and sines of schools.They would be appointed for staggered terms sothat two new members would join the eOmmitteeeach year. Successive terms should be prOibited.This committee would be supported by the follow-ing technical purchasing specialists':

IP. The Manager of Purchasing Services, a newlycreated position, will serve as a permanentmember of the committee and will act as theexecutive secretary.

A representative from the Purchasing AgentDivision of the executive office for Adminis-tration and finance.

.A professional purchasing management repre-sentative from the business community whowould be selected from i representative listof candidates proposed by an organizationsuch as Associated Industries of Massachu-setts or National Association of Purchasing,Management.

10. The chairman would be elected by committeemembers to serve a one-year term.

The committee would meet a minimum of sixtunes annually. Its responsibilities should include:

Assigning priorities in carrying out recom-mendations of this report.

Developing state-wide quality standards andspecifications for school supplies, materials,and equipment. Establishment of qualitystandards and specifications, which are pre-printed and available on a state-wide basis,will save individual schools and their staffsthousands of man-hours per year now ex-pended in preparing duplicate specifications.Excellent specifications for specific commodi-ties are now in use in individual school dis-tricts. They should be identified and adoptedfor state-wide use. Eventual evolvement ofa coded standards system would also enableinformation to be gathered electronically andused for effective value analysis.

111- Installing uniform procedures at the locallevel, using the Massachusetts School Pro-curement Manual as a guide.

Promoting area participation by all schools.This fosters involvement in the plans andoperations of the committee through sub-committees and special assignments.

74 Si

111' Developing a standard list of commonly usedsupplies with each item identified by a descrip-tion and possibly by catalogue number of oneor two principal suppliers. These lists can beused to determine annual quantities of itemsand increase the potential for volume pur-chasing.

IP. Conducting special surveys with particularemphasis on standardization of equipmentthroughout the state.

IP. Developing "link-up" relationships with suchprofessional organizations as the NationalAssociation of Purchasing Management, Mas-sachusetts Association of School BusinessOfficials, and National Institute of Govern-mental Purchasing.

One possible area for such a survey would be inthe use of office copiers. Currently, each districtutilizes a v riety of machines and paper. The costper copy Juries accordingly,

In 1969, / Michigan conducted a value analysisstudy o copying machines used in its state-widedepart, ents. The result was a contractual ar-rang ent with a leading office copier manufac-turer to provide the state with all machinesrequired- as well as the necessary supplies. Amarked decrease in the cost per ,copy, totalingclose to $387,000 annually was obtained by thissimple move.

TextbooksDuring 1969, approximately $9-million was spenton textbooks in Massachusetts. Procedures forthe purchase of textbooks do net differ from anyother school system procedures. Each municipal-ity, through teacher committees, spends manyman-hours on text selection. These selectionsthen follow the standard organizational formatthrough the department heads, principals, andschool committees to the final authority wherepurchase orders are issued. _In some instances,requisitions are grouped to take advantage ofbetter prices or ease in delivery to a central loca-tion. Many times, however, individual ordersare placed by schools.

No definite program emergel that tends towardlong-range planning. In general, texts are notselected for any specific period of years. Further-more, no attempt is made to hold prices for aspecific period of years or the remaining portionof the year to secure a fixed price that mightapproximate the useful life of the book. Paper-back books are being used on a very smali scale.Actually, they are utilized as supplements ratherthan official texts.

In other states, textbook selection, as well asprocurement policies, include state-wide adoption,publisher guarantees of prices over a fixed num-ber of years, and other forms of price protection.In these states, controversial methods are con-stantly reviewed and revised because of the finedistinction between local autonomy in educationalmatters and the role of the state. Massachusettshas not attempted to organize state-wide adoptionof textbooks.

EVALUATION

Con.sideraion should be given to the man-hoiinvolved in text selection, the 400 districts whichmake decisions, the humber of subjects taught;the variety of grades in each subject, and the Costof textbooks. Thus, the magnitude of this problembecomes evident.

In general, the procedure fbllowed i., tidewhether the curriculum needs review od-ernizing. This should Be done duri the su eras a special project. Sever persons, usuallyteachers, are assigned ful me to the task. I caneither be a consider n of one course, a re iewof subject matt rom grade one through 1 orany portio erein. This results in many min-hours ng spent in establishing curricula satis-

2/c

ry to the individual system, whether itschool/or by municipality. Additionally, th e

is no evidence' that studies b other concernedgroups, even for similar sxib ects, are used tominimize costs. ,

Procedures followed do notbuying or guarantee of fixof years. Consideration of tdoes not exist. Furthermomade every routine thereautomatic. Total man-houcurricula and the selection

benefit from quantityprices over a period

e purchasing functione, once selections areer becomes relativelyutilized in reviewingf texts are unknown.

However, the methods folldwed are very costly'.

RECOMMENDATIONS

6. Schdol committees should organize regionalcommittees to select and maintain lists ofrecommended textbooks for each subjectlevel and establish procedures for theirprocurement.

One regional committee would replace separatecommittees in each participating /school district.Subcommittees should be established to selectone or more textbooks at each subject level: Thecross-pollination of thoughts and ideas from. theseveral school districts could result in an excellentselection of recommended textbooks. A singlereview of available texts would eliminate dupli-cate consideration by severak districts and savevaluable time. The regional committee would

75

seek bids on the recommended textbooks Eachdit,tri.ct could then make their selection from thebids received Volume purchasing methods shouldalso result in reduction of overall expenses

7. School administrations should use paper-back books where practical and ecmcornical.

School systems using paperbacks are having goodexperience with them. They are less expensiveand, therefore. savings are possible. The pupilsreceive them well: particularly so, when they arepermitted to mark and keep them. The life ofthese books. in relation to their cost, does notcreate a problem.

School Food Service System

By September 1974, it will be mandatory thatevery child attending school in Massachusetts beoffered a lunch When the legislative action isadopted. it will, in effect, increase the cu-rentschool lunch program budget from $60-million$100- million.

Since the National School Lunch Act was enactedin 1946, there has been increasing evidence ofthe relationship between nutritional standardsand a child's capacity to learn. Also, it is en-visioned by most nutritionists that the Ignitedbreakfast program will be extended to manythousands of children, perhaps made mandatoryby 19R0.

At present. each school district operates its ownprogram which is completely independent ofother districts However. auditing. evaluation,and technical assistance functions are availablefrom the Bureau of Nutrition Education and FoodServices.

L'Astrict management of the program entails pun-ch se of foods, equipment and supplies, menuplanning, direction and training of personnel aswell as food preparation. scheduling, servicing:and accor tabilitN foi the' finances involved.Although .any tree' lunches are provided to theneedy. those pupils who can afford to pay areasked a minimal charge' Mans' a la carte selec-tions are also obtainable- in several schools, Witha subsidy provided for each type A lunch served,participation m the' progrmn where offeredaverages 70' ( throughout the <tate In addition,federal c, d supplies are available to every schooldistrict.

EVALUATION

There is no argument that a school's primary pur-pose is devoted to education However: there isdis4,reement about than lide food ;ice programsplay in the educa'ional system. Administra'ors'views are conditioned bN government controlsand the 1:,"t most ,t boo! lunch programs losemoney. Some a...nistiators believe objectives76

k!"

,hould include health education and promotionof good food habits. In many school districts,there is minimal interest in the program by theschool administration. Usually, school districtscoordinate iunchrooms within their area througha director who plans the lunch program. Thesedirecters are dedicated individuals who haves-abackground in nutriti, but almost always lackadministrative training.Purchasing practices vary greatly. Consumablessuch as milk, bread, and ice cream are bid on ayearly basis In some districts, staples are bidevery six months. Normally. the purchasing cunc--don is carried out by the director after consultingthe manager's inventory list. In instances wherecontrol is lacking. individual cafeteria managerstake care of purchasing duties. Occasionally, thecity purchasing agent accepts a row bid withoutunderstanding the food quality and yield.Standard specifications for purchasing and uni-form testing of food products are minimal. Fur-thermore, the state-wide shortage of storagemakes quantity purchasing impossible. Conse-quently, the purchasing function is neitherplanned nor is it regionally carried out. Undernormal conditions. equipment. utensils, d waresare not inventoried.

Accounting procedures are not standardized.Lunch programs are normally financed througha revolving ft-:d. However. there is great varia-tion between what is charged to this fund and tothe general fund (director's and/or manager'ssal.. equipment. telephone, custodial require-ments, maintenance help, and power). Manydistricts budget and transfer funds from thegeneral to the revolving fund rather than havethe lunch program reflect a loss.

Tht programs operate rent free. Monthly state-ments are prepared in order to obtain federalreimbursements: but few districts prepare ain nthly profit-and loss-statement for each school'The cost of free lunches is absorbed by the indi-vidual lunchroom and is not charged back to the

district to show realistic income, percentages,and ratios.

Cost of the school lunch program is rapidly in-creasing due to escalating labor costs. Yet, col-lective bargaining between schools and cafeteriaemployees varies from dish ,ct to district. As aconsequence, no guidelines are available to ne-gotiate local differences. These costs are a majorcencern to lunchroom managers. Therefore, laborutilization studies are needed.

Accrued cash is handled in a variety of ways.Quite often, it is counted by the cashier andrecounted in the director's office before banking.Cash and sales are rarely reconciled; nor areleftover foods adjusted With that sold.

The infinite number of kitchen layouts precludecomparative efficiency rates. All kitchens meetsanitary standards, but the age and repair ofequipment does vary. Menus, portion sizes, andnumber of choices differ from district to district.

The few districts that have instituted centralkitchens have successfully serviced schools with-out kitchens and are offering a nutritious meal toall children. By drafting and supporting legisla-tion, the Bureau of School Food Services recog-nizes this trend. The bill promotes central kitchensthrough financial incentives and will allow eitherthe schools or the state to contract with privateindustry for various food services.

Periodic audits of cafeteria operations are con-ducted by the bureau to assure compliance withthe federal program. In addition, an in-depthevaluation is conducted by field nutritionists oncea year. Results of this study are returned to thedistricts in a synopsis form.

This service is now provided on a marginal basisdue to understafling of personnel and lack offunds The aim of these efforts is to reduce costs.Unfortunately, there is no one solution for over-coming the diverse problems each administratorfaces. Trends in other states and cities point tda satellite kitchen approach with either a privatecontractor or centralized school management.Thus, the thrust for meeting tomorrow's chal-lenges will come from consideration of privatecontractors, efficiency foods, mass purchasing,centralized production, and distribution of nutri-tious and attractive lunches over great distances.

RECOMMENDATIONS1. The Department of Education should create

a Division of Nutrition Education pnd SchoolFood Spvice,

Presently, the Bureau of School Food Servicesreports organizationally to an assistant comink-

sioner for school facilities. With the exception ofkitchen construction, the goals of these two activi-ties are entirely dissimilar. In fact, the importanceof food sere ices not only to schools but to allsegments .of Massachusetts society has been re-cently recognized through a 40% increase in thebureau staff. This proposed division would havethree bureaus:

The Bureau of School Food ServicesItwould have responsibility for financial andtechnical assistance at the district level. Also,this bureau should concentrate on long-rangestudies and plans for immediately imple-menting the recommendations in this report.

