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From the Statehouse to the Classroom: Governing America'sSchools. Viewpoints. A Print and Audio Resource for EducationLeaders. [Booklet with Audio Compact Discs].North Central Regional Educational Lab., Naperville, IL.Office of Educational Research and Improvement (ED),Washington, DC.

2001-00-0057p.; Audio compact discs are not available from ERIC.

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North Central Regional Educational Laboratory, 1120 EastDiehl Road, Suite 200, Naperville, IL 60563. Tel: 630 -649-6500; Tel: 800-356-2735 (Toll Free); Fax: 630-649-6700; e-mail: info@ncrel.org; Web site: http://www.ncrel.org/index.html.

Non-Print Media (100) Opinion Papers (120)

EDRS Price MF01/PC03 Plus Postage.*Educational Administration; Elementary Secondary Education;*Governance; Government School Relationship; Optical Disks;*Politics of Education; *School District Autonomy

The role of politics in education is undeniable. It appearsas though the influence of governing agents, from the White House to thelocal school board, is growing. During this time of increased calls foraccountability and reform, a growing list of educational mandates is beinghanded to local education entities--increased use of testing, teacher-proofcurricula, and legislation regarding who can and will teach children. Formany education leaders at the local district level, the increased demands andprescriptive measures are perceived as hindrances to their work of educatingchildren. Historically, a high value has been placed on localism. Involvementfrom various political levels is often met with resistance, as was evidencedduring the early 20th century when leaders tried to remove schools frompolitics. If politics is a necessary aspect of education, local educationleaders need to understand and embrace the system in a manner that supportstheir work of educating children. This booklet, with the essay "Is Politicsin Education Here To Stay?" (Rhetta L. Detrich with Paul Kimmelman), andaccompanying compact discs examine the history, structure, and presence ofgovernance and the politics that arise from governing a system for the commongood, plus thoughts on how local leaders can work within a political system.(Contains 20 references and 2 compact discs.) (RT)

Reproductions supplied by EDRS are the best that can be madefrom the original document.

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From the Statehouse to the Classroom:

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Office of Educational Researcn and ImprovementEDUCATiONAL RESOURCES INFORMATION

CENTER (ERIC)El This document has been reproduced as

received from the person or organizationoriginating it

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11 Points of view or ootnions stated in this!document do not necessarily representofficial OER! :-.:Jsitior or policy.

wand Audio Resource for Educiiioiy,todei$

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The role of politics in education is undeniable. Itappears as though the influence of governing agentsfrom the White House to the local school boardis growing. For many local leaders, the demands ofpolitics make the work of educating children challenging.What role do politics and governance play in-theworkings of education and how can local educationleaders understand and work within such a system?

Track

1. David Tyack, Stanford University, CA

2. Thomas Timar, University ofCalifornia at Riverside

3. Donald McAdams, HoustonIndependent School District, TX

4. Fred Hess, NorthwesternUniversity, IL

5. Dan Weissman, Chicago Catalyst, IL

6. Martha Wise, Ohio State Board ofEducation

7. Leah Vulcmir, Parents RaisingEducational Standards in Schools, WI

CD 1

A transcript of the are ggesit eat

CD 2

Track1. Susan Tave Zelman, Ohio State

Superintendent of Education

2. Bill Marx, Minnesota House ofRepresentatives

3. Luther Olson, Wisconsin Assembly,Chair of Education Committee

4. Art Rainwater, Superintendent,Madison Public Schools, WI

5. Todd Ziebarth, EducationCommission of the States, CO

6. Gene Neely, Kansas EducationAssociation

7. Donald McAdams (cont'd from CD 1)

io portion of this product is available upon6-2735, ext. 6543. L. 3

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Acknowidymentr

Gina Burkhardt, Executive Director

Sabrina Laine, Associate Director

Stephanie Blaser, Coordinator of Communications

Lenaya Raack, Senior Editor

Melissa Chapko, Graphic Designer

NCREL*cc Onfl Ilowarefr pig lidinolbay &weft'

1120 East Diehl Road, Suite 200Naperville, Illinois 60563-1486(800) 356-2735 (630) 649-6500www.ncrel.org

Copyright 0 2001 by the North Central Regional Educational Laboratory.All rights reserved.

This work was produced in whole or in part with funds from the Officeof Educational Research and Improvement (OERI), U.S. Department ofEducation, under contract number ED-0 I-00-00I I. The content does notnecessarily reflect the policy or position of OERI or the Department ofEducation, nor does,mention of trade names, commercial products, ororganizations imply endorsement by the federal government.

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From the Statehouse to the Classroom:

Governing America's Schools

Viewpoints (formerly the School DevelopmentOutreach Project) is a multimedia package on educa-

tion governance designed to provide you with variousperspectives, or viewpoints, from national, state, andlocal voices in education. In this package, you will

notice two other changes. In the past, we have focused

on emerging hot topics in education policy. In thisedition of Viewpoints, we are examining a broaderissuethe role of governance in education. Also, for

the first time we are making Viewpoints available inCD format. This new feature allows you to easilyrevisit interview segments of interest. The accompany-ing booklet provides a general overview of this com-plex issue. We believe this multimedia package will

serve as a valuable resource for you and your work.

?tie 9ssue

The role of politics in education is undeniable. In fact,it appears as though the influence of governing agents,from the White House to the local school board, isgrowing. During this time of increased calls for

6

accountability and reform, we see a growing list ofeducational mandates being handed to local educationentitiesincreased use of testing, teacher-proof curricula,legislation regarding who can and will teach our chil-dren. For many education leaders at the local districtlevel, the increased demands and prescriptive meas-ures are perceived as hindrances to their work of edu-cating children. Historically, we have placed a highvalue on localism. Involvement from various politicallevels is often met with resistance, as was evidencedduring the early 20th century when leaders tried toremove schools from politics. Education historianDavid Tyack (1990) calls these efforts "a foolishimpossibility." Therefore, if politics is a necessaryaspect of educationand the role of politics is cer-tainly not diminishinghow can local educationleaders better understand and embrace the system ina manner that supports their work of educatingchildren? This booklet and accompanying CDs exam-ine the history, structure, and presence of governanceand the politics that arise from governing a system forthe common good, as well as thoughts on how localleaders can work within a political system.

