Section 9. Changing Policies in Schools

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Learn how to change school policies that benefit students, promote health and safety, and improve the school system.

What do we mean by changing policies in schools?

Why should you work to change policies in schools?

When should you try to change policies in schools?

Who should be involved in changing policies in schools?

How do you change policies in schools?

When the Watsons came to Perryville High School for their eldest son’s first scheduled parent conference of ninth grade, they found something that neither ever saw in a school when they were students. In the hallways on every floor, as well as in the cafeteria, there were vending machines offering soda.

Rita Watson was a hospital nutritionist, and her husband, Mel, was an athletic trainer who worked with the football and baseball teams at the local university. They had always provided a healthy diet for themselves and their two sons, and had taught their children good eating habits. Both of them were well aware of the rise in childhood obesity – it was more and more visible on the streets of Perryville these days – and they knew that soda was a major contributor to that rise. They felt that the high school – which, after all, offered health classes that taught students about good nutrition – should not be offering kids drinks that could be bad for them.

They returned from the conference with a glowing report of their son’s progress, and the beginnings of a plan. As they researched the issue of soda and snack machines in high schools, they found that their presence was all too common. They also found that schools made a lot of money from contracts with soft drink companies – money that paid for extracurricular activities, supplies, and equipment. While the Watsons were supportive of these activities – both of their sons were athletes – they felt strongly that the school should be safeguarding students’ health, not encouraging unhealthy habits.

The couple set out to change the school policy on vending machines. They wanted them either removed from the school, or to offer only foods and drinks that contributed to, rather than harmed, children’s health. Aware that they had an uphill battle on their hands – Perryville High made over $50,000 in contracts and soda sales every year – they enlisted their friends and determined to keep at it until they were successful.

Sometimes school policies, like those that allow vending machines that sell unhealthy foods, can be harmful to students’ health or education. Sometimes, schools or school systems lack policies that would benefit students in particular ways. Sometimes their policies, formal or informal, are discriminatory or abusive of students’ rights. Parents, students, or concerned citizens often find themselves wanting to change school or school system policies…and many do. This section looks at what kinds of issues school policies might cover, and what it takes to change policies in a school system.

What do we mean by changing policies in schools?

When the Community Tool Box was conceived, this section was meant to deal specifically with changing school policy to encourage healthy behaviors among students and discourage unhealthy ones. Since then, it has become obvious that the issue of school policy change is far too broad to confine to a single topic. We’ve therefore tried to include a range of possibilities to consider, of which health promotion is only one.

In the U.S., the variation among school systems – from state to state, from community to community, even from school to school – is enormous. There are obvious differences in size – many rural schools have fewer than 10 students a class, while some urban and suburban schools in large cities have thousands of students – but the variation doesn’t stop there. Looking at public schools alone, there are comprehensive and specialized high schools; charter schools; technical and trade high schools; magnet schools; alternative schools for students who can’t function in a standard classroom setting; and community-run schools, to mention only a few.

This section focuses on public schools. While private school policies are subject to change from parents and students as well, they present a different situation. Because students pay to attend, and the schools are financially dependent on parents’ good will, and because they aren’t subject to many of the state rules and regulations that public schools are, private schools are usually much more willing than public schools to bend rules, make exceptions, and change policy when asked to by parents.

The ways in which these schools are organized and run vary as much as their purposes. Some are relatively independent: what goes on in the school is largely determined by the principal and teaching staff. Some involve parents as partners in planning and implementing both curriculum and school management. Some, unfortunately, have to be concerned with student violence, and feature metal detectors and police patrols. Some have strict dress codes – sometimes to the point of requiring uniforms – others have none. Some are devoted to academics, and to sending as many students as possible to top-ranked colleges; others seem much more concerned with sports or other extracurricular activities. By and large, schools mirror the educational philosophy and attitudes of the people in their districts.

All of these schools have policies regarding everything from academic and curriculum requirements to the scheduling of lunches. System-wide policies are generally decided upon by the local school committee, while policies unique to a particular school are often set and implemented by the school staff.

Most school systems and schools are hierarchical – they have a clear (at least to themselves) chain of command, and you have to follow that chain in order to communicate with the system. In the U.S., the links in that chain are usually (from the top down):

Each of these levels is one you might have to deal with in attempting to change school policy. (See Tool #1 for a more detailed description of “the players.”)

In addition to whatever difficulties the system hierarchy might offer, there is the fact that most public school teachers and other non-administrative employees are unionized, a circumstance that can complicate (or, occasionally, make easier) a change initiative. The change you’re seeking might – or might appear to – conflict with the union contract, for instance, or might require a union member’s job description to change (a circumstance that would require union negotiations). Given the two factors of the management hierarchy and the union, advocates are often faced with the possibility of having to move the whole of a large and resistant bureaucracy in order to affect change.

There are alternatives. Some schools are relatively independent, and can make decisions without having to go through several layers of school system. Some unions are willing to make compromises in the service of better outcomes for students. Often, if the policy change in question relates only to a particular school, and if it’s not momentous, the principal or faculty can make the change quietly, without fanfare or bureaucratic hassle.

