DOCUMENT RESUME

ED 431 240 EA 029 891

AUTHOR Rooker, Gary R.; Henley, Marilynn D.TITLE School Councils: An Information Guide for Arizona Schools.INSTITUTION Arizona State Dept. of Education, Phoenix.PUB DATE 1997-02-00NOTE 64p.; Illustrations may not reproduce clearly.PUB TYPE Guides - Non-Classroom (055)EDRS PRICE MF01/PC03 Plus Postage.DESCRIPTORS Decentralization; Elementary Secondary Education;

*Governance; *Participative Decision Making; *School BasedManagement; School District Autonomy; School Organization

IDENTIFIERS *Arizona; *School Councils

ABSTRACTThis manual is intended as a resource guide for school

councils in Arizona. The state created school site-based councils to bringtogether parents, the community, administrators, teachers, and students toform a decision-making body that can empower all stakeholders. The guidedetails the process of school councils as it relates to Arizona legislation,and serves as a flexible resource to assist school-council members inidentifying and adopting necessary training. The booklet provides tools tohelp district/school administrators and board members initiate or implementschool-based teams. It introduces a format for training that includesessential elements for school-council operation, such as team building,conflict management, the change process, and needs assessments. The text alsoprovides examples of functioning school councils and offers ideas foradditional resources/services. It presents the steps for organizing councilsas it focuses on the district's role, the changing roles of educationpersonnel, school council membership, and council evaluation, showing howschool-council leadership can improve the school. Finally, the text outlinesthe steps necessary for achieving consensus: creating a shared vision,assessing needs, setting goals, developing and implementing action plans, andmaking site-based management work. (RJM)

********************************************************************************* Reproductions supplied by EDRS are the best that can be made *

* from the original document. *

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School CouncilsAn Information Guide

forArizona Schools

U.S. DEPARTMENT OF EDUCATIONOffice of Educational Research and Improvement

EDU ATIONAL RESOURCES INFORMATIONCENTER (ERIC)

This document has been reproduced asreceived from the person or organizationoriginating it.

0 Minor changes have been made toimprove reproduction quality.

PERMISSION TO REPRODUCE ANDDISSEMINATE THIS MATERIAL HAS

BEEN GRANTED BY

Points of view or opinions stated in thisdocument do not necessarily representofficial OERI position or policy.

Arizona Department of EducationLisa Grahain Keegan, Superintendent

February, 1997

DES- COPY AVALXLE 2

TO THE EDUCATIONAL RESOURCESINFORMATION CENTER (ERIC)

1

A

School Councils

A

TABLE OF CONTENTS

Overview of Resource Guide

Superintendent LetterAcknowledgmentsIntroduction

Unit I Introduction to School Councils

Legislation ARS 15-351-3DefinitionsDistrict Policies and Procedures

Unit II Forming School Councils

The Districts' Role in School CouncilsThe Changing Roles of the District Governing BoardThe Changing Roles of District Office PersonnelThe Changing Roles of School PersonnelSchool CouncilsSchool Council MembershipRoles of Council MembersSchool Council Team Building StrategiesTips for Evaluating Your CouncilStages of School Council Development

3

Unit III School Improvement Through School Council Leadership

The Role of School Councils in Organizational Change andDevelopment

The Change ProcessGroup Facilitation ProcessesDecision Making ProcessesReaching ConsensusCreating a Shared Vision and Mission StatementAssessing Needs and Determining When to StartSchool Council Goal SettingDeveloping and Implementing Action PlansSchool Council Improvement PlanWho, What, and Why of Site-Based Management

Resource Tool Kit

An updated Information Guide, with accompanying Resource will be available toschools in the Fall of 1997.

4

State of Arizona

Department of Education

Lisa Graham KeeganSuperintendent ofPublic Instruction

February 18, 1997

Dear Principal,

School Site-based councils were created as part of a statewide effort to empower allindividuals who are affected be decisions made at the school level. In 1994, the Arizonalegislature passed a law requiring each school to establish a school council, no later thanDecember 31, 1995. The purpose of the council is to bring together parents, thecommunity, administrators, teachers and (at some schools) students to form a decision-making council. This decentralization process was designed to help local school sitesdevelop school improvement plans that addressed the student achievement goals set by thelocal board of education. Since this requirement went into effect, many parents, teachersand school leaders have asked for assistance in developing the site-based process in theirschools.

In response to these requests, the Arizona Department of Education has compiled thisinformation guide as an introduction to help school teams understand the process andprinciples of Site-Based Council Management. The guide includes some resources andtraining opportunities utilizing the expertise from districts currently operating successful sitecouncils. Such opportunities will be co-sponsored by the Staff Development Council ofArizona and the ADE.

The key to any school's success is the ability to involve parents and the community in itsprogram. We invite you to share with us the success your school has in bringing aboutstudent performance and achievement through the development, implementation andevaluation of site-based goals. Best wishes for success with your school council!

Sincerely,

Lisa raham KeeganState Superintendent of Public Instruction

"tot-

/7)

Li IDr. Paul N. StreetAssociate Superintendent

1535 West Jefferson, Phoenix, Arizona 85007 602-542-4361'JUL. 5

ACKNOWLEDGMENTS

Special gratitude is extended to the following individuals, schools, districts, statesand organizations for sharing materials, articles and ideas for this draft of theguide:

Donald Covey, Ed.D.

Robert Garmstom, Ed.D.

Jim Mitchell, Ed.D.

Glendale Elementary School District

Isaac Elementary School District

Scottsdale Unified School District

Tucson Unified School District

Arizona Leadershzp Academy

Institute of Cultural Affairs

Staff Development Council of Arizona

California Department of Education

North Carolina Department of Education

Texas Department of Education

This information guide was written and compiled by:Gary R. Rooker, Education Program Specialist, Arizona Leadership Academy 8E

Marilynn D. Henley, Ph.D., Deputy Associate Superintendent

- 6

INTRODUCTION

This manual is to serve as a resource guide for school councils. This guide is notintended to be comprehensive in all areas, but will provide basic information toschools, districts, businesses and the community. A "suggestion" page is included inthe back of this guide for ideas you may want to contribute to future publications.

The goals of this resource guide are as follows:

1. To provide an orientation to the process of school councils as it relates toArizona legislation.

2. To serve as a flexible resource and guide to assist school council members inidentifying and developing necessary training.

3. To provide some tools that will assist district/school administrators and boardmembers in initiating or implementing school based teams.

4. To introduce a format for training that includes elements necessary for schoolcouncil operation such as team building, conflict management, the changeprocess, decision-making, planning, and conducting needs assessments.

5. To provide examples of operating school councils and ideas for additionalresources/services.

L.,

Definitions

Site-based Management is the process and structure for shared decision-making bythe school site councils with the goal of increased student performance.

As applied to Arizona, School Site Councils ensure that individuals who are affectedby the outcome of a decision at the school site have an opportunity to provide inputinto the decision-making process.

Each state must define site-based management and the structure for site council operationwithin the context of state government structure, statutes and State Board of Educationpolicies. Within those parameters, each district must further refine site councilresponsibilities in accordance with their unique district needs.

The common theme throughout all site-based initiatives focus on improvedcommunication and interaction among the publics; including parents, teachers, principals,and others involved in improving education for all children.

Researchers have identified more than 35 different definitions for the phrase "site-basedmanagement" and have found that many of the definitions and phrases are usedinterchangeably. The most commonly used terms are SHARED DECISION MAKING,PARTICIPITORY DECISION-MAKING, SCHOOL-BASED MANAGEMENT, SITE-BASED DECISION MAKING, and SITE-BASED TEAMS. Schools that utilize sitecouncils for shared decision-making are often referred to as SITE-BASED SCHOOLS.

All of the phrases suggest a common arena that brings the decision making as close aspossible to the school site. The process also defines how schools can work collaborativelyto make these decisions and how schools can create ownership for decisions by involvingstakeholders directly in the decision-making process. Decisions involve a variety ofparticipants at the site level: principals, teachers, parents community representatives,support staff and students may all be involved in the decision making process. Givendiscretion and influence, participatory decision-making teams may use their authority toimplement change that improves their school and enhances student achievement andsuccess.

8

DEVELOPING AND CLARIFYING DISTRICT POLICIES AND PROCEDURES

Every school district needs to have a plan and policy in place that addresses site councils.Each district governing board plays a crucial role in establishing the district policy. Thegoverning board policy should assure that a collaborative process is in place fordeveloping parameters within which site councils can function. This procedure will taketime, but if it reflects widespread involvement, it will be well worth the effort.

For many, the formation of site councils and the implementation of site-based decisionmaking processes represents a major change in organizational philosophy. Normally,board members have not received any training and, therefore, the task for this may restwith the superintendent and administration. Districts which experience the most successare those in which training and extensive involvement of the governing board occurs.

Some important steps in preparing boards for policy implementation and implementationof site-based councils are:

a) Introduce the concept clearly and demonstrate the elements.b) Utilize existing local and state resources.c) Present current research and practices for review and study.d) Contact, interview, or visit successful site councils for ideas and

suggestions.e) Provide opportunities for ongoing dialogue with all stakeholders, including;

administrators, teachers, staff, parents and community.f) Develop district policy and procedures.g) Identify local school parameters.

The intent of district policy should be to ensure stakeholder involvement in shareddecision-making and foster collaborative efforts of district personnel, parents, andcommunity members through the formation of school site councils.

2, 9

School Site Councils

SAMPLE POLICY

Community, Staff and Student Involvement in Shared Decision Making

The Governing Board of School District believes that it is the

shared responsibility of the district employees, student, home, and community to work as

partners in the process of enabling effective school improvement and provide the highest

quality educational opportunities for each student. The beliefs of this Board and school

district support a system by which decisions are made at levels as close to the issue being

addressed as possible, and a process by which individuals who affect and are effected by

significant decisions provide input or participate in making those decisions. Final

decisions may depart from each input or advice when, in the judgment of the

Superintendent or Board, the input or advice is not consistent with goals adopted by the

Board, is not consistent with quality educational practice, or is not within reach of the

available financial resources.

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State of Arizona

Site-Based CouncilLEGISIATION

ARS 15-351, 352 & 353ARS litle 15 - Chapter 3

Article 3.1. DECENTRALIZATION PROCESS

§ 15-351. School councils; duties; membership

A. The purpose of this section is to ensure that individuals who are affected bythe outcome of a decision at the school site have an opportunity to provide inputinto the decision making process.

B. Each school shall establish a school council. A governing board maydelegate to a school council the responsibility to develop a curriculum and maydelegate any additional powers that are reasonably necessary to accomplishdecentralization. The school council shall reflect the ethnic composition of the localcommunity and shall consist of the following members.

1. Parents of pupils enrolled in the school who are not employed by the schooldistrict.

2. Teachers.3. Noncertified employees.4. Community members.5. Pupils, if the school is a high school.

C. Each group specified in subsection B shall select its representatives andshall submit the names of its respective representatives to the principal forappointment to the school council. The initial representatives shall be selected atpublic meetings held at the school site, and, therefore, representatives shall beselected by their groups ion the manner determined by the school council. Schoolsshall give notice of the public meeting where the initial representative of the groupsshall be selected, clearly stating its purpose, time and place. The notice shall beposted in at least three different locations at the school site and in the communityand shall be given to pupils for delivery to their parents.

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11

D. The governing board shall determine the initial number of school councilmembers. Thereafter, the school council shall determine the number. The numberof teachers and parents of pupils enrolled at the school shall constitute a majority ofthe school council members.

E. The principal shall serve as chairman of the school unless another personis elected by a majority of the school council members.1996

15 352. Exception

A. The governing board is not obligated to reconstitute previously formedschool councils pursuant to this section if the existing school councils includerepresentation by more than one teacher and more than one parent or guardian of apupil enrolled at the school.

B. A school district that has only one school or a student population of lessthan six hundred students may decide by a vote of the governing board to notparticipate in the decentralization process are required by this article. If thegoverning board votes to not participate, the district is not subject to this article.

1994

5 15 - 353. Responsibilities of Principals

The principal of every school offering instruction in preschool programs,kindergarten programs or any combination of grades one through twelve isresponsible for:

1. Providing leadership for the school.2. Implementing the goals and the strategic plan of the school.3. Serving as the administrator of the school.4. Distributing a parental satisfaction survey to the parent of every child

enrolled at the school. The parental satisfaction survey shall be distributedat least once each year as a part of the regular parent communicationcorrespondence. 1994

5

1 2

Current Researchand

Related Articles

The following articles have been selected because they address most of the

areas related to Site Councils and the training process. Many of these articles

have been used by various schools and districts in Arizona.