The Bureau of Commodity DistributionThis function currently handles approximately$12-million in government commoditieS. Theaddition of summer camps, day care centers,hospital and correctional institutions will in-crease this value to $39-million in 1971. Man-agement of this program under one divisionwill effectively complement the eventual massdistribution of packaged lunches to schools.

II.- The Bureau of Nutrition EducationPerhapsthe greatest savings to the state will even-tually stem from innovative and creativenutrition education. Rising hospital costssupport the widely accepted view that pre-ventive health and proper nutrition measuresgreatly reduces more costly solutions whichare required at a later date.

During 1970, the bureau's nutritional staff tripled.Their responsibilities, in addition to developingoverall courses for classroom teachers and con-ducting seminars, should be to concentrate theireducation in the lower grade levels. The reasonsare obvious. If proper nutrition aids the learningprocess, it is best to start at a very early age. Theminimal costs necessary to properly, staff this newdivision will be more than offset by the savingsavailable thrOugh implementing the recommenda-tions contained in this section

2. The Bureau of School Food Services shouldadopt criteria for measuring efficiency ofindividual school and district food serviceoperations.

The type A meal is a standard unit throughoutthe state and is a valid base for comparison. Inaddition to pai ticipation tate and meals servedper man hour, it is recommended that per-servingfood cost. value' of United States Department ofAgriculture commodities, labor charges, othercosts (utilities, operating expenses, miscellaneoussupplies, arid the like) as well as total costs beanalyzed in reference to meals served.

77

This measurement system will rapidly identify anarea for evaluation at the local level. Thus, theBureau of School Food Services will be morerapidly aware of problem areas and assist schoolson a priority basis There are seven basic meas-urements that can be helpful in evaluating a foodservice operation. They are participation, foodcost per serving, labor cost per serving, other costper serving, total cost per serving, meals servedper man hour, and value of U.S. Department ofAgriculture commodities per serving.

These measurements are not true cost accountingfigures. However, they are used to stimula theadministrators of food service facilities to reviewtheir operation in detail.

3. School committees should require the useof central kitchens to serve more thari cneschool.

Bureau of School Food Se-vices should pro-rt;_te and encourage this concept. Small, self-contained kitchens are economically unsoundbecause of the area required, the $20,000 to$50,000 needed to furnish the facility, and ineffi-cient utilization of labor. Consequently, eachdistrict or group of districts must look at opera-tions from the standpoint of capital outlay andefficiency measurements. Several advantages areinherent with a central kitchen. They will:

Provide economical service for schools with-out need for kitchen facilities.

01' RE ace payroll by better utilization of labor."Consolidate purchasing.

Reduce and centralize inventory.Eliminate major equipment purchases forschool serving centers.

Produce positive portion control.

EffectAxsitive control over meals producedand Served.

Legislation provides that meals be made availableto all pupils. Therefore, each school district inMassachusetts must study its facilities to ascertainif there is any kitchen which could be used toprepare pre-portioned meals with throw-awayutensils in disposable packages for delivery toother schools. When an existing facility cannotbe used as a central kitchen, one must be built..This could be accomplished by extending a pres-ent kitchen, or by incorporating a central kitchenin the next new school or school addition. Sucha facility can also be obtained by outfitting a free-standing builINg. Thus, the 900 schools that donot offer meals could be served from centralkitchens. Furthermore, new schools would onlyrequire a serving area for students.

For self-contained kitchens, equipment costs alonewould be more than $18-million. Existing kitchens,not performing well by efficiency measurements,could be p: lsed out as the schools are includedin the central kitchen concept. This would stopwasted expenditures on equipment repair andreplacement, as well as the use of ineffectivelabor. Additionally, it would bring about a betterutilization of space in these inefficient operations.

Any time a capital outlay is made to rehabilitatean existing facility, efficiency measurements mustbe studied. Such an outlay might increase opera-tional costs enough to make it an inefficientfacility. If proven, the operation should be phasedout and the school included in the central kitchenconcept. Current legislation should permit schoolsto be reimbursed for construction of central foodproduction centers to prepare school lunches fordistribution to any school in a city, town, county,or regional school district.

Convenience foods are bringing about dramaticchanges in the food industry.. All school systemsare presently using them in some form. The useof such foods will raise production costs. Properwage will, however, lower the cost of labor. Asthe technology becomes more sophisticated, it isexpected these convenience foods will becomeavailable in a pre-portioned type A form.

In large city or regional central kitchens, anefficiency rate should be obtained to enable theseproduction centers to prepare their own con-venience foods. Higher equipment costs, convey-ers, packaging machinery, and the like, as well asfreezer space would be required. However, truck-load lot purchasing, low labor cost, and highefficiency are gained. New York City school offi-cials state this system cut labor charges by 40%while holding food costs at the same level. Presentlunchroom labor costs in Massachusetts are $21-__million. With the addition Of 900 schools to beserved in 1974, a conservative cost would be$24.6-million. Applying New York City's ex-perience to this figure, a labor saving of $10-million would be realized through the use ofefficient central itchens.

4. The Bureau of Commodity Distributionshould ?channel available government-donated commodities to food processors forconversion into finished products for resaleto various school district systems.

New legislation will allow the Bureau of SchoolFood Services to contract with private processorsfor delivery of food components or ready-preparedmeals. The United States Department of Agricul-ture makes certain foods available to the schoollunch program. Those schools which take advan-

MASSACHUSETTS DEPARTMENT OF EDUCATION

OFFICE OF SCHOOL LUNCH PROGRAMS

National School Lunch Program and Special Milk Program

REPORT AND CLAIM FOR REIMBURSEMENTSCHOOLS SERVING ONLY MILK COMPLETE ENCIRCLED QUESTIONS ONLY

Calendar Month__ _ Enrollment _Average Daily Attendance_ Agreement No

1 Name of School as shown on Schedule "A" of Agreement 2 Name of Sponsoring Agency exactly as shown on pg. 2 of

Agreement

Av., No. of Days

Av. Daily Part.

- -VAddress (Street & No or R F D No., City)

NATIONAL SCHOOLBalance Sheet

DateAssets

CashReimbursements DueInventory (excludes U.S D.A.)

Total AssetsLiabilities

Accounts Payable'Wages Due

Total LiabilitiesNet Worth (beginning)

Profit or LossNet Worth (end)

Total Liabilities and Net WorthFood $U.S D.A.Labor $Expense $Total $

Value of U.S.D.A. Commodities used $

Ratios:PerMealServed

Address (Street & No. or R.F.D. No., bity)

LUNCH PROGRAM SECTION AProfit or Loss Statement

Month

Lunch Type

A-with Milk

1. Sales:2. Lunchroom sales to children3. U.S.D.A. claims received4. Lunchroom sales to other5. Lunchroom sales to needy children6. Total Sales7. Cost of Food Sold8. Inventory,theginning)9. Purchas0 (excludes U.S.D.A.)

10. Total11. Inventory (end)12. Gast a Food Sold13 Operating Ixpenses14. Labor

16. !=tneous15.

en17. Total Operating ExpensesIt Profit or Loss

10. Prices charged for lunchesCtiildren $ Adults

11. No. days lunches served11.A, Total lunches to Adults

No. Lunches Served to Total Number Assigned Rate of Maximum ReimbursementNeedy Children Served . Reimbursement (Col 2 x Cot. 3)

Column 2 Column 3 Column 4$$$

Column I

13. Amount of National School Lunch Program Claim (Total of Item 12, Column 4)

SPECIA SCII(X)L MILK PROGRAM SECTION B14 Number of days milk was served_-__ _ 15. Price per iz pint paid to distfibutor16. Total number. of 1, pints served to n dy children 17 Charge to child

Daily $ Weekly $__ Adults L.18. Total number of 14 pints purchased during month covered by this claim19 Number of 12 pints sf.rved (a) To children in Type A lunch_ _ _ PLUS (b) to adults20 Total number if 12 pints served to children under the Special School Milk Program (Item 18 minus Item 19)21 Pate of reimbursement per 12 pint of Milk22 Amount of Special School Milk Program Claim (Item 20 x Item 21) $23 TOTAL COMBINED SCHOOL LUNCH AND SCHOOL MILK PROGRAM CLAIM (Item 13 plus Item 22).

Authorized agent, if other than superintendent, must have Certificate of Authority Form FP-7 on file at state office

_ .

(Program Supervisor)For State Office Use Only

State Share (N S L P ) $

Federal Share (N S L P)State Share (Special Milk)Federal Share (Special Milk)

TOTAL AMOUNT PAID SPONSOR $

vc)

I (We) certify that the plan for increasing milk consumptiondescribed in our application is In operation, and that this claim forreimbursement is true and correct in all respects and is in accord-ance with the terms of the existing agreement(s) and that paymerttherefore has not been received

(Sponsoring Agency)

SIGN(Authorized Agent)

(Title) (iiags)

79

tage of the offer pay only a nominal handlingcharge. The Commonwealth's schools are usingas many of these foods as is possible. However,several items of foodstuffs are not obtained be-cause the school cannot economically processthem. Therefore, the Bureau of School FoodServices should contract with private industry toprocess these government-donated foods. Theycould then be commercially prepared into a moreusable form or into a finished product.

Processing plants with excess capacity are avail-able but single schools cannot interest industryinto processing their needs. On a state-wide orregional basis, however, the volume would makeit economical. For example, it is estimated thatthe letting of a state-wide contract for bakingtwo-pound loaves of bread would save approx-imately $180,000 annually.

Other monetary savings will accrue by havingthe newly-formed Division of School Food Ser-vices similarly handle the following governmentcommodities:

Making dry milk' and powdered eggs intocookies and pastries.

Mixing and shaping ground beef into frozenhamburger patties or meat loaves for eventualreheating.

Preparing boned, cooked, and frozen turkeysinto rolls ready_for slicing..

II,. Providing recznstituted orange juice whichhas been pre-packaged into four-ounce ca-pacity disposable cartons.

5. The Bureau of School Food Services shouldredesign the Report and Claim for Reim-bursement form by substituting a monthlybalance sheet and profit and loss statement.

With minor modifications, the Report and Claimfor Reimbursement, depicted on page 79, couldprovide a monthly profit and loss statement forthe district. Few districts presently "Kaw----a---monthly picture of their costs. They do not knowtheir costs until the end of the school year.

Monthly cost figures are a valuable managementtool and show if corrective action need be takenon a more current frequency. Therefore, thisreport and claim for reimbursement form shouldbe redesigned to make it more readily adaptableto an automated system.

