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M I N U T E S
Joint Education Interim Committee
Student Union Family Conference Room October 23, 24 & 25, 2002
University of Wyoming Laramie, Wyoming
PRESENT: Senator Irene Devin and Representative Bill Stafford (October 24 & 25), Cochairmen;
Senators Keith Goodenough, Robert Peck, Charles K. Scott and Kathryn Sessions;
Representatives Tom Lockhart, Del McOmie, David Miller, Ann Robinson, Doug Samuelson (October 24 & 25) and Jim “Bubba” Shivler;
Absent Members: Representatives Mac McGraw and Marlene Simons.
Other Legislators in Attendance: Senator Mike Massie.
Legislative Service Office: Dave Nelson and Mary Byrnes.
Others Present: See attached Appendix A.
AGENDA: See attached Appendix B.
* * * * *
Wednesday, October 23, 2002
Senator Irene Devin, Committee Cochairman, called the Committee to order at 8:50 a.m.
NOTE: Please reference the transcripts for all motions and verbatim discussion of all education issues referenced herein. The transcripts are on file with the Legislative Service Office under Appendix C attached to this report.
Staff Briefing.
Mary Byrnes, LSO, updated Committee members on school foundation program account expenditures and revenues, using recent CREG 2002 October revenue estimates and SY 02/03 preliminary ADM counts. Submitted estimates and updates are attached under Appendix D.
Special Education Study.
Rebecca Walk, State Department, stated the purposes of the special education study conducted by the department pursuant to law (2002 Laws, Chapter 76, Section 9):
(1) To determine special education expenditures;
(2) To define adequate resource guidelines for special education programs delivered in Wyoming schools; and
(3) To provide recommendations on funding special education programs.
Ms. Walk introduced Dr. Thomas B. Parrish, American Institute for Research, who is under contract with the State Department for the conduct of the special education study.
Dr. Parrish provided Committee members an overview of the study including study findings and recommendations. The study was conducted in consultation with a Taskforce comprised of special education stakeholders, which group received a draft copy of the final report prior to the Committee meeting. Based upon meeting deliberations, a final report will be revised as necessary and submitted to Committee members prior to its November meeting.
Dr. Parrish summarized study findings, including the recommended replacement of the current 100% reimbursement funding mechanism with block grant funding based upon recommended staffing guidelines. Analysis of state expenditures indicates that although the existing funding methodology has not resulted in excessive student special education identification or spending, Wyoming's student identification rate is five percent higher than the national average and per student spending exceeds the national average by seventeen percent. Additionally, study findings indicate Wyoming districts vary significantly in spending and program services under the current reimbursement approach, with services varying from eight to twenty-nine percent of special education enrollment and average spending ranging from under $6,800 per student to over $13,000.
Continuing, Dr Parrish recommended the state establish guidelines defining program adequacy in Wyoming, to be based upon student populations and not specific disability. The proposed guidelines were developed in conjunction with the Taskforce and include consideration of remoteness. Block grant funding is recommended to be phased-in over a twelve year period, with districts held harmless to the base year. Additionally, funding is to be augmented by a special education contingency fund for districts facing extraordinary circumstances. Further, study recommendations include enhancement of regional services and state support, with supplemental staffing of the State Department required to bolster state level program support, monitoring and facilitation of regionalized services. Based upon existing data, Dr. Parrish estimates that the funding model would cost the state an additional $615,000 in supplemental revenues. A copy of the power point presentation is attached as Appendix E.
Taskforce members present and presenting comments to the Committee included Mike Kouris, Fremont #25, Glenna Calmes, Uinta #1, Ed Goetz, Albany #1, Dan Hudson, Fremont #14, and Elaine Scott, Natrona #1. Written remarks presented by Mr. Hudson are attached under Appendix F.
Small School Definition Report.
