Back to: Parent InvolvementResponses to 'Involving Parents and Community in Schools' SSTA Consultation
SSTA Research Centre Report #97-11: 15 pages, $11.
| Introduction Will the proposed School Community Council enhance parent and community involvement in school? How will the proposed School Community Councils change the role of the school principal? Who should have a say in a School Community Council? How should the School Community Council be elected? What is the desired role of a School Community Council? Are the proposed changes desirable? What kind of support is necessary to ensure School Community Councils are effective and accountable? |
In August, 1997 Saskatchewan’s Minister of Education issued a discussion paper entitled Involving Parents and Community In Schools. This paper proposed the establishment of a common school level governance structure for rural, urban and northern communities. Responses to the proposal were invited. During August and September of 1997, the Saskatchewan School Trustees Association organized a series of ten consultation meetings across Saskatchewan to consider the Minister’s proposals and to seek input into the development of an Association response. This report summarizes the ideas discussed at these consultation meetings and includes representative quotations from written comments received. Responses to a set of survey questions are included from 441 individuals. An Association response to the proposed changes to school level governance will be considered at the fall branch meetings. The opinions and ideas summarized in this report serve to inform these discussions. |
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responsible for making decisions.
In August,
1997 Saskatchewan’s Minister of Education issued a public discussion paper entitled
Involving Parents and Community In Schools: What is the Appropriate Support Structure and
Role? The paper proposed the establishment of a common school level governance structure
for rural, urban and northern Saskatchewan. Responses to the proposal were invited.
During August and September of 1997, the Saskatchewan School Trustees Association organized a series of ten consultation meetings across Saskatchewan to consider the Minister’s proposals and to seek input into the development of an Association response. This report summarizes what was said at these SSTA consultation meetings. Additional resources developed by the Association regarding parent and community involvement are available from the SSTA web site at http://www.ssta.sk.ca.
Consultation meetings were organized in each branch of the Association in the following Saskatchewan communities:
Grenfell |
Rosetown |
La Ronge |
Saskatoon |
Melfort |
Swift Current |
North Battleford |
Weyburn |
Regina |
Yorkton |
More than 650 individuals from the following groups participated in these consultation meetings:
References to division boards of education include public and separate boards and conseils scolaires fransaskois.
A discussion guide and survey instrument were developed by the SSTA Research Centre to gather feedback. A copy of the discussion guide and survey instrument are attached as appendix ‘A’.
Written presentations were received by the Association from 441 individuals. A summary of all written responses to the survey questions is reported in Appendix ‘B’.
The 441 written responses were made in the following proportions:
Division Board Trustees |
173 |
39% |
District Board Trustees |
141 |
32% |
Local School Advisory Committee Representatives |
56 |
13% |
Educational Administrators |
51 |
12% |
Others (Home and school committee representatives, unaffiliated parents and community members) |
11 |
3% |
No identity reported |
9 |
1% |
This report summarizes the ideas and includes representative quotations from the written comments. Responses of division board trustees, district board trustees and local school advisory committee representatives are illustrated in bar charts. A summary of these responses to the survey questions is reported in Appendix ‘C’.
The Association wishes to express its appreciation to the many people who took
time to participate in sharing ideas and responding to the Minister’s proposal for increasing the involvement of parents and community in Saskatchewan schools.
Will the proposed School Community Council enhance parent and community involvement in school?
Clarify the Rationale. Participants questioned the rationale for the Minister’s proposal. The generic purposes stated in the report are not perceived to reflect the Saskatchewan reality. A good deal of cynicism was expressed about the ‘unstated’ motives of the government. Typical comments included:
"The local board is working well in our community as it is now and has credibility."
"If it ain’t broke, don’t fix it!"
"Schools today are more open and inclusive than ever -not perfect but on the right track. The number of opportunities for involvement are unlimited."
"I believe it is the intention of the government to undermine the local board of trustees and replace them with apolitical school community councils because local boards of trustees present an effective barrier to small school closures and are an effective impediment to unnecessary restructuring."
