The Unionization of School Administrators: a Study of Public Policy-Making and Labor Relations
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DOCUMENT RESUME ED 248 569 EA 016 647 AUTHOR Cooper, Bruce S.; Nakamura, Robert T. TITLE The Unionization of School Administrators: A Study of Public Policy-Making and Labor Relations. INSTITUTION Dartmouth Coll., Hanover, N.H. SPONS AGENCY National Inst. of Education (ED), Washington, DC. PUB DATE [83] GRANT NIE-G-78-0061 NOTE 398p. PUB TYPE Reports Research/Technical (143) EDRS PRICE MFO1 /PC16 Plus Postage. DESCRIPTORS *Administrator Attitudes; Board of Education Policy; *Collective Bargaining; Educational Administration; Elementary Secondary Education; Labor Legislation; *Labor Relations; Management Teams; *Middle Management; Organizational Development; Organizational Theories; Policy Formation; Principals; *Professional Associations; Superintendents; Teacher Associations; Teacher Strikes; *Unions IDENTIFIERS Public Employment Relations Boards; Rodda Act (California 1975) ABSTRACT This study offers a comprehensive analysis of the process of gaining and implementing public school administrators' right to unionize. The first two chapters consider why school administrators perceive the need for negotiation rights. Chapter I incorporates literature on the changing role, status, and work ethos of educational administration. Chapter II discusses four approaches to affiliation that administrators may take: with community, top \managers, teachers, or with one another in a union-like relationship. Chapter III surveys the process of public policy-making and its effects for school supervisors, focusing on the passage and implementation of California's Rodda Act. Chapter IV details the implementation of state labor laws by school districts and by state bodies in California and Florida. Chapter V analyzes the metamorphosis of school administrator associations from clubs to unions in response to state policies and presents comparative dataon administrator organizations in six districts. Chapter VI, which explores changes in the ideology and attitudes of school administrators as local bargaining develops, reports a survey revealing that union membership and collective bargaining among school middle Aministrators are strongly related to the level of agreement with top managerial opinions. Chapter VII speculates on future developments in unionization of school administratcrs and other public sector supervisors. (MJL) *********************************************************************** Reproductions supplied by EDRS are the best that can be made from the original document. *********************************************************************** U.S. DEPARTMENT OF EDUCA ?ION NATIONAL INSTITUTE OF EDUCATION EDUCATIONAL RESOURCES INFORMATION CENTER (ERIC) This document has been reproduced as eceived from the person or organization originating it Minor changes have been made to improve reproduction quality Points of view or obintons stated in this dour merit do not nec.esVirily represent official ME position or policy e .THE UNIONIZATION OF SCHOOL ADMINISTRATORS* A Study of Public Policy - Making and Labor Relations Bruce S. Cooper, Robert.T. Nakamura. Fordham University Dartmouth College School of Education Government Dept, 113 W. 60th St. Hanover, NH 03755 NtTIOC123 603-646-2555 212-841-5217/636-5625 802-333-4484 : This study was .supported by a- grant fromthe ntional Institute of Education, # 141.76-00101 Please do not print without written permission of the authors. TABLE OF CONTENTS Author;Preface....pp. 1-16 Chapter I: LIFE IN THE MIDDLE....pp.1-35 Chapter II: DILEMMAS AND SOLUTIONS....pp.1-36 Chapter III: STATE LAW-MAKING ANDTHE RIGHTS OF ADMINISTRATORS TO BARGAIN...pp. 1-44 Chapter IV: IMPLEMENTING SCHOOLADMINISTRATOR BARGAINING RIGHTS....pp. 1-32 Chapter V: FROM "CLUBS" TO"UNIONS": The Impact of Policy Changes on AdministratorGroups....pp. 1-102 Chapter VI: IMPACT AND IMPLICATIONS....pp.1-55 Chapter VII: THE FUTURE....pp. 1-34 AUTHOR!:PREFACE This book represents the first full-scale study of collective bargainingamong public school school principals and other middle-rank.