Performance audit, Regional Educational Service Agencies, First District RESA [Apr. 1997]

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\ q1lJ '. / PERFORMANCE AUDIT REGIONAL EDUCATIONAL SERVICE AGENCIES FIRST DISTRICT RESA
APRIL 1997
PERFORMANCE AUDIT OPERATIONS DEPARTMENT OF AUDITS

TABLE OF CONTENTS

LETTER OF TRANSMITTAL

1

EXECUTIVE SUMMARY

11

INTRODUCTION

History and Purpose of Regional Educational Service Agencies (RESAs) . . . .. 1

RESAs - Funding and Governing Board. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 1

First District Regional Educational Service Agency

4

Audit Objectives, Scope, and Methodology. . . . . . . . . . . . . . . . . . . . . . . . . . . .. 8

FINDINGS AND RECOMMENDATIONS

Goals, Objectives, and Performance Measures. . . . . . . . . . . . . . . . . . . . . . . . . .. 9

Effectiveness in Meeting Member Systems' Needs

18

Training and Experience of Staff

31

APPENDIX A: Regional Educational Service Agencies

34

APPENDIX B: Fiscal Year 1997 Cooperative Agreement

35

APPENDIX C: First District RESA Service Area

39

CLAUDE L. VICKERS
STATE AUDITOR
(404) 656-2174

DEPARTMENT OF AUDITS
254 Washington Street, S.w., Suite 214 Atlanta, Georgia 30334-8400
April 23, 1997

The Honorable Zell Miller, Governor Members of the General Assembly Members ofthe State Board ofEducation Members ofthe First District RESA Board of Control The Honorable Linda C. Schrenko, State Superintendent of Schools
Ladies and Gentlemen:
This report provides the results ofthe performance audit of the First District Regional Educational Service Agency (RESA). The audit was conducted as part of an ongoing program of performance auditing conducted by the Department of Audits under authority granted the State Auditor by OCGA 50-6-24. A copy ofthis report is filed as a permanent record with the State Auditor and is available to the public.
Appreciation is expressed to the First District RESA for the cooperation and assistance provided during the audit.
Respectfully submitted,
~
Claude L. Vickers State Auditor
CLV/wm

Mission Statement
The Department ofAudits exists to provide decision-makers with credible management information to promote improvements in accountability and stewardship in state and local government

EXECUTIVE SUMMARY
Performance Audit Regional Educational Service Agencies: First District RESA
April 1997
Regional Educational Service Agencies (RESAs) are to provide member school systems with services in the areas of planning and research, staff development, instruction and curriculum, assessment and evaluation, educational technology, and instruction on drug and alcohol abuse. Our review of the First District RESA found that:
t/ Overall, the services of the RESA are aligned with the service areas mandated by state law, with local school system needs, and with the Department of Education's organizational and service delivery goals. (Page 9, Finding No.1)
t/ The RESA should be commended for establishing a multi-year strategic plan on its own initiative which defines and communicates the beliefs, mission statement, key assumptions, and strategic objectives that form the framework for current and future RESA operations. To maximize the benefits afforded by this strategic planning process and document, the RESA should continue its efforts in establishing and refining quantifiable goals, objectives, and outcome measures for its various programs and services. (Page 12, Finding No.2)
t/ The Department of Education does not require the RESAs to establish strategic plans beyond a twelve-month period and does not require the RESAs to report improvement goals, timetables for achieving such goals, or the means by which performance in attaining such goals will be assessed. Also, current state laws appear to preclude the consideration of actual RESA program performance when allocating funds to the RESAs. (Page 15, Finding No.3 and Page 17, Finding No.4)
t/ The RESA is doing an effective job ofsoliciting information from member school systems on their individual needs. Also, member school systems appear to be benefiting from the services and programs provided by the RESA. (Page 18, Finding No. 1 and Page 20, Finding No.2)
t/ The RESA should be commended for annually providing its member school systems with detailed information on the RESA' s services and soliciting feedback from the systems to assess their satisfaction with such services along with obtaining suggestions for improvement. The RESA couid further improve upon its ability to assess its performance by establishing and implementing formal procedures to critically and regularly assess the effectiveness, efficiency, and impact of these services that are provided to the member school systems. (Page 23, Finding No.4)
t/ The RESA's Cooperative Purchasing Program is a widely used, self-supporting service that offers competitive prices on supplies and equipment. However, the audiovisual repair service offered by the RESA does not appear to provide substantial cost savings as compared to the labor rates charged by private vendors of repair services. (Page 25, Finding No.5 and Page 28, Finding No.6)
t/ The backgrounds of the RESA staff and the training they receive are aligned with the services provided to member school systems. (Page 31, Finding No.1)
t/ The RESA uses independent contractors to provide specialized services and programs to its member school systems. As compared to employing full-time staff with the necessary expertise, this practice minimizes the costs to provide services that are infrequently offered or are of a specialized nature. (Page 32, Finding No.2)

First District Reional Educational Service AS.en.cy

1

ilri

INTRODUCTION

History and Purpose of Regional Educational Service Agencies (RESAs)
Educational service agencies began in Georgia in 1966 with the establishment of shared service projects that provided instructional services across county lines. The General Assembly passed legislation in 1972 that dissolved the original shared services projects and established 16 Cooperative Educational Service Agencies (CESAs) through which local school systems could join together to receive services that were not economically feasible otherwise. CESAs provided services in areas including special education, staff development, grant funding, teacher assistance, cooperative purchasing, and equipment repair.

In 1986, CESAs were replaced by Regional Educational Service Agencies (RESAs), which were created under the Quality Basic Education Act. The legislation required all 16 RESAs to provide member local scho'ol systems with services in the areas of planning and research, staff development, instruction and curriculum, assessment and evaluation, educational technology, and instruction on drug and alcohol abuse. Although the General Assembly passed legislation in 1995 that eliminated these six mandated service areas, 1996 legislation reinstated the mandated service areas. In May 1995, the State Board of Education adopted goals for the redesign of the Georgia Department of Education. As part of these goals, the RESAs were appointed as ''the front line instructional delivery vehicle for school improvement across the state."

RESAs - Funding and Governing Board

As shown in APPENDIX A on page 34, each RESA serves a designated region of local school systems. RESA services are funded through federal, state, local, and other sources such as grants from private businesses and national non-profit groups. As shown in EXHIBIT 1 on the next page, the RESAs' revenues and expenses for fiscal year 1995 totaled $30.4 million and $31.1 million respectively.1 RESAs may retain unspent funds.

I Audited fiscal year 1996 figures were not available at the time of this report.