7

Vieloints

?tie Booklet: quip to Contents

The essay "Is Politics in Education Here to Stay?"

will provide you with an overview of the issue, a bitof history, and a look at governance structures. You

will also find recommended strategies for superintend-

entsfrom superintendentsin dealing successfully

with the politics of education. You may find it helpful

to read the booklet as an introduction to the topicbefore listening to interviews presented on the CDs.

1. Introduction fIntroduces the challenges of politics ineducation felt by local education leaders

2. Defining "Politics" 5Outlines the definitions of "politics" asused in this document

3. The History of Education Governanceand Politics 6

Provides a brief overview of education historyover the past 200 years

4. The Structure of Education PoliticsOffers an overview of powers that influenceeducation at local, state, and federal levels

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5. What Effect Does Politics Really Have onEducation? 14

Examines the effects ofpolitics on schooling

6. Politics as a Lever 17

Provides examples of how politics directlyinfluences student learning

7. Politics: Impediment to Education? (9Discusses whether politics can influenceeducation

8. Strategic Thinking for Local Leadership 23Suggests strategies forlocal superintendents

9. Conclusion 29

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Audio CVs: A quitte to Contents

The CDs provide you with various perspectives on the

history, governance, and politics that influence educa-tion. Education historians, people active in local and

state politics, and long-time observers of educationgovernance share their experiences and insights.

CD 1 Interviews (in order of appearance)

1. David Tyack is a historian of education atStanford University and author of The One BestSystem and coauthor of The Invisible Hand ofIdeology: Perspectives from the History ofSchool Governance, written for the NationalCommission on School Governance.

2. Thomas Timar teaches education policy andpolitics at the University of California atRiverside and is the author of the article"Do State Education Agencies Matter?" andthe coauthor of the article "The Invisible Handof Ideology."

3. Donald McAdams is a long-time member andtwo-time president of the Houston IndependentSchool District and executive vice-president ofthe American Productivity & Quality Center. Heteaches at the University of Houston and was a

Vi "olds 10

member of the National Commission onGoverning America's Schools.

4. Fred Hess is the director of Urban School Policyat Northwestern University and a long-timeobserver of and participant in Chicago schoolreform.

5. Dan Weissman writes for Catalyst, a journal ofChicago school reform.

6. Martha Wise is a long-time member of the OhioState Board of Education and its past president.She was the cochair of the Governor'sCommission for Student Success.

7. Leah Vukmir is the president of PRESS (ParentsRaising Educational Standards in Schools), aWisconsin parent advocacy group.

CD 2 Interviews (in order of appearance)

1. Susan Tave Zelman is the state superintendentof education in Ohio.

2. Bill Marx is the chief fiscal analyst for theMinnesota House of Representatives.

3. Luther Olson is a member of the WisconsinAssembly and chair of the education committee.He is a former school board member.

1 1 Melboints

4. Art Rainwater is the superintendent of theMadison, Wisconsin, school district.

5. Todd Ziebarth is a policy analyst at theEducation Commission of the States and hasworked with the National Commission onSchool Governance.

6. Gene Neely is the president of the Kansas

Education Association.

7. Donald McAdams (continued from CD 1)

Vieftwth

fo

1 2

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Is Politics in Education Here to Stay?

by Rhetta L. Detrich with Paul Kimmelman

9nirduction

Anthony Alvarado, urban superintendent and long-

time education leader, was quoted during his 12-year

tenure as superintendent of New York's District 2 assaying the educational enterprise should have a solefocusstudent learning. It is hard to argue with theconcept. And yet for many in the educational enter-prise, that sole focus is muddied. Alvarado states, "Atypical educational system is so top-heavy with detailsthat learning can suffocate under the tonnage" (Price,

1999). From Alvarado's perspective, those systemicdetails are very real obstacles to his work of educatingchildren. What are these "details"? In large part, they

are the stuff of governance and bureaucracyman-dates, power struggles, the positioning of interests andagendas. In short, politics.

Education is no more devoid of politics or its implica-tions than any other institution. The "details" thatAlvarado sees as suffocating the work of schooling arenot unique to local superintendents or education.

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They are the necessary by-products of organizationalgovernance. As with all governance structures, there isgeneral agreement that a system be created to bestserve the constituents. Education has a very broad,but commonly agreed upon objectiveto providechildren with a good education. What is not agreedupon, however, is how to go about such a task.Within education governance, conflicts emerge overhow to structure systems that best educate youngminds and who will be responsible for making thosedecisions. The range of possibilities for how politicaladvocacy might translate into actual policies is infi-nitely varied (Price, 1999). As conflicts arise over howand who, the positioning for power and voice emergesdespite the common altruistic goal of serving students.Resolving these conflicts, as well as "deciding whowill decide," is the function of politics that arisesfrom a system of democratic governance (Plank &Boyd, 1994). Even within education, these same con-flicts and decisions will emerge.

Superintendents often engage in a dance of tending

to the 'details" perceived as extraneous and superfluousbefore they are able to move on to the heart of their work aseducation leaders: supporting student learning.

15Vie

Mr. Alvarado is certainly not alone in his frustration

over the suffocating details. A quick scan of recent edu-

cation administrator publications reveals that Alvarado,

along with countless other superintendents, sees the

outputs of political wranglings as hurdles to be jumpedbefore student learning can be placed at the heart of theeducational enterprise. Recent topics read more like the

chapters from a self-help book: fights for fair funding,struggles with boards of education, conflicts with teach-

ers unions, the apathy of state policymakers, politicsthat invade and cripple. Superintendents often engage

in a dance of tending to the "details" perceived as

extraneous and superfluous before they are able to

move on to the heart of their work as education leaders:supporting student learning.