- supervisorssince extensive public sector unionization began in the 1960's. Although a spate of research and books greetedpublic school teachersas they joined the ranks of America's unionized workers (1), little major inquiry has been madeinto collective negotiations for public sector supervisors in general and school administrators in particular (2). The topic istreated as if it did not exist. Takt a case in point. In 1968, during the bitter confrontation between representativesof the black community of Ocean Hill-Brownsville and the leadership of the school unions in New York City,news of the United Federation of Teachers (UFT) so dominated the media that the public had the misconception that the teachers were the onlyeducators involved. Newspaper and later, scholarly studies, quoted Albert Shanker, the UFT president, at length about the teacher's position. Books by the armsful detailed every move Shenker made as he dealt with blackleader Rhody McCoy, Mayor John Lindsay, and various other spokespeople for the state legislature, Ford Foundation, and other groups supporting the experiment in "community control (3).' And when a series of strikes closed the public schools for its 1.2 million children, Shankerand the UFT gained most of the credit (or blame). What seemed to escape the public eye and the analysis ofmany observers, however, was an event of great O. significance: the Council of Supervisory Associations (CSA), representing the city's 2,700 public school administrators, led by the lateWalter. Degnan, joined its colleagues, the teachers, on the picket lines. No one seemed to notice the fact thata group of principles was on strike (4)! In 1974, that samegroup, the CSA., began to organize nationally. It brought together similar school administrators from such cities as Chicago, San Francisco, Baltimore, Boston, Washington, D.C., 'and St. Louis, as well as administrator associations from smeller communities, and met suburbs, to petition the AmericanFederation of Labor- Congress of Industrial Organizations,AFL-CIO, for status as a national union affiliate. On July 9, 1976,in NewYork City, the AFL-CIO chartered fifty such administrator associations as the nation's first supervisoryunion within the labor movement--the American Federation of School Administrators (AFSA) (5). Again, withoutMuch notice, schobl supervisors have participated ina quiet revolution in American laborrelations: middle managers engaging in collective bargaining with boards of education under the banner of the AFL-CIO. By 1980, not only hadsome 12,000 principals and other middle-level administrators gained affiliationwith AFSA through membership in their 72 locals,but nearly 21 percent of the nation's school administrators were negotiating collectively with boards ofeduw2tion, according toa survey by the National Association of Secondary School Principals (6). At last count, over 2,800 school districts had recognized associationsof schooladministrators as the official bargaining group for principals and other supervisors (7). Issues settled at the negotiatingtable .often included such traditional union concernsas salaries, fringe benefits,_ and the creation ofsuch rights as formal grievahce procedures,access to binding artitration, as well as layoffpolicies stressing seniority. In short, school supervisors are just now bargainingover the labor- management concerns which have concerned other workers and managers for centuries. Another important development has been overlooked. Much of,',this growth in supervisory unionization--infact, the bulk of it--has been theresultof IPmgmajorchanges in state labor relations policies. Twenty-one states hatelaws that protect the right of supervisors in public jobs to be represented by a bargaining agent or union. In addition, even in some states without bargaining statutes, local boards of eaucation in increasing numbers have decided, voluntarily and without enabling legislation, to negotiate 3 with school administrators (8). So, besides the changes in local management-supervisor relations, we have also witnessed something ofa revolution in public sector labor policies--a sharp departure from the laws in the private sectorwhich deny legal protection to foremen and other supervisors in commerce and industry (9). Finally, bargaining for school administrators has dramatically changed the internal workings of school systems. For almost a century, the school bureaucracy operatedunder the guiding principleof the so-called "management" or "administrative team," the notion that principals, assistant principals, and other similar administrators were a structural extension of the superintendents' authority (10). It was somehow tacitly assumed that whatever the superintendent as chief executive officer decided, the principals would follow. Decisions whichwere made at the top were to be carried out by those in the middle with a modicum ofinterference. The idea that a principal should ever need, much less want, a collective, independent voice indetermining pay and working conditions was unthinkable. Such an idea verged on disloyalty, insubordination, if not mutiny itself. But collective bargaining promises to change much of that. Now, for the first time, the tenetsof adversari,lism have challenged the management chain-of-command. While school middle administratorsmay follow orders as always in 4 performing their daily duties in the job, on matters 0 affectingtheir rights, jobs, and remuneration, they may seek the right of bilateral decisionmaking, and procedural