First District Regonal Educational Service Apency

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EXHIBIT 1
REGIONAL EDUCATIONAL SERVICE AGENCIES FINANCIAL INFORMATION (1) (Fiscal Year 1995)

Central Savannah River Chattahoochee-Flint Coastal Plains First District Griffin Heart of Georgia Metro Middle Georgia North Georgia Northeast Georgia Northwest Georgia Oconee Okefenokee Pioneer Southwest Georgia West Georgia
Totals

$709,482 1,032,520
506,534 1,083,682 1,166,947
507,269 639,974 560,927 665,509 637,364 645,728 520,608 524,364 767,071 520,570 1,831,662
~1?~?n?11

$86,283 822,677
58,061 1,085,335 1,762,107
476,985 65,327 140,416
1,248,967 652,641 263,050 27,805 140,215 639,526 489,429 423,668
tR ...........

$601,906 426,538 145,684 924,363 1,071,950 241,138 305,196 1,093,490 518,608 1,257,576 333,197 255,970 415,854 1,096,210 317,292 681,819
to e:Re: 7Q1

$1,397,671 $1,442,672

2,281,735 2,321,501

710,280

779,310

3,093,380 3,119,146

4,001,003 4,081,975

1,225,392 1,375,762

1,010,498 1,002,381

1,794,833 1,789,309

2,433,083 2,364,372

2,547,581 2,669,580

1,241,976 1,238,169

804,382

776,320

1,080,433 1,065,057

2,502,807 2,737,043

1,327,290 1,375,180

2,937,149 3,009,323
.. n .. 0.. ...... !I:~1 ........ nftft

~: (1) Figures do not include monies for the Severely Emotionally Disturbed (SED) program or the Georgia Learning Resources System (GLRS) program. RESAs only act as fiscal agents for these two programs. Figures may not total due to rounding.
(2) State funds include monies for specific programs and services and a grant (ranging from $378,000 to $758,000 per RESA) for basic administrative expenses which is based upon demographic data such as square miles and number of students.
(3) Local and other funds include local systems' RESA membership fees, fees paid for non-shared services, interest earned, and reimbursement of federal indirect costs.

Source: Department of Audits

State funding includes a grant to each RESA for basic administrative expenses as well as individual grants for specific services. In addition to their basic functions, each RESA may serve as fiscal agent for the Georgia

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lll

Learning Resources System (GLRS) program and the Severely Emotionally Disturbed (SED) program.

Local funding typically includes membership fees paid by local school systems that elect to join the RESA, any fees paid for specific non-shared services (such as psychologist and vision impaired teacher services), interest earned, and reimbursement of federal indirect costs. The formula for determining local contributions varies by RESA and membership fees are determined jointly by each RESA and the school systems in its service area.

Each RESA is governed by a local Board of Control whose members are elected by a caucus ofBoard of Education officials from each member school system within the RESA's service area. The number of members and terms of office for Board of Control members are prescribed by the State Board of Education. Each caucus elects one staff person from each member system to represent that system for an annual term. At least one-third of the Board of Control members must be lay persons who do not hold public office, are not local school system employees, and are not Department of Education employees. Lay persons serve three year terms, but cannot serve consecutive terms. Board of Control duties include determining the assistance needed by the local school systems, setting priorities of needed programs, and determining the procedures and activities by which a RESA achieves locally established objectives. State law (OCGA 20-2-272) also requires the Board of Control to annually review the cost effectiveness of the RESA.

Although the Department of Education annually evaluates the RESAs to verify that the RESAs are in compliance with the laws, rules, and regulations of the Department, each RESA determines the programs and services that it will provide based upon the needs of its member school systems. As a result of this autonomy, each RESA is unique in the programs and services that it offers. It should be noted that the Department initiated cooperative agreements with the RESAs beginning fiscal year 1997. The purpose of the cooperative agreements is to focus the Department and the RESAs upon "activities, programs or initiatives which help school systems and schools to enhance student academic performance through measurable goals." First District RESA's fiscal year 1997 cooperative agreement is shown in APPENDIX B on page 35.

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First District Regional Educational Service Agency

The First District RESA is located in Statesboro, Georgia. As shown in APPENDIX C on page 39, the First District RESA's service area includes 18 local school systems, 16 of which are members of the RESA. The 16 member school systems had a total of97 schools, 4,762 teachers, and 67,551 students as of June 30, 1996.

As shown in EXHIBIT 2 on the next page, the First District RESA's total revenues were $4.7 million in fiscal year 1995, $5.1 million in fiscal year 1996, and are budgeted for $4.9 million in fiscal year 1997. Expenditures totaled $4.7 million in fiscal year 1995, $5.2 million in fiscal year 1996, and are budgeted for $5.2 million in fiscal year 1997.

Local school systems that elect to become members in the First District RESA must pay a basic membership fee which includes a base fee of $5,500 plus $3.50 for every full time equivalent (FTE) student in their system in excess of 1,700 in order to be a member. The basic membership fee allows school systems to receive standard RESA services such as staff development training and technology training. School systems that wish to receive locally identified non-shared services, such as psychological services and vision impaired teaching, must pay additional fees. EXHIBIT 3 on page 6 shows the total amount of membership fees (including those for non-shared services) paid by member school systems in fiscal year 1996.

The First District RESA offers a wide range of programs and services to its member school systems. According to First District RESA personnel, school improvement, curriculum and instruction, and technology-based classes comprise the majority of RESA activities. Some of the other on-going services provided by the RESA include hearing evaluations, drug testing for bus drivers, paraprofessional and substitute teacher training, training for teacher assessments and evaluations, environmental services (such as help with asbestos removal and hazardous waste disposal), cooperative purchasing, and audiovisual equipment repair.

The First District RESA's organization chart is shown in EXHIBIT 4 on page 7.

First District Regional Educational Service Agency

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EXHIBIT 2

FIRST DISTRICT RESA FINANCIAL INFORMATION (Fiscal Years 1995 - 1997)

1_--111

Revenues State Funds Federal Funds Local and Other Funds Membership (Shared & Non-shared) Fees Net Cooperative Purchasing Revenue Net Audio Visual Repair Revenue All Other Local and Other Revenue (1)
Total Revenues Less: SED & GLRS Revenues
Total Rev. (without SED & GLRS) Less: Migrant Education Revenues
Total Rev. (without SED,GLRS & Migr. Educ.)

