1998 annual report

BROC Budgetary Responsibility Oversight Committee
1998 ANNUAL REPORT
THE GENERAL ASSEMBLY STATE OF GEORGIA

Budgetary Responsibility Oversight Committee

The Budget Accountability and Planning Act of 1993 established the Budgetary Responsibility Oversight Committee (BROC) to evaluate and report on the efficiency and effectiveness of state operations.
Among BROC's duties is to consult with the Governor and OPB concerning the development and implementation of the strategic planning process, the development of outcome measures for program evaluation, and the implementation of related actions. In addition, the members of the committee review and evaluate: strategic plans submitted by OPB, program evaluation reports, information on new programs, information on reports submitted to OPB identifying dollars received or expended where not contemplated by the Appropriations Act, and other information and reports.
In line with a majority of the other states, BROC's authorizing legislation redirects the focus of program budgeting away from simple continuation of established line item expenditures to funding based on outcomes and achievement of agreed upon goals and objectives.
BROC determines the programs or policies to be evaluated in consultation with the leadership of the General Assembly and the Governor. Legislators or others who want a particular topic to be reviewed by BROC should submit a formal written request to the chair of the Budgetary Responsibility Oversight Committee.

1998 Members of the Budgetary Responsibility Oversight Committee
Senator George Hooks, Co-Chair and Chair of Senate Appropriations Comm.
Senator Charles C. "Chuck" Clay, Minority Leader
Senator Sonny Perdue, President Pro Tempore
Senator David Scott, Chair of Senate Rules Comm.
Senator Terrell Starr, Chair of Senate Finance and Public Utilities Comm.
Senator Charles W. Walker, Majority Leader
Representative Terry L. Coleman, Co-Chair and Chair of House Appropriations Comm.
Representative Tom Buck, Chair of House Ways and Means Comm.
Representative Bill Lee, Chair of House Rules Comm.
Representative Butch Parrish, Chair of House Banks & Banking Comm.
Representative Calvin Smyre, Chair of University System of Georgia Comm.
Representative Larry Walker, Majority Leader
BROC Research Office Staff
Kimball L. Peed, M.A., M.B.A., Director Kevin Fillion, M.P.A., Deputy Director Michael Murdoch, Ph. D., Senior Analyst Rick Powell, M.P.A., Policy Analyst II Susan Stark, M.S.W, Policy Analyst II Glynnell Lewis, Office Manager

January 1999
Chairman's Report to the Governor and Members of the General Assembly:
For the better part of last year, the Budgetary Responsibility Oversight Committee (BROC) reviewed ways to improve the legislative process in order to promote legislative oversight and accountability of the executive branch. We have looked into ways that the General Assembly could define more explicitly its public policy objectives and tie these objectives to the annual budget. We are beginning to use the evaluative information produced from SB335 of 1993 in policy formulation and budget decisions with a particular emphasis on service delivery. The committee established a phrase to encapsulate what it means by legislative oversight and accountability: Responsive Government through Responsible Budgeting.
The Budget Accountability and Planning Act of 1993 requires that the Legislature, the Governor, and state agency leadership work together to develop a responsible budget. A responsible budget is one that maximizes the public's interest and receives the public's trust. To further this end, the committee has developed a Policy Hierarchy model to provide an alternative view of how state dollars are expended. The primary benefit of the model is that it divides the state into roughly 50 discreet policy areas without regard to agency organizational lines, thus shifting the focus from program administration to policy implementation and effectiveness. The model is a work-in-progress and has been profiled in the January 1999 edition of State Legislatures magazine, published by the National Council of State Legislatures. The Policy Hierarchy model can be viewed on our Internet site: www2.state.ga.us/broc.
There are numerous examples from the past year of how state agencies, under BROC's influence, are beginning to create a more responsive government. Coordination and collaboration among state agencies are essential elements of a responsive government. Rarely is any public policy issue restricted to just one agency. Therefore, we are especially pleased that some agencies are beginning to work more closely together to coordinate state resources in solving shared public policy problems. Immediate examples having BROC's involvement are legislative efforts to reform the state's construction processes and to provide supervision over the state's outsourcing practices. Additionally, we are keeping a close eye on the results of Georgia's welfare reform efforts and have just updated our results on what is happening to former recipients. Furthermore, BROC staff is working closely with the childhood care and education community to develop and benchmark outcome measures for the policy of childhood care and education. We will continue to monitor these collaborative efforts and offer suggestions on improvements.
The Budgetary Responsibility Oversight Committee commends the staff from the Performance Audit Operations Division of the Department of Audits and Accounts, and from the Program Evaluation and Management Services Division of the Governor's Office of Planning and Budget, for their invaluable aid to the committee during 1998.
Several years ago, the Budgetary Responsibility Oversight Committee initiated a thematic approach to program oversight; we are continuing that strategy. For the 1999-2000 term, BROC will examine the theme of "Public Well-Being." The programs that will be evaluated under this theme address such issues as public health, pollution reduction, and human services.
In summary and in accordance with O.C.G.A. 28-5-5(f), the Budgetary Responsibility Oversight Committee submits this annual report of committee activities. This annual report is a full accounting of the activities of the committee during the last calendar year. We hope the readers of this document will find the information useful.
Sincerely,
Terry Coleman Representative, District 142 1998 Chair, Budgetary Responsibility Oversight Committee

TABLE OF CONTENTS
The BROC Process .................................................................................. 1-2
1998 Program Evaluation List
Economic Development through Job Creation and Retention .......................4 Transportation Development ...............................................................5
Economic Impact of Highways Airport Development
Community Development
BROC did not request any program evaluation reports under this policy area for 1998.
Business Development .................................................................... 6-7
Georgia Job Tax Credit Program Business Recruitment and Retention Georgia's Economic Development Programs: A Review and Critique Advanced Technology Development Center (ATDC) Economic Development Institute (other than ATDC) Regional Economic Business Assistance State Financial Assistance Employment Incentive Loans for Industry and Loans for Rural Industry
Tourism ....................................................................................... 8-10
Economic Development and Job Creation By Advertising State Parks and Historic Sites Tourism
Sustainable Development ..................................................................11
Marketing and Promotion of Agriculture Forest Products and Research
Other Requested Reports during 1998 ...................................................12-13
Inmate Mental Health Care Economic Impact of Georgia Tech Research Institute
1997 Program Evaluation List
Economic Development through Workforce Preparedness ..........................16 Economically Disadvantaged Job Seekers ....................................17-19
Job Training Partnership Act WorkFirst Trade Adjustment Assistance and the North American Free Trade Agreement
Transitional Adjustment Assistance New Connections to Work Program
Physically Disabled and Mentally Retarded Job Seekers
BROC did not request any program evaluation reports under this policy area for 1997.

TABLE OF CONTENTS (continued)
Released Prisoners and Paroled Inmates
BROC did not request any program evaluation reports under this policy area for 1997.
Students (16 and Older) ...............................................................20-31
Occupational Information Coordinating Committee Auxiliary Enterprises Techniquip Certificate, Diploma, and Associate Degrees (DTAE) Continuing Education and Customized Training (DTAE) Educational Incentive Programs Addressing Workforce Needs Academic Programming Post-Secondary Career Guidance Service Jobs for Georgia Graduates Secondary School Vocational Education Office of Adult Literacy
Childhood Care and Education ..........................................................32 Other Requested Reports during 1997 ....................................................33-39
Continuing Education (USG) Child Fatality Review Growth in State Funds Allotted to K-12 Education Career Information and Education Services, Grades 6-12 Dropout Prevention Efforts