Larry Biggio, State Department, on behalf of State Superintendent Catchpole, presented findings and recommendations of the study on the definition of small school, as conducted pursuant to 2002 Laws, Chapter 76, Section 10(a). In initiating study efforts, the State Superintendent requested the School Data Advisory Committee work with the department in defining school for purposes of the small school adjustment, which resulted in the development of standards for tracking and reporting school level expenditures for SY 02/03. The Data Advisory Committee further recommended that an alternative funding method be established to address the small school issue, which would involve multiple school prototypical models each addressing a range of ADM.
Based upon Data Advisory Committee and department activities and recommendations, the State Superintendent recommends the postponement of a small school definition until SY 02/03 data is available and further work is conducted on multiple small school prototypes. The submitted report and outline of remarks is attached as Appendix G.
Regional Cost of Living Report.
Buck McVeigh, Division of Economic Analysis, and Dr. Robert Godby, University of Wyoming Department of Economics and Finance, addressed Committee members on a study of the regional cost of living adjustment under the cost-based model, and the Wyoming Cost of Living Index (WCLI), conducted in accordance with 2002 Laws, Chapter 76, Section 13. The remarks began with a review of approaches used by other states in addressing variations in education costs, a copy of which is attached at Appendix H, followed by a discussion of conclusions pertaining to the ability of the WCLI to adjust for education cost variances in Wyoming.
Dr. Godby reports the WCLI, which was not intended to be an instrument measuring education cost differences, does not adequately proxy local variations in education cost inputs across the state as it ignores surrounding areas when valuing the consumption of goods, and does not adequately reflect housing costs which significantly impact the regional cost adjustment. Following an analysis of the impact of housing costs as evidenced by several simulations altering Teton County values, Dr. Godby exemplified defects of the WCLI which overcompensate resort areas and under compensate remote/small population areas. The analysis submitted by Dr. Godby is attached at Appendix J.
Regardless of the ultimate approach to the regional cost adjustment, Dr. Godby recommends that because of its importance to economic development efforts, the WCLI be improved by expanding sample locations for enhanced representation and by reducing existing bias in component measurements. Committee members were cautioned that even with improvements, the WCLI may continue to bias results due to uncontrolled amenity value effects hindering economically disadvantaged regions of the state. Dr. Godby continued by discussing alternative indexation methods to adjust for regional differences, including hedonics-based estimates of wage determinants and production function approaches estimating input cost effects on education cost variation. Dr. Godby emphasized the need to design the cost-based model comprehensively and give due consideration to the relationship of model components and adjustments to the entire model. Dr. Godby agreed to review methods available to adjust the WCLI as a basis for the regional cost adjustment, and also to provide analysis of alternative indices together with cost estimates for index development. An outline of remarks made by Dr. Godby is attached at Appendix K.
Reading Assessment and Intervention Modeling.
Dr. Jim Smith, MAP, reported progress on efforts to provide for cost-based funding of reading assessment and intervention programs, as directed by 2002 Laws, Chapter 76, Section 7. Following discussions with Wyoming school principals, MAP is reviewing professional development and program implementation costs to develop a range of interventions and costs statewide. Further, MAP is reviewing the capability of measuring program impacts upon participants. A report is anticipated on program recommendations by the November Committee meeting.
Classified Personnel Adjustment.
Continuing, Dr. Smith reported on work progress pertaining to the cost-based model adjustment for the experience level of classified personnel as prescribed by W.S. 21‑13‑323(d). Under law and due to incomplete data at the time of model development, the adjustment was not implemented until SY 03/04. Following a recent request for necessary information from school districts, submitted data was not sufficient for adjustment methodology. A request was resubmitted by the department, and it is hopeful necessary data will be generated in sufficient time for presentation to the Committee at its December meeting.
Recess.
CoChair Devin recessed the Committee at 6:45 p.m.
Thursday, October 24, 2002
Senator Devin reconvened the Committee at 8:35 a.m.
Vocational Education Study.
