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^ DepartmentCQ of Education

MASSACHUSETTS^ EDUCATION REFORM® ACTp4

(^ Questions and Answers

^ on

^ School Councils

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V

Massachusetts Board of Education

Mr. Martin S. Kaplan, Esquire, Chairperson, Newton

Mr. Thomas Chin, Newton

Ms. Patricia A. Crutchfield, Springfield

Ms. Marjorie Dolan, Boston

Dr. Jerome H. Grossman, Chestout Hill

Mr. Frank Haydu, III, Dover

Mr. William K. Irwin, Jr., Wihnington

Ms. Elizabeth Kittredge, LongmeadowDr. Madelaine S. Marquez, Amherst

Mr. S. Paul Reville, Worcester

Dr. Richard R. Rowe, Belmont

Dr. Stacy L. Scott, Lowell

Rev. Michael W. Walker, Brockton

Ex Officiis

(Voting Privileges)

Ms. Allyson Bowen, Westminster

Chairperson, Student Advisory Council

Dr. Piedad F. Robertson, Secretary, Executive Office of Education

(Non-Voting Privileges)

Peter M. Mitchell, Interim Chancellor, Higher Education Coordinating Council

Dr. Robert V. Antonucci, Commissioner and Secretary to the Board of Education

Developed by:

Center for Innovation

Written by:

Susan Freedman, Administrator

Ross Zerchykov, Education Specialist

Barbara Aschheim, Education Specialist

The Massachusetts Department of Education insures equal employment/educational

oppormnities/affirmative action regardless of race, color, creed, national origin or sex, in

compliance with Title VI and Title IX, or handicap, in compliance with section 504.

State Publication No. 17412-20-3000-9/93-CR

Approved by Philmore Anderson III, State Purchasing Agent

MASSACHUSETTSEDUCATION REFORM

ACT

Questions and Answerson

School Councils

MASSACHUSETTS DEPARTMENT OF EDUCATION350 Main Street

Maiden, MA 02148-5023

(617) 388-3300

1993

The Commonwealth of Massachusetts

Department of Education

350 Mam street. Maiden, MassKfansetts 02148-5023 • (617)388-3300

Kobot V. Antonucd

September, 1993

Dear Colleagues and Members of the Commmiity:

The Massachusetts Education Reform Act of 1993 provides for a comprehensive strengthening of local school

system leadership for school improvement. The school-based planning responsibilities of school councils formthe foundation for a more focused, responsive and accountable system of serving our students. The councils

are also a vehicle for involving more parents and teachers in school decision making and for strengthening the

bonds between schools and the communities they serve.

We hope that this Question and Answer booklet will help you to realize the potential benefits of estabhshing

school councils. This booklet is advisory, not prescriptive. It is intended to:

o interpret and explain the law establishing school councils;

° address the areas of concern that councils may encounter; and° when there is latitude in the law, to provide suggestions, based on past practice with councils in

Massachusetts and elsewhere, that councils can use or modify to meet their situation.

This booklet is organized into four sections that provide a vision on the role of councils in school improvement;

describe schools' legal responsibiUties in establishing councils; provide suggestions for effective councU

functioning; and address special situations that some schools will be encountering. We hope you And this

information useful and relevant and will share it with others in your school and community. We strongly urge

superintendents and principals to reproduce this booklet and make it available to school committees, teachers,

students, parents, and other interested members of the schools and the community.

This document has been developed by the Department's Center for Innovation with input from the

Massachusetts Association of School Committees, the Massachusetts Association of School Superintendents, the

Massachusetts Elementary School Principals' Association, the Massachusetts Federation of Teachers, the

Massachusetts Middle Level School Administrators Association, the Massachusetts Parent-Teacher-Student

Association, the Massachusetts Secondary School Administrators Association, and the Massachusetts Teachers

Association. The experience and suggestions of representatives of these groups have proven invaluable.

We welcome your suggestions and thoughts on additional areas of interest and concern regarding the council

provision of the Education Reform Act.

Best wishes for a successful school year!

Sincerely,

Robert V. Antonucci

Commissioner of Education

Digitized by the Internet Archive

in 2013 with funding from

Boston Library Consortium IVIember Libraries

http://archive.org/details/massachusettseducOOmass

TABLE OF CONTENTS

PART ONE: VISION

1

.

What is a school council? 1

2. What is the reason the Education Reform Act calls forestablishing school councils? 1

3. What are the educational benefits ofsite-based decision making? 1

4. How does the establishment of schoolcouncils enhance the benefits ofsite-based decision making? 2

PART TWO: LEGAL RESPONSIBILITIES

A. Establishment of councils

5. Are all schools required to establisha school council? 3

6. If a school already has a council, site-based team, orsteering committee that meets the requirements of the lawfor the composition of school councils, may itconsider that team as its school council? 3

7. Who makes the determination that an existinggroup meets the requirements of the mandatefor establishing school councils? 3

8. Who is responsible for organizing aschool council? 3

9. Is there a timeline for when councilsneed to be established? 3

10

.