To obtain a true cost picture, all direct andindirect charges attributable to the school lunchprogram must be charged to it. As districts movetoward programmed budgeting, this will becomemore evident' because school lunch programs110

operate on a revolving account. As programcosts increase over income, smaller amounts ofthe obligation are charged to this account.

Direct costs are food, labor (including managers,directors, and food service clerks), equipment,and other items that are wholly attributed to theprogram. Indirect costs are hidden because onlya portion of each is attributable to the program.These indirect costs are, however, very much apart of operating the school lunch. They includecharges for telephones, utilities, office labor,maintenance, and rental of space required forthe program.

These costs are still paid by the school districtbut they, Are made from the general fund. There-fore, it will cost the district no more to charge allattributable costs to the revolving account. Anamount would then be budgeted from the generalfund to the revolving fund to cover costs. Thus,all costs will be known by management andenable the district to make sound decisions con-cerning the program.

The cost of free meals is an item which should notbe borne by the school lunch program. Becauseof the varying number of free meals servod andmethods of reimbursement, these lunches mustbe charged to the general fund. This is a fUrtherpurification of the income and costs of the schoollunch revolving fund.

A monthly check on the cashiers can also be madeby using the Report and Claim for Reiniburse-ment. The number of meals served-, multiplied bythe charges made for them will give al salespotential which should balance with the Actualcash intake. This check will show if all monieshave been accounted,

6. The /Bureau of School Food Services shouldpublish a suitable handbook for cafeteriaperionnel at the state level which wouldemphasize selection, motivation, and propertraining of cafeteria employees.

A recent survey of school lunch programs in 50states revealed over 50% of the replies indicatedthat training of employees was the most importantfactor in meeting production goals. Labor costsare tepidly increasing as a percentage of totalschool lunch operating costs and labor pools areshrinking due to competitive industrial jobs andhigher wages. This study found similar problemsthroughout Massachusetts. Therefore, programswhich recognize these elements and concentrateon expanding job content of the less skilled taskswill reduce worker dissatisfaction to a large de-gree. The cost of preparing such a handbookwill be approximately $1,200.

Management Information SystemLocal

Local school administrators are burdened by in-'creasing requests for information from taxpayers,the school board, the Department of Education,and the Legislature. Today, taxpayers want de-tailed building costs, program pupil costs, popula-tion and construction forecasts, and evidence ofeducational excellence. The school board seeks tounderstand the needs of an expanding schoolsystem while maintaining economic control. TheDepartment of Education requires annual budgetsfrom each district in a format that may be differ-ent than those the local district would prefer, TheLegislature tries to support education but needsinformation to develop intelligent legislation. Mostschool administrators recognize these requestsbut, unfortunately, the quality of response hasbeen varied.

This study found few school districts which con-sider the office staff and its data handling a sys-tem. However, every school district is trying tosatisfy information needs. Their methods rangefrom well-staffed computer installations to asingle clerk, under the superintendent.

Response to the increased and varied informationdemands are evidenced by:,

Development of new budgetary methods suchas Planning Programming Budgetary Systems(PBBS), A budget displayed' in the classicalsense no longer provides the information foreffective planning and measurement of schoolprogram costs.

10- Introduction of accounting and computer ma-chinery at the local, regional, state, andfederal levels to process massive statistics.

Creation of a computerized Research andDevelopment Center in the Department ofEducation.

Grouping by some local school districts forthe sole purpose of processing data.

10' Establishment of data processing departmentswithin many school systems.

to. Use of systems and computer consultantsthroughout education management.

IN. Commercial service bureaus processing edu-cational data.

lo Statistical data developed as needed by theMassachusetts Teachers Association.

The single thread among these eight responses toinformation needs is the lack of coordinated effortamongst them.

Systems design should be based on the conceptthat a record be created a minimum number oftimes and the data it contains used frequently,The decision maker need not be concerned withhow, where, or by whom the information isproduced, provided it is timely and accurate.These form the parameters for evaluating thecurrent status of educational data processing andmanagement information.

EVALUATION

The choice and location of equipment and staffto provide information processing and long-rangeplanning appear to be within the province of localschool administrations. As a result, the degreeof satisfaction is varied and has led some districtsto employ specialists or consultants. Several dis-tricts have pooled resources to process data withaccompanying economies.

The cost of processing data at the local level isrising. Much has been written to doctiment thewaste of dollars in uncoordinated ataempts toreinvent the wheel in any area of data manage-ment. Thus, it is costly to continue on the presentcourse of individual development. Most signifi-cantly, local school districts will continue to missthe goal of satisfying information needs at areasonable cost.

The urgency of this problem is upon us. Someof the funds that supported local ventures intothe field of data processing are drying up. It isreasonable to expect that a few local school dis-tricts will have a system meeting the demands forinformation as a result of their jumping-in at thebeginning. Most will not have a system and timeis running out.

RECOMMENDATION

1. School administrations should develop andimplement Local Educational ManagementInformation Systems (LEM1S)

Three factors bear on the implementation of thisrecommendation. First is the size of the develop-ment. This is important because development andimplementation of systems must satisfy the needsof approximately 400 school districts.

Second is the current status of information pro-cessing at the local level because:

Costs involved in gathering, arranging, andpresenting information are not available.

More than 75 districts are using their ownor rented electronic accounting machines/

electronic data processing (EAM/EDP)equipment. Another third of the districts areusing service bureaus, and many schools aresharing facilities in a neighboring district.This is done at annual rental and staff ex-pense in excess of $2.5-million.

There are approximately 400 different sys-tems for information processing.

There is no organization within the Depart-ment of Education to advise and guide localdistricts in areas of information processing,office systems and procedures, or data proces-sing. The recommendation on Bureau ofSchool Management Services, if adopted, willcorrect this. See the Manpower section onResources for Public School Education.

All local districts are involved in an informa-tion system, and the end of the year reportto the Department of Education.

Third, is the level of local expertise. This problemmust be considered because there are few quali-fied professional systems people at the districtlevel.

For these reasons, the development and imple-mentation of Local Educational Management In-formation Systems (LEMIS) must involve thefollowing four steps to provide necessary datamost economically,

Phase one, or introduction, is a one year periodthat would involve, at the local level:

Appointment of a local coordinator to beresponsible for all data flow including internalprocessing as well as service bureaus, co-operatives, Massachusetts Educational Man-agement Information System (MEMIS), theDepartment of Education, and the community.

*Voluntary delay of contemplated computeradditions, changes, or new data processinginvolvements during the initial phase one.

This period is not one of inactivity but rather likethat described in the Manpower section on Re-sources for Public School Education as a periodof vigorous activity at the state level establishingthe links to the local level in MEWS. The endof year report input from the district to theDepartment of Education and the annual reportof the Department of Education as output fromthat agency require particular attention.

The local coordinator to be selected from withinthe system would ideally be a person with abackground in systems analysis and data pro-cessing. Realistically, that will occur in only afew school systems. However, this should not be

$2

considered a serious handicap. The phase oneperiod should be used by the coordinator to:

*Study and document the tab, computer, ormanual information flow within the localsystem.

Note the deficiencies within their systems.Actively be involved in the MEMIS study ofthe existing information flow such as theannual report.Participate in organizations such as Massa-chusetts Educational Data Processing Asso-ciation (MEDPA).Contact local industry for professional sys-tems help.

In summary, phase one involves the moratoriumon the addition of data processing equipment, thedevelopment of a local coordinator, the under-standing of the local information system, and itsrelationships with other systems.

Phase two, or development, begins at the endof the first year and requires a period of 18 monthsto develop and standardize adequate systems forlocal information needs.

As a result of information available from thedocumentation of local systems by local coordin-ators in phase one, MEMIS and a selected groupof local coordinators must evaluate and choosethose systems best suited to information needs.Where local systems are lacking or nonexistent,the resources of MEMIS, local school districts,other state Departments of Education, vendors,and business would be utilized.

In this study, many manual and EDP systemswere found in the local information areas. Someof these areas of information meet legal require-ments; othem are or would be helpful in managingschool business. The following list of applicationsindicates the diverse types of information neces-sary for local school management.

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Students:;Scholastic informationgrades, test scores,and progress.Census informationage, date of enroll-ment, attendance, and class scheduling.

Personnel:Staff statusqualifications, teaching expe-rience, accomplishments, and evaluation.Financialpayroll and retirement fund.

Fiscal:Budget current budget, balances, andhistory.Fundinglocal, state, and federal.Accounting.Insurance.

IN- Facilities:Design and constructiondate of construc-tion, capacity, use, cost-original bid, actualcost, and replacement value.Operations and maintenance custodialcosts, building utilization, and utilities.

IN' Transportation:Vehiclesinventory, financial records, andusage.Bussing -- pupil location, scheduling al-gorithm, and analysis of contract versusownership cost.

IN- Purchasing:Cost and usage data.Vendor analysishistory and performance.

-Order statusopen, late, and balance due.Sources of supplyquality and quantity.

IN' School Lunch Program:Personnelstaff status and financial in-formation.Procurementsource of supply and usage.Financialcost analysis, budget, and gov-ernment aid.

IN- Miscellaneous:Athletic programs.Attendance services.Collective bargaining.Computer services.Driver education.Health services.Library services.Community relations.Property and inventory control.

The systems developed for LEMIS must be suit-able for manual as well as computer-based localdistricts. Systems must allow for a smooth transi-tion from manual to computer operations and besuitable for more than one manufacturer's equip-ment configuration. There must also be standardsand discipline in the systems to ensure informa-tion compatability between local districts, MEMIS,and the like, be they manual or computer based.Certain peripheral constraints, standards andinformation for LEMIS should be the responsibil-ity of the EDP service as established in theManpower section of Resources for Public SchoolEducation. These must include:

IN- Proper computer, tab, or business machineconfiguration for business and educationalpurposes.

IN' Approved methods of equipment rental andpurchase, and school discounts.

IN' Possible methods of staffing and job responsi-bilities in information processing areas.

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IN- Available funding, both state and federal, aswell as the status of all EDP or informationsystems projects.

MEMIS and the selected group of local coordina-tors would be responsible for:

II- Documenting the standard systems.

IN- Upgrading systems to meet new and/orchanged needs.

IN- Describing the multiple information needsfor MEMIS as a requirement from each localschool district.

I...Describing the input-output requirements.

IN- Discouraging local districts from developingtheir own systems. Costs avoided by stan-dardization are great if the previous list ofapplications being developed within eachschool district is considered.

Phase three, or testing, would begin at the end of18 months. Its completion time would be oneyear to test the standardized systems. This seg-ment would overlap the last year 'of phase two.It will become obvious as the local districts passthrough these phases that they cannot econom-ically solve their information needs by themselves.In addition, the larger systems may be hesitant togive up their partially established informationsystems for a compatible solution.

In order to avoid these problems, funding andconsiderable leadership will be necessary at \thestate level. Funding of two computer-basedformation systemsone for a cooperative of smalschool districts and the other for a large districtcould provide a laboratory for testing the selectedsystem's software. This would be done under thedirection of the MEMIS staff with cooperation ofthe local coordinators.

