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Illinois School Board Journal
November/December 2006
The 3 R's of board work
Roles, respect, responsibility
by Linda Dawson
Linda Dawson is IASB director of editorial services and Journal editor.
Education has long referred to its basics as the "Three R's": reading, writing and arithmetic. The alliteration helps everyone to focus on the important work of what schoolchildren should know and be able to do.
During the past year, by examining what it looks like to "live" IASB's Foundational Principles of Effective Governance, The Illinois School Board Journal has focused on what could be classified as the "Three R's" of board work: roles, respect and responsibility.
Articles have looked at the role of board work in the first five Principles:
In addition to reflecting the board's role and differentiating between "board work" and "staff work," the first five Principles have an underlying element of respect. The board can't connect well with its community if it does not respect the community's opinions. The board and the superintendent cannot create a good working relationship without mutual respect. The board may not even be able to monitor the district's performance if it does not respect the data and the board's role in the process.
But with the sixth Principle — The Board Takes Responsibility for Itself — the school board comes face-to-face with what may be its biggest "R": responsibility. The sixth Principle states:
The Board, collectively and individually, takes full responsibility for Board activity and behavior — the work it chooses to do and how it chooses to do the work. Individual Board members are obligated to express their opinions and respect others' opinions; however, Board members understand the importance of the Board ultimately speaking with one clear voice.
In order to get a clearer picture of this responsibility, The Journal approached five districts in Illinois and asked their board presidents and superintendents to answer questions related to this Principle. Their answers reflect both how their districts work within these parameters and the struggles they face in doing so.
Taking responsibility
Even though they serve without pay, school board members in Illinois take their jobs seriously. That overall sense of responsibility came through loud and clear in answers from all five school districts.
But with reference to Principle Six, responsibility refers to more than just taking the job seriously. It encompasses all the other Principles and helps to show how they are dependent on fulfilling each in order to achieve the whole.
In speaking of their responsibilities, the superintendents and board presidents reiterated the differentiation of roles that occur if a school board governs according to the Principles. To them, governing responsibly means making decisions based on policies that are aligned with the district's mission, vision and goals.
According to Richland SD 88A's Michael Early and Julie Starasinich, superintendent and board president, respectively, the board of education continues to work toward governing rather than managing. To do this, the board often stops to question how a certain agenda item relates to the board as well as to the district's purpose and mission.
Berwyn South SD 100 Superintendent Patricia Wernet spoke of the "imperative" for all board members to understand their roles and responsibilities and show respect to all members as well as the community. And she also spoke of her own responsibility to guide board members to that knowledge and assist in their professional development.
In addition to being responsible for formulating a vision for the district, Bourbonnais SD 53 Board President Mark Regel said the board has the responsibility "to enact policy that will yield the outcomes embodied within the mission and vision statements." He also spoke of the board's responsibility for "prognostication."
"We have to look into the months and years ahead as our decisions today will have an effect on where the district will go well into the future," Regel said. "Districts are not nimble little boats but large flotillas that require time to turn all of the boats in the same direction without enduring the chaos of a rapid change."
How does an attitude of board responsibility best manifest itself in a district? Robert Madonia and Courtney Stillman, superintendent and board president, respectively, in Frankfort CUSD 157C, compiled an entire list of what this looks like in the real world. Their bulleted items reflect the distinction between board work and staff work laid out in the Principles:
According to Stillman, the Frankfort board knew it was important to select a superintendent who reflected the vision of the district. "We chose a superintendent who could raise morale, complete our district's move toward the middle school philosophy, and provide instructional leadership for gifted learners, learners in the middle and special needs students all in an inclusive setting," she said.
Difficult distinctions
Even though they may understand and respect the distinction between board work and staff work, maintaining that distinction often can be difficult. An important aspect of board responsibility relates to choosing the level of work the board will do and then working at that level. For boards living by the Principles, that work would be at a policy level, not delving into hands-on, day-to-day procedures.
Jim Littleford, superintendent at Altamont CUSD 10, said the distinction between board work and staff work is one that can be difficult for all boards of education.
"One board member recently recalled a comment at a negotiations session that inferred the Board of Education was fiscally responsible for the district while the teachers were responsible for the education of their children," he said. "However, it's never that simple. Policy and policy development must be initiated, interpretations must be made regarding student and staff discipline issues, and teacher evaluations must be reviewed, just to name a few overlapping issues."