Recent political trends indicate that dodging such"details" is becoming more difficult than ever andmay prove to be a faulty strategy for local educationleaders in the real work of educating students. Thedistance between Capitol Hill, the Statehouse, and thelocal district is closing rapidly. The tone and pace foreducation reform more than ever is being influenced

by a wide array and large number of political players

at the federal and state levels, most recently manifest-ing itself in high accountability measures with poten-tially stiff consequences for districts. Secretary of

Vieipoints

i 6

Education Roderick Paige outlined the Bush planbefore the U.S. House Committee on Education andthe Workforce by calling for a dramatic shift in cul-ture from one of "compliance with rules and regula-tions" to one of direct "accountability for results" inthe shape of annual testing and funding measures. Themessage is clear: Superintendents can no longer avoidaddressing the politics of education head-on or con-tinue to perceive the impact of politics as minimal.Placing student learning at the heart of the enterpriseis something that must be done within the arena ofpolitics, not despite it.

Superintendents can no longer avoid addressing thepolitics of education head-on or continue to perceive theimpact of politics as minimal.

The question we will examine is not whether politicsexists within education but what form does politicstake as it pertains to education; what effect, if any,does it have on the actual work of student learning;and how can education leaders negotiate the growingpresence of politics within local education systems.

Defininy Vonfics"

David Tyack states that poli-tics and public education areinseparable (interview withEd Janus for Viewpoints,2001). But what do we meanby "politics"? It conjures up an array of images and

ideas, some more appealing than others. Webster's

Dictionary outlines definitions ranging from "the artand science of government" to "factional scheming

for power." The definitions are highly varied. What is

consistent in most definitions is the notion of politics

as something that necessarily arises from the system of

governance. If governance is the system of directing

affairs or political administration, politics is a by-

product of that system. Our government is the struc-

ture, or machine, we construct. The operation of themachine, the attempts to control the direction, speed,

and function of the machine is politics. The not-so-favorable interpretations of politics arise from the fact

that many differing factions would like to control themachine of governance, and there are an infinite num-ber of interpretations of how it can and should bedriven. Add to this, that societal conditions anddemands are always changing. What does or does notwork today may not have the same effect tomorrow.

Vie Twin&18

The not-so-favorable interpretations of politics arise

from the fact that many differing factions would like to con-

trol the machine of governance, and there are an infinitenumber of interpretations of how it can and should be driven.

In the most general of interpretations, politics signifiesmany things"the art of governance," "the guidanceof policy," and "the winning and holding of controlover government" (Webster's Dictionary). Each aspectof politics is imperative as it pertains to U.S. educa-tion. Elmore (1997) describes politics as occurring inan arena of conflict, where competing interest groupswith different resources and capacities vie- for influ-ence to shape policy in their own image. Education isyet another arena of conflicting priorities and interestswhere politics manifests itself.

74e 7-stog of Education Governance ad Politics

With all of the effort and attention directed towardseducation from every level of government, it is diffi-cult to believe there is no mention of education or itsgovernance within the federal constitution. For mostof the 19th century, education lacked a pervasive gov-erning structure at either the national or local levels.It would be inaccurate to describe the U.S. as having

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an actual public education "system." Rather, "school-

ing was a local affair" (Chubb, 1990). Authority washighly decentralized and schooling was overseen by

those who knew the local schools best. The IndustrialRevolution of the late 1800s marked a shift within the

private sector toward corporate operational modelsand a reliance on "experts" to increase organizationalefficiency. The role of expertise permeated not justlarge-scale industry but found its way into education

governance as well (Timar Sc Tyack, 1999). The local

superintendent filled the role of education expert, afigure intended to lend professionalism and neutrality

to large, often unwieldy school boards. The watch-words of reform during the first half of the 20th cen-

tury became centralization, expertise, professionalism,and efficiency (Kirst, 2000).

From the late 1950s through the early 1970s, the edu-

cation system faced new challenges from people who

had been systematically disenfranchised based on race,class, gender, and ability. The system of expertise andprofessionalism was inflexible in design and thusunable to meet the needs of certain segments of thepopulation. As state legislatures and the courts exerted

pressure on behalf of new grass-roots political actors,the system became fragmented and thus more respon-sive to these unique needs (Tyack, 1990).

Vie aints 0

With the release of ANation at Risk in 1983,the National Commissionon Excellence in Educationwarned of an educationcrisis tantamount to a

national defense crisis. The images of a rising tide ofeducational mediocrity are debatable. What is clear,however, is the power and the impact educationwould have on politics throughout the rest of thecentury. Education became the hottest and most hotlycontested political football in the political arena. Thebenefits of riding the education reform wave as apolitician could not be overlooked. Unlike manyfederally issued reports, A Nation At Risk receivedwidespread public attention. The public madedemands on politicians to "Do something."

They asked questions: "How bad is it?" "How did itget this bad?" "Who let this happen?" "Who is goingto be responsible for it?" These questions quicklyfound their way into state-level politics. Educationbecame a central focus for the National GovernorsAssociation during the 1980s and '90s. States exertedgreater pressure upon and created systems of account-ability for local districts. Business leaders, parents,and educational experts became key voices in the dia-logue of reform. The solutions proposed at all levels

42 1

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were highly outcomes based: demand more by settinga new standard for schools, teachers, and students.After all, failure to expect enough in terms of testscores, passing rates, and graduation rates resulted ina national crisis.

