Directory UMM :Data Elmu:jurnal:I:International Journal of Educational Management:Vol11.Issue3.1997:

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Inte rnatio nal Jo urnal o f Educ atio nal Manage me nt 1 1 ,3 [1997] 1 1 1 –1 1 6

The contracting resource base: a catalyst for

educational administration reform

Richard Bond

As s is tant Pro fe s s o r o f Educ atio n, Fac ulty o f Educ atio n, Bro c k Unive rs ity, Ontario , Canada

Corrie Giles

Educ atio nal Manage me nt and Adminis tratio n Co ns ultant, Wate rdo wn, Ontario , Canada

Explains that the Canadian federal government has recently cut $800 million in transfer payments for educa-tion to the provinces, with further cuts planned for the next two years. Consequently, there is growing concern among administrators and professional educators as to the likely impact of these developments in Ontario. Examines the impact of incre-mental resource reductions on an Ontario board of educa-tion. Puts forward proposals aimed at improving the man-agement of educational resources in Ontario, in particular means of support-ing teachers and service quality in schools, and yet retaining equity of educa-tional provision.

Introduction

T h e pa st t h r ee yea r s h ave been difficu lt for edu ca t or s in On t a r io a s a gr ow in g pr ovin cia l bu dget defi cit pr ecipit a t ed t h e la st pr ovin cia l gover n m en t led by t h e N ew Dem ocr a t ic P a r t y (Socia list ) t o cu t t h e level of r esou r ces m a de ava ila ble t o edu ca t ion . Ru n n in g in pa r a llel w it h r edu cin g bu dget s w a s a gr ow in g r elu c-t a n ce on c-t h e pa r c-t of loca l c-t a xpayer s c-t o fu n d r esou r ce sh or t fa lls w it h ou t visible sign s of im pr ovem en t t o, a n d gr ea t er a ccou n t a bilit y on t h e pa r t of, t h e edu ca t ion ser vice for a m or e effect ive, efficien t a n d econ om ic edu ca -t ion sys-t em . T h e follow in g ou -t lin es -t h e m os-t im por t a n t fea t u r es a ffect in g t h e a dm in ist r a -t ion of edu ca -t ion in -t h e pr ovin ce of On -t a r io.

The professional response to the

provincial crisis

Alt h ou gh pu blic per ce pt ion s of a cost ly a n d fa ilin g edu ca t ion ser vice wer e sim ila r t o t h ose wh ich exist ed in E n gla n d a n d Wa les t en yea r s a go, t h e polit ica l r espon se t o t h e pr es-su r e for r efor m w a s, a t lea st in it ia lly,

m a r k edly differ en t . A Roya l Com m ission w a s est a blish ed t o ca n va ss a w ide body of opin ion in t h e pr ovin ce, a n a ppr oa ch wh ich r espect ed t h e pr ofession a l view s of edu ca t or s a s well a s t h e ver y im por t a n t view s of pa r en t gr ou ps a n d ot h er st a k eh older s. T h e fi n a l r e por t pr o-du ced by t h e Roya l Com m ission – For th e L ov e of L ea r n in g(MOE T, 1994) – w a s a ba la n ced docu m en t w h ich a ch ieved w ide su ppor t fr om t h e pr ovin cia l pa r lia m en t , in t er est gr ou ps a n d t h e m edia . In br oa d t er m s, t h e r ecom -m en da t ion s of t h e Roya l Co-m -m ission Re por t focu s on fou r en gin es of ch a n ge:

1 a n ew k in d of sch ool-com m u n it y a llia n ce wh ich r ecogn izes t h a t t ea ch er s a lon e ca n -n ot edu ca t e a ch ild. Sch ool com m u -n it y cou n cils a r e t o be est a blish ed w it h a n em ph a sis on developin g t h e com m u n it y’s sen se of r espon sibilit y for t h e edu ca t ion of ch ildr en ;

2 ea r ly ch ildh ood edu ca t ion be gin n in g a t t h e a ge of t h r ee t o lay fi r m fou n da t ion s for t h e fu t u r e a n d t o h elp m it iga t e t h e a n t icipa t ed la ck of n u r t u r in g pr esu m ed lik ely t o occu r in a r a pidly ch a n gin g societ y;

3 est a blish in g a colle ge of t ea ch er s t o r e gu -la t e pr ofession a l st a n da r ds a n d ext en din g pr e-ser vice edu ca t ion t o t wo yea r s wh ile r evisin g exist in g a r r a n gem en t s for con t in u in g pr ofession a l developm en t a n d pr e pa -r a t ion fo-r p-r in cipa lsh ip;