It is very important to share information and learn together what has worked

elsewhere and what issues need to be addressed. By reading articles and

discussing them in small groups, members of parents organizations and the

business, community and school staff and administrators can become

acquainted with the process involved in organizing a strong and exemplary

site council.

6

13

The District's Role in School Councils

When developing a district structure for a School Council, several issues must beaddressed. These include:

How will this change the roles, responsibilities and relationships of district andschool level personnel as well as that of the district governing board?

How much authority should be delegated from the district office to the schoollevel?

The goals of School Council should be to:

Share power with and delegate decision-making authority to the school sites

Maintain professional standards for curriculum and instruction

Increase services available to and from schools

Educate all students to high educational standards

At the district level, School Councils require:

Establishing new roles for the school board

Establishing new roles for the superintendent and central office

Working with and building consensus among diverse stakeholders

Current literature identifies some of the following general changes that district governingboards and central office personnel might expect in implementing Site-Based Management.

7 14

The Changing Roles of theDistrict Governing Board

The key to successful implementation is the board's commitment to the concept. They

are the key to carrying out the concept. The local governing board decides how site-based

management will be implemented. School board members will experience new role

expectations.

The district governing board will still provide direction for the district by writing and

enforcing district policies. It is vital that the board be knowledgeable and enthusiastic

about School Councils. The board should establish a climate supportive of Site-Based

Management, perhaps through developing policy and direction statements. The board

must also become aware of the actual implications of power sharing and resist the

temptation to overturn school-based decisions unless the decisions are in direct conflict

with the mission of the district.

8 1

The Changing Role of theDistrict Office Personnel

District Administration

The role of the superintendent and central office staff will change from a decision-makingrole to a facilitating one, as more and more key decisions are made at the school level.Central office staff and superintendents will develop procedures to devolve budget andpersonnel decisions to the school site; ensure that schools invest in ongoing professionaldevelopment and training for faculty and staff, create a fiscal accounting process thatmakes revenue and expenditure information available to sites; provide data on studentdemographics and achievement; as will as other tasks.

Superintendent

The superintendent is often the key to initiating a School Council. As the chiefadministrative officer and general manager of the district, the superintendent will face rolechanges.

These may be characterized by inviting participation and serving as an executive teammember, supporting and encouraging bottom up change.

As with the school board, the superintendent must be willing to delegate authority andpower, in both theory and in practice. The superintendent must also develop arelationship of support with principals and school staff members.

Rather that delivering uniform treatment to all campuses, the superintendent will supportdifferences and uniqueness.

Central Office Administration

Central office administrative staff will shift from supervisory roles to take on new roles assupporters and facilitators to the schools. Rather than delivering policies and monitoringtheir implementation in schools, they will respond to and serve as resources to schools inassisting their efforts. New responsibilities will include providing technical support andaccess to information for the schools in addition to assisting the school board andsuperintendent with developing broad long-range plans for the district.

In site-based decision making, central office staff will become integrated into variouscampus activities. They provide training, coordinate district level human and materialresources for the campus, support the schools' improvement efforts, and model shareddecision making.

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16

Curriculum Innovation

With the implementation of site-based management, district curriculum innovationresponds to and provides local schools the flexibility to customize their educationalprograms to meet the unique needs of their students. Curriculum innovation promotesquality and equality for all students through curriculum, instruction, and assessmentinitiatives.

In some districts, curriculum innovation is linked to schools as part of a district-wide plan.In other districts it may be linked to a plan wherein schools are encouraged to develop aspecialized focus.

School Council Budgeting

School Council budgeting practices redesigns school and district financing to supportschool restructuring and high-performance management. Decision-making authority overthe school budget is a key prerequisite to effective restructuring. Under this approach,districts allocate dollars in a lump sum directly to schools.

Site-based budgeting strategies should:

Allocate Monies directly to the schools, with minimal district oversight

Provide an adequate base level of funding to all schools

Adjust for individual school differences

Ensure extra funding for children who need additional services

Reward teacher performance and student improvement

Improve efficiency

1 0

1 7

The Changing Roles of School Personnel

School Councils increase school autonomy and shared decision making with teachers,parents, and community members. The range of responsibilities delegated to the schoolvaries with each district. For site-based management to be effective, it is important toexpand school site authority to issues that include aspects of the budget, curriculum,teaching, learning, assessment and other areas as determined by district policy. Withinthese areas, the structure and degree of authority varies from district to district.

As it does on a district level, implementation of site-based management also involves achange in the roles, responsibilities, and relationships of individuals at the school level. Abrief description of some possible role changes is provided below.

Principal

The role of the principal is likely to be more affected by school councils than those ofother school personnel. Their authority and responsibilities are expanded in all areas.They will find their relationships with the superintendent, central office administration,teachers, parents, and community members changing.

The principal will need to continue to be a strong instructional leader while learning tooperate in a participatory structure. He/she will develop collegial relationships withfaculty and staff to ensure that the needs of the school are met. A framework for decisionmaking will need to be implemented at the school level by the school site council.

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Principals will enhance their current role through:

Taking the lead in creating a shared vision for the school

Create an environment which supports shared decision making and collegialinvolvement in school actions

Act as a liaison between the school, parents, community members, andthe district

Manage the process for school change and improvement

Involve teachers and staff in determining professional developmentinservice activities and opportunities

Identify additional resources of support within the community

Develop increased expertise in school finance and budgeting

Teachers

Teachers will also find their roles as professionals to be significantly enhanced.They will become involved in issues and decision making which extend throughout theschool campus. This new role means participating as active members on one or mored.ecision-making teams, taking part in and playing leadership roles in many professionaldevelopment activities, working together to change the curriculum, forming professionalnetworks to discuss new aspects of teaching and work in general, participating withcolleagues in discovering and implementing new teaching strategies, and taking theresponsibility for student achievement.

Teachers will develop new relationships and form new connections with staff and parentsacross the school . These relationships will provide the foundation for a schoolwideshared decision-making process.

Parents and Community Members

There is much literature which supports the participation by parents as partners in theschool decision making process. Participation should be preceded by training in theunderstandings and skills related to the unique aspects of education. Parents andcommunity members usually become involved in developing policy by serving on theschool site council. Here they communicate their perception of the community needs andexpectations for students. They provide resources and other support for the school as itdevelops new goals and plans.

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School Councils

Site councils are formed to enlist participation by a large number of those affected by theschool's actions. The formation and structure of the councils differs from one site toanother according to their specific needs. Membership on school councils usually consistsof the principal, teachers, parents, and community members. Some councils also includestudents, however, this generally occurs at the secondary level. Effective site councilsestablish operational procedures and regulations. Councils develop a process for shareddecision making as well as clear definitions of roles, responsibilities and authority of itsmembers.

Some benefits of forming school councils include:

The school and community share a common vision for the school based upon theirunique needs and goals

They are able to identify and make use of community resources in a moreefficient manner

School councils encourage the development and implementation of neweducational practices

Councils have the ability to provide staff development specific to the needsand goals of the school

There is a broader sharing of professional knowledge and expertise

There is an enhanced development of collegial team and interpersonalrelations

Each individual school has authority and responsibility for growth andimprovement

13

School Council Membership

Selection and Appointment

The selection process for school council membership is critical to the success of thecouncil and, perhaps ultimately, the school in its improvements efforts. Because site-basedmanagement relies upon group process to guide the school, the choice to serve on the sitecouncil can make or break a school plan. Proper selection of council members preparationand training of members is necessary in order to create a positive experience for all.

For specific requirements see ARS 15-345 (page 4 in this book)

In most schools the selection process is led by the principal. In selecting members, theprincipal should take into account the qualities of each individual separately, as well ashow they will contribute to the chemistry of the group as a whole. The make-up of thecouncil should allow for equal contributions from all and be a representative source ofgood ideas and inspiration.

Membership should include representation from all "stakeholders." While the major goalis to involve everyone in the process and earn wide range support, selection of negative,ego-centered individuals can be unhealthy and unpleasant. It is important, initially, toselect people who are willing to listen, work cooperatively, and seek common goals inreaching decisions. Members should have strong feelings about schools and education, buttheir feelings should not be so staunch that they prevent the group from reachingconsensus.

Members selected should represent a variety of opinions within the community and beselected based on their leadership abilities and not because they always agree with theadministrator.

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L 21

Roles of Council Members

As a council team, the question of who is going to do what during meetings is one whichis frequently asked. If not clarified in advance it can create a multitude of barriers to ateam's success. School councils should establish designated roles for members duringmeetings. These various roles should be rotated through all members on a regular basis.Some suggested roles are:

Facilitator.., in charge of the process.The facilitator remains neutral, clarifies group roles, maintains team energy, keepsthem on task, directs the processes, enlists total participation, prevents attacks onideas or persons, assists in agenda planning and leads the meeting follow-up process.

The Chairperson... responsible for logistics.The chairperson assists in setting the agenda, convenes the meeting, providesappropriate information for participants, seeks input of others, supports ideas,actively participates, develops leadership among members, coordinates sub-committees, provides for evaluation, assist in meetings and assure that meetings arefollowed through.

Recorder... documents the groups discussion and ideas.The recorder remains neutral, records basic ideas in participant's language, seeksclarification, writes legibly, and practices using variety of color and symbols.

Coach... provides on group poformance.The coach decides if the feedback will be on individual or group performance andthe method for collecting the data, selects the strategy for feedback, keeps themembers to the established group norms, and assists with formulating non-judgmental, objective feedback.

Group Reinforcer.., builds a positive climate.The group reinforcer builds confidence and morale in individuals and the team,creates a safe environment which encourages participation, demonstratesappreciation to team members, acknowledges and awards contributions, and seeksopportunities for group celebration.

Group Member.., the person(s) responsible for what happens.Group members initiate discussions, seek and provide opinions and information,monitor the facilitator and recorder, clarify and elaborate on discussion issues,compromise, encourage other members, set and test group norms, and practiceconsensus methods.

School Council Team Building Strategies

For school councils to experience success, a strong commitment to teamwork is necessary.Schools are using teams to accomplish many tasks, including site-based decision making,curriculum reform, implementing new programs and restructuring. Successful teams haveclear, shared goals, a sense of commitment, the ability to work together, mutualaccountability, access to resources and skills, and other elements of effective teams.

School leaders should nurture and develop high performing teams for accomplishing theschool's mission. They should be able to inspire, motivate, and support teams which arefree to take risks, be innovative, acquire new learning, and are supportive of each other.

The School Council works together to develop the mission, goals and action plans whichare focused upon improving performance, increasing morale and cooperation, improvinginterpersonal relationships and reducing adversarial interactions. While teamwork itself isrewarding, it should focus on meeting academic and social needs of all students. Forcouncils to effectively function, attention must be given to: selecting team members,empowering team members, providing team training, and facilitating team meetings.

Successful school council teams have:

Developed shared missions and goals and remain focused upon themImplemented participatory leadership and delegate responsibilityOpen, honest and trusting communicationAppreciation for diversity of opinionsThe freedom to be creative in a climate which encourages risk takingMembers who are interdependent and stretch each others' abilityEstablished methods for clear and open communication and strategies forreaching consensusThe ability to assess, reflect and correct

Some advantages of working in teams are:

Teams are more successful in implementing plans.Those closest to the work know best how to perform and improve.Teams develop more creative solutions to issues they face.Teams build motivation and commitment to goals through sharedownership.Teams offer empowerment to individuals as well as groups.Teams become a part of the learning process of professionals in schools.Members share a mutual sense of accountability.

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Tips for Evaluating Your Council

It's hard to have an effective council if you are not evaluating your progress. Evaluationallows you to identify what is going well and what needs to be refined, revised orimproved. Evaluation provides you feedback on how you are responding to councilinitiated changes.

Some tips for evaluation are as follows:

Keep it clear and simple. Try to figure out which information you need and how tocollect it.Short questions yield a higher response rate than long ones.Evaluate at regular intervals. There should be some form of evaluation at theend of each meeting.View evaluations as a means to gather meaningful information for future growthand improvement.Ask for feedback from outsiders as well as team members.Examine identified goals and determine your progress on each.Look at outcomes on goals as well as your processes for accomplishments.

Changes in Your Council

Dealing with change is difficult even in the best of situations. It is best to acknowledgethat change will occur and it will have an effect on your council. This can be a useful timefor reflection on your mission and goals and the effect they may be having on thoseinvolved.

