Greg Land President, Governing Board 1825 Trousdale Drive Burlingame, CA 94010-4509 RE: Local Control Accountability Plans and Adopted Budget Fiscal Year 2014-15 Dear Mr. Land: In accordance with Education Code Section 42127 and 52070, the San Mateo County Superintendent of Schools has examined the Local Control Accountability Plans (LCAP) and the Adopted Budget of (District) for fiscal year 2014-15 to determine compliance with the Criteria and Standards established by the California State Board of Education and to verify that the Adopted Budget includes expenditures necessary to implement the LCAP and allows the District to meet its financial obligations and multi-year commitments. On the basis of the county office review and analysis, the San Mateo County Office of Education has determined that the 2014-15 Budget and LCAP adopted by the Burlingame Elementary School District Governing Board on June 24, 2014 are consistent with the State-required criteria and standards and are therefore approved with the following concerns/comments: A. LOCAL CONTROL ACCOUNTABILITY PLAN School districts are required to develop, adopt, and annually update a three-year Local Control and Accountability Plan (LCAP), beginning on July 1, 2014, using a template adopted by the California State Board of Education. The LCAP requires the identification of goals, with its associated indicators of progress (metrics), for all students and for student subgroups as identified in EC 52052. The LCAP also requires that the district identify and fund specific actions to support the achievement of its LCAP goals for: a) all students, b) low income students c) English learners d) foster youth, and e) redesignated fluent English proficient students.
Page 2 Education Code Section 52070(d) provides that the County Superintendent of Schools shall approve a Local Control and Accountability Plan if the following criteria for approval are met: 1) Adherence to SBE Adopted Template The LCAP or annual update to the LCAP adheres to the template adopted by the SBE pursuant to EC 52064. 2) Sufficient Expenditures in Budget to Implement LCAP The budget for the applicable fiscal year adopted by the governing board of the school district includes expenditures sufficient to implement the specific actions and strategies included in the LCAP adopted by the governing board of the school district, based on the projections of the costs included in the plan. 3) Adherence to SBE Expenditure Regulations The LCAP or annual update to the plan adheres to the expenditure requirements adopted pursuant to EC 42238.07 for funds apportioned on the basis of the number and concentration of unduplicated students pursuant to EC 42238.02 and 42238.03. LCAP REVIEW COMMENTS/FINDINGS: In alignment with the spirit of EC 52071, SMCOE reviewed the District s LCAP by template section. Below is a statement regarding the legal requirements of each template section, followed by a summary of SMCOE s observations of the District s LCAP. In addition, when appropriate, SMCOE has also provided technical assistance recommendations to the District intended to inform any updates or revisions that the District may deem necessary and appropriate. LCAP Section 1 Engagement EC 52052, 52063, and T5 CCR 15497 (SBE adopted template) require that the District provide for a meaningful process to engage parents, students, community, and other stakeholders in the development of the LCAP. The District-submitted LCAP outlined the meeting and event dates for LCAP engagement. The District also described extensively the impact those meetings and events had in the development of the District s LCAP. To ensure alignment with LCAP statute, SMCOE recommends that the District review the composition of its District Advisory Committee (DAC) to ensure it meets the membership composition requirements for a Parent Advisory Committee as required by EC 52063. LCAP Section 2 Goals EC 52060 (c) (1) requires a description of the District s LCAP adopted goals for all students and each subgroup pursuant to EC 52052. Section 2 of the SBE adopted template requires that the District identify need(s); establish goals in alignment with the State Priorities (EC 52060 (d) (1-
Page 3 8)) and local initiatives; and establish the metric(s) to measure progress toward achievement of the LCAP goals for all students, as well as each subgroup pursuant to EC 52052. The District organized its LCAP goals under three (3) categories (Conditions of Learning, Pupil Outcomes, and Engagement). An additional subtitle line for each category was added. Each category includes specific LCAP goals: four (4) for Conditions of Learning, seven (7) for Pupil Outcomes, and five (5) for Engagement. During the upcoming annual revision of the District s LCAP, SMCOE recommends that the District revisit the metrics identified in EC 52060 and align its LCAP goals to fully address all required metrics. LCAP Section 3A Actions, Services, and Expenditures for All Students EC 52052 (c) (2) requires that the District identify the specific actions to achieve the LCAP goals. EC 52064 requires the listing and description of expenditures to achieve the LCAP goals; including the enumeration of any actions for the LCAP year to correct deficiencies in regard to the State Priorities. Section 3A of the SBE adopted template requires that the district identify the specific actions, services, and expenditures to achieve the LCAP goals for ALL students. Section 3A of the District LCAP contains actions, services, and expenditures associated with the implementation of the LCAP-identified goals. SMCOE offers no technical assistance recommendations on this section at this time. LCAP Section 3B Actions, Services, and Expenditures for Target Students EC 52052 (c) (2) requires that the District identify the specific actions to achieve the LCAP goals. EC 52064 requires the listing and