ERIC ED330536: A Working Regional Conference: The Role of Education in Rural Community Development Conference Proceedings (Roanoke, Virginia, September 22-24, 1989).

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by  ERIC

DOCUMENT RESUME
ED 330 536
RC 018 093
Raftery, Susan R., Ed.; Mulkey, David, E.
AUTHOR
TITLE
A Working Regional Conference: The Role of Education
in Rural Community Development Conference Proceedings
(Roanoke, Virginia, September 22-24, 1989).
Appalachia Educational Lab., Charleston, W. Va.;
SPONS AGENCY
Southeastern Educational Improvement Lab., Research
Triangle Park, NC.; Southern Rural Development
Center, Mississippi State, Miss.
REPORT NO
SRDC-142
PUB DATE
Jan 91
NOTE
73p.
PUB TYPE
Collected Works - CcJnference Proceedings (021)
EDRS PRICE
MF01/PC03 Plus Postage.
DESCRIPTORS *Community Development; Community Education;
Community Involvement; *Economic Development;
*Educational Change; Educational Finance; Elementary
Secondary Education; Entrepreneurship; Experiential
Learning; Experimental Programs; Human Resources;
Leadership; *Rural Education; *School Community
Relationship; School District Autonomy; *School
Restruc'uring
IDENTIFIERS
Community Based Education
ABSTRACT
This proceedings of a conference focusing on the
school-community relationship contains eight papers. "A Changing
Rural America: The Context for School/Commlty Development" compares
community development with economic development and offers
suggestions for rural schools to participate in community
development. "Integrating the Local Community into Rural School
Curriculum" advocates community-based curriculum which teaches
cooperation, the role of citizens, and leadership development.
"School Based Community Development: Making Connections for Iwroved
Learning" provides guiding principles for second-order restructuring.
"Education as an Investment in Local Community Development" examines
the conceptual linkage between education and economic growth and
discusses education in a production function framework and reviews
research findings on input/output relationships in education.
"Successful Community Development Strategies" documents cases in
which rural communities have had success in changing their economic
circumstances. "Overcoming Barriers to Rural School Leadership in
Community Development" presents positive, proactive approaches for
personnel decisions, curriculum, community education, educational
leadership, and resource attainment. "Building Partnerships for
People: Addressing the Rural South's Human Capital Needs" explores
the near and long-term human resource issues facing the rural South.
Lastly, "Summary of Comments" presents seven propositions based on
important points raised during the conference. (KS)
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A Working Regional Conference:
Community Development
The Role of Education in Rural
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Conference Proceedings
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BEST COPY AVAILABLE
The Role of Education in Rural
Community Development
Sponsored by
Appalachia FAucational Laboratory
Southeastern Educational Improvement Laboratory
Southern Rural Development Center
September 22-24, 1989
Roanoke, Virginia
Published by
SOUTMRN RURAL DEVELOPMENT CENTER
P.O. Box 5446
Mississippi State, MS 39762
January 1991
o
TABLE OF CONTENTS
Introduction
Mulkey
Sue Raftery and David
The Context For School/
A Changing Rural America:
Community Development
1
David Mulkey
into Rural School
Integrating the Local Community
Curriculum
11
Ron Eller
Development: Making Connections
School Based Community
in Learning
17
Daryl Hobbs
Development
Local Community
Education as an Investment in
31
Kevin T. 'olc Namara
Development Strategies
Successful Community
41
Thomas G. Johnson
School Leadership in
Overcoming Barriers to Rural
Community Development
49
Margaret Phelps
People: Addressing the Rural
Building Partnerships for
South's Human Capital Needs
59
Lionel J. Beaulieu
Summary of Comments
65
Lori Garkovich
immusaight
development reflects an increasing interest in the
Recent literature in rural education and rural
All schools impact the communities in which
relationship between schools and rural communities.
isolation often have a broader
Rural schools, however, because of geographic
they are located.
The rural school is often the cultural
impact on their communities both socially and economically.
the economic value represented by community
and social hub of the community. Likewise,
devoted to education often
investments in school facilities and equipment, and the resources
of locally generated tax revenues.
represents the largest single expenditure
United States, three years ago the Congress
To learn more about rural schools throughout the
The monies appropriated by the
enacted legislation called the Rural Education Initiative.
Education Laboratories with the charge to study rural
Congress were given to the nine Regional
highlight promising practices in which rural schools
schools, pilot ttzt school improvements, and
of
represented through this proceedings document is a direct result
were engaged. The conference
this Rural Education Initiative.