Teri Wigert, State Department, introduced MPR consultants under contract with the department for the study of vocational education as required by law (2002 Laws, Chapter 76, Section 4). MPR's Steven Klein and Gary Hoachlander presented study findings and recommendations, with Rosio Bugarin and Elliot Medrich also in attendance.
Mr. Hoachlander indicated the study proceeded under the conceptual framework that schools be compensated for the increased costs of providing vocational education programs, which would recognize variation among schools in program delivery. The proposed funding model is based upon student participation levels in vocational education programs, subject to recommended guidelines. Under the proposal, funding is based upon vocational programs offered in grades 9 through 12 which are taught by vocationally endorsed instructors, with a waiver process established which would accommodate districts offering career development coursework. Student participation is based upon an FTE count subject to audit procedures verifying district reports and is to be funded at a recommended 1.26 weight factor. To ensure small schools are able to provide quality services, MPR recommends secondary schools be funded based upon a continuous weighting formula at a level sufficient to offer a minimum of two vocational programs. A qualified vocational education program would consist of a sequence or cluster of three courses in the program area. Continuing, Mr. Hoachlander explained the cost-effectiveness strategy comprising study recommendations which treat small schools within a five mile area of a large district as a single entity, with the combined resources distributed to the district for local allocation.
Steve Klein presented vocational education funding options based upon funding objectives. Under option 1, existing amounts within the cost-based model for vocational education programs are reallocated from schools with below average student participation rates to schools with above average participation rates. No additional resources are added. Under this approach, 30 districts serving 41% of state ADM gain resources and 14 districts serving 56% of state ADM lose. A second option added a five-year hold harmless provision for districts with below average rates of vocational education program participation.
Continuing, Mr. Klein presented a third funding option which would impose a quality standard comprised of a two-program minimum, with funds reallocated among districts. Twenty-five districts serving 7% of statewide ADM would be eligible for supplemental weighting under this approach. A final option adding a five year hold harmless provision for districts with below average student participation rates was presented, estimated to infuse an additional $1.2 million in formula funding. Funding examples under each option were made available for discussion and are included in attached Appendix M.
MPR funding recommendations also include an adjustment for vocational equipment and supplies in addition to program instruction, allocated on a flat amount per instructor, together with a competitive grant program initiated to fund vocational program start-up costs. The grant program is established to cover costs associated with curricular development and program design, introductory year instructors and initial equipment and supply purchases, at a suggested authorization level of between $150,000 to $250,000. Finally, $100,000 is suggested to be made available to the State Department and Audit for added responsibilities under the proposed funding formula. Appendix N provides a brief summary of the proposed vocational education funding adjustment.
Deputy State Superintendent Annette Bohling and Mark Higdon, Campbell #1, provided comments on study findings and recommendations.
CoChair Devin made a motion requesting staff draft legislation necessary to implement option four as presented in the MPR report. Draft legislation and fiscal impact analysis would be available to Committee members for consideration at the scheduled November meeting. Representative McOmie seconded the motion and the motion carried. Senator Scott moved drafting of a second alternative which would fund all vocational education FTE at the 1.26 weight, phased-in over five years. Senator Goodenough seconded the motion and the motion carried.
CoChair Devin made an additional motion requesting staff prepare necessary legislation implementing MPR recommendations for a formula adjustment for vocational equipment, the competitive grant program and the allocation of resources to the State Department and Audit to implement additional responsibilities. Representative Miller seconded the motion and the motion carried. Cochair Devin moved for inclusion of an annual reporting requirement for districts on the expenditure of vocational education resources. Representative Lockhart seconded the motion and the motion carried.
Compensation Component Report.
Dr. Jeffrey S. Zax, Colorado University Department of Economics, presented initial findings resulting from a review and analysis of the certified staff component within the cost-based model, conducted in accordance with the requirements of 2002 Laws, Chapter 76, Section 16. Dr. Zax initiated his report by addressing the question of a shortage of teachers in Wyoming, which he suggested was not the case. Examining available evidence, teacher vacancy rates appear to be the result of inter-district movement and state "quits" resulting from movements out of the teaching profession entirely, teaching out-of-state and from retirement. Additionally, little evidence suggests teacher recruiting has become increasingly difficult.