To whom do councils report? 4

B. Membership Composition

11

.

Who is to be on the council? 4

12

.

How many members should the council contain? 4

Table of Contents (cont.)

13. What is the reason for parity in representationamong parents, community members, and schoolprofessionals? 5

14. What is the term of office for council members? 5

15. Can non-classroom based school professionalsserve in the "teacher" membership categoryon the council? 5

16. Can other school staff serve on the counciland, if so, in what membership category? 5

17. Can an individual who is a teacher at anotherschool in the district serve as an "otherperson" community member of the council? 6

18. Can the same individual serve as an "other person"member on a number of different school councils? 6

19. Can school committee members serve on acouncil in the school system that isoverseen by the school committee? 6

C. Membership Selection

20

.

How are members to be selected? 6

21. What is the definition of a "parent -teacherorganization? " 7

22. If a school has more than one parent -teacherorganization, which organization elects theparents for the council? 7

23. What happens if there is no parent -teacherorganization to hold the election of parents? 7

D. Councils' Responsibilities

24. What are the main areas of responsibilityfor school councils? 8

25. What are the elements of the annualschool improvement plan? 8

26. What are some areas in which councilscannot be involved? 9

Table of Contents (cont.)

E. Internal Operations

27. What requirements are councils subject to as aresult of their need to comply with the OpenMeeting Law? 9

F. Accountability

28. What authority do local school committees haveover school councils? 10

29. Can a school committee reject a council's planeven if nothing in it violates current schoolpolicy? 11

30. Are school council members "public officials"and as such subject to conflict of interestprovisions? 11

31. Are the composition, role, and functions of the schoolcouncil subject to collective bargaining? 11

PART THREE: SUGGESTED PRACTICES IN IMPLEMENTING SCHOOL COUNCILS

A. Membership

32. If there is no parent -teacher organization, what aresome other ways of ensuring representativeness inthe election of parent members on the council? 12

33. Should council members serve for fixed terms? 12

34. What role can the "non-school" communitymembers of the council play? 13

35. What are some ways of recruiting the non-schoolcommunity members of councils? 13

B. Decision Making and Internal Organization of the Council

36. What are some minimal recommendations regardingoperating procedures for school councils? 14

37. Should a council make decisions by consensusor by majority rule? 15

3 8 . Does consensus mean unanimity? 15

39. What are some basic rules that can facilitateshared decision making? 16

Table of Contents (cont.)

C. Representation and Community Outreach

40. How can school councils maximize theirrepresentativeness and become more inclusivein their decision making? 16

41. How can the school council be coordinated withother councils or advisory committees thatexist at the school? 17

D. Self -Assessment and Improvement

42

.

What factors can be used to determine that councilshave been effective and successful? 18

43. What kind of technical assistance and trainingwill councils need? 18

PART FOUR: SPECIAL SITUATIONS

44. If a district has several small schools, can theyform one council? 20

45. If a school district has several small schools underthe leadership of the same principal, must he/shebe the chair of each school's council? 20

46. Since secondary schools have diverse faculties,how can the election process of teachers at thesecondary schools ensure that this diversity isrepresented on the council? 20

APPENDIXMassachusetts General Laws Chapter 71, Section 59C (as added bySection 53 of Chapter 71 of the Acts of 1993) 21

PART ONE: VISION

1. What is a school council?

A school council is a representative, school building-basedcommittee composed of the principal, parents, teachers, community-members and, at the secondary level, students that each school isrequired to establish pursuant to Mass. General Laws Chapter 71,Section 59C of Section 53 (as added by Section 53 of Chapter 71 ofthe Acts of 1993 . )

2. What is the reason the Education Reform Act calls for establishingschool councils?

Teachers, parents, and community members can become more committedto improving the schools and more supportive of the public schoolsystem when they enjoy the opportunity to serve or be representedon a school council that has a role in shaping the policies andprograms of the school. One Massachusetts school system, whichinstituted site-based decision making and school councils prior tothe statewide mandate, includes the following preamble in itsguidelines for councils:

Values behind site-based decision making throughcouncils : [the council] improves student outcomes by-

uniting, in responsible participation, those closest tothe teaching-learning relationship ; [the council] createsthrough the development of a shared vision and planninga school environment which unites all members of theschool community in a sense of belonging, commitment andgrowth

.

3. What are the educational benefits of site-based decision making?

Site-based decision making places the school at the center ofplanning, goal setting, and budgeting for school improvement. Itprovides additional opportunities for teachers and administratorswho are closest to the teaching- learning process to be innovativeand creative. Site-based decision making also allows teachers andadministrators to work with parents and the community to becomemore responsive to the needs of a particular school's population.For example, the teachers at a particular school may find that,because of the characteristics of their students, they have a needfor a particular type of inservice training that is not offered orneeded district-wide. Under site-based decision making, thisschool may be given the discretionary authority over staffdevelopment resources to meet this need.