1998 Annual Report
BROC
The BROC Process: Responsive Government through Responsible Budgeting
Responsive Government through Responsible Budgeting is a mechanism to enhance the legislature's ability to hold state government more accountable to its public policy objectives. The focus is on public policy-making; not administrative policy-making. Recognizing that the legislature has a long history of enforcing administrative compliance, this process helps the legislature establish its own political accountability. Ultimately, the legislature will increase its oversight of state dollars by linking outcome measures, evaluations, and budgets so that state agencies can act strategically to solve public policy issues.
The Budget Accountability and Planning Act of 1993 provides a framework in which the Governor's Office of Planning and Budget (OPB), the Department of Audits and Accounts, and the BROC Research Office work cooperatively to provide the Budgetary Responsibility Oversight Committee (BROC) with evaluative information on state programs. This section describes some of the products these offices make available to the Committee.
Program Evaluation Reports
Program evaluations judge a program's efficiency, effectiveness, and overall value compared to legislative intent. Such evaluations aid BROC and all legislators in their decisions whether to continue, expand, or eliminate particular programs.
The Committee focuses the state's evaluative resources on a policy theme that is of particular interest to its members. For 1997, the theme was "Economic Development through Workforce Preparedness." For 1998, the theme was "Economic Development through Job Creation and Retention."
Policy Profiles
There are roughly 50 policy profiles identified for all of state government. A Policy Profile is a short narrative that includes the goal(s), the outcome measure(s), and all the programs identified by BROC Research as being associated with a particular policy. A profile provides a uniquely legislative perspective on the public policy issues by disregarding executive branch administrative organization of state government. Many policy issues cross agency lines; in fact, rarely does any agency have total responsibility for a public policy issue. A profile will fulfill part of the requirement of O.C.G.A. 28-5-5 and provide the basis for a Policy Bulletin.
Policy Bulletins
A Policy Bulletin is a short report that provides evaluative information on how well the state is meeting its goals (as identified in a Policy Profile). Such research, which involves collecting outcome measures for a policy goal, analyzing those measures, and reporting the results to BROC, provides a yardstick by which committee members can determine the merit, worth, or significance of a policy. The key feature of a bulletin is an oversight calendar that establishes performance benchmarks.

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Strategic Planning
The BROC Research Office works cooperatively with the Strategic Planning Division of the Governor's Office of Planning and Budget to review agency strategic plans. The Budgetary Responsibility Oversight Committee's primary interest in overseeing this important process is to promote consistent and compatible strategic directions among state agencies. Realizing that strategic planning is an ongoing process, BROC, on behalf of the General Assembly, sponsors an annual strategic planning conference each January to highlight some of the strategic directions of the state. At this conference, the Governor's Office of Planning and Budget presents an update of the state's strategic plan.
Information on New Programs
The BROC code directs agencies to submit proposals for new programs to BROC by September 1 of each year. After receiving agency proposals, the BROC Research Office compiles the information and makes it available to the Committee. This process allows BROC Members to compare the potential costs and benefits of all programs--both new and existing.
The following pages highlight the work completed in calendar year 1998. Some work was carried over from prior years.

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Economic Development through Job Creation and Retention
The Budgetary Responsibility Oversight Committee (BROC) of the Georgia General Assembly intends the 1998 theme of "Economic Development through Job Creation and Retention" to encompass state administered or funded programs having goals related to jobs.
Being focused on improving the effectiveness of state government, the committee strongly advocates the measurement of program outcomes. The relevant outcome for the 1998 theme is jobs. Therefore, BROC will evaluate the contribution of state programs that purport to enhance the ability or capacity for Georgia's economy to create or retain jobs.
The classification of programs falling under the job creation and retention theme should be generously made - meaning that a program should be included even though its main impetus might not be directly job-related. For example, the Georgia Department of Transportation's Airport Development Program is included under the theme because it can reasonably be expected to have an economic impact, ultimately measurable in jobs. The same is true for the State Forestry Commission's Forest Products and Research Program. In all cases, program documentation or program personnel statements will have linked the program, in some way, to jobs.
BROC's aim is to analyze state policy. State programs define state policy. The analysis of economic policy will examine the defining programs and assess their outcomes, costs, coherence, and comparability. BROC wants to make a judgment about how well Georgia is doing regarding economic policy in the jobs area and indicate improvements that can be made.
BROC is interested in examining and expressing the "quality" dimension of employment and wants to include measurements of the quality of jobs to distinguish between jobs that make possible economic self-sufficiency and those that do not.
There are five policy areas for this theme:
Transportation Development Community Development Business Development Tourism Sustainable Development

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Transportation Development

The Transportation Development policy area includes all programs that are related to the development or maintenance of the state's transportation infrastructure. The estimated annual expenditures for all programs in this policy area are $542 million in state funds and $1,165 million in total funds. BROC requested that the programs listed on this page be evaluated.

Program Economic Impact of Highways

Assigned to Audits

Status of Report This report was cancelled.

Airport Development

OPB

This report was cancelled by OPB.

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Business Development

The Business Development policy area includes all programs that recruit businesses and retain existing businesses in Georgia. The estimated annual expenditures for all programs in this policy area are $52 million in state funds and $91 million in total funds. BROC requested that the programs listed on this page be evaluated.

Program Georgia Job Tax Credit Program

Assigned to

Status of Report BROC cancelled this evaluation. Georgia State University released a report on this program.

Business Recruitment and Retention OPB

This report was cancelled by OPB.

Economic Development Policy

Georgia State University worked in collaboration with BROC

The final report is pending.

Advanced Technology Development Audits Center (ATDC)

The final report is pending.

Economic Development Institute

OPB

(excluding the ATDC)

This report was cancelled by OPB.

Regional Economic Business Assistance

Audits

The final report is pending.

State Financial Assistance

Audits

The final report is pending.

Employment Incentive Program

Audits

The final report is pending.

Incentive Loans for Industry Program Audits and Loans for Rural Industry Program

A summary of the findings follows this page.

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Incentive Loans for Industry Program and Loans for Rural Industry Program
Evaluated: August 1998 by the Department of Audits and Accounts

The purpose of the Incentive Loans for Industry (ILFI) Program and the Loans for Rural Industry (LFRI) Program is to create and retain jobs by providing gap financing to businesses interested in starting or expanding their operations in Georgia's smaller communities and rural areas. The programs are administered by the Department of Community Affairs (DCA).

Summary of Findings:

Agency Response:

u The ILFI and LFRI Programs have had limited After careful evaluation of the two direct loan

success in meeting their overall objective of programs, the decision was made at the executive

creating/retaining jobs in the state's rural areas.

level of the DCA in May of this year (1998) to

discontinue the programs as they currently exist.

DCA has ensured that the LFRI program's federal

funds will remain in Georgia at the regional level.

In regards to ILFI, DCA has decided to terminate its

relationship with the federal government, so that a

successor program can by created that will have

more flexibility.

u The Department's inability to utilize all of the $4.0 million available to the ILFI and LFRI Programs has had a negative impact on the financial position of the Programs.

DCA agrees that substantial reserves would have been built up if the loan activity had been greater. This was taken into consideration in the decision to terminate the loan program.

u Action should be taken to broaden the lending policies to allow additional types of companies to
be eligible for an ILFI or LFRI loan.

The Department will consider pursuing the ability to expand the types of businesses that can be assisted with the successor program to the ILFI Program.

u The Department should maintain more complete documentation to verify that loans are made only to recipients who are unable to obtain conventional financing for the amount needed.

The DCA Loan Manager and Credit Manager reviewed each application and interviewed the applicant to positively determine that a financing gap existed. Discussions with co-lending banks confirmed the need for DCA assistance.

u The Department should consider refining its methodology for assessing the projected and actual cost-benefit of the ILFI and LFRI loans. The current procedures do not include a specific standard for determining if the dollar amount loaned (the cost) is justified by both the number and type of jobs created (the benefit).

While the Department does not establish formal benchmarks for cost-benefit, it does consider the cost-benefit for each loan in its rating and review.

u The Department should be commended for No response. reviewing all loan applications in a thorough and
consistent manner.

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Tourism

The Tourism policy area includes all programs that promote tourism within the state. The estimated annual expenditures for all programs in this policy area are $6 million in state funds and $7 million in total funds. BROC requested that the programs listed on this page be evaluated.