$2,196,568 1,511,527
414,673 343,440
58,045 138,741 $4,662,993 1,569,613 $3,093,380 850,511 $2,242,869

$2,330,850 1,695,238

$2,170,736 1,666,131

405,307 372,319
92,214 216,701 $5,112,630 1,271,551 $3,841,079 976,533 $2,864,546

437,512 383,815 102,104 136,309 $4,896,606 1,232,670 $3,663,936 1,070,155 $2,593,781

Expenditures Salaries Grants to Boards of Education (2) Employee Benefits Supplies Equipment Other
Total Expenditures . Less: SED & GLRS Expenditures Total Exp. (without SED & GLRS)
Less: Migrant Education Expenditures Total Exp. (without SED,GLRS & Migr. Educ.)
Excess of Revenues over (under) Expenditures (without SED, GLRS, & Migrant Education)

$2,546,592 407,921 567,233 263,175 159,397 748,741
$4,693,060 1,573,913
$3,119,147 861,571
$2,257,576
($14,707)

$2,686,299 418,198 597,127 279,533 24,272
1,193,159 $5,198,588
1,266,575 $3,932,013
944,162 $2,987,851
($123,305)

$2,660,013 499,854 595,745 93,560 10,200
1,327,316 $5,186,687
1,232,670 $3,954,017
1,070,155 $2,883,862
($290,081)

Notes: (1) Includes interest earned, and reimbursement of federal indirect costs. (2) Federally funded Migrant Education Program grants.
Sources: Deoartment of Audits (FY 1995), First District RESA (FY 1996 & FY 1997)

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EXHIBIT 3
SCHOOL SYSTEM MEMBERSHIP FEES (Fiscal Year 1996)

-_.'==.~

Appling County

$11,356

$11,045

$22,401

Bryan County

16,186

6,782

22,968

Bulloch County

27,127

8,075

35,202

Camden County

27,575

27,575

Candler County

5,500

$26,542

32,042

Effingham County

22,899

7,333

30,232

Evans County

5,924

35,095

1,340

42,358

Jeff Davis County

8,615

32,440

417

41,472

Liberty County

35,310

35,310

Long County

5,500

23,593

2,222

31,315

Mcintosh County

5,500

23,593

29,093

Tattnall County

10,414

10,414

Toombs County

7,849

7,849

Vidalia City

8,916

8,916

Wayne County

16,368

11,796

28,164

Totals

$215,039

$153,059

$37,214 $405,311

Note: The basic membership fee allows systems to receive standard "shared" RESA services such as staff development and technology training. "Non-shared" services require the payment of additional fees by those systems electing to receive the services.
Source: First District RESA records

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EXHIBIT 4 FIRST DISTRICT RESA ORGANIZATION CHART
Board of Control

Georgia Learning Resources System
6

Migrant Education Agency 6

Psychoeducational Network for

Severely Emotionally Disturbed

Students

42

Detail Omitted

Detail Omitted

Detail Omitted

Source: First District RESA Note: The number shown within each box indicates the number of positions

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Audit Objectives, Scope and Methodology

The primary objectives of this audit were to:

determine if the First District RESA's goals are aligned with state DOE goals and member school system needs;

determine if the member school systems use the services offered by the First District RESA, and assess the cost and benefits of these services; and,

determine ifthe backgrounds of First District RESA staffand the training received by staff are appropriate for the services provided to member school systems.
The audit was conducted in accordance with generally accepted government auditing standards and focused on fiscal years 1995 and 1996.

The Coastal and Southeast Georgia Learning Resources Systems (GLRS) and Cedarwood Psychoeducational Severely Emotionally Disturbed (SED) programs are attached to the RESA for administrative purposes. These programs were not included within the scope of our review. Similarly, the RESA administers the federally funded Live Oak Migrant Education Program, which is operated separately (including separate staff) from the RESA's other programs and services. The Migrant Education Program was also excluded from the scope of our review.

The audit was conducted at the First District RESA offices in Statesboro, Georgia. Interviews with First District RESA, Department of Education, and local school system staff; file reviews; and audit team observations and research were used to gather data and obtain information necessary to meet the stated objectives of this audit.

The contents ofthis report were discussed with appropriate personnel in the First District RESA and the Department of Education. In addition, a draft copy was provided for their review and they were invited to provide a written response to this audit. Pertinent responses from Department of Education and First District RESA personnel were evaluated and are reflected in the audit report as appropriate.

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FINDINGS AND RECOMMENDATIONS

Goals, Objectives, and Performance Measures

Finding No.1
Overall, the services of the First District RESA are.aligned with the service areas mandated by state law, with local school system needs, and with the Department of Education's organizational and service delivery goals.

Services provided by Georgia RESAs are primarily derived from statutory requirements, local school system needs, and Department of Education goals and objectives. State law (OCGA 20-2-270) specifies that RESAs exist to provide shared services in the areas of planning and research, staff development, instruction and curriculum, assessment and evaluation, educational technology, and instruction on drug and alcohol abuse prevention. EXHIBIT 5 on the following page provides examples of First District RESA services that address these statutory requirements. .

Shared services may also address areas of documented local needs, as determined by each RESA's local Board of Control. Programs and services offered by the First District RESA are primarily based on an annual needs assessment conducted with representatives from the RESA's member school systems. EXHIBIT 6 on page 11 shows the services requested by 50% or more of the respondents to the fiscal year 1996 needs assessment survey administered by the RESA. Local school systems' needs are also communicated through the systems' direct requests for assistance, through the systems' representatives on the local Board of Control, and through the consultants assigned to the individual systems.

In addition, Department of Education goals also influence the RESAs' services since the RESAs must conform to the policies and regulations of the State Board of Education. The Department's goals for redesigning and revitalizing public education in Georgia include improvement in student achievement, school accountability, constructive local control, professional and technical support to all

First District Regional Educational Service Agency

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EXHIBIT 5
EXAMPLES OF FIRST DISTRICT RESA SERVICES COMPARED TO THE STATUTORY REQUIREMENTS OF OCGA 20-2-270 (Fiscal Year 1996)

Leadership was provided to member school systems in th"e selection and adoption of textbooks Assistance was provided in developing Science, Health, Mathematics, Social Studies, Language
Arts, and Foreign Language curriculums
Training sessions were provided for system personnel who must assess and evaluate teaching, administrative, and service area personnel
Georgia Teacher Evaluation Program (GTEP) orientation classes were provided to school system personnel
The First District RESA provided training, materials, technical assistance and evaluation of drug abuse prevention curricula; staff development training workshops to enhance the Safe and Drug Free Schools Program; and drug abuse prevention training sessions
Source: First District RESA 1996 Annual Report

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EXHIBIT 6

FIRST DISTRICT RESA SERVICES REQUESTED BY 50% OR MORE OF THE RESPONDENTS TO THE NEEDS ASSESSMENT SURVEY
(Fiscal Year 1996)

- - ........:.:.:.:.:.:.:.:.:.:.;.:.;.;.;.;.;.:.:.:.:.:.:.:.:.:.;.;.;.:.;.:.:.:.:.:.;.:.;.:.;.;.;.:.:.:.:.:.:.:.:.:.:.:.:.:.:.;.... 1. Cooperative Purchasing

- - ......................................................................................................................................................................... 78%

2. Staff Development Training

72%

3. Technical Services/Equipment Repair

64%

4. Writing Grant Proposals

58%

5. Paraprofessional Training

57%

6. General Consultant Services

56%

7. Discipline/Classroom Management Training

54%

Note: (1) The percentage of respondents that indicated that the service was needed. Source: Fiscal year 1996 needs assessment survey results

schools, and support and leadership from the Department of Education.
Our reviews disclosed that the First District RESA is clearly aligned with the desired organization and delivery of educational services identified in the Department's goals for redesigning and revitalizing public education in Georgia. As stated in a Department publication: "The Regional Education Service Agencies (RESAs) will become the front line instructional delivery vehicle for school improvement across the state." Also, in reorganizing to better assist local schools and school systems, the Department intends to "organize a regional delivery system developed around the current RESA structure." And fmally, as expressed by the Department in the cooperative agreements developed for fiscal year 1997: "The RESA service delivery model is uniquely qualified to plan, manage, coordinate and conduct

First District Repional Educational Service Agency

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assistance which supports member school systems and schools achieve school improvement goals."