4. How does the establishment of school councils enhance the benefitsof site-based decision making?

School councils enhance site -based decision making because theyexpand the participation of the school community in its schools'decision making. The involvement of different groups on thecouncil -- teachers, parents, and non-parent community members --

provides the school with different and mutually complementaryperspectives on its improvement goals and plans. In addition, byinvolving people who work in and support the school in thedevelopment of the school's improvement plan, the likelihood willincrease that the plan will be successfully implemented.

PART TWO: LEGAL RESPONSIBILITIES

A. Establishment of Councils

5. Are all schools required to estcdDlish a school council?

Yes. The law requires that there be a school council "at eachpublic elementary, secondary and independent vocational school inthe Commonwealth."

6. If a school already has a council, site-based team, or steeringcommittee that meets the requirements of the law for thecomposition of school councils, may it consider that team as itsschool council?

Yes. The law allows for this possibility. It reads:

Nothing contained in this section shall require a newschool council to be formed if an existing school councilfulfills the intent of this section, the parent andteacher meinbers thereof were selected in a mannerconsistent with the provisions of this section and themembership thereof complies with the aforesaid fifty-percent requirement.

7. Who makes the determination that an existing group meets therequirements of the mandate for establishing school councils?

Local school committees are responsible for ensuring that councilmembers are selected through a representative process. If thereare any questions about whether an existing group meets therequirement of the legislation, these questions are to be resolvedby the Department of Education.

8. Who is responsible for organizing a school council?

The law explicitly gives the school principal responsibility fordefining the composition and overseeing the formation of thecouncil pursuant to a representative process approved by thesuperintendent and school committee. As co-chair of the council,the principal is also responsible for convening the first meeting-of the council. At this meeting, the other co-chair is to beelected.

9. Is there a timeline for when councils need to be estedslished?

Yes. The law gives principals responsibility "for convening thefirst meeting no later than forty days after the first day ofschool .

"

10. To whom do councils report?

Councils are to assist principals by reviewing the school buildingbudget, in developing the school improvement plan, and in any otherareas in which a local school committee may grant policymakingauthority to local councils.

Councils' school improvement plans are submitted to the localschool committee for review and approval

,

B. Membership Composition

11. Who is to be on the council?

The legislation specifies that the council is to consist of parentsof students attending the school, teachers, and "other personsdrawn from such groups or entities as municipal government,business and labor organizations, institutions of higher education,human service agencies or other interested groups." Also, forschools containing any of grades nine to twelve, there should be atleast one student on the council

.

12 . How many members should the council contain?

The law leaves it up to each principal, "pursuant to a representa-tive process approved by the superintendent and school committee,"to define the size and make up of the council. It does, however,make three stipulations about membership.

(1) Parents "shall have parity with professional personnel on theschool councils." Regardless of the size of the council, thenumber of parent representatives should be equal to the numberof teachers who serve on the council plus the principal.

(2) "Not more than fifty percent of the council shall be non-school members." "Non- school members" are defined as memberswho are "other than parents, teachers, students and staff atthe school .

"

(3) The membership of school councils "should be broadlyrepresentative of the racial and ethnic diversity of theschool building and community.

"

What is the reason for parity in representation among parents,cozmnunity members, and school professionals?

The provision of "parity" is based on the experience of the Chapter188 school improvement councils and the national research oneffective school -community councils. Research on small groupdynamics in groups that mix lay people (e.g., parents) andprofessionals has shown that when lay people are outnumbered theyare not likely to articulate their special perspective as"customers" of the school. "Parity" provides a critical mass inwhich parents can feel comfortable in expressing their views whileeducators retain a strong voice on the council

.

In situations in which differences of opinion are split along lay-professional lines, "parity" creates pressure for compromising andreaching consensus, since neither side can override the other withits numerical majority.

What is the term of office for council members?

The legislation is silent on this issue, leaving it up to theindividual principals to make this determination. For a discussionof the knowledge -base on effective school council functioning inthe area of open-ended versus fixed terms of office, please seeQuestion 33, below.

Can non-classroom based school professionals serve in the "teacher"membership category on the coiincil?

Yes, if they are selected by the faculty at the school. Otherprofessional personnel -- resource room teachers, specialists,counselors, etc. -- provide services to students and bring anotherperspective to the council's discussions and planning process.

Can other school staff serve on the coxincil and, if so, in whatmembership category?

"Other school staff" includes custodians, lunchroom staff, andothers who are not education professionals. Like non-classroombased education professionals, these people can provide animportant perspective on the needs of the school and its students.Other school staff, who are not parents, teachers, or students atthe school, may be appointed to serve as council members. It isimportant, however, to maintain a balance so that the council's"other person" membership category is not filled exclusively oreven predominantly by school employees.

17

.

Can an individual who is a teacher at another school in thedistrict serve as an "other person" connnunity member of thecouncil?

The law is silent on this matter. It defines the "other person" assomeone who is "not a parent or teacher of students at the school."It further describes the "other persons" on the council as "drawnfrom such groups or entities as municipal government, business orlabor organizations, institutions of higher education, or otherinterested parties." Therefore, a teacher or administrator fromanother school in the district who is a member of any of the groupsenumerated above can serve as an "other person" on any schoolcouncil. In filling these positions, it is important to maintaina balance in representation between educator and lay members of thecouncil in order to adhere to the "parity" standard referred to inthe law.

