broad pm system
TRANSCRIPT
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Performance Management System for Central Offices
Prince Georges County Public Schools
Broad Residency Capstone Paper
Jeff Kang, TBR VI
Spring 2010
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Performance Management in the Central Office (PGCPS)
Abstract
Prince Georges County Public Schools (PGCPS) has been building a performance
management system for its schools and central office departments since 2007. My role has
been to lead the 3-year plan for central office implementation. This paper will describe the
tools and processes that are being used to lay the foundation for a comprehensive
performance management system. While significant efforts have been dedicated to the
establishment of performance management systems for schools and instructional staff, the
paper will focus primarily on the central offices. Since 2008, over 50 departments and offices
have developed performance plans, key performance indicators, and they have engaged in adistrict-wide management process (similar to School Stat or City Stat). Subsequent plans
include the further development and alignment of central office budgeting processes as well
as the central office evaluation systems.
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Background and Introduction
Prince Georges County Public Schools (PGCPS) is the 18 th largest district in the
country, and is located in Maryland directly to the east of Washington, DC. PGCPS serves
nearly 130,000 students and employs approximately 19,000 instructional and support staff.
The student population is predominantly African American (73%) and Hispanic (19%), and
there are roughly 47% students are eligible for free and reduced lunch, and 11% are English
language learners. PGCPS is second only to Baltimore City as the lowest performing district
in Maryland, and like many urban districts, it has seen a large number of superintendents and
leadership changes in the past several decades. When Dr. John Deasy and Dr. William Hite
arrived in 2006 as the superintendent and deputy superintendent, respectively, they helped
the district to adopt a theory of action called Managed Performance Empowerment (MP/E).
MP/E aims to drive performance outcomes by rewarding high-performing organizations and
individuals with more autonomy and flexibility. The district recognized the need for an
accountability system that would support this theory of action, and so it began a
comprehensive Performance Management initiative in late 2007. In 2008, Dr. Hite took over
as superintendent when Dr. Deasy departed for the Gates Foundation, and the board and
community looked to him to carry this vision to the next level.
With assistance from several foundations and consulting firms, PGCPS developed a 3-
year implementation plan that would achieve system-wide reform through a set of
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district-wide initiatives, and a system of performance-driven rewards and incentives for
employees.As s a first year Broad Resident in 2008, my role was to establish a performance
management system in the central office with a focus on department-level performance and
accountability. The goal for 2008-9 was to establish a set of department-level dashboards and
data-driven meeting protocols for a pilot set of departments (HR and Purchasing and
Warehouse). In 2009-10, we re-vamped the process and implemented an annual process for
all departments to build performance plans, dashboards, performance management reviews,
and to link these processes to a performance-based budget. I have since been staffed on this
multi-year initiative as my primary assignment, and will likely continue to maintain
ownership of certain elements as I continue on as a permanent employee.
Situation
District-wide: While the district has seen modest growth in student achievement over the
past several years, district representatives share that a growing concern has stemmed from the
lack of transparency, reliable data, accountability, and sound management practices. Part of
this has been attributed to high turnover in executive leadership, an overwhelming number of
initiatives, and a long history of compliance-driven practices.
Central Office Departments: Organizationally, PGCPS is both large and hierarchical.
There are roughly 60 departments in the central office that provide a range of direct and
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remained in silos, and some employees have mentioned that in the past, there was a greater
level of collaboration and better service to the schools. Recent budget cuts have underscoredthe need to measure the performance and efficiency of departments. It had become common
practice to provide a standard budget increase year-over-year to offices without properly
assessing their value and impact to the system, even with the understanding that service
quality and customer satisfaction was on the decline.
Central Office Employees: As one of the largest employers in the county, PGCPS
comprises a large and steady workforce that has outlasted a long list of leadership teams and
initiatives. Specifically, many employees in the central offices have worked in various
different schools and offices throughout their tenure, and many have extensive knowledge of
system operations and history. While the visions and missions of various leadership teams
have cycled through over the years, a constant force of influence has always remained:
compliance for local, state and federal funding streams. More often than not, employees are
much better versed in the mandates dictated by funding sources such as Title I and IDEA
than they are by any initiatives introduced by the executive team or Board of Education.