The desire to get "down and dirty" in the trenches of district work may be related to board members' passion for their jobs, their sense of community involvement and their years of board service.
"I believe our board understands our roles," said Berwyn South's Board President Joanne Zendol. "However, we can get caught up in the day-to-day or the 'how to' of the district. I think when that happens, we know it and correct it while in the process and back off."
Frankfort's superintendent Madonia feels it is important to continually reinforce the concept of the division of roles with new board members as well as veterans. To do that, his district conducts a team orientation process after each election. "It is clear that the success of our district is due in no small part to the high quality of our board, the clear definition of roles and teamwork," he said.
Sometimes board members are unwittingly sucked into areas of staff work by community members or the media who do not understand the distinctions the district is trying to maintain between its policy side and its administrative side. If school boards are "living" the Principles, their responsibility is to be trustees for the district, not worker bees.
"Conveying to the community that we are their trustees is often difficult," Zendol said. Parents and community members like to call or talk to board members about their aspirations for their children and what they would like to see in the district. But most of their requests should be rightfully directed to administration.
In Richland SD 88A, the board and administration try to impart that trustee role by delineating a formal chain of command that parents and community members should follow to bring their concerns to the district's attention. In Bourbonnais SD 53, it takes the form of a document available to anyone who comes to the boardroom.
"When issues arise, we publicly state our role as a governance body, not a management body," said Bourbonnais' board president Regel, "then we read aloud the policy that governs the issue."
If the policy needs to be reviewed, it is referred to the policy committee for evaluation in light of the current issue. If not, it is referred to the superintendent for resolution, either by his office or the appropriate staff.
"I think this has sometimes surprised our visitors," Regel said, "because they do not always understand our role despite trying to make it clear in various venues."
In addition, Bourbonnais' superintendent, Myron Palomba, said board members are trained on how to deal with issues that come to them directly and how to refer all issues to the superintendent after helping the constituent determine the appropriate person to best handle their issue.
Speaking as one
As difficult as it is sometimes to maintain the distinction between board work and staff work and help a community to understand the difference, it may be just as difficult to learn how to speak with one voice. While boardrooms should be a place for issue discussion and all voices should be respected, once a vote is taken, the decision of the board is the position of the board. Individual board members may hold an opinion, but only actions of the board as a whole hold weight.
"Speaking with one voice can sometimes be confused with an attempt to squash individual thought or dissent," said Regel, Bourbonnais' board president. "Learning to discern the difference is an ongoing process, particularly with new members."
Richland SD 88A's representatives said their board has really embraced this notion, but continues to remind itself that once a decision is arrived at, it must be supported by all.
"At first it may be difficult," Berwyn South's board president Zendol said. "Some board members may feel their voice was not heard, but majority rules and that's the voice we speak. Our board has not gone out publicly after a healthy discussion and said, 'I didn't vote for that' or 'I don't support that.' Our board embraces the 'one voice' concept. So far it's worked; no one has said, 'I told you so.'"
Because there has been little board turnover in Altamont in the past six years (just one new board member), board president Dale Laue said the concept has not been difficult for his board to grasp. The Frankfort board explains the importance of the concept during new board member orientation and feels board members modeling "one voice" helps make the concept more easily grasped.
However, the explanation of the process offered by Bourbonnais SD 53 may come closest to what Principle Six seeks to impart to boards.
"Certainly, all views held by individual members need to be heard, inclusive of those that dissent. Debate is a good thing if done decently, respectfully and with order," said Bourbonnais' board president Regel. "It is not this process that requires a voice of singularity. However, after all views have been heard, decisions made and a vote is cast, where a majority approves or disapproves of a motion, it is now the board's decision in its official capacity. It is at this moment that all members must support the decision of the board and move forward with this board directed action."
"There will always be situations where individual board members feel very strongly about an issue or a situation and they may be tempted to step outside their role," added Palomba, Bourbonnais' superintendent. "The board president plays a pivotal role in assisting the board members to refocus on the concept that individual members have no authority outside the board table and the only decision making/action comes with a majority vote of the board."
Confidentiality
Nowhere do the issues of roles, respect and responsibility come together more profoundly than with the issue of confidentiality, especially with closed session information.
