ERIC ED373417: School-Based Management--The View from "Down Under."

7 Pages·1994·0.26 MB·English

by  ERIC

DOCUMENT RESUME
EA 026 026
ED 373 417
Odden, Allan; Odden, Eleanor
AUTHOR
School-Based Management--The View from "Down
TITLE
Under."
Center on Organization and Restructuring of Schools,
INSTITUTION
Madison, WI.
Office of Educational Research and Improvement (ED),
SPONS AGENCY
Washington, DC.
94
PUB DATE
R117Q00005-94
CONTRACT
NOTE
7p.
Leon Lynn, Dissemination Coordinator, Center on
AVAILABLE FROM
Organization and Restructuring of Schools, University
of Wisconsin, 1025 W. Johnson Street, Madison, WI
53706 (free to all on mailing list).
Serials (022)
Collected Works
PUB TYPE
Brief to Policymakers; n9 Sum 1994
JOURNAL CIT
MF01/PC01 Plus Postage.
EDRS PRICE
*Decentralization; Elementary Secondary Education;
DESCRIPTORS
Foreign Countries; *Institutional Autonomy;
Participative Decision Making; *School Based
Management; School Restructuring; State School
District Relationship; Teacher Role
*Australia (Victoria)
IDENTIFIERS
ABSTRACT
In the Australian state of Victoria, virtually all
decisions about spending, curriculum, and personnel are made at the
school level. Victoria's experience in developing a system of
school-based management (SBM) and shared d^cision making offers a
perspective on scnool reform efforts in the United States. Underlying
the school restructuring trends in both countries are some common
assumptions: that schools must dramatically raise the performance of
all students; that they should be delivering a curriculum centered on
problem-solving and other higher-order thinking skills; and that to
accomplish this, schools need to be restructured. This brief outlines
be relevant for
some features of Vict--ia's experience that may
reformers elsewhere. it is compared to the "high involvement" model
critical
of decentralization, which calls for the development of four
skills, power,
resources within each unit--information, knowledge and
and rewards. Data were obtained through interviews conducted with
state and local school officials, union leaders, and university
professors. Interviews were also conducted and other data collected
at eight Melbourne schools--four primary and four secondary schools.
The findings support the tenets of the high-involvement framework;
specifically, if decentralization is accompanied by information,
knowledge, power, and rewards and includes all teachers in decision
making, then school productivity is likely to increase. Each of the
schools experienced change in management, organization, and
curriculum. However, Victoria has not developed a powerful reward
system that encourages teachers to work toward schoolwide goals for
student achievement. Teacher testimony and an increase in the high
school graduation rate indicate improved student achievement.
(LM I)
P
to policymakers
School-based Management-
The View from "Down Under"
By Allan and Eleanor Odden
hirty-five years ago, virtually all decisions affecting schools in the Australian
state of Victoria were made at the state level.
The state's Department of School Education created the single curriculum
every school had to follow, told each student which school to attend, and
approved every budget item and personnel decision, right down to hiring
individual janitors and secretaries.
That system bears little resemblance to the one in place in Victoria today.
Now, most decisions about spending, curriculum and personnel are made at
the school level.
There are some statewide guidelines, such as general curriculum frameworks.
But the fulfillment of those guidelines is left to the teachers,
linistrators,
parents and other community members at each school.
Victoria's experience in developing a system of school-based management and
U S DEPARTMENT OF EDUCATION
Once 04 Educanonal FI4 nowcrl and trnotoernent
shared decision-making may provide some perspective on school reform efforts in
EDUCATIONAL RESOURCES INFORMATION
CENTER (ERIC)
the United States. Underlying the moves toward reform in both nations are some
Th.: document has Won mproduced is
recliner, Iron, the person or organisation
common assumptions: that schools must dramatically raise the performance of
ongInst.ng a
Minor changes have been made So werwOre
all students; that they should be delivering a curriculum centered on problem-
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solving and other higher-order thinking skills; and that to accomplish this,
Pantie, wee 04 opnlons staled in trio 000u-
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schools need to be restructured or reorganized.
OERI ooarhon or ochry
This brief outlines some features of Victoria's experience that may be relevant
for reformers elsewhere.
BRIEF NO. 9
SUMMER 1994
The "High Involvement" Model
When evaluating efforts to decentralize school management, education lead-
Victoria's Evolution
2
ers can gain insight by looking at similar efforts by private-sector compa-
nies in the United States. In recent years, particularly during the 1980s, many
'Schools of the Future"
3
U.S. companies have embraced decentralization as a way to boost quality, and
The Many Roles of Teachers
even reduce costs, amid intense international competition.