4 r ecogn izin g t h a t sch ools, sch ool st r u ct u r es a n d sch oolin g n eed t o be ver y differ en t t o pr e pa r e st u den t s for t h e wor ld of wor k a n d t h e leisu r e of t h e fu t u r e in a wor ld in cr ea s-in gly r elia n t on s-in for m a t ion t ech n ology. In sh a r p con t r a st t o t h e a ppr oa ch t o r efor m a dopt ed by t h e Br it ish Gover n m en t , t h e r e por t por t r ayed a gen u in e w ish t o m a in t a in a n edu ca t ion ser vice wh ich is equ it a ble for a ll, a s well a s a w ish t o wor k w it h edu ca t ion a l pr ofession a ls t o cr ea t e sch ools wh ich a r e:

t h e k in ds of or ga n iza t ion s m ost lik ely t o pr osper in t h e post -in du st r ia l, post -m oder n wor ld … on es ch a r a ct er ized by fl exibilit y, a da pt a bilit y, cr ea t ivit y, oppor t u n it y, colla bo-r a t ion , con t in u ou s im pbo-r ovem en t , a posit ive or ien t a t ion t ow a r d pr oblem solvin g a n d com m it m en t t o m a xim izin g t h eir ca pa cit y t o lea r n a bou t t h eir en vir on m en t a n d t h em -selves (Ha r gr eaves, 1994, p. 63).

Rapidly changing circumstances

Two k ey ch a n ges occu r r ed ver y soon a ft er t h e r elea se of t h e r e por t , a n d t h ese pr ovide a n excellen t exa m ple of h ow t h e good in t en t ion s of con cer n ed pr ofession a ls ca n be sw ift ly der a iled by ch a n gin g econ om ic a n d polit ica l r ea lit ies. F ir st , in spr in g 1995 t h e feder a l gover n m en t of Ca n a da a n n ou n ced t h a t it cou ld n o lon ger a ffor d t o con t in u e dist r ibu t -in g m a ssive fi n a n cia l su bsidies t o pr ov-in cia l edu ca t ion pr ogr a m m es. On t a r io’s sh a r e of r edu ced t r a n sfer paym en t s of a n in it ia l $800 m illion is su bst a n t ia l a s it is t h e m ost popu -la t ed of t h e pr ovin ces. In a ddit ion , fr om n ow on a ll t r a n sfer paym en t s w ill be r eceived by pr ovin cia l t r ea su r ies a s block gr a n t s wh ich a r e n ot ea r m a r k ed for pa r t icu la r elem en t s of pr ovin cia l spen din g. Accor din gly, pr ovin ces w ill decide t h e disposit ion of t r a n sfer fu n ds t o r efl ect t h eir pa r t icu la r r esou r ce pr ior it ies m or e closely.

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Ric hard Bo nd and Co rrie Gile s The c o ntrac ting re so urc e base : a c atalyst fo r e duc atio nal administratio n re fo rm

Inte rnatio nal Jo urnal o f Educ atio nal Manage me nt 1 1 / 3 [1 9 9 7 ] 1 1 1 –1 1 6

pr ovin cia l bu dget r edu ct ion s t o t h e t u n e of $16 m illion t o t h e u n iver sit ies (of wh ich t h er e a r e 15); $6 m illion t o t h e Colle ges of Applied Ar t s a n d Tech n ology (of w h ich t h er e a r e 24); a n d $36 m illion t o t h e sch ool boa r ds (of wh ich t h er e a r e 172). As a r esu lt , a t ever y level of edu ca t ion in On t a r io t h er e a r e ser iou s pr ob-lem s em er gin g a ssocia t ed w it h in cr em en t a l bu dget r edu ct ion s a n d t h e pr essin g n eed t o “m a k e do w it h less” . At t h e in dividu a l sch ool boa r d level t h is in clu des pr essu r es on a dm in -ist r a t ion t o dea l efficien t ly w it h issu es r ela t ed t o dem ogr a ph ic ch a n ges, collect ive ba r ga in in g, bu ildin g m a in t en a n ce, ch a n gin g cla ssr oom t ech n ology, cla ss size, t r a n spor t a -t ion , in su r a n ce a n d u ses of a r a n ge of r esou r ces. Con cu r r en t ly, sch ool a dm in ist r a -t or s a r e expec-t ed -t o pr ovide a n a cce p-t a ble qu a lit y of edu ca t ion t o a ll st u den t s, a n d a r e expect ed t o en cou r a ge, t h r ou gh a va r iet y of m ea n s, a h igh level of cla ssr oom per for m a n ce fr om t ea ch er s. T h is expect a t ion m u st con -sider im por t a n t ph ilosoph ica l u n der pin n in gs of t h e edu ca t ion syst em in Ca n a da , su ch a s equ it y a n d equ a lit y of edu ca t ion a l oppor t u -n it y, defi -n ed a -n d discu ssed i-n t h e follow i-n g.

