NCREL's Policy Briefs

Decentralization:
Why, How, and Toward What Ends?

Toledo, OH

Interview with Craig Cotner, Director of Planning, Development, and Compensatory Programs, Toledo Public Schools

Over the past two years, Toledo has made an effort to reduce the number of people in its central administration. The administrative staff has been reduced by 15 people, or about 15 percent. Some of the money saved by these personnel cuts has been funneled into the schools. However, many of the cuts were for budgetary rather than decentralization reasons.

In 1992, three elementary schools joined a site-based management pilot in which they have responsibility for budget, personnel, curriculum modifications, and modifications to the school day and school year (with state authorization). An oversight board monitors the activities of these three pilot schools. No other schools have taken a site-based approach.

Each pilot site developed its own proposal, including the resources needed. For example, two pilot schools wanted to revise their primary math curriculum to be more "hands-on." As a result, training has been offered to kindergarten and first-grade teachers in this area.

Another pilot school wanted to improve primary arts education. The school has enlisted the help of a person from the local art museum for training and assistance. The district, via outside grants, is funding staff training for all three schools.

The pilot program was implemented for two reasons:

1. The best decisions are made closer to the students.

2. The people responsible for instruction should have the greatest influence over decisions made in their buildings.

The spark for this effort came from the business community. Four years ago, citizens reviewed the performance of the Toledo school district. Out of this review emerged a cadre of business people - the Citizens' Committee for Effective Education - who have taken the lead in pushing for site-based management in the city's schools. School district personnel have been working with the committee and the relevant unions to implement the pilot.

Obstacles

The following were major obstacles to decentralization:

• Finding schools that wanted to participate. All 43 elementary schools were asked to submit proposals to participate in the site-based management pilot. While funding was available for five schools, only three submitted proposals. "This lack of interest probably was due to the large amount of work that the principal must take on, with questionable short-term benefits. Most principals took a `wait and see' attitude."

• Reaching agreement with unions on contractual language that would allow the pilot schools to take shape. "Who would make the instructional decisions in a school - teachers or the principal? How would union contracts have to be altered to accommodate changes in the status quo?"

Recommendations

Waivers "At the state level, there should be more flexibility in regard to local experimentation. It's hard to get state authorization in writing concerning local waivers to state policy, such as a local school trying to use a different amount of school days (rather than the state requirement) to fulfill the instruction hour requirements for its student body."

Cooperation "At the local level, it must be understood that cooperation is imperative among all the key players if change is to occur."

Posted on April 26, 1995

URL: http://www.ncrel.org/sdrs/areas/issues/envrnmnt/go/93-1tole.htm