As much as possible, you should clarify in advance, procedures for dealing with changesin team membership and training new members as well as what happens when themission or processes of the council changes. Although change may cause a temporaryfeeling of disorganization, it should be viewed as moving forward.

Effective Council Meetings

The effectiveness of team building efforts depends heavily upon the quality, purpose andaccomplishments in and outside of scheduled council meetings.There are many sources of information available on conducting effective meetings. It isrecommended that each council establish procedures for their meetings. Council membersshould have designated roles for every meeting with these roles being rotated on a regularbasis. These roles should always include: a facilitator(s), a recorder, process observers, anda time keeper, with many other designated roles to be determined by the council. Everymeeting should have a designated amount of time devoted to team building activities anda method for evaluation.

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04

Stages of School Council Development

School councils move through different stages of development. Councils progressthrough the stages at different rates as opposed to some predetermined time frame.Progression is based upon group performance. An important aspect of a team's progressis the members' attitudes and relationships. When a team exhibits positive attitudes andhas developed strong relationships within, they move through the initial stages morerapidly.

All councils move through each of these predictable stages on their journey to becomingeffective. In times of change, be it in council membership or creating new school goals,councils may revert back to some of the more basic levels. For this reason, it is helpful tobe aware of and keep these stages in mind. Through maintaining an awareness of thestages, councils will be able to recognize where they are in the process and then decidewhat they need and how to move ahead.

The stages are:

Forming (start-up): A council in the forming stage may not be sure of itsresponsibilities. The members may not know one another, and they may not knowthe operating style of their leader. They are excited, yet skeptical. Discussions mayinclude complaining about the organization or be non relevant.At this stage, members need orientation and to be involved in developing theoperational guidelines and procedures. They need clarification as to the expectationsand the parameters. Members need to participate in teambuilding activities whichbuild rapport within the group.

Storming (conflict): In this stage members become more comfortable in expressingtheir opinions. There may be resistance to issues and fluctuations in attitudes. Thisusually results in a higher level of frustration, arguments and counterproposals.Challenges arise over issues, roles and personalities. Power issues arise. Behaviors mayalso include increased jealousy, tension and disunity.This stage is where your council learns to deal with conflict. Teams that never "storm"become passive and fragmented, lacking energy and creativity.Members should be guided through activities to create processes for resolving conflict.

Norming (teamwork): This stage results from what is learned in the previous stages.Teams begin to establish procedures for dealing with issues and conflict. Theymutually create and adhere to a set of operating procedures (norms) for their meetings.Norms may vary from one council to another. Councils should implement normswhich best help them achieve their goals. Norms are frequently revisited and "re-formed" as necessary.

2518

Councils attempt to work harmoniously and cohesively. They share a common set ofgoals. There is a high level of friendliness and support among team members.Activities in this stage should focus on building trust and creating a sense ofempowerment.

Perf-orming (achieving): This is the stage where councils reap the benefits of goingthrough the first stages. They now are able to function as a team. They have definedtasks, have created positive relationships, and are focused upon producing results.Members have new insights into both personal and group processes. They understandthe strengths of each member. If they have group problems, they are able to workthrough them constructively. Members are pleased with their progress. There is a closeattachment to "the team."

Councils should continue their diligent efforts in teambuilding skills and strive forfurther improvement. The leader must be aware of how the team might react toinfluences from inside and the outside. Changes in tasks, memberships or environmentmay have critical impact. "Fine tuning" needs to be an ongOing process.

Transforming (renewing): It is a fact that councils experience frequent change. Theydo not remain the same. They need constant nourishment and renewing experiences.Members need to be reinvigorated. To avoid complacency, councils should continue toacquire new learning. They may need to renew their commitment to the mission andgoals or change in them. Changes can be dealt with positively if members see them asopportunities for making a greater impact on the school.

Council teambuilding activities continue, along with activities centered aroundunderstanding change processes.

1926

The Role of School Councilsin

Organizational Change and Development

In order for organizational change and development to occur, school councils must cometo grips with the time and processes that will be required. The significant factors that faceall site councils can be outlined as follows:

The process takes time and a long-term commitment.

Planning must be comprehensive and the use of data and research is crucial.

Agreement must be made on essential goals.

Problems must be solved and conflicts must be resolved in order to make progress.

Decisions by consensus will provide the strength and direction for actions.

Small steps that are implemented well, can pave the way for larger or morecomplicated actions.

All activity must support the mission and goals of the school.

Involvement of stakeholders and representative groups is imperative.

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The Change Process

Change is a process, not an event. Even in the most successful, collegial environmentschange is difficult. When districts transform from a more traditional, top-down decisionmaking model, to a participatory one, the amount of change that will occur is significant.In striving to implement participatory decision making, schools will face major change inall areas, including personal roles and operational styles. Successful councils understandthe processes and elements they will experience when going through change as well as thepressure and resistance they will feel during the process.

There is much research available on the process of change and how change can besuccessfully implemented. There are organizations and consultants who provide effectivetraining on the topic of change. Learning and acting on this information providessignificant benefits in moving your school in the desired direction.

Understanding Change

When examining the process of change we need to constantly remember that change startsat the individual level. Many articles list providing for individual differences as the topfactor for success. Just as we learn at different rates, we adjust to change at different rates.Taking into account how change will affect the individual is of critical importance. Someof the other factors listed included: providing a safe environment, accepting the influenceof the past, introducing new practices carefully and clearly, and building desire foraccomplishment. Change is not easy, be prepared for resistance and conflict. A key factorin the change process is discontent with the way things are.

Initiating and Implementing Successful Change

When initiating and implementing change, people realize they are moving to somethingdifferent, something unknown. With this comes anxiety and discomfort. Frequently,individuals move through a range of emotions when change occurs.

These emotions include:Denial or Disbelief: "If I ignore this, it will go away."Anger: "How could this happen?" " Why are they doing this to me?"Bargaining: "I'll do this much , if I can stillDepression: "I guess I have to." "Am I capable of doing this?" andAcceptance: "I believe I can do this." " I will."

Successful change can be initiated when:It is relevant to a highly acknowledged need within the organizationThe model or strategies are clearly developed and presentedThere is strong support for the conceptPeople are actively involved in researching and developing the proposed change

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Factors for successful implementation of change include:Meetings are held and resources are provided in a timely mannerStakeholders are involved in and share in decision making and controlTime is allowed for sharing concerns and frustrationsTechnical assistance is made available as a resourceKnowledge, desire and motivation to achieve is at a high level

Implementing change may not be successful i f these factors are present:There is an absence of motivationPeople feel vulnerable and threatenedAdequate resources are not availableThere is a lack of direction or claritySkepticism and issues exist and are ignored

Implementation Dip

It is important to note and everyone should be made aware of the implementation dipphenomena. In some instances, depending upon the nature of the change, there may be adrop in efficiency, attitudes, scores, etc., during the initial stages of the implementationprocess. By staying together with your plans and convictions, the results will besuccessful, taking you and your council to new heights of achievement.

Attitudes which result from change can generally be identzfied in five areas:

Enthusiasts: These are eager to be innovators, motivated, seeking new challenges. Thesemay also be considered too eager by some of the staff and thought to jump on any"bandwagon" without prior knowledge.

Supporters: These are analytical and want to see how they will fit into the concept.They are generally the most trusted by the staff and are key people in theimplementation process. They are your most influential leaders.

Acquiesers: These believe they have to do it. These offer support after the supportersand rely heavily on their opinion. They are cautious and deliberate in their actions andneed to understand the benefits clearly.

Laggards: Late supporters. They want to know specifically how they will be affected.They may be resistant to change, but will eventually join in if allowed time andprovided information.

Antagonists: The resistors. They may be vocal, critical and negative. They generallyhave little influence on the rest of the staff. They will join in when they choose to doso.

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Remember, if done properly, with care and sensitivity to individual needs, change canstimulate a ground swell of support and a high level of trust, enthusiasm and achievement.If done improperly without involvement or caring for individual needs, or withoutconfronting issues and concerns directly and openly, the public's responses will be highlyemotional and the outcome will result in conflict and mistrust.

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Group Facilitation Processes

In a participatory environment, leadership roles for decision-making are shared throughall council members. Members have meaningful input and decisions are made as a team.

Group facilitation is a process, not a product. These processes guide a group in reachingconsensus on group issues and decisions. Group facilitation is a team effort with allmembers playing vital rules. Learning specific methods of group facilitation can enhanceour group's performance in the following ways.

They produce a greater sense of shared responsibility throughout the team.They promote continuous learning across the organization.They provide site councils with consistent, effective methods for developingtheir mission and goals.They provide processes by which councils can identify issues and create solutions.They allow for all points of view to come to the table for discussion.

Group facilitation is both a science and an art. It represents a blend between learned andpracticed skills and pays sensitive attention to people's needs. When group facilitationstrategies are practiced, the difficult task of developing a strategic plan, which is sharedand supported by all, is much easier.

In a site-based decision making organization, administrators are viewed as team leaderswho consider the best interests of everyone and the organization as their primary focus.This has created a shift from viewing the administrator in the more traditional sense toone of "group facilitator."

The leader who provides all of the solutions is being replaced by leaders who skillfullyencourage the group to research the solution together. Today, administrators shouldknow the questions and should involve others in finding answers. There are manydescriptions of participation and multitudes of books and articles available which describethe qualities of the administrator in the participatory environment.

A facilitator is someone skilled in eliciting participation from others. The group facilitatorneed not always be the prin.cipal, administrator, or someone in a supervisory role. Therole of the facilitator is to lead the group in drawing out answers, building a shared vision,setting goals and developing plans for achieving their vision and goals. The facilitatorbrings out the talents and contributions of others. Facilitators are communicators andcoordinators of group processes.

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Decision Making Processes

Establishing parameters and processes for decision making is one of the most crucialelements in site-based management. The question of what areas a site council has theauthority to make decisions needs to be collaboratively agreed upon at a district level.

Once the district has reached agreement as to what areas a school site has authority, thedistrict and individual schools will need to clarify the processes and parameters to be usedat the school level. Appropriate guidelines clarifying at what level preliminary and finaldecision making authority rests should be established. Many decision making optionsexist, including:

an individual or a groupan entire site councilthe administratorthe administrator with inputadministrator and staffthe staffthe staff with administrator inputa sub-group

When the clarification process has been resolved, it is important that all stakeholdersreceive information with regard to these. In addition to this school site councils shouldreceive formal training in various processes for identifying and discussion issues andmaking decisions with regard to action. There are several organizations or agencies whichoffer specific training in group decision making processes. In developing a process for howshared decision making will occur at the site level, the following steps should beconsidered.

Step 1: Develop an understanding with the staff and community on the concept of shareddecision making.Provide articles or information on: characteristics of shared decision making,how it affects school improvement, new roles created through the process, andhow it impacts students, staff and community.

Step 2: Assess your current practices.Involve everyone in an activity which generates awareness of areas whereshared decision making exists within the school.

Step 3: Determine, based upon district prescribed parameters, potential new areas forshared decision making.

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Utilizing Decision Making

Once the staff and community are prepared for the process of shared decision making, aspecific pattern for dealing with issues should be followed.

These steps should include:

Clearly identify issues, areas or concerns.

Establish parameters for the decision making process.

Determine the methods to be used in the process and how it will be facilitated.

Select a facilitator who understands and can keep the group focused on thedesired outcome.

Reaches a group consensus and develop an implementation plan.

Monitor and evaluate the plan and process regularly.

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Reaching Consensus

Consensus is when two or more individuals cooperatively arrive at a decision which theycan support as a group. Consensus is based upon cooperation not a vote. It allows for theopinions of everyone to be considered. An effective consensus process develops groupunity, more creative ideas, and a stronger sense of commitment .

The process for reaching consensus requires site council members to be able toaccommodate a variety of differing opinions. If a council can accomplish this, in anatmosphere of cooperation and collaboration, the resulting proposed solution willgenerate a feeling of ownership and commitment within the council. Agreements arereached through a process of open discussion. Individuals must be willing to reassess theirpositions to find common grounds on different points of view. Consensus is only possiblewhen there is strong, focused, commitment to the process on the part of the stakeholders.

Consensus is not a process for voting on issues. Where voting need only take into accounttwo points of view, consensus considers many. Consensus creates unity and solidaritywhere voting tends to polarize the majority and minority. Consensus takes more timethan the voting process, but the implementation time is much faster and the results areusually more successful.

Some organizations have implemented a process for "sufficient consensus." This is aprocess whereby, following real and in-depth discussions on an issue with everyonehaving opportunity for input, if a small number were not in agreement, such adisagreement would not prevent the vast majority from taking action. Most councilsidentify "sufficient consensus" as representing agreement on the part of 75 80% of thoseinvolved.