Equity and equality of educational

opportunity

Ch a llen ges in h er en t in m eet in g a r edu ct ion in r esou r ces in a n y on e of t h e k ey a r ea s of sch ool a dm in ist r a t ion a r e m a gn ifi ed by a t t em pt s t o pr ovide fa ir t r ea t m en t for a ll st u den t s. It is a lm ost cer t a in t h a t wh ile a dm in ist r a t or s m ay st r ive t o “pr ot ect t h e cla ssr oom ” in or der t o m a in t a in qu a lit y of t ea ch in g a n d lea r n in g, t h e im pa ct of in cr e-m en t a l r edu ct ion s in t h e r esou r cin g of t h e edu ca t ion a l ser vice seem set t o er ode t h e t w in pr in ciples of equ it y a n d equ a lit y of edu ca -t ion a l oppor -t u n i-t y w h ich h ave -t r a di-t ion a lly been t h e cor n er st on e of Ca n a dia n

edu ca t ion a l policy. Havin g sa id t h a t , a det a iled exa m in a t ion of t h e con ce pt s m ay illu st r a t e wh y a la issez -fa irer a t h er t h a n pr ovin ce-w ide m a n a ged r edu ct ion of r esou r ces w ill w iden t h e ga p bet ween t h e idea l a n d t h e r ea lit y of su st a in in g equ it y a n d equ a lit y in t h e cu r r en t clim a t e in On t a r io.

Wh ile t h er e is seldom a pu blic deba t e over t h e qu est ion of w h a t m ea n in g of equ it y sh ou ld sh a pe policies of edu ca t ion a l fi n a n ce, policies wh ich a r e im plem en t ed n or m a lly r efl ect a n im p liedcon ce pt of edu ca t ion a l equ it y; in ot h er wor ds, a ll you n g people, w it h in t h e lim it s set by com pu lsor y a t t en -da n ce law s, sh ou ld h ave equ a l edu ca t ion a l oppor t u n it y. T h is of cou r se, is n owh er e n ea r a s ea sy a s it wou ld seem a s t h e con ce pt of equ it y in edu ca t ion h a s t h r ee m a jor

dim en sion s. T h e fi r st is t h a t of equ a l t r ea t -m en t of per son s in lik e cir cu -m st a n ces, a n d t h e secon d is t h e desir a ble r ela t ive t r ea t m en t of per son s in u n lik e cir cu m st a n ces. T h e t h ir d is t h a t equ it y issu es sh ou ld per m ea t e ever y a spect of policy in Ca n a dia n edu ca t ion in or der t o h elp cr ea t e a n d su st a in a n equ a l a n d ju st societ y (Bon d, 1996).

However, in r esou r ce m a n a gem en t t er m s t h er e a r e t wo t ypes of equ it y. On e is h or izon -t a l equ i-t y wh ich m ay be con sider ed a s -t h e equ a l t r ea t m en t of equ a ls. Wit h in t h is con -t ex-t , a dm in is-t r a -t or s m ay pr ovide equ a l a ccess t o a pr escr ibed m in im u m offer in g. Recen t officia l r ecogn it ion of socia l a n d r a cia l in equ a lit y h a s led t o t h e iden t ifi ca t ion of t h e secon d t ype of equ it y, ver t ica l equ it y. Wit h in t h is con t ext com es t h e u n der st a n din g t h a t , for equ a lit y of edu ca t ion a l oppor t u n it y t o be a ch ieved, t h er e m u st be u n equ a l t r ea t -m en t of u n equ a ls. Wit h ver t ica l equ it y it is n ecessa r y t o focu s on t h e n eeds of in d iv id u a l st u den t s, a n d t h e t ypes of r esou r ces n eces-sa r y t o m eet t h ese n eeds. It is t h is la t t er wh ich r equ ir es a h igh ly cr ea t ive a dm in ist r a t ive a n d sen sit ive a ppr oa ch t o r esou r ce m a n -a gem en t so cle-a r ly m issin g in t h e r esou r ce m a n a gem en t a ppr oa ch cu r r en t ly em er gin g in t h e pr ovin ce. For exa m ple, sch ool boa r d a dm in ist r a t or s a r e fa ced w it h t wo dilem m a s. On e, t h ey n eed m or e m on ey t o m eet a n in cr ea sin g r a n ge of specia l edu ca t ion a l n eeds, bu t fi n a n cia l r esou r ces fr om t h e pr ovin ce a r e bein g r edu ced in st ea d of in cr ea sed. F u r t h er, t h e pr ovin cia l gover n -m en t is con sider in g ca ppin g t h e a bilit y of loca l gover n m en t , in clu din g sch ool boa r ds, t o r a ise a ddit ion a l r even u es fr om loca l t a xa t ion . Two, a n ea sy w ay of dea lin g w it h t h e pr oblem wou ld be t o focu s on a t t a in in g h or izon t a l equ it y, bu t t h is wou ld pla ce a dm in ist r a t or s in t h e ser iou s sit u a t ion of h avin g deliber a t ely t o ign or e t h e iden t ifi ed n eeds of specia l gr ou ps a n d in dividu a ls.