3
Research showed that the most effe :tive strategy for these companies was to set
Rising to a New Challenge
4
clear performance targets at the top of the system, flatten the organizational struc-
Conclusions
5
2
CENTER ON ORGANIZATION AND RESTRUCTURING OF SCHOOLS
REST COPY
AVAILABLE.
school-site council will produce
ture, move decision-making down to
better decisions, better use of school
the work teams actually providing
resources and, ultimately, better
services, and then hold those teams
student performance.
accountable for results.
The high involvement model
Researchers have noted particu-
addresses that error. It also stresses
larly strong results for businesses that
providing information, knowledge
employed the "high involvement"
and skills to decision makers, and
model of decentralization (Lawler,
creating a system that rewards good
1986; 1992). This calls for the
performance.
development of four critical
In Victoria, it appears that at least
resources within each unit:
three parts of the model have been
The high involvement model
fulfilled to a high degree.
INFORMATIONThe unit's goals
1
and objectives are clear, and unit
seems especially suited to
Victoria's Evolution
members have access to the data
they need to pursue them.
observations are based on vis-
organizations doing ,:ornplex,
Our
its to Victoria in 1993 and
1994. We interviewed state and local
KNOWLEDGE AND SKILLS The
uncertain work in a group
2
unit devotes money and staff
school officials, union leaders and
or team structure. Since
time to making sure that member
university professors, among others.
practices reflect the best professional
We also conducted interviews and
teaching is an intellectually
knowledge.
collected data at eight schools in
Melbourne: four primary schools,
complex job, subject to
POWERUnit members have real
which in Victoria typically include
3
authority over budget and per-
kindergarten through 6th grade; and
uncertainty and best
sonnel decisions.
four secondary schools, which typi-
cally cover grades 7 through 12.
conducted by people who
REWARDSA compensation struc-
Located in Southeast Australia,
4
tureusually based on knowledge
the state of Victoria is home to
work together closely, we
and skills and often including group-
about 6 million people. Roughly half
based performance bonusesaligns
agree with researchers who
live 'n Melbourne.
employee self-interest with the
In the 1960s, the state's Depart-
feel this model also is
unit's goals.
ment of School Education, or DSE,
made all key decisions on curricu-
appropriate for schools.
The high involvement model
lum, budget and personnel. The
seems especially suited to organiza-
state-mandated curriculum for all
tions doing complex, uncertain work
students was basically university-
in a group or team structurethe type
preparatory. A student could only
of structure that most large, success-
attend the school in his or her neigh-
ful private-sector companies have
borhood, where parents and teachers
embraced in recent years. Since
had almost no say in operations.
teaching is an intellectually complex
Back then, about 25 percent of stu-
job, subject to uncertainty over daily
dents in Victoria graduated from sec-
tasks and best conducted by people
ondary school. Today, more than 80
who work together closely, we agree
percent graduate. While there are no
with researchers who feel this model
data to suggest specific causes for this
also is appropriate for schools.
tremendous improvement, the govern-
Many policymakers and advisors
ment's decision to decentralize control
who push to decentralize school
of schools certainly appears significant.
system power make a critical error:
The move to decentralize began
They think simply giving power to a
in the late 1960s. By the early 1970s,
2
The council receives a lump sum from the state to spend on all functions, including
salaries and benefits, supplies, operations and mcu.itenan.ce. The amount is based on the
number of students, the number of teachers and the size of the school building. With only
a few minor constraints, the school can spend this money any way it wants.
tions, including salaries and bene-
uct of Victoria's relatively long expe-
the state had created "school coun-
rience with teacher-led curriculum
fits, supplies, operations and mainte-
cils," committees at each school with
nance. The amount is based on the
development. Teachers have regular-
some power over budget and curricu-
number of students, the number of
lum. Up to half the members of each
ly worked at developing, assessing
teachers and the size of the school
and modifying new curriculum, usu-
council could be employees of the
building. With only a few minor
ally in close collaboration with other
state education system, such as
constraints, the school can spend
teachers and the principal. But these
teachers, since the DSE gave up con-
this money any way it wants.
councils also gave parents, and other
trol over that process in the 1970s.
Schools also have full authority
Beginning in the 1980s, teachers
community members, substantial say
to recruit and hire teachers. This job
in all facets of the school.
had access to a wide range of training
is handled by the principal, usually
By 1993, the councils had power
opportunities, such as school support
with significant teacher involve-
to make virtually all budget decisions,
centers and professional content
ment. Teachers are, however, paid
except on professional staff issues.
groups. Many programs included
on a statewide scale.
Each council also selected the school's
practice in the classroom interspersed
The state developed an interac-
principal and non-certified staff.
with training over 10 to 12 weeks.
tive computer system that gives
Several teachers said they took part
"Schools of the Future"
each school access to detailed infor-
in cross-school teacher networks. In
mation about its budget and expen-
all, teachers reported a wide range of
he school decentralization
ditures. School-level officials also
long-term and short-term profession-
1 process gathered still more steam
use the system to handle all invoic-
al development opportunities.
later in 1993, when a newly elected
ing and purchasing, and to maintain
In the mid-1980s, the state devel-
government created "Schools of the
student records.
oped curriculum frameworks in nine
Future," an experiment aimed at giv-
The computers also will be used
major learning areas. These frame-
ing schools virtually total authority
to compile results from new, manda-
works paint an ambitious vision of
over budget and personnel.
tory surveys of comm,inity satisfac-
what school curriculum should be.