18. Can the saune individual serve as an "other person" member on anumber of different school councils?

Yes. There is nothing in the legislative language that prohibitsthis practice. Schools and school systems that exercise thisoption will want to consider the value-added benefit of having keycommunity resource people serving on multiple councils: will theirtime and energy be stretched too thin?

Service on multiple councils may make sense, however, in instancesin which a business, human service agency, or higher educationinstitution is part of a partnership consortium with severalschools.

19. Can school committee members serve on a council in the schooldistrict that is overseen by the school committee?

A school committee member who is a parent of a student attending aschool can run and be elected to serve as a parent member of acouncil. It is contrary to the spirit of the law, however, for aschool committee member to be appointed to serve as an "otherperson," or public member of the council. The intent is to widenthe base of citizen involvement and support for the school. Schoolcommittee members are already involved at the highest level oflocal school governance

.

C. Membership Selection

20. How are members to be selected?

The legislation provides local leeway in the election process. Itdoes, however, affirm the principle of peer selection:

• Parent members are to be selected by the parents of studentsattending the school, in elections held by the localrecognized parent- teacher organization.

• Teacher members are to be selected by the teachers in theschool

.

By extension, the spirit of the legislation and the experience ofgood practice suggest that student council elections or otherrepresentative processes be used to select the student member.

Non-school members may be recruited by principals directly orselected by the organizations that are invited to sendrepresentatives to the council.

21. What is the definition of a "parent- teacher organization?"

There are often a number of parent groups working in or withschools. Such groups may advise a particular program area, planand implement special events, or function as subcommittees oflarger groups. The parent-teacher organization that would beresponsible for holding elections for parent representatives to theschool council is that parent organization which is most represen-tative of the entire parent constituency.

22. If a school has more than one parent-teacher organization, whichorganization elects the parents for the council?

Schools that have more than one equally representative parent

-

teacher organization should determine a collaborative process forelecting the parent representatives on the council. Two or moreorganizations may collaborate to hold an open schoolwide electionof parents.

The primary consideration is that the election of parents be asopen and inclusive as possible. Any parent, regardless ofmembership in a parent -teacher organization, is free to 1.) runfor election to and 2.) vote for parent representatives to thecouncil

.

23. What happens if there is no parent-teacher organization to hold theelection of parents?

In such a case, the principal is responsible for developing arepresentative election process, subject to approval by thesuperintendent and school committee

.

D. Councils' Responsibilities

24. What are the main areas of responsibility for school councils?

The law outlines four major areas of responsibility for councils.School councils are to assist principals in:

(1) Adopting educational goals for the school that are consistentwith local educational policies and statewide studentperformance standards

(2) Identifying the educational needs of students attending theschool

(3) Reviewing the annual school building budget

(4) Formulating a school improvement plan

In addition, the law states that "nothing contained in this sectionshall prevent the school committee from granting a school counciladditional authority in the area of educational policy; provided,however, that school council shall have no authority over matterswhich are subject to chapter one hundred and fifty E of the GeneralLaws." (Question 26, below, addresses Chapter 150E,)

25. What are the elements of the annual school improvement plan?

The school improvement plan, as described in the legislation, hasthe following elements:

(1) An assessment of:

• The impact of class size on student performance

• Student to teacher ratios

• Ratios of students to other supportive adult resources

(2) A scheduled plan for reducing class size, if deemed necessary

(3) Professional development for the school's staff and theallocation of any professional development funds in the schoolbudget

(4) Enhancement of parental involvement in the life of the school

(5) School safety and discipline

(6) Establishment of a school environment characterized bytolerance and respect for all groups

8

(7) Extra-curricular activities

(8) Means for meeting, within the regular education programs atthe school, the diverse learning needs of as many children aspossible, including children with special needs currentlyassigned to separate programs

(9) Any further subjects the principal, in consultation with theschool council, shall consider appropriate

In addition, in school systems with language minority populations,the professional development component of the council's plan shalladdress the need for teachers' professional development on secondlanguage acquisition and on working with culturally andlinguistically diverse student populations.

What are some areas in which councils cannot be involved?

The law enables school committees to grant school councilsadditional authority in the area of educational policy except formatters covered by Chapter 150E of the General Laws. Chapter 150Egoverns labor relations and collective bargaining for publicemployee including teacher contracts. This provision leaves suchissues as compensation, workload, conditions of work and workerevaluation procedures subject to collective bargaining.

Good practice suggests that a council should not become involved asan ombudsman or a grievance committee in individual cases thatinvolve students, parents, teachers and other school staff.

Internal Operations

What requirements are councils subject to as a result of their needto comply with the Open Meeting Law?

The law leaves it up to each council to determine its own rules ofoperation except that "meetings of the school council shall besubject to the provisions of sections twenty-three A, twenty- threeB and twenty-three C of chapter thirty-nine." These sections ofthe Massachusetts Open Meeting Law require councils to:

• Hold all meetings in public and allow anyone in attendance toaudio and/or video-tape the proceedings as long as it is notdisruptive to the meeting.