Guidelines for Reaching Consensus

There are four phases working toward reaching consensus.

The first phase is Preparing for Consensus. Each group, prior to developing methodsfor reaching consensus, must have developed an atmosphere of trust and cooperation.In preparing for consensus, it is vital that the areas open for consensus be clearly identifiedand that the issue is defined. This makes the process of keeping focused on the task easier.The group must be reminded that their goal is to come to an agreement on a solutionwhich they can unilaterally support.

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The second phase is Creating Team Unity. When the group has collected sufficient dataand they are focused upon the issue, they begin to brainstorm possible solutions.Each solution is discussed openly with the group agreeing to eliminate those which aredeemed impractical. The remaining solutions can be pared down through a process ofdiscussion which includes revising some in order to bring the possibilities to one or two.At this point, the facilitator should sense the direction of the group and check foragreement. A straw vote is possible.

The third phase is Reaching Consensus. When the facilitator senses the group is nearagreement, the discussion moves into the area of identifying each person's feelings. Thefacilitator guides the team through a process of modifying individual feelings in order toaccomplish group consensus. This may incorporate the practice of dividing into smallerdiscussion groups, taking a break for individual discussions, or other methods.

Upon reaching consensus, the process moves into the fourth phase, Implementing theDecision. The final and most important step is determining the plan of action forimplementation. When an action plan is developed, it must be communicated to/by allstakeholders. Then the plan can be put into practice. The action plan must also include aprocess and timelines for evaluation.

Facilitating Consensus

The group facilitator is the key person in guiding a group toward consensus.

Some hints for success in facilitating consensus are:

1. Keep the group focused on the issue or problem.

2. Keep the discussion moving by moving to a higher level when conflicts evolve. Thiscan be done by refocusing on the general ideas associated with the issue.

3. Change the subject. If conflict occurs, change the discussion to deal with why thegroup is in conflict, then return to the topic of discussion.

4. Divide the issue into smaller parts. Focus on individual parts. Reach an agreementon these, and then return to the larger issue.

5. Terminate the discussion. Sometimes, it is wise to end the discussion and givemembers time to consider the issue individually prior to reconvening.

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Creating a Shared Vision and Mission Statement

Dictionaries define "vision" as "imaginative foresight" while a visionary is one who"imagines how things should be." Creating a shared vision in a school requires visionaryleadership, educational research, staff, student, parent and community support andcooperation, and a desire by all parties to work for the benefit of student learning.

Vision is based on high expectations and ideals associated with educational success.Research indicates that schools with shared visions exhibit a strong sense of purpose,empowering teachers and parents to participate in making decisions affecting instruction,promoting high academic attainment, and developing responsible, self-confident andcaring students.

In developing a common vision and mission, school leaders need to do the following:

Understand the "culture" of the school;Focus on student learning that emphasis higher order thinking, problem solving,and student-focused learning;Support professional development of teachers;Promote collaboration and communication;Set parameters but not mandates;Connect with the community;Utilize research and resources to build and share common understandings;Inspire the hopes, dreams, expectations, and values of excellence in education;Translate the vision into a written mission statement;Develop plans and actions that are feasible and attainable;Reinforce the vision by addressing it frequently with belief statements, visibleartifacts (written on posters, brochures, bumper stickers, pencils, etc.), and postingthe mission in each classroom.

Positive Aspects of Creating a Shared Vision and Mission

A shared vision/mission has great power in that it sets the foundation for all that you do.

It increases the level of trust.People sense that they are a part of a team.There is an increased level of commitment.It focuses progress in a positive direction.

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Assessing Needsand

Determining Where to Start

Prioritizing goals and selecting areas of focus are crucial to school

improvement plans. It is important to find out what areas need attention in

terms of the data available and attitudes as to how important an area is. The

use of standardized test scores for previous years, state, district and/or school

test scores, attendance data (both student and staff), discipline data, parent

opinion surveys, parent and student participation information, library

resources, and other data sources are important for determining how well

your school and students are doing. The plan for improvement will need to

be developed around the goals you set from such data.

For excellent examples of Needs Assessments that define quality in dictation

and descriptors, you may contact the Arizona Department of Education or

the Staff Development Council of Arizona. The following indications are

used by Tucson Unified School District as part of their needs assessment.

They are used as the criteria for assessing all areas of a school program.

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Instruction: Effective instructional practices create a community oflearners in which all students achieve their full potential.

Indicators

A. Student learning is monitored and continuously assessed for curricular andinstructional planning to improve student achievement.

B. Instruction builds on student strengths, interest, background, experiences, language,and prior knowledge.

C. Students are involved in instructional planning, decision making, and evaluation.

D. Evaluation includes performance-based assessment, norm reference tests, and studentself-assessment.

E. Instruction incorporates strategies for developing student responsibility and self-discipline.

F. Teaching strategies accommodate a variety of learning styles and are developmentallyappropriate.

G. Grouping practices are varied, flexible, heterogeneous, and address instructional needs.

H. Unit and lesson planning are evident.

I. Instructional time is used effectively.

J. Strategies and resources such as counseling, peer assistance, and social services areaccessed for student support and classroom intervention.

K. Technology is used as a tool for content acquisition, skill development and problemsolving.

L. The media/library center is the foundation for curriculum planning, development andstudent learning.

M. Strategies including reflective teaching and action research are employed to increasestudent achievement.

N. Increased student achievement is the primary responsibility of all staff.

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Curriculum: Adopted curriculum is the foundation for teaching andlearning.

Indicators

A. Curriculum promotes critical thinking, problem solving, and life skills acquisition.

B. Curriculum builds on student strengths, interest, background, experiences, and priorknowledge

C. Core curriculum is articulate K-12, from school to school, and with post secondaryeducation and business.

D. Curriculum planning includes community resources, business and industry.

E. Curriculum planning is collaborative for integration and active inquiry learning.

F. Curriculum including school-to-work linkages prepares students for employment, postsecondary education, and lifelong learning.

G. Community and district resources provide alternate settings and programs to achievecore curriculum competencies.

Environment: The learning and working environment is safe,stimulating, positive and productive.

Indicators

A. All personnel support high expectations for students.

B. Facilities are organized and maintained effectively to provide a clean, healthy, and safeenvironment.

C. Facilities and resources are accessible to everyone.

D. Risk-taking is encouraged and supported.

E. Learners exhibit confidence and pride.

F. Schools are open, inviting, and used by the community.

G. Organizational culture is inclusive and promotes a positive response to change.

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H. Student, staff and community accomplishments, progress, and efforts are recognized.

I. Effective communication is standard practice.

J. Respect, positive self-image, and motivation are evident.

K. Discipline strategies promote responsibility and the development of self-direction.

Diversity Appreciation: Staff and students protect and respect the rightsof all individuals. (Governing Board Policy6112).

Indicators

A. Programs and practices ensure equity and inclusion.

B. A variety of cultural practices and perspectives are integrated in all curricular areas andcontent instruction.

C. Students have opportunities to learn foreign languages.

D. Students have opportunities for instruction in their primary language and in a secondlanguage.

E. District and site committees reflect community diversity.

F. Culture, ethnicity, gender, age, and individual abilities are respected.

G. Staff and other role models reflect student and community diversity.

H. Other.

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Home and Community: District units, the home, and the communitycollaborate to meet the educational and socialneeds of students and their families.

Indicators

A. Two-way communication is frequent and informative.

B. Structures exist at school sites to enable parents and community members toparticipate in their children's education in a variety of roles such as: learner, teacher,advocate, and committee member.

C. Provisions are made for the establishment of school leadership teams that offeropportunities to include parents and community involvement in result-based decisionmaking.

D. Community resources and partnerships provide support services for school sites.

E. Students and staff engage in school to work opportunities.

F. Mentoring and tutorial relationships are evident.

G. Strategies exist to increase parent/community involvement.

H. Schools create a welcoming atmosphere for families and communities when visitingdistrict facilities.

I. Partnership models exist and include mentoring, job shadowing, internships, servicelearning, community services, and speaker's bureau.

J. Other.

Leadership: Leadership promotes organizational effectiveness.

Indicators

A. A vision is articulated and supported.

B. High expectations are set for self, teams, and units.0

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C. Participative leadership is evident in organizational decision making.

D. Responsible risk-taking is modeled.

E. Trust is established and maintained.

F. Current educational literature is reviewed and used as a catalyst for change.

G. Community members and staff participate on leadership teams and in decision makingusing a variety of group processes.

H. Organizational focus is on systemic change, development, and results.

I. Problem solving strategies incorporate a variety of techniques to explore solutions

J. Visibility, accessibility, effective communication, and motivational strategies aredemonstrated by the leader.

K. Team building and group processes are used in problem solving and decision making.

L. Professional development, consistent with research, is collaboratively designed andimplemented.

M. Other.

Human Resources:

Indicators

Qualified, diverse staff is attracted, supported,retained, supervised, and evaluated using strategieswhich focus on continuous improvement.

A. Staff is informed regarding policies, procedures, expectations, duties, andresponsibilities.

B. Staff is accountable for job responsibilities and expected results.

C. Qualified staff with diverse backgrounds is recruited.

D. Staff demonstrates loyalty and commitment to the vision and goals of theorganization.

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E. Supervision and evaluation promote professional growth, quality performance, andaccountability.

F. Technology applications are used to enhance job performance

G. Professional development activities are focused on individual and organizationaldevelopment.

H. Organizational development is focused on enhancing the learning environment andincreasing student achievement.

I. Other.

Organizational Map: Organizational/unit management, assessment,planning, and development procedures areeffectively administered.

Indicators

A. Vision and goals of the organization are aligned and clearly communicated.

B. Planning involves all stakeholders.

C. Policies and procedures are written, communicated, and reviewed.

D. Fiscal needs and allocations are communicated within the organization and throughoutthe community.

E. Funding criteria and procedures are designed to ensure equity.

F. Budgets are responsibly administered.

G. Resources are pursued and coordinated to enhance optimum results for studentoutcomes.

H. Data including student and personnel records are accurate, confidential, and managedfor effective use.

I. Action plans for improvement including professional development are designed andimplemented by all units and individuals.

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J. Continuous assessment using multiple data sources is used for planning anddevelopment.

K. Annual and midyear assessment of goals serve as a basis for unit decision making.

L. All units provide systematic reporting of results to inform district decision making.

M. Information is effectively managed using technology.

N. Accounting procedures, reporting and appropriate intervention ensure increasedstudent and employee attendance.

0. Other.

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School Council Goal Setting

The purpose of goal setting is to clarify direction and provide plans for accomplishing theschool's mission. A goal is a clear, realistic statement of what you want your council toaccomplish. When groups take time to set goals, they are taking the first step in achievingtheir mission. Goal setting provides a process for stretching the imagination andperformance of your school. Goal setting provides you with feedback on how yourimprovement efforts are progressing. They are an invaluable source of motivation foryour council and school. Goals increase communication by providing every memberwith the knowledge of where you are going. Without goals, your council efforts willappear unplanned, unorganized and not focused toward improvement.

The process for establishing goals varies from one district to another. In some instances,the district has already identified goal areas and its schools are to develop their own actionplans for the achievement of each goal. In other situations the school is empowered toidentify their own needs and wants and develop accompanying goals, with governingboard approval.

Steps in Goal Setting

Goals are most useful and have more importance if they are established early.They give you direction, energy and purpose. They also provide an excellent tool forassessing your progress.

Involve all stakeholders in generating ideas and determining goals. Establish aprocess for identifying your needs and wants. When everyone has input into theprocess, they will also be committed to making the effort to achieve success.

Determine where you want to go. Ask questions. What do we want? What isimportant? How will it help us? Who will be affected? How can we establish bold,dynamic goals that will be challenging and exciting to our stakeholders? Allowmembers to be creative and imaginative without criticism. The more open you are,the better results you will have. The format for brainstorming is one way toaccomplish this. People trained in group facilitation can also be of much benefit, andit may lend more openness to your discussion.

Evaluate your list and determine your highest needs and priorities. Discuss thepromises, potential and problems associated with each. Identify possible ways toovercome the obstacles.

Write the goal. Your goal statement should be realistic, easy to understand, have ameaningful purpose and be obtainable. In writing your goals, use words that clearlycommunicate your purpose and your desired results. Use words that are precise andto the point in identifying the action(s) that are necessary for achieving each goal.