description of expenditures to achieve the LCAP goals; including the enumeration of any actions for the LCAP year to correct deficiencies in regard to the State Priorities. Section 3B of the SBE adopted template requires that the district identify the specific actions, services, and expenditures to achieve the LCAP goals for low-income students, English learners, foster youth, and redesignated English proficient students. In Section 3B, the District s LCAP provides detailed information regarding the actions, services, and expenditures to meet the LCAP goals for re-designated fluent English proficient students, English learners, Foster Youth, and low-income students. SMCOE offers no technical assistance recommendations on this section at this time. LCAP Section 3C Spending Plan for Supplemental & Concentration Grant T5CCR 15496 (a) (5) requires that the District calculate the LCFF funds attributed to the number and concentration of low-income students, English learners, foster youth, and redesignated English learners (unduplicated students). The SBE adopted template requires that the district describe in section 3C of the LCAP how these funds, and other District funds, are going to be used in the LCAP year (2014-15) to support the achievement of the LCAP goals for these target
Page 4 student populations. The district has a total unduplicated pupil (Low Income, English Learner and Foster Youth) population of 854 that represents approximately 26% of the District s total enrollment. In Section 3C of the District LCAP, the District reported a calculated supplemental and concentration grant in the amount of $575,385 for the 2014-15 school year. In Section 3C also, the District described the 2014-15 use of the supplemental grant funds. SMCOE offers no technical assistance recommendations on this section at this time. LCAP Section 3D Minimum Proportionality Requirement (MPP) T5 CCR 15496 requires for the District to demonstrate how the services provided in the LCAP year 2014-15 provide for increased/improved services to its unduplicated targeted student population(s) based on the calculated Minimum Proportionality Percentage (MPP). The District established in Section 3D a comparison of the estimated LCFF Base Grant to the estimated Supplemental Grant for the LCAP years 2014-15 through 2016-17. In the narrative for 3D, the District described its focused, increased, and improved services for unduplicated students. SMCOE offers no technical assistance recommendations on this section at this time. 2014-15 SMCOE LCAP Support and Next Steps: SMCOE is committed to continuing its support of each district s LCAP revisions, development, and improvement through a comprehensive array of services. The enclosed series of meetings and workshops are designed to support the District s LCAP development. SMCOE is looking forward to meeting with your staff at these meetings to further detail and support the implementation of the 2014-15 LCAP and its revision(s) for the 2015-16 school year. The SBE recently adopted permanent regulations for the LCFF and LCAP processes. Pursuant to EC 52064.5, the SBE will adopt evaluation rubrics October 2015, and guidance for technical assistance will be delineated by the California Collaborative for Educational Excellence (CCEE) pursuant to EC 52074. If, based on the feedback provided in this letter the District should determine that substantial changes to the approved LCAP are necessary, those revisions must be approved using the required adoption process, including board approval. SMCOE staff will be available to provide technical assistance for revision and local Board re-approval of your district s LCAP.
Page 5 B. ADOPTED BUDGET Education Code Section 42127 requires the County Superintendent s Office to examine the Adopted Budget to determine if the district s budget complies with the standards and criteria established pursuant to Section 33127, allows the District to meet its financial obligations during the current fiscal year, and is consistent with a financial plan that will enable the District to satisfy its multi-year financial commitments. Beginning in 2014-15, school districts are required to adopt a Local Control and Accountability Plan (LCAP) and demonstrate increased or additional support and services to identified student groups. The County Superintendent is required to determine whether the Adopted Budget includes the expenditures necessary to implement the LCAP or annual update to the LCAP pursuant to Education Code Section 52070(d). BUDGET REVIEW FINDINGS/COMMENTS: General Fund Budget Summary The 2014-15 Adopted Budget shows a balanced budget. There are no significant increases in Federal Revenues. State Revenues are reduced to eliminate one-time funding sources. No additional funding for State Common Core Standards implementation is included in the budget year. Expenditures funded from one-time sources and prior year carryover balances are eliminated in the budget projections. Below is a comparison of revenue and expenditure budgets in the General Fund for fiscal years 2013-14 and 2014-15: General Fund Unrestricted/Restricted 2013-14 Estimated Actuals 2014-15 Adopted Budget A. Anticipated Revenues $25,597,365 $28,054,246 B. Proposed Expenditures 25,588,245 27,765,739 C. Excess (Deficiency) of Expenditures over Revenues 9,121 288,507 D. Other Sources/Uses and Transfers (652) (250,000) E. Total Increase (Decrease) in General Fund 8,468) 38,507 F. Ending Balance Unrestricted/Restricted $2,955,356 $2,993,863 G. Ending Balance Unrestricted only $2,955,356 $2,993,863 Total available reserve for 2014-15 fiscal year is $2.7 million or 9.74% of the total General Fund expenditures. The minimum State-recommended reserve level for the District s size is 3%. The District has assigned $250,000 of the Unrestricted General Fund ending balance for textbook adoption and technology refresh.