• Post a notice of each meeting at a public place at least 48hours prior to the meeting.

• Keep minutes indicating the date, time, place, members presentand absent, and actions taken.

• Adhere to a quorum, which is to be defined as a majority ofthe council members.

F. AccountcLbility

28. What authority do school committees have over school councils?

The relationship between school committees and school councils hasa strong potential for reaffirming and strengthening lay-governancein public education.

The law provides for an explicit oversight role for schoolcommittees. School committees have responsibility to:

• Set district -wide performance standards and educationalpolicies that building level school improvement plans musttake into account

.

• Review and approve building level school improvement plans.

• Approve a representative process for the election of parentmembers of the council in instances in which there is no"locally recognized parent -teacher organization" to conductsuch an election.

The intent of the law is to provide for a more participatory styleof management at the school building level . School committees canwork with the superintendent and engage the whole community indeveloping local guidelines that achieve the legislation's intent.School committees can, at their option, develop local guidelinesthat

:

• Define the review process for the school improvement plans.

• Set targets for ethnic representativeness on the council

.

• Set the terms of office for council members and set otherguidelines for councils that reflect school committees'experience and practice in participatory and inclusivedecision making. However, the guidelines cannot impedecouncils' obligation to fulfill their mandated functions.

• Describe additional elements to be addressed in each school'simprovement plan.

Finally, the law does not require, but does enable, schoolcommittees to "grant school councils additional authority in thearea of educational policy."

10

29. Can a school committee reject a council's plan even if nothing init violates current school policy?

The law gives school committees final authority to approve theindividual school plans

:

Each school improvement plan shall be submitted to theschool committee for review and approval every year. Ifsaid school improvement plan is not reviewed by theschool committee within thirty days of said schoolcommittee receiving said school improvement plan, theplan shall be deemed to have been approved.

A clear and published set of school committee expectationsregarding individual school plans can reduce the possibility ofdisapproved plans.

30. Are school council members public officials who are subject to theconflict of interest law by virtue of their council membership

The school council statute is silent on this issue. In contrast,the previous statute on school improvement councils specified thatall members of the school improvement council would be subject toG.L. Chapter 268A, the conflict of interest law. We are seekingguidance from the State Ethics Commission, the agency that overseesthe conflict of interest law, and will publish the information wereceive. In the meantime, council members who may have a financialinterest (either personally, through their business, or through animmediate family member) in matters that come before the councilfor action, should request advice from local counsel or the StateEthics Commission before participating in such action.

31. Are the composition, role and functions of the school coxincilsubject to collective bargaining?

To the extent that the composition, role, and functions of theschool council are defined by statute, those matters are notsubject to collective bargaining. For example, the statutespecifies the proportion of teachers, parents and other members onthe council, and the manner in which teachers are selected. Italso defines the role of the council: to meet regularly with theprincipal and assist in identifying the educational needs ofstudents in the school, reviewing the annual school budget, andformulating the school improvement plan. A school committee maygrant a school council additional authority in the area ofeducational policy, but the statute makes clear that schoolcouncils shall have no authority over matters that are subject toChapter 150E, the state law on labor relations and collectivebargaining for public employees.

11

PART THREE: SUGGESTED PRACTICES INIMPLEMENTING SCHOOL COXJNCILS

A. Membership

32. If there is no parent-teacher organization, what are some otherways of ensuring representativeness in the election of parentmembers on the coiincil?

Developing a process to elect parents to the council in schoolsthat do not have a formal parent -teacher organization can pose aspecial challenge. In these situations, schools can use thefollowing strategies:

• Request existing parents' groups, e.g.. Chapter I ParentsAdvisory Committees, Bilingual Parents Advisory Committees,and sports and booster clubs, to nominate candidates fromamong their members; coordinate a run-off election from amongthese candidates.

• Hold elections at the conclusion or beginning of culturalassembly programs, school plays, open-house nights, or othereducational or social events that bring parents into theschool

.

• Hold "at -large" elections from among the parent body bysoliciting nominations through direct mail and school andcommunity newspapers. Request that parents nominatethemselves or others for membership on the council . Thisapproach has been highly successful in generating volunteers.In some schools, a mail ballot run-off election has beennecessary as there have been more volunteers than seats on thecouncils

.

• Invite all parents to a evening informational meeting at whichthe school council is explained and parent council members areelected.

• Announce that elections will be held in conjunction with aforum, possibly with a respected guest speaker, on an issue ofcurrent concern to parents . Elect parent members at theconclusion of the forum.

33. Should council members serve for fixed terms?

The law indicates that the principal "shall have the responsibilityfor defining the composition of and forming the group pursuant toa representative process approved by the superintendent and theschool committee .

"

12

There are two major considerations to weigh in regard to the lengthof council members' terms:

• The value of continuity and experience on the council that isprovided by long term membership.

• The value of having fresh perspectives and increased access tocouncil participation that results from a greater turnover ofmembers

.