Who are the parents calling for greater involvement? Participants stated that their school offered numerous opportunities for meaningful involvement, but only a small core of parents were active. For most communities, creative approaches and a good deal of encouragement was required to get parents involved. Some participants suggested that the Minister was giving too much credibility to individuals who could not get elected to the local board.
| What Was Said Most participants agreed that parents are as involved as they would like to be in their children’s schooling. (2.93 of 4.00). Participants from Local School Advisory Committees (2.50) were equally divided on the question. Participants defined as ‘other’ (2.45) disagreed with the statement. A 1995 opinion poll in Saskatchewan found that 61% of parents stated they are as involved as they would like to be. SSTA Report #95-07 (1995) Public Opinions About Education In Saskatchewan |
| What Was Said Mild agreement was stated for parents having an adequate say in school decisions that affect their child (2.56 of 4). District Board Trustees (2.48) and Local School Advisory Committees (2.15) disagreed. The 1995 opinion poll found that six in ten parents of school aged children (60%) believe they have an adequate say in school decisions that affect their child. One in three (33%) do not. SSTA Report #95-07 (1995) Public Opinions About Education In Saskatchewan |
Typical comments included:
"Who are these parents and community members that are askingfor a stronger voice in education? Are they presently on a school board? If so, what do they feel is the major problem? If not, why aren’t they school board members? And why aren’t they speaking directly to teachers and principals and the director of education in their division?"
Support Evolutionary Improvement, Not Change for the Sake of Change. Participants expressed general satisfaction with the current structures encouraging parent and community involvement. Identified needs included support for improved parenting and more time and resources; not a different structure. Participants suggested that more support and skilled leadership were necessary to build good working relationships. Even the most effective School Community Councils will be limited by inadequate funding for education, lack of support for provincial curriculum changes, and the potential dominance of staff interests over what is best for children. The reluctance of people to get involved was partially attributed to this sense of frustration of not being able to influence what matters and the negative financial climate. Typical comments included:
"If the issue is greater parent and community involvement in education then it will likely be more effective and valuable to enhance the communication, training and involvement of the existing structures."
"I don’t believe any legislated or mandated action with regards to school councils will increase their effective operation or the effective interaction of parents with the school. This is a community cultural component and one fostered by progressive school administrators."
"A new structure alone will not enhance involvement - strategies need to be part of the outcome."
"We are chronically underfunded - by undertaking the school improvement model we could implement these proposals and be much better off for it."
"Has adequate thought been given to supporting the improvement of problem areas rather than changing the entire system?
| What Was Said Most participants stated that the school board is devoting enough time and effort to providing opportunities for parents and interested individuals to have a say in the type of education and manner delivered (2.83 of 4). Local School Advisory Committees (2.43) and the ‘other’ group (2.00) disagreed with the statement. The 1995 opinion poll found that more respondents agreed (54%) than disagreed (37%) that the school board in their area was devoting enough time and effort to providing opportunities for parents and other interested individuals to have a say in the type of education provided and the manner in which it is delivered. SSTA Report #95-07 (1995) |
Government Should Focus on ‘What is expected’ not ‘How it must be done’. Participants expressed concerns about the limitations of attempting to impose a common structure based one set of assumptions for all of Saskatchewan. Participants agreed with the desirability of encouraging parent and community involvement, but wanted to retain what is working well in their community. Many questions and concerns were expressed about how the one-structure model would impact on a particular community. Participants emphasized that if school community councils are legislated, there must be enough flexibility for communities to allow for local adaptations. Typical comments included:
"Why do we need to legislate everything in Saskatchewan? The government will set up a lot of rules and regulations and no one will have the energy to come to meetings, organize, volunteer, etc."
"We should be discussing outcomes, not the processes. What do we want to achieve with a parent council? Focusing on the structure and not the result is misguided."
"How would the requirement to have a council for every school apply to a school division with only one school?"
"Whatever system will need to ensure enough flexibility to allow Saskatchewan communities to do what works best for them. Regardless of what the government legislates, people will continue to do what they are accustomed to."
Focus on Improving Teaching and Learning. Participants expressed concern with the focus on changing governance structures, rather than what needs doing. Frustration was expressed with being powerless to influence the major issues facing children in their school and a perception that government regulations have defeated the capacity of communities to respond. More emphasis should be placed on making the changes that would impact on improving teaching and learning. Typical comments included:
"Don’t spend education money on this type of process."
"Legislated responsibility can not possibly build a community of caring members."