A Nation at Risk legitimized the beginnings of educa-tion reform and set the stage for the educationreformer bandwagon (Elmore, 1997). Political cam-paigns were won and lost, in part, on the public'sfaith in political candidates to become our educationsaviors. The 1980s witnessed the powerful emergenceof education politicians. Mayors and governors cam-paigned on their abilities to turn education around,while a dramatic increase in state legislation intro-duced high standards for teachers and students(Tyack, 1990). The 1990s incorporated the notion ofautonomy and accountability further, with growingsupport for a free-market system of governance in theshape of charters, vouchers, and school choice with agrowing emphasis on standardized testing.

Tke Structure of Education Sillies

As with most issues of governance in the UnitedStates, a high value traditionally has been placed onlocalism with regard to the governance of education.

Vielpointr22

For much of the past 200 years, the political fluctua-tions and shifts in power and ideology were centeredaway from the federal level. The U.S. Department ofEducation and federal legislation established only thebroadest of mandates for the provision of education.There has long been a reluctance to develop strictnational curriculum standards or a national assess-ment. The result has been that the amount of directimpact the federal level could have on the day-to-dayeducating of students was limited. During the last cen-tury, court decisions and legislative mandates madespecific provisions for certain segments of the popula-tion who were generally underserved (e.g., disabledchildren, English-language learners). Increased federaldollars followed to supplement the additional costsassociated with meeting the needs of these segments ofthe population.

Without a federal education mandate, state agenciesestablished the bulk of the standards and practices fortheir schools. Most state constitutions included lan-guage providing for free public education for students.In addition, states legislated broad curriculum stan-dards and developed their own testing practices. Localdistricts generally complied with the educational man-dates established at the federal and local levels. Thedaily lives of districts were most affected, not by these

23Vie

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mandates, but by the interaction between the district

office, the local superintendent, and the school board.Here is where most of the governance, policy shaping,

and controlling of the local system occurred.

The continued growth of the education reform move-

ment has reshaped the political structure of education.More interests and activists are at the political tablefrom every level of governance: from the White House

to the local parent organization. And each one isdemanding more of education with louder voices and

a stronger interest than ever before. More bodies areleveraging their political skill and power to exert pres-sure on the education system in the name of reform.For the local district, the increasing political pressurefrom a widening arena has meant a large shift for therole of local education leaders. Accountability forreforming education falls squarely on the district. Paul

Houston, long-time superintendent and executivedirector of the American Association of SchoolAdministrators, believes the shifting of responsibilityin conjunction with heightened accountability pres-sures creates an unrealistic challenge for today's super-intendents (Houston, 2001). "While we tend to cen-tralize responsibility in education reform, authority is

widely dispersed," says Houston. He believes thatsuperintendents are asked what they are going to do

4

to reform education, yet the real authority and powerare dispersed throughout an education system thatincludes boards, unions, governors, mayors, legisla-tors, and judges. The solution, according to Houston,is either to recentralize the authority and capacity toengage in the work of reform that is being mandatedor to redistribute the responsibility beyond the super-intendent.

The politics of education is the result of the uniqueand complex interrelationship of political actors, alladvocating their own visions of education. The publiceducation system is in constant flux, due in part to theconstant struggles for and resulting shifts in power.But a system that is in constant flux is really thenature of the political beast. There are constant subtleand not-so-subtle shifts in the political environmentthat throw today's political causes aside in search ofnew and better answers as our appetites, interests, andintellects change over time.

Joel Spring (1988) divides key political actors intothree categoriesmajor government actors (politi-cians, school boards, and the courts), special interestgroups (unions, foundations, parents, and business),and the knowledge industry (funding agencies,researchers, knowledge brokers, and testing and pub-lishing industries), each with its own set of interests.

Vie,apits25

While this list is not compre-hensive, it does provide aframework for understandingthese actors as well as theconflicting relationship ofdependency and competitionthat emerge.

This relationship is frequently criticized as a barrier tocreating real change within the system. However, sev-eral key reforms within education, particularly at thefederal level, have been the result of interest groupsapplying pressure and forming political alliances tocreate changes in areas such as special education,school integration, and social services for children.

The knowledge industry, in addition to developingwhat will be taught and how it will be taught inschools, provides government actors and interestgroups with heightened legitimacy for their platformsthrough research and expertise. The results of solidresearch and development serve as valuable tools inshaping sound policy. Therefore, continued researchand development in education directly affect themomentum of the other political arenas.

The importance of being in tune to the wants andagenda items of interest groups involved in education,as well as a basic familiarity with the research base

26

around critical and emerging education issues, is moreimportant now than ever for those seeking politicalpositions. As part of a Campaign 2000 series,Education Week (Keller, 2000) pointed out the grow-ing number of political candidates with education atthe top of their priority lists. Michael Griffith of theEducation Commission of the States speculates that asound economy, reduced crime, and no major over-seas conflicts allow the voters to focus on educationmore than ever (Keller, 2000). Those seeking to gainand hold onto political office are clearly in tune withthat. "All of the polls say you have to say education isimportant," observed Todd Donovan, a professor ofpolitical science at Western Washington University inBellingham (Keller, 2000).

'at Zffect goes Poker 90eifi:y7iave on Titication?

The underlying assumption behind the political struc-ture of education is that there is a direct link to theeducation of students. In theory, the established sys-tem of educational governance elicits or supportspolitical action that can improve educational qualityand accessibility for students. Politics moves levers onthe machine to produce the best results. Of course,theory does not always translate clearly into practice.

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Determining how the politics of education actuallytranslates into learning is a difficult task. The connec-tion between politics and educational outcomes is ten-

uous at best (Ziebarth, 1999). Governance is an art asopposed to a science in large part because its directeffects, positive or negative, are difficult to quantify.Were politics a science, it would be possible to trace acausal relationship between political action and socie-

tal gain (or loss). However we are never certain if the

political inputs of any given action result in a child

learning to read. The task of determining what politi-cal inputs, if any, have an effect is highly complicatedby the fact that no action occurs in isolation. Rather,

there are many mandates, policies, and exertions ofpolitical will enacted simultaneously in constantlychanging environments. This constant uncertaintymay be the fuel of politics: Not knowing whichactions produce results makes the idea of new andpossibly more effective options attractive.