There are many situations where a major policy change initiative like that described in this section simply isn’t necessary. If you can accomplish your purpose – placing a crossing guard at a dangerous intersection, or opening the school gym in the late afternoon for community use – by simply explaining to the principal why it’s important, and offering to help make it possible, then that’s the way to go. If the change is small, reasonable, and doesn’t involve any major disruption of the school or the system, you can probably make it happen in a very low-key way. Even some major policy changes can be easy if the need for them is obvious. Don’t organize the community for a minor request – the simpler you can make things, the better.

In general, however, the School Committee is responsible for setting policy, and the Superintendent for carrying it out. Although the two advise and consult with each other, system-wide policy changes usually have to be approved by the School Committee, but that usually means that they must have the approval of the Superintendent as well, since most Committees value the Superintendent’s advice. If you can convince the Superintendent that change is necessary, it will probably happen, though perhaps not always as quickly as you’d like.

That doesn’t always mean that administrators and teachers will go along. In Philadelphia in the 1960’s, a Superintendent was hired to shake things up in a less-than-stellar school system. He instituted, with the support of the School Committee, a number of reforms that actually spoke to improving education in the district. but the teachers essentially ignored them. By a combination of foot-dragging and outright defiance, they were able to frustrate most of the Superintendent’s plans, and he was gone within a fairly short time. If he had involved the teachers in planning, the situation might have been different, but the reality is that policy change was instituted, and nothing happened anyway.

The Watsons wanted to eliminate vending machines or change their contents. What kinds of school policies might you want to change? The list is almost endless – and there is often someone who wants a change exactly opposite from the one you want. A short list of possibilities:

Why might you want to change policies in schools?

There are seven overarching reasons to change school policies: to improve students’ health; to improve education; to meet the needs of particular groups; to improve classroom and school climate and culture; to protect students (and staff) from harm; to safeguard students’ rights; and to respond to a perceived community need.

Policies can be changed in different directions. Where a group in one community may be attempting to make schools more democratic, a group in another community may be concerned with making them less so. While it seems obvious to many which is the right direction, everyone has a right to try to change policy in the direction they think is appropriate. The one thing to remember is that any policy change should either be beneficial to or not detract from the educational experience of students.

To improve students’ (and others’) health.

Schools often teach health courses, but they don’t always practice, or encourage students to practice, what they preach. Some policies that actually might improve student health:

To improve education.

Changes in curriculum, in educational content, in expectations for students, in teaching methods, in class size, in teacher independence – all these and many other factors can lead to a better educational experience for students. Some other possible changes involve:

In 2004, a Dover, PA school board voted to include the teaching of “intelligent design” – the assumption that the world and the diversity of species are too complex to have evolved in the way Darwin described, and that there must, therefore, be a guiding hand – in the ninth grade biology curriculum. Religious beliefs notwithstanding, this assumption is not grounded in science and is more appropriate for a theology class. When a federal judge in 2005 struck down the vote as an unconstitutional attempt to teach religion in the guise of science, he dramatically brought about a change in the content of the curriculum.

There are many studies, going back over 50 years, that demonstrate that expectations determine to a very large extent how much students learn and how well they do in school. Raising the bar for everyone – starting with the assumption that all students are capable of learning just about anything, given the time and appropriate instruction, for instance – is likely to make a huge difference for those who would otherwise be mired at low levels all through their school careers.

Many high schools have in the past several years adopted block scheduling, which changes the standard class period from 40 or 50 minutes to twice that long, on the assumption that fewer, more intense classes give teachers better teaching opportunities, and create better learning experiences for students. Others have extended the academic year or the academic day. A few have attempted to schedule classes to match adolescents’ internal clocks, which are actually on a different schedule from those of adults and younger children.

To meet the needs of particular groups.

Some groups of students may need services in addition to those offered to the general school population, and it may take a policy change to obtain them. These groups include:

To improve classroom and school climate and culture.

“Classroom climate” is a term that refers to what a classroom feels like – student and teacher attitudes, the level of tension, whether the purpose of the classroom seems to be work or otherwise, etc.. The culture of a school can be considered in much the same way as the culture of a society – the customs, norms, standards, and behaviors that the majority of students, teachers, and other school personnel define as appropriate and approve of, as well as those that are disapproved by the majority.

The type of policy change needed in a given situation hangs on the character of the school. If the general atmosphere is too chaotic, it needs to be calmed; if it’s too rigid, it needs to be loosened up. Some of the potential targets of policy change that follow could be changed in either direction, depending upon what’s needed.

To protect students (and staff) from harm.

In some schools, particularly in gang- plagued urban neighborhoods – where a culture of violence may be entrenched among teens – this may mean protecting everyone from gang-related or random physical violence by students or outsiders. But, in any school system, it may also mean protecting students from physical or psychological bullying (by teachers as well as other students), from safety hazards, and from health hazards.

There is obvious overlap here among several of the reasons for working toward school policy change. Eliminating smoking protects students and staff from secondhand smoke. Halting bullying typically means changing the school culture, and redefining what is acceptable – for teachers as well as for students. The lines among reasons may blur, but the bottom line is always the same: to create the best possible educational experience for students.