Rural/ urban contrasts

P r oblem s a ssocia t ed w it h t h e con ce pt of ver t i-ca l equ it y a r e m a gn ifi ed wh en dem ogr a ph ic a n d geogr a ph ic differ en ces a r e fa ct or ed in . T h is is a pa r t icu la r issu e in la r ge cou n t r ies su ch a s Ca n a da w it h spa r sely popu la t ed a r ea s, a la r ge n u m ber of h igh ly diver se cu l-t u r es a n d a n u n equ a l disl-t r ibu l-t ion of h igh ly u r ba n ized a n d u n developed set t lem en t s. In t h e pr ovin ce of On t a r io, for exa m ple, w it h a n a r ea of 412,582 squ a r e m iles (t h e UK h a s 94,226 squ a r e m iles) a n d t en m illion

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a n d t h ose ava ila ble t o st u den t s in For t Sever n (la t it u de 56), ow in g t o dist a n ce fr om sou r ce, ava ila bilit y a n d cost of t r a n spor t . F u r t h er, t h e n or t h er n On t a r io cu lt u r e is ver y differ en t fr om t h a t in t h e sou t h . In fa ct , differ en ces in n eeds a m on g va r iou s se gm en t s of t h e popu la -t ion a r e a cu -t ely dis-t in gu ish ed fr om on e a n ot h er by geogr a ph y a lon e. Wit h t h is r ea l-iza t ion , it m igh t n eed a m ir a cle t o a ch ieve a n yt h in g r esem blin g ver t ica l equ it y, a n d a n y h opes of im pr ovin g on it m ay eva por a t e u n der t h e com bin ed effect s of t h e pr esen t a n d pr oposed con st r a in t s on t h e pr ovin cia l edu ca -t ion a l bu dge-t .

Equality in urban areas

Th is is n ot to say th a t th e em er gin g pictu r e in u r ba n a r ea s is sign ifica n tly better – ju st ver y differ en t. Ach ievin g ver tica l equ ity in sm a ller geogr a ph ic a r ea s su ch a s cities br in gs its ow n set of ch a llen ges, a n d yet th ese a lso n eed to be a ccom m oda ted in a n y r esou r ce m a n a gem en t a ppr oa ch a dopted by th e pr ovin ce.

T h r ee exa m ples fr om on e m a jor cit y (popu -la t ion 317,000) w ill su ffice. F ir st , t h er e is t h e com p lex stru ctu reof loca l edu ca t ion a l a dm in -ist r a t ion . T h e edu ca t ion a l n eeds of t h e cit y a r e su per vised by a cit y-ba sed secu la r boa r d, a Rom a n Ca t h olic se pa r a t e boa r d, a n d a cou n t y boa r d over seein g t h e n eeds of a ppr oxi-m a t ely 58,000 sch oolch ildr en in pr ioxi-m a r y a n d secon da r y sch ools. Secon d, t h e d iv erse stu -d en t p op u la tion– in som e of t h e cit y sch ools t h er e a r e a s m a n y a s 45 differ en t la n gu a ges spok en , a n d a s m a n y a s 50 n a t ion a l a n d et h -n ic gr ou ps. F u r t h er, i-n t h e m et r opolit a -n a r ea t h er e a r e a ppr oxim a t ely 2,500 F ir st N a t ion s people con sist in g of (a m on g m a n y ot h er s) Moh aw k , Ojibw ay, Ch ippew a a n d even In u it fr om t h e fa r n or t h . T h ir d, im p or ta n t cu ltu ra l con stra in ts– wh ile h igh ly u r ba n ized a r ea s pr oba bly h ave m or e r esou r ces t o pr ovide equ it y, it m ay well be pr ovided on ly w it h in t h e h or izon t a l con t ext , a s t h e socia l m ilieu is n ot con du cive t o in t en se cu lt u r a l diver sifi ca -t ion . F u r -t h er, a n y a -t -t em p-t s a -t ver -t ica l equ i-t y for t h e cu lt u r a lly diver se popu la t ion of t h e cit y in qu est ion m u st pla ce a ser iou s bu r den on sch ool bu dget s, on e wh ich m igh t be in t ol-er a ble even wh en su ppor t ed by t h e best of in t en t ion s. For t h e fa ll of 1995, t h e cou n t y boa r d bu dget ed for $109.5 m illion – $10.9 m il-lion less t h a n t h r ee yea r s a go (see Appen dix).