Finding No.2

The First District RESA should be commended for establishing a multi-year strategic plan which defines and communicates the beliefs, mission statement, key assumptions, and strategic objectives that form the framework for current and future RESA operations. To maximize the benefits afforded by this strategic planning process and document, the First District RESA should continue its efforts in establishing and refining quantifiable goals, objectives, and outcome measures for its various programs and services.

Our reviews disclosed that the First District RESA has had a multiyear strategic plan in place since 1991. The plan was last updated in 1995 and lays out the RESA's beliefs, mission statement, key assumptions, and strategic objectives through the year 2000. Within the plan are statements which quantify the RESA's targeted levels of effort and time frames for completion of activities so that progress can be monitored and managed. Also, in reviewing the First District RESA's fiscal year 1997 cooperative agreement with the Department of Education (see APPENDIX B on page 35), we found that the RESA is establishing priorities and directing its efforts toward assisting its member school systems in measuring, monitoring, and improving student achievement. This focus is extremely important and the RESA should be commended for its efforts since improved student achievement is one of the Department's major goals for redesigning and revitalizing public education in Georgia.

Although the strategic plan and cooperative agreement clearly show the RESA's expected levels of effort and targeted audience in delivering programs and services, few quantifiable outcome measures have been identified and established. As compared to output measures (which provide information on the quantity of products or services provided by the RESA, the number of customers served, etc.), outcome measures provide quantifiable results which measure how the public, schools, students, etc. benefit as a result of the RESA

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meeting its stated goals and objectives. Our review disclosed that only the RESA's Safe and Drug Free Schools and Communities Program has established quantifiable goals, objectives, and outcome measures that address actual intended benefits resulting from the services provided.

EXHrSIT 7 on the next page provides examples of the goals and objectives developed by the First District RESA's Safe and Drug Free Schools and Communities Program. As can be noted from the Exhibit, the objectives clearly seek to provide quantifiable results to the general question: "How did students benefit as a result of us meeting our goals?" Measurable performance benchmarks and targeted completion dates were also established so that progress toward the stated goals could be monitored and assessed.

To the First District RESA's credit, our reviews disclosed that these monitoring and assessment activities are being conducted. For example, the First District RESA's annual report showed that preand post-testing was conducted for students in grades K-9. Disciplinary referral rates were tracked and reported for two schools. Surveys of students and parents were conducted and the results reported for one school. Improvements to these monitoring and assessment activities are also being made. For example, discussions with Program personnel indicated that steps were underway to encourage school systems to track disciplinary problems and to regularly conduct student and parent surveys. Discussions at a meeting of the Safe and Drug Free Schools and Communities Program consortium held in September, 1996 led to the suggestion that pre- and post-testing be conducted for all students in the Program.

The First District RESA should continue its efforts in establishing and refining quantifiable goals, objectives, and outcome measures for its various programs and services. These criteria should clearly address the intended accomplishments and benefits of the RESA's programs and services and should allow management to assess, measure, and report on its performance in each area. The Safe and Drug Free Schools and Communities Program should be commended

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EXHIBIT 7
EXAMPLES OF GOALS AND OBJECTIVES OF FIRST DISTRICT RESA'S SAFE AND DRUG FREE SCHOOLS AND COMMUNITIES PROGRAM

Increase knowledge and skills to enable students to abstain from violent behavior

30% increase in student post-test scores by June 1999

Decrease usage of tobacco

20% decrease by the end of the 1997-98 school year in the number of students who say they use tobacco in a student survey

Increased commitment to learning and getting along with others

15% decrease in disciplinary referrals, 10% improvement in academic performance, and 10% decrease in reported problem behaviors by the end of the 1997-98 school year; 10% reduction in the drop-out rate by the end of the 1998-99 school year

Make school climate more conducive to learning

25% reduction in disciplinary actions by the end of the 1998-99 school year; 66% of area communities will show a 30% reduction in overall drug abuse and violence by youth by the end of the 1998-99 school year

Increase parental involvement

30% of parents will show increased awareness of risk factors, 15% of parents will work with school personnel to identify and solve their children's academic and behavioral problems by May 1999

Increase middle and high school students' commitment to school and the community

30% increase in participation in school and community activities, 25% reduction in middle and high school disciplinary referrals by the end of the 1998-99 school year

Increase in prevention readiness of school staffs and programs in place to prevent violence in schools

10% increase in survey responses indicating program preparation and implementation by June 1997; 10% increase in number of prevention strategies used by schools and 75% of member systems will have revised prevention strategies by the end of the 1996-97 school year; 50% of the member systems will implement a student assistance prog ram by the end of the 1997-98 school year

Increase pro-social skills and commitment to school overall

By June 1998, 50% of students in schools participating in prevention programs will respond to surveys indicating that commitment and pro-social skills have increased

Source: First District RESA's Application for Financial Assistance Under Part A of the Safe and Drug Free Schools and Communities Act of 1994.

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for developing and implementing specific outcome measures. Program personnel should continue to expand the scope of their outcome measures until performance measures are in place for all schools participating in the Safe and Drug Free School and Communities Program.

It should be noted that discussions with First District RESA staff, observation of First DistrictRESA consultants at work in school systems, and interviews with the RESA director disclosed that the RESA is planning to track the impact of its services by charting the strategic planning process at each of the member school systems, recording results of standardized tests (e.g., SAT, and Iowa Test of Basic Skills [ITBS]), and tracking student achievement scores in core subjects such as reading and math. Several of the RESA's consultants have already been independently tracking this type ofdata to evaluate the effectiveness of their own efforts. These efforts should be continued.

Finding No. 3

Although the First District RESA has established a multi-year strategic plan upon its own initiative, the Department of Education does not require the RESAs to establish strategic plans beyond a twelve-month period. The Department also does not require the RESAs to report improvement goals, timetables for achieving such goals, or the means by which performance in attaining such goals will be assessed. In addition, state-level assessments of the RESAs do not assess actual benefits resulting from the RESAs' activities. As a result, RESAs can meet all existing reporting requirements and performance standards without the Department being able to determine the effectiveness of educational programs or the costs of services provided either to or by member school systems.