Teacher compensation levels appear to be competitive regionally, although certain areas present recruiting difficulties such as middle school principals and specific subject area instructors such as special education. Incentives in these areas may be required. Dr. Zax indicated additional information assisting the determination of compensation level adequacy include the relationship between student outcomes and teacher experience and pay, and additional information on turnover and compensation incentives. Senator Scott suggested Dr. Zax include in his final analysis consideration of the impact of an external cost adjustment funded by the 2001 Legislature. CoChair Devin requested a review of the impact of benefits on salary levels also be included as a part of salary review. Dr. Zax indicated both points would be included in his final report, to be available to Committee members prior to the November meeting. A copy of the overhead presentation is attached at Appendix O.
At-Risk Adjustment Study.
Ruth Sommers, under contract with the State Department for a review of the at-risk adjustment to the cost-based model, presented preliminary findings to Committee members. The study is in accordance with 2002 Laws, Chapter 76, Section 15. Ms. Sommers reported initial findings indicate adjustment proxies for the identification of at-risk students currently used within the cost-based model for purposes of financial compensation appear to be accurate. However, review suggests the proxy for at-risk student identification be adjusted at the secondary level to account for the incidence of mobility within individual schools. Additional recommendations include:
· Distinctions between special education and at-risk students be identified by the State Department and schools be trained in methods to clearly separate supports provided by special education and at-risk programs;
· Compensatory education programs offered throughout districts be reviewed for effectiveness and efficiency over a two-year interim period to determine if intervention and remediation programs for students are adequate;
· Attention be focused on dropout rates;
· Adequate and inadequate student performance be defined and the department identify and supervise the use of effective intervention and remediation strategies;
· Funding of a limited reimbursement program for districts to cover costs associated with summer school intervention and remedial programs, a funding initiative separate from the block grant amount with application procedures and program requirements defined by the department.
A summary of preliminary report findings is attached at Appendix P. A final report will be available to Committee members prior to the November meeting. Deputy State Superintendent Bohling addressed the variation in at-risk definitions used by districts. CoChair Devin made a motion requesting staff draft necessary legislation modifying the at-risk proxy to include secondary level mobility factors, and also, implementing limited funding for summer school intervention and remediation programs. Senator Sessions seconded the motion and the motion carried.
Data Facilitation Report.
Dick Gross, contract facilitation professional to conduct facilitated discussions on school data issues, presented a final report on behalf of facilitation participants. The facilitated discussion of school data issues was continued by Committee action at the June meeting. A copy of the report is attached as Appendix Q.
Mike Hamilton, State Department, presented recommendations forwarded on behalf of facilitation participants. The first recommendation is for funding to establish and operate additional department advisory groups in the areas of student data/demographics, certified and classified personnel and technology, established to assist the department in assembling data. Second, the participants recommend funding of a student assessment and body of evidence tracking system providing information necessary to comply with requirements implementing statewide graduation standards. Requested funding would provide necessary software allowing districts to adequately track student performance information, explained in more detail at attached Appendix R. Finally, the group recommends funding necessary to establish a school interoperability framework allowing the common labeling of data for sharing and assembling state data collections. This proposal is further described in attached Appendix S. Funding estimates and enabling legislation is to be available to Committee members prior to the November meeting.
Representative Lockhart requested the department provide Committee members with a copy of the RFI for student performance tracking software.
Recess.
CoChair Stafford recessed the Committee at 5:00 p.m.
Friday, October 25, 2002
CoChair Devin reconvened the Committee at 8:05 a.m.
University of Wyoming.
Dr. Philip L. Dubois, U.W. President, presented institutional benchmarks and the budget for the University, a copy of which is attached at Appendix T. Specific benchmarks discussed included recruiting goals, graduation rates, research revenues and private funding. Dr. Dubois indicated faculty salaries, enrollment benchmarks and outreach programs continue to present challenges to the University.