When the government asked for
tion. These surveys will enhance
100 schools to volunteer for the For example, they call for developing
school communication with parents
experiment, more than 700 applied
thinking skills and problem-solving
on school issues and, increasingly,
ability in all students.
within a 6-week period. In response,
on student outcomes.
the government started the program
But these frameworks didn't
that year with 300 schools. Another
impose a new vision for teachers
The Many Roles of Teachers
500 entered the program early this
to follow. Instead, state officials
each school, although policy
year, and another group was sched-
worked closely with teachers, and
At
over curriculum technically
uled to join this July. All of Victoria's
the frameworks they drafted reflect
rests with the school council, the
1800 schools are slated to become
existing teacher practices. Since
teachers lead the way. Teachers sit on
Schools of the Future by mid-1995.
many of the concepts and
a committee which reports to the
Each School of the Future is led
approaches in the frameworks
council and seeks approval for major
by a council of up to 15 members.
also were reinforced by existing
Only a third of council members can
curriculum changes. Council members
teacher training, teachers already
generally acknowledge the expertise
be teachers or school administrators.
knew them well. We found uni-
The council receives a lump sum
of teachers and accept their direction.
formly high awareness of the
This trust may, in part, be a prod-
from the state to spend on all func-
frameworks among teachers.
4
visited, including
at every school we
Teachers are expected, as part of
improve-
consensus on goals, focus on
their professional ethic, to play vig-
and
ment, willingness to experiment
developing
orous roles in constantly
cooperative relations between princi-
and evaluating curriculum. They
pals and teachers.
have created a remarkable array of
In some schools, up to 40 percent
mechanisms for encouraging and
of teachers were formally recognized
channeling their input.
for serving in some leadership role,
For example, most schools we
such as principal of a sub-school or
studied in Victoria were divided into
teacher with spe-
an advanced-skill
"sub-schools," usually consisting of
cial responsibilities for developing
glade levels.
two or three contiguous
Principals were stepping
curriculum and staff.
Teachers in these sub-schools usually
These teachers, chosen for their
the
met at least once a week. Within
away from direct
involve-
expertise, received more money and
sub-schools, grade level teams usual-
teaching work-
a modestly reduced
ly met about twice a week. The
ment in instruction and
load. This was a first step in a plan
grade level teams focused on both
teacher salary
to add new tiers to the
instead were focusing on
curriculum and student needs, with
schedule based on knowledge and
secondary
extra emphasis at the
skills. The state had created a com-
broader issues of planning,
level on student behavior and other
mission to consider revamping the
non- academic activities.
school vision and community
teacher career structure, including
Each school also had subject-area
a revised compensation system.
and
teams tha.t developed curriculum
relations. They began
Along with this shift in teacher
received individual program budgets.
roles came a shift in the principal's
Other teacher teams focused on pri-
operating less like "head
role. Principals were stepping away
orities outlined in a state-required,
from direct involvement in instruc-
but site-developed, school improve-
teachers" and more like
tion and instead were focusing on
ment plan.
broader issues of planning, school
The schools we studied also made
corporate CEOs.
vision and community relations. They
use of several schoolwide teams.
began operating less like "head teach-
The entire faculty usually met at
ers" and more like corporate CEOs.
least twice a month, and committees
Principals in the first wave of
and
met on overall curriculum issues
Schools of the Future received train-
other aspects of policy and organiza-
ing on their new budget and person-
tion, such as scheduling and teacher
nel responsibilities. The state also
work loads.
was designing training programs on
Most teachers took part in at least
how to create school vision, and
three teams. While most schools pro-
how to support teacher decision-
vided an hour for team meetings dur-
making teams. The Schools of the
ing the schooi day, teams frequently
Future contract specifies that 15 per-
met before and after school as well. In
salary will be
cent of each principal's
interviews, teachers acknowledged
determined by school performance,
the considerable time commitment,
but this component was only in its
but said they accepted it because they
beginning phases during our visits.
wanted input.