The management problem at

school board level

As a r esu lt of cu r r en t a n d pr oposed bu dget cu t s, t h e cou n t y boa r d is fa ced w it h m a jor

difficu lt ies, som e of wh ich a r e ca t e gor ized a s follow s:

• r edu ct ion in t ea ch in g st a ff a n d a fr ee ze on w a ges a n d h ir in g, sa la r ies a n d w a ges fr om $77.2 t o $74 m illion ;

• r edu ct ion in r esou r ces for t h e Media Cen t r e fr om $0.63 t o $0.58 m illion ;

• r edu ct ion in pr ogr a m m e ser vices fr om $0.47 t o $0.40 m illion ;

• r edu ct ion in r e gu la r day sch ool cost s (fu r -n it u r e, equ ipm e-n t , com pu t er s, et c.) fr om $4.7 t o $4.0 m illion ;

• r edu ct ion in con t in u in g a n d com m u n it y edu ca t ion fu n din g fr om $0.2 t o $0.08 m il-lion ;

• su st a in ed debt ch a r ges a n d in t er est of a r ou n d $2.5 m illion ea ch yea r sin ce 1991; • in cr ea sed ba n k ch a r ges a n d in t er est fr om

$0.01 t o $0.1 m illion ;

• t ot a l bu dget r edu ced fr om $120.4 m illion in 1992 t o $109.5 m illion in 1995.

T h er e is n o “fa t ” left t o t r im , bea r in g in m in d t h a t t h e r edu ced bu dget h a s t o pay for in cr ea sin gly expen sive ser vices. Despit e t h is, a fu r t h er $36 m illion cu t is t o be sh a r ed bet ween t h e 172 On t a r io boa r ds. T h e im pa ct w ill be felt in ser vices, pa r t icu la r ly pr ofes-sion a l su ppor t ser vices, r equ ir ed t o m a in t a in ver t ica l equ it y. P r oposed cu t s t o a dm in ist r a -t ion a r e r ela -t ively m in or a n d a r e a s follow s: • bu sin ess a dm in ist r a t ion $0.82 t o $0.76 m

il-lion ;

• gen er a l a dm in ist r a t ion $0.49 t o $0.4 m illion ; • su per in t en den t s of edu ca t ion (r esou r ce

m a n a gem en t , n ot sa la r ies) u n ch a n ged sin ce 1991 a t $0.1 m illion .

Wh ile it m ay be n o on e’s in t en t t h a t t h e bu r -den of t h e im pa ct of r edu ced fi n a n ces fa lls on pr ofession a l su ppor t ser vices, it is t h e a r ea u n der t h e cu r r en t syst em of in cr em en t a l r esou r ce m a n a gem en t m ost lik ely t o be a ffect ed a s it is t h e on e m ost ea sily m a n ipu -la t ed. T h is m ay be du e t o it s com posit ion of m a n y pa r t s, a n d pa st pr a ct ice of r edu cin g fu n din g in sm a ll por t ion s fr om m a n y a r ea s h a s cr ea t ed lit t le a git a t ion a n d m et a n et goa l. T h er e a r e t wo possible ou t com es in dea lin g w it h t h e cu r r en t sit u a t ion .

Outcomes – without action

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exa m ple) ca n n o lon ger be con sider ed a s pa r t of t h e sch ool cu r r icu lu m . T h is r esu lt s in a sin k -or -sw im sit u a t ion for im m igr a n t s a n d ser iou sly er odes m u lt icu lt u r a lism w it h in t h e con t ext of t h e Ca n a dia n cu lt u r a l m osa ic.

Outcomes – amelioration

T h e $10.9 m illion bu dget r edu ct ion is a st r on g in dica t or t h a t t h e cou n t y boa r d h a s ver y ser iou sly a t t em pt ed t o t r im it s bu dget . In fa ct , it is on e of t h e lea n est bu dget s a r ou n d. How -ever, even if n o fu r t h er fu n din g r edu ct ion s a r e m a de t h er e m u st st ill be a r edu ct ion in ser vices ow in g t o in cr ea ses in t ea ch er sa la r ies (if a n y), cost s of ser vices a n d equ ip-m en t , a n d t h e boa r d’s in cr ea sin g n eed t o m a in t a in cu r r en cy in com m u n ica t ion s syst em s. P r essu r es fr om pa r en syst a n d osyst h er in syst er -est gr ou ps t o in cr ea se, or sim ply m a in t a in , qu a lit y in edu ca t ion a r e lik ely t o be fu t ile in t h eir a t t em pt s t o br in g a bou t r esu lt s. In t h e lon g h a u l, sch ools w ill be besie ged by in cr ea s-in gly fr u st r a t ed a n d cr it ica l gr ou ps a n d w ill on ly be a ble t o pr odu ce lower qu a lit y pr o-gr a m m es.