Written goals should:Align directly to your mission and values.Be challenging as well as realistic and achievable.

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Be measurable and specific.Be written in a positive framework.Have clearly written plans for implementation.Identify and make available resources necessary for successful achievement.Have established timelines.Include specific performance expectations for all stakeholders.Include clear and specific performance process for evaluation.Identify a process for celebrating their accomplishment.Be written to reflect short, medium and long range plans.

Setting Goals at the Right LevelSetting goals at the appropriate level requires skill that is often acquired through practice.Accurate input data in necessary- in order to set attainable goals. Goals should requireeffort and stretching in order to grow but should not reach for unattainable heights. Ifstakeholders see a goal as being unrealistic, they are most likely to make no effort towardits achievement. Likewise, setting goals too low will result in no growth or achievement.

Achieving Goals

When you achieve a goal, have a plan to take time for celebrating your success.Acknowledge those who participated in its achievement and recognize the progress youhave made together. Discuss your experience, sharing and reflecting on what you havelearned. Look forward to accepting and accomplishing future, more difficult challenges asa team.

Frequent monitoring of your progress, with appropriate revision, should prevent failure.However, if you should not experience success in accomplishing a goal, thoroughlyreview the processes and procedures used in creating it as well as the specific action plans.Attempt to diagnose why you were not successful. Causes for lack-of success include:unclear purpose, lack of commitment, poor plans or techniques and lack of resources.The most frequent reason is that the goal was unrealistic from the beginning. If the goalremains a high priority, rewrite your plan, and include the aspects necessary to besuccessful.

Writing clearly defined goals and accompanying action plans gives your team the powerto choose your priorities and determine your future. By knowing what you want toachieve, you will know where to concentrate your energies and be able to avoid mostdistractions. By creating a shared vision and accompanying written goals, schools(councils, teams, communities) will: achieve more, improve performance, increasemotivation and pride, and create a positive, satisfying environment where trust isprevalent.

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Developing and Implementing Action Plans

Steps to follow in developing an action plan

School Vision, Mission, and/or Philosophy:Topic 1: How Students LearnTopic 2: School OrganizationTopic 3: CurriculumTopic 4: AssessmentTopic 5: Adult - Student RelationsTopic 6: Parent InvolvementTopic 7: Community Involvement

Identifying Goals for ImprovementStudent performance on tests and other measures of success and/or achievementEffective schools measuresSurvey information from various groups on school issues

III. Understanding and Coordinating GoalsSchool GoalsDistrict GoalsState Goals

IV. Communicating Goals:Teachers and StaffParentsCommunity

V. Writing and Developing the Action Plan:Vision/Mission/PhilosophyData that Support GoalsObjectivesActivitiesCostsTimelinesPersons ResponsibleAssessments and Evaluations of Student Program SuccessProcess EvaluationReflection and Planning Based on Outcomes

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School Council Improvement Plan

I. School Vision, Mission, and/or Philosophy:

Topic 1: How Students LearnTopic 2: School OrganizationTopic 3: CurriculumTopic 4: AssessmentTopic 5: Adult-Student RelationsTopic 6: Parent InvolvementTopic 7: Community Involvement

II. Identifying Goals for Improvement:

Student Performance on Test and Other Measures of Success and/or AchievementEffective Schools MeasuresSurvey Information from Various Groups on School Issues

III. Understanding and Coordinating Goals:

School GoalsDistrict GoalsState Goals

IV. Communicating Goals:

Teachers and StaffParentsCommunity

V. Writing and Developing the Action Plan:

Vision/Mission/PhilosophyData that Supports GoalsObjectivesActivitiesCostsTimelinesPerson ResponsibleAssessment and Evaluations of Student and Program SuccessProcess EvaluationReflection and Planning based on Outcomes

41

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For all its guises, site-based:managementis basically an attempt to traniformschools into communities where theappropriate people participateconstructively in major decisions that _

.-affect them.- :* .

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ite-based management may be the most significantreform of the decadea potential force for ernpow-ering educators and communities. Yet no two .

people agee on what it is, how to do it, or evenwhy to do it.

Kentucky requires virtually eVery school to have a site-based council with three feachers, two parents, and the

principal, and endows councils with considerable. and policy authority. Maryland and Texas require schools

. to have school-based decision-making teams, but in

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contrast to Kentucky, do not specifytheir composition or legally transferauthority from the disuict to theschool.

In Chicago, state law places signifi-cant authority in the hands of localschool councils and defines theirmakeup: six parents, two communityrepresentatives, two teachers, and theprincipal. In Cincinnati, reorganizationand downsizing of the central officehas shifted considerable responsibility,but no additional legal authority, toschool principals.

Colorado governor Roy Rornerinitiated site-based management inDenver as part of stalled contractnegotiations between the schooldistrict and the teachers' associationand required a business representativeon each council. In Memphis, sire-based management never got beyond asmall pilot phase. In Dade County,Florida, the pilot was expanded but ina much weaker form.

These are only a few examples.According to Ogawa and White(1994), one-third of all school districtshad some version of site-basedmanagement between 1986 and 1990.Since 1990 at least five states havejumped on the bandwagon. Andduring the same time, more than 20states have passed legislation to createcharter schoolsindividual schoolsthat are de facto site-based managed,even though they do not carry thattitle. All this activity excludes indi-vidual schools that have institutedreforms but have not been delegatedauthority by their district or state,although some of these may beexcellent models of democraticdecision making (see, for example,Apple and I3eane 1995, Wohlstetterand Smyer 1994). -

What Is It?So what is site-basedmanagement? It hasalmost as many variants asthere are places claimingto be "site-based." Andthey differ on everyimportant dimensidnwho initiates it, who isinvolved, what theycontrol, and whether theyare accountable to anoutside authority. Site-based management maybe instituted by state lawor by administrativeaction, by a district, or bya school. It may be linkedto an accountabilitysystcm with consequencestied to student perfor-mance, or it may not be.

Most variants ofsite-based managementinvolve some sort ofrepresentative decision-making council at theschool, which may stiareauthority with the principal or bemerely advisory. Some councils havethe power to hire principals, some hireand fire, some do neither. Some canhire other personnel when there arevacancies. Some councils specify thatthe principal be the chair, othersspecify that the principal not bethe chair.

The composition of site councilsalso varies tremendously. In additionto teachers, parents, and the principal,they may include classified staff.community members, students, andbusiness representatives. Educatorsmay outnumber non-educators, orvice versa. States or districts may listconstituencies who must be repre-

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sented. or simply leave it to individualschools. Chicago and Kentucky areexceptions in specifying exactmembership of the'site councilwhoand how many of each type ofconstituent.

why oil It?Reasons for initiating site-basedmanagement run the gamut, yet virtu-ally all are cloaked in the language ofincreasing student achievement. Tosome, site-based management is agovernance reform designed to shift thebalance of authority among schools,districts, and the state. This tends to be

the rationale behind state efforts ratherthan district reforms, and it is often . .

. .

DECEMBER 1995 /JANUARY 1996

5 0 BESTCOPYAVAILABLE

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educational reform is thatthe way to enhancestudent learning is to leteducation professionalsmake the importantprofessional decisions.

Further complicatingthe landscape, there areoften underlying motives.Stated purposes mayobscure far less loftyaims, such as weakeningentrenched and distrustedlocal school boards,creating the illusion ofreform without investing

people who have never worked as agroup, who may have no experience incollaborative decision making, andwho may in fact have a history ofbeing adversaries (parents andteachers, for example). To makematters worse, some members may besubject to evaluation by othermembers (teachers by the principal.most obviously). Why would such agroup be expected to improve studentlearning?

Indeed, groups like these that dofunction well tend to spend most oftheir time on issues of discipline. facil-ities, and extracurricular activities.

easons for initiating site-basedmanagement run the gamut, yet

virtually all are cloaked:in the Ianguageof increasing student achievement.

part of a larger reform agenda thatclaims to trade school autonomy foraccountability to the state.

To others, site-based management isa political reform initiated to broadenthe decision-making base, eitherwithin the school, the larger commu-nity. or both. But democratization ofdecision making as an end in itselfleaves open the question of whoshould be involved in which decisions.

Site-based management may also bean administrative reform to makemanagement more efficient by decen-tralizing and deregulating it. Here, too,management efficiency presumablyserves the ultimate goal of the organi-zationstudent learning. Yet anotherpremise of sitc-bascd management as

gEDIKATIONAL LEADERSHIP

additional resources,putting a positive spin

on central office downsizing bycalling it decentralization, or simplytrying to shift the blame for failure tothe school itself.

Linking Decentralization andAchievementAlthough site-based managementappears in many guises, at its core isthe idea of participatory decisionmaking at the school site. And despiteall the variations in rationale, its mainstated objective is to enhance studentachievement. Participatory decisionmaking and school improvement arepresumed to be related, but that's notalways the case.

Consider what happens when anygroup is formed by brineing together

51

They limit themselves to these issuesfor good reasonthese are the issuesthat people are passionate about andhave some idea how to tackle. More-over, these are concerns that parentsand teachers share (David 1994).

Curriculum and instruction aremuch more difficult to deal with, foreducators and non-educators alike.And these issues are even more diffi-cult to tackle when states or districtsmandate new assessments that requireteaching methods that are unfamiliarto many parents and teachers. Whenthere are serious consequences forunsatisfactory student performanceespecially teacher or principaldismissalbut a lack of knowledgeabout how to improve student perfor-mance. trust and constructive dialogueare further undermined.

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Who Decides What?For site-based decisions tobe sound, attention must bepaid to who decides what.Sound decisions are madeby those who are informedabout and care about theissues and who know thecontext in which the decisionwill be carried out. Otherwise, thereis no guarantee that these decisionswill be any better than those made bypolicymakers many steps removed.In fact, school-based decisions couldbe made by only one person. and thatperson could be uninformed andinsensitive co the context.

Participatory management does notmean that everyone decides every-thing. Some decisions are best left tothe professionals in the school, someto parents, and others to students.Some decisions are appropriatelymade by representatives of severalconstituencies, others by a formalschoolwide body. Nor does site-basedmanagement mean that all decisionsare appropriately made at the schoollevel. Schools belong to largersystemsdistricts and statesthatmust provide a strong center if decen-tralization is to create something otherthan anarchy (Murphy 1989).

Schools are unlikely to improveunless community membersandparticularly parentsparticipatemeaningfully. And in secondaryschools, students should be involved -as well. Schools are also unlikely toimprove unless teachersthe mainimplementersshape the direction ofchange. In general, those who have thestrongest personal stake in and themost immediate connection to theschool are the ones who should tacklethe issues. The challenge is to maxi-mize the likelihood that decisions willbe appropriately participatory,informed, and sensitive to the context.

atory managethentoes not mean at everyone

es eVerythin

Internal ElementsSite councils that truly flourish in theschool community tend to have anumber of characteristics in common,most notably the following.

g A well-thought-out committeestructure. In a well-structured systemof council committees, there is a goodmatchup between the types of deci-sions to be made and the most appro-priate people to debate and resolvethose issues. Some committees may bestanding, others ad hoc. Some may becomposed of teachers, and so definedby naturally existing groups liketeams, departments, and grade levels.Some may consist only of parents;others may be representative of allconstituencies. Whether the relation-ship between the committees and thesite council is formal (approval) orinformal (advisory), the committeestructure with overlapping member-ships provides a communicationnetwork that is critical to an effectivecouncil.

Enabling leadership. Strong coun-cils are usually led, though not alwayschaired, by strong principals (andSOTIICE1111eS teachers) who exercise

leadership by mobilizing others. Theyencourase all parties to participate.And they model inquiry and reflec-tion. Such leaders create schoolwideownership of the improvement agendaso that principal turnover or a chaneein council membership does not bringefforts to a halt.

Is Focus on student learning. Not allissues have a direct influence on

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student learning, but strongcouncils consciously connectnon-instructional decisionswith conditions that maxi-mize learning opportunities.For example, a decision toinvest in classroom tele-phones to facilitate commu-nication between teachers

and parents will also affect students.By linking all issues to teaching andlearning, council members don't losesight of the ultimate goal.

Focus on adult learning. Thereare two points here. First, councilmembers need new skills, assistance,and practice in asking hard questionsand gathering evidence about what isand is not working. Second, councilsneed to appreciate that theirconstituenciesparents and educa-torsrequire access to new knowl-edge and skills, both to be active deci-sion makers and to change theirteaching and learning practices andbeliefs.

oSchoolwide perspective. Func-tioning councils focus on the collec-tive interests of the parties. devotingtheir energy to school goals and direc-tion, coordination and communication.and allocation of resources and equity.They do not get caught up in details ofmanagement or curriculum, and theydo not get waylaid by individualagendas. Naturally most parents willbe thinking about their own children'sneeds, and most teachers will bethinking about their own classrooms,and so they might be defensive. More-over, everyone may lack confidence in

a new process that carries considerableresponsibility.