Following discussions of any sensitive issue, Richland's superintendent Early says board members are reminded about confidentiality. "In addition, as a part of the informal orientation, the board president will raise the issue with new members and cite the legal liability that could result," he said.
Dale Laue, board president in Altamont, echoed the practice of periodic reminders of what "closed session" means and that a breach of confidentiality can lead to lawsuits.
"The board relies upon the ability of individual members to respect the need for confidentiality," Bourbonnais' Regel said. "It is useful that board members are aware of the repercussions of such behavior. When this respect for one another is violated, it breeds distrust and ill feelings toward those who breach the confidence of the board."
Regel also spoke of the confusion that can arise when confidential information is released without a good framework for understanding. This also creates the opportunity for the community to engage in harmful rumors and distrust of the board.
"Unfortunately," he added, "there is no statute against this detrimental conduct and it therefore ultimately relies on the board to police itself. The only consequence is the private censure of the violating member and a reprimand by the president of the board and its members."
Even though no statute provides any penalty for releasing confidential information, both non-legal and legal consequences can ensue, according to Melinda Selbee, IASB general counsel, depending on the nature of the of the confidentiality that was disclosed and the scope of the disclosure.
A non-legal consequence may be a loss of credibility. "In my experience," Selbee said, "the loss of an individual's credibility results in diminished effectiveness and support."
Possible legal consequences might include civil suits against the school district or against an individual school board member and will depend both on what was disclosed and to whom.
"For example," Selbee said, "a board member who discloses information during negotiations may be held responsible for any increased costs to the district as a result of the breach of confidentiality.
"Another example is the improper disclosure of private information concerning a student or employee. Again the board member may be held responsible for any resulting damages the district suffers as a result of the improper disclosure."
"Being proactive and not reactive is key," offered Frankfort's superintendent Madonia. "It is proactive to educate board members to the team philosophy and have everyone on the same page. It is reactive to not professionally develop the board and wait for confidentiality breaches to occur with no support from a team."
"It's difficult to go home after a long meeting and not discuss things with your spouse and believe he/she understands the nature and importance of confidentiality," said Berwyn South board president Zendol. "New board members are told and veterans are reminded often, 'What happens in Vegas (boardroom), stays in Vegas (boardroom)!"
Going the extra mile
While serving on a board demands a level of responsibility from all school board members, the president of the board may carry added weight when it comes to living by Principle Six.
"All board of education members must assume the responsibility for these Principles to occur," said Julie Starasinich, president of the Richland board, "but the board president may need to approach an individual member, in a collaborative way, to remind the member of these Principles."
In Altamont, superintendent Littleford believes his board president, Dale Laue, does this by watching body language, leading by example and experience, and providing the opportunity for all to speak at a meeting.
"It is imperative for the board president to model the appropriate behavior," said Berwyn South superintendent Wernet. "The board president must be a leader yet not move too far ahead of the other members."
"A leader will promote the behaviors that protect the dignity of the board and the district and deal with the behaviors of members that serve to injure that dignity," said Bourbonnais' board president Regel. In addition, he sees his role as one of leading the district in a positive direction, focusing the board's attention on the district's vision and mission, and speaking as the voice of the board, rather than his personal feelings.
Talking the talk, walking the walk
School boards that want to govern more effectively don't arrive at that destination overnight. Just as it takes education for a child to reach his or her full potential, it takes professional development for board members to know how to govern well. As IASB's board development staff often reminds people: No one is born knowing how to be a good school board member.
And, as evidenced by the struggles above, even boards committed to governing by policy can encounter real life situations that interfere with their best laid plans.
When new members join the board, whether through election or appointment, an orientation process is an important step to getting them "on board" and up to speed. Whether the process is formal or informal may not be as important as the information conveyed and the opportunities that are presented for further education.
While one district outlined a step-by-step process for orientation that included explanations of budgets, policies, procedures, complaints, teamwork and confidentiality, other districts offered simple statements of how they encourage new members to attend workshops, offer mentoring, conduct district tours and provide information both before and after the election process. What all five districts implied, however, was the importance of bringing new board members into the district family with the information and tools that they will need to accomplish their important new responsibilities.
"The first impression of board work is important," offered Berwyn South president Zendol. Even though her superintendent provides past minutes and samples of board packets as well as reviewing major issues in the district, Zendol takes this as a serious responsibility of her position to welcome and mentor new board members.