T h er e is n o r a t ion a l cu r e for t h is sit u a t ion a s su ccessive r edu ct ion s of r esou r ces r edu ce a dm in ist r a t or s t o a pr ocess of r esou r ce a llo-ca t ion r a t h er t h a n on e of r esou r ce m a n a ge-m en t (Giles, 1995). P a r a ge-m ou n t in ige-m por t a n ce in a m elior a t in g w h a t is fa st becom in g a cr it i-ca l sit u a t ion is a n eed for pr ovin cia l r efor m of bu dget in g pr econ dit ion s a n d pr a ct ice.

The need for provincial reform

As t h e ca se st u dy of t h e cou n t y boa r d h a s sh ow n , “dea t h by a t h ou sa n d cu t s” is n o w ay t o r u n a n edu ca t ion ser vice. Clea r ly, it is n o lon ger possible for even m ediu m -size sch ool boa r ds (by On t a r io st a n da r ds) t o w it h st a n d su ccessive bu dget r edu ct ion s, a d e fa ctoca p on t h eir a bilit y t o r a ise t a xes, a n d t h e n eed t o m eet t h e dem a n ds of cen t r a lly m a n da t ed r efor m s w h ich a r e n ot su ppor t ed by a ddi-t ion a l r esou r ces. Sim u lddi-t a n eou s m a n a gem en ddi-t of con t r a ct ion a n d r efor m m ay be possible bu t n ot set a ga in st a n a n a ch r on ist ic fu n din g a n d a dm in ist r a t ive a ppa r a t u s wh ich is “ou t of it s t im e” in t h e edu ca t ion a l clim a t e cu r -r en t ly em e-r gin g in On t a -r io.

T h er e seem t o be t h r ee r oot ca u ses t o t h e pr oblem of r esou r ce m a n a gem en t in t h e pr ovin ce. F ir st , t h e r edu ct ion in r esou r ces h a s been u n pla n n ed a n d in cr em en t a l. Sec-on d, t h e levels of r edu ct iSec-on in r esou r ces do n ot t a k e in t o a ccou n t t h e lik ely im pa ct on exist in g ser vice st a n da r ds, or t h e pr a ct ica lit y of a ch ievin g m a n da t ed (bu t n ot fu lly cost ed a n d r esou r ced) r efor m s a lr ea dy in t h e pipelin e. T h ir d, t h e focu s of t h e r edu ct ion in

r esou r ces h a s been t h e sch ool boa r d, r a t h er t h a n t h e pr ovin cia l edu ca t ion syst em – a h olist ic view h a s n ot been a fea t u r e of r esou r ce m a n a gem en t in t h e pr ovin ce.

Revisions to the management of

resources in Ontario

Befor e in t r odu cin g popu la r ist “solu t ion s”, su ch a s r est r u ct u r in g t h e cu r r icu lu m , a n d in t r odu cin g pr ovin ce-w ide a r r a n gem en t s for t h e t est in g of st u den t s, polit icia n s a n d Min -ist r y of E du ca t ion a n d T r a in in g (MOE T) officia ls n eed t o decide h ow best t o r evise t h e a dm in ist r a t ive m osa ic befor e m or e r efor m is m a n da t ed a t sch ool level. Wh a t follow s, t h en , a r e a n u m ber of (by n o m ea n s exh a u st ive) su ggest ion s w h ich a im t o a lign t h e n eed for r efor m m or e closely w it h a n a dm in ist r a t ive a ppa r a t u s m or e in t u n e w it h pr ovidin g t h e r esou r ces for h a r d-pr essed t ea ch er s t o be effect ive, efficien t , econ om ic, bu t , per h a ps m ost im por t a n t ly, equ it a ble in t h eir wor k : 1 E st a blish a n ew m ea n s of fu n din g edu ca

-t ion in -t h e pr ovin ce w h ich , w i-t h -t h e exce p-t ion of p-t a x-r ich la r ge cip-t ies, is la r gely pr o-vided t h r ou gh loca l t a xa t ion (55.5 per cen t in 1990).

2 T h e pr ovin ce sh ou ld m ove t ow a r ds a cor e pu pil fu n din g for m u la for a ll st u den t s wh ich sh ou ld r ea list ica lly r e pr esen t t h e aver a ge cost of edu ca t in g a st u den t a n d t h e fu lly-cost ed expect a t ion s of t h e MOE T. T h e for m u la m ay be a ge-weigh t ed in favou r of you n ger st u den t s, w it h t a r get fu n din g pr oject s a ch a r a ct er ist ic of t h e m or e sen ior gr a des.

3 In a ddit ion t o cor e fu n din g, a n eeds-r ela t ed elem en t sh ou ld be in clu ded t o r efl ect loca l con dit ion s m or e closely. T h is a ddit ion a l fu n din g sh ou ld con sist of t wo pa r t s. F ir st , a n a dm in ist r a t ive a ddit ion t o r efl ect a ddi-t ion a l cosddi-t s su ch a s h ea ddi-t in g, loca l bu ildin g r equ ir em en t s, h om e-sch ool t r a n spor t , fr ee sch ool m ea ls, et c.; a n d, secon d, a n a ddit ion wh ich wou ld r ela t e t o st u den t n eeds. Cor e a n d a ddit ion a l fu n din g sh ou ld r efl ect n eed a n d gu a r a n t eed pr ovin ce-w ide ser vice levels wh ich a r e n ot su bject t o a r bit r a r y polit ica l in t er fer en ce (for exa m ple, m a xi-m u xi-m cla ss sizes).