Page 6 The District has sufficient budget in the General Fund to support and implement the actions and services included in the LCAP for the budget year. Other fund sources identified in the LCAP for facility-related projects include proceeds from issuance of general obligation bonds. Cash Flow The District submitted its cash flow projections for 2014-15 and 2015-16 fiscal years with positive cash balance each month for both fiscal years. The District has not indicated any plans of obtaining outside borrowings. The cash flow projections for 2014-15 and 2015-16 assume zero deferral of State/LCFF funding apportionments. The State Enacted Budget does not eliminate deferrals of State principal apportionments; however, a trigger provision is included that if next year s May Revision budget reflects higher than anticipated revenues, additional apportionments may be made to fully eliminate deferrals by the end of the 2014-15 fiscal year. The County Superintendent urges the District continue to implement best practices and monitor regularly its cash position to ensure payroll and other monthly obligations are met on a timely basis. Multi-Year Projections (MYP) The multi-year projection is one of the most important tools in determining the financial position of the district. In order to make multi-year projections, school districts rely on a variety of assumptions and sources of information available at the time of report preparation. The MYP incorporate the following key assumptions: Revenues: LCFF revenues are based on the LCFF gap funding rates posted on the Fiscal Crisis and Management Assistance Team (FCMAT) website at the time of budget adoption. District projects growth in ADA in the subsequent two fiscal years. Budget year ADA is 3,175.79 and is projected to increase by 96 ADA over the next two years. Federal and State Revenues are projected to be at approximately the same level as the budget year. Local Revenues are slightly reduced; Peninsula Health Grant is not included in the projection for the in the subsequent two fiscal years. Expenditures: Salaries and benefits budget includes step and column adjustments; No provision for future salary adjustments are included in the projections.
Page 7 Salaries and benefits budgets for 2015-16 and 2016-17 fiscal years are increased to include additional staffing due to anticipated increase in student enrollment. Budgets for Books and Supplies are increased by 5% each year for the subsequent two fiscal years. There are no significant changes in the budget for other services and operating costs. Within the General Fund, restricted and unrestricted programs are identified. Restricted funds are those that have spending limitations imposed by law or by resource providers. The Unrestricted portion of the General Fund is typically used in determining the true financial position of the district as these funds are not subject to external or legal constraints and can be used for any educational and operational purposes. The chart below shows the reserve levels and projected ending balance in the Unrestricted General Fund for the budget year and subsequent two fiscal years: Unrestricted General Fund 2014-15 2015-16 2016-17 Estimated Beginning Balance $2,955,356 $2,993,863 $4,088,581 Revenues & Other Financing Sources 19,647,250 21,424,671 22,433,559 Expenditures & Other Financing Uses 19,608,743 20,329,953 20,985,829 Net increase (Decrease) 38,507 1,094,718 1,447,730 Projected Ending Balance Fund 01 $2,993,863 $4,088,581 5,536,310 Available Reserves Percentage Per MYP 9.74% 13.17% 17.36% The County Superintendent commends the District for maintaining a balanced budget for all years and reserve levels higher than the State-recommended minimum percentage. This provides the District flexibility to meet future decline in funding or other unforeseen events. The County Superintendent recommends that the District carefully review the assumptions used in the Adopted Budget and MYP projections and make adjustments or revisions to the budget as necessary. The County Office noted that the LCFF gap funding rates used by the District at the time of budget adoption have been changed in the Governor s Enacted State Budget, as follows: LCFF Gap Funding Rates 2014-15 2015-16 2016-17 At District Budget Adoption 28.05% 33.95% 21.67% State Enacted Budget 29.56% 20.68% 25.48
