CITIZEN OVERSIGHT OF LOCAL GOVERNMENT
IS THE CORNERSTONE OF OUR AMERICAN SYSTEM
The authors describe a project of the California School Boards Association to provide detailed descriptions of each board function and to use these descriptions as the basis of a comprehensive curriculum for training school boards. Republished by permission of PHI DELTA KAPPA. GJS. SOURCE: Phi Delta Kappan, Jan 1994 v 75 n 5 p 391 (5). Defining the leadership role of school boards in the 21st century.(includes related article on school board reform in West Virginia) ABSTRACT: A study conducted by the California School Boards Association concluded that school boards are both essential and powerful, and therefore school board members should be properly trained. Responsibilities of the school board are defined and analyzed. AUTHORS: Davis W. Campbell and Diane Greene KEY WORDS: School boards - Powers and duties Organizations: California School Boards Association - Research Full Text COPYRIGHT Phi Delta Kappa Inc. 1994 The authors describe a project of the California School Boards Association to provide detailed descriptions of each board function and to use these descriptions as the basis of a comprehensive curriculum for training school boards. Citizen oversight of local government is the cornerstone of our American democracy. It is the foundation that has lasted through the turbulent centuries since our nation came into being, despite increasing challenges to and demands on our local government systems. Henry Brickell and Regina Paul list instances of the ways we apply this particularly American idea of citizen control: [Americans] use it for villages, townships, cities, counties, states, regions, the nation. We use it for sewers, police, roads, firefighting, rivers, libraries, airlines, prisons, forests, the military every government function; all staffed by experts, without exception; and all governed by civilians.(1) School boards today govern a system that has higher and higher expectations for its students, that must address a tremendous diversity of student needs, and that by and large is inadequately funded. Furthermore, the full complement of the nation's social, economic, and environmental ills appears at our classroom doors in one form or another. Maureen DiMarco, secretary of child development and education for California and a former school board member, described the complexity of the school board member's job in her Southern California school district: Take another look at what a school district and school board are. My colleagues and I are the members of a five-member board of directors of a $190 million annual corporation.... We're responsible for 4,500 employees at 67 different plants. We negotiate annually with four - count them - four different unions. Our plant managers manage four to five times the number of employees that [private sector] managers manage. We're responsible for 38,000 units of production on an annual basis, but we have a 13-year production cycle, rarely with any of those products staying within our company for the entire length of time. We have no control over our raw materials. We have to take all of them in the numbers in which they arrive and in the condition in which they arrive, and all of our products go out to the marketplace because we have no backroom in which to discard our flawed and damaged merchandise. Incidentally, on the side, we operate the second largest transportation agency in [the] county. We serve 22,500 meals a day. We operate, if we're lucky, on a 2 to 3 percent fiscal margin. We have more regulation than the worst nightmare of a corporate attorney, and we're required to provide supervision in over 89 languages.... I dare you to try to operate California business in the manner in which we operate our public school system.(2) In order to perform the job described by DiMarco, the contemporary school board member must command a deep understanding of governance in all its complexities. However, even mastery of content is not enough. Board members must also carry out their responsibilities in an extremely difficult, politically charged environment. They are expected to confront the community's economic and social problems as they are reflected in the classroom, rise above political pressures, and govern in a highly ethical and professional manner. The responsible exercise of power within the authority granted by law is the ultimate challenge to any individual board member. One would think that, after more than 200 years, the specific elements of a local governing board's role would be clearly defined. With American democracy so dependent on citizen governance, a consensus should exist on the proper role for citizen boards. But, other than simplistic references to "policy" versus "administration," no such consensus exists. Quite the contrary. While everyone seems to be clear about what boards ought not to do, no agreement seems to exist about what they ought to do. DEFINING THE ROLE OF THE BOARD Because of the growing controversy and confusion surrounding the role of school boards, the National School Boards Association formed a task force, chaired by the executive director of the California School Boards Association (CSBA), to develop a concise definition of the governance responsibilities of school boards. This definition is based on the premise that there are certain core decision-making functions that are so fundamental to a school system's accountability to the public that, in our system of democracy, they can be performed only by an elected governing body. They are: * the establishment of a long-term vision for the school system; * the establishment and maintenance of a basic organizational structure for the school system, including employment of a superintendent, adoption of an annual budget, adoption of governance policies, and creation of a climate that promotes excellence; * the establishment of systems and processes to ensure accountability to the community, including fiscal accountability, accountability