Furthermore, the implementation of their employee evaluation system is spotty at best. Many
employees have not received an evaluation in the last several years, and those who have do
not feel that it is a meaningful process. District employees first needed to understand the
reason to move from a compliance-driven culture to a performance-driven culture, but they
also needed significant leadership buy-in and support, tools, and training to make this work.
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systems to manage and measure individual performance. Others, such as Chicago and
Charlotte-Mecklenburg (CMS), have focused more on and department-level accountability
and better data systems. The approach for central offices in PGCPS is closer to that adopted
by Chicago and CMS, but with a clear understanding that a performance management system
is not complete without proper processes for individual accountability and evaluation.
Starting in 2007, PGCPS worked extensively with a number of management and
technical consulting firms to plan implementation for the central offices. In 2008, the
Michael and Susan Dell Foundation (MSDF) and the Broad Foundation agreed to provide $6
M in funding over a 3-year period to support the establishment of a performance
management system. PGCPS immediately used part of that funding on consultants to help
develop the strategy and implementation plan. The consultants helped to develop an RFP for
the data warehouse, and also researched other districts and approaches to establish a
comprehensive performance management system. MSDF and Broad also provided technical
assistance, and in the summer of 2008, the work for central office had been planned to
develop central office dashboards for a pilot set of departments that would be supplemented
by training sessions. Furthermore, relationships with consultants and funders have allowed
PGCPS to review and connect with other practices and findings in other districts.
We have continued to research specific districts, organizations, and local and state
agencies that have adopted a strategic planning process and accountability system that is
data-driven and emphasizes continuous improvement. This has included calls and visits to
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Size and Scope: In his public address to the community in the fall of 2009, Dr. Hite
stated his top five priority areas: Student Achievement, Secondary School Reform, Teacher
Effectiveness, Improved Service, and Performance Management. He views performance
management as the primary lever for all reforms in the district, so the goal is for the initiative
to build a culture and mentality around the entire system through a core set of tools and
processes.
Performance management in the central office connects to the budgeting process
(Performance-Based Budgeting), management process (bi-annual performance reviews), and
will be linked to individual evaluations and accountability. While the initiative and concept
touches nearly all elements of the school system, the cost of implementation has been
relatively small. I am the sole FTE dedicated to the central office work stream working
without a substantial budget, and thus far I have worked with shared time from the budget
and accountability offices to establish this system, along with heavy involvement from
division and department leadership. In the beginning of 2010, the Office of Performance
Management was created to oversee and institutionalize changes brought on by our initial
project team. From a budget perspective, this was not an additional cost; it was a shift in
duties for several staff members, but it emphasizes the investment made by the leadership to
this work.
Contribution
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the school system. This team is now being formalized into a permanent team led by a Chief
Performance Officer who oversees all performance management work in the district.
In the last two years, my role has evolved through three stages: execution, facilitation,
and leadership. For the first six to nine months, I was brought in to execute the pilot plan laid
out by the project team and consultants. I arrived in late August 2008, and began building
dashboards for pilot departments in September and training staff in October. This continued
through the spring of 2009, until we realized significant gaps in our approach and content. I
then worked with the executive cabinet and a small working team in 2009 to lead us to a new
approach and set of deliverables for 2009-10. As a facilitator, I largely connected our
findings and research from other organizations to come to an agreed upon approach for the
next fiscal year while pulling the vision from the executive team. And in the last six to nine
months of my residency, Ive continued to execute, facilitate and now lead the direction of
our central office performance management system with more ownership and trust from the
executive team. We are now building new tools, processes and professional development
offerings and looking to leadership for continued guidance and feedback.
Process and Timeline for Year 1 (Pilots): In year 1, we developed basic dashboard
templates that captured performance measures for Human Resources and Purchasing and
Warehouse. This involved several weeks of interviews and facilitated sessions to determine
the measures and the annual performance targets. Significant time was spent overcoming
data access and data quality issues, which still persist today. We also spent the fall providing
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This was largely scoped and planned by the consulting team prior to my arrival, and accepted
by the executive cabinet and respective department directors at the start of the process.