Laboratory, as part of its Rural Education
In November 1988 the Appalachia Educational
known as the Regional Rural
Initiative, convened a multidisciplinary research advisory group
rural education research. This group of
Roundtable to address pertinent issue.s in the area of
the Lab in its School-Community Improvement
researchers took the lead to enhance the work of
school in rural development. The Rural, Small
PrOCCSS by focusing on discussions of the role of
discussions to develop the conference, "The
Schools staff of the Lab took the richness of these
Given the similarities between the
Role of Schools in Rural Community Development."
general, the Southeastern Educational
Appalachian Lab's service area and the southeast in
Development Center were invited to co-
Improvement Laboratory as well as the Southern Rural
conference.
AEL. What follows are the major presentations from the
sponsor this meeting with
the multidisciplinary thinking that had its
The conference presenters themselves represented
Agricultural Economists, Rural Sociologists, and
roots in the Regional Rural Roundtable.
of rural community development and the
Educators all provided insight into the complex issue
reflect the current trends in the linkages of
integral role of the rural school. Thafre papers
capital theory to experiential education,
community development and education. From human
school finance and local governance issues --
life-long learning to delivery of social service, and
all of these topics are addressed in these papers.
efforts between both the Land Grant
The 1990s will be a time when new collaborative
Community Development Specialists, and State and
Universities and their Cooperative Extension
addressing the nettds of school/community
local educators will become more widespread. By
able
nd life-long learning possibilities, both groups will be
improvements, along with experiential
revitalization beyond that which they could accomplish
to strengthen their efforts for rural
the mutual areas of concern and that this
independently. This proceedings document demonstrates
productiNe era of collaboration anead.
represents only the first step to a long and
David Mulkey*
Susan R. Raftery*
Food and Resource Economics Department
Southeastern Educational Improvement
University of Florida
Laboratory
Gainesville, FL
Research Triangle Park, NC
Uucation Laboratory's Regional Rural Roundtable.
* Both editors served on the Appalachian
A CHANGING RURAL AMERICA:
DEVELOPMENT
THE CONTEXT FOR SCHOOL/COMMUNITY
David Mulkey
Economics
Professor, Department of Food and Resource
University of Florida
final section of the paper offers specific
INTRODUCTION
of the
to
role
the
relative
suggestions
in
community
rural
system
educational
Education and community development are
development.
both the subject of increasing interest in recent
and the businesses
years. Rural communities,
those
within
operating
industries
and
UNDERSTANDING
communities, are undergoing (have undergone)
COMMUNITY/ECONOMIC
change.
economic
and
social
profound
and
communities
Successful
DEVELOPMENT
businesses/industries of the future will be
is useful to examine the concept of
It
in
different from those that currently exist
community and the idea of development within
rural development
many rural areas. Different
Unfortunately, the
the community context.'
strategies will be required. Likewise, different
and arc
terms involved are somewhat nebulous
be
educational policies and programs will
used by different people to mean different
needed to ensure a cadre of adequately trained
things at different times (Wilkinson, 1988;
community/business leaders and community
The terms "community
1989).
Shaffer,
residents/workers.
development" and "economic development"
Policymakers face the challenge of creating
interchangeably to refer to
are often used
rural communities that are attractive to new
in
measured
as
growth
community
oriented
knowledge
technology-based,
Here,
economic terms.
or
demographic
Educators face the challenge of
industries.
Shaffer
and
(1988)
Wilkinson
following
in those
training individuals to live and work
(1989), the term "community development" is
is
communities and industries. Rural America
used to refer to activities which increase a
changing, and both devebpment policy and
community's capacity to organize, identify
light
education policy must be re-examined in
behalf of
common interests, and to act on
consider
of those changes. Policymakers must
"Economic development"
those interests.
communities
the linkages between schools and
changes which
to those
structural
refers
successful
that will be required to implement
area to
increase the capacity of a local
developme t
rural
and
education
rural
employment.
and
income
generate
programs.
a
is
development
Community/economic
and
community
explores
paper
This
expanding a community's
process focused on
I
will
development.
community/economic
capacity to deal with common problems.
explore major changes occurring in rural areas
involves the
Likewise, such development
the reral
in general and, where appropriate,
is a
capacity to sustain economic activity over
Also included
South in particular.
time.
education
discussion of the implications for
The
and community development programs.
growth without reference to structural or
The word "community," usually refers to
institutional change in the community.