Program Economic Development and Job Creation By Advertising State Parks and Historic Sites

Assigned to Audits

Status of Report A summary of the findings follows this page.

Tourism

Audits

A summary of the findings follows this page.

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Economic Development and Job Creation By Advertising State Parks and Historic Sites
Evaluated: August 1998 by the Department of Audits and Accounts

Through its marketing efforts, the Department of Natural Resources (DNR) seeks to increase the public's awareness of parks and historic sites; increase park revenue, occupancy, and visitation; and, shift visitation from over-used sites to under-used sites. These activities are carried out to enable the Department to achieve its primary purpose of preserving Georgia's natural and cultural resources for its citizens and visitors to enjoy.

Summary of Findings:

Agency Response:

u DNR's spring advertising campaigns in 1996 and The Commissioner was disappointed that this

1997 did not increase visitation at middle and analysis was conducted so soon after the start of this

southern Georgia state parks and did not seem to new initiative. The audit actually only reviews the

change the distribution of state park visitors from first year's results of the television advertising

northern Georgia to middle and southern Georgia. campaign (1997); the 1996 ad campaign focused on

As a result, DNR's advertising campaigns did not newspaper and radio advertisements and, at a cost

stimulate regional or local economic growth in of $100,000, did not involve any television

middle or southern Georgia.

advertising.

u The Department of Natural Resources' marketing staff did not thoroughly evaluate the effectiveness of the spring advertising campaigns in increasing visitation. Such evaluation should be conducted as a means of designing more effective future campaigns.

Although a lack of formal documentation led the audit team to determine that little analysis was done, in fact, quite the opposite is true. Visitation data was reviewed, although a formal report was not written, and staff and consultants spent considerable time evaluating the FY97 television campaign before planning and implementing that for 1998.

u DNR's spring advertising campaigns have not No response. increased visitation at state parks, so staffing of
state parks has been unaffected.

u The Parks and Historic Sites Division should continue to improve the accuracy of its state park visitation data to enable Division personnel to make informed operational decisions.

In its FY2000 budget, DNR has requested a position that would be dedicated to financial and other statistical analysis such as this. DNR is also reinforcing with its park managers the importance of proper data collection, and will certainly follow the audit team's recommendation for field verification of the visitation formulas used.

u DNR has not developed formal goals and measurable objectives regarding economic development and job creation resulting from its spring advertising campaigns because these areas are low priority goals of the Department.

No response.

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Tourism Program
Evaluated: December 1998 by the Department of Audits and Accounts

The purpose of the Tourism Program administered by the Tourism Division within the Department of Industry, Trade and Tourism is to promote Georgia as a vacation destination. As noted in the Division's mission statement, increasing the number of persons who vacation in Georgia will create a need for more travel-related businesses, more employment opportunities for Georgians, and higher wages for Georgians employed in the travel industry. The Tourism Program conducts a variety of marketing and promotional activities designed to encourage persons to choose Georgia when making their vacation plans.

Summary of Findings:

Agency Response:

u Action should be taken to establish a more results- Response due March 23, 1999. oriented approach to developing and promoting
tourism as an investment in the state's economy.

u Consideration should be given to clarifying the Response due March 23, 1999. overall purpose and utilization of the approximately $78.0 million in lodging taxes that is collected every year by county and municipal governments.

u Additional action should be taken to increase the Response due March 23, 1999. level of tourism (and the resultant economic
impact) in the less-developed areas of the state.

u Although Georgia's Tourism Program spends less Response due March 23, 1999. on advertising than other southeastern states, a recent assessment by a private consulting firm concluded that the Program has done a good job with the amount of funding available.

u The Tourism Program should work with its Response due March 23, 1999. regional representatives to develop annual goals and objectives and should take steps to ensure that they have the resources necessary to achieve these goals and objectives.

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Sustainable Development

The Sustainable Development policy area includes all programs that are related to agriculture and forestry. The estimated annual expenditures for all programs in this policy area are $65 million in state funds and $103 million in total funds. BROC requested that the programs listed on this page be evaluated.

Program Marketing and Promotion of Agriculture

Assigned to Audits

Status of Report This report was cancelled by Audits.

Forest Products and Research

OPB

The final report is pending.

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Other Requested Reports during 1998

In addition to the programs identified under the 1998 theme, BROC requested these programs to be evaluated:

Program Inmate Mental Health Care

Assigned to Audits

Status of Report The final report is pending.

Economic Impact of Georgia Tech Research Institute

Audits

A summary of the findings follows this page.

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Economic Impact of Georgia Tech Research Institute
Evaluated: September 1998 by the Department of Audits and Accounts

As stated in the fiscal year 1999 Results-Based Budget for the Georgia Tech Research Institute (GTRI), the purpose of GTRI is to plan and conduct programs of innovative research and development, education, outreach, and economic development that advance the global competitiveness and security of Georgia, the region, and the nation.

Summary of Findings:

Agency Response:

u In Fiscal Year 1997, GTRI received approximately USG continues to consider and note the Governor's $6.0 million in state appropriations for its General economic advisors' comment on the impact GTRI Operations and performed approximately $74.2 has during periods of full employment. million in research work in Georgia. Therefore, for each dollar of state support GTRI received for General Operations in fiscal year 1997, GTRI was able to obtain more than $12 in external support in the form of contract work that was performed in Georgia. It is this contract work and the resulting jobs that represents the primary direct economic impact GTRI has on the state.

u In addition to a direct economic impact on the state USG acknowledges that the data provided are due to the dollar volume of contracts, GTRI provides somewhat dated and efforts are underway to update indirect benefits to both Georgia's economy and this information. When complete, this data will be Georgia Tech. Indirect benefits to the state include provided to appropriate State agencies. spin-off companies operating in Georgia and technical assistance/research provided to Georgia industries. Indirect benefits to Georgia Tech include added prestige to Georgia Tech and educational opportunities for Georgia Tech students.

u GTRI is measuring and reporting on their economic Finding 3 is valid and work is underway by Georgia

impact on the state of Georgia, but improvements Tech economists to address the issue raised about

could be made in defining the activities that have an the multiplier. The Continuing Education Course

economic benefit and the process of collecting data issue is noted and will be examined in terms of its

which is used to measure the economic impact.

impact to determine if it can more directly benefit

the State.

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1997 Program Evaluation List

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Economic Development through Workforce Preparedness
The Budgetary Responsibility Oversight Committee (BROC) of the Georgia General Assembly intends the 1997 theme of "Economic Development through Workforce Preparedness" to encompass state administered or funded programs having goals related to the preparation of people for employment.
Being focused on improving the effectiveness of state government, the committee strongly advocates the measurement of program outcomes. The relevant outcome for the 1997 theme is employability as evidenced by job placement rates. Therefore, BROC will evaluate the contribution of state programs that purport to enhance the ability or capacity for people in Georgia to prepare themselves for employment and to become gainfully employed.
The classification of programs falling under the workforce preparedness theme should be generously made - meaning that a program should be included even though its main impetus might not be directly related to vocational preparation. For example, workers' compensation and unemployment insurance programs are included under the theme because these have an indirect impact on workforce preparedness, measurable by job placement rates. In all cases, program documentation or program personnel statements will have linked the program, in some way, to job placement rates.
BROC's aim is to analyze state policy. State programs define state policy. The analysis of economic policy will examine the defining programs and assess their outcomes, costs, coherence, and comparability. BROC wants to make a judgment about how well Georgia is doing regarding state policy for workforce preparedness and indicate improvements that can be made.
There are six policy areas for this theme:
Economically Disadvantaged Job Seekers Physically and/or Mentally Disabled Job Seekers
Released Prisoners and/or Paroled Inmates Students (16 and older)
Childhood Care & Education Other Employment Services

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Economically Disadvantaged Job Seekers

The Economically Disadvantaged Job Seekers policy area includes all programs that help the economically disadvantaged obtain employment. The estimated annual expenditures for all programs in this policy area are $271 million in state funds and $809 million in total funds. BROC requested that the programs listed on this page be evaluated.