Currently, First District RESA and the other RESAs in the state are required to submit an Annual Plan and an Annual Report to the Department of Education. The Annual Plan reports basic descriptive data such as the number of participating school systems, Board of Control membership, results ofthe RESA's annual needs assessment,

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objectives for service delivery, RESA staff and their areas of responsibility, and financial information.2 However, improvement goals, timetables for achieving such goals, or the means by which performance in attaining such goals will be assessed are not required to be reported. In addition, although state law (OCGA 20-2-280) allows the State Board of Education to require RESAs to develop long-term strategic plans, planning beyond the twelve-month period (of the Annual Plans) is not currently required.

The Annual Report gives an account of how the RESA delivered programs and services in the areas identified in the Annual Plan. However, specific information on the actual outcomes resulting from RESA services and programs is not required to be reported. Also although the Department evaluates the RESAs through the Georgia Comprehensive Evaluation System, these evaluations do not include standards or assessments that address the actual benefits resulting from the RESAs' actvities. Rather, they primarily focus on compliance issues in areas such as general administration, fiscal management, and personnel. It should be noted that these evaluations found each RESA to be in compliance with all Department standards for the 1990 through 1995 school years. The RESAs can potentially meet all required standards in the Department's evaluation instrument without actually improving the effectiveness of educational programs or reducing the costs of services provided either to or by member school systems.

Additional action should be taken by the State Board of Education and the Department of Education to ensure that the services performed by the RESAs serve to improve education and that these efforts represent an effective and efficient use of resources. The Annual Plans and Annual Reports currently required from the RESAs should report intended and actual improvement goals, timetables for achieving such goals, and the means by which performance in attaining such goals will be assessed. Consideration should be given

2 Included with the Annual Plan is a cooperative agreement (see APPENDIX B) jointly developed by the Department and the RESA which outlines how the RESA intends to impact state education initiatives. The cooperative agreements were included with the RESAs' fiscal year 1997 Annual Plans and went into effect on July I, 1996.

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to modifying the Georgia Comprehensive Evaluation System to include standards and assessments that identify and address the actual benefits (i.e., positive outcomes) resulting from the RESAs' activities and the costs incurred to provide such services and programs.

The State Board of Education should also consider requiring the RESAs to develop and adopt long-term strategic plans as addressed in OCGA 20-2-280. Requiring the RESAs to develop and implement long-term strategic plans would assist the RESAs in assuming a proactive, leadership role in improving the effectiveness of educational programs within the RESAs' service areas.

In their response to our audit, Department ofEducation personnel indicated that the State Board ofEducation initiated rule amendment procedures on March 17, 1997 to amend Rule 160-5-1-.13 Regional Education Service Agencies. The proposed amendment includes language requiring long-range strategic planning as well as performance outcome reporting and is subject to proposed rulemaking procedures as required by OCGA 50-13-4.

It should be noted that First District RESA has had a multi-year strategic plan in place since 1991 which was last updated in 1995.

Finding No.4

Current RESA-specific state laws appear to preclude the consideration of actual RESA program performance when allocating funds to the RESAs. Assessment of quantitative and qualitative indicators of the RESAs' performance in attaining adopted goals and objectives should be factored into state-level decisions regarding the prioritization and allocation of RESA funding.

Current state law (OCGA 20-2-274) states:

"The state board shall be authorized to provide each regional educational service agency with a uniform state-wide needs program grant and a documented local needs program grant, subject to the appropriation by the General Assembly. The uniform state-wide needs program grant shall consist of two

First District Repional Educational Service Agency

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components: the same fixed amount for each regional educational service agency; and an amount which reflects the number of local school systems, the number of schools, the number of students, and the number of square miles contained collectively within its member local school systems."
The same law goes on to further state:
"The amount of funds granted to each regional educational service agency for the documented local needs program grant shall depend upon the proportion that the number of local school systems, number of schools, number of students, and number of square miles contained, collectively within its member local school systems are of these respective factors state wide, as well as the adopted operational plan and the budget designed to address documented needs for assistance to member local school systems."
As can be noted, the current state law does not appear to grant any discretion in allocating and reallocating RESA funding based upon actual RESA performance in accomplishing adopted goals and objectives. The General Assembly may wish to consider establishing a funding formula which considers the RESAs' efforts in the areas of:

development and implementation of long-term strategic plans; establishment of specific goals, objectives, and performance
indicators to measure the RESAs' effectiveness in the delivery and outcome of services provided to member school systems; establishment and implementation ofprocedures to critically and regularly assess the effectiveness, eficiency, and impact of services delivered; and, actual program outcomes.

Effectiveness in Meeting Member Systems' Needs
Finding No. 1
The First District RESA is doing an effective job of soliciting information from member school systems on their individual needs and working with the systems in establishing priorities for the services that will be offered by the RESA during the coming school year.

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State law (OCGA 20-2-272) stipulates that "Boards of control shall detennine the assistance needed by local school systems in the area served by each regional educational service agency, establish priorities from those needs, and allocate resources accordingly." In addressing this requirement, the First District RESA conducts a fonnal needs assessment survey. According to RESA personnel, infonnation concerning the needs and desires of member school systems is also obtained through infonnal communication between consultants and RESA staff in contact with the member school system personnel.

In conducting the survey, the First District RESA solicits infonnation from the member systems on both services that are currently provided by the RESA and services that ~ be provided. For example, space is provided for member systems to identify "other" needed services that are not otherwise specifically identified in the needs assessment survey instrument. Additionally, categories of services shown on the assessment instrument include services that are not currently offered as a means of detennining if the member systems desire such a service. For example, staff development includes a service category entitled "customized training per request" and cooperative purchasing includes two possible service categories.

In administering the survey, the First District RESA provides adequate opportunity for the member school systems to make their local needs known to the RESA. The survey conducted to detennine assistance needed in fiscal year 1997 was responded to by 177 persons representing all 16 of the First District RESA's member school systems. Persons responding included Superintendents, Principals, Teachers, Curriculum Directors, Special Education Directors, and Directors of Purchasing. The needs assessment survey for services to be delivered in fiscal year 1996 was responded to by 123 people representing the RESA's 15 member systems as of fiscal year 1996. It should be noted that the RESA does not limit the number of individuals allowed to respond to the needs assessment survey (i.e., each member system detennines how many individuals it wishes to respond to the assessment instrument).

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The results of the formal needs assessment surveys and informal information regarding school systems' needs are discussed among the First District RESA staff and used to establish overall service priorities. In addition, the results of each individual school system's needs assessment are forwarded to the consultants responsible for that school system. The consultants then use this information, along with requests for services received from the school systems, to determine the types of services to provide to their respective system(s).

First District RESA should continue to gather the information necessary to determine the needs of its member school systems. First District RESA personnel should also continue to identify and evaluate the feasibility of alternative or additional areas of service.

Finding No.2

Member school systems appear to be benefiting from the "shared" services included with membership fees that are provided by First District RESA.