some particular place expressed in geographic
In
terms. However, geographic place, in and of
contrast "development" as used here presumes
defmition of
a
as
structural and institutional change and requires
inadequate
itself,
is
of
explicit
community for this discussion. There must be
consideration
equity
issues
(Waldman, 1988; Shaffer, 1989; Shaffer and
some reference to a set of mutual interactions
Summers, 1988; Ryan, 1987; Coffey and
and some common interests to be served by
Polese,
Flammang,
1984;
1979).
those interactions (Shaffer, 1989). This is not
or community
Development
related
certainly
to
education
imply
to
that is
development programs can or should be
community/economic growth and
often
is
implemented without regard to place. Rather,
measured ushig the same variables. However,
is to stress the importance of common
development implies considerably more than
it
the
process..
community growth alone.
in
development
interests
Community development refers to those
Likewise, successful development development
programs require the ability to act on those
changes which increase the capacity of a group
of people to identify and act on common
interests.
Moreover, thinking of a community as a
In the words of Wilkinson (1988),
interests.
community development means, "...building
place
keeping
place
while
geographic
(or at least trying to build) the capacity for
considerations secondary to common interests,
allows consideration of the dynamic aspects of
self-help and self-direction through community
the community concept.
It
action."
the
allows
Economic development differs from
geographic boundaries of a community to
community development only in that it focuses
change with a different set of interests, and it
more narrowly on improving a community's
allows for the existenee of functional sub-
ability to generate income and employment
over an extended period.
communities within the boundaries of a larger
Additionally, this approach to
Community development is related to and
community.
thinking of a community allows for the
result
development.
economic
can
in
Linkages, however may be indirect and long
regionalizeion of development activities where
in nature.
For example, community
across
several
interests extend
common
run
geographically defined communities. Such an
development programs to improve education,
provide better public services, or improve
approach recognizes that communities compete
environmental quality may make significant
with each other in a variety of economic and
and that
events
contributions
arenas, economic development.
political
any
in to
particular community are strongly influenced
Likewise, a lack of economic development as
reflected in high unemployment, inadequate
by ties to the larger community of which it is
a part (Shaffer, 1989; Shaffer and Summers,
public services, and high levels of inequality.
Such inequity can detract from a community's
1988).
to work together on behalf of
In addition, distinction can now be made
capacity
development
between
and
com mon interests.
community
Alternatively,
economic
,
economic development and between the idea
improvements which reduce income inequality
services may contribute
and improve
of development and growth. As noted earlier,
to
the term *develop" is often used to refer to
development
(Ryan,
community
1987;
This growth can be
community growth.
Wilkinson, 1988).
or
Either
development
measured in demographic terms or economic
economic
The related term "development" is
community development may be accompanied
terms.
by or result from community growth, or either
refer
used
particular
commonly
to
to
may take place without growth.
In some
happenings in particular wmmunities.
This
cases, growth may actually
would include such things as a new shopping
detract
from
success of
For example,
center, a new/expanded business, an industrial
development.
may be
efforts
plant, or a new sub-division. Such references
development
community
measured by changes in political access, the
often refer only to the quantifiable aspects of
of the rural economy
areas and segments
the
responsiveness of local government, or
(Drabenstott, et al., 1986; Henry et al., 1986).
being
satisfaction which residents receive from
of change
in
rural
The dimensions
community
able to influence change in their
communities across the country are obvious
Such changes may make a
(Libby, 1986).
businesses,
closed
farms,
lost
(eg:
and
community a more attractive place to live
unemployment and underemployment, eroding
Consequently this may very well
work.
of
local
inability
and
the
bases,
tax
time.
contribute to community growth over
governments to provide needed services).
associated
The community concept and the
Unfortunately, immediate policy solutions are
capacity
idea of development as community
Changes initially viewed as
less obvious.
framework for
and economic vitality provide a
cyclical ph0110111eal of importance only to
place in
considering changes that have taken
communities dependent on agriculture are now
also useful in
rural areas. Such a framework is
perceived to be more fundamental in nature
and
considering the design 3f educational
and patt of a broader restructuring of the
rural
assist
to
programs
development
national economy (Beaulieu, 1988; Henry et
Community development is a
communities.
al., 1988; Dillman, 1988; Dillman, et al.,
of actions to improve
The increasing
process consisting
1989).
The process includes
community welfare.