Determining how the politics of education actually

translates into learning is a difficult task. The connectionbetween politics and educational outcomes is tenuous at best.

28

Some would argue thatpolitics has created neces-sary structures for gover-nance and a system withinwhich advocates, champi-ons, and experts continue

to "tinker" toward that one best system to meet theneeds of students (Tyack, 1990). Others say thatmaybe the politics of education has become so largeand unruly that we are left with a bureaucratic beast,far removed from the actual work of educating chil-dren: a system concerned with its own survival ratherthan influencing student learning.

What is certain is that the influence of politics on thedelivery of education is greater than ever. The far-reaching arms of federal and state policy mandates arechanging the way districts respond. The delivery oflocal services is shaped by the threat of federal andstate accountability measures. The challenge at thelocal level is to be responsive to the increasing politi-cal inputs for which superintendents will be heldaccountable. What effect those decisions will have onthe quality of teaching and learning remains to beseen. What is evident is that states and districts will beasked to respond soon, as conversations of increasedaccountability are currently occurring at the federaland state levels.

29Vleospits

Politics as a lever

Proving a direct causal relationship between politicsand student outcomes is nearly impossible. However,recent investigation has revealed a distinct correlationbetween political inputs and educational gains. DavidGrissmer of Rand investigated the possible factorscontributing to significant gains on the 1996 NationalAssessment of Educational Progress (NAEP) made inTexas and North Carolina (Grissmer, 2000). Bothstates shared similar educational policies thoughtto be linked to the gains; however, similar policiesexisted in other states that did not exhibit these samesignificant gains. Grissmer contends the successesenjoyed in Texas and North Carolina are as closelylinked to how policies were implemented as to thecontent of the policies themselves. One of the primaryinfluencing factors in each state was strong politicalleadership. Grissmer indicates that without the politicalleadership present in each state, it would be "difficultif not impossible to create the continuity in the reformagenda that is critical to long-term success." In thecases of Texas and North Carolina, the guidance ofpolicy and governance of education, as well as theconsistency of political control, were all found tocontribute to measurable indicators of student success.

30

This same level of political continuity and governancediscussed by Grissmer at the state level could be cen-tral to the success of former Houston superintendentand current U.S. Secretary of Education RoderickPaige. While Washington, D.C., Denver, New YorkCity, and Los Angeles all grappled with the challengesof turnover, Paige was entering his sixth year as (andbecoming the country's highest paid) superintendent.He was being heralded as a leader responsible forachieving results. According to Palmaffy (2000),"Paige's longevity has given Houston schools some-thing other urban districts crave: continuity."Superintendent Paige's ability to govern, ability tomaintain political control, and capacity to shape policyare pointed out as being critical aspects of his successin raising scores, slowing attrition, and increasinggraduation rates in Houston. Paige also echoed thenational and state policy calls for education improve-ment: test scores, standards, and accountability.

Despite examples of political action coinciding witheducation success, making the case for politics as apowerful lever for affecting the quality and delivery ofeducation to students is becoming more challenging.During the past two decades, communities across theUnited States have felt a growing frustration over thestate of education and its governance. There is a grow-

31

ing contention that the rhetoric around educationreform is just that. Richard Elmore (1997) states thatthere is a significant gap between "policy talk" andactions that result in the actual schooling of students.

Proposals to build stronger connections between politics

and schooling appear to be gaining less momentumwith the public and political supporters than thoseproposals that advocate a full departure fromtraditional democratic politics into "anti-politics."

A perceived inability to generate coherent approaches

and sustained direction in education governance lead some to

believe that the traditional governing structure of education,

and thus the politics arising from the system. should be aban-

doned altogether.

Po 9mee4ment to Biucafton?

For some, the failure of educational governance is agiven. The question at hand is one of what can andshould be done to rebuild and thereby rectify the stateof traditional education politics. Plank and Boyd(1994) describe a shift during the 1990s towards"anti-politics" by which discussions of educationalreform centered on the institutions of governancerather than specific reform strategies. A perceived

2Vie,anfr

inability to generate coherent approaches and sus-tained direction in education governance lead some tobelieve that the traditional governing structure of edu-cation, and thus the politics arising from the system,should be abandoned altogether.

There is a growing interest in the role of markets andthe courts over the traditional institutional powers oflegislatures and school boards as a means of genuinelyaffecting the work of schools (Fuhrman, 1994). One ofthe most influential education critiques of the 1990s,Politics, Markets and America's Schools by JohnChubb and Terry Moe (1990), contends that despite awave of reform efforts at the state and local levels, atthe root of the problem are the "institutions of directdemocratic control" that are incompatible with effec-tive schooling. The predominant political institutionsof education governance promote and protect a heavilybureaucratic system. Bureaucratic systems, by design,are able to maintain a status quo even during times ofchaos that demand response and change.

According to Ziebarth (1999), "The stability of thetraditional bureaucratic system is viewed as a liabilityby those who support the notion that organizationalflexibility, adaptability and creativity are necessary ifeducation is going to properly prepare the next genera-tion for the fast-paced, ever-changing and technologi-

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cally oriented world thatawaits them." The notion ofeducation systems that areflexible and creative to meetthe demands of more studentsseems innocuous enough.How these same ideals manifest themselves into neworganizational policies and structures has caused alarmfor some and drives a wedge into the center of theeducation reform community. Some of these approachesoperating outside traditional bureaucratic politicsinclude regulatory flexibility and autonomy, school-based management, open-enrollment policies, charterschools, tax credits, and vouchers.