Rick Miller, UW Vice President, discussed the University's capital facilities plan, and submitted the attached material at Appendix U. Proposed projects include the health sciences center, the library/technology information center, student services and fine arts, estimated at roughly $95 million. With athletic renovations, the amount increases to nearly $110 million. Existing University bonding capacity would generate $32 million, and an additional $2.6 million could be generated from uncommitted FMR revenues. This session, the University will request $14.9 million from state funds for capital facility funding, with $3 million generated from private funds. Mr. Miller indicated the University will be requesting increased bonding authority to expedite implementation of University capital facility plans.
Tom Buchanan, UW Vice President, discussed the University's academic planning efforts, and recent activities involved in the revision of the plan adopted several years ago. A copy of academic planning materials distributed to Committee members is attached at Appendix V.
Financing for the Wyoming technology business center was discussed by William Gern, UW Vice President. The University is seeking $5.3 million in state funds for the construction of a new business center facility, to be combined with $3.2 million in federal funds. A brief summary of center operations was distributed and is attached at Appendix W.
Higher Education Issues.
Rick Miller, UW, Frank Galeotos, Department of Administration and Information, and Richard Gilliland, Wyoming Community College Commission, addressed Committee members on two priority issues forwarded by state higher education institutions, and by the state. The first issue of concern involves maintenance of capital facilities. Mr. Galeotos presented a joint proposal which would separate facility maintenance funds from capital facility budgets, and place the funds within agency operating budgets. Further, the group is forwarding a major maintenance funding approach similar to the program establish for K-12 facilities. Materials on the proposal are attached under Appendix X. Conservative estimates of necessary funding to initial the proposal were presented, approximating $13.6 million combined, with $6.3 million for University buildings, $4.3 for community college buildings and $3 million for state facilities.
The second higher education priority issue presented by the group involved the increasing costs of health insurance, with higher education requesting an adjustment similar to any adjustment forthcoming in the executive branch. Mr. Galeotos indicated the governor would be forwarding a budget recommendation on the matter.
Wyoming Community Colleges.
Ed Jolovich, president, Wyoming Community College Commission, Richard Gilliland, Commission director, and Dr. JoAnne McFarland, Central Wyoming College president, addressed the Committee on community college matters. Mr. Jolovich expressed support for the higher education legislative agenda requesting major maintenance and health insurance funding. Mike Christensen, Western Wyoming College board member and president of the Wyoming Association of Community College Trustees, also spoke in favor of the legislative agenda.
Mr. Gilliland summarized community college activities and cooperative efforts with the University and K-12 education. He distributed copies of a recently published brochure presenting vital information on state community colleges. A copy of the brochure is attached at Appendix Y. Mr. Gilliland also apprised Committee members of Commission budget requests for Wyoming public television.
Dr. McFarland emphasized the urgency of the health insurance issue by presenting examples of the impacts of insurance costs on college employee compensation. Dr. LeRoy Strausner, Casper College president, Dr. Charles Bohlen, Laramie County Community College president, and Dr. Steve Maier, Sheridan College president, all provided comments in support of increased health insurance funding. Dr. McFarland concluded remarks by discussing work force development efforts by the community college system. A copy of the materials presented on this matter are attached under Appendix Z.
Other Business.
Legislation was distributed by Senator Sessions pertaining to a school finance facilitation forum, to be submitted for Committee discussion at a subsequent meeting. A copy of the draft, 03LSO-0172.W2, is attached at Appendix AA.
Adjournment.
CoChair Stafford announced the next Committee meeting is scheduled for November 19, 20 and 21, 2002, in Casper. More meeting specifics will be available at a later date. The Committee was adjourned at 12:15 p.m.
Respectfully submitted,
____________________________ _________________________________
Senator Irene Devin, Representative Bill Stafford,
Committee CoChair Committee CoChair