"All types of parent and community involvement should be encouraged."
Use This Process as an Opportunity To Renew Our Commitment. Establishing school community councils was seen as an opportunity to build upon effective practice and to revitalize the efforts of all District Boards of Trustees and Local School Advisory Committees. Typical comments included:
‘A change in local school governance would improve school community communications."
"It would seem desirable to involve more parents in decision-making if they will accept the responsibility."
| What Was Said The proposed new council structure was not seen as a means of enhancing parent and community involvement (2.06 of 4). Lowest support was expressed by District Boards of Trustees (1.79). Most supportive was the ‘other’ group (2.82). |
How will the proposed School Community Councils change the role of the school principal?
Concern with adding expectations for the principalship. Participants expressed concerns about the additional expectations and implications for the school principal. Positive attitudes and effective leadership are necessary to encourage and maintain parent and community support for schools. Participants recognized that principals are already overworked. The principal’s role is viewed as strategic to establishing an effective School Community Council . Additional administrative time will be required or some other responsibility will be neglected. The role of principal will be politicized and detract from the instructional leadership role. Typical comments include:
"This proposal creates additional expectations for a an already difficult position."
"Principals are busy enough already!"
‘The role of the principal changes drastically - from administration and planning for the education of students to community building, service and fundraising. Is this practical?’
"Many good principals do not have the political skills or desire to work in the environment that this would demand. Some could handle this very well but others are not prepared to be in a situation where they are accountable to the director and the board but being told what to do by a group that is not accountable to the board or the electorate."
Ensure that the principal is accountable for the work of the council. Participants recognized the pivotal role of the principal in contributing to the success of a School Community Council. How will the school principal be held accountable? Typical comments included:
"The principal’s support is critical to the success of this proposal. Could a council remove a principal they deem incompetent?"
"There is a potential for principals to intimidate council members."
"A system of checks and balances is essential to ensure that the principal is committed, skilled and effective?"
"I feel that the local boards do not have enough power as it is. We have given direct and strong recommendations to our division board and they have been blatantly ignored because the principal had an opposite view. How can we possible expect fair representation from a principal in the proposed structure?"
Who should have a say in a School Community Council?
Staff participation changes the character of school-level governance.
Some participants favoured including teachers, other staff and students on the school community council but many participants expressed concerns. Including staff on the school community council would influence how discussion of concerns like staff issues and bargaining would have to be addressed. Procedures and expectations for how decisions will be made and who would have a vote with the Saskatchewan School Trustees Association were questioned. Typical comments included:
"Only parents should form the council."
"The only thing in this proposal that is unique when comparing to local boards is including students and teachers in the structure. While this may have some benefit, there are times when the local board may want to discuss sensitive issues without these people."
"Approaches and involvement might have to vary in different situations. If a school council were presented with a staffing or bargaining concern - staff members and students might prefer to limit their involvement."
"Discussion will be strained as most school-level governance issues are related to the work of the principal and teachers."
"Hurt feelings will result."
"Trust and confidentiality are difficult to build and maintain."
"Representation of the principal, teachers and other staff is welcome on the council but cannot have a vote in the process."
"If the parents and teachers do not talk and help each other out we are going no where."
"The school council structure appears to be better for accomplishing things than the current local board. I think principals, staff and staff need to be involved if the body is to do anything meaningful."
| What Was Said District Boards of Trustees (2.47) and Division Board Trustees (2.57) were least supportive of including representatives of parents, teachers, support staff, students, school community and the principal on the School Community Council. Local School Advisory Committees (3.53) expressed the greatest agreement. |
How should the School Community Council be elected?
A democratic election process is essential to the integrity of School Community Councils. Participants stressed the importance of the election process in protecting the school from potentially destructive forces. Selection or appointment of representatives was generally perceived as undesirable. A public election process in a school gym was viewed by many participants as a threat to the importance of trusteeship and to protecting the school from individuals with an ‘axe-to-grind’. Typical comments included:
"The election process protects a school from people with a narrow agenda."
"School community councils could see special interest groups running the school."
"People who cannot get elected to the local board will be able to influence a council."
"Could a principal possibly be so objective as to choose a committee that could actually be representative of the community?"
"The formal election system should be retained in rural areas."