Program Job Training Partnership Act

Assigned to Audits

Status of Report A summary of the findings is in the 1997 BROC Annual Report.

WorkFirst

BROC Research A summary of the results is in the 1997 BROC Annual Report. Updated results were released in November 1998.

Trade Adjustment Assistance and the OPB North American Free Trade Agreement Transitional Adjustment Assistance

A summary of the findings follows this page.

New Connections to Work

OPB

A summary of the findings follows this page.

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Trade Adjustment Assistance and the North American Free Trade Agreement Transitional Adjustment Assistance
Evaluated: August 1998 by the Office of Planning and Budget

The Trade Adjustment Assistance Program (TAA) and the North American Free Trade Agreement Transitional Adjustment Program (NAFTA-TAA) are United States Department of Labor (USDOL) programs and are entirely federally funded. The Georgia Department of Labor (GDOL) administers both programs. Through these Programs, workers displaced by foreign trade receive training and other types of assistance, which enables them to return to employment in different occupations.

Summary of Findings:

Agency Response:

u GDOL should formally establish goals and desired Enhanced reporting requirements are being put in

results, collect data that it can use to measure place for the Trade Act Programs. GDOL staff are

program effectiveness, and review and improve its in the process of refining the management

financial information reporting processes.

information system to gather the client information

necessary to more effectively manage and evaluate

these programs. The Department has also instituted

performance measures that parallel those of other

dislocated worker programs. Additionally, an

enhanced financial reporting system has been put in

place to more closely track obligations and

expenditures.

u GDOL efforts to have Congress eliminate Department staff are working closely with the

burdensome differences between TAA and United States Department of Labor to institute

NAFTA-TAA programs appear warranted.

policy changes that will minimize the differences in

the TAA and NAFTA programs.

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New Connections to Work
Evaluated: November 1998 by the Office of Planning and Budget

The New Connections to Work Program is an employment and skills training program administered by the Department of Technical and Adult Education (DTAE). The Program offers instruction and support services to single parents, displaced homemakers, single pregnant women and recipients of public assistance. The New Connections to Work Program is funded almost entirely by federal funds under the provisions of the Carl D. Perkins Vocational and Applied Technology Act.

Summary of Findings:

Agency Response:

u Although the Program has stated goals and Response due February 22, 1999. objectives, these goals and objectives do not reflect an outcome-based performance-oriented approach. The Program should continue to improve its goals and objectives through the Results-based Budgeting process and the Department's strategic plan.

u Historically, there has been insufficient information to adequately measure the Program's effectiveness. The Program has recently established a system to capture additional data that can be used to better determine and evaluate performance. However, improvements are needed in the follow-up process to ensure that data are meaningful and consistent.

Response due February 22, 1999.

u Each institute is providing a basic level of services consistent with DTAE guidelines. Many institutes indicated that they also offer additional support services.

Response due February 22, 1999.

u The Program has historically offered services that have also been offered by other programs and agencies. However, the Program is taking steps to reduce duplication of services.

Response due February 22, 1999.

u The Department should improve its administrative Response due February 22, 1999. oversight and management of the technical institute
programs.

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Students (16 and Older)

The Students (16 and Older) policy area includes all programs that help students obtain either employment or higher education. The estimated annual expenditures for all the programs in this policy area are $1,226 million in state funds and $1,788 million in total funds. BROC requested that the programs listed on this page be evaluated.

Program Georgia Occupational Information Coordinating Committee

Assigned to Audits

Status of Report A summary of the findings is in the 1997 BROC Annual Report.

Auxiliary Enterprise Programs

Audits

A summary of the findings is in the 1997 BROC Annual Report.

Techniquip

OPB

This evaluation was cancelled by OPB.

Certificate, Diploma, and Associate OPB Degrees (DTAE)

The final report is pending.

Continuing Education and

OPB

Customized Training (DTAE)

The final report is pending.

Educational Incentive Programs Addressing Workforce Needs

Audits

A summary of the findings follows this page.

Academic Programming

Audits

A summary of the findings follows this page.

Post-Secondary Career Guidance Services Jobs for Georgia's Graduates

Audits OPB

A summary of the findings follows this page. A summary of the findings follows this page.

Secondary School Vocational Education

Audits

A summary of the findings follows this page.

Office of Adult Literacy

Audits

A summary of the findings follows this page.

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Educational Incentive Programs Addressing Workforce Needs
Evaluated: April 1998 by the Department of Audits and Accounts

The evaluation team identified 16 state programs that have a primary purpose that is related to addressing the state's workforce needs through the use of financial incentives for educational purposes. These Programs are administered through five different agencies/boards: the Georgia Student Finance Commission (GSFC), the Georgia Board for Physician Workforce (GBPW), the University System of Georgia (USG), the State Medical Education Board (SMEB), and the Department of Human Resources (DHR).

Summary of Findings:

Agency Response:

u The State's Educational Incentive Programs have GSFC stated that it would be periodically

been instituted in a piecemeal fashion over more evaluating the need for new areas of critical

than 40 years which has resulted in disjointed workforce need, as well as identifying those areas

efforts. A comprehensive approach should be that might become oversupplied. GBPW concurred

developed to optimize the use of educational with the premise of the overview of the finding and

incentives to address the state's workforces needs.

noted that there are plans to formulate a Physician

Manpower Needs Committee. DHR suggested that

an interagency council could effect necessary

coordination in medical education programs.

SMEB declared that the state should require the

agencies/boards to make agreed-upon decisions

related to medical education. SMEB noted,

however, that the state's role is to encourage and

assist local networking and its eventual regional

expansion.

u All but one of the 16 Educational Incentive GSFC, SMEB, and GBPW indicated that they had Programs tracked the employment of their written goals and objectives in place. DHR stated program's participants, indicating recognition of a that it considers retention of the provider in the connection between their programs' activities and community to be the major determinant of success. workforce development. Seven of the programs USG stated that the Regents' Scholarship Program summarized this employment information on was originally established to assist students who individual participants to help them evaluate their would have been unable to attend college without overall impact on the state's workforce. Four of the scholarship aid. programs need to develop written goals and objectives to clearly define their workforce development objectives in order to help them better focus program activities.

u Sufficient information does not exist to adequately DHR, GSFC, SMEB, and GBPW indicated that they

evaluate the effectiveness (costs and benefits) of the either maintain information on the geographic areas

various Educational Incentive Programs in order to where program graduates locate or are in the

help them be more effective and to help policy process of collecting such information. The GBPW

makers concentrate resources on the most effective noted, however, that the absence of an official

programs. Employment tracking is needed to definition of "medically underserved' makes it

evaluate whether the programs are impacting the difficult to measure Georgia's need for physicians

geographic areas of the state with the greatest need.

by specialty and geographic location.

BROC Research

21

1998 Annual Report
BROC

Educational Incentive Programs Addressing Workforce Needs (continued)
Evaluated: April 1998 by the Department of Audits and Accounts

u All but one of the Educational Incentive Programs was adequately reevaluating the overall/statewide need for their incentives. Problems were identified with the HOPE Teacher Scholarship Program's critical workforce needs assessment information. Program personnel could only provide documentation justifying a critical need for 15 of the 26 fields. Selection of the remaining 11 fields was reportedly based upon the verbal recommendations of the Teacher Advisory Council.

GSFC disagreed with the evaluation on the number of teaching fields chosen without documentation. The Program believes the evaluation is counting some fields by subcategories. For the remaining fields, the Program provided a written statement of the rationale the Teacher Advisory Council used in making its selections.

u Only one of the programs did not have needs assessment information that identified the relative workforce needs of various geographic areas of the state; however, the programs that had geographic information did not have procedures for encouraging (or requiring) participants to work in areas of need.