A series of seminars, as these developmentsprogress, to inform those coordinators not in-volved, would keep the two projects from be-coming localized. The evaluation of the successof these projects should involve the coordinator'scommittee. That evaluation should be based onthe local school's satisfaction with the informationprovided as well as-the ease of input, timeliness,flexibility, and cost. From these two efforts, themodules of information processing systems wouldevolve to comprise the computer versions ofLEMIS.

Phase four, or implementation, must begin nolater than 30 months after the start of LEMIS andwould be the implementation period for standarr:systems at the district level. Local systems mustbe implemented in a reasonable period of time in

83

order to meet the needs surveyed in phase one.This phase will involve a flexible MEMIS staff.Their posture must endorse cooperative dataprocessing or the joining of districts to econom-ically process information. They must be availableto local districts for adjustment to standard sys-tems to better meet local needs and troubleshootany difficulties during implementation.

The success of the development of LEMIS, by thecoordinators and the MEMIS staff, will be easilydetermined by the number of local school systemsthat implement standard systems. However, theultimate test will be if the information needs ofthe users are fulfilled. Unless these requirementsare realized, many of the benefits indicated inthis report will not be attained

Interfacing Systems

Up to this point, the major functions which comeunder the control of the business manager havebeen discussed. We have also investigated otheractivities which, although they are necessaryelements in the operation of a school district, arenot usually his direct responsibility. They do,however, touch upon many aspects of his opera-tion. These we have elected to call InterfacingSystems. They are insurance, attendance ser-vices, health services, library services, propertyand inventory control, and staff travel.

InsuranceThe function of insurance is to offer protectionof the insured against loss of such severity thatfinancial conditions are damaged. Exposures toloss of a size which can readily be absorbed by atown or city from current funds may,, however,not justify coverage.

The effect of the nation's inflationary economyon salaries, materials, and equipment is keenlyfelt in school budgets. It is further aggravated bythe cost to school districts for severe damage tobuildings due to social unrest. Protection fromlarge loss resulting from destruction of presentproperties has become of the utmost importance.Old school buildings that were not refurbishedmust now be modernized or replaced at greatlyincreased costs. Taxpayers should not be sub-jected to paying for replacement of valuable oldbuildings and also for new construction at thesame time,

Good practice dictates careful, expert risk an-alysis, and development of th proper programof insurance or self-In.Airance to protect taxpayersfrom any catastrophic losses. However, conditionsvary so widely in cities and towns that no singlepattern fits all school systems. The problems arecomplex and their magnitude is indicated by thefact that there are some 3,188 school buildingsowned by approximately 400 public school dis-tricts in Massachusetts They have an estimated

84 ql

replacement value in the neighborhood of $3.8-billion. A single loss amounting to $17-million or$18-million is possible.

Costs of automobile liability and general liabilitycases, including products and malpractice, as wellas workmen's compensation cases are increasingin cost, occasionally to hundred thousand dollarvalues. For years, sovereign immunity has pro-tected Massachusetts' cities and towns from lia-bility suits. However, Section 100C of the GeneralLaws stipulates that a city or town shall defendand indemnify a teacher who may be personallysued for alleged negligence resulting in bodilyinjury or property damage. This provides thechannel for municipalities to be forced to paydamage claims for accidental injuries caused bynegligence of teachers.

It is immaterial whether the responsibility forplacing insurance or paying losses belongs to thecity or town rather than the school system sincethey own the properties and are the employers.The superintendent's office should, however, becon,ulted and advised. The peril of taxpayers,riots, vandalism, burglaries, and thefts in recentmonths have also multiplied the exposure to loss.

EVALUATION

School coverage, in most instances, is handled asa part of each city or town's insurance program.Communications between school administratorsand persons placing coverage is frequently incom-plete. The resultant programs vary from noinsurance to good protection. "No insurance"does not qualify for the term `'self-insurance" asno reserving or funding for losses is practiced.

Furthermore, some insurance programs are madec.)inplicated and unwieldy by a desire to favorseveral brokers by having each write a few smallpolicirs Many other municipalities appoint oneperson as broker of record to super the pro-gram and split commissions am several localinsurance agents or brokers. This patronage

tern is frequently carried out at the expense ofthe city or town by eliminating those brokers orcompanies that could provide effective propertyappraisals, coverage improvements, and lowercosts.

Competitive bidding is used occasionally. Often-times, it is not a planned procedure. Competitivebidding is essential in arriving at the right deci-sion and the business should only be awarded/toa broker or company that can and will renderthe needed services effectively.

Many school buildings which were erected in the1890s or early 1900s have depreciated to a pointwhere carrying no insurance may represent goodjudgment. On the other hand, the uninsured lossof any building, or particularly a modern multi-million dollar school, is a shock catastrophe whichthe taxpayers can ill afford.

Some school buildings are insured for their re-placement value. However, on most insuredbuildings, their actual cash value (replacementcost less depreciation) is used. The insurableworth of properties is determined by occasionaluse of professional appraisers and an annualupdating of values based on a statistical inflationcost factor. More frequently, underwriter's orbroker's engineers assist in this valuation effort.However accomplished, the determination ofproper building values on either replacement oractual cash-value basis is essential to establish-ment of proper coverage. Estimating insurablevalues is, too frequently, practiced by municipali-ties throughout the Commonwealth. This habitcan produce overinsurance or underinsurance.Both of these conditions, particularly insufficientprotection, are detrimental to the taxpayer,

A 90% coinsurance clause is usual in the PublicInstitutional Property (PIP) Form. Deductiblesfrom zero up to $10,000 per loss are used. Largerdeductibles, such as 4541;000 or $250,000 andhigher, may be available. They appear practicalfor use by cities, especially those without insur-ance coverage at the present time.

Most cities and towns do not carry general liabilitycoverage on their school operations due to sov-ereign immunity from most types of suits in theCommonwealth. This is true despite the fact thatteachers may be sued personally and the munici-pality is required by law to defend and indemnifythe teacher against actions alleging negligence.Nevertheless, those that insure frequently carryvery modest limits. Therefore, they are unpro-tected for a large damaging loss.

Minimal automobile liability coverage is usuallycarried. This, again, adversely exposes taxpayersto a large loss. 92

Many cities and towns self-insure their liabilityunder the Workmen's Compensation Act. Mosttake advantage of the elective provision of the actand only provide benefits to laborers, workmen,and mechanics. School administrators, teachers,,and nurses are, therefore, without this protectionin many instances

Today, conditions are unlike those of the past.Liability claims of all types are more frequentlymade. In addition, they cost large sums of moneydue to a claim-conscious public, huge medicalbills, increased living costs, and liberal awards bygenerous courts. Workmen's compensation claimscan now be measured in hundreds of thousandsof dollars. Therefore, past experience should notbe used as a guide to future practices.

RECOMMENDATIONS

1. The Department of Education should createa position of Supervisor of Insurance.

The purchase of insurance for school buildings.personnel, and vehicles is handled in municipali-ties by officials such as the mayor, treasurer,auditor, town manager, or selectman. Most com-monly, no one in the office of the Superintendentof Schools is involved.

Someone with broad professional insurance ex-perience should be hired at the state level toadvise, counsel, and direct those responsible forplacing all types of school insurance. It is_desir-able there be some degree of uniformity in theinsurance purchased, whether or not the city ortown decides to fully insure or partially insurewith catastrophe coverage. Therefore, the super-visor should direct his efforts toward assistingmunicipalities to obtain the broadest coverage,best service possible, the lowest cost from nation-ally recognized companies, and a well-designedprogram. Implementation costs are estimated at$25,000 per year., Annual savings should morethan cover the salary paid to the supervisor.

2, The General Court should amend the lawto make it mandatary for any municipalitywhich does not carry primary insurance onits buildings and contents to purchase ex-cess -loss coverage.

Many cities and towns carry fire and extendedcoverage with and without deductibles. Althoughthe General Laws, to some extent, provide forfunding or payment of insurance premiums, sev-eral cities of this Commonwealth have no protec-tion against loss due to fire, hurricane, tornado,vandalism, and the like. The taxpayer should notcontinue to be, exposed to additional or potentialtaxation because of a catastrophe that could costa school district as much as $20-million

J

85

The dollar amount of per-occurrence retention ofthe city or town should be determined by eachmunicipality. Additionally, the amount of excess-dollar coverage should also be decided by themunicipality, but in no event should it be lessthan the sound insurable value of the mostvaluable building minus the retention or deducti-ble. Across the state, the added costs would bemore than offset by insurance-covered losses.

3. The General Court should amend the Work-men's Compensation Act to make mandatorythe provisions of the law to all local andregional district school system employees.

The state-wide inequality that occurs becausesome municipalities broadly elect to. includeteachers while others decline to do so is'unfair toomitted employees. All school districts in theCommonwealth have carefully arranged groupaccident and health coverage with Blue Cross andother carriers for payment of nonoccupationalbenefits to all employees. Therefore, it appearsinconsistent that they have not furnished benefitsof the Workmen's Compensation Act for occupa-tional accidents. Annual costs to the state cannotbe estimated.

4. The General Court should amend the lawto require municipalities not insured againstliability for Workmen's Compensation tocarry single accident excess insurance orreinsurance.

A few towns -and several of the largest cities anthe Commonwealth, do not purchase Workmen'sCompensation insurance. In the event of seriousinjury to a Person of long-life expectancy andmany dependents, or a catastrophic- occurrenceinvolving more than one employee, the city ortown would have to assess the taxpayer. This isnot a sound position. Therefore, a policy shouldbe purchased for a minimum of $500,000 in excessof $25,000 or $50,000 self-insured retention foreach accident to eliminate such situations. Addedcosts of securing this coverage would be compen-sated by losses covered.

5. The General Court should amend the lawsto extend indemnification to all employeesfor expenses or damages resulting from anaccident due to theii own negligence arisingout of their employment.

The ever-increasing claim-mindedness of the gen-eral public emphasizes the narrowness of thisparticular section of the General Laws. Theschool department of a municipality is constantlyexposed to hazards associated with directing andinstructing children of many ages, operation ofvehicles, as well as selling, preparation, andserving/of food. In the event of a serious occur-

.9 3

rence, a plaintiff's attorney would not hesitate toact against one or more school employees, includ-ing teachers. Implementation costs would beoffset by losses covered.

6. The General Court should amend the lawto require that municipalities provide gen-eral insurance, including products and ve-hicle liability protection, with a minimumcombined limit of $1-million per occurrenceeither by securing primary insurance orpurchasing appropriate excess insurance cov-erage above a retention for each occurrence.

A section of the General Laws requires a city,town, or regional school district to "indemnify ateacher in its employ for expenses or damages outof any funds appropriated for the purpose." How-ever, very few municipalities carry general andvehicle liability coverage or appropriate funds toprotect the liability of teachers or other employeesfor alleged negligence which causes bodily injury,property damage, or personal injury.