"Boards of education should establish an acceptable election process."
"Without formal election, there is little incentive for people to continue working and showing up for meetings."
| What Was Said The proposal that council representatives should be selected by an informal election process was not supported (2.26 of 4). Local School Advisory Committees (2.89) expressed the highest agreement and District Boards of Trustees (1.97) disagreed. |
What is the desired role of a School Community Council?
Roles and responsibilities must be clearly defined. A direct relationship is perceived between the effective implementation of School Community Councils and the degree to which roles and responsibilities are defined and understood. A broad range of opinions and experiences were stated. Participants stressed the importance of developing two-way communication and supportive relationships. Participants supported establishing common expectations and guidelines for school community councils for all Saskatchewan schools. Enough flexibility must be allowed to accommodate a broad range of community needs (boards of education responsible for only one school, large urban school divisions with many schools, northern schools, associate schools, community schools, alternative schools, and school-based decision making). Typical comments included:
‘If legislation needs to be re-written in order to enable school community councils to work more effectively as a team player in the education system, then it should be written flexibly enough to allow ‘creativity’ but common enough to ensure a common direction or goal for both rural and urban systems.’
"The verbs ‘approve’ and ‘determine’ are inappropriate."
"The structure should be flexible enough to be individualized for what works where you live.’
| What Was Said That councils should be advisory and play a meaningful and credible role received the highest level of support of all the survey questions (3.11 of 4). |
Will School Community Councils be empowered? Most participants recognized the benefit of increasing parent and community involvement. While there are some areas of authority that might be delegated to School Community Councils, boards of education were seen as remaining ultimately responsible for all that happens in the school division. Some participants advocated for more ‘power’ and ‘authority’ for School Community Councils. Suggestions of granting power to School Community Councils raised many questions and concerns. Participants stated that power may not be as important as ensuring a meaningful and influential role that has credibility in the community. School community councils should have access to relevant information and participate in making meaningful decisions. Typical comments included:
"Will parents have anymore of a voice in decision making than they do now?"
"We would like to have a little more say in what is going on in our school."
"The present proposals do not seem to have sufficient teeth to allow the proposed councils any more meaningful and effective a forum for participation by parents than the present local boards. Unless this is changed, I will have little interest in supporting this new concept or participating in it."
"The major drawback to this proposal is that the board of education still holds all of the power for major decision-making."
"Care needs to be taken with powers and jurisdiction to determine legal accountability."
| What Was Said Participants disagreed that the system of councils and their responsibilities should be similar in rural, urban and northern areas (2.09 of 4). Only the ‘other’ group (2.55) stated slight agreement for this proposal. |
| What Was Said Participants disagreed with the proposal that district boards should no longer be able to request a special tax levy (2.28 of 4). Highest agreement was stated by ‘other’ (3.30) and greatest disagreement by District Boards of Trustees (2.18). |
Are the proposed changes desirable?
Will the proposed structure achieve what it is intended to do? A renewed commitment from boards of education, school principals, communities and provincial organizations was viewed as desirable, but a change in legislation was not seen as essential to increasing meaningful involvement. Participants were skeptical about the impact of this proposal on achieving the stated objectives. Participants stated that a good deal of effort at the community level is necessary to develop and sustain meaningful parent and community involvement. Typical comments included:
"This report as it stands does nothing to get parents involved in their school. Parents who want to be involved are and will continue to be. The question is how to get non-involved parents into the school - having new councils or giving it another name does not solve the problem!"
"People are already over extended in rural Saskatchewan - a new structure will not get more people out."
"This proposal is not workable in rural Saskatchewan. People in rural Saskatchewan will speak with individuals but will not speak up publicly."
"This proposal does not address how to improve parent and community involvement."
"People with a concern contact the board of education directly - they do not become involved."
"Good in theory, not sure it will work in practice. May be too many ‘red-tape’ responsibilities for councils to handle in order to be productive."
"This is a simple solution to a complex problem that can only be addressed through commitment and leadership."
"Some adaptation of this report and the present local board structure could be workable."
