Response to The Northland School Division Inquiry Team Report Alberta Education, November 2010 The Alberta Teachers Association 2011 03 21
The Alberta Teachers Association (the Association) is pleased to be able to provide comments on the Northland School Division Inquiry Team Report and to encourage the Government of Alberta and Alberta Education to take action on many of the recommendations contained in it. In particular, we would like to reiterate the comments made on page 13 of the executive summary: Much of what is reported here is not new; many findings and recommendations are a reiteration of previous studies and reports. NSD has proven to be a rather change-resistant organization. To improve student learning outcomes, the organization must now overcome that limitation and make substantial adjustments to improve student results. Advocacy for change is an essential ingredient for the future success of NSD. To that end, we strongly urge the Government of Alberta to take the necessary measures to ensure implementation of those recommendations, especially as they relate to the administration and governance of Northland School Division. Key Recommendations In response to some of the specific recommendations, the Association believes that a fundamental change in the governance and administrative structure as recommended by the inquiry team is a prerequisite to school improvement measures and the ability to enhance the success of students within their communities. To this end, we have identified three key recommendations that we believe must be the foundation of any systemic change in Northland School Division: Recommendation #22: That NSD ensure strengthened responsibility and accountability relationships between students, teachers, principals and the superintendency. In particular, that the human resources management function (recruitment and termination of personnel) become clearly a management activity with appropriate community input only; it must cease to be regarded as a governance function subject to political processes.
p 2 Recommendation #23: That NSD re-establish central, regionally based, administrative and pedagogical roles by re-directing some resources away from classroom-based positions. These re-established roles should provide direction, assistance and support to principals and teachers for NSD-wide approaches, implementation and assessment of core literacy and numeracy programs. As in other public school jurisdictions, recommendations 22 and 23 are essential in establishing an accountability structure for staff to a central administration, as well as ensuring the support system required for teachers working in isolated communities. Recommendation #37: That Alberta Education entrench NSD s governance policies and protocols in a Ministerial Order, or similar arrangement, to ensure that those in governance roles focus on governance activities and delegate management activities to staff, subject to effective accountability, reporting and oversight processes in a manner that cannot be unilaterally revised by NSD. Recommendation 37, which would in many ways model the structure in use throughout the province with a policy-driven board of trustees, would ensure the appropriate framework for division administration and teachers to focus on responding to student needs without fear of political interference at the local level. Although Northland School Division serves the needs of a diverse population, it is essential that the division function as a cohesive whole, rather than simply the sum of its fragmented parts. As such, we believe the key recommendations upon which others can build must include the recommendations mentioned above.
p 3 Comments on Specific Recommendations The Association would also comment on the following additional recommendations: Recommendation #3: That NSD implement an improvement strategy requiring an action-oriented leadership structure that is centred on strategic governance and focused on the following three central priorities over the next nine to 12 years: English language and numeracy development Improved student attendance Strengthening parents engagement with their schools through improving communication and levels of trust. In this regard, it is recommended that NSD take the lead in implementing the FNMI Services Branch parent-engagement initiative. Recommendation 3 focuses on an action-oriented leadership structure centered on strategic governance to focus on priorities in English language and numeracy, improved student attendance and strengthened parent engagement. A key component of this recommendation for the Association is its emphasis on the administrative and governance model it assumes and which is consistent with the key recommendations referred to above. Recommendation #12: That NSD strengthen the Aboriginal cultural content within the curriculum; and further that more emphasis, including staff development and support, be placed on Aboriginal content infusion as provided for in the Alberta curriculum. Recommendation 12 underscores the importance in Northland communities for effective integration of Aboriginal culture within the curriculum and complements the Association s view that successful education represents more than test scores on provincial achievement tests. Consistent with the inquiry team s report, inordinate heavy emphasis on test preparation for PATs is a questionable improvement strategy : success in Northland will not be achieved through a focus on testing but by addressing the underlying societal issues that are the cause of poor achievement and extend beyond the school.