The GBPW stated that it contracts with the teaching institutions and, therefore, cannot directly "require" that participants return to or remain in Georgia upon completion of their training. The Board noted that it employs strategies to ensure that a satisfactory percentage of program graduates enter needed specialties and/or remain in Georgia. GSFC responded that it is in the process of evaluating how it might restructure Service Cancelable Loan repayment schedules to provide special incentives for graduates to perform their service in those areas which show the greatest need for their profession.

u There should be more coordination between the five agencies/boards responsible for the twelve Educational Incentive Programs related to medical education.

DHR, GSFC, SMEB, and GBPW agreed. The Georgia Board of Physician Workforce stated that a Joint Task Force with SMEB has already been established and that staff has recently met with representatives of GSFC.

u Consideration should be given to eliminating the Regents' Scholarship Program in light of similarities between it and the HOPE Scholarship Program. If the Regents' Scholarship is continued, improved controls are needed.

USG stated that because HOPE grants cover only tuition and fees and a portion of students' book costs, the Regents' Scholarship can help students meet their remaining book costs and a small part of their room and board expenses.

POSTSCRIPT: The Department of Audits produced a Special Report on State Funded Post-Secondary Tuition Assistance in response to questions regarding state funded scholarships and other tuition assistance raised by members of BROC at the Committee's July 29, 1998 Meeting. Evaluators found that state funded tuition assistance is available to students attending public and private post-secondary educational institutions both in Georgia and outside Georgia. Based on the best available information, the evaluation team estimated that, in fiscal year 1997, more than 190,000 students received more that $262 million in state funded tuition assistance.

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BROC Research

1998 Annual Report
BROC
Academic Programming
Evaluated: October 1997 by the Department of Audits and Accounts

The purpose of Academic Programming within the University System of Georgia (USG) is to coordinate the academic programs at the state's colleges and universities and to evaluate proposals to establish new academic programs or to discontinue existing programs. The overall objective of Academic Programming is to ensure that the academic programs offered by the state's 34 colleges and universities fulfill a societal need, meet student demand, and are in line with the schools' mission statements and strategic plans. The responsibility for Academic Programming is assigned to the Office of Academic Affairs within the Central Office of the Board of Regents (BOR).

Summary of Findings: u The Board of Regents should take steps to hold
schools accountable for offering academic programs that effectively prepare students for the 21st century
while making efficient use of taxpayers' dollars.

Agency Response: The University System produces assessment
resource manuals, conducts workshops and effectiveness process reviews, and maintains a Regents Administrative Committee on Institutional Effectiveness to continuously monitor related materials and contribute to USG thinking on outcomes and effectiveness in all areas.

u Action needs to be taken by the Board of Regents to work with the state's colleges and universities to identify academic programs that could be discontinued or consolidated among fewer schools.

Degree program duplication is not permitted when fewer existing or proposed equivalent programs will provide adequate access to potential students and satisfy state need. The question is often not whether a particular degree program at a particular institution is awarding enough degrees to justify its existence, but that the host department and faculty are an integral part of the overall academic program of the institution and contribute to the goal of producing a quality higher education.

u The BOR should do a better job of ensuring that the academic programs offered by the state's schools
are in line with the needs of the state's workforce.

The Board of Regents has established a closer oversight of program initiation and change through its new and enhanced review process.

u Consideration should be given to establishing a system for tracking the graduates of the state's colleges and universities. The Board does not have complete placement information for any school. As a result, the Board cannot fully assess the effectiveness of the schools in preparing students to continue their education or to obtain employment in their field of study.

Work has been underway with the Georgia Department of Education and DTAE to share unit record data for educational purposes, especially the tracking of transfers and, at some point, graduates through post-secondary education and into the workplace within the state of Georgia.

BROC Research

23

1998 Annual Report
BROC

Academic Programming (continued)
Evaluated: October 1997 by the Department of Audits and Accounts

u The Board should establish specific performance standards for assessing the overall quality of the
schools' academic performance.

Data on students and their progress through the University System are widely analyzed and reported by the Board of Regents Office. Overall quality of academic performance, however, is much more complex than data-based performance and progress indicators. Each degree program faculty is the only valid source of knowledge about the appropriate student learning outcomes that program is committed to producing. Therefore, the BOR has established specific requirements that every USG institution conduct outcomes assessment and improvement activities that demonstrate the quality of their academic programs and the ways in which the effectiveness of those programs is being improved.

u The Board should require schools to compile accurate cost data for determining the estimated cost of new academic programs and for monitoring the actual cost of established programs.

Determining the cost of existing programs is a matter of estimation rather than calculation for two reasons. First, institutional revenues are allocated to departments rather than programs, and second, the same department faculty and support resources are employed in multiple degree programs. Despite these difficulties, estimation standards and methods are currently being studied by BOR Academic Affairs and Fiscal Affairs staff.

u The Board of Regents should be commended for a number of actions it has taken to improve the overall effectiveness of the state's University System.

While these comments are appreciated, it should be pointed out that the program review process also has been made more rigorous with regard to program need and cost, a 3-year follow-up review process has been added, and a comprehensive program review process has been developed.

u The Central Office needs to develop an effective internal control mechanism for ensuring that the state's colleges and universities only offer academic programs that have been formally approved by the Board.

This finding relates to an inadvertent disparity in the system for recording authorized academic degrees and majors. There is no reason or evidence to suggest that any USG institutions have awarded degrees that were not authorized by the Board. However, since this disparity was brought to our attention the Degrees and Majors Authorized System has been completely redesigned.

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BROC Research

1998 Annual Report
BROC

Post-Secondary Career Guidance Services
Evaluated: November 1997 by the Department of Audits and Accounts

Historically, faculty advisors have provided some level of career guidance services to post-secondary students. Many of the institutions under the University System of Georgia (USG) and the Department of Technical and Adult Education (DTAE) now also offer their students supplemental career guidance services that are provided by non-faculty staff. These supplemental career guidance services are provided to assist students in making informed educational and career path decisions that better prepare them to enter the workforce. Career guidance services seek to help USG and DTAE students identify and pursue careers with positive employment outlooks that are suited to their individual interests, abilities, and values.

Summary of Findings:

Agency Response:

u The University System of Georgia and the DTAE plans to establish a cross-functional work

Department of Technical and Adult Education group to survey the extent to which institutions are

should define minimum career guidance service providing five core services, identified in the 90-

levels for their institutions to ensure that students Day Response Letter, and to develop strategies to

throughout the state who seek such assistance have ensure that all students have access to these

equivalent access to basic career guidance services.

services. USG reports that the System Career

Services officers (USC-PACE) has undertaken a

project to establish minimum program and staffing

standards for its institutions. USG is also offering

System-wide job placement assistance through the

Job Trak program.

u Post-secondary institutions should identify the costs DTAE notes that the integrated structure of career

and benefits of providing career guidance services guidance services transcends the boundaries of

that exceed basic minimal levels to justify their Student Development and Instructional Services as

continuation and to identify effective services that well as numerous other program activities.

might be expanded to other institutions.

Consequently, these services are not listed as a line

item within the budget, making this type of financial

tracking unrealistic. Institutions must ensure,

however, that these services provide value to the

student's educational experience.

u The University System and the Department of DTAE plans to continue providing access to the Technical and Adult Education have coordinated Georgia Career Information System at all efforts to increase their students' access to institutions. computerized career guidance systems.

BROC Research

25

1998 Annual Report
BROC

Jobs for Georgia's Graduates
Evaluated: August 1998 by the Office of Planning and Budget

The purpose of Jobs for Georgia's Graduates (JGG) Program is to work with youth that are economically disadvantaged and at risk of not graduating high school. In particular, JGG attempts to identify at-risk high school seniors and provide school-to-work transition service, during the senior year and for the nine months beyond graduation, that will help the participants achieve immediate and long-range career options. The activities and services that students receive include instruction/counseling in employability skills; marketing to employers; job development and job placement assistance; and students and employer followup services for nine months after the student's scheduled graduation date. The Department of Labor (GDOL) administers JGG.

