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The Consolidation of Ypsilanti Public and Willow Run Community Schools: Lessons Learned and Policy Considerations Scott A

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The Consolidation of Ypsilanti Public and Willow Run Community Schools: Lessons Learned and Policy Considerations Scott A Eastern Michigan University DigitalCommons@EMU Master's Theses, and Doctoral Dissertations, and Master's Theses and Doctoral Dissertations Graduate Capstone Projects 2016 The consolidation of Ypsilanti Public and Willow Run Community Schools: Lessons learned and policy considerations Scott A. Menzel Follow this and additional works at: http://commons.emich.edu/theses Part of the Social and Behavioral Sciences Commons Recommended Citation Menzel, Scott A., "The onc solidation of Ypsilanti Public and Willow Run Community Schools: Lessons learned and policy considerations" (2016). Master's Theses and Doctoral Dissertations. 848. http://commons.emich.edu/theses/848 This Open Access Dissertation is brought to you for free and open access by the Master's Theses, and Doctoral Dissertations, and Graduate Capstone Projects at DigitalCommons@EMU. It has been accepted for inclusion in Master's Theses and Doctoral Dissertations by an authorized administrator of DigitalCommons@EMU. For more information, please contact [email protected]. The Consolidation of Ypsilanti Public and Willow Run Community Schools: Lessons Learned and Policy Considerations by Scott A. Menzel Dissertation Submitted to the Department of Leadership and Counseling Eastern Michigan University in partial fulfillment of the requirements for the degree of DOCTOR OF PHILOSOPHY Educational Leadership Dissertation Committee: William Price, PhD, Chair Jaclynn Tracy, PhD Theresa Saunders, EdD Russell Olwell, PhD June 30, 2016 Ypsilanti, Michigan ii DEDICATION This dissertation is dedicated to the youth of Ypsilanti who deserve high quality educational opportunities that will prepare them for a successful future. (Jeremiah 29:11) iii ACKNOWLEDGMENTS Those who have completed a dissertation know and understand the sacrifice required on the part of the family of the individual completing the work. I am grateful for the love and support of my wife, Tammy, and two daughters, McKayla and Madyson, who encouraged me throughout the process of conducting the study and writing the dissertation. Many other opportunities were set aside in order for me to accomplish this goal and their sacrifices have not gone unnoticed. I am truly blessed to have such a supportive and understanding family. My team at the Washtenaw Intermediate School District is outstanding. Their dedication and commitment to equity, inclusion, and social justice was the driving force behind the work in supporting the consolidation effort. The key leaders at WISD sacrificed a significant amount of their time and energy in order to ensure that the youth in Ypsilanti have educational opportunities leading to greater likelihood of success. The following individuals participated in various ways during the time period studied in this dissertation and deserve to be acknowledged: Brian Marcel, Sarena Shivers, Naomi Norman, Jennifer Scott-Burton, Karen Erhardt-Domino, Alan Oman, Margy Long, Gerri Allen, Emma Jackson, and Holly Heaviland. Because of the work facilitated by the WISD, much of the archival information that supported this study was retained in hard copy or electronic files at the WISD. Special thanks to Karen Allen, my assistant, who helped track down a number of important documents and provided encouragement along the journey toward completion along with Emma Jackson, communications and public relations specialist, who photographed and made available most of the pictures included in the study. She also read a number of chapters for coherence and initial edits. I also want to express appreciation to Betty Ivers who reviewed iv and edited the final manuscript and worked within very tight deadlines with a keen eye for detail. Finally, my assistant superintendent for achievement, Naomi Norman, has been a tremendous thought partner not only during the consolidation effort, but as I worked to conduct this study on the first phase of the consolidation. Her dedication and commitment to the ongoing work in Ypsilanti is remarkable. I am grateful for my dissertation committee. Dr. Price willingly agreed to serve as my chair as I recommitted to completing a journey that started more than a decade ago. His background as a successful superintendent in Michigan coupled with critical suggestions along the way helped ensure the document met the standards of quality at EMU. Dr. Tracy has been my advisor since I enrolled in the specialist program at Eastern Michigan, and she has provided advice and counsel over the years that contributed in important ways to my professional success. Dr. Theresa Saunders provided encouragement as well as helpful suggestions along the journey. A special thanks is due to Dr. Russ Olwell who agreed to read