The potential of these options for affecting schoolingwas recently considered by the National Commissionon Governing America's Schools (convened in 1999 bythe Education Commission of the States). This groupof educators, academics, politicians, and policymakersset out to investigate effective and responsive gover-nance structures and policies. In their report,Governing America's Schools: Changing the Rules(2000), the Commission advocated for two approachesto improving governance for consideration by states.

One approach would create a system of publiclyauthorized and operated schools based on promising

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Vievfroinfr34

practices of the prevailing system, and the secondwould create publicly authorized but independentlyoperated schools, limited only by state and federallaws, much like the charter school system (EducationCommission of the States, 1999). Each approach wasintended to create greater capacity for autonomy,adaptability, flexibility, creativity, and accountabilityby shifting the center of control away from traditionalsystems of governance and bureaucratic decision mak-ing and toward school-level management.

The current trend does seem to be the devolution of

authority to those closer to the students.

The current trend does seem to be the devolution ofauthority to those closer to the students. In response,many states have allowed and even encouraged the"anti-politics" described by Plank and Boyd inexchange for mayors, states, and the federal govern-ment wielding bigger accountability arsenals in theshape of reconstitution, takeovers, licensure/accredita-tion, and funding. Whether this approach to manag-ing education through high-stakes accountability willyield student results is unclear.

35Vie

According to some, these "tough-love" governancetactics are not the answer for a variety of reasons.These measures lack meaningful structure and arepedagogically off target. Low-income urban and ruralstudents are the ones who will suffer at the hands ofpunitive measures (Price, 1999). For them, the prob-lem is twofold: First, the politics of education isremoved from the real work of schooling and con-tributes little to actual learning. Second, this optionexacerbates the less-than-perfect conditions underwhich they are already educated.

Strateyic rrkinkity for Zocaleeders6ip

The call to save education has been made. It is unclearexactly what we bargained for when we made thecall. From A Nation at Risk to the advent of stan-dards-based reform to a growing focus on accounta-bility, it seems as though more people answered thecall than was expected: the President, Congress, thestatehouse, mayors, school boards, teachers' unions,parent groups. It is natural that districts may feeloverwhelmed or intruded upon in their work. Formany local leaders, the influence of politics has beenperceived as separate from the work of educatingchildren at the schoolhouse or even district levels.

38

Judith Ferguson, a formersuperintendent in NewJersey, painted a telling pic-ture of a ringmaster at thecircus as a metaphor for

the job (Ferguson, 2001). One ring in particularrequires the constant, watchful eye of the superintend-ent. In this ring we find board members, parents, politi-cians, business leaders, and other interest groups.Superintendents often view this ring as remote from thepurpose of schooling, or the main show. The unmistak-able truth is that the action in the ring that houses poli-tics must be acknowledged and integrated into thesuperintendent's management of the bigger show.

Education has moved into the public forum andschools must respond appropriately. Elmore (1997)contends that if education leaders persist in trying toinsulate schools and instruction from the externalpressures of standards and scrutiny, the drive of mar-ket forces in education will drive out the public natureof public education. Educators will simply "watch thepublic purpose of public education drift away intomatters of individual taste and preference."

Along with the realization that we cannot insulateschools from these external pressures, comes theunderstanding that we must develop and learn strate-

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gies that incorporate effective learning and teachingpractices within a system of heightened state and fed-eral accountability. For many local superintendents,the mindset is changing and a new role as politicalliaison is emerging. District superintendents are nowengaging in some simple and creative ways that couldbe considered options for your work in your district.

For many local superintendents, the mindsetis changing and a new role as political liaison is emerging.

You could:

°Embrace the task of guiding the district through aprocess of negotiating the policies of standardsreform and accountability. External scrutiny andexternal solutions require that superintendentsrespond to them rather than engage in the workof schooling as a cloistered act (Negroni, 2000).

°Make your voice, as a local eduCation leader,heard at all levels of politics. Join with the voicesof others in the communitybusiness, civic, andhigher education organizationsto communicatethe successes of your work and acknowledge thework that still needs to be done (Hoyle, 1999).

3 8Viepoints

° Monitor emerging education issues in Washingtonand your state capitol. While it may take morevaluable time from an already-busy schedule, this

strategy can help you influence decisions thatmight otherwise have an adverse impact on yourlocal school district. With education a high priority

on most politicians' platforms, the importance oftaking time to let them know your positions onissues increases.

°Establish relationships with those who managethe educational systems for which you are being

held accountable. The flow of communication has

a tendency to roll downhill. More and more com-munication about the work of schools is comingfrom federal and state levels. Respond. Make it apoint to turn the flow around. You, as a districteducation leader, lend an expertise to educationaldecision making. Direct access to U.S. senators isdifficult, but establishing a relationship with theireducation staff representatives is possible. Thesestaff members are knowledgeable about the issuesand should hear your opinions when proposedlegislation affects your district.

()Think creatively about ways of communicatingthat roll uphill. Once a year, your U.S. representa-tive should be invited to a focused education

3 9 Vielpoints

meeting in his or hercongressional district.Make your efforts col-laborative and, thus,more powerful. Work 211111111with other school dis-tricts, parent groups, business leaders, and otherlocal government officials to present a unifiedvoice and presence. The greater the representationof constituents, the more likely you are to get afavorable response to your positions on the issues.

0 Leverage relationships and the information yougain in communicating with policymakers tomake you a more effective political navigator onlocal fronts. Information about expectations,trends, and the general political tide become valu-able tools for all local educators in understandingand then meeting expectations emerging from

political forces.

0 Consider writing an education newsletter address-ing what is happening in the federal and statelegislatures on education. This publication can bean informative tool used to advise local schoolconstituents on education issues that affect theirschool community, rather than a political soap-box. It can advocate on a particular issue,

Vie 40

suggesting constituents contact their representa-tive and encourage him or her to vote a particularway.