The intent was to finish with a set of dashboard measures and a common management
process that could be repeated across all departments. This would in turn increase
accountability across the system while building a data-driven culture. The data warehouse,
once finished, would be able to make the collection and reporting of data much easier,allowing users to focus on improvements.
However, pilot implementation and success fell short for various key reasons. First, there
was not enough leadership buy-in and support within the pilot departments to make sure that
departments were implementing the process with fidelity. Development of performance
measures requires significant guidance from department directors and division chiefs to
ensure that the metrics and targets are in line with the overall strategic vision. The second
missing element was the lack of a district-wide strategy and performance expectations to
drive the goal-setting process for departments. At times, the selection of measures and targets
seemed arbitrary, and not enough efforts were made to benchmark and align to district-wide
priorities. Finally, the process itself was flawed for PGCPS. Dashboards and meeting
protocols alone are insufficient without a connection to a common vision and direction. The
training, while useful to users, was not targeted enough. Employees need to be trained in
more applicable topics such as backwards mapping to select the right measures, ensuring data
quality, and how to conduct a root-cause analysis.
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increasing pressures of budget reductions and a strong sense of urgency from the
superintendent around building the skill and will for all district staff, we decided to modify
the approach and scale a limited set of processes to all departments in the next fiscal year,
while piloting a separate set of processes with a smaller set of departments.
One key lesson that we learned from 2008-9 were that we needed increased buy-in and
ownership by the executive team to ensure that performance management practices was notperceived as an extra amount of work on the side. Goal-setting and data-driven practices had
to be seen as a central component to all offices at all levels. Therefore, one change was to
increase the level of exposure and accountability at the top of the organization. In 2009-10,
the executive cabinet would shift from an advisory role to a central active role in the
implementation of performance management practices. Another lesson was that we needed to
put the practice of dashboard reviews and meetings in a meaningful context, making it part of
their day-to-day functions. So for 2009-10, we set out to have each department develop
annual performance plans, identifying performance measures and setting targets and
improvement strategies. Finally, it just so happened that the CFO was looking for a way to
start implementing a budgeting process that made stronger ties between the performance of
cost centers and the associated funding decisions. The superintendent planned on zero-
basing the budget for FY 2011 in order to re-build department budgets based on a set of
planned objectives and core service offerings.
Year two has focused on building the following types of processes to support these need:
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Process Description TimelineAnnualDepartmentPerformancePlans
All departments develop a 2-year performance plan to definekey core services, measures, targets and strategies in alignmentwith the districts Master Plan. Plans are reviewed and approvedby division Chiefs and the budget office. General trainingsessions and guidelines are developed for departments.
Aug-Sep 2009
PerformanceManagementPlanning andAnalysis Process(PMAPP)
All departments hold bi-annual data-driven managementdiscussions with Executive Cabinet (and select principals) toreview their core services performance measures and leadingindicators. This process allows for feedback on objectives, andemphasizes leadership response to deficiencies and gaps with
action plans and follow-up. Each department receives technicalsupport and assistance from the Performance Management Teamto prepare for the sessions.
Nov 2009 Apr 2010
PerformanceBased Budgeting(PBB)
Using the Performance Plans developed in the summer,departments plan and submit their FY 2011 budgets to supporttheir core service objectives and strategies. The budgetdocument now includes the same performance measures andtargets identified in each performance plan.
Oct Nov2009
Close-Out All departments close out their annual performance plans with abrief report of end of year outcome measures. Planning andtarget-setting begins for FY 2011.
Jun Jul 2010
Lessons Learned: While there are many nuisances, the very basic lesson that we have
learned is that we must first understand the history and the specific needs of our own district
before adopting a strategy and implementing an aggressive reform plan. In short, we may
have rushed to pilot processes without looking for our true pain points and gaps. We now see
the need to get a strategic plan and a district-wide vision in place to ensure alignment, and
dashboards and meetings will not have true meaning until we start there. We are also
continually struggling to balance proper planning and due diligence with a sense of urgency
and practicality. At times, piloting is the correct approach. At other times, we decided that
performance planning was the right thing to do, and while somewhat messy, we have learned
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APPENDICES
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APPENDIX: PGCPS Performance Management Project Work Streams
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PerfMgmt Work Streams2008
Communication of the PerformanceManagement VisionCommunication of the PerformanceManagement Vision
Robust Data Collection Systems andWarehouseRobust Data Collection Systems andWarehouse
Metrics to Monitor and Guide On-going OperationsMetrics to Monitor and Guide On-going Operations
Processes to Monitor Operations andDirect Tiered ResponsesProcesses to Monitor Operations andDirect Tiered Responses
Initiative Implementation /Portfolio ManagementInitiative Implementation /Portfolio Management
Evaluation Frameworks, PerformanceStandards and Linked ConsequencesEvaluation Frameworks, PerformanceStandards and Linked Consequences
Understanding of PM system, expectations and call to actionUnderstanding of PM system, expectations and call to action
Access to actionable and timely informationthrough a single, robust database.