External ElementsNot many schools are able to create ontheir own the conditions I havedescribed, particularly whcn strongenabling leadership is absent. To learn

IIDECEMBER 1995/JANUARY 1996

how to do it, most schools requiresupport from their district or stateagencies, including the following:

u Long-term commitment. Councilscannot evolve into effective decision-making bodies at the school site if thependulum swings from one extreme tothe other every two or three years.Site-based management cannot be thereform du jour that changes authority

schools, if real improvement is tooccur, individual beliefs and, ulti-mately, the school culture will needto change.

Opportunities for learning andassistance. Districts can provideresources for the kinds of learningopportunities that adults in schoolsneed to change classroom practicesand to function effectively as council

5" 1

1111-1 4

I

and flexibility when the superinten-dent changes. Sustained commitmentis essential. The process is hard workand takes time.

a Curricular guidance. Schoolsneed a substantive framework withinwhich to make appropriate choices.Whether that guidance is best commu-nicated in the form of learning goalsand standards, curriculum or contentguides, or assessments is an openquestionas is the way in whichchoices about such guidance are made.The goal of site-based management isnot to let a thousand flowers bloomnor to force every school to reinventitself from scratch.

In addition, everyone from class-room teachers to other members ofcommittees who diagnose problemsmust have opportunities to learn newways of operating, including medi-ating techniques. School councils mustreflect the existing culture. For most

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III" 1 1

1 IS 1

and committee members. Schoolcouncils will necessarily reflect theexisting culture. Most councils, butespecially those with local conflictsand limited experience in collabora-tive problem solving, will need assis-tance and access to facilitation andmediation. For most schools, if site-based management is to lead toimprovement, individual beliefs and,ultimately, the culture of the schoolsite will need to change.

Access to information. Schoolsmust have easy access to the informa-tion needed to make decisions,including everything from budget toperformance data. A decentralizedsystem can function well only wheneach unit knows how it is doing.Although schools can gather certaindata from students, teachers, and thecommunity, they cannot be expectedto have the data collection and anal-ysis capability that a larger organiza-

tion can support. Moreover, becausethe system has its own needs for infor-mation, the flow must go in bothdirections.

Open QuestionsMaking fundamental changes insystems as complex as state and localschool systems raises a number ofquestions for which there are no patanswers. The solutions simply have tobe worked out by those involved.Among these difficult issues are ques-tions of equity, adult learning, decisionmaking, and changing conceptionsof teaching and of community. Inparticular

What policies and supports willensure that site-based managementdoes not exacerbate resource differ-ences among schools? Schools inpoorer neighborhoods tend to havefewer resources and less educatedpopulations. They are at risk of beingfurther disadvantaged under a decen-tralized system.

a How can site-based managementcreate a sense of community in schoolsthat draw from a large geographicarea, as do most secondary schools;and in schools in districts with deseg-regation plans, choice, open enroll-ment, or magnet schools? Parents andstaff at such schools may not haveaccess to transportation or time toparticipate in school decision making.

New idcas for teacher professionaldevelopment are emerging, but whereare the opportunities for principals,central office staff, and parents tolearn new roles and ways to assistsite councils?

How should teachers' jobs beredefined to allow time for collabora-tive decision making and ongoingprofessional development? Bothteachers and the public believe thatteachers should devote their time tostudents, and teachers are finding

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classroom demands take increasingtime and energy.

How can site-based managementbe structured to balance schoolautonomy and flexibility with certaincentralized operations that requireconsistency, coordination, and legalconstraints? For example, collectivebargaining, transportation, andgovernment regulations may all affectclass size, schedules, services, andhow facilities are used.

What is the best public educationanalogue to private sector work teams,and where do parents and communitymembers fit in? That is, decentralizedprivate organizations delegateauthority to work teams that don'tinvolve the public. But in schools,neither site councils nor groups ofteachers are really teams that carry outthe work of the organization (teacherstypically work in isolation).

Should schools have mandatesthat require them to involve parentsand the community in decisions? Whatis the likelihood that without suchmandates, parents and communitymembers would continue to have littlevoice in some local schools?

Risks and BenefitsIn theory, the benefits of site-basedmanagement overwhelm the costs: thegoals of education reform are unlikelyto be met in any other way. As publicsupport for public education in general,and reform in particular, dwindles,community members' engagement intheir local schools offers the mostpromise for rebuilding support.

Without a school and communityculture that supports ongoing learning,student achievement is unlikely toimprove. The challenge is to openavenues for informed conversationand for becoming informed. Ultimateaccountability rests on the ability ofindividuals to influence what is not

working (Wiggins 1993). That iscertainly far preferable to a statetakeover or school closure.

Although the ultimate goal ofparticipatory site-based managementis to improve schools in order toimprove student performance, theintermediate goals are desired ends inthemselves. Involving teachers indecisions about their work must bevalued in its own right, as must givingparents and other communitymembers more involvement in theirschools.

One risk is that the public will judgesite-based management prematurelyon the ultimate goals, derailing soundpractices whose success is not yetreflected in test scores. When there ismore than one desired end and themeans to those ends are not clear, it isdifficult to assess progress along theway. Therefore, it is critically impor-tant to devise new ways of measuringprogress for such an undertaking(Bryk et al. 1994).

Another risk, however, is thatparticipants will not judge site-basedmanagement in terms of any of itsgoalsintermediate or ultimatebutsimply allow the process to absorbtime and energy to no good purpose.Unfortunately, in practice, the poten-tial of site-based management is rarelyrealized. It can even have deleteriouseffects, exhausting limited energy andgood will in futile exercises. Onlywith visible progress and results willfolks willingly put in the hard work.

The key is to identify and exploitways to ensure that decisions will beappropriately participatory. informed.and context-sensitive, therebyincreasing the likelihood that thcy willlead to better school practices andstronger instruction. Ultimately, it willbe the people who carry out site-basedmanagement who determine what itisand can become. Their success or

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failure will also help others decidewhether it is worthwhile in terms ofthe human costs it exacts.

Finally, the goal of transformingschools into communities whereeveryone has a voice goes beyondissues of school reform to the heart ofour democratic society. The creationof models of collaboration and partic-ipatory decision making for studentsto witness and become involved innot only in classrooms but also in theircommunityultimately benefits notjust the school community but ourentire society. is

ReferencesApple, M. V., and J. A. Beane. eds. (1995).

Democratic Schools. Alexandria, Va:Association for Supervision andCurriculum Development.

Bryk. A. S.. et al. (1994). "The State ofChicago School Reform." Phi DeltaKappan 76: 74-73.

David. J. L (1994). School-Based DecisionMaking: Linking Decisions to Learning.Lexington. Ken.: The PrichardCommittee for Academic Excellence.

Murphy. J. T. (1939). "The Paradox ofDecentralizing Schools Lessons fromBusiness. Government. and the CatholicChurch." Phi Delta Kappan 70:S08-81-2.

Ogawa. R. T.. and P. A. %Mite. (1994).-School-Based Management AnOverview." In School-Based Manage-ment Organi:ing for High Pmforntance.edited by S. A. Mohmian. P. Wohlstetter.and Associatcs. San Francisco:Jossey-Bass.

Wiggins. G. P. (1993). Assessing StudentPmformance Exploring the Purpose andLimits ofTesting. San Francisco: Jossey-Bass.

Wohlstetter, P.. and R. Smyer. (1994).-Models of High-Performance Schools."In School-Based Manugentent Orga-nking for High Petformance. edited byS. A. Mohrman. P. Wohlstetter. andAssociates. San Francisco: Jossey-Bass.

Jane L David is.Director, Bay AreaResearch Group. 3144 David Ave., Palo

Alto, CA 94303.

DrrE.IHER It/95/.1.\ L.*ARN 1996 ri

Shared Decision Making Works!Robert Kessier

Making the move tocollegial decision makinghasn't always been asmooth process,says the superintendentof a small district innorthern California,Jt the positive results

have reinforced thecommitment of his staff.

've spent many sleeplessnights worrying whetherthe difficuldes facing ourdisaicf s restmcturingefforts have heen worl

the energy needed to moveforward. As morning comes.I always reach the sameconclusion: yes.

For five yetzs I was headnegotiator for the teachers'association in Moraga. Cali-fornia. a small suburbandisthct east of San Francisco.In spite of my public supportfor our successes through

collecdve bargaining. I always felt personallyuncomfortable with its confrontational nature.Often on the same day. I would have to switchfrom colleal conversations with a teacher, admin-istrator. or parent. to uncompromising confronta-tions about salary increases with the same people.

As a principal. I often irk a similar conflict. Iworked hard to develop trust between myself andthe staff. Yet the mutual respect that grew out ofovercoming problems and developing newprograms together would often be tossed aside asteacher and disdict posidons hardened at chebargaining table. I found myself voicing positionsthat were not necessarily my own feelings, butseemed necessary to protect the district'sbargaining strategy. At times the conflicts oversalary issues so dominated the school year thatefforts to improve the educational progam becamesecondary at best.

I became convinced that there had to be a betterway to resolve conflicts. Though the road is diffi-cult, the Reed Union School District is finding abetter way.

5 5

Starting at the District LevelTwo years azo I became superintendent of thedisnict after three years as principal of the middleschool. A major factor in my decision :o apply forthe position was my confidence in the disthct's&zee-year budget restrictUring project. I wascontinually amazed by the positive impact shareddecision makinz had on our disnict. For two-and-a-half years, bezinnine while I was still at themiddle school. for example.-we had no darnazinzconflict over salary increases.

In Reed. we bezan our restrucraring effort at thedistrict level. Many districts that ekReriment withinvolvine teachers in leadership start at the schoolsite level. We bezan with the topic everyoneconsidered the bizzest obstacle to educationalimprovement: conflict over the disthc: budzet.

With help from the Smarr Foundations, welaunched our Manazenient Team: seven teacherrepresentatives, one classified representative, the .disnict's three principals, the superintendent. andtwo board members. This uoup meets retularlyand in publicto develop a recommendation onthe district's annual budget. While the Board ofTrustees is not lezally obligated to accept theteam's recommendation, it has done so for the pastthree years. The proposal has also been the basisfor the formal salary settlements between thedisnict and barzaininz units.

Fanning a Team AgreementGetting started wasn't easy. Several years ago, aspart of a countywide professional developmentproject. the Reed Board of Tnistees made an initialcommitment to developing teacher involvement indecision making. Once the Management Teamwas in place, we hired a amine: to help us analyzeour personal styles and develop effective groupdynamics. Out of the training process came our

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Team .Agreernents: to commit to operate by

consensus. respect one another's styles, speakhonestly. and advocate the ceam's decisions to ourconstituencies. Taking the tale to work out these

areements was critical for success.In the meetings. when a member objects to a

particular proposal. evezyone listens carefully tohis or her reasoning because we cannotreachconsensus without everyone's approval. Similarly.when team members raise objectons. they alsooffer suggesnons because ever/one has the sameultimate goal: consensus. As one member statedin our second-year evaluation. :If this were acollective bargaining session, it would have ended-

in the firs: few minutes, because everybody wouldhave stormed out. Ever/one here feels responsiblefor corning up with the produc t. instead ofexhibiting the arfitude that 'it's not my problemit's yours!' "

Developing a RecommendationBeginning with the Team Agzatemenrs, we heldmonthly three- to four-hour meetings to develop abudge: recommendation. Though the process wastedious, we went through the budget line by line.The business manager clearly explained statebudgeting procedures and regulations. andeveryone's quesdons were answered. As Manage-ment Team members gained an understanding ofwhat makes a district budget. we focused on priori-ties for the upcoming year.

We spent many hours rmildne priorities foradjustments to the budget A typical meetingfocused on such questions as: With only a smq11cost of living increase from the state, what prioritydo we give to programs, classroom aides, classsire. and staff salary increases? The discussionwas intense. often heated. Somedmes membersbroke into smaller goups to try to reach accord.

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AC times, we doubtedwe could reachconsensus, bureveryone persevered,and eventually wedrafted a plan thatpreserved coreprograms. instruc-tional aides. anclsmallclass size. Somespecialist positionswere dropped andinsauctional supplyallocations- reduced.Increased costs.including teacher andstaff salary increases,were included in thefinal budget recom-mendation. Thoughno one enjoysdeciding whether a_half-time elementaryphysical education teacher or a goundskeeperdeserves a higher priority, members !dam theymust make some hard choicesand that theycould make thembecause we all share the samefundamental value: quality education for ourstudents.