for programs and student outcomes, staff accountability, and collective bargaining; and * advocacy on behalf of children and public education at the community, state, and national levels. Although CSBA strongly supports this definition, it is clear that further development is needed to provide sufficient direction to individual school boards. Accordingly, CSBA has launched a two-year project to expand the definition of each board function and to use this more detailed description as the basis of a comprehensive curriculum for training school boards. It is intended that this curriculum will represent a consensus of school board members arid other educational leaders on the role of school boards in the education system and will also establish benchmarks or operating standards for the various functions of school governance. However, the project would be incomplete if it focused only on the content of school boards' various roles. After numerous interventions with boards and districts in crisis, we have found that how a board governs is every bit as important as the decisions a board makes. In fact, the way a board governs affects its ability to come to consensus about the direction for the district, its effectiveness in establishing a positive climate that achieves the best from its staff, and its credibility as an advocate for the district and for children. Equal emphasis on boardsmanship is essential in the training curriculum. The CSBA project is, therefore, divided into two phases. Phase 1 of the project focuses on defining the "what" of board governance, specifying the various jobs of the board. Phase 2 introduces the "how" aspects to the discussion of board roles. Although the two phases are linear in a developmental sense, they will be integrated in the final product. Chris Bertrand, CSBA's assistant executive director of board development and coordinator of the project, describes the importance of this approach: "What makes this project unique is the integration and tailoring of effective boardsmanship principles to each of the job content descriptions. Nowhere else has the way in which behavior influences a board's effectiveness been so fully and honestly discussed." The California School Boards Foundation has received grants from the Stuart Foundations and from the Pacific Telesis Foundation for the development of this curriculum. Clearly, the importance of lay boards is recognized and appreciated by those outside the education community. Ensuring that boards are effective in their roles benefits all of us. PHASE 1: THE CONTENT For the purposes of study, we subdivided the four basic board roles identified above into seven categories: 1) setting the vision for the district and creating a climate for excellence, 2) appointing and evaluating the superintendent, 3) adopting the budget and ensuring fiscal accountability, 4) developing curriculum standards and ensuring program accountability, 5) governing through policy, 6) collective bargaining, and 7) advocacy. Seven subcommittees of the CSBA board of directors were established to define the specific functions and responsibilities within each area. "The strength of this project is that our entire board of directors is dedicated to developing these role definitions, and it is their hard work and expertise that will allow us to successfully build a consensus about the board's role," said Charity Webb, CSBA president. In addition to the board members, each committee has a number of distinguished and highly respected educational leaders, including superintendents, business officials, and educational consultants. 1. Vision and climate for excellence. Of all the roles and responsibilities of school boards, none is more central to the purpose of local governance than ensuring that a long-term vision is established for the school system. The vision statement reflects the consensus of the governance team (the entire board and the superintendent) on what children need in order to achieve their highest potential and which educational programs will be offered to reach that ideal. The vision reflects the shared values of the community and the governance team and as such should drive virtually every aspect of the district's program. Providing direction for the district also includes a more subtle, but nonetheless real, board function - creating a climate that makes possible the achievement of excellence in the system. Much of what the board does to establish a climate for excellence emanates from the tone it sets individually and collectively. By setting fair but rigorous standards of performance, establishing well-considered policies, and treating its own members and others with dignity and respect, the board communicates a professionalism at the top that becomes a model for the entire school system. 2. Superintendent appointment and evaluation. As the chief administrative officer, the superintendent is a vital part of the governance team and the key link in the chain connecting the board to the programs and activities of the school system. If the board and superintendent do not share the same vision, it is difficult to imagine making any real progress toward achieving the goals and objectives of the district's instructional program. The board must understand how to select the right superintendent for the district. The board's accountability function also mandates that the board be able to hold the superintendent accountable for achieving the districts goals. The board must establish an evaluation system that fairly measures progress toward goals. 