It is recognized that sovereign immunity fromsuits does not apply to individual teachers orother employees. Therefore, their daily exposureto claims or suits from students and parents aris-ing out of instructional and noninstructionalduties, including the serving of food, could bevery costly to the taxpayer.

7. The General Court should create a statetrusteeship which will be the insuring entityfor the single packaging of group health andlife insurance for all school employees andother municipal and county employees.

There are now about 300 health contracts and asmany life contracts in effect for governmentalunits throughout the state. Depending upon thesize of each insured plan, the insurance companyexpense loading will fluctuate. The aggregategross premium, including life insurance, for thesecontracts is estimated to be in the vicinity of $50-million. The writing of one state-wide plan en-compassing the variation of rates and benefits bycounty, in addition to stimulating company com-petition, would reduce this expense loading to apoint where annual savings of $2-million to $5-million are possible. To equalize all insurancebids, the state premium tax should either beincluded or excluded uniformly. Further, com-missions to be paid to agents or brokers must beexcluded.

Attendance ServicesPublic school systems in the-state seek to ensurethat all persons required by law to attend schoolare in fact, doing so. Children between the agesof seven and 16, with certain exceptions, mustattend some approved school. Furthermore, it

is the responsibility of the school committee ofeach town to provide for and enforce attendanceof all children actually residing therein.

There are three separate but related functionsinvolved in the enforcement of attendance rules.These are a census of school-age population, dailymaintenance of attendance records in schools,and special responsibilities of a supervisor ofattendance.

Each town's superintendent of schools is requiredby law to file an annual statement with the Com-missioner of Education, by December 1 whichreports the nu;nber of minor children who werein full-time attendance at some school as of Octo-ber 1 of that year, and whose parents or guardianswere residents of the town. This record is com-piled in a number of ways throughout the state..

Attendance, which was once taken by the teacher,summarized on the report card, and reported tothe principal for disciplinary action when theinstructor suspected problems, has been trans-formed markedly. Today, there are severalcomputer service bureaus offering sophisticatedattendance systems, and one of the first tasksundertaken by schools with unit record equip-ment or computers is the attendance system. Atotal of 71 schools, in answer to a state survey,indicated use of data processing equipment inattendance registers. The legal requiremlents forthese statistics have changed a reasonably ac-curate and simple system into a time-consumingand expensive method. Thus, the original motiva-tion by the state to enforce attendance throughlegislation has been nullified.

Each school committee is required to appoint oneor more supervisors of attendance, more com-monly considered as truant officers. However,in some cases their responsibilities go well beyondthat of being policemen. In small towns, it iscommon practice for a policeman to be employedas a part-time attendance officer and receive asalary from the school system.. In other cases, alocal officer performs this work as part of hisnormal duties.

A 1969 study by the Massachusetts AldvisoryCouncil on Education (MACE) entitled PupilServices in Massachusetts Schools indicated allbut one of the supervisors in the sampling of 28scfpol districts had less thai, . bachlor's degree.The most frequently mentioned position hellprior tor concurrent with appointment as asupervisbr was with a law enforcement agency.

EVALUATIONAll towns and cities in the Commonwealth arerequired by law to ,compile an annual census of

school-age children. Since the towns' lists includeonly persons who are 20 years of age or older theyare, by themselves, not useful for school purposes.Therefore, the most complete school census isaccomplished by door-to-door canvassing of allresidences included in the lists of these populationcenters. Canvassing is normally performed bypart-time workers who are compensated either onan hourly basis, a flat salary, or on the number ofpersons they count. It is not uncommon for can-vassers to be school staff members. In a fewcases, the door-to-door work is done as a projectof a high school class.

In some towns, information on persons under 20is collected when the street lists are compiled.However, such complete listings do not conformwith the school census and street-list laws. Thestate regulations stipulate the census must becompiled during the first two weeks of Octoberand the street listings are completed during'January and February,

The most common source of data on school-agepopulation is the list of enrolled pupils which issupplemented by tips on nonregistrants fromphone-callers and other students. If the purposesof the census are to aid enforcement of attendancelaws and help school systems estimate futurefacility requirements, this procedure appears tobe inadequate,

There are several reasons why attendance recordsare maintained for indefinite periods of time inschools across the 'State. These data are fre-qUently stored in bound volumes at a cost of$30 each.

Po. Statutes require the current attendance sys-tem. Chapter 72, Section 8 stipulates that theattendance register, under the direction ofthe superintendent, be maintained at theschools and kept open for inspection by thesupervisors of attendance, the commissioner,and agents of the department.The law is also quite specific about the calcu-lation of the net average membership whichis used by the state in its computation ofschool reimbursements.These data are needed to establish the where-abouts of a student involved in court actionif a question should arise as to his havingbeen in school at the time,Such information is required to ascertainteachers' teaching record's in a school.

Po. Records are used to establa birth dates forvarious purposes such as social security.

It is questionable if these reasons justify themoney and time being expended beyond the class-

87

room and the guidance department to compilethese data. Most school districts do not have asufficiently large number of attendance problemsto justify a full-time employee, and rarely doschool districts share an attendance officer.

The qualifications for state certification of a super-visor of attendance are such that a person withany training or experience in guidance workis a rarity. A working relationship betweenguidance and attendance personnel is unusual.

RECOMMENDATIONS8. The General Court should amend the law

so the school census and town listings mightbe taken simultaneously and require townofficials responsible for compiling street liststo collect information on all residents.

The listing of all occupants of a residence, ratherthan only those over 20 years old, would add littleto the cost of a town census. It would also provideuseful data on pre-school children as well as thosewho should be attending school.

Inasmuch as the school fiscal year will begin onJuly 1 in the future, a census of children takenearly in the year--rather than in Octoberwouldbe useful in planning the school budget. Since'about 50% of the 1.3-million pupils in the Com-monwealth are counted in a separate school cen-sus, elimination of the duplication could save$162,500 per year based on half of the pupils at$0.25 each. In districts where the school count isfounded upon records of pupils attending schools,phasing out the compilation would offset whateveradditional clerical burden is placed on those whocompile the town lists.

9. School administratiOns should designateguidance personnel 'aI supervisors of at-tendance,and, where possible, shift disciplin-ary aspects of the position to local policedepartments.

Many duties a supervisor of attendance is re-quired to perform are more closely related toguidance and counseling than law enforcement.Therefore, such .tasks could be handled better bystaff members who have training and experiencein guidance work.

If some of these responsibilities were shifted, thetime required for enforcement of school atten-dance laws would be decreased and could' betransferred to the local police department. A localpolice officer, preferably one who is dealing withjuveniles, would then be performing duties whichare now being done, often by the same officer asa part-time, extra-income job. This action wouldprovide a desirable linking of guidance andattendance work functions.

88 %-)

10. The General Court should base local schoolaid on pupil enrollment for October 1 ratherthan on net average membership attendanceby amending Chapter 70, Section 4 of theGeneral Laws.

This change in the basis for aid to local schoolsin the Commonwealth J hou Id accomplish thefollowing:

11°` Provide no appreciable change in distributionof funds from the state to the local com-munity. The formula adjustment must assurethis.

Return the/emphasis or need for attendancestatistics to the teacher, local administratortruant officer, and the director of guidance.

lb' Eliminate a mass of statistics which are nowsummarized, displayed, and analyzed with novalue to the contributor and of doubtful useat the state level. Thus, the cost of passingattendance information beyond the localschool would be saved;

Lateness and absence are "quickl3y noted in theclassroom. Teachers and guidance directors haveindicated that the chronic absentee, the youngsterwith a health problem, the delinquent, and theemotionally disturbed child are known to theschools. Attendance is a" reinforcing measure-ment. However, the numerical summaries ofabsence and the rush to data processing systemsand service bureaus, to compile statistics havetended to display numbers that lack dialogue forknowledgeable people. They are unable to de-termine why the absence occurred or if it willhappen again.

Attendance taken by the teacher, acted upon bythe teacher or principal, summarized on officerecords and report cards, and stored for one yearshould provide an adequate attendance-monitor-ing system. Implementation will provide annualstate-wide savings of at least $130,000.

Health ServicesHealth services are provided to all school childrenin the Commonwealth either by school districtemployees or local Board. of Health personnel,The specific services vary only slightly betweendistricts because most functions performed byschool doctors and nurses are prescribed by theDepartment of Health and by Massachusettsstatutes.All districts have one or more school physiciansunder contract on a part-time basis. These doctorsexamine students at least once every three yearsand check over those who would compete ininterscholastic athletics. They are, however, avail-able for emergencies.

There are close to 1,000 school nun-es in the state.About half are employed by the schools while theother half are assigned to -.the schools by localBoards of Health. Their responsibilities includetesting eyes and ears, weighing and measuring allpublic and parochial students each year, andmaintaining student records. Also, they arrangeclinics at Which local Boards of Health innoculateall students requiring it. In addition, they ad-minister first-aid and, to varying degrees, partici-pate in health education and counseling programs.The total cost of school nurses to the state in 1969was approximately $6.5-million.

Certain school districts also provide dental hy-giene services, dental and optometric examina-tions, speech and hearing therapy, as well aspsychiatric and -psychologic care.

EVALUATION

While the health services provided to studentsare quite uniform, accessibility to doctors andnurses varies greatly. The American NursesAssociation recommends one school. nurse for nomore than 1,300 students. However, actual ratiosin the school districts range from one per 800students to one per'2,500. Participation of schoph,ysicians in education programs is rare and t at9f nurses is virtually negligible. In the ca :e ofnurses, the most obvious reason is a shor ge oflime. The clerical, burden on school ryes isgreat., and can absorb as much as 90/c Of thenurses' time. In addition; the testing a d measur-ing requirements can be performed , y po.sonswith less training than a registere /nurse.

Doctors and nurses, when assigned to schools,are under the supervision of the superintendentwho retains the many responsibilities imposed bystatutes. Both d6ctors and nurses are availablefor classroom -instruction when their specializedknowledge in fields of hygiene, sex education,;drug use, and the like is desirable,

Nurses employed by the schools ,normally hive a. work year which coincides with the school year.On the other hand, local Board of Health nurseswho are assigned to the schools have additionalresponsibilities during school vacation periods.

RECOMMENDATIONSSchool administrations should use nonpro-fessional adults on a part-time, full-time, orvolunteer basis to, perform clerical and othernonprofessional work tasks which consumemuch time of school nurses.

School nurses often maintain that their ability tocontribute to educational programs as well as

provide additional health services is minimizedby the lack of available time. Therefore; use ofadults with less professional training than givento registered nurses would either produce thisextra freedom or permit a reduction in the num-ber of nurses ,Since implementatiOn of the formeris more likely to occur, it would permit schoolnurses to make a greater contribution to theschool program and broaden their role in the areaof pupil services.

Personal illformation included in the health filesrequires those handling these data be discreet.However, it does not'follow that only professionalnurses are sufficiently jUdicious. Therefore, non-professional persons could, with competence anddiscretion, (lb many of the tasks now ,performedby the school nurses.