"As a parent, I feel that we are already implementing a lot of these proposals very successfully. Our system works and brings the parents, teachers and students to the same levels so communication lines can operate efficiently."
| What Was Said Participants stated the highest level of disagreement with the proposal that a common council structure should replace district boards of trustees, local school advisory committees, parent advisory councils, school councils, parent-teacher associations and home and school associations (1.86 of 4). Only the ‘other’ group (2.70) agreed with this recommendation. |
More relevant to urban Saskatchewan than rural. The School Community Council proposal was perceived to be more relevant to urban needs than rural. Most rural participants did not perceive a problem and were not searching for a solution. Typical comments included:
"This proposal reflects an urban need and perceptive."
"Parent councils are great! We have support groups in our division and are a tremendous asset to our schools. They exist because the parents there felt there was a need to enhance our schools."
"Much of the effort and processes the Involving Parents and Community in Schools is being achieved already with the system as it exists in our community. As a local school board member, the system of change of structure would possibly be counterproductive."
"There are some rural district boards that are apparently working very well and it would be unfortunate to change the positive. However, there are situations that are perceived to be far less than ideal."
"One size cannot fit all!"
"Revise the current legislation recognizing urban and rural differences."
"The proposed new council will enhance parent participation in the urban centers but would reduce a system that is already working well in the rural areas."
| What Was Said There was slight agreement that a common name for school community councils should be determined (2.57 of 4). District Board Trustees (2.32) disagreed. |
Consider Alternatives. Participants acknowledged the desirability of increasing parent and community involvement and identified alternative solutions to the challenge. Typical comments included:
"Sask Education should define ‘what’ is desired and leave the ‘how’ to local leadership."
"Support could be provided through existing structures - changing the structure will not change the issues."
"Let us commit to working for incremental change, not change for the sake of change."
"Home and School Associations have been with us for a long time. Why aren’t they active? - Not because they aren’t called councils!"
"I like the idea of a pilot project for this in rural and urban Saskatchewan then note if it works."
What kind of support is necessary to ensure School Community Councils are effective and accountable?
Training and support are needed. Participants stressed the need for resources and a system of training to encourage parent and community involvement. Participants emphasized that that changing the name and legislation was just a first step. Typical comments included:
"A provincial model constitution should be developed for duties and a code of ethics.
The constitution should be consistent across the division."
"Who will decide and approve the council constitution - the council or division board?"
"Every person directly involved with this new structure will need training."
"What are the costs of implementing and maintaining school community councils?
Is Saskatchewan Education committed to supporting the implementation and maintenance of school community council or is this another area funded by property taxes?"
"A holistic and systematic approach is necessary - other areas of legislation, regulations and agreements with the STF must be revised to reflect the desire to give parents and community a greater voice and participation in education."
"In order to have school community councils it will be necessary for the schools to actively make parents feel they are needed and appreciated and certainly not to make them feel intimidated. A lot of parents want to be involved but feel shy and have the feeling that they are not educated enough to be of any value. That feeling must change and schools and boards have a lot of work to do to facilitate this."
"You cannot legislate parental involvement in schools. Without a grassroots understanding and acceptance of the purpose and process for implementing school community councils - they will fail!"
| What Was Said Participants agreed that services and support for councils should be organized by boards of education and the SSTA (2.97 of 4). Highest agreement was expressed by Division Board Trustees (3.14) and least agreement by ‘other’ (2.56). |
Councils must be accountable. Participants recognized the need to ensure that the efforts of councils were positively focused and consistent with the goals of the school division. Typical comments included:
"If operated under the auspices of boards of education, legislation must allow supervisory power to the board for dissolution of renegade school councils."
"What happens if the mission and values of a council conflict with the board of education?"
"How will the implementation be supported?"
‘The present structure is not working too effectively. Changing the structure will not necessarily guarantee rejuvenation. The solution is to conduct inservice to clarify roles."
"How will equity between schools be maintained?"
The consultation process demonstrated a good deal of interest but limited support for the Minister’s proposal to establish a common school level governance structure. Participant suggested that all types of parent and community involvement should be recognized. A new school level governance structure was not seen to be necessary for increasing parent and community involvement. Preference was stated for supporting training and leadership within the current structure. Concerns were expressed about the impact of the new structure on school principals. Participants were also concerned that appropriate checks and balances be instituted to ensure that schools were not negatively influenced. The proposed school community council was not supported as desirable for education in Saskatchewan.
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