p 4 Recommendation #20: That NSD re-establish an effective orientation program for new hires, with a substantial emphasis on community and cultural components, and further, that the placement of new employees into communities be arranged with sufficient time for them to experience community-level orientation and settling-in prior to the start of teaching duties. Recommendation 20 deals specifically with recruitment and retention of staff. Staff retention is often a reflection of staff morale, and in Northland School Division, it is essential that appropriate pre-employment orientation occur. However, the Association would expect that any employee required to attend such orientation be remunerated as provided for in the collective agreement for days of work during the summer in excess of that required by other full-time staff. Recommendation #21: That NSD implement and maintain staff development activities that enhance teachers skills at individualizing, differentiating instruction, employing more experiential-based learning activities and devising learning activities that include formative assessment skills, in recognition of the diverse learning levels and needs of NSD students. Recommendation 21 supports a long-term Association belief that staff professional development activities are an essential component of effective instruction. As referenced earlier, the isolated nature of Northland schools, as well as their limited staff complement, makes it difficult for teachers to develop the support network required for collaborative endeavours. Capacity for instructional, administrative and support services must be restored.
p 5 Recommendation #24: That NSD establish and sustain over time a school-community development function within the organization. This function should include a staff position whose job is to regularly and systematically facilitate school-based meetings with parents and community members to develop the school s strategic role within the future of the community. This staff position must take the lead in implementing the parent engagement process, including reflecting the concepts behind the former Community Schools program and the Integrated Services delivery model. Further, that this function also include designated resources to enable school staff to regularly host community gatherings (such as community suppers) at the school. Recommendation 24, although supported by Association policy on community schools, raises concerns about its impact on teacher workload. While the goal of increased school community development is a laudable one, one must recognize that given the nature of many Northland communities, many staff members are unable to live within those communities and have personal and family obligations that are not employment related. Should the work expectations involve such community work, the regular workload of teacher would need to be accommodated. Recommendation #30: That Alberta Education and NSD jointly explore supporting NSD teacher housing through an arms-length entity (some type of housing authority) acting on NSD s behalf, and perhaps on behalf of other public sector employers in northern Alberta communities, in order to get away from the staff relations issues associated with the employer being the landlord; further that innovative, ongoing provincial funding be implemented to enable such an arrangement to be viable. Recommendation 30, which deals with housing, not only requires action to ensure the availability of reasonable accommodation but also must be viewed in the context that teaching in Northland School Division, although a noble cause, does not represent a 24-hour per day relationship with the employer. In addition, the recommendation must be viewed in the context
p 6 of recommendation 24 above regarding community schools so as to ensure that teachers can take the necessary refuge from work to maintain a healthy lifestyle, thereby helping to increase staff retention. Recommendation #38: That the provincial government amend the Northland School Division Act to establish a nine-member Board of Trustees; seven elected by direct election (ward system), one other a First Nations representative nominated pursuant to an Education Agreement (with Treaty 8) and one other a Métis representative nominated by Métis Settlements General Council, both of the latter appointed to the board by the Minister of Education. For a graphic representation, please see Appendix 12: Renewed Governance Model. Recommendation #39: That a term limit of not more than two consecutive three-year terms be established for members of the Board of Trustees to ensure effective representation from throughout the system over time and to minimize the potential of factional politics and inappropriate concentrations of power. Recommendation #40: That an ex officio (non-voting) member of the Board of Trustees be appointed by the Minister of Education as a process observer and coach to facilitate organizational change and ensure that the participants of the new structure remain true to intent. Please see Appendix 12: Renewed Governance Model. Recommendation #41: That Alberta Education support a governance structure that fosters a sense of ownership at the community and parent levels without impinging unduly on school operations and teachers professional practice.
p 7 Recommendation #42: That the provincial government amend the Northland School Division Act to expand Local School Board Committee membership to include parent and teacher representation and that its role be consistent with that of a School Council as set out in the School Council Regulation. Recommendation #43: That a Council of Chairs of the newly constituted Local Boards meet twice yearly with the Board of Trustees in a legislative advisory role. Recommendations 38 to 43, which deal with specific governance issues, are supportive of the key recommendation highlighted in the first section of the Association s response. Although the details should reflect the diversity of Northland communities, the recommendations strike an appropriate balance between the interests of these distinct communities and a corporate structure that is empowered to act in a consistent and efficient manner in addressing the educational challenges facing the division. Conclusion In conclusion, the Association wishes to express its support of the inquiry team s recommendations and encourages the Alberta government to address these recommendations not only in principle but also with the necessary funding to ensure their implementation. Recommendation #48: That Alberta Education create a multistakeholder implementation team including representation from: All its branches involved with NSD operations NSD leadership The external agencies and organizations involved with NSD In that spirit and consistent with recommendation 48, we look forward to the opportunity to participate on the multistakeholder implementation team in order to enhance First Nations, Métis and Inuit education in Alberta.