Access to actionable and timely informationthrough a single, robust database.
Key indicators for each level of the organizationthat are relevant and clearly tied to overall system goals.
Key indicators for each level of the organizationthat are relevant and clearly tied to overall system goals.
Process for using PM tools and makingdata driven decisionsProcess for using PM tools and makingdata driven decisions
Prioritize and manage the implementation of various district initiativesPrioritize and manage the implementation of various district initiatives
Positive and negative consequences linked to performancePositive and negative consequences linked to
performance
PGCPS started a 3-year PerfMgmt plan with grants from the Dell and Broad foundations Six major workstreams were designed to support critical areas
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APPENDIX: PGCPS Performance Management Tools and Processes
PerfMgmts Processes and Supporting Tools2009 - 2010
PMAPP (Schools)
PMAPP(Central Office)
Collaborative Planning
PortfolioManagementPerformance
Management
Data Quality
Communications andChange Management
Data WarehouseTOOLS
Performance Plans/School Improvement Plans
PROCESSES
Education Metrics/Scorecards
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APPENDIX: PGCPS Project Team Structure (2008)
PerfMgmt Project Team Structure2008
Steering Committee
Executive Cabinet Selected principals
Guide overall direction,track progress and drive
decisions
Parallel Teams
Communications Information Technology FIRST Teacher Effectiveness
Subject Experts
Teachers
Principals
Central Office
Subject Experts
Teachers
Principals
Central Office
Parents,Students, and
Community Stakeholders
Project Sponsors
Chief of Accountability Chief of IT
Direct guidance and sponsorship; functional and strategic expertise
PM Project Team
Performance Management Team Schools Central Office + EPMO Communications Data Warehouse
Portfolio Management Team
Execute day-to-day projects and activities, and collaboratewith consultants
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APPENDIX: PGCPS Project Team Structure (2010)
Current PerfMgmt Team and Contacts2010
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Stephanie Cameron
Project Manager
Data Warehouse
Stephanie Cameron
Project Manager
Data Warehouse
Performance Management Team
Dr. Duane ArbogastChief Academic Officer, SPONSOR
Wesley WattsChief Information Officer, SPONSOR
Lisa PriceProgram Manager
Sheila Jackson
Project Manager
Collaborative
Planning
Sheila Jackson
Project Manager
Collaborative
Planning
Andrea AllenLateefah Durant
Project Manager
PortfolioManagement
Andrea AllenLateefah Durant
Project Manager
PortfolioManagement
Bruce Hislop
Project Manager
Data Quality
Bruce Hislop
Project Manager
Data Quality
Tanzi West Barbour
Project Manager
Communications
Change Mgmt
Tanzi West Barbour
Project Manager
Communications
Change Mgmt
JenniferMartin-Johnson
Project ManagerPMAPP - Schools
JenniferMartin-Johnson
Project ManagerPMAPP - Schools
Jeff Kang
Project Manager
PMAPP -Central Office
Jeff Kang
Project Manager
PMAPP -Central Office
Dr. Duane ArbogastChief Academic Officer, SPONSOR
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APPENDIX: PGCPS Performance Management Framework
The PerfMgmt FrameworkDeveloped in 2008 2009
Set expectations and goals Articulate clear expectations Communicate evaluation process Agree on individual goals
Applyconsequences Reward
excellence Hold people
accountable forperformance
C2C2
Conductperformance reviews Conduct reviews Provide actionable
feedback basedon evaluation
C1C1
Track progress Provide performance
data for analysis
B1B1
Support professionalgrowth Engage in data-driven
decision-making toimprove performanceand foster owndevelopment
B3B3
Develop andimplementinterventions