In the schools we visited, these
Rising to a New Challenge
rich networks of teams nurtured wide-
rrhe schools we studied in 1994
spread and universal teacher involve-
i had begun a new and very spe-
ment. They also functioned as over-
cific focus on student outcomes and
lapping communication channels,
accountability. Previously, Victorian
spreading information upward, down-
schools have not used standardized
ward and horizontally in each school.
tests of any kind. There were no
We found strong professional cultures
5
4
Rather than having a
grade-level performance scores for
this model of decentralization has
students, and no published data
improved student achievement. But from
negative impact on school
comparing different schools.
teacher testimony, and increases in the
Instead, teachers kept anecdotal
high school graduation rate, it appears sig-
culture, the shift toward
notes on each student, often in
nificant, and the level of teacher owner-
diary form, to record individual
ship attained would be the envy of many
outcomes and account-
progress and needs.
schools around the globe.
The schools we visited were
ability added a positive
developing strategies for gathering
a wide variety of data, with the
dimension to the culture
References
goal of developing individual per-
formance profiles, as well as out-
at each school we visited.
Lawler, E. E. (1986). High involvement
come data for classes, grade levels
management. San Francisco: Jossey-Bass.
and the entire school. They also
were searching for good assessment
Lawler, E. E. (1992). The ultimate advan-
then school productivity is likely
techniques to help them make
tage: Creating the high involvement organiza-
to increase.
comparisons with other schools.
tion. San Francisco: Jossey -Bass.
The schools we studied all
The schools seemed well-
experienced change in manage-
equipped to undertake this tremen-
ment, organization and curricu-
dous task. Teachers were deeply
lum. Schools, especially Schools
involved with the process and were
of the Future, had substantial
operating on the basis of good
Brief to Policymakers is prepared by Leon
power over budget and personnel.
Lynn at the Center on Organization and
training and experience. They
Teachers and principals also had
tructuring of Schools, University of
r
clearly were aided by the well-
access to a comprehensive set of
IisconsinMadison. This publication is
established teams and inter-team
supported by the U.S. Department of
information, and had received
networks. In fact, rather than hav-
Education, Office of Educational Research
thorough training in the best pro-
ing a negative impact on school
and improvement (Grant No. R1I7Q00005-
fessional practices (unfortunately,
culture, the shift toward outcomes
94), and by the Wisconsin Center for
DSE stopped spending money on
Education Research, School of Education,
and accountability added a posi-
teacher train. in early 1993,
University of WisconsinMadison. The
tive dimension to the culture at
of the
opinions expressed herein are those of the
which concerned rr
each school we visited.
authors and do not necessarily reflect the
people we interviewed).
views of the supporting agencies. This
Victoria hasn't developed a pow-
Conclusions
publication is free upon request.
erful reward system to encourage
We found substantial presence
Director: Fred M. Newmann
teachers to work toward schoolwide
of the key components of
Associate Director: Gary Wehlage
goals for student achievement. So
Dissemination Coordinator: Leon Lynn
high involvement management in
far, schools have emphasized indi-
Administrative Assistant: Diane Randall
the schools we studied. The find-
vidual student performance, and
Graphic Designer: Rhonda Dix
ings support the tenets of the high
haven't developed strong consensus
involvement framework; namely,
on school goalf. and common mea-
that if decentralization is accompa-
sures of progress toward them.
nied by information, knowledge,
Because school-by-school data
power and rewards, and includes
on student performance are not
all teachers in decision-making,
available, we can't say how much
*lb
pnnted on recycled paper
recyclable
Allan Odden is a professor of educational administration at the University of
Wisconsin-Madison and director of the Finance Center of the Consortium for
Policy Research in Education.
Eleanor Odden is a private education consultant in Madison, Wisconsin.
CENTER MISSION
ihe Center on Organization and Restructuring of Schools studies how
organizational features of schools can be changed to increase the intel-
lectual and social competence of students. The five-year program of research
focuses on restructuring in four areas: the experiences of students in school;
the professional life of teachers; the governance, management and leadership
of schools; and the coordination of community resources to better serve
educationally disadvantaged students.
Through syntheses of previous research, analyses of existing data, and
new empirical studies of education reform, the Center focuses on six critical
issues for elementary, middle and high schwls: How can schooling nurture
authentic forms of student achievement? How can schooling enhance educa-
tional equity? How can decentralization and local empowerment be construc-
tively developed? How can schools be transformed into communities of
learning? How can change be approached through thoughtful dialogue and
support rather than coercion and regulation? How can the focus on student
outcomes be shaped to serve these principles?
CENTER PUBLICATIONS
In the fall and spring of each year, the Center publishes an issue report
which offers in-depth analysis of critical issues in school restructuring, dis-
tributed free to all persons on the mailing list. In addition, three "briefs" tar-
geted to special audiences are offered yearly. Our bibliography is updated
each year and is distributed free on request. Occasional papers reporting
results of Center research are available at cost. To be placed on the mailing
list and receive Issues in Restructuring Schools, please contact Leon Lynn,
Dissemination Coordinator, Center on Organization and Restructuring of
Schools, University of Wisconsin, 1025 W. Johnson Street, Madison, WI
53706. Telephone: [phone].
Brief No 9
Summer 1994
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