Establishing staggered terms for teachers and parent members ofcouncils will help to accommodate the desire for continuity andexpanded access. To create staggered terms, one third of eachmembership category is elected for terms of one, two, and threeyears in the initial year of the council. These members can be re-elected for a full term when their term expires. Non-schoolmembers that formally represent community organizations cancontinue to serve at the pleasure of the sending organization.

34. What role can the "non-school" conmunity members of the coxincilplay?

Community representatives may have areas of special interest,expertise, and contacts that can help the school council to be moreeffective and creative in its approach to school improvement.Community representatives bring a broader community orientation tothe council by acting as:

• Resource linkers who establish contacts with community serviceorganizations, other service agencies, and business groups.

• Specialists in technical areas of expertise.

• Contacts to civic organizations and the larger non-parentcommunity.

35. What are some ways of recruiting the non-school, community membersof covincils?

Schools can use several strategies to select the non- schoolcommunity members

:

• The school committee may identify a pool of community leadersand community organization representatives with an interest inworking on and supporting school improvement. Schools canselect, from this pool, individuals to whom invitations areoffered to join the council.

• School committees can provide local guidelines for theidentification of community organizations and constituenciesfrom which non-school members of councils could be selected.

13

These organizations and constituencies, which could includehigher education, cultural and human service agencies,

business, senior citizens, etc., could be invitedto recommend individuals who would be interested inserving on the council

.

. • Schools with contacts with the community through volunteer andother partnership programs that involve "non-parents" fromhigher education, business, cultural and human service, orother institutions can invite these partners to designaterepresentatives to school councils.

B. Decision Making and the Internal Organization of the Council

36. What are some minimal recommendations regarding operatingprocedures for school councils?

Experience shows that all effectively functioning councils addressthe following operational issues:

(1) Number and schedule of meetings: A front-end decision aboutthe number and the schedule of meetings will enhance theattendance and participation of council members. Becausedifferent schools have different needs and situations,experience has shown it is preferable to allow councils andprincipals make their own determinations about the time andfrequency of meetings.

Councils have adopted one of two general strategies regardingfrequency of meetings:

• Some meet on a regular monthly schedule.

• Others hold regular meetings at the beginning of theschool year and then convene on an "as -needed" basis toratify and bring closure on the recommendations ofsmaller subcommittees or working groups of the council.Advocates of this approach maintain that it conserves thetime and energy of busy people and avoids meeting "forthe sake of meeting."

(2) Agenda: Simple written agendas keep meetings focused andprovide continuity from meeting to meeting. When publiclyposted, agendas can serve as an invitation for otherinterested members of the school and community to provideinput to the council

.

(3) Minutes: Minutes are required by the Open Meeting Law andprovide continuity from meeting to meeting. Minutes help tokeep the larger school community informed about the activityof the council.

14

(4) Subcommittees: Subcommittees provide for a division of laborand allow different council members to focus on their areas ofinterest and expertise.

37. Should a council make decisions by consensus or by majority rule?

Both methods are used by councils. A major product of the councilwill be the school improvement plan, which is designed to coordi-nate the school's resources and unite the efforts of those who careabout the education of students. Schools with experience inschool -based planning by teams report that it does not make senseto adopt such a plan through a split vote. They recommendconsensus decision making.

Consensus decision making, however, can be painstaking and timeconsuming. Some councils find it useful to adopt a dual -level ofdecision making: consensus can be used on major issues such as thedevelopment of the school plan or the review of the school budget;majority vote can be used on procedural questions and on other lessfundamental issues.

38. Does consensus mean luianimity?

No. Consensus is a way of working together that does notnecessarily mean unanimity of agreement . Members of a consensusdecision making process may disagree with a final decision but yetagree to go along with it . At the heart of the consensus processis the importance of each group member's viewpoint and the fullopportunity to express these views. Under a consensus process, itis perfectly acceptable for a member to say, "I disagree with thisdecision; I've told everyone how I feel and the group has listened.However, I'm willing to support the decision in order to try itout .

"

The hallmarks of a consensus method are that:

• Council meetings are viewed as problem- solving sessions andnot as competitive, win-or-lose events.

• All members have a chance to state their views.

• Periodic "straw polls" are taken to identify the common groundamong divergent viewpoints

.

• All members are willing to support the majority decision.

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39. What are some basic rules that can facilitate shared decisionmaking?

The law contains language such as "assist" or "consult with" theprincipal. Clearly it envisions that councils will share indecisions that are the formal prerogative of principals, to whomthe law has given increased responsibilities for the operationalmanagement of the school

.

Experience suggests that there are a few basic rules that can turnshared decision making into a collaborative and positiveexperience.

Rule No. 1: Explicitly state the issue that must be decided andwhy. Where does the problem originate? What values are at stakeif the problem is not addressed?

Rule No. 2: At the outset, communicate clearly who will make thedecision and identify any constraints that will affect the scope orcontent of the decision.