Savin,0 to each school district will depend upontheindividual health organization. Nurses would

e increased time for performance of their pro-,

eFsional duties. This could result in eliminating,- some part -tune nurses or make it unnecessary to'

hire 'additional nursing capability as the needincreases.

/Y12. Cities and towns should make local health

agencies responsible for health services inall public schools.

School nurses work closely with public healthnurses, especially in' the conduct of innoculationclinics. Public health nurses, in many cases, maybe able to perform more effectively in the schoolsystem because of familiarity with the community,homes, and the students. School-employed nurses,ih almost all cases, work the school year and takethe customary vacations. On the other hand, town-employed nurses work the calendar year and aregranted less vacation time Therefore, if all schoolnurses and physicians were under the jurisdictionof the local Board of Health, the board wouldhave greater flexibility in assigning professionalpersonnel to various functions. Freedom to sub-stitute public health nurses for school nursesduring the school year, and conversely duringvacation periods, would contribute to a moreefficient and effective use of the community'shealth resources.

In addition, it may be that some of,the responsi-bilities and most of the vacation periods of publichealth nurses could be shifted or otherwise trans-ferred to those days when school nurses ,wouldotherwise he idle.

Arrangements through which school systems em-ploy local physicians on a part-time basis differgreatly, In many cases, they are unsatisfactoryin terms of availability of doctors and cost to theschools For the schools to use doctors who are

.96$9

employed full-time by the local Board of Healthwould be advantageous. In some cases, it mightpermit the Board of Health to maintain a full-time doctor on its staff.

In proposing a shift of health service responsi-bility from schools to local health officials, it isintended the health personnel, when assigned,would continue to be directly responsible to theSuperintendent of Schools. However, the super-intendent would be freed of the budgeting andadministrative problems; they would, in turn,become responsibilities of the community healthagency.

Shiftipg the budgeted expense from the schoolbudget to the municipal budget will not, in itself,save money. Consolidation of health services,however, should result in a savings due to moreeffective use of doctor's and nurse's time over theentire year.

Library Services

Most high schools and junior high schools inMassachusetts have central libraries in theirbuildings. About 50% of the elementary schoolsahave libraries within their buildings.

Certain trends are apparent in library servicesprovided in the public schools. One is the steadyincrease of expenditures which exceeded $8-,million in 1969. Another is the effort of manyschool districts to provide a central, professionally- ,staffed library in every school by replacing bothroom libraries and reliance upon public librariesand bookmobiles for materials. Third, there is adistinct direction toward extending existing librar-ies. Thus, library services are quite different fromwhat they were in the past.

A more accurate title for what once were librarieswould be instructional media centers. These unitsare, in many cases, providing a wide range, ofservices and facilities associated with changingteaching methods. Further, there has been aproliferation and availability of many types !oflearning aids.- 1,

The first trend, that of increasing expenditures,is explained primarily by the growing number ofstudents. Additionally, the steadily rising levels,of professional salaries account for 62% of all \library expenses. However, the use of volunteersin about half of all school districts has keptexpenditures, from escalating higher.

The trend of replacing room libraries by centrallibraries has been accelerated by availability offederal funds under Title II of the National De-fense Education Act. These funds, plus increased

90. 9.7

use of volunteers have contributed to improve-ment of library services, particularly in the ele-mentary schools. They. are encouraging thepurchase of more books as well as providing helpin staffing additional central libraries.

The trend of libraries becoming instructionalmedia centers is creating a higher level of ex-penditures for equipment and materials. Thesecenters, in addition to providing books, make filmstrips, slides, films, projection equipment, tapescf cultural material and learning programs, artprints, and records available upon request. Theyoperate as workshops where the student can learnat his own speed. These centers also providealmost unlimited opportunities for teachers andstudents to utilize modern teaching methods.

\N. EVALUATIONThe great expans of learning and teachingresources is a major or in increasing the costof education. It emphasiz ,the need for schoolsto pool their resources more effectively. Atpresent,there is very little centralization in anyarea of library services, whether in selection ofmaterials, purchasing, or processing.

Even though the schools in Massachusetts spendover $2-million annually for library supplies andmaterials, little attempt is made to capitalize onthe size of purchases. Within a district, eachschool generally prepares its own book ordersand, most commonly, they are placed with a bookjobber who -offers a standard discount.

The processing of books in about 60% of theschools is performed by trained librarians. Thisis a time-consuming operation. Virtually alllibrarians expressed a conviction they are unableto perform many desirable and necessary profes-sional services because of a lack of time.

In many cities, where little communication existsbetween school and pudic librarians, some un-desirable duplication of orders and facilitiesexists. Such duplication, especially of expensivereference works, could be eliminated by bettercoordination.

A serious and costly repetition occurs when morethan one school in a system, or even within aregion covered by several systems, owns expen-sive resource materials as well as teaching andlearning equipment which is not intensively used.The extent of such duplication represents a wasteof expenditures. In other cases, the cost ofmaterials and equipment which will not be inten-sively used represents an exhorbitant cost. Thisdiscourages the use of teaching and learningtechniques which may be educationally desirable.

RECOMMENDATIONS

13. School committees should coordinate the.purchase and processing of materials on aregional basis.

Most school systems are not large enough to pur-chase library materials at the best possible price.Therefore, consolidation of orders by-a group ofschool systems would be beneficial and would notpresent great administrative difficulties. The ideaof buying library materials on a regional basismight well include purchases by public libraries.It could be an effective means to minimize un-,necessary duplication of purchases within an area.

Currently, practically all school systems placetheir orders with book jobbers. On most items,they receive discounts which range from 257.c', to40% of listed prices. It is unusual for these ordersto be put up for competitive bids by the jobbers.Joint purchasing efforts would provide a largerand more attractive package to the jobbers. Thus,a reduction in price could be anticipated.

As suggested by the American Library Associa-tion and others, the processing of materials couldalso he performed more efficiently if it werecentralized. An alternative, but one that is rathercostly, would be for school libraries to makegreater use of the processing services and process-ing kits offered by most jobbers. Presently, about60% of the processing is done in the schoollibraries, most frequently by the librarian. Insome instances, volunteer workers perform theseduties.

In addition to the time required to process books,space requirements often present an acute prob-lem. Insufficient work areas are often cloggedwith newly-acquired books. While awaiting pro-cessing, they are not on the shelves where theycan be used. Centralized processing would reducethe time required to get newly-acquired bookson the shelves.

Public libraries generally direct their programstoward a different clientele than do the schools.Therefore, some overlap and duplication is desir-able. However, unnecessary duplication, particu-larly of expensive reference materials, is wasteful.A wide distribution of information describingwhich libraries in an area have particular refitence works would eliminate the need for someduplication. Additionally, the exchange of pur-chase order copies could eliminate more repetition.

Transformation of libraries into instructionalmedia centers encourages pooling of resources,especially audio and visual equipment. It maymake pooling imperative if certain teaching aidsare to be made available to others than the mostwealthy school districts. 9.8

One regional instructional media center, servingsix towns in southeastern Massachusetts, is pres-ently in operation. Project SPOKE was originallyfunded by a federal grant under Title III of theNDEA. This facility represents a pooling ofeducational materials and an accommodationwhere teachers can increase their skills anddevelop instructional aids. It clearly providesfacilities which none of the six communities couldhave or would have provided independently. Theproject has been enthusiastically received byeducators in all the communities involved.At present levels a library 'expenditures, asavings of only 10% would make an addi-tional $200,000 available for instructional mediamaterials.

14. The Department of Education should pro-mote the concept and establishment of re-gional instructional media centers.

The Department of Education should providefinancial assistance to schools who participate insuch projects. The experience of Project SPOKEwould indicate that many towns are ;anxious tobe part of such a plan. The use Made of thisproject by teachers is a demonstration of theeducational need which the center has been filling.In 1969, the state provided $825,000 for regionallibraries whose services are addressed primarilytoward public libraries. This direction of effort

as been justified because of the availability ofNDEA funds for school libraries. However, re-cent reductions of those federal funds makes therevival of state financial concern of prime im-portance to school libraries. Consequently, sup-port for regional media centers would be appro-priate and productive. Regional centers providethe least expensive method of providing adequateinstructional media centers.

15. The Department of Education should estab-lish a program to provide alystem of mutualsupport among all libraries.

Research material varies widely as to frequencyof use, although constant availability is essential.There,is no need for a large number of libraries tohold identical and infrequently used referenceworks if they have full knowledge of their availa-bility, and know they have full access to them.For instance, elementary school libraries might bebackstopped by high school and public libraries.Additionally, high school libraries could bebacked-up by public, university, or state libraries.Such an arrangement requires overall planningand coordination. The Department of Education,through its Bureau of Library Extension, alreadyis involved with all libraries. The departmentshould disseminate complete information on loca-tion and availability of research materials of

91

interest to all libraries. With this knowledge,librarians can adjust their orders accordingly.

This type of joint usage of infrequently used ma-terials is already being done, specifically throughProject SPOKE The benefits now enjoyed bythe six towns involved in that project (such asthe use of a film library and a library of journals,and copying facilities) should be extended to allcommunities.

16. School administrations should improve theavailability of library materials and facilities.

Just as important to efficient library operation ascutting of costs is increased use of existing facili-ties, Three methods would be to:

10.. Shorten the time required to get new ma-terials into circulation. For this, centralizedprocessing, or increased, use of preprocessingservices andkits is suggested.

Use volunteers to allow libraries to remainopen more hours per day. Such action willalso expedite the return of books.

00. Encourage students to check out books dur-ing vacation periods. One school libraryfound that only three books were lost eventhough more than 5,000 titles had been with-drawn for the entire summer vacation period.This is a small price to pay for the educationalsupport to children.

Property and Inventory ControlA formal definition of property control could bethe accounting for property through a system ofrecords, physical inventories. and reports. Simplystated, it is a system for recording what is owned,where it is. its worth: and how much use aparticular item receives.

Sound property control practices are of extremeimportance. They will provide:

10.. Valuation of property for insurance protec-tion against fire, vandalism, theft, and soforth.

PD. A record for police information in theftinvestigation.

An aid for budgetary and planning purposesof purchasing, replacement, and the like.

10.. Evaluation of the adequacy of holdings andcomparison of property with other schools.

Property control systems can be extremely de-tailed and require EDP facilities. They can alsobe simple manual systems. The best methoddepends largely on the amount of property andthe detail required.

92 99

Property control systems cost money to imple-ment and maintain. Nevertheless, costs can bejustified if they:

Allow recovery through insurance of thetrue value of property losses due to fire,vandalism, and other acts.

10.. Significantly decrease overall equipment re-quirements through increased utilization.

Effectively enhance the ability of manage-ment to direct, plan, and control operatingprocedures through increased knowledge of

, the present property situation. A typicalexample would be budget preparation.