"internationalization" of economic activity has
assessment,
needs
as
such
activities
seriously eroded the competitive position of
and
community analyses, concensus building,
(agriculture,
industries
rural
traditional
design and
goal setting as precursors to the
resource
manufacturing, and other natural
address
implementation of action programs to
Resulting employment
based industries).
dependent
community needs. The process is
declines are then further reinforced by shifts
visionary local !laden and on
on capable,
nation towards a technology-
within the
education
informed and active citizens. Thus,
oriented, service-based economy. At the same
citizens may be the most critical
for all
time there is a continuing structural change
community
ingredient to the success of rural
Moreover, the
within traditional agriculture.
development programs.
and
ability of rural areas to attract business
industry has been impacted by the deregulation
and
transportation,
financial,
of
A CHANGING RURAL AMERICA:
al.,
communications industries (Henry, et
IMPLICATIONS FCR EDUCATIONAL
1918).
PROGRAMS
Changes in the rural South differ from
those in the nation only by a matter of degree.
Wall Strcet
As a recent writer in The
These distinctions are detailed in a recent
'Small
Journal obseived about rural Kansas,
study by the U. S. Department of Agriculture
longer are, if they ever
towns on the plains no
which classified all nonmetropolitan counties
places depicted in Norman
were, the kind of
acoonling to the primary source of income
The same
Rockwell covers" (Farney, 1989).
using
(Bender, et al., 1985), in two studies
other rural areas
point can be made about most
Henry,
similar data (Mulkey and Henry, 1988;
The much heralded "rural
in the country.
1987), in a series of reports from the Southern
has
turn-around" of the 1960's and 1970's
Growth Policies Board (Bergman and Johnson,
brought
ended. The decade of the 1980's has
Commission on the Future of the
1986;
reversal of the fortunes of rural
a dramatic
1986), and in
South, 1986; Rosenfeld, et al.,
unable to
America. Many rural areas were
1988;
papers by other authors
(Billings,
retain jobs in traditional empioyment sectors
Rosenfeld, 1988; Swanson, 1988).
jobs in
and equally unable to attract new
than
The South is more rural in character
manufacturing
expanding, knowledge based
addition, rural areas in
are other regions. In
declines in
and service industries. Resulting
on
dependent
more
are
South
the
agriculture,
in
employment
and
income
South
manufacturing than are other areas. The
had
mining, and manufacturing
forestry,
particular,
in general, and the rural South in
all, rural
serious consequences for most, if not
3
1988; Mulkey, 1989a). Further, learning does
trails the nation in per capita income (Mulkey
not take place in isolation (Mulkey, 1988;
and Henry, 1988), and levels of educational
Hobbs, 1988; Deaton and Deaton, 1988).
attaimnent. Likewise, work force skills do not
Students are a product of their community,
favorably compare with those of other regions
and that community influences the educational
of the country (Swanson, 1988; Swanson and
Butler, 1987; Beaulieu, 1989). As might be
process in the schools.
expected, poverty rates in the rural South
Again, schools are a part of the community
development proms. For those interested in
exceed those of other areas. 'This includes the
poverty rates of metropolitan areas in the
rural community development, one dimension
of rural education of immediate interest is the
South and other rural areas in the nation (U.
quality of cunent educational programs. The
S. Bureau of the Census).
Rural America is changing, and in fact,
notion of education as an investment in human
capital which yields both private and public
those changes threaten the capacity of many
(community) returns is not a rew concept.
rural communities for collective action. These
This idea has been prominent in the economic
changes threaten the economic vitality of rural
literature since the publication of the seminal
Papers cited above and those of other
areas.
work by khultz (1961). Community efforts
authors (Deaton and McNamara, 1984; Hobbs,
(and dollars) devoted to school improvement
1987; Ross and Rosenfeld, 1987; Rosenfeld,
such an
1987; Hobbs, 1988; Deaton and Deaton,
represent
investment. Students
directly benefit from such investment through
1988; Nachtigal and Hobbs, 1988) remind us
change and the
of the
extent of rural
Communities benefit
earnings.
higher
of
indirectly when improved schools make the
change.
nature
that
continuing
community a more attractive place to live.
stress
studies
the
cited
the
Mditionally,
increasing importance of an educated and
When better educated individuals remain in the
their
productivity
community,
increased
skilled workforce to the future development of
contributes to the development of the larger
Undoubtedly, new development
rural areas.
strategies are called for, and improvements in
community.
rural education are integral to the success of
Schools can also make explicit contributions
to the development of rural communities.
those strategies.
These contributions can extend beyond those
existing
in
improvements
from
arising
educational programs. Fortunately, many of
EDUCATION AND RURAL COMMUNITY
the suggestions for rural school improvement
DEVELOPMENT SOME PRACTICAL
also serve to increase the value of the school
SUGGESTIONS
system to the community development process.