Page 8 The County Superintendent encourages the District to continue to monitor the budget closely to maintain fiscal stability and solvency. The District is reminded to maintain sufficient funds in its budget for the current and subsequent two fiscal years to support all actions and services included in the District s 3-year LCAP. Salary Negotiations The District has not settled negotiations for the 2014-15 fiscal year. If collective bargaining agreements result in additional ongoing costs to the District, such costs must be supported by additional recurring revenues or permanent expenditure reductions. In accordance with Government Code 3547.5 and Assembly Bill 2756, the District must provide the County Office of Education with an analysis of cost and impact on operating budget of the proposed salary settlement. The District is also required to submit the following documents reflecting the financial impact: 1) Disclosure of Collective Bargaining Agreement ten (10) days before the Governing Board takes action on any tentative collective bargaining agreement (requires the signatures of the Superintendent and the Chief Business Official). 2) Multi-year spreadsheet (reflecting current and two subsequent fiscal years). 3) Budget revisions (if necessary, must be posted to the financial system prior to processing a salary settlement on the payroll system). The County Superintendent encourages school districts considering a multi-year contract to be cautious and have contingency language that protects them from cost increases beyond their control. School districts are also reminded to maintain sufficient funds in their budget to support all actions and services included in their 3-year Local Control Accountability Plans. In addition, the implementation of health care reform, anticipated increase in PERS contribution and potential cost sharing of STRS unfunded liability may result in unanticipated employer costs beyond the scope of bargaining. Other Funds There are no significant changes in current year revenues and expenditures for other funds of the District compared to the 2013-14 Estimated Actuals, except as noted below: Budgeted expenditures for Fund 21-Building Fund increased from $6.2 million in 2013-14 Estimated Actuals to approximately $16.0 million in the budget year as the District continues its capital improvement projects funded from proceeds of General Obligation bond issuance. No revenue and expenditure budget for 2014-15 fiscal year is provided for Fund 19- Foundation Special Revenue Fund. Approximately $1.3 million in revenues and expenditures were included in the budget for the prior year.
Page 9 GENERAL COMMENTS: Public Disclosure of Voter and Nonvoter-Approved Debt Districts are reminded to review the requirements for public disclosure of voter and nonvoter-approved debt. Voter-approved debts include General Obligation Bonds and Capital Appreciation Bonds. Nonvoter-approved debts include Certificates of Participation (COPs), Tax Revenue Anticipation Notes (TRANs), Bond Anticipation Notes (BANs), revenue bonds or any other debt instruments not requiring voter approval. In accordance with AB2197, Education Code Sections 17150, 42133.5 and 17150.1, thirty days prior to the district s Governing Board s approval, all districts, regardless of certification status, are required to submit to the County Superintendent of Schools and the County Auditor the following information (as applicable): 1) Repayment schedule for debt obligation. 2) Evidence of the district s ability to repay the obligation. 3) Disclosure of General Obligation Bonds (GOBs) and Capital Appreciation Bond (CABs) Refinancing. The County Superintendent of Schools and the County Auditor may comment publicly within 15 days of receipt of the information. The 30 day advance notice will require careful planning by the school district in order to comply with the disclosure requirements. The use of debt proceeds is detailed under Education Code 42133.5, which prohibits school districts from using the proceeds from specific debt instruments for general operating purposes. Fiscal Distress Notification In compliance with Assembly Bill 2756, districts are required to submit to the County Superintendent of Schools any study, report, evaluation or audit that was commissioned by the district, the Superintendent of Public Instruction or State control agencies that shows evidence of fiscal distress under the Standards and Criteria adopted in Section 33127, or any report on the school district by the County Office, Fiscal Crisis and Management Assistance Team or any regional team created pursuant to subdivision (1) of Section 42127.8. The County Superintendent is required, in turn, to consider the findings of such report(s) in the analysis of the district s financial status (Reference: Education Code Section 42127.6).