The authority to decide and the ability to implement are twodifferent matters. Accordingly, all of the constraints onschools -- budget, staffing, time, pre-existing regulations, and soon -- should be laid out on the table as the group begins itsdecision-making process.

Rule No. 3: Keep in touch. Communicate formally with all of thoseinvolved in the decisions that are being made. "Formalcommunication" means that a commitment to communicate is explicitand is bound by a timeline. For example, when a council conductsa survey, a needs assessment, or when its members formally consulttheir constituents, these outreach efforts should culminate insubsequent feedback from the council on how this information wasused by the council. In the same spirit, principals, schoolcommittees and other school officials who are the recipients of thecouncil's recommendations should agree on a timeline and a formatfor a response even, and especially, when a recommendation cannotbe approved

.

C. Representation and Commxinity Outreach

40. How can school councils maximize their representativeness andbecome more inclusive in their decision making?

"Inclusively" refers to a way of doing business that provides forcontinual contact between the council and the school and communityconstituencies it represents. Councils can become more inclusiveby:

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• Exceeding the requirements of the open meeting law by givingmore notice of the time and place than the law requires and by-including the agenda in the posted notice.

• Setting aside the last few minutes of each council meeting todevelop a preliminary agenda for the next meeting. In thisway, council members can informally canvass the thoughts andopinions of the constituents they represent in betweenmeetings

.

• Providing for a public comment period at every councilmeeting. During this period, council members or visitingmembers of the school and community can bring their issues tothe attention of the council. Please note: the ground rulesfor such sessions should rule out individual grievances (e.g.,a parent's complaint about a class placement) and personnelissues requiring confidentiality.

• Establishing subcommittees with extended memberships. Anextended subcommittee typically consists of one or two membersof the council and other volunteers from the school andcommunity who join the group as resource people or interestedparties to work on a specific issue for a finite period oftime. Extended committee membership provides an opportunityfor involvement for parents, teachers, and community memberswho do not have the time or interest to serve on a permanentstanding committee.

41. How can the school council be coordinated with other coiincils oradvisory committees that exist at the school?

In some schools, the creation of a school council will requirediscussion and understanding of the council's "boundaries" and howthe council interacts with other groups already in existence in theschool or the school system. Such coordination will help to ensurethat various groups within the school do not exist in isolationfrom each other, duplicate efforts, or develop conflictingprograms

.

When groups within a school or a school system collaborate witheach other and the school supports rather than hinders thiscooperation, it is more likely that common goals will be achieved.Schools can develop several ways for coordinating school councilswith existing governing and advisory structures, as the followingsuggestions indicate:

• Organize the school council as an umbrella organization withnon-voting representation from other councils and committeesin the school or school districts.

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• Develop a system of councils and committees which hasoverlapping representation for coordination and collaborationof activities.

• Organize the school council as a subcommittee of a largerumbrella group.

• Establish communication among the school council and otherexisting councils through designated liaison people.

• Involve members of other councils or advisory committees asextended members of specialized subcommittees that advise theschool council

.

D. Self -Assessment and Improvement

42. What factors can be used to determine that councils have beeneffective and successful?

There are several indicators that can help councils periodicallyand informally to assess their functioning. These include:

• Membership: Is the council reasonably representative of thesocio-economic and ethnic make-up of the school community?

• Internal functioning: Do council meetings have goodattendance? Does the council reach closure on importantissues?

• Representativeness and communication: Did the council involvethe larger community in its work? Have other members of theschool community asked for time to make presentations to ormeet with the council? Is the school community aware of thecouncil's "product," i.e., the school improvement plan? Howis information about this plan communicated?

• Resource enhancement : Has the council used its outreachability and the involvement of its community members toestablish links with groups that could make potentialcontributions to improving the school? These contributionscould include new perspectives, skills, in-kind contributionsof time and knowledge, and material resources.

13 . What kind of technical assistance and preparation will councilsneed?

Ongoing training and technical assistance will be a key ingredientin maximizing school councils' effectiveness.

A. For all council members, some training and orientation will beuseful in the following areas:

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• An explanation of the state law establishing thecouncils. This booklet may be a useful resource.

• A basic orientation on the fundamentals of schooldistrict operations. These fundamentals could includeinformation on the system's goals and philosophy,constraints placed by federal and state laws andcollective bargaining agreements, and laws and policieson who makes the final decisions on specific issues.

• A district-specific orientation regarding localexpectations for school councils. This could include butnot be limited to:

• Systemwide performance standards and educationalpolicies that need to be reflected in an individualschool's improvement goals.

• School improvement planning formats that meshbuilding- level and district -wide improvement plans.

• School committee criteria (if existing) andprocedures for the review and approval of eachschool's improvement plan.

• The district's budget making process and calendar.

• Any school committee guidelines for schoolcouncils' involvement in "other areas of schoolpolicy" as allowed for in the legislation

• A brief overview of the elements of good practice thatcould be based, in part, on material contained in thisbooklet

.

The above "basic training" and orientation sessions could beincluded as part of each council's initial set of meetings orschool systems may choose to hold a systemwide orientationmeeting for all council members.