Suggestions offered by Hobbs (1988), Hobbs
Community/economic development
is
a
and Nachtigal (1988), Mulkey (1988; 1989a),
process which focuses on the capacity of rural
and Deaton and Deaton (1988) focus on
communities to engage in collective action
school/community
interactions.
over time. 'These activities may also result in
increasing
These interactions directly contribute to the
the generation of income and employment for
Several of
development of the community.
the community. The community educational
is an essential component of this
these suggestionr are treated in more detail in
system
process since schools both affect and are
sections that follow.
1. Schools should strive to deliver a quality
affected by the community of which they are
First, an important
education to all stydents. This point was made
a part (Mulkey, 1989a).
of
earlier and has been madn elsewhere (Mulkey,
capacity
component community
is
individual capability, and schools are in the
1989a; Hobbs, 1988), but it deserves repeating
because of its overriding importance.
process of expanding individual
From
ability.
Thus, a quality education for all
the community standpoint, inequality ue either
students
gender,
background,
or
ethnic
the
contribution
to
to
major
represents
a
socioeconomic status is a major factor which
(Hobbs,
development process
community
4
programs for new clientele groups. Examples
detracts from the creation of community in the
leadership
may include
training,
literacy
(Wilkinson, 1988).
sense of collective action
development, nutrition and health training,
Inequality influences student performance
child care programs, and a variety of adult
long run consequences for
with potential
education programs. (Mulkey, 1989a).
We know that
students and communities.
This mission is much broader than that of
socioeconomic background is an impottant
a
with
school
rural
the
traditional
variable ;11 explaining student perfiarmance.
concentration primarily on the delivery of
Students from wealthier and better educated
formal classroom instruction to school age
families perform better in school than those
children (K-12). In addition, implementation is
from poorer circumstances (Himushek, 1989).
complicated by the need to reconsider school
school
that
suggests
also
Evidence
financing, both levels of funding and source of
performance, especially as reflected in years
of
schools.
requirements
and
funds,
of schooling completed, is rewarded with
difficulties
these
with
Nevertheless,
and
(Jorgenson
earnings
lifetime
higher
considered, the provision of this broader range
Pave we then come full
Fraumeni, 1989).
of educational programs may offer a unique
circle? Socioeconomic status influences school
opportunity for rural schools to contribute to
turn,
influences
in
which,
achievement
the development of rural communities.
socioeconomic status.
Rural schools should teach people
3.
Questions of inequality in the rural South
(students and community residentslittout their
the correspondence
are further complicated by
conununity and how it works.
Effective
between socioeconomic status and racial/ethnic
pazticipation in the community development
background. An example can be found by
involvement of the
the
requires
process
the
for
black
rates
poverty
examining
community. Residents must be aware of the
population in the rural South. The rural South
social, economic, and political realities facing
most of the nation's
is home to
rural
Hobbs (1987) forcefully
their community.
Recent
(nonmetropolitan) black population.
reminds us of this point by noting, "It strains
census estimates place poverty rates among
credibility to assume that local development
blacks in the nonmetropolitan Fouth at over 40
will travel far on ignorance the locality and
For nonmetropolitan black families
percent.
how it works."
with a female household head, the poverty rate
Community groups must be interested in
is over 6.5 percent. For children in those same
problems associated with the organization and
is almost 80
households, the poverty rate
For example,
delivery of public services.
percent (U.S. Bureau of the Census).
these groups must understand the financial
Again, schools simply must come to grips
They must
structure of local government.
Poor
with problems related to inequality.
know the tax base and tax rates as well as the
represent a
children from poor
families
and spent.
ways in which revenues are raised
significant portion of the human resource
Additionally, community residents who wish
potential of the rural South.
to influence taxing and spending
decisions
Rural schools should expand their
2.
government
locel
bow
understand
must
mission to include the broader educational
They must have the ability to
functions.
reeds of the community. This suggestion has
develop and present alternative proposals to
been offered elsewhere in recognition of the
their elected officials.
broad range of educational needs which exist
Groups interest,..d in economic development
in many rural communities. Hobbs (1988) and
must understand the local economy.
They
Nachtigal and Hobbs (1988) stress the need to
need to become familiar with the products
think of rural schools as learning resource
produced, inputs required, and the markets
centers while Malan and Deaton (1988) stress
served by community businesses/industries.
the need to think of education as a lifelong
Such information is critical to understanding
In short, this suggestion
learning process.
how the community relates to the economy of
in
calls for redefining the mission of schools
It is also becoming
the larger state/nation.
for the development of new
areas,
rural