Creating effective school districts: lessons from practice, research, and national reports

Creating Effective School Districts: Lessons from Practice, Research, and National Reports

Over the past few years, a good deal has been learned about how to develop instructionally effective school districts. This information comes from three major sources: (1) examples from successful school districts; (2) research findings on instructional leadership and school and teacher effectiveness; and (3) the conclusions of a number of national reports on education, such as A Nation At Risk. Information from these three sources is presented as a six-point blueprint for use by school board members and superintendents as they go about the job of creating districts that promote student achievements. Although the sources for this blueprint are varied--practices of successful districts, the "effectiveness' research literatures, and various national reports--the prescriptions are remarkably similar.

I. Clearly define the academic goals of the district and see that those expectations are widely distributed. The starting point for creating effective districts is to develop a clear focus and mission. Studies of public education have consistently shown that a clear and well-articulated purpose is conspicuous by its absence in most districts and schools. Goals tend to be so numerous, vague, and ill-defined as to be almost useless in providing direction to staff. Without clear goals, it is difficult to determine how scarce resources should be allocated and how educational outcomes can be evaluated.

In developing clear goals, districts should be sure that the following points are addressed. First, the goals should be focused primarily on academic improvement. Second, they should reflect high expectations and standards. Third, for accountability, they should be stated in such a way that their attainment can be measured. Fourth, a process for involving all segments of the educational community in developing the goals needs to be established. Finally, the goals of the district must be systematically communicated to staff, students, and parents. There must also be regular discussion of the activities undertaken and progress being made toward achieving the goals.

II. Establish consistency in the districts' instructional practices and curriculum. One of the major lessons of the school effectiveness literature is that consistency and coordination in a district's curriculum and instructional programs can have a significant impact on student achievement. Such consistency establishes clear expectations about what is to be learned and how it is to be taught and assessed. One of the areas where this consistency has high payoff is in course content and requirements--for example, academic rigor. Consistency of academic rigor across a district is a product of well-defined time allocations for basic academic subjects, expanded course requirements, substantial scope of material within courses, and regularly assigned homework.

In addition to promoting academic rigor, districts establish program consistency by coordinating the curriculum. This entails three activities: clearly defining the curricular objectives across grades for all subjects; selecting and developing textbooks and other materials so that they are consistent with those objectives; and creating and/or purchasing tests which address themselves specifically to district objectives.

Another important area of required coordination is that of instructional practices. Instead of allowing each school and/or teacher to teach as desired, as has often been the practice in the past, districts should promote consistent districtwide use of those instructional strategies and models that are most effective at promoting student achievements. Two such models that have high payoff are direct instruction and cooperative learning.

III. Develop and maintain a high degree of instructional and curricular expertise among district and site managers. Instructionally effective schools and districts are staffed by managers who know, understand, and spend time managing curriculum and instruction. Conversely, the time allocation of managers to curricular and instructional matters in average schools and districts is almost nonexistent. Boards and superintendents have two major avenues to pursue in developing instructional leadership in the district. First, they can select and train personnel for educational expertise. This strategy involves selecting and promoting principals based on their instructional leadership capabilities; providing regular training for administrators which is based on district goals, the best research, and district curricular and instructional foci; and providing meaningful evaluations for site administrators which focus on curricular and instructional matters. Second, boards and superintendents need to create strong coordination and control mechanisms between the district office and the schools on curricular/instructional policies, regulations, and practices. That is, district office personnel must not only promote the educational leadership capabilities of school site managers, but must themselves take a more direct and vigorous approach to instructional leadership. Such direct efforts at coordinating and controlling the curricular and instructional activities of schools are not found in most districts.

IV. Develop and use a districtwide system of monitoring student progress. Currently in many districts there is little evidence of the use of well-planned and comprehensive systems to monitor student progress. Even in districts with extensive testing programs, often the only district role is to collect, score, and return tests. Lessons from effective districts reveal another pattern. First of all, as noted earlier, tests are elected or developed based on their match with the curricular objectives which need to be assessed. Second, when test information is cycled through the district, it is returned in a format that allows teachers and principals to use the information for instructional and curricular planning. Third, in a number of ways, the district checks to see that the test data are actually being used at the site level. Fourth, the district uses the aggregate data to do districtwide curricular and instructional planning. Finally, the district uses the testing information to assess progress toward goals and to hold people accountable for their performance in reaching those goals.

V. Develop mechanisms to increase the interdependence of staff around the philosophy, goals, and practices of the district. One of the most conspicuous characteristics of the vast majority of school systems is the almost total lack of interaction among staff members. Even where there is interaction, it tends to be perfunctory or crisis oriented. Such interaction does not lend itself to the development of clearly articulated goals or to well known and consistently implemented curricular programs and instructional strategies. Therefore, districts will need to make conscious efforts to nurture this consistency. Effective districts and schools have found a number of ways to promote staff interdependence in the realm of educational content. The most successful mechanism is to have all staff participate in districtwide staff development programs which promote district goals. The important elements here are the participation of the full staff and the match of the programs with district goals. This type of training allows all staff to share a common perspective and language about instruction. Other recommended methods include using staff to plan and develop training, to develop curriculum and evaluate instructional materials, and to provide direct training and coaching to their colleagues in the classroom.

VI. Establish a districtwide philosophy about student discipline and develop policies, practices, and staff development to have this point of view implemented in the schools. A great deal has been written about the connection between a safe and orderly learning environment and student achievement; it is safe to conclude that the former is a necessary condition of the latter. From a district perspective, promoting safe and orderly site-level learning environments requires attention to the same key ingredients we identified for curriculum and instruction. Specifically, the standards and expectations for student behavior need to be clearly defined and communicated throughout the district. Mechanisms to ensure fair and consistent enforcement of these standards must be developed. All staff need to receive training on both the standards and the acceptable district procedures to be used for their enforcement. For behavior as well as for achievement, when there is a consistent point of view, common strategies of approach, and a shared language of operations among the district's educational community, desired student outcomes are more readily achieved.

In summary, school administrators and policymakers can foster excellence by taking steps to define academic and behavioral goals in terms of high expectations, develop and inculcate a consistent and coordinated strategy to reach the goals, and monitor and hold people accountable for progress made in achieving those goals.

COPYRIGHT 1984 U.S. Government Printing Office
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