Summary of Findings:

Agency Response:

u The Program seems to have a slight, positive GDOL appreciates the report's acknowledgement of

impact on the high school graduation rates of JGG's positive impact on high school graduation

participants.

rates.

u Program participants appear more likely to be GDOL agrees. employed and/or in school compared to similar
non-participants.

u According to Program reports, JGG is achieving its No response. objective of securing positive outcomes for 80% of the Program graduates through placement in full or part-time unsubsidized jobs, or entry into the military, post-secondary institutions or other training.

u The Program is not meeting its objective of having As of March 31, 1998, JGG participants from the

JGG graduates obtain work.

class of 97 achieved an employment rate of 58%,

slightly below the Jobs for America's Graduates

(JAG) national standard. However, of that same

class, 27% were enrolled in post-secondary or

training institutions. Negative outcomes were low:

only 13% of the graduates were listed non-positive

outcome.

u The Department's assertion that additional state In carrying out its earnings studies, the Department and federal income taxes generated by program did not have access to the Revenue Department's participants pays for the Program does not appear tax files used by the evaluators, so its conclusions to be valid. Furthermore, program participants regarding "return on investment" may not have earned less and paid less taxes than non- been totally accurate. participants.

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BROC Research

1998 Annual Report
BROC

Jobs for Georgia's Graduates (continued)
Evaluated: August 1998 by the Office of Planning and Budget

u The Georgia Department of Labor should consider The Jobs for Georgia Graduates program has

discontinuing the Program and exploring the proven to be one of the most successful state

feasibility of incorporating its elements into local affiliates in the national network. JGG is included

school-to-work initiatives.

in the state's school-to-work plan. School-to-Work

partner agencies at the state level are committed to

avoiding overlap and duplication so that Georgia

can maximize use of all available funding.

u If GDOL decides to continue administering the Commissioner-elect Thurmond intends to bring to

Program, GDOL should reconsider the Program's the legislature a proposal to pilot an earlier

design and its selection criteria.

intervention program starting in the 9th grade in

several schools, as well as to expand the existing

program into other areas of the state. As an

affiliate of Jobs for America's Graduates (JAG),

JGG has always adhered to the national JAG

criteria for student selection. JGG has further

refined its screening process and documentation to

better reflect the targeting of students with barriers

to successful transition from high school to work or

a work/school combination.

u If GDOL decides to continue administering the As an affiliate of the national JAG program, JGG

Program, GDOL should develop new or refine the has adopted the JAG national purpose, goals, and

existing purpose, goals and desired results, and take desired results. The Department will continue to

steps necessary to assess program effectiveness on participate in enhancement of the national JAG

an ongoing basis.

performance measurement system. The School-to-

Work partners will be focusing on benchmarking

and performance measurement as a part of that

initiative. Lastly, GDOL will develop a strategic

plan, goals, and performance measures for

workforce services through the interagency (GDOL,

DHR, and DTAE) collaborative.

BROC Research

27

1998 Annual Report
BROC

Secondary School Vocational Education
Evaluated: March 1998 by the Department of Audits and Accounts

According to the Georgia State Plan for Vocational Applied Technology Education, the mission of secondary school vocational education is to serve as an educational partner in the preparation of every student to: obtain productive, meaningful employment upon graduation from high school; pursue advanced study at a post-secondary institution of choice; engage in responsible citizenship; and recognize the need for life-long learning. The Secondary School Vocational Education program is administered through the Department of Education (DOE).

Summary of Findings:

Agency Response:

u The Department of Education should review their The DOE agrees. The current goals, objectives, and

goals, objectives, and performance measures to performance measures were adopted in 1995 as part

ensure that the overall performance of Georgia's of the approved state plan for vocational education.

secondary vocational education programs is The DOE will have the opportunity to amend the

addressed.

state plan in FY99 using vocational planning

guidelines, which are scheduled to be released soon

by the U.S. Department of Education.

u Georgia's local school systems could benefit from The DOE agrees. In FY98, the Department

more support by the Department of Education in embarked upon a plan to update existing vocational

developing and updating curriculum for vocational programs and develop new programs to prepare

education programs.

students for careers in the critical and emerging

career areas. The DOE also developed and

initiated a vocational curriculum development plan

in FY98.

u Georgia's Youth Apprenticeship Programs do not The DOE agrees. Improvement strategies were

appear to meet legislative requirements for the initiated in July 1998. Key changes to the Youth

program. The legislation should be reviewed since Apprenticeship program include: refocusing the

the program requirements may not be achievable.

program around high skill career areas and

increasing statewide availability of the program

through a revised grant structure and application

process. In FY99, DOE will work with key

stakeholders to develop recommendations for

improvements to the statute for consideration by the

General Assembly.

u Action should be taken by the Georgia Board of The DOE agrees with the need to improve the cost

Education and DOE to increase the efficiency of the efficiency of the Youth Apprenticeship Program.

state's Youth Apprenticeship Program.

Changes were implemented in the FY99 grant

funding formula, which resulted in a substantial

increase in statewide program availability with no

increase in funding. The DOE will undertake

additional actions beginning in FY99.

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BROC Research

1998 Annual Report
BROC

Secondary School Vocational Education (continued)
Evaluated: March 1998 by the Department of Audits and Accounts

u The Department of Education does not have the The DOE agrees. Improvements being undertaken

information necessary to document the benefits of in FY99 include implementing new data reporting

the state's Youth Apprenticeship Programs.

requirements and revising the program assurances

for grant awards to assure compliance with the data

reporting requirements.

u Georgia's Tech Prep Programs could be improved The DOE agrees. Improvement strategies that are

with guidance from the Department of Education in being initiated in FY99 include: reviewing of goals,

defining the program, setting expectations for objectives, and performance measures; targeting

program outcomes, and assisting in program grant funds to key goals and objectives; developing

evaluation.

of rules and policies; evaluating the benefit of Tech

Prep and its alignment with the vocational

programs and related initiatives such as Youth

Apprenticeship.

u A system of monitoring Tech Prep students' The DOE is implementing changes in the student

academic progress as they continue their post- data system and also is working collaboratively with

secondary education should be developed.

the Department of Technical and Adult Education

and the Board of Regents to develop improved

mechanisms to follow the progress of students from

secondary through post-secondary education.

u Tech Prep programs could be improved through the The DOE agrees. In July 1998, the DOE initiated a

statewide use of universal articulation guidelines.

project to develop a statewide model for the

development of regional articulation agreements.

Ongoing efforts to develop and update articulation

agreements will continue into subsequent years.

u Although there are benefits associated with The DOE agrees with the need to strengthen and

Industry Certification, a low number of high school expand the Industry Certification initiative. In

vocational education programs are industry FY99, the DOE will assess the industry certification

certified. Local school systems could benefit from initiative and design and implement a plan to

more assistance from DOE in the area of Industry significantly increase the number of certified

Certification.

programs.

BROC Research

29

1998 Annual Report
BROC

Office of Adult Literacy
Evaluated: May 1998 by the Department of Audits and Accounts

The purpose of the Office of Adult Literacy (OAL) is to provide a comprehensive literacy program to Georgians over 16 years of age, with or without a high school diploma, who need basic, general, or specialized skills instruction. A network of 37 Service Delivery Areas (SDAs) provides adult literacy programs throughout the state of Georgia. Each SDA has a designated fiscal agent, which receives grants from the OAL to provide literacy services. In addition to granting state and federal funds, the primary responsibilities of the OAL include providing technical assistance, coordinating services with other literacy providers, monitoring programs, and administering the General Educational Development (GED) program. The OAL is a unit within the Department of Technical and Adult Education (DTAE).