4 Review t h e r ole a n d fu n ct ion of t h e 172 sch ool boa r ds wh ich exist in On t a r io. Defi n e m or e clea r ly t h eir pr ofession a l su ppor t r ole in t h e edu ca t ion a l ser vice, in pa r t icu la r t h eir r espon sibilit y for : • qu a lit y con t r ol a n d a ssu r a n ce;

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• cu st om er ser vice (com pla in t s, su ppor t a n d a dvice) a n d m a r k et in g.

5 Redu ce t o a m in im u m t h e a dm in ist r a t ive fu n ct ion of t h e sch ool boa r ds. Ma n y of t h ese fu n ct ion s m ay be cen t r a lized a t t h e MOE T or a t a ver y lim it ed n u m ber of loca l “lea n ” MOE T dist r ict offices. Alt er n a t ively, pr ovin cia l a dm in ist r a t ion of edu ca -t ion cou ld be pu -t ou -t -t o -t en der a n d pr iva t ized w it h in clea r ly iden t ifi ed MOE T ser vice st a n da r d gu idelin es. T h ese cou ld in clu de gr ou n ds m a in t en a n ce, sch ool m ea ls, sch ool m a in t en a n ce, sch ool clea n in g a n d su pply t ea ch in g, et c. 6 E st a blish a n in de pen den t pr ovin cia l E

ffi-cien cy Savin gs Gr ou p (E SG) r espon sible for iden t ifyin g a n d r em ovin g w a st e in t h e syst em . T h e E SG wou ld ser ve t wo br oa d fu n ct ion s: fi r st , t o in vest iga t e, r e por t a n d r ecom m en d efficien cy savin gs a cr oss t h e pr ovin ce in a sim ila r w ay t o t h e Au dit Com m ission in Br it a in . Secon d, t o be r espon sible for m a n a gin g specifi c pr ovin ce-w ide efficien cy pr oject s, in su ch a w ay a s t o m in im ize disr u pt ion t o sch ools, bu t m a xim ize savin gs w h ich ca n pa r t ly be offset a ga in st bu dget defi cit s a n d pa r t ly plou gh ed ba ck in t o cla ssr oom s t o im pr ove ser vice deliver y. Specifi c pr oject s wh ich cou ld be m a n a ged a t t h e pr esen t t im e by su ch a body wou ld in clu de: • t h e ph a sed m er ger of t h e 172 sch ool

boa r ds in t h e pr ovin ce t o cr ea t e la r ger, m or e cost -efficien t u n it s;

• br in gin g t oget h er in u n ifi ed boa r ds t h e E n glish pu blic sch ools, F r en ch pu blic sch ools, E n glish se pa r a t e sch ools a n d F r en ch se pa r a t e sch ools, t o en su r e m a xim u xim efficien cy savin gs in t er xim s of pla n -n i-n g a -n d su ppor t ser vices t o sch ools; • est a blish m en t of a pr ovin cia l sch ool

su pplies pu r ch a sin g or ga n iza t ion ; • est a blish m en t of a pr ovin cia l sch ool

t r a n spor t com m ission ;

• st a n da r dizin g of for m s, pr ocedu r es a n d st a t ist ica l da t a collect ion . E n su r e syst em -w ide in t e gr a t ion of da t a collec-t ion collec-t h r ou gh collec-t h e developm en collec-t of a n On t a r io com pu t er -ba sed m a n a gem en t in for m a t ion syst em .

Conclusion

T h is pa per r ecom m en ds t h a t On t a r io m a n -a ges in t o pl-a ce -a c-a r efu lly-t h ou gh t -t h r ou gh r est r u ct u r in g of t h e w ay t h a t t h e r esou r ce in t er fa ce is m a n a ged a t pr ovin cia l, sch ool boa r d a n d sch ool levels. Ca lls for econ om ies a t sch ool boa r d level, a s t h is exa m ple of t h e cou n t y boa r d h a s sh ow n , w ill sim ply n ot deliver efficien cy, effect iven ess, econ om y a n d

equ it y. If exist in g a dm in ist r a t ive st r u ct u r es a r e su st a in ed we w ill in evit a bly see a n u n r av-ellin g of edu ca t ion a l pr ovision in On t a r io, en or m ou s dispa r it ies in bot h t h e level a n d qu a lit y of ser vices on offer t o st u den t s, a n d a n in a bilit y t o a ddr ess a gr ow in g r a n ge of pr ofession a l issu es r ela t in g t o equ it y wh ich , h it h er t o, h a s been a cor n er st on e of in t e gr a t ion a n d socia l coh esion in t h is pr ovin ce.