Use data to identifybest interventions
B2B2
Data
Follow-through
Instruction-al and
profession-al growth
Set expectations and goals
Studentachievement
AA
BBCC
AA Set expectations and goals Articulate clear expectations Communicate evaluation process Agree on individual goals
Applyconsequences Reward
excellence Hold people
accountable forperformance
C2C2
Conductperformance reviews Conduct reviews Provide actionable
feedback basedon evaluation
C1C1
Track progress Provide performance
data for analysis
B1B1
Support professionalgrowth Engage in data-driven
decision-making toimprove performanceand foster owndevelopment
B3B3
Develop andimplementinterventions
Use data to identifybest interventions
B2B2
Data
Follow-through
Instruction-al and
profession-al growth
Set expectations and goals
Studentachievement
AA
BBCC
Data
Follow-through
Instruction-al and
profession-al growth
Set expectations and goals
Studentachievement
Studentachievement
AA
BBCC
AA
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APPENDIX: Example PM Framework Applied
Updated PerfMgmt FrameworkFrom Principal Summit in Summer 2009
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11
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Example: Staff EvaluationsExample: Staff Evaluations
Hold meeting with employeeDefine role and key projectsSet annual performance goals
Employee creates projectand work plansExecute and measureprogressManager providescoaching and feedback
Ongoing check-ins on plansand executionMid-year evaluationAnnual evaluation of goalsand projectsFollow-through withfeedback and recognition
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APPENDIX: Central Office PM Vision (Presented to Departments in Fall 09)
Focus of Central Office PerfMgmt in 2009-10Launching focused processes for All Departments
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Department-wideGoals, Measures
and Standards
Data Tools,Dashboards and
Reports
Provide Better Data and Tools
Performance-Driven Culture and Increased Management Capacity
Effective Data UseProtocols
Effective IndividualPerformanceManagement
Central OfficePerformanceManagement
Set performanceobjectives, targetsand metrics
Systems to supportdata-driven decisions
Use protocols to reviewmetrics, take action,
provide support, and followthrough
Link performance toconsequences, rewardsand supports
PerformancePlans
PerformanceBased Budgeting
Central OfficePMAPP
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APPENDIX: Performance Plan and PMAPP (Presented to Departments in Fall 09)
PMAPP helps us manage performance acrossthe system
School Improvement PlanningProcess
(SCHOOL IMPROVEMENT PLAN)
Performance ManagementAnalysis and Planning Process
(PMAPP CENTRAL OFFICE)
Performance ManagementAnalysis and Planning Process
(PMAPP SCHOOLS)
Prioritized Resources &Activities Aligned to School
Needs
STUDENT ACHIEVEMENT
REQUESTS
SUPPORT
ANNUAL FEEDBACK ANNUAL FEEDBACK
Targets, Strategies & Needs
BRIDGE TOEXCELLENCE
MASTER PLAN
Departmental PerformancePlanning Process
(PERFORMANCE PLAN)
ONGOING FEEDBACK,PLANNING AND
RESPONSE
School Improvement PlanningProcess
(SCHOOL IMPROVEMENT PLAN)
Performance ManagementAnalysis and Planning Process
(PMAPP CENTRAL OFFICE)
Performance ManagementAnalysis and Planning Process
(PMAPP SCHOOLS)
Prioritized Resources &Activities Aligned to School
Needs
STUDENT ACHIEVEMENT
REQUESTS
SUPPORT
REQUESTS
SUPPORT
ANNUAL FEEDBACK ANNUAL FEEDBACK ANNUAL FEEDBACK ANNUAL FEEDBACK
Targets, Strategies & Needs
BRIDGE TOEXCELLENCE
MASTER PLAN
Departmental PerformancePlanning Process
(PERFORMANCE PLAN)
Departmental PerformancePlanning Process
(PERFORMANCE PLAN)
ONGOING FEEDBACK,PLANNING AND
RESPONSE
Schools: Quarterly PMAPPmeetings at area level and withExec Council.
Departments: >50 departmentsholding bi-annual PMAPP sessionswith Exec Council.