Summary

A new report from Policy Analysis for California Education (PACE) highlights significant challenges in how California manages its K-12 schools and offers recommendations to improve accountability, efficiency, and student outcomes. The report suggests centralizing authority under the governor and appointing an expert manager to lead the Department of Education, aiming to clarify leadership roles and better support educational programs.

Challenges in California's School Governance

The 94-page report, TK-12 Governance in California: Past, Present, and Future, points out systemic weaknesses within the California Department of Education (CDE) and local school districts. These issues have hindered the success of initiatives like universal kindergarten and programs designed to close achievement gaps and reduce chronic absenteeism. According to Heather Hough, senior policy and research fellow at PACE, "The current structure leaves districts overwhelmed and programs under-resourced." Additionally, the report highlights the department's limited capacity and chronic underfunding, partly due to Proposition 98 restrictions on administrative spending, forcing the CDE to compete for funds with other programs such as Medi-Cal and higher education.

Recommendations for Change

To address these challenges, the report recommends shifting control of the CDE from the elected superintendent to the governor, with a governor-appointed State Board of Education overseeing operations. This would allow the board to hire a director with expertise in education management, aligning California with 20 other states like Massachusetts, New York, and Florida. Julie Marsh, professor of education policy at USC and co-author of the report, emphasizes the need for an independent evaluator to measure the effectiveness of school programs and spending. The superintendent's role would be redefined as an independent ombudsman and "chief champion for students," clarifying leadership and accountability. Jeannie Myung, PACE director of policy research and lead author, states, "We must meet the demands of this moment with strategic leadership."

Historical Context and Past Efforts

The report traces governance debates back to the 1920 Jones Report, which recommended replacing the elected state superintendent with a commissioner appointed by the state board. Similar proposals have appeared in subsequent studies, including the Legislature's Committee to Develop a Master Plan for Education. However, voter initiatives to eliminate the elected superintendent's office have historically failed due to political opposition, as noted by Heather Hough.

Evaluating California's Governance Performance

PACE graded California's school governance performance at 2.8 out of 6, indicating a rating between poor and fair. This evaluation considered elements such as strategic thinking, accountability, capacity, knowledge, engagement, and a whole-of-system perspective. Experts interviewed for the report described the system as fragmented and under-resourced, with limited capacity for long-term strategic implementation.