References

Bon d, R. (E d.) (1996), T h e A th er ton Pa p ers: A H istor ica l R ev iew of E d u ca tion a l Fisca l Policy A n a lysis in Ca n a d a, Br ock Un iver sit y P u b-lish in g, St . Ca t h a r in e’s.

Giles, C. (1995), “Sit e-ba sed pla n n in g a n d r esou r ce m a n a gem en t : t h e r ole of t h e sch ool develop-m en t pla n ”, E d u ca tion a l Ch a n ge a n d Dev elop -m en t, Vol. 15 N o. 2, pp. 45-50.

Ha r gr eaves, D. (1994), “Ch a n gin g t ea ch er s, ch a n g-in g t im es: t ea ch er s’ wor k a n d cu lt u r e g-in t h e post m oder n a ge”, OISE P r ess, Tor on t o. On t a r io Min ist r y of E du ca t ion a n d T r a in in g

(1994), R oya l Com m ission R ep or t: For th e L ov e of L ea r n in g, Qu een ’s P r in t er for On t a r io, Tor on t o.

Appendix: the county board of education

budget for 1995 (fall)

T h e follow in g over a ll fi gu r es a r e com pa r ed w it h t h e h igh est over a ll fi gu r es over t h e pa st fou r yea r s, a n d a r e in m illion s of dolla r s.

Salarie s and wage s

1992 – 77.2, 1995 – 74.0.

Emplo ye e be ne fits

1995 – 10.6. T h ese h ave in cr ea sed ea ch yea r.

Trave l

1991 – 0.18, 1995 – 0.14

Busine ss administratio n

1991 – 0.82, 1995 – 0.76.

Equipme nt

1991 – 0.15, 1995 – 0.13. T h is in clu des in su r -a n ce wh ich h -a s in cr e-a sed by 61.97 per cen t over fi ve yea r s.

Ge ne ral administratio n

1994 – 0.49, 1995 – 0.4.

Co mpute r se rvic e s

1991 – 0.34, 1995 – 0.22.

Supe rinte nde nts o f e duc atio n

T h ese fi gu r es in clu de r esou r ce m a n a gem en t , per son n el t r a in in g, st a ff developm en t , pu blic h ea lt h ser vices a n d sch ool sa fet y pa t r ols, bu t n ot sa la r ies. 1991 – 0.1, 1995 – 0.1.

Me dia c e ntre

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Pro gramme se rvic e s

1991 – 0.47, 1995 – 0.40.

Co mmunic atio ns

1994 – 0.25, 1995 – 0.25.

Re gular day sc ho o l c o sts

T h ese in clu de fu r n it u r e a n d equ ipm en t , t ext a n d libr a r y book s, cla ssr oom su pplies, st a -t ion er y cos-t s, com pu -t er sof-t w a r e, voca -t ion a l edu ca t ion a n d cor e F r en ch pr ogr a m m e n eeds.

1991 – 4.7, 1995 – 4.0.

Co ntinuing and c o mmunity e duc atio n

1991 – 0.2, 1995 – 0.08.

Co -o pe rative e duc atio n – pe rso nne l training

1991 – 0.028, 1995 – 0.018.

Plant o pe ratio n

1995 – 2.96. T h is h a s been in cr ea sin g ever y yea r. It in clu des a 15.5 per cen t in cr ea se in pr oper t y in su r a n ce.

Plant mainte nanc e

1994 – 1.33, 1995 – 1.33. T h is h a s been in cr ea s-in g ever y yea r a n d s-in clu des a 72.48 s-in cr ea se in veh icle in su r a n ce.

Transpo rtatio n

1991 – 7.74, 1995 – 6.46. T h is in clu des specia l t r a n spor t for exce pt ion a l st u den t s a n d h om e-sch ool t r a n spor t .

Tuitio n fe e s

1991 – 0.57, 1995 – 0.48. T h is is com posed of fees pa id t o ot h er boa r ds for specia l edu ca t ion ser vices.

Capital no n-allo c able

1991 – 8.89, 1994 – 4.43, 1995 – a 100 per cen t decr ea se fr om 1994. T h is in clu des ca pit a l pr oject s a n d ca pit a l im pr ovem en t pr ogr a m m es.

De bt c harge s and c apital inte re st

1991 – 1.62 a n d h a s been a r ou n d 2.5 sin ce. T h is in clu des deben t u r e r e paym en t s a n d ca pit a l loa n in t er est .

Othe r o pe rating c o sts

1992 – 0.15, 1995 – 0.13.

Bank c harge s and inte re st

1991 – 0.01, 1995 – 0.1.

To tal budge t