Summary of Findings:

Agency Response:

u Georgia's statewide adult literacy program No response. compares favorably to other states in terms of breadth of literacy services offered and overall participant achievement statistics.

u Overall, Georgia's General Educational The OAL is in the process of developing the State of

Development (GED) Diploma testing program Georgia's 5-year plan for the Adult Education and

compares favorably with other states. The one area Family Literacy Act. One of the performance

where Georgia did not compare favorably to other measures for consideration is Georgia's GED

states was in the passing rate of persons that took passing rate. OAL implemented an eligibility

the GED test.

approval process for persons 16 and 17 years old to

attend adult literacy classes before taking the GED

examination. At the end of FY98, the Office

purchased phonics software and the GED practice

software for all 159 counties.

u The Office should be commended for recent No response. changes made to its fiscal year 1998 federal funding formula. These changes, along with changes planned for fiscal year 1999, should result in the disbursement of federal funds being more results based, thereby encouraging service delivery areas to better meet the needs of their local communities.

u The Office should develop a comprehensive During the fall of 1997, instructional and

statewide management information system for administrative staff were involved in several

administering and evaluating adult literacy meetings designed to redefine counting procedures

programs in Georgia. The current reporting system and to clarify definitions. The Monthly Statistical

is burdensome, lacks uniformity, and renders Report has been streamlined to reflect simplicity

unreliable information.

and consistency. The U.S. Department of Education

has contracted to develop a National Reporting

System (NRS) and all states will be mandated to

report electronically using the national database.

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BROC Research

1998 Annual Report
BROC
Office of Adult Literacy (continued)
Evaluated: May 1998 by the Department of Audits and Accounts
u Additional controls and procedures are needed to No response. provide assurances that program data reported by the SDAs are accurate and valid.
u The full-time literacy teacher initiative appears to No response. have a positive impact on student enrollment.
u The Certified Literate Community Program No response. (CLCP) appears to have a positive impact on the establishment of workplace literacy programs and on student enrollment.
u Additional improvements could likely be realized All CLCPs are now required to submit annual in the Certified Literate Community Program reports. OAL holds quarterly meetings with CLCP (CLCCP) if the Office encouraged participants to directors. Subjects covered include measurement submit accurate and complete annual reports and standards, funding, volunteers, maintaining an the Office took a more active role in providing active board, and annual reports. technical and networking support to communities once they obtain Certified Literate Community Participant status.
u The Office should continue to establish and utilize A benchmark stating that "60% of the students will performance benchmarks for its adult education be retained in the program" has been added. programs. The Office has defined a quantitative performance standard for topics of student retention. It is recommended that the Office identify this standard as a benchmark.
u The Office is meeting the federal requirement for No response. monitoring grant recipients and has begun to ensure that the SDAs are correcting deficiencies cited during the monitoring visits.

BROC Research

31

1998 Annual Report
BROC

Childhood Care and Education

The Childhood Care and Education policy area includes all programs that make quality child care available and affordable to all Georgians. The estimated annual expenditures for all the programs in this policy area are $291 million in state funds and $503 million in total funds. BROC requested that the Georgia Child Care Council be evaluated in 1996.

Program Childhood Care and Education Policy

Assigned to BROC Research

Status of Report A summary of the results is in the 1997 BROC Annual Report. The updated results are pending.

32

BROC Research

1998 Annual Report
BROC
Other Requested Reports during 1997

In addition to the programs identified under the 1997 theme, BROC requested these programs to be evaluated:

Program Continuing Education (USG)

Assigned to Audits

Status of Report The final report is pending.

Child Fatality Review

Emory University and Georgia State University worked in collaboration with BROC

A summary of the findings is in the 1997 BROC Annual Report.

Growth in State Funding Allotted to K-12 Education

BROC Research

A copy of the results follows this page.

Career Information and

Audits

Education Services, Grade 6-12

A summary of the findings follows this page.

Dropout Prevention Efforts

Audits

A summary of the findings follows this page.

BROC Research

33

1998 Annual Report
BROC
Growth in State Funding Allotted to K-12 Education
Reported: January 1998 by the BROC Research Office
Responding to a request from the Committee, BROC Research determined the rate of growth for state general funds allotted to K-12 education during the past five years (FY93 through FY97). Allotments grew 9.6 percent over this period after adjusting for inflation and the growth in full time equivalent students.

FY93 FY97 Percent Increase

Full Time Equivalents (millions)
1.2 1.3
9.7%

Allotment (billions)
$2.8 $3.8
34.2%

Allotment per FTE $2,438 $2,983
22.4%

Allotment per FTE AND
Adjusted for Inflation $2,722 $2,983
9.6%

A map depicting counties above and below the state average is on the next page. The calculation includes only state general funds (QBE Formula Earnings plus Categorical Grants plus Educational Equalization Funding Grant less Local Fair Share Adjustment). The calculation does not include lottery or Pre-K money. For ease of interpretation, BROC Research grouped city-administered schools with countyadministered schools. The variation among the counties ranged from -1.8% (Telfair County Schools and Carrollton City Schools) to 100.8% (Burke County Schools).

34

BROC Research

Percent Growth in Educational Allotments

(FY93 to FY97)

Dade

Catoosa

Walker

Whitfield

Murray

Chattooga Floyd

Gordon Bartow

Fannin

Towns Union

Rabun

abersham H

Gilmer Pickens Cherokee

White Lumpkin

Stephens

Dawson Forsyth

Hall

Banks

Franklin

Hart

Jackson

Madison

Elbert

Polk

Paulding

Haralson

Douglas

Carroll

Cobb

Gwinnett

Fulton

De Kalb

Clayton

ockdale R

Barrow Walton

Clarke
O conee

Morgan

Newton

Oglethorpe

Wilkes

Greene

Taliaferro

Lincoln Columbia

uffie cD M

Heard

Coweta

Fayette

Henry

Spalding

Butts

Jasper

Putnam

Warren

Hancock

Glascock

Richmond

Troup

Meriwether

Pike

Lamar

Monroe

Jones

Baldwin

Washington

Jefferson

Burke

BROC Research

Harris

Upson Talbot

Crawford

Bibb

Wilkinson Twiggs

Johnson

Jenkins

Screven

Muscogee hattahoochee
C

Taylor

Marion Schley

Macon

Stewart

Webster

Sumter

Quitman

Randolph

Terrell

Lee

Peach Houston

Bleckley

Laurens

Treutlen

Dooly

Pulaski

Dodge

Wheeler

Montgomery

Crisp

Wilcox

Telfair

Turner

Ben Hill

Jeff Davis

Emanuel Candler

Bulloch

Effingham

Toombs

Evans

Tattnall

Bryan

Appling

Long

Liberty

Chatham

Clay

Calhoun

Dougherty

Early Miller

Baker

Mitchell

Worth

Tift

Irwin

Colquitt

Berrien Cook

Coffee Atkinson

Seminole

Decatur

Grady

Thomas

Lanier

Clinch

Brooks Lowndes

Echols

Bacon Pierce

Wayne

Ware

Brantley

McIntosh Glynn

Charlton

Camden

For maps printed in black and white, please call 404-657-4600.

Below Average Average (6.1% - 13.9%) Above Average
Allotments are State General Funds. Lottery and Pre-k funds are not included. Percentages are adjusted for inflation and full-time equivalent student growth. City schools districts are included in county totals. Below Average: 22 counties Average: 100 counties Above Average: 37 counties

1998 Annual Report
BROC

Career Information and Education Services, Grade 6-12
Evaluated: March 1998 by the Department of Audits and Accounts

The Georgia Department of Education (DOE) provides resources to aid local school systems in their efforts to offer career information and education services aimed at helping students make informed educational and career decisions. The resources provided include: grant funding; information resources (such as career exploratory computer software and written and video materials on careers and educational choices); guidelines for teaching career exploratory courses; guidelines for career counseling; interest inventory tools for the matching of students' interests, personalities, and abilities to potential career fields; and training for local school systems' career education staff members.