B. Councils may also benefit from skill-building on some or allof the following topics:

• Sensitivity training on "active listening" for allcouncil members. Active listening builds group cohesionand enhances the process of consensus decision making.

• Council co-chairs may find it useful to participate in arefresher session on agenda setting and consensusdecision making.

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PART FOUR: SPECIAL SITUATIONS

44. If a district has several small schools, can they form one council?

No. The law explicitly requires that there be a council at "eachschool." The intent of the mandate is to promote site-basedplanning that responds to the unique circumstances at each school

.

45. If a school district has several small schools under the leadershipof the same principal, must he/she be the chair of each school'scouncil?

Yes. However, because the law provides for co-chairs of councils,principals of multiple schools may share and rotate theresponsibility for chairing the councils with their co-chair.

46. Since secondary schools have diverse disciplines and faculties, howcan the election process of teachers at the secondary schoolsensure that this diversity is represented on the council?

The faculty at secondary schools may consist of academic areateachers, pupil services personnel, co-curricular and extra-curricular staff, and vocational teachers in a comprehensive highschool. While it may not be practical to have every arearepresented, secondary schools can use a variety of ways to obtaindiverse representation on the council.

Two examples

:

o Request the academic teachers, the vocational teachers, theco-and extra-curricular teachers, and the pupil services staffeach to meet separately as nominating caucuses to select oneof their peers as a candidate for the school council.

o Stipulate that there can be only one teacher on the councilfrom any one academic department.

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APPENDIXMassachusetts General Laws Chapter 71, Section 59C (as added by

Sectlon 53 of Chapter 71 of the Acts of 1993.)

At each public elementary, secondary and independent vocational school in thecommonwealth there shall be a school council consisting of the schoolprincipal, who shall co-chair the council; parents of students attending theschool who shall be selected by the parents of students attending such schoolwho will be chosen in elections held by the local recognized parent teacherorganization under the direction of the principal, or if none exists, chosenby a representative process approved by the school committee. Said parentsshall have parity with professional personnel on the school councils;teachers who shall be selected by the teachers in such school; otherpersons, not parents or teachers of students at the school, drawn from suchgroups or entities as municipal government, business and labor organizations,institutions of higher education, human services agencies or other interestedgroups; and for schools containing any of the grades nine to twelve, atleast one such student; provided, however, that not more than fifty percentof the council shall be non- school members. The principal, except asotherwise provided herein, shall have the responsibility for defining thecomposition of and forming the group pursuant to a representative processapproved by the superintendent and school committee and for convening thefirst meeting no later than forty days after the first day of school, atwhich meeting a co-chairman shall be selected. School councils should bebroadly representative of the racial and ethnic diversity of the schoolbuilding and community. For purposes of this paragraph the term "non- schoolmembers" shall mean those members of the council, other than parents,teachers, students and staff of the school.

Nothing contained in this section shall require a new school council to beformed if an existing school council fulfills the intent of this section, theparent and teacher members thereof were selected in a manner consistent withthe provisions of this section and the membership thereof complies with theaforesaid fifty percent requirement.

Meetings of the school council shall be subject to the provisions of sectionstwenty-three A, twenty-three B, and twenty-three C of chapter thirty-nine.

The school council shall meet regularly with the principal of the school andshall assist in the identification of the educational needs of the studentsattending the school, in the review of the annual school budget, and in theformulation of a school improvement plan, as provided below.

The principal of each school, in consultation with the school councilestablished pursuant to this section shall adopt educational goals for theschools consistent with the goals and standards including the studentperformance standards, adopted by the board pursuant to section one D ofchapter sixty-nine, and consistent with any educational policies establishedfor the district, shall assess the needs of the school in light of thosegoals, and shall formulate a school improvement plan to advance such goals,to address such needs and to improve student performance. The plan shall

21

include an assessment of the impact of class size on student performance, andshall consider student to teacher ratios and other factors and supportiveadult resources, and may include a scheduled plan for reducing class size.The plan shall address professional development for the school's professionalstaff, the allocation of any professional development funds in the annualschool budget, the enhancement of parental involvement in the life of theschool, safety and discipline, the establishment of a welcoming schoolenvironment characterized by tolerance and respect for all groups, extra-curricular activities, the development of means for meeting the diverselearning needs of as many children as possible, including children withspecial needs currently assigned to separate programs, within the regulareducation programs at the school, and such further subjects as the principal,in consultation with the school council, shall consider appropriate. Inschool districts with language minority student populations the professionaldevelopment plan under this section shall specify how the plan will addressthe need for training and skills in second language acquisition and inworking with culturally and linguistically diverse student populations. Eachschool improvement plan shall be submitted to the school committee for reviewand approval every year. If said school improvement plan is not reviewed bythe school committee within thirty days of said school committee receivingsaid school improvement plan, the plan shall be deemed to have been approved.

Nothing contained in this section shall prevent the school committee fromgranting a school council additional authority in the area of educationalpolicy; provided, however, that school councils shall have no authority overmatters which are subject to chapter one hundred and fifty E.

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