0 Provide a concise political issues briefing book forschool board members. Define the issue and out-line how the legislation affects your school district.

()Discuss legislative issues at administrator meetingsas a regular agenda item. While there might notalways be a "burning issue" each month, placingpolitical policymaking issues on each agenda givesthe topic the constant attention it requires.

These suggestions, shared by other superintendentsrecognizing the same challenges, are intended to helpyou navigate the slightly more crowded waters ofeducating young people.

41

Vileafr

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Conclusion

The work of local schooling is no longer the work ofthe local educator. This fact in no way lessens the bur-den or scope of work of the superintendent. On thecontrary, the role is now one for a leader who canlook beyond the district lines, bridge gaps in perspec-tive, and communicate and translate effectively in

order to meet the new demands placed on educationat the local level from places to which we gave littlethought in the past. Houston (2001) spells out thechallenge: "As education stands in the national spot-light, there are few roles as complex or as pivotal asthat of the public school superintendent. And as wemove into the future, it is inevitable that the job willcontinue to be one of controversy, concern, and con-sequence." He believes that the superintendent of the21st century can focus his or her attention on theissues being shaped at a more macro level. "We canlike or dislike these challenges," Houston explains. "Itdoesn't matter. They are with us, and that is really allthat counts. How school leaders choose to face themwill make the difference in how the future looks. Andchoosing to face this new future from a position ofstrength will require a new breed of leader."

42Vievfrcnn&

ferences

Chubb, J. E., & Moe, T. M. (1990). Politics, marketsand America's schools. Washington, DC: TheBrookings Institute.

Cizek, G. J. (2000, December 6). School politics 101.Education Week, 20(14), 35, 36.

Education Commission of the States. (1999,November). Governing America's schools:Changing the rules. Denver, CO: Author.

Elmore, R. F. (1997, Fall). The politics of educationreform. Issues in Science and Technology.[Online]. Available: www.nap.edulissues/14.1/elmore.han

Ferguson, J. (2001, February). Welcome to the circus:The superintendent as ringmaster. The SchoolAdministrator. [Online]. Available:www.aasa.org/publications/sa/2001_02/colferguson.htm

Fuhrman, S. (1994). Politics and systemic educationreform. CPRE Policy Briefs. (RB-12). [Online].Available: www.gse.upenn.edu/cpre/frames/pubs.html

Grissmer, D. (2000). Improving student achievement:What state NAEP test scores tell us. RAND.[Online]. Available: www.rand.org/publications/MR/MR924

Houston, P. (2001, February). Superintendents for the21st century: It's not just a job, it's a calling. Phi

Delta Kappan. [Online]. Available:www.pdkintl.org/kappan/khou0102.htm

Hoyle, J. R. (1999, June). The triumphant superin-tendent. The School Administrator. [Online].Available: www.aasa.org/publications/sa/1999_06/hoyle.htm

Keller, B. (2000, September 20). In state campaigns,schools emerge as topic A. Education Week,20(3), 21, 22.

Khademian, A. M. (1999, January). Recent changes inpublic sector governance. Denver, CO:Education Commission of the States.

Kirst, M., & Bulk ley, K. (2000). "New, improved"

mayors take over city schools. Phi DeltaKappan, 81, 538-40, 542-46.

Negroni, P. J. (2000, September). A radical role forsuperintendents. The School Administrator.[Online]. Available: www.aasa.org/publications/sa/2000_09/negroni. htm

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Plank, D., & Boyd, W. L. (1994). Antipolitics, educa-tion, and institutional choice: The flight fromdemocracy. American Educational ResearchJournal, 31(2), 263-281.

Price, H. B. (1999, December 8). Urban education: Aradical plan. Education Week, 19(15), 44, 29.

Palmaffy, T. (2000, May 26). Is Houston a modelfor urban schools? Investor's Business Daily,116-117.

Spring, J. (1988). Conflicts of interest: The politics ofeducation. White Plaines, NY.: Longman Inc.

Timar, T., & Tyack, D. (1999, January). The invisiblehand of ideology: Perspectives from the historyof school governance. Denver, CO: EducationCommission of the States.

Tyack, D. (1990). "Restructuring" in historicalperspective: Tinkering toward Utopia. TeachersCollege Record, 42(2), 172-191.

Ziebarth, T. (1999, January). The changing landscapeof education governance. Denver, CO: EducationCommission of the States.

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Resources on Pofitics and 4overnance

on ge 9nternet

The following Internet resources all provide informa-tion on governance and politics. These sites addressdifferent audiences and perspectives and are constantlychanging, allowing you to stay abreast of local, state,and federal issues as they pertain to educationalgovernance and politics.

American Association of School Administratorswww.aasa.orgScan of national headlines; page on governmentrelations; page on school/district governance;variety of publications including The SchoolAdministrator, Leadership News, and SchoolGovernment Leadership (past issues are searchable)

American Federation of Teachers-Legislative Action Center

www.aft.org/legislationTracks Congressional votes on education issues;Contact Congress page provides fax and e-mailcontact information, and representatives' andsenators' voting records, and lets you search forcongressional representative by zip code andview congressional schedules

46Vielboints

The American Prospect Onlinewww.prospect.orgArticles, forums, and special issues pages includ-ing one dedicated to children and families

The Brookings Institutewww.brook.eduIndependent organization; critiques and analysesof policy issues including education

Brown Center on Education Policyhttp://www.brook.eduigs/brown/brown_hp.htmResearch publications from the Center on educa-tion, particularly education reform issues

Center on Education Policywww.ctredpol.orgArticles on public education including reviews oflocal, state, and national education policy issues

Committee on Education -and the Workforcehttp://edworkforce.house.govCommittee scheduling, markups, live Webcast ofhearings, committee members, publications, andlinks to resources