Our reviews disclosed that member school systems utilize the First District RESA's shared services. EXHIBIT 8 on the next page shows the use of certain shared First District RESA services by the member school systems. As can be noted from the Exhibit, we found that the systems appear to benefit from the services ofthe First District RESA as evidenced by their use of these services.

The First District RESA ensures that services are delivered to each school system by assigning consultants to specific school systems. These consultants work with their assigned schools and either deliver services themselves or arrange for delivery of services by other First District RESA consultants. Audiological Testing and Environmental Services, however, are delivered by individuals responsible for all of the First District RESA member systems.

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EXHIBIT 8
USE OF FIRST DISTRICT RESA SHARED SERVICES BY MEMBER SCHOOL SYSTEMS (Fiscal Year 1996)

Liberty Co.

10,569 Yes (457) Yes (56)

Yes ($404) Yes (911)

E,A

Camden Co.

8,323 Yes (529) Yes (43)

Yes ($207) Yes (687)

E,A

Bulloch Co.

8,154 Yes (791) Yes (185) Yes ($298) Yes (325)

E,A

Effingham Co.

6,937 Yes (432) Yes (116) Yes ($214) Yes (317)

E,A

Bryan Co.

4,898 Yes (32)

Yes (331) Yes ($186) Yes (143)

E,A

Wayne Co.

4,855 Yes (441) Yes (59)

Yes ($143) Yes (229)

E,A

Appling Co.

3,332 Yes (218) Yes (46)

Yes ($82) Yes (213)

E,A

Tattnall Co.

3,143 Yes (330) Yes (237) Yes ($118) Yes (131)

E,A

Jeff Davis Co.

2,602 Yes (264) Yes (80)

Yes ($52) Yes (318)

E,A

Vidalia City

2,544 Yes (310) Yes (84)

Yes ($73) Yes (122)

E,A

Toombs Co.

2,449 Yes (148) Yes (147) Yes ($65) Yes (57)

E,A

Evans Co.

1,768 Yes (201) Yes (140) Yes ($71) Yes (187)

E,A

Mcintosh Co.

1,674 Yes (389) Yes (69)

Yes ($77) Yes (63)

E,A

Candler Co.

1,622 Yes (631) Yes (114) Yes ($63) Yes (116)

E,A

Long Co.

1,532 Yes (463) Yes (37)

Yes ($52) Yes (48)

E,A

Notes: (1) Figures shown represent # of on-site instructional hours by Educational Consultants. (2) Figures shown represent # of on-site instructional hours by Technology Consultants. (3) Figures shown represent purchases (in thousands) rounded to the nearest thousand. (4) Figures shown represent # of machines repaired. (5) Designation of "E, A" indicates that both (E)nvironmental and (A)udiological services were received.

Sources: First District RESA fiscal year 1996 Activity Reports and Annual Reports

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Finding No. 3

The First District RESA should continue to ensure that "nonshared" services are delivered to member school systems that contract with the RESA for such specialized services.

The First District RESA offers Psychological Services, Vision Impaired Services, and Safe and Drug Free Schools services as optional services that member systems can elect to participate in as needed. Our reviews disclosed that these optional, non-shared services were delivered to each participating member system as specified in the agreements between the member systems and the RESA.

The First District RESA ensures that psychologist and VISIOn impaired services are delivered to each school system by having the member school systems desiring to participate estimate the service hours needed. These school systems then sign an agreement or contract specifying the hours of services expected to be required for the upcoming year and First District RESA hires the personnel necessary to deliver the required services. Psychologists and vision impaired specialists hired to perform these services are paid at the same rate as professionals holding comparable positions in the member school systems. For instance, a psychologist hired by the First District RESA is paid the same salary range as a psychologist working for the Bulloch County school system.

Safe and Drug Free Schools services are provided by a team of consultants working for the RESA. First District RESA provides these services to a consortium of RESA members. To join the consortium, member school systems must pool their Safe and Drug Free School Act Grant monies (received from the Federal government) with the grant funds received by the other member systems who are part of the consortium.3 Each year the consortium members meet and approve a service delivery calendar. Members of

3 In fiscal year 1996, all member systems with the exception of Appling and Liberty counties participated in the consortium.

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the consortium can also request services from individual consultants as their time and schedules allow.

Finding No. 4

The First District RESA should be commended for annually providing its member school systems with detailed information on the RESA's services they received during the past year and soliciting feedback from the systems to assess their satisfaction with such services along with obtaining suggestions for improvement. The RESA could further improve upon its ability to assess its performance by establishing and implementing formal procedures to critically and regularly assess the effectiveness, efficiency, and impact of these services that are provided to the member school systems.

The First District RESA does an excellent job of formally communicating to its member school systems the services it provides. On an annual basis, the RESA provides each system with a report detailing the services provided to the system during the past year in areas such as staff development, grant writing, technology training, cooperative purchasing, audiovisual repair, and environmental, vision impaired, audiological, and psychological services. The RESA also solicits feedback from its customers (i.e., the member school systems) each year to assess their satisfaction with the services they received, obtain suggestions for improvement, etc. Specifically, each person that responded to the most recently administered needs assessment survey is asked to respond to the following:

1. "Ifyou were FDRESA Director, what would you do to change or make FDRESA more effective?"
2. "The 3 most valuable RESA services you receive are:" 3. "Do you have any suggestions or comments that might help
us to improve our services?"
Feedback was received from 148 individuals (representing each member school system) during the fiscal year 1996 evaluation assessment meeting. Of these 148 individuals, 89 (60%) either provided no comment or stated that the RESA should "not change anything" in response to question #1. From these results, it appears

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that the First District RESA is doing a very good job of informing its member systems ofthe services it provides and meeting the member systems' service expectations.

Although the First District RESA should be commended for meeting the member systems' expectations, additional efforts are needed to provide assurances that the services effectively and efficiently impact state education initiatives. With few exceptions, most of the programmatic information reported by the RESA in its annual reports only serve to quantify the general level of effort expended to provide the services, the total volume of services provided, or the total number ofpersons served. As detailed below, only the Safe and Drug Free Schools and Communities Program and the Cooperative Purchasing Program provide some information addressing the actual impacts resulting from the services provided:

The Safe and Drug Free Schools and Communities Program provides some specific performance outcome indicators showing the actual impact resulting from the Program's services. Specific statements addressing actual Program impact include "discipline referrals decreased by 10%," "students increased test scores between 10 and 20 points," and "92% of the [newly trained] teachers felt confident in implementing the curriculum."
The Cooperative Purchasing Program provides member school systems with an estimated savings figure based upon each system's volume of purchases from the Program. This type of information allows the member systems to quantify the benefits resulting from their participation in the Program.