One unique aspect Frankfort CCSD 157C offered was a "Board Member of the Month" practice. Each month, a different person answers a questionnaire about his or her personal interests, reasons for seeking election to the board and goals for the district.
"This gave the new member and all other people on the team some personal information about each individual and insight into the perspectives of each board member," said Stillman, Frankfort's board president. "We think this helped board members appreciate each other's background, areas of expertise, interests and viewpoints."
In order to promote a sense of team, Bourbonnais also gives new board members a district shirt, which carries the district logo and identifies the wearer as a board member. "These are to be worn at the member's discretion," board president Regel said, "but are intended to be worn at district functions or in the community to develop a sense of identity with the district and as a display of pride and openness to the community."
Regel also noted that every board meeting is an opportunity for a learning experience. "As we look for continuous improvement within our districts, it shouldn't be lost on us that we can continuously improve as a working board."
Tying it all together
Because this is his first superintendency in Illinois, Bourbonnais' superintendent brings a slightly different perspective to the governance discussion, but one that reflects the connections found within all six Principles.
"After many years in public education in two different states, I can clearly conclude that when the board president trusts the superintendent to be the educational leader of the district and continually communicates that trust to the board," Palomba said, "a climate is created where the board president is able to focus board energy on setting policy. The trust that is created allows the board to rely on the administration to do the work of administering because they do not feel the need to constantly 'check' on daily activities."
Palomba also has seen situations where a board president did not have a good working relationship with the superintendent or the personal leadership skills to guide the board. "Under this scenario," he said, "I have seen divisiveness between board members, the development of micro-management and a general ineffective leadership structure for the district. Personal egos may be the only needs that are met and the overall efforts to focus a system on continuous improvement in student performance flounders."
To be effective, the board of education must take responsibility and monitor itself, said Richland's Early and Starasinich. "This is an ongoing process. The board will continue to develop parameters and procedures toward the desired end of each individual board member accepting the responsibility of the whole board and governance of the district."
Editor's note
The Journal extends its thanks to the following board presidents and superintendents for answering questions related to the sixth of IASB's Foundational Principles of Effective Governance:
Altamont CUSD 10: Dale Laue, board president; Jim Littleford, superintendent
Berwyn South SD 100: Joanne Zendol, board president; Patricia Wernet, superintendent
Bourbonnais SD 53: Mark Regel, board president; Myron Palomba, superintendent
Frankfort CCSD 157C: Courtney Stillman, board president; Robert Madonia, superintendent
Richland SD 88A: Julie Starasinich, board president; Michael Early, superintendent
What it means to be a 'perfect' board
In 2005, Calvin K. Clemons wrote a 110-page "primer" on what it means to be a member of a "perfect" board of directors. While not all the qualities his new board member learns from a long-time board member are applicable to school boards, the following attributes, listed with permission of the author, correlate with IASB's Foundational Principles of Effective Governance:
A Director must be informed. It is not acceptable to say you did not know about an issue. It is your duty to be fully aware of the Board's issues and actions. Moreover, a Director must insure that the organization gathers the information necessary to explore the issues and make thoughtful decisions.
By revealing confidential information, working relationships can be undermined and the effectiveness of the Board to get its job done can truly be compromised.
By respecting other's time and views, you open yourself up to receiving respect from your peers. They will also recognize that you are respectful and they can count on you to value their opinions. This is important since it helps you build positive and productive relationships.
The Board of Directors is empowered to ensure that the organization operates smoothly and effectively. The Board does not "run" the organization.
The work and policy execution is typically delegated to staff, committees, volunteers, consultants, advisors and other persons who assist the Board in achieving the organization's goals and objectives.
The Board does not do the work! This is an important distinction. Rather the Board makes policy and strategic decisions. The Board follows up, monitors and evaluates the implementation of those policies and decisions. This is called "macro-management."
Too often a Board becomes entangled in the day-to-day operations of the organization. This is called "micro-managing" and can have negative and sometimes damaging effects on the staff and other work bodies.
Boards can solve the problems of interference by establishing performance guidelines for themselves as well as their staff. Performance should be evaluated on a regular basis and might even be included as a part of the regular reports.
Calvin K. Clemons, The Perfect Board, Synergy Books, 2005