It is good business practice to have an adequateproperty control policy. Lack of a proper systemoften leaves managemcat expoSed to losses andinefficient use of equipthent.

EVALUATION

Property control as practiced in Massachusetts'school districts is poor. Approximately 45% ofthe districts studied have an inadequate propertycontrol record. Some 34% have no record, and21' have records which are not kept up to date.Of those that maintain a record, 40% rely on aninformal annual inventory list prepared by teach-ers, while 28% have a more formal system forupdating records.

Inadequate records leave the school districts sub-ject to underinsurance. Furthermore, they runthe risk of unknown financial expenditures be-cause values of known losses due to fire or otherreason cannot be substantiated. In those districtswith relatively good records, an aggressive indi-vidual was involved in the insurance program.Most districts are not large enough to justifyelaborate property control systems to obtainadequate saving - opportunities through improvedutilization and lower investment. Regionalizationcould present this opportunity and, perhaps,justify extensive property control systems usingelectronic data processing techniques. Such sys-tems could provide transfer of equipment fromschool to school and significantly reduce equip-ment investment. Until school districts reachsufficient size to computerize property control,manual records should be established and main-tained.

RECOMMENDATION

17. School administrations should install prop-erty control systems within each schooldistrict.

The simplest system can start with two records.First, an annual inventory list, as shown dir-

CLASSROOM INVENTORY

TOWN Anywhere Massachusetts Date 6/15/70

BUILDlNG Number and Elementary

ROOM NO.-42 Teacher Miss Jones

Osseriptiao at ItemNumberOa Nati

CsoditiloNomberC F P

Vallihit Total

File Cabinets-3 drawer 4 2 $25 $130

wood 2 40

First ReaderTextbook 16 16 $ 2 $ 32

ectly above, should be prepared by the teachercovering all :'ems in her classroom. Compiledclose to budget preparation time, the list shouldcontain a description of all items located in theroom and the number of each. Further, it shouldindicate their condition. A copy of this inventoryshould be maintained by the school's principal.Additionally, a master file of all inventory listsshould be maintained in the superintendent'soffice. The value column should be filled in by'the su'perintendent's office as a guide to the valueof contents needed for insurance coverage.

Second, an equipment record card, as, illustratedbelow, should be maintained by the superinten-dent's office for all pieces of equipment costing

$100 or more. The card record should indicatethe following information:

Type of equipment.Manufacturer and model number,Serial number.Description.Ownership if other than the school district(e.g. ESEA Title III equipment),Location of the equipment.Listing of original cost, new, supplementalequipment, and repair record.

This equipment record card can be checked an-nually with the inventory lists. Any movement ofequipment from one location to another should bereported immediately to maintain correct infor-mation on the record card.

In some instances, the district may wish to imple-ment a numbering system. Use of a preesure-sensitive label having its ownìdentification num-ber will provide an inexpensive means of identi-fying the equipment. Consideration should alsobe given to use of a small pressure-sensitive labelattached in an unlikely place on the equipment.

EQUIPMENT RECORD\

_.4

TYPE: Typewriter DATE LOCATION

MANUFACTURER AND MODEL: Royal - Electric No. 450 9/15/70 Central High - Room 305

SERIAL NUMBER: 75423E

DESCRIPTION. Gray - Pica Type - 10 Pitch - 20 - in. Carriage

OWNERSHIP: District

DATE DESCRIPTION ITEM COST ACCt.N. REPAIRS

9/15/70 Original Cost j 525 00 525 00 I DATE .DESCRIPTION COST

Additions - Description NI11111111111

I1111

1111

I

DISPOSAL MO 11111111,

100 93

This has proven very helpful to police depart-ments In tracing stolen property. Such labels areoften overlooked even though serial numbersmay have been changed.

Staff TravelSchool districts in Massachusetts pay expensesfor school committee members, superintendents,business managers, principals, teachers, and staffmembers to attend various conventions, seminars,and study groups. Expenses of those who travelwithin the district in their private automobilesare usually reimbursed on a mileage basis orthrough an annual stipend.While the purpose for this travel is generallyconsidered worthwhile, a wide variance in policyadministration has developed. Amounts appro-priated for in-state travel range from $8,000 insome communities to less than $500 in others.Similarly, the sums allotted for out-of-state travelvary from over $15,000 to under $100. In bothcategories, such funding is not necessarily relatedto the size nor the total budget of the schooldistricts, To a lesser degree, this pattern alsoapplies to intradistrict travel. Most communitiesreimburse their staff members at the rate of $0.08a mile while others allow $0.10 per mile., A fewstipulate lesser amounts down to $0.055 per mile.Some districts allow a stated amount with norelationship to mileage traveled; thakis, stipulatedsums are given to staff members whether they areused or not.In most districts, no restriction is placed onamounts spent for food and lodging as long asthey are reasonable. However, no published guide-lines define the word reasonable. All districtsdemand written expense reports and most requirereceipts for lodging. Usually, the report is ahandwritten request for reimbursement in nopre-established form. If petitioned, some districtswill advance cash for travel.The amount requested for travel is approved bythe school committee as a lump sum in certaindistricts. Then, it may be expended as the super-intendent directs. However, in others, amountsare approved in detail or by name, and no transferof funds is allowed. Notwithstanding, only a fewdistricts require those attending specific functionsto file a written report and make it available forthe benefit of associates.

EVALUATION

There is no overall policy for guidance of ad-ministrators in most communities. The absenceof a written policy contributes to the discontentof professional people, and could be a time-consuming factor in contract negotiations. Fur-

% 101

ther, no information is available for use by schooladministrations to establish policies of staff travelrelating to who travels, where, when, and atwhat cost.

RECOMMENDATION

18. School committees should establish writtenpolicies governing travel and reimbursementregulations for school district personnelbased on guidelines to be developed by theDepartment of Education.

The reluctance of some districts to require anemployee to file a written report on a metingattended, defeats the primary purpose of theeffort. Such a report could and should recordinformation of value to others having similarinterests. Therefore, policy governing who maytravel and when should be firmly established be-fore it becomes an item for contract negotiations.Furthermore, expense forms for reporting travelcosts should be uniform in content and format.In addition, reporting of cost items should bedetailed and complete.The Department of Education should establishguidelines on staff travel for the administratorsin formulating, policies. Local districts could thenestablish a firm policy designating who shouldtravel, where, when, and at what cost. Items for

-etinsideration include:Preparation of guidelines to encourage par-ticipation in professionally oriented programs.Definition of allowable expenses.Determination of per-diem allowances forfood and lodging.

10- Establishment of a fixed per-mile rate for useof personal vehicles.Definition of procedures regarding the grant-ing r...f monetary advances, prior to travel.

Development of a standard expense reportform.

loRequirements for reporting on meetingswhich have been attended.

In a similar manner, written policy governing theuse of leased or school-owned vehicles in theconduct of intradistrict school business should bedeveloped to provide:

A clear definition of circumstances underwhich district-owned equipment is used.An assignment of responsibility in operationof any vehicle.'A form for reporting use of any vehicle onschool business.Other regulations necessary to protect thedistrict and the vehicle operators.

se07;om V

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Attendance

Michigan Child Accounting and Auditor'sManual, Department of Education, Lansing,Michigan, 1969.

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Budgeting

The School Finance, Transportation, and Ac-tivity Fund Laws including The State Boardof Education Regulations for Administrationand Handbook on Budgetary and BusinessManagement, Bulletin No. 145-P, 1969-70,State Board of Education, Finance Division,Oklahoma City, Oklahoma.

Manual of Procedure for Uniform FinancialAccounting and Budgeting for New MexicoSchool Districts, Public School Finance Divi-sion, Department of Finance and Administra-tion, State Capitol Building, Santa Fe, NewMexico, July 1967.

School Business Management HandbookBudget, The University of the State of NewYork, The State Education Department, Al-bany, New York 12224, 1968.

Manual of InstructionsBudgeting for UtahSchool Districts, Department of Public In-struction, Salt Lake City, Utah, April 1, 1969.

Effective Budget Building, School BusinessManagement Bulletin SBM-69-1, OregonBoard of Education, Salem, Oregon 97310,November 1969.

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Facilities Operation and MaintenanceAdministration of Maintenance and Opera-tions Departments in California School Dis-tricts, School Business Administration Publi-cation No. 10, California State Department ofEducation, Sacramento, California, 1969.

Manual of Planning Standards for SchoolBuildings, Second Edition, The University of

96 103

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Handbook for School Administrators andSchool Custodians, State of Delaware, De-partment of Public Instruction, Division ofBusiness Administration, Dover, Delaware,June 4, 1963.

Custodians Operational Guide, Pittsfield Pub-lic School System, Pittsfield, Massachusetts.Housekeepihg Program for the Public Schoolsof Pittsfield, Pittsfield, Massachusetts, ServiceEngineering Associates, Inc., November 25,1968.

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Maintenance Management of Public Worksand Public Utilities, NAVFAC MO-321, De-partment of Navy, Naval Facilities Engineer-ing Command, Washington, D.C., July 1968.The Complete Guide to Building and PlantMaintenance, Thomas F. Sack, Prentice-Hall,Inc., Englewood, New Jersey.School Custodial Services, Frederick W. Hilland James W. Colmey, T. S. Denison & Com-pany, Inc., Minneapolis, Minnesota.

School Plant Planning Series, Office of theState Superintendent of Public Instruction,Utah State Board of Education, Salt LakeCity, Utah.Introduction to the First SEF Building Sys-tem SEF Report T1, The Metropolitan TorontoSchool Board, Toronto, Canada, June 1968.

Floors, Care and Maintenance, Series S-3(Revised), Post Office Department, Washing-ton, D.C. 20260, September 1969.

Maintenance and Repair, Buildings and Struc-tures, Preventive Maintenance, Safety Re-quirements, Repairs and Utilities, TM 5-610,Departments of the Army and Air Force,April 1954.Heating Cooling Ventilating Handbook,PB 181 121 Rev. 2, Department of the Navy,Washington, D.C., November 1963.Standards for Equipment AcqUisition andMinor Remodeling under Title III of theNational Defense Education Act of 1958, Stateof Montana, Department of Public Instruc-tion, Helena, Montana, May 1965.

Funding

State Aid' for Elementary and SecondaryEducation in New York State as apportionedin 1967-68, The University of the State ofNew York, The State Education Department,Division of Educational Finance, Albany,New York 12224, March 1969.

A Guide to Programs of State Aid for Ele-mentary and Secondary Education in. NewYork State 1968-69, The University of theState of New York, The State EducationDepartment, Division of Educational Finance,Albany, New York 12224, January 1969.Oregon School Bond Manual, School BusinessManagement Manual No. 5, Oregon Board ofEducation, Salem, Oregon 97310, August 1968.

A Reference Manual to the State School AidAct of 1968-69, State Superintendent of Pub-lic Instruction, Lansing, Michigan.New England Economic Review, Federal Re-serve Bank of Boston, January/February1970.