In June 1991, we completed our third round ofbudget development. As we have become clearerabout our rfiorities, we have also generated newquestions. How should the budget reflect thedifferences among our schools? Do differingstudent needs require different student to teacherratios? Or is equity among schools a better crite-rion? In the future, we feel able to address thesedifficult questions because of the creativityinherent in our Management Team process.

After havingan adversarialenvironmentfor many years,the districtnow has opencommunicationand an atmosphereof developin2trust.

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t=?TSNTBER 1992

We besian our-structuring

effort at thedistrict levelwith the topiceveryoneconsideredthe biaaestobstacle toeducationalimprovement:conflict overthe districtbudaet.

Shared Decision Making:Suggestions f or School DistrictsInvolve board members from thebeginning. Their carticipaticn isessential to lecitimize tne crocessarie to ease communication.

Take the time to build trust. rcctraining sessions to Oevelcz :eariacreements are an inyaivanie wayto begin sharec decision making.

Use neutral tacilltaMrs. Facilitatorskeep Vie consensus process intact.remind the grouo wnen it is samyingfrom its agreements. anc focus Megrouc on its tasscs.

Be bones!. There is no room forunspoken agencas or ben:no-the-scene mariculancns.merncers ,neeO :c cc 3:a:so anc ::me :akento Peal wim. :nem as :hey Er:sa.

Be patient. Fieaching a gct.icconsensus :axes more :irne andpatience man making neoisionsin a traditional hierarch:a system,but recommenCazons wii; ceaccectec remarkacie solh:of trust.

A Model That Can Work AnywhereWorking in a resaucrured system hasbeen demanding at times. Asemotions become heightened, it's astruggle to maintain a construcnveattitude. Adapting to changes in theroies of board members. administra-tors. and teacher-negotiators has alsobeen a challenge. One of our rnostpersistent problems is finding the timenecessary for frequent ManagementTeam meetings. Clarifying the team'srole in the district's chain of commandremains a thorny issue, as doesdefining the relationship betweenlegally required collective bargainingand Management Team recommenda-tions.

However, dealing with these chal-lenges is unconditionally preferable tothe system I have been used to. Afterhaving an adversarial environment formany years. the district now has opencommunication and an atmosphere ofdeveloping trust. Teachers and princi-pals can focus their attention onimprovements in curriculum andschool provams. Community supporthas gown. too. Three years ago,discict voters turned down a speciallocal tax assessment for schools. InApril 1990, they approved a similar

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measure by a two-thirds margin.Recently. the budget situation

throughout California has created ourgreatest challenge yet. Tne lack ofcost-of-living increases in staterevenue CO local disthcts means thatbudgeting for even minimal salaryincreases is increasingly difficult.District staff began to questionwhether teacher interests are bestserved through traditional, adversarialbargaining or through a more collabo-rative process. It is a mark of commit-ment to shared decision making thatthe district and the teachers' associa-tion have am-eed to broaden the scopeof our Management Team to include

. all contract negotiations.While the small size of Reed may

partially account for our success. ourdiversity in individual points of viewis typical of all school districts. Ibelieve that making a mutual commit-ment to work by consensus and tobase decisions on the best interest ofkids is a model that can workanywhere.

Robert Kessler is Superintendent, ReedUnion School District, 277-A KarenWay, Tiburon, CA 94920.

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A Successful Modelil-or School-Based PlanningJanice I. Solkov-Brecher

With the "whole world in our hands" as the theme,

an elementary school community is working

enthusiastically to meet its goal of environmental

education.

when 1 look at all of theschools in Centennial.I see nine differentschools. Each commu-nity is different. Each

staff is different. Each principal isdifferent. What unifies us is ourmission. ... The ways we accom-plish our mission and our goals andobjectives will vary because of ourdiversity.-

At a meeting of our CurriculumCouncil. Centennial SuperintendentHarry Harhigh thus presented hisvision of changing from a manage-ment-by-objectives system to aprogram of building goals detemiinedthrough a needs assessment. As a pewelementary principal with a back-ground in research. I immediatelysought to discover what a needsassessment model might look like. I

examined a program that a committee

of district administrators had designed.I also explored the literature. After arather lengthy investigation, to mysurprise. I had not located one prac-tical plan for assessing a building'sareas of strength and difficulty andthen addressing the challenges.

A Needs Assessment ModelIn the literature, school reform leadersemphasized the importance of a grass-roots movement for successful changein education. Realizing the impor-tance of making the needs assessmentprocess a bottom-up effort. I sent aletter to all parents and staff memberssoliciting volunteers for a committeethat would determine a building goalby the end of the school year. OurNeeds Assessment Committeeconsisted of the principal, fourstudents in uades 4 and 5 selected bytheir teachers, and all parents andteachers who volunteereda total of41 members.

We met once a month. in the after-noon and evening, so that memberscould choose the time more convenientfor them. The average attendance was30 members. At the evening meeting.I reported on the earlier goup'ssession: thiresults of both meetingswere then published as minutes.

The steps outlined here can befollowed regardless of the specificsthat apply to a building's staff, studentpopulation. or general community.

September: Begin QuestioningProcess

a. What parts of the total schoolprogram need improvement?

b. On what bases have people iden-tified parts of the school program inneed of improvement?

c. Why do they think these partsneed improvement?

I prepared packets of data and

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shared them at the first Needs Assess-ment Committee meeting. The dataincluded the district mission state-ment and eoals and the results ofstate assessments and the standard-:zed test results of the Comprehen-sive Tests of Basic Skills (CTBS ).

Was it a successfulproarram? Afterthe first year of atwo-year actionplan. I mustrespond withan unequivocal-yes!"

Another source of information was asurvey of the school's instructionalprozrams and services completed byparents, teachers. and 5th and 6thgraders.

workino . in small goups. comthitteemembers reviewed the data. On alaree zrid, we marked pluses andminuses to reflect strenzths and weak-nesses. The chart began to revealareas in need of improvement andstimulated discussion on the reasonsfor these needs.

October/November/December:Consider Information Gathered

a. Is there some consensus aboutwhich parrs of the school proeram aren need of improvement?

b. Are the areas identified asneeding improvement significant?Do they affect the overall quality of

the school's proerarn?After two months of considering the

above rwo questions. we narrowed ouroriginal list of 10 topics to 4:

self-esteem/discipline,responsibility.

environmental education/community involvement.

computer education.reading/critical thinking

skills/study skills.

December/January: Identity Concernsand Generate Data

a. Of the concerns identified. whichale the most important for improvingthe educational program of the school?

b. Which are within the scope andability of the school to address andcorrect?

c. What information do we need tobecome fully informed about thenature of the concerns, and where canit be obtained?

d. After zatherine the information.how can it be oreanized so that it isaccessible and useful to all?

In reviewing the four topics.committee members searched for thesingle topic that would be mostmanageable and make the biggestdifference in our educational progam.For example. althoush the committeefelt a need to help students with self-esteem/discipline/responsibility, wasthis area sienificant enough to be abuilding stoal? Considering all theother related variables, could theschool really correct this concern?What type of environmental educationprouam could we actually develop?Did the school have the resources tocarry out computer education as abuilding goal in a meanineful way?Was there already sufficient emphasison the area of reading.?

Over the next two weeks. I metwith a mini-team (one parent. one

student. one teacher) for each areaof concern to outline an actionplan for each proposed topic. AIthe December meeting. I sharedthose pians with the committee.and we reviewed them in light ofthe above questions. The cautionhere is co resist identifying onetopic until this reflective process iscompleted.

January/February: PrioritizeConcerns and Choose One

a. Of the major concerns identified.which are most important forimproving the school's educationalprogram. and what prioriry is eivento each concern'? Items to be consid-ered include t 1) the degree CO whichaddressing the concern will affectthe entire school: (2) the availabilityof time. personnel, and resourcesto address the concern: and (3) theknowledee of how the concern canbe addressed.

b. Which concern is most inneed of immediate attention?

During extensive discussions.committee members areuedpersua-sively for their favorite topic.Finally. in January. both thecommittee and the.staff voted fora first, second. and third choice.We examined the results to findareas of azreement.

Environmental education wasthe first choice of the committee.the second choice of the staff. Bothgroups were consulted. and theythen azreed on environmental educa-tion as the building goal. Afterhearine the mini-teams* presentationsand the debates about how environ-mental education could be addressedas a thematic unit intezrating allsubject areas. I felt excited aboutthe direction of this topic as a eoalprogram.

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March: Write Objectives Neededto Address the Concern

a. WhaI Objectives must be set:T. the concern is to be addressed

iccessfully?b. What actions must be taken?

April: Develop an Action Plana. How can the necessary actions be

organized?b. How will it be determined if

the objectives have addressed theconcern?

c. How will the program beevaluated?

After drafting the action plan basedon the recommendations of the mini-tearn's plan for environmental educa-tion. I shared it informally with indi-vidual parents and teachers from theNeeds Assessment Committee. Later.at the April meetine. I formally sharedthe action plan. Durine this time, inorder to reunite the committee. I hadinformally consulted with thosemembers who felt strongly about oneof the other three topics. To give them

ownership in environmental educationas the buiidinc :mai. I had also solicitedtheir input into the action plan.

We submitted the action plan to theadministration, and it was acceptedin May.

Environmental Education: First StepsSubsequently. I wrote to variousprograms recognized as exemplary in

.e field of environmental education.:ter we received an enthusiastic

response from Briar Bush Nature

-M Encc Nilo. A:. Lcip

Center in .Abinston. Pennsylvania. weengaged the center to train teachersand make grade-level presentations.We surveyed the professional develop-ment needs of the staff and scheduledworkshops for the summer and nextschool year. In the library, we set upshelves of resource materials forteachers.

Next. to eive the building nal aunifyine theme to drive the program.we held a schoolwide campaien tonominate slottans. Each homeroom ofstudents submitted a suertestion. andthe students voted from a slate of goodchoices. The winner was "We've gotthe whole world in our hands."

First-Year EvaluationSo what happened? Was it asuccessful program? After the firstyear of a two-year action plan. I mustrespond with an unequivocal "yes:"

Scores on a schoolwide pre- andpost-test survey indicate that thestudents tripled their knowledee aboutand their efforts to protect the environ-

ment. Forexample.studentsresponded thatthey talked to

people about pollution, conservedwater, turned off unnecessary lights.and picked up trash. On the testssfiven every month in each classroom.pre-test scores averaged 44 percent.whereas the monthly post-test scoresaveraged 89 percent. Activitiesincluded three-dimensional representa-tions/projects. performances/demon-strations. lansuase-related activities.related assemblies, and field trips.

Students have participated in envi-ronmental education activities in theirclassrooms, within their !rade levels.and as a student body. For example.students created a Wildlife naturecorner on school mends, constructedbirdhouses and feeders in industrialarts for the nature corner, and assem-bled orieinal research books aboutendangered species in conjunctionwith the readine specialist's program.Students also buried trash to predictand observe decomposition. and theyobserved habitats and adaptations atlocal parks and nature centers. As a

A community membernods off rerfclablesto Leary ElementaryScent student.

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culminatine activity for the year. theschool held an Environmental Parade.As parents observed alone the way.teachers and studentsdressed asbirds. trees, animals. the sun. air.water, and recycling symbolsmarched behind fins, banners, anddrummers on a half-mile parade routethroush the neiehborhood.

With the "whole world in ourhands." students, teachers, and patentsrose to the occasion and respondedenthusiastically to meet the goal.Apparently. the needs assessmentprocess had accurately identified anarea in need of the school's and thecommunity's attention. In fact. theRegion III office of the United StatesEnvironmental Protection Asencyeave the provam its 1991 Award forExcellence in Environmental Educa-tion for the category of academicinstitutions. In its letter of congratula-tions. the EPA commended theproeram's "action plan whichinvolved the cooperative efforts ofstudents. teachers, parents. andadministration.- This recognition ismore reinforcement that invoivineeveryone is the way to so.

A Shared EffortBy directing the change from an MBOsystem to a buildine-based eoalprogram. the superintendent of theCentennial School District enabledeach buildine's staff and communityto focus on an individual area of need.as determined by a grassroots effortthrough needs assessment. Students.parents. teachers. and administratorseathered and analyzed data. ultimatelyidentifyine a specific area for imple-mentation as a major eoal. The modelprompted the committee and staffmembers to think through the possibleprograms in order to select the onethat best met the needs of the students.In conclusion, this was a needs assess-ment model that worked!