3. Budget adoption and fiscal accountability. Although strategic plans and mission statements are essential, the most important policy document in any organization is in truth the annual budget. How dollars are spent determines the real priorities in a district. Thus the board must adopt a budget that not only is fiscally responsible but also supports the vision of the district. The board also has ongoing responsibilities of fiscal monitoring and oversight. The board's part in holding the district staff accountable for achieving fiscal goals is an area that is currently ill-defined and one in which role confusion is likely to occur. The board must understand how to develop accountability systems that reflect its priorities and include agreed-upon, measurable benchmarks on which it can rely. 4. Curriculum development and program accountability. The instructional program is the heart of any school district. Though the board has a role in the direction and adoption of overall educational goals and standards, its primary responsibility in this area is to objectively monitor the outcomes of the instructional program and to take action if the outcomes do not meet the established needs. This accountability role for boards is often not clearly understood by either staff or board members in many districts. 5. Governance and policy. Much of the debate and controversy over "micro-management" by governing boards is centered on the board's week-to-week or month-to-month role in the operation of the school district. Boards are required by law to adopt policies for the school district on a wide array of issues. Boards must understand the power of the policymaking role - how it derives from the community and drives everything in the district. The implementation of those policies, then, is clearly more appropriately the role of the administrative team. 6. Collective bargaining. In California, collective bargaining agreements, along with board policies and the budget, are some of the most powerful governance documents in the district. School boards are the final decision makers on collective bargaining agreements. Thus it is essential that boards understand the short- and long-term effects of the specific provisions of these agreements. The board must understand its role in setting bargaining guidelines, selecting a negotiator, being familiar with different bargaining methods, deciding whether or not board members should sit at the bargaining table, and assessing the long-term financial implications of contract settlements. 7. Advocacy. One of the least understood roles for board members is that of advocate. As the only locally elected officials chosen solely to represent the interests of children, school board members have a profound responsibility to speak out on behalf of the children in their community. They must advocate for children and public education not only in the community but also at the state and national levels; they must make their views known to the media, civic groups, legislators, parents, and others. Board members must be advocates for improving the social, economic, and emotional conditions of children as well and must work cooperatively with other local entities to see that conditions are improved. Coordinating children's services is a major priority in California. CSBA has issued a comprehensive report on this issue,(3) and school board members locally are taking the lead to ensure that children are receiving required services. EFFECTIVE BOARDSMANSHIP The second phase of the project will focus on integrating tenets of effective boardsmanship into the various job descriptions for board members. Over the years and after numerous interventions in school districts, CSBA has identified a number of basic characteristics that effective board members have in common. * Effective board members have a clear understanding of their duties and of their central, powerful role of providing leadership to ensure the quality of education. They are also aware that power flows from the community, through them, to the school system and that they are accountable to the community and the society at large. * Effective board members understand the importance of teamwork. They realize that progress can be made only by the board as a whole and that no one individual board member has any authority outside of the governance team. * Effective board members adopt a positive attitude in the conduct of their business. They exhibit support for the district's programs and staff, particularly in public, and work through established channels to effect change. * Effective board members understand, appreciate, and respect the role of the superintendent, the district staff, and all other members of the community. They listen to their colleagues' and constituents' concerns. They realize that demonstrating a respectful attitude enhances the image of the board as a professional body and serves to build staff morale and a climate for excellence systemwide. * Effective board members establish an environment of trust within the board and the district. They are confident that they have a staff they can rely on to do the best job. They have established an accountability system that enables them to concentrate on outcomes, not on methods and procedures. * Effective board members understand the importance of open and honest communication with everyone.They recognize that clear communication about their expectations and desires is more likely to result in their goals' being met, while lack of communication can lead to mistrust, suspicion, and unmet goals. * Effective board members carry out their responsibilities with a high level of professionalism. They understand that their behavior sets a tone for the entire system. They recognize that professional behavior by the board communicates the importance and the seriousness of their role. * Effective board members operate with fairness, firmness, stability, and consistency. They establish policies, programs, and procedures that are fair and equitable to staff and students and operate in a stable and consistent manner. They understand that fairness promotes harmony and trust. THE IMPORTANCE OF BOARDS School boards are truly the leaders of local school systems. The four-part definition of their responsibilities - setting the vision, establishing a supportive structure, ensuring accountability, and engaging in advocacy on behalf of children - assigns them a powerful role. It is clear from this definition that boards