Some changes that might help provide protection:

To safeguard students’ rights.

Children have rights, just as adults do, although those rights are tempered by children’s need for structure and protection. Nonetheless, when those rights are violated unnecessarily, policy change to safeguard them is in order. Some of the constitutional rights that should be attended to:

To respond to a perceived community need.

This may have to do with the establishment of a particular course or program (a multilingual program as a response to an influx of immigrants, for instance, or a tolerance course to address recent hate crimes), safety or security concerns (traffic patterns, procedures for school visitors), or the timing of the school day or school year (in Aroostook County, Maine, for instance, students get a three-week break in September and October to help with the potato harvest).

When should you try to change policies in schools?

Changes should obviously be attempted whenever it’s necessary, but there are some times that present especially good opportunities.

Who should be involved in changing school policies?

The more stakeholders – those affected by, or having to implement, the policy in question – that can be involved, the more likely it is both that the policy change will take place, and that it will be maintained once it’s made. Stakeholders include:

How do you change policies in schools?

School policy change, at least officially, has to happen from the inside. The School Committee (or at least the principal, if the change concerns only a single school) has to approve and institute the change. Furthermore, as we mentioned earlier, the school staff involved in implementing it have to actually do so, rather than just go through the motions, if the change is going to mean anything.

At the same time, policy change often originates from outside the system, and that’s where you come in. Schools, as we discussed, are hierarchical, and like many hierarchical organizations, they can be resistant to change of any kind. They are often particularly resistant to change that implies that what they’ve been doing is wrong, incompetent, or harmful. It may take a good deal of pressure from parents, students, community members, and/or officials to get them to respond.

This isn’t always true. Sometimes, the proposed policy change fills such a great need, or is so obviously beneficial that all it needs is to be suggested, and adoption quickly follows. The steps that follow apply equally to the easy and the difficult changes to put in place. You should always develop a strong rationale for changing policy and muster community support. and in the ideal situation, you won’t need them.

Marshal your support and begin to strategize.

The order of steps here is open to discussion. The author of this section sees the logical progression as one of putting together a supportive core group, and then learning all you can about the situation so that you can decide how to go about effecting change. The editor sees the logical order as the opposite: explore the situation, decide how to make the change, and then gather a support group. Since both of us have had experience in this area, it’s clear that there’s no one right answer. In reality, you’ll probably engage in at least part of both steps at the same time. Adapt your process to what makes the most sense in your situation.

Make contact with the allies you’ve identified. As you start to put a group together, people will bring others in. You don’t have to be secretive, but at this point, you might not want to publicize your effort. You may decide that the best approach is to see if you can accomplish what you want without going through the School Committee, in which case, the less publicity, the better.

It is often crucial to find allies within the school system, at as many levels as possible. Teachers, administrators, the Superintendent, sympathetic School Committee members – anyone who’s supportive of what you’re doing should be involved to the extent possible. It’s important not to place anyone in a compromising position, but the more allies you can get inside the system, the better your chances of success.

There are many situations in which allies inside the system may not be needed. That crossing guard we used as an example earlier, for instance – you probably won’t need a whole crew of teachers lending support to convince a principal or the superintendent that a child being hit by a car in front of the school would not be a good thing. Recruit teachers and other school employees when you need them, and realize when you don’t.

Once you assemble at least a core group, drawing from as many sectors of the community as possible (the more sectors, the more support you can muster), you need to consider how you’re going to approach the situation. There are many possibilities: going around the School Committee entirely, a simple request, taking time to build support on the Committee, threatening a lawsuit, creating massive publicity through the media, using the steamroller of angry parents and community members (if you have one, and it’s appropriate)--every approach will work in some situation, and no approach will work in every situation. That’s why planning is important, and why it’s important to involve others in your planning. You may need only a bare-bones idea of whom to approach, or you may need a full-blown strategic plan; either way, you have to do some planning to decide on your course of action.

As with most situations covered in the Community Tool Box, we recommend a participatory, collaborative planning process wherever possible. You often end up with better ideas, and you’re more likely to end up with a plan that everyone has bought into, and will work hard to carry out. If you plan well, you’ll come up with an action that’s the simplest, least confrontational, and least expensive – in terms of time, people, and other resources – that you can take to solve the problem.

The other important tasks here are to work out systems of coordination and communication. If a particular organization takes the lead in a policy change effort, then that organization will usually act as the central point. If the effort is driven by an unorganized group of concerned parents, students, and others, they’ll need to establish some way to make sure that everyone knows what everyone else is doing, and to get the word out when action is needed. You don’t necessarily have to create a formal organization to accomplish these tasks, but it is important to set up a structure to make sure that they’re taken care of.

Do your homework.

The more you know about current policy, the school system, the issue your proposed changes relate to, and the individuals involved, the better your chances of success will be. The homework you need to do:

If your opponents have legitimate arguments you have no answer for, then you should either incorporate those arguments into your thinking, or if it’s simply a true difference of opinion, acknowledge it as such. (But if it is, try to find as much real evidence as you can to back up your opinion.)