very rough drafts of each chapter early in the process and provided suggestions for where more information was needed. Together, this dissertation committee helped me accomplish an important milestone in my educational career, and I cannot think of a better group of mentors and guides throughout this process. I want to thank the Washtenaw ISD board of education. When they hired me in 2011 little did we know what the journey would entail. However, each member of the board of education during the consolidation process—Greg Peoples, Diane Hockett, Mary Jane Tramontin, Dayle Wright, and Mark VanBogelen—all had a fundamental commitment to the importance of our work on the eastern side of Washtenaw County. What we were able to accomplish would not have been possible without the vision and support of this outstanding v group of dedicated public servants. Additionally, they have been extraordinarily supportive of my efforts to complete my dissertation, and their encouragement along the way has been timely and important. I am humbled to lead such an outstanding organization and to work with a dynamic leadership team of both board and staff. Finally, I want to acknowledge the team of extraordinary individuals who led the consolidation effort, most of whom participated in this study as well. The journey was not easy, and success uncertain at the beginning, but the dedication and commitment to the students in Ypsilanti and Willow Run always remained at the forefront of every decision. David Bates and Don Garrett were willing to take the first steps as presidents of their respective boards of education. Their courage, combined with the willingness of the two superintendents—Dedrick Martin and Laura Lisiscki—to engage in the effort, was critical to the overall effort. The passionate support of Representative David Rutledge, who understands the importance of high quality educational opportunities, and the ability to secure additional support from Representative Rogers and State Superintendent Flanagan was also key. Former superintendents, Dr. James Hawkins and Dr. Youseff Yomtoob, also provided key guidance along the way, both during the consolidation process as well as in reflecting on what we learned. It is my hope that others will find this study useful as they contemplate whether unifying neighboring districts will create opportunities for students that otherwise may not exist. vi ABSTRACT The purpose of the study was to understand the lessons learned and policy considerations from the successful vote to consolidate the Ypsilanti Public and Willow Run Community Schools. In the past thirty years, only four consolidations have been approved by voters in Michigan; and at least nine consolidation proposals were rejected. Of the successful consolidation votes, three were small rural districts with student enrollments of less than 1,000 when the districts merged. The consolidation of Ypsilanti Public and Willow Run Community Schools represents a unique case. The combined student enrollment at the time of the consolidation vote was approximately 4,800 students. Each district was in deficit and struggling with achievement. The literature on consolidation of districts focuses primarily on small and rural schools. Arguments in support of consolidation typically address economic efficiencies or increased educational opportunities. This study contributes to the literature by investigating the consolidation of two urban, mid-sized districts as an attempt to address both financial and academic challenges. The research was conducted as a qualitative historical case study. Leaders in the process were interviewed, and the researcher analyzed the background conditions and historical context in order to understand why this consolidation effort was successful. The conceptual framework for evaluating the findings included three core concepts: transformational leadership, policy entrepreneur and the policy window, and the Greek concept of kairos. Key findings included the importance of understanding the historical context from a social, political, and economic perspective. These conditions were determined to be necessary for the successful consolidation vote but insufficient to explain vii why the consolidation occurred at this time and not at another. In order to take advantage of the opportunity (kairos), transformational leadership was required, coupled with policy entrepreneurs who were able to address the key policy barriers. The convergence of the right time, transformational leaders, and policy entrepreneurs provided important insights with respect to why this effort was supported by 61% of voters in both communities. The lessons learned provide guidance to other districts contemplating consolidation as well as to policy makers attempting to promote additional consolidation of districts. viii Table of Contents DEDICATION .........................................................................................................................
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