are essential to the success of education reforms. They have a responsibility to be the "truth tellers," to consider the "big picture" in terms of meeting the needs of all students in the district, and to initiate and enact meaningful reforms that improve student outcomes. In these ways, school boards are leading our schools and our students into the 21st century. Because boards are so powerful, board members need clear role definitions and training to understand the complexities of their job and to keep up with critical education issues and new developments. If boards are to demand excellence of others, they must meet the highest standards themselves. Unfortunately, the political climate in many communities makes it difficult for boards to invest in their own professional development. However, it is unfair to expect a board member to step onto the board the day after the election and know everything there is to know about the board's role. Improving the effectiveness of boards, therefore, may need to begin with an acknowledgment that an effective board contributes to the quality of education in the community and that board members, like the staff, need and deserve to participate in continuing education. Increasing the level of awareness about the board's role is important for board members, reformers, and the public. School boards are an American institution and provide local representation in a system that is of great interest and importance to Americans - the one that educates our children and prepares them to be productive citizens. As an ABC News "American Agenda" segment concluded in April 1992: Most education reformers today say that good local school boards which get parents and community really involved are more important than ever, that they're the key to reform because the parents and community around each school have the greatest reason for seeing that the schools improve. School Board Reform in West Virginia The strategy for restructuring local school boards adopted by the West Virginia School Boards Association (WVSBA) departs from the path followed by other state associations in that it enlists state policy makers as partners in the effort to achieve the association's vision of reform. The WVSBA dates its adoption of an activist strategy with state officials to the mid to late 1980s, when increasing legislative activity had a direct impact on local boards, altering their roles in personnel decisions and reducing the length of their members' terms from six years to four. In 1990 the association's initiatives in school board self-assessment and training were strengthened with a $100,000 appropriation from the state that enabled all 55 boards in West Virginia to participate in the Institute for Educational Leadership's program for board self-assessment and development and to acquire additional raining. This phase of school board improvement efforts culminated in the governor's endorsement and the legislature's passage of a bill requiring school board training focused on "boardmanship and governing effectiveness." Training, which is monitored by the state board of education but delivered by WBSBA, emphasizes he development of boards as corporate governing bodies. Following hard on the heels of the legislation requiring school board training, House Concurrent Resolution 30 was unanimously adopted by the West Virginia House of Representatives. The resolution was designed to determined how school boards could be made more effective, and four studies were undertaken for that purpose. These studies used different methodologies to ascertain 1) how local boards spent time, 2) in which of their roles and responsibilities boards themselves identified strengths and weaknesses, 3) citizen and state policy maker's views on the roles and effectiveness of boards, and 4) what would have to change in order to restructure boards to overcome any deficiencies identified in the first three studies. This final study would have the effect of focusing West Virginia school boards on the process of policy making - turning them into policy boards. The most recent legislation, H.B. 2160, was passed in 1993 and is scheduled to be implemented by August 1994. It has the avowed purpose of restructuring boards so that they become well-informed, responsive, policy-making bodies. The success of the legislation will depend to a great degree on the commitment of school board members to apply what they learn during the mandatory training. However, the legislation also requires certain changes in the responsibilities of boards that are intended to help alter their governing behaviors. The legislation requires local boards to develop connections with external and internal constituencies (i.e., school system staff members) and to establish policies that are based on data that these sources supply about district needs. The strategy employed by the WVSBA reflects its commitment to take the lead in restructuring local boards and to join with the critics of school boards in developing solutions to the problems of local school governance. The WVSBA played a major role in defining and making public the problems of its member boards. Admittedly, this is very risky business for membership organizations. However, WVSBA leaders and a majority of the membership decided that doing nothing not only posed greater risks, but also diminished the possibilities for gaining support to strengthen the board's governing capabilities. (1) Henry M. Brickell and Regina H. Paul, Time for Curriculum (Alexandria, Va.: National School Boards Association, and Chicago: Teach'em, Inc., 1988), p. 9. (2) Maureen DiMarco, speech delivered at CSBA New Board Member Institute, Sacramento, 1990. (3) Cutting Through the Red Tape: Meeting the Needs of California's Children (West Sacramento: California School Boards Association, 1992). DAVIS W CAMPBELL is the executive director of the California School Boards Association, West Sacramento, where DIANE GREEN is the assistant executive director, policy services. -- End --