Summary of Findings:

Agency Response:

u Most of Georgia's middle and high schools appear No corrective action is indicated, but the to be offering career information education services Department will encourage local schools to offer designed to teach skills related to all three career career information consistent with professional development competency areas recommended by standards and guidelines. professional standards and guidelines.

u Additional efforts should be taken by the The DOE agrees that Georgia's middle schools Department to encourage and assist Georgia's need additional assistance and encouragement in middle schools in providing career information and providing career information and career education education services in the three career development services. The DOE is initiating strategies to assess competency areas identified in professional local need and interest, design improved strategies standards and guidelines. In addition, the to encourage and assist middle schools with career Department should encourage middle schools to information and career education, and develop implement and utilize a wider variety and range of associated funding. service delivery methods to provide career information and education services.

u Statewide goals and measurable objectives have not The DOE agrees that goals and objectives need to been developed for career information and be developed. These activities will begin in 1999 education services in Georgia. In addition, the when DOE will review and amend the state Department has not developed performance vocational plan. The DOE will also review data measures and assessment mechanisms for gathering and assessment mechanisms to determine evaluating such services. Consequently, neither the needed modifications. The target date for Department nor local schools can adequately completion of the evaluation is December 1999. determine if the type and amount of information and counseling needed by students to make informed choices is being provided.

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BROC Research

1998 Annual Report
BROC

Career Information and Education Services, Grades 6-12 (continued)
Evaluated: March 1998 by the Department of Audits and Accounts

u The Department should develop a common The DOE agrees. The Department has initiated

framework and process for local schools to use in action to design a framework that is consistent with

planning, documenting, and assessing both the professional standards and guidelines and will

career information and education services provided provide assistance to local schools with

to each student and each student's achievement of implementation to the extent of available resources.

competencies in each of the three career The planning and design phase was initiated in

development areas identified in professional FY98, with initial implementation scheduled for the

standards and guidelines.

latter part of FY99 and continuing in subsequent

years.

u Improvements are needed in the technical The DOE agrees and is initiating a number of

assistance, guidance, and staff development strategies to improve the scope and variety of

provided to local schools by the Department.

technical assistance and staff development services

provided to guidance counselors, teachers, and

other school personnel who provide career

information and education services, with particular

attention to middle schools.

u Since parents play a primary role in their children's The DOE agrees and has initiated action to develop

career development, additional efforts should be prototype career information and educational

directed toward ensuring that parents are planning materials for local schools to use in

adequately informed, educated, and involved with helping students and their parents. In addition, the

regard to their children's unique interests, DOE is working collaboratively with DTAE and

aptitudes, and abilities and how these factors relate USG to improve information about Tech Prep

to the various educational and career preparation options. The DOE also plans to design an

choices available to their children.

innovative grant project to increase parent

involvement.

u Department personnel should consider need as a The DOE will have the opportunity to amend the prime criteria in evaluating Career Centers and state vocational plan in FY99, and will identify Career Connections grant applications. Although improvements and changes needed in the Career the current process includes consideration of the Centers and Career Connections programs. scope and quality of the applications, the process appears to favor grant applicants that are proficient and professional in drafting grant applications over those that are less articulate in communicating their need for the funds.

u Career awareness activities for grades K-5 are No corrective action is indicated, but the DOE will recommended by the NOICC's National Career make available to local elementary schools, upon Development Guidelines. A small sample of request and to the extent that existing staff and Georgia's elementary schools indicated that these resources permit, information about effective career schools have started to adopt career awareness awareness activities. activities.

BROC Research

37

1998 Annual Report
BROC

Dropout Prevention Efforts
Evaluated: March 1998 by the Department of Audits and Accounts

The purpose of the state's dropout prevention efforts is to reduce the number of students who quit school before they complete their high school education. Although there is no state program specifically responsible for dropout prevention, the Department of Education (DOE) administers a number of programs designed to help students succeed in school and thereby reduce the likelihood of their dropping out. Through discussions with DOE administrators and local school system personnel, the evaluation team identified 15 programs that address the needs of at-risk students. These programs include At-Risk Summer School, Special Instructional Assistance, Pre-Kindergarten (administered by the Office of School Readiness), Even Start, and Remedial Education.

Summary of Findings:

Agency Response:

u Every school year from 1993 through 1997, Through a focus on increased academic rigor,

approximately 28,000 Georgia students dropped out improved support services, and early identification,

of high school.

the Department is confident that the number of

students who will complete Georgia's schools will

increase.

u The Department of Education should take steps to The Department believes that, although it does not

promote a comprehensive dropout prevention have a plan that addresses dropout prevention per

program by adopting a unified state dropout se, there are plans in place to address the various

prevention plan.

factors which influence and may cause a student to

drop out. Rather than a narrowly described dropout

prevention program, the Department believes that a

broader approach including more coordination of

existing efforts is more effective.

u The Department and local school systems need to If more students are experiencing academic success,

establish goals and measurable objectives for then more will stay in school until completion. The

reducing the dropout rate and for improving the DOE will establish goals and objectives for

academic competencies of students at risk of improving the academic performance of students at

dropping out.

risk of dropping out.

u For the state to have an effective dropout The Department will review the collection methods prevention program, the Department of Education currently in place and design any modifications needs to compile more complete information needed. regarding the students who drop out and their reasons for dropping out.

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BROC Research

1998 Annual Report
BROC

Dropout Prevention Efforts (continued)
Evaluated: March 1998 by the Department of Audits and Accounts

u The Department should compile a comprehensive The Department will identify and disseminate

listing of the dropout prevention efforts that have effective prevention efforts that have been

been implemented by local school systems.

implemented at the local level.

u The Department should keep track of students who With the proposed implementation of a State Board

transfer from one school system to another and use of Education definition of dropout, the necessary

this information to check the accuracy of the modifications in the Student Information System can

withdrawal information reported by local school be made to track transfer students. Plans are being

systems.

implemented currently to ensure that students are

tracked with the present Student Information

System.

u The Department should be commended for The Department appreciates the audit committee's

establishing a score keeping method for holding acknowledgment of the implementation of The State

schools accountable for the progress of their Report Card. The Department will continue to

students.

refine for accuracy the data included.

u The state should consider alternative dropout The Department will continue to expand existing

prevention strategies that have been implemented strategies and to implement new strategies to

in other states to serve at-risk students.

promote dropout prevention.

BROC Research

39

The joint Budgetary Responsibility Oversight Committee evaluates itself in light of its own
Vision, Mission, and Beliefs:

Vision Mission

The Budgetary Responsibility Oversight Committee shall be the principal state policy and program review arm of the Georgia General Assembly, measuring policy and program performance against commonsense standards of efficiency while comparing policy and program goals with legislative intent.
The mission of the Budgetary Responsibility Oversight Committee is to follow the intent of the General Assembly that taxpayer dollars be spent in the most effective and efficient manner possible. We will recommend that the General Assembly deny resources to unworthy or redundant programs. We will recommend improvements for worthy programs to allow them to become effective and efficient. We will, further, advise the General Assembly whether the strategic plans of individual agencies are consistent with the intent of the legislature and with the state strategic plan.

Beliefs

The members of the Budgetary Responsibility Oversight Committee believe that . . .
1. The General Assembly has the responsibility to decide which, out of the many needs and wants of human existence, are the appropriate public policy issues to be addressed by legislation and the expenditure of tax dollars.
2. Legislative responsibility properly pertains to the recognition of a public problem to be addressed by state action. Such legislative responsibility is not discharged merely by funding well-intentioned programs, but includes oversight of the programs themselves through evaluations of their functions and performance.
3. Public policies recognized as properly in the domain of government intervention should be addressed in a coordinated manner by relevant state agencies.
4. The people of Georgia deserve assurance that their elected representatives are engaged in an ongoing review of expenditures by state agencies.
5. A vigilant effort to determine if tax money is actually being put to use according to legislative intent is the proper duty of the Budgetary Responsibility Oversight Committee.
6. Sound advice based on objective and impartial research is the product we are constituted to give to the General Assembly of the State of Georgia.