Padraic P. McGuinness, “Schools bear bureaucratic burden,”
The Weekend Australian, May 18-19, 1991, p. 2.
The trouble with education is democracy. Just about everybody thinks he or she knows what should be taught in schools and how and what schools should do with their pupils.
So they vote for parties which promise to set the school system right and ensure that teachers are properly paid, trained and teaching a suitable syllabus.
And to implement this they establish bureaucracies to control the schools, tell principals and teachers what to do, and insist on all kinds of reports and accounts to ensure that they are doing what they are told.
This establishes a climate which is not very pleasant for teachers, not conducive to good teaching and which is counterproductive as far as school performance and education are concerned. To adapt the old saw: those who can, do; those who cannot, teach; and those who cannot even teach tell teachers what and how to teach.
Political control and bureaucracy are the two main causes of poor school performance. This is the conclusion of the most important study in many years of education in the United States, about which I have written before, Politics, Markets and America’s Schools by John Chubb and Terry Moe (Brookings Institution, Washington DC, 1990).
The trouble is that effective teaching can come only from teachers who have the independence to teach and who are rewarded according to their success.
But to attempt to impose this, or any other principle of organisation or teaching, from above is inimical to good performance.
Discussing proposals to allow teachers greater independence, Chubb & Moe write:
For the most part the movement to empower teachers has been a characteristic exercise in democratic control.
Proponents have tried to ‘make’ teachers more powerful by relying on new bureaucratic arrangements that specify precisely who gets to do what and how they have to go about doing it.
This whole approach to empowerment is a gross distortion of the kind of shared influence that prevails within effective schools, where teachers are powerful not because rules and regulations dictate they must be, but because they naturally come to be influential participants in decision making when schools are founded on terms, informal co-operation, collegiality and mutual respect.
The qualities of effective organisation that naturally bring power to teachers cannot be imposed by bureaucratic fiat. They have to develop on their own, freely and informally. Trying to make teachers powerful through bureaucracy is the best way to guarantee that they can never achieve the kind of professionalism they really want, and that good schools require.
Indeed, as has happened especially in Victoria, the imposition of political views of what education should be about has let not to greater independence and power to teachers but a transfer of their power into the hands of union and departmental bureaucrats. Instead of being there to serve the schools, the schools now exist to serve the bureaucrats.
And this will be the inevitable outcome of any system of education, whether you call it right-wing or left-wing, reactionary or progressive, which attempts to impose uniformity on the schools or to implement a theory of education and the role of the school.
Politics and markets are appropriate in different spheres. Politics is about those things that cannot be better done by markets: the attempt to exclude markets from areas of society where they clearly work better than political control is a judgment which depends on ideological preconceptions, not on pragmatism.
Chubb & Moe argue on the US evidence (and there is a great deal of similarity between Australia and the US in education matters — the greatest difference being that our teachers’ unions will not even permit the gathering of evidence on the performance of schools and teachers) that the solution to achieving better school and education performance must be to allow all educational decisions to devolve on individual schools, between which parents can choose freely.
That is, while the Government can and should be involved in funding [sic], the choice of how that funding is applied should be not a political or bureaucratic one but a matter of parental choice. They write:
Without being too literal about it, we think reformers would do well to entertain the notion that choice is a panacea.
This is our way of saying that choice is not like the other reforms and should not be combined with them as part of a reformist strategy for improving public schools. Choice is a self-contained reform with its own rationale and justification. It has the capacity all by itself to bring about the kind of transformation that, for years, reformers have been trying to engineer in myriad other ways.
Indeed, if choice is to work to greatest advantage, it must be adopted without these other reforms, since the latter are predicated on democratic control and are implemented by bureaucratic means.
The whole point of a thoroughgoing system of choice is to free the schools from these disabling constraints by sweeping away the old institutions and replacing them with new ones.
Taken seriously, choice is not a system-preserving reform. It is a revolutionary reform that introduces a new system of public education.
This kind of approach is clearly much too radical for the political educationists of Right or Left, who want to use the school system to impose their vision of society through the schools — from the God, King and country buttoned-up moralism of the Right, to the caring, sharing, family approach to schools of the Left, which ensures that children are not prepared to enter the everyday competitive working world.
The point, however, is not that schools of either type ought not to exist, but that there should not be a school system of any kind.
In approaching reform of the public schools, therefore, the best way to improve their performance would be to take them out from under both political and bureaucratic structures. There should not be a minister of education, nor a department of education.
There are already rumblings in the NSW high school system, which will surface after the State election.
One radical proposal is that some of the leading schools should be given the opportunity to move outside the present system, becoming totally independent of the education department, with their funding being paid direct by Treasury (with proper auditing controls, of course) on a per capita pupil basis and all other decisions as to salaries, employment, staffing ratios, curriculum, management, etc left to the principal.
Principals should be hired by school councils (which would have few other powers beyond consultation) and paid according to the success of the school.
This, of course, would make such schools look very like independent schools — although even these are now subject to far too much interference by bureaucrats than is justifiable.
The significance of reform along these lines is that it would encourage diversity among State schools, not as a matter of bureaucratic fiat (as with specialist schools at present), but as a result of evolution and experiment. The weight of the evidence is that this produces better schools and better student performances.