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Committee on Health, Education, Labor, and

Pensionswwvv.senate.gov/-laborMembers, subcommittees, hearings, liveWebcasts, legislation, and federal links

The Council of Chief State School Officers

www.ccsso.orgWeb site of the organization composed of the

officials who lead the departments overseeingpublic education within the states; includesstatements of policy, federal legislative positionsand programs, as well as CCSSO publications;includes links to each state agency

Democracy In Action - Key Linkshttp://gwu.edu/-action/Key.htmlLinks to the Web sites of all aspects of policy

including major political parties, advocacygroups, consultants, think tanks, foundations,media, community, and academic groups

Democratic National Committeewww.democrats.org/index.htmlNews overviews, issues statements, and links to

state party officials

48Vie 160961

Education Commission of the Stateswww.ecs.orgNumerous research and policy publications andan overview of current policy issues across thenation

Education Week on the Webwww.edweek.orgHot topics, special reports, and weekly articleson education; daily news scan of nationalheadlines for education articles

First Govwww.firstgov.govOfficial government Web site; allows searches bygovernment organization (federal, state, andlocal) or by topic, including education

Thomas B. Fordham Foundationwww.edexcellence.netResearch and publications on elementary andsecondary education reform policy

The Heritage Foundationwww.heritage.orgConservative education think tank; publicationsand reviews of education policy topics

49Vie lip no,

Hill Source-House Republican Conferencehttp://hillsource.house.govDaily briefings, legislative digest, issues scan-ning, house calendar, and hot topics

National Conference of State Legislatureswww.ncsl.orgProvides news, policy issues scanning, informa-tion about and directory of state legislatures,and policy positions statements

National Education Association LegislativeAction Center

www.nea.org/lacOverview of current education topics, e-maillinks for Congress and state legislators, weeklyreview of federal legislation impacting schools,monthly review of Congressional issues, andU.S. representatives' and senators' voting records

North Central Regional Educational LaboratoryPolicy Page

www.ncrel.org/policyEducation policy research and publications aswell as information regarding NCREL's policywork within the region

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National Governors Association Onlinewww.nga.orgNGA policy positions, legislative issues, statepolicy issues, reports from NGA, and currenthot topics

National School Boards Association,Office of Advocacy

www.nsba.org/advocacyCurrent status of legislation, Congress members'voting records on key education legislation,capability to e-mail representatives, overviews ofrecent federal legislation

Political Information.comwww.politicalinformation.comA search engine for politics, policy, and politicalnews

Republican National Committeewww.rnc.orgDaily features, issues statements, and links tostate party officials

Thomas Legislative Information on the Internet

http://thomas.loc.gov/home/thomas.htmlService of the Library of Congress; providesinformation on House and Senate scheduling;legislative process overviews; bill texts, sum-maries, votes, and status; committee informa-

tion; and Library of Congress Web links

U.S. Department of Educationwww.ed.govPresident's and Secretary's priorities, research

and statistics, publications, programs and services,

news and events, and links to other sites

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4 .44* k' 4I

North Central Regional Educational Laboratory

1120 Ear Diehl (load. SLUR! 200N,Ipel Illinois 60563-1486

(800) 3i6-2735 (630) 649-6500c mail. into@nuel.org wwwnLrel u

A A :1 1l' I

. '214'6;

NNorth Central Regional Educational Laboratory 'Applying Research and Technology to Learning'

A 'fteeResource From NCREL

Dear Colleague:

A 1999 report by the Education Commission of the Statesdeclares, "Given the higher demands on public schools andthe different conditions among districts, one way toincrease the number of successful schools may be to alterpublic education governancethat is, change who makeswhat education decisions within states, districts andschools." In response to this report, NCREL invited educa-tion policy researchers and representatives from founda-tions and education associations to discuss the implicationsof changing governance structures in the Midwest. Theenclosed materials, entitled "From the Statehouse to theClassroom: Governing America's Schools," were borne out

of that discussion.

Unlike past editions of our audio series, which havefocused on emerging hot topics in education, this editionexamines school governance, an enduring issue in

1120 East Diehl Road, Suite 200 ° Naperville, Illinois 60563-1486630-649-6500 0 Fax: 630-649-6700 0 www.ncrel.org

55

American education that continues to be reshaped bychanging politics and new efforts in school reform. Theaudio program offers multiple perspectives on the history,governance, and politics that influence education, and theaccompanying booklet includes strategies for superinten-dents to deal successfully with the politics of education.

Formerly known as the School Development OutreachProject, this audio series has seen some reforms of its own:It has a new titleViewpointsand a new CD format. Thenew title reflects our desire to provide you with variousperspectives, or viewpoints, from national, state, and localvoices in education. The CD format allows you to locateand replay interview segments with ease.

We hope you find this package both interesting and infor-mative. For more information on other NCREL resources,please visit our Web site at www.ncrel.org or contact us at(800) 356-2735 or info@ncrel.org.

Sincerely yours,1,(5CAA-a/K-

a BurkhardtExecutive Director

56

NCREL.North Central Regional Educational Laboratory

1120 East Diehl Road, Suite 200Naperville Illinois 60563 -14S6

VieacHISMITERRIMPRIFElassroom.

Governing America's Schools

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U.S. Department of EducationOffice of Educational Research and Improvement (OERI)

National Library of Education (NLE)Educational Resources Information Center (ERIC)

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Reproduction Basis

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This document is covered by a signed "Reproduction Release (Blanket)"form (on file within the ERIC system), encompassing all or classes ofdocuments from its source organization and, therefore, does not require a"Specific Document" Release form.

This document is Federally-funded, or carries its own permission toreproduce, or is otherwise in the public domain and, therefore, may bereproduced by ERIC without a signed Reproduction Release form (either"Specific Document" or "Blanket").

EFF-089 (1/2003)