It should also be noted that each RESA's Board of Control is required by state law (OCGA 20-2-272) to annually review the progress and cost effectiveness of their RESA by relating outputs to dollar inputs. First District RESA personnel and Board of Control members stated that the RESA's cost effectiveness is only evaluated informally since the perceived benefits resulting from formal reviews would not outweigh the perceived costs. However, by not conducting these formal reviews, the RESA is precluded from identifying trends in the cost effectiveness of its services. For example, without such reviews the First District RESA cannot determine if it cost more, less, or the

First District Rerional Educational Service Arency

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same amount to deliver each hour of training in fiscal year 1996 than it did in fiscal year 1995.

The First District RESA should establish and implement procedures to critically and regularly assess the effectiveness, efficiency, and impact of the RESA' s services. The resuVs from these periodic assessments should be used in establishing priorities, allocating resources, and reporting performance to the member school systems, the Board of Control, and the Department of Education. The procedures should include steps necessary to relate outputs to dollar inputs as currently required by state law.

Finding No. 5

Overall, the First District RESA's Cooperative Purchasing Program is a widely used, self-supporting service that offers competitive prices on supplies and equipment needed by school systems. In addition, the Program offers other benefits that cannot be easily quantified such as reasonable credit terms and delivery service to all member school systems.

First District RESA's Cooperative Purchasing Program is a selfsupporting entity intended to offer member school systems (and other eligible entities) an alternative low-cost option for a full range of goods including paper, office furniture and supplies, instructional supplies, computer supplies, audiovisual supplies, and custodial supplies. As shown in EXHIBIT 9 on the following page, gross sales totaled approximately $2.6 million in fiscal year 1996. EXHIBIT 10 on page 27 shows these sales by product/service category.

Eligibility for the Cooperative Purchasing Program is open to all member systems, "any public, tax-supported school or school system who participates in any RESA in the State of Georgia", and "other public, tax-supported agencies within the First District RESA's service area." Although participation in the Program is optional, our reviews disclosed that both member systems and other eligible entities are widely using the Program: all of the RESA's member systems and 23 other eligible entities used the Cooperative Purchasing Program in fiscal year 1996. Another indication of the

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EXHIBIT 9
COOPERATIVE PURCHASING PROGRAM SALES TO/PURCHASES BY SCHOOL SYSTEMS (1)
(Fiscal Year 1996)

Appling Co. Bryan Co. Bulloch Co. Camden Co. Candler Co. Effingham Co. Evans Co. Jeff Davis Co.

$81,998 185,843 298,294 206,752 62,644 214,409 71,381 51,622

Liberty Co. Long Co. Mcintosh Co. Tattnall Co. Toombs Co. Vidalia City Wayne Co. Nonmembers (2)
TOTAL

$404,483 52,092 76,685
117,863 65,177 72,941 142,959 513,704 $2,618,847

Notes: (1) Audiovisual repairs (representing $108,495, or 4% of the total shown) are included in these figures since they could not be separately broken out by school system.
(2) Nonmembers include educational entities which participate in other RESAs and other pUblic, tax-supported agencies within the First District RESA's service area.

Source:

First District RESA Cooperative Purchasing Program records for fiscal year 1996

Program's appeal is found by reviewing the results ofthe most recent needs assessment survey. As shown in EXHIBIT 6 on page 11, cooperative purchasing was the most requested First District RESA service according to the needs assessment survey. In assessing the Cooperative Purchasing Program, we examined the Program's procedures for buying (the bid process) and selling (pricing/markup) the products offered in the Program's 1996 Purchasing Catalog. Suppliers of the products purchased for resale by the Cooperative Purchasing Program are invited to bid at least twice per year. Paper

First District Reional Educational Service Aency

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EXHIBIT 10
COOPERATIVE PURCHASING PROGRAM SALES BY CATEGORY (Fiscal Year 1996)

AUDIOVISUAL~
REPAIRS 4%
$108,495
OFFICE FURNITURE 1-------.
$156,438
AUDIOVISUAL SUPPLIES 1---$318,330

11%

COMPUTER MATERIALS $25,984

....-__ 101 ~ OTHER

1 10

$29,969

PAPER
+---f $641,344

CUSTODIAL SUPPLIES $351,861

INSTRUCTIONAL SUPPLIES $538,470

OFFICE L...-_--1 SUPPLIES
$447,957
SOURCE: First District RESA Annual Report

products (the largest selling item) are put out for bid quarterly. In establishing product prices, RESA personnel indicated that the target average markup for the products offered is 16%. This markup is intended to provide both funding for the operational costs of the program (including all rent, utilities and staffing costs) and a reserve

First District Regional Educational Service Ai.en.c..y..

.2.8

for years when sales volwne does not meet expectations. It should be noted that operational costs totaled approximately $384,000, or about 15% of gross sales, in fiscal year 1996.

Our reviews disclosed that these procedures have allowed the Cooperative Purchasing Program to offer products at competitive prices. In conducting a limited price comparison of some ofthe more popular items in the catalog, we found that the RESA' s products appear to be competitive with alternative suppliers available to the member systems (see EXHIBIT 11 on the next page). These procedures have also allowed the Program to be self-supporting. Although gross sales in fiscal year 1996 declined by about $40,000 from the prior year (resulting in an overall net loss of about $12,000 in fiscal year 1996), the Program maintained a fund balance of approximately $808,000 as of June 30, 1996.

It should be noted that the Cooperative Purchasing Program also offers several other benefits to members that are not easily quantified. Members are offered a 2% discount if payment is made within 60 days. In addition, members are also offered a scheduled delivery service. Although other eligible entities may participate in the Cooperative Purchasing Program, they are not offered discounts and delivery services.

We recommend that the First District RESA continue to utilize the bid process and pricing/markup procedures that allow the Cooperative Purchasing Program to remain self-supporting and competitive.

Finding No. 6

The audiovisual repair service offered by the First District RESA does not appear to provide substantial cost savings as compared to the labor rates charged by private vendors of repair services. However, the service may be justifiable based upon other considerations, such as convenience of repair services and the availability of repair services for out-of-date equipment. In addition, the RESA recently implemented changes which will

First District Reional Educational Service A.en.c..y. .

2 9

EXHIBIT 11

COOPERATIVE PURCHASING PROGRAM PRICE COMPARISON OF SELECTED ITEMS

Paper (8% x 11 inch copy paper)

$33.06

$23.75

28%

File Cabinets (metal 4-drawer, with lock)

$139.98

$129.28

8%

Dri-Erase Markers (4-pack, assorted)

$5.95

$2.85

52%

Crayons (case/16-pack)

$13.08

$4.30

67%

Risograph Stencils

$91.00

$80.25

12%

Sources: First District RESA 1996 Purchasing Catalog and vendor catalogs

allow member systems to compare the true costs of the RESA's audiovisual repair services with the total costs charged by other available private vendor alternatives.
The First District RESA provides an audiovisual repair service as one of the "shared" services included with the basic membership fee paid by member school systems. Labor charges are currently $35 per hour and part charges are based upon actual cost plus a variable markup.4 Ifpossible, repairs are made "on-site" at the member school systems. Systems are not charged for the audiovisual technicians' travel time or for costs associated with transporting equipment to and from the First District RESA's audiovisual repair shop.
Our reviews disclosed that although the RESA charges the member systems a relatively low rate for audiovisual repair services, the ~ cost to provide such services does not represent a clear cost savings

4 According to First District RESA personnel, the audiovisual repair service is not intended to be fully self-sustaining. Rather than annually adjusting the labor charges as necessary to account for estimated costs, the Board of Control has chosen to leave the labor charges at $35 per hour and rely upon transfers to/from the RESA's general fund to account for any differences between actual audiovisual repair service revenues and expenditures.