'Health Services

Pupil Services for Massachusetts Schools,Gordon D. Liddle and Arthur M. Kroll, Mas-sachusetts Advisory Council on Education,182 Tremont Street, Boston, Massachusetts02111, September 1969.

Insurance

School Business Management Handbook In-surance, The University of the State of NewYork, The State Education Department, Al-bany, New York 12224, 1956.School InsuranceA Handbook for SchoolBoard Minutes, New York State School

104

Boards Association. Inc., 111 WashingtonAvenue. Albany, New York 12224.

Administration of the School Insurance Pro-gram, School Business Administration Publi-cation No. 1, California State Department ofEducation, Sacramento, California, January1963.

Libraries

Elementary and Middle School Survey 1968,Divisions of Curriculum and Instruction andResearch and Development, Commonwealthof Massachusetts, Department of Education,182 Tremont Street, Boston, Massachusetts.Pupil Services for Massachusetts Schools,Massachusetts Advisory Council on Educa-tion, 182 Tremont Street, Boston, Massa-chusetts, September 1969.A Guide for Montana School Libraries, Su-perintendent of Public Instruction, Helena,Montana 59601, 1969.

School Lunch Programs1970:. Starting School Food Services, "Schooland College Food Management", December1969, Horbrace Building, Duluth, Minnesota55802.

Organization Services Functions, The StateEducation Department, The University of theState of New York Press, April 1968.

Management InformationSystems and Data Proc4ssing

Introducing New York State's Basic Educa-tional Data System, Information Center onEducation, The State Education Department,Albany, New York 12224.A Comprehensive Approach to Pupil Sched-uling and Grade Reporting, The University ofthe State of New York, The State EducationDepartment, Albany, New York 12224, 1964.

Survey Educational Electronic Data Pro-cessingIllinois Public Schools, Superinten-dent of Public Instruction, 316 South SecondStreet, Springfield, Illinois 62706.Automation in Connecticut Schools, Depart-ment of Education, Hartford, Connecticut,June 1969.MIS:, Rx for Local Government Ittfa4ise,Page 33, February 1970 Issue, Volume 2,Number 2, Computer Decisions, Hayden Pub-lishing Co., Inc., New York, New York.Government of the People, for the Poole, bythe Computer, Page 15, January 1970 Issue,

$7

Volume 2, Number 1,, Computer Decisions,,Hayden Publishing Co., Inc , New York,New York.

Property and Inventory ControlProperty Accounting for South CarolinaSchools, State Department of Education,Columbia, So lath Carolina, 1963.Property Accounting, For Title 1 Elementaryand Secondary Education Act of 1965, Stateof Montana, Harriet Miller, Superintendentof Public Instruction; Helena, Montana,March 1966.

School CommitteesSuperintendent Relationships

Seminar Program on Boardsnianship, Merri-mack Education Center, Chelmsford, Massa-chusetts, May.1970.Educational Policies Reference Manual, Na-tional School Boards Association, 152 CrossStreet, Waterford, Connecticut 06385.

TransportationSchool Business Management HandbookTransportation, The University of the Stateof New York, The State Education Depart-ment, Albany, New York 12224, 1967.Student Transportation Handbook, State ofHawaii, Department of Education, Office ofBusiness Services, July 1969.Transportation Delaware Handbook forBoards of Education and School Administra-tions, State of Delaware, Department ofPublic Instruction, Dover, Delaware, June1967.

Handbook for School Bus DriversA Sug-gested Outline, The University of the Stateof New York, The State Education Depart-ment, Division of Educational ManagementServices, Albany, New York 12224, January1966.

School Bus Driver Manual, State Superin-tendent of Public Instruction, Helena, Mon-tana 59601, 1967.

Manual for the Instruction of School BusDrivers, The University of the State of NewYork, The State Education Department, Al-bany, New York 12224, 1963.Advanced Training Course for School BusDrivers A Manual for Instructions, TheUniversity of the State of New York, TheState Education Department, Albany, NewYork 12224, 1964.,

98105

Minimum Standards for School Busses inMontana. State Superintendent of Public In-struction. Helena,. Montana 59601, November1961..

Regulations of the Commissioner of Educa-tion Relating to School Bus Rules. Standards,and Sperlieations, The University of theState of New York; The State EducationDepartment; Albany, New York 12224, Jan-uary 1, 1968.

Manual for School Bus Drivers. Departmentof Public Instruction, Safety Department,Pierre, South Dakota, 1967.

Powers and Duties of School CommitteesTransportation of Pupils, by Joseph Robinson,Massachusetts Association of School Com-mittees, Inc., Room 224, 73 Tremont Street,Boston, Massachusetts 02108, January 1963

Minimum Standards for Pupil Transportationin Maine, State of Maine, Department of Edu-cation, Augusta, Maine January 1966.

Statistical ReportPupil Transportation Ser-vice 1968-69, Office of School AdministrativeServices, Division of Administrative Services,Georgia Department of Education, Atlanta,Georgia 30334.

The Administration 'of Pupil Transportationin Ohio; State of Ohio, Department of Edu-cation, Columbus, Ohio, 1968.

Administration of Public School Transporta-tion, School Business Administration Publi-cation No. 6, October 1958, Department ofEducation, Sacramento, California.

A Handbook Florida Public School BusTransportation, State Department of Educa-tion, Tallahassee, Florida, 1959.School TransportationContract or School-Owned? Department of Education, Hartford,Connecticut, December 1961.

A Report on School Transportation 1968,Concord-Carlisle Regional School District,Concord Public Schools, Concord, Massa-chusetts.Guidelines to School Transportation Servicesin Massachusetts, Department of Education,Boston, Massachusetts, 1969.

VolunteersSchool Volunteers for Li sum, 16 ArlingtonStreet, Boston, Massachusetts 02116.Newspaper Article, Sunday Herald Traveler,Boston, Massachusetts, Pages 11-13, March 8,1970.

S e-. evr, \II

Accounting, 31, 47American Association of School Building

Officials, 57Associated Industries of Massachusetts, 1, 2Attendance Records, 47Auditoriums, 49Bidding Laws, 55, 70Board of Education, 19Board of Health, 88, 89Bond Interest, 40, 55Bond Issues, 6Bookkeeping, 33Boston, 35, 51, 52Budgeting, 6, 31, 44-46Budgeting by Objectives, 6, 17, 45Budgeting, Pkgram, 22, 31, 45, 46Building Cost Index, 55Bureau of Adult Education and Extension

Services. 58Bureau of School Food Services, 77, 80Bureau of Nutrition Education, 7, 76Bureau of Public Information, 32Bureau of School Management

Services, 5, 7, 31, 62,'64, 66, 71, 82California, 51, 52Census, 8, 88Central Kitchens, 7, 78Collective Bargaining, 5, 31, 35-37Commodities, U. S. Department of

Agriculture, 7, 78Communications, 5, 24, 31Consolidation of Districts, 19Consultants, 59.

r

Index

i

106

CostsConstruction, 3, 38-42, 50, 52Per-pupil, 7, 69Per-square-foot, 37, 54

Credit Rating, 40Custodial Training Foundation, 58Custodian Training, 6, 57, 58Data Processing, 8, 23, 31, 66, 71, 81-84, 92Department of Education, 1, 5, 29-32Department of Public Safety, 55District Cooperation, 4, 19-22Division of Occupational Education, 57, 58Division of Research & Development, 23, 31, 34Division of School Construction and

Facilities, 38, 40, 54, 59Doctors, 89Educational Facilities Laboratories, Inc., 49, 52Engineering Bureau, 39Equipment Control, 93Facilities, 6, 37-42, 83FacilitiesFacilitiesFacilitiesFacilitiesFacilitiesFacilitiesFacilities

Acquisition, 6Construction, 6, 49-56Design, 49-56, 59Maintenance, 6, 53, 60-62Operation, 6, 53, 56-60Planning, 6, 48-49, 59Utilization, 48-49

Federal Aid to Education, 22, 46, 47Fiscal Systems, 6, 44-46, 82Food Service, 76-80Funding, 5, 27-29, 41Health Services, 31, 88-90Highlights, 3-8

98

Illuminating Engineering Society, 51: 55Institute of Sanitation 'Management 57Instructional Media Center, 91Insurance, 8, 31. 32, 84-86Interfacing Systems, 8, 84-94Inventory Control, 8. 31,. 92LEMIS (Local Educational Management

Information Systems), 7, 81-84Libraries, School, 90-94Life-Cycle Cost,. 60Lighting, 51; 55Local Autonomy, 4, 20Long-Range Planning,. 4 6, 17-19, 49MACE (Massachusetts Advisory Council on

Education) ; 1, 2, 23, 36, 40, 52Maintenance 31. 60-62Maintenance, Control by School

Department, 33, 61Management Information

System,. 5, 7, 23-25, 81-84Manpower. 5, 29-37, 71Manuals.

Building Design and Construction,Cafeteria Personnel, 80Collective Bargaining, 36Custodial, 6, 57-59Purchasing, 7, 74Transportation, 7

Master Plan, 21-23MEMIS (Massachusetts Educational

Management InformationSystem), 5, 23-25, 82-84

Merrimack Educational Center. 22Modular Construction, 6, 40, 52MTA (Massachusetts Teachers

Association) ; 35, 81National Council on Schoolhouse

Construction, 52"Nation'al Custodian"' Magazine, 57New England Head 4anitors Association, 57New York City Planning Commission, 38Nurses, 89Office for Communications, 31Office of Long-Range Planning, 5, 19Office for School District Cooperation 21

5 4

100

Operation and Maintenance, 6, 31Owned and Operated School Busses, 68, 69Parochial Schools, 48, 51Personnel, 31, 61. 71, 82, 89Personnel,. Guidance, 88Preventive Maintenance. 7, 56, 62Principals, 37Procurement, 7, 32, 33, 69-76, 83Property Control, 92, 93Property Tax, 5, 27Records Retention, 47Rehabilitation, 51, 54Resources for Public School

Education, 5, 27-42School Building Assistance Bureau, 21, 39, 54School Building Committee, 32School Districts, 5School Lunch Programs, 76, 79, 83Site Development, 54Site Selection, 54Space Utilization, 49Special Purpose Areas, 49SPOKE, 22, 72, 91Stabilization Fund, 6, 40, 41Staff Travel, 94State Aid to Education, 27State Aid Formula, 27Suggestion System, 59Superintendentj of Schools, 33, 36, 46, 71Supervisor of Custodians, 57, 58Supervisors of 'Attendance, 88Table of Accounts, 44, 46Taxpayer, 5, 27 42, 45, 81, 84Textbooks, 75-76 I.Toronto, 51, 52Transportation, 7, 63-69, 83Transportation Administration, 64-67Transportation of the Handicapped, 67, 69Transportation Services, Contracted, 7, 63, 67Utilities, 51, 53Volunteers, 34-35Work Measurement, 6, 59Work Scheduling, 6

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