Page 10 BUDGET RECOMMENDATIONS: The County Superintendent continues to recommend local educational agencies maintain adequate reserves to provide flexibility for districts to manage economic risks and other unforeseen circumstances. Districts are encouraged to plan ahead and review the requirements of Education Trailer bill SB 858 which is included in the 2014-15 Enacted State Budget. SB 858 contains changes in district reserves and creates a new transparency requirement for school districts. Beginning with budgets adopted in 2015-16, SB 858 amends Education Code Section 42127 to require school districts to hold public hearing for review and discussion of reserve for economic uncertainties and substantiate the need for assigned and unassigned ending balances in Fund 01, General Fund, and Fund 17, Special Reserve Fund for Other Than Capital Outlay Projects. The Governor will also be proposing for the establishment of a Rainy Day Fund in the November 2014 election; if approved, a hard cap on the ending balances in Fund 01 and Fund 17 for school districts will be established when certain conditions are met. The County Superintendent strongly encourages school districts to continue to manage prudently district resources using best practices and to stay informed on the State s economic situation and other legislations that may impact public education. There is also a need to be mindful of additional financial burdens that local educational agencies may incur in the future such as increases in CalPERS contribution, potential employer cost sharing of CalSTRS unfunded liability, additional costs that may be incurred with the Affordable Care Act and Common Core Standards implementation. Prior to making any changes, updates and revisions to the Adopted Budget, school districts are encouraged to review carefully their LCAP to ensure that the budget is adequate and sufficient to cover the costs related to planned actions and services for students. Beginning in fiscal year 2014-15, a new provision in the K-12 Audit Guide will be added to include a procedure to test expenditures which the school district has identified as consistent with its LCAP s intended actions and services. The County Superintendent recommends Districts review the audit guide to ensure compliance with the requirements. Enclosed is a summary of the District s financial profile. A historical spreadsheet that shows actual and estimated General Fund revenues, expenditures, and fund balances from fiscal year 2005-06 through 2014-15 is also enclosed for your reference. The District may find this document useful in analyzing fiscal trends; the most critical information is reflected on Lines C, E and F2 of the spreadsheet.
Page 11 C. CONCLUSION The County Superintendent recognizes the complex issues and series of fiscal events that school districts are facing and the challenge of communicating these conditions to their stakeholders and the general public. The County Superintendent and staff will continue to provide technical assistance in the areas of budget and LCAP monitoring and development and will provide school districts with any updates and guidelines as they become available. We appreciate the cooperation and assistance provided by Margaret MacIsaac, District Superintendent, and Sandra Lepley, Interim Chief Business Official, during the review process. Please feel free to contact us, if you have any questions regarding the county oversight procedures or contents of this letter. Sincerely, Denise Porterfield Gary Waddell Deputy Superintendent, Business Services Deputy Superintendent, Instructional Services dporterfield@smcoe.org gwaddell@smcoe.org 650-802-5511 650-802-5311 Enclosures C: Margaret MacIsaac, Superintendent, Gaby Hellier, Chief Business Official, Anne Campbell, Superintendent of Schools, SMCOE Priscilla Aquino-Dichoso, Administrator, District Business Services, SMCOE Brian Simmons, Director, Accountability-Innovation-Results, SMCOE
2014-15 SMCOE-LCAP Support The Following are the support venues that will be provided to districts throughout the 2014-15 School year. All sessions will occur at the San Mateo County Office of Education. LCAP Accountability Support Sessions (10:30AM-12:00PM): o Sept. 26, 2014 Audience: District Accountability and Business Staff o Dec. 5, 2014 Audience: District Accountability and Business Staff o Jan. 23, 2015 Audience: District Accountability and Business Staff o March 27, 2015 Audience: District Accountability and Business Staff o June 5, 2015 Audience: District Accountability and Business Staff LCAP Summits (9:00AM-12:00PM): o Nov. 17, 2014 - Audience: District LCAP Leadership Teams o Feb. 18, 2015 - Audience: District LCAP Leadership Teams o April 8, 2015 - Audience: District LCAP Leadership Teams One-on-One District Technical Assistance Sessions: (Two-hour windows, twice daily) o December 10-20, 2014 Audience: District LCAP Leadership Teams o March 1-15, 2015 - Audience: District LCAP Leadership Teams o April 1-15, 2015 - Audience: District LCAP Leadership Teams
Page 2 The venues below are ongoing county office engagements that will also be leveraged to support continuous improvement of District LCAP s. CBO Coffee Hours: o Sept. 16, 2014 o Oct. 16, 2014 o Nov. 4, 2014 o Jan. 6, 2015 o March 12, 2015 o April 16, 2015 o May 12, 2015 o June 9, 2015 CBO Meetings: o Sept. 25, 2014 o Oct. 23, 2014 o Dec. 11, 2014 o Jan. 22, 2015 o Feb. 12, 2015 o March 19, 2015 o April 23, 2015 o May 21, 2015 o June 25, 2015 CII Meetings: o Sept. 12, 2014 o Oct. 10, 2014 o November 14, 2014 o Jan. 9, 2015 o Feb. 20, 2015 o March 13, 2015 o April 10, 2015 o May 8, 2015 C&I Asst Supt/Chief District Instructional Leader Job-Alike Meetings: o Schedule TBD