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when compared to the labor rates charged by commercial vendors of repair services. Using the RESA' s financial statements and actual number of billable hours worked by the audiovisual technicians in fiscal year 1996, we found that the repair services provided by the First District RESA in fiscal year 1996 actually cost $67 per hour (excluding parts). A limited review of seven commercial repair service vendors located in four separate cities within the First District RESA's service area disclosed labor charges ranging from $45 to $75 per hour.

Although the RESA's actual audiovisual repair service cost of $67 per hour does not provide substantial cost savings as compared to the labor rates charged by private vendors of repair services, the service does provide certain other competitive advantages. For example, although commercial vendors routinely charge for the time it takes to travel to a facility where repairs are needed, the RESA does not include travel time in its charges. There are also limitations in some service areas on the availability of these commercial alternatives and on the types and brands of machines that commercial vendors will service. The First District RESA's audiovisual repair service will attempt to repair virtually any machine and provides on-site service to all member systems.

The First District RESA should determine whether or not to continue providing audiovisual repair services by comparing the benefits versus the costs of providing such services. In making this determination, the RESA should also consider alternatives to the current practice of delivering all of the audiovisual repair services itself. Some possible alternatives worth investigating include having the RESA act as a central broker for repair services or having the RESA administer regional service contracts.

It should be noted that the First District RESA altered its procedures for funding the audiovisual repair service subsequent to the completion of our on-site reviews in Statesboro. Whereas member systems were previously charged $35 per hour for repair services, each system choosing to participate in the audiovisual repair service is now assessed an annual repair service fee. In calculating these fees, the RESA estimates the total cost to provide the audiovisual

31

.R~~i~ws'~f personnel files were conducted to determine if the

. baq1<gitni,nds of the First District RESA staff and the training they
re6~jx~ar;;appropriate for the services they provide. Our review

focuS&tPJ1 the members ()fthe staff involved directly in the delivery

the of

prof~s"' \"<,~ s. ipnal

.,, ' - " >
services.

remaining First District RESA

employeei/primarily perform iIlternaladministrative, maintenance,

warehousing, or delivery functions.

We found that the backgrounds and certifications for all professional
staff are consistent with the position requirements. Each staff
member was found to have the appropriate certifications for their positions and to have had prior experience that exceeded the minimum position requirements. For example, one of the Education Consultants had nine years teaching experience; three years experience as a counselor; and an Administration and Supervision, Elementary Grades, Instructional Supervision, and Middle Grades Educator certificate.

Reviews of the training received by the First District RESA staff showed that the types of training received covered skills and knowledge applicable to the duties and responsibilities of the RESA

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staff. For example, in fiscal year 1996 one of the Technology consultants received training in Creating Persuasive Presentations, Intermediate Internet Home Page Construction, Windows 95 Introduction, and Internet Home Pages for K-12 Schools.

Based on our reviews and observation of First District RESA staff, we concluded that the backgrounds ofthe RESA staffand the training received by the staff was appropriate to the programs and services being provided to member school.systems.

Finding No. 2

The First District RESA uses independent contractors to: provide specialized services; utilize instructors with specific backgrounds that the RESA staff does not possess (e.g., farmer school system administrators); or provide new programs to its member systems that RESA staff will subsequently adopt and teach themselves. As compared to employing full-time staff with the necessary expertise, this practice effectively minimizes the costs to provide services that are infrequently offered or are of a specialized nature.

Reviews of fiscal year 1996 contract files showed that the First District RESA employs independent contractors to provide instruction in certain specialized subject areas desired by member systems. RESA staff did n,pt provide the instruction because:

the member systems wanted instructors with specific backgrounds (e.g., former school administrators),
the staff did not possess the appropriate background (e.g., a lawyer hired to teach about the legal implications of special education programs), or
the program was new and the RESA staff had not had an opportunity to become familiar with it (e.g., violence prevention programs teaching newly developed techniques).
During fiscal year 1996, independent contractors provided the specialized instructional courses shown in EXHIBIT 12 on the following page. As shown in the Exhibit, the First District RESA paid independent contractors for 18 days of service in fiscal year 1996. Independent contractors were paid at a median rate of$500 per

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EXHIBIT 12

FIRST DISTRICT RESA COURSES TAUGHT BY INDEPENDENT CONTRACTORS
(Fiscal Year 1996)

--_.-

Lions Quest Skills for Adolescence

Specialized Background $6,050

2 $3,025

Trainer

Positive Discipline in Dealing with "At Risk" Students

New Program

$2,932

2

$1,466

Educational Legal Issues

Specialized Subject

$2,900

4

$725

Issues Concerning Superintendents and Administrators

Specialized Subject

$700

1

$700

Violence Prevention

New Program

$515

1

$515

Drug Prevention Enrichment Program Specialized Background $500

1

$500

Educational Support Groups

Specialized Background $500

1

$500

Georgia Leadership Evaluation Instrument Training

Specialized Background $600

2

$300

Community Assessment Skills

Specialized Background $282

1

$282

. Staff Development (Prevention Training)

New Program

$500

3

$167

SOURCE: First District RESA records
day. This rate appears to be appropriate since the school systems we contacted stated that independent contractors are typically paid between $200 to $800 per day (with nationally known presenters asking for as much as $3,000 per day).
The First District RESA should continue to utilize independent contractors to provide services and programs when it is cost effective and beneficial to do so.

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34

APPENDIX A REGIONAL EDUCATIONAL SERVICE AGENCIES

Non-Member School System

RICHMOND COUNTY

Source: Department of Education
Note: Although Chatham County, Glynn County, and Richmond County are not members of their respective RESAs, they are "associate" members of the Metro RESA.

First District Regional Educational Service Asency

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APPENDIX 8

First District Regional Educational Service Agency

36

APPENDIX 8 (Continued)

First District Repional Educational Service Agency

37

APPENDIX 8 (Continued)

First District ReSional Educational Service Asency

38

APPENDIX B (Continued)

First District Repional Educational Service Apency

39

APPENDIXC
FIRST DISTRICT RESA SERVICE AREA

Non-Member School System'

Vidalia City

Source: Department of Education
Note: Although Chatham County and Glynn County are not members of the First District RESA, they are "associate" members of the Metro RESA.