Janice I. Solkov-Brecher. formerly Prin-cipal of Leary Elementary in Warmin-ster. Pennsylvania. is now Principal,School District of Upper MorelandTownship. Cold Spring ElementarySchool. Brooks and Reed Sts.. WillowGrove, PA 19090.

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2ssons for PrincipalsFrom Site-Based ManagementAbby Barry Bergman

An elementaryschool principalsays the advantagesof school-based:'management faroutweigh thedrawbacks,and he offerseight suggestionsto ease thetransition.

EDUCATIONAL LEADERSHIP

.1. he decision was made. Our staffhad voted to accept the superin-tendent's offer to try a newapproach to school decisionmaking: site-based management.

As with any innovation proposed in aschool community, I met the prospectwith both enthusiasm and concern.Our small elementary school wasworking well. The Ralph S. MaughamSchool's reputation for academicexcellence, creativity, and a spirited.involved, and dedicated staff waswidely acknowledged. Why should wetamper with something that wasworking well? How would my role asthe principal change?

Frankly. I was pleased with thedegee of sharing that was alreadyestablished in the school: I alsoenjoyed the prerogarive to makeimportant decisions on my own,knowing full well that the staffexpected everything would fall intoplace. Somehow, they didn't seem towant to be bothered with the innica-cies of the hundreds of decisions madeevery day. I was a bit worried. Isn'tsite-based management most oftenrecommended for noubled schools thatrequire major restructuring?

Learning to Let GoTenafly, New Jersey, is a well-to-dosuburban community of approximately13.500 residents located within a fewmiles of New York City. The commu-nity has consistently demonstrated anactive interest in. and willingness tosupport. quality educational programs.Our public school district consists offour elementary schools, one middleschool, and one high school.

My own leadership style can best becharacterized as organized and respon-sive. I had made countless arrange-

EST Copy AVAILAM61

mews to ensure that the school ransmoothly and stayed on an even keel.To the degree that I could provideassistance to teachers and take care oftheir concerns. I felt that I wasfulfilling the role of an involved,active principal. As my experiencewith site-based management unfolded.however. I found that I needed to learnto let go and provide the means forpeople to solve their own problems.

This process of "letting go" can belikened to a tightly wound watchspring. As we moved toward site-based management. I had to let itunwind incrementally; with eachrelease of the spring. new potentialand energy was realized. The rewardsfor all of us soon became apparent.

Charting New PathsIn the spring of 1990 at staff meetings.we designed the configuration for aschool leadership council. After exam-ining various models, we decided onthe following arrangement:

four teachers: one from a primarygrzde, one from an intermediate grade.one specialist, and one additional

teacher at large (if possible.a nontenured teacher):

s three parents: representing both

those who are actively involved inour parent organization andthose who are not:

the school principal:a noncertified staff member

(secretary, aide, or custodian);a member of the board of

education:a central office administrator.

Then, in a self-directed meeting,the school staff elected representativesco the council, the parent body followed

a similar procedure. the superintendentappointed a central office arlinioistrator,and the school board president selectedthe board member representative.

With a moveto site-basedmanagement,decisions maybe a little slowerin coming, butthey will bemore enduring.

Lesson 1: Learn to ListenIn the fall, we held our first meeting asa school leadership council. BenaKa Rick. our district's consultant forsite-based management, was the facili-tator. Through our involvement withher, we learned many of the skills andtechniques associated with site-based

management. More important. welearned them within the context of ourown deliberationsnot in isolationfrom real problems.

Our first step was to develop aschool philosophy. We worked incooperative groups. employing andpracticing the techniques many of ushad learned to use in classrooms. Inthe process. one of the most importantlessons we learned is that in order COreally listen, you must move beyondsimply hearing the content of what is

said. You must hear some of theemotion, concern, and passion withwhich points are made. I discoveredthat by paraphrasing what someone is

saying and checking whether myunderstanding matches the intention.communication is clarified for bothparties. As a result. I heard someteachers in a new way for the veryfirst time. What an insight!

Lesson 2: Establish Patternstor CommunicationDefining a school philosophy becamea sigtificant task for our fledglinggoup. After producing our fust draft,council members volunteered to meet.with 7 to 10 members of the commu-nity to share our efforts, checkwhether our beliefs were consistentwith their views, and then reportresults to the council. Some teachersmet with other teachers who were notmembers of the council: other teachersmet with parents; some parents metwith non-parent citizens; the secretarymet with our clerical staff; the boardmember interviewed other boardmembers: and I chose to work withour gowing Hispanic community(see fig. 1).

Through these interchanges. welistened to the ideas of others, refined

62

our perceptions. became attentive toour audience, and raised our collectiveconsciousness about what a schoolphilosophy means. In order to repre-sent the collective thinking, wesynthesized the various viewpointsinto smtements about our values as aschool community.

Lesson 3: UnderstandIndividual StylesThe format of the meetings to gathercommunity input took several forms.from informal conversations to morestructured discussions. Two teachersinvited small goups of parents toearly morning coffees. Another staffmembet interviviied all the schoolaides after lunch. One teacher laid out

a folder containing ourworking draftin the faculry room and asked forfeedback.

Initially. I wasn't comfortable withthis mix of approaches. It wasn't"neat"; there seemed to be Littleconsistency in how we were spreadin2our word. I learned, though. that onceothers are entrusted to fulfill suchfunctions, a variety of styles willemeree. reflecting the individualpersonalities within a group. While Icannot diaeram the pattern of commu-nication with clearly placed lines and

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-,rrows. I can say that what we didtrked! Information was shared liber-

aily and in an unfettered fashion. Aftermodifications resultine from the inputwe gained. a general consensus arosewithin the school and community, andour philosophy was published. Thethree basic precepts are:

1. We strive to provide a nurturingenvironment in which all children canflourish, enhancing their self-worth.

2. We strive for academic quality ina stimulating school environment

3. We value close ties among chil-dren. staff. parents. and the community.

Lesson 4: PromoteOpen CommunicationAs the council met throuehout theyear. we learned how to process infor-mation and feelings in m-oup work by"freezing" a statement to seek furtherclarification and more open communi-cation. By acimowledging the emotionbehind a member's remarks, we foundthat our discussions took on a new'reedom and honesty.

Previously, during such inter-..;tianges. I had attempted to protectgroup members by trying to keep feel-ings from surfacine that might behurtful or impede our progress. What Ilearned, though. is that such feelingsmust be aired. We found that byexpressine and dealing with divergentopinions, we made far more progessthan by trying to minimize them.Teachers began to face one anotherwithovt my intervention.

Lesson 5: Work to Build TrustA new level of trust began to developwithin the group. Before long, wewere taking turns leading the meet-ings. exercising our skills in settingagendas. assigning roles (facilitator.recorder, timer, and process observer),and evaluating our progress. Divergentideas resulted from brainstormingsessions in an atmosphereof mutual respect. Reachingconsensus, we discovered, does not-lean total agreement, but rather a

llingness among all members toaccept a decision.

As we refined our decision-making

sn EDIXATIONAL LEADERSHIP

F-irg-u.r--e- 1'

Patterns at Communication

processes. we began co see the connec-tions among the various tasks we weretackling: determining our schoolphilosophy, analyzing sources of frus-tration, defining priorities.'and gener-ating alternatives. We assumed owner-ship for our individual assignmentsand reported findings of our own"research" to the entire goup. One ofthe more important and broadly feltrealizations was that we lookedforward to our meetings and to thesense of accomplishment shared. Wetruly enjoyed our times together.-

Lesson 5: Think withNew PerspectivesOne of the important issues presentedto our cOuncil mid-year was the frus-tration staff members felt within abusy. stressful day. The parade ofclassroom interruptions, pull-outprograms, and short, unproductivespurts of planning timeallcontributed to a feeling that staffmembers longed for more "qualitytime.- In light of the daily demands onstudent and teacher time, I might havethrown up my hands, deemed theproblem impossible to solve, and thenfelt thwarted by not being able toprovide any relief. But, this time. Iheld back for a while,

in our council meetings, we focusedon the tempo of our teachers' day.

63

contrasting this with what we consid-ered to be quality time in our ownlives. Council members wrote aboutwhat the concept meant to them in'their personal lives, and studentsdescribed their notions of quality time.Before lorig, we began to see how wemight build more quality time into ourdays. For example. we knew that weenjoyed our times together as a staffsolving problems. sharine joys andsorrows, and providine professionaland personal support for one another.We then looked for time within ourday that could be used to foster whatwe valued.

One solution was to schedule ourmonthly faculty meetings early onMonday morning, instead of in theafternoon. In this way. we would beable to use the large chun.k of time. inthe afternoon, to address faculryconcerns: sharing new book titles forour literature-based reading progam.talking about individual youngsterswho might pose a particular challenge,or dealing with other matters broughtdirectly from the staff. Certainly, somecompromises needed to be made. Theearly morning meeting would allowless time than our traditional after-school faculty meetings. However, we.found that many teachers are moreattentive and forthcoming with freshideas at this time. While we may not

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have acrually gained more time foraff deliberations, we found newames of reference for faculty

meetine times. And we might neverhave arrived at this happy arangementhad we not learned co look beyond the

school walls to gain new perspectivesabout perceived problems.

Lesson 7: To PromoteAutonomy, "Let Go"It had been my usual practice to send

memos to remind staff about meetingsand commitments as a date or deadlineapproached. When it came time for usto experiment with having an earlymornine faculty meeting. I felt certainthat several people might be lace or

even forget about the new time. Since

this was a council decision, however. I

was advised to leave it to the members

to apprise their colleagues of our new

format.When individuals feel that they are

a part of a decision, they assume moreresponsibility for implementing it thanif the decision is made for them. Thismay sound like a simplistic observa-ion, but when you see it for yourself.there is an important lesson to be-learnecilf you want to promote anautonomous staff, then you must allow

things to happen without checkingevery step of the way. As the membersof our council sensed a growingcontrol, their cortunianent and enthu-siasm for their work together grew.

Lesson 8: Take Timefor Self-ReflectionSelf-analysis and reflection proved tobe an invaluable outcome of our one-year experience. Throueh our deliber-ations. I learned to examine my ownleadership style. For example. I real-ized that I had become quite comfort-able accomplishing many tasks inisolationfrom scheduling tobudeeting to planning for progamimplementation. Now there was a newmechanism available for gaining staffand community input into decisionsthat mieht have a significant impactupon the school.

Through our deliberations as acouncil. I developed a better apprecia-

don of the frustrations and perceptionsof our staff members. I became moreempathetic about the time pressuresthey felt. I also examined my relation-ships with staff and my own reluc-tance to delegate tasks. In the past. I

had always tried to jump in and solveproblems for teachers, rather thanempowering them to feel that theymight possess the solutions. My owndesire to be responsive may haveimpeded others at school fromassuming leadership functions.

The Added BenefitsWith a move to site-based manage-ment. decisions may be a little slowerin corning. but they will be moreenduring. Staff members who mayhave been reluctant to assume respon-sibilityfeeling "it's the principal'sproblem. nor mine"will feel a parof the process. With the realizationthat their input is valued comes a newsense of commitment. The process ofsite-based management also allows theprincipal to assume a new level ofinvolvement, seeing situations fromthe vantage point of others.

The process requires self-examina-tion, role analysis, and meaningfulreflection. Working with a schoolcouncil in a participatory fashionhelped to free me from the lonelinessthat often accompanies leadership.The experience also led to new under-standings about human and goupdynamics as well as a compellingletimacy for solving problems in acolle6al fashion.

As principals wend their waythroueh the many passages of site-based manaeement, there will bemoments of confusion and frustration.There will be times when you thinkyou're losing control over time-honored prerogatives. But take it fromone who has been there. Anysperceived drawbacks pale in compar-ison to the substantial benefits of theapproach.

Abby Barry Bergman is Principal, TheRalph S. Maugham School, Tenafly, istj07670. Bena Kallick assisted in thepreparation of this article.

Wire More, L,..arn More is apreschool-grade 12 writing cur-riculum for all teachers. It pre-sents comprehensive informationand a wide variety of derailed as-signments for integrating writinginto all content areas at all grade

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1992-93Training Schedule

Training will be held on8-9 October 1992 arid

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The registration fee for the work-shop is $275 per person. This fee

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To receive more information or co re-

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Suzanne BTOWR

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FAX 812/339-0018

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