CREATING OPPORTUNITY OUT OF CRISIS: A QUALITATIVE CASE STUDY OF SCHOOL CLOSURE IN AN URBAN SCHOOL DISTRICT By Michael Victorino Gallego Santos B.S. (University of California, Davis) 1984 M.S. (California State University, East Bay) 2001 A Dissertation Submitted in Partial Fulfillment of the Requirements for the Degree Doctorate in Education Doctoral Program in Educational Leadership for Social Justice California State University, East Bay 2013 ! ! ! ! ! ! ! ! ! ! ! ! Copyright by Michael Victorino Gallego Santos 2013 ! ""! CREATING OPPORTUNITY OUT OF CRISIS: A QUALITATIVE CASE STUDY OF SCHOOL CLOSURE IN AN URBAN SCHOOL DISTRICT Abstract The purpose of this qualitative case study was to investigate the implementation of school closure in an urban school district. Oakdale Unified, a pseudonym for a large school district in California, has been beset by fiscal and academic challenges over the past few years. At the height of the crisis, the school district had no recourse but to close schools. This study aspired to learn about the problem by asking research questions related to school closure board policies, school closure processes and criteria, public and community involvement during decision- making, and the consequences arising after closure. In this research, the methodology included the review of board policies, the examination of extant data, and the interview of six purposefully selected individuals. Five major findings were derived from emergent themes: 1) School closure was not clearly stated or defined under board policies, but could be referenced under related policies that promote community relationships and other democratic principles; 2) The criteria used for closing schools had an enhanced academic focus that aspired to identify and reform underperforming schools under NCLB guidelines; 3) District officials informed and engaged the community in the school closure process by allowing them to participate in a task force that worked collaboratively with district staff to create the decision-making matrix; 4) The rise and proliferation of charter schools in OUSD could be linked to the community’s initial quest to establish quality schools in every local neighborhood; and 5) Displaced individuals continued to experience social and emotional feelings far beyond the closing of their school. Keywords: school closure and restructuring, school reform, NCLB, charter school ! """! California State University, East Bay College of Education and Allied Studies Doctoral Program in Educational Leadership for Social Justice This dissertation was presented by Michael Victorino Gallego Santos It was defended on September 20, 2013 and approved by _______________________________________________________ Jose Lopez, Chair Educational Leadership for Social Justice _______________________________________________________ Judy Guilkey-Amado Educational Leadership for Social Justice ________________________________________________________ Margaret Harris Educational Leadership for Social Justice ! "#! Dedication First and foremost, I would like to dedicate this dissertation to God, our Almighty Father. I would have not completed this fulfilling work without your guidance and direction. Thank you for providing me with inner strength and wisdom as I completed this journey. Secondly, I would like to thank Mrs. Evangelina V. Santos, my wife, my best friend, and most avid supporter, for inspiring me to achieve my goals and dreams. Her loving and caring self have provided me with confidence to complete this monumental milestone amidst numerous personal and professional challenges. Thank you for always being there for me. Next, I would like to acknowledge my parents, Mr. and Mrs. Victorino and Milagros Santos, for always leading by example. My parents have made many sacrifices for my siblings and me, so we could pursue our educational and professional goals. Dad and mom never provided us with the material things that teenagers desired. Instead, they gave us the gift of a lifetime, a quality college education. Thanks, dad and mom, for showing and teaching us the value of education. And finally, I would like to dedicate this dissertation to the next generation of Santoses. Always remember that anything is possible through perseverance, dedication, and commitment. Always aspire to become the best that you can be. Continue our legacy by serving others and making a difference in this world. ! #! Acknowledgements This dissertation represents my personal and professional journey during the past few years. As a high school principal, I was shaken and disturbed when I learned that my beloved school was going to close. However, through the unwavering support of mentors, role models, and colleagues, I have managed to cope with the situation, and “turn something negative into a positive.” Through their unselfish guidance and support, I have continued to grow and develop into the educational leader who I am today. I would like to take this opportunity to express my sincere gratitude to special people who have guided me along the way. First, I would like to express my deep appreciation to Dr. Jose Lopez, my dissertation committee chair. A few years ago, you convinced me to join the doctoral program despite personal qualms and doubt. Thank you for being such an amazing role model and mentor. I have learned so much under your leadership. I would also like to acknowledge Dr. Judy Guilkey-Amado and Dr. Margaret Harris. Thank you, Dr. Guilkey-Amado, for opening up opportunities for me throughout my career. Thank you, Dr. Harris, for your insights and perspectives on my dissertation. I have high regard and great respect for both of you as a friend, mentor, and colleague. I am grateful for your willingness to work with me on my journey. I would also like to mention Dr. Gilberto Arriaza for offering encouragement and advice when I needed them most. You are the older brother that I never had. I appreciate your kind, encouraging words, and your big heart. In a world of ups and downs, I really valued your advices, and putting things in perspectives for me. And finally, I would like to acknowledge Ms. Julie Ann Talbo, a former student, and Ms. Asia Camagong, my niece. I would like to thank you for helping me gather and organize ! #"! materials for my research. I hope that you have benefitted from the experience. I wish you much success as you aspire to achieve your personal and professional endeavors. ! #""! Table of Contents Chapter 1: Introduction ....................................................................................................................1 The Dilemma Behind School Closure .........................................................................................5 Engaging the Public and Community in the Decision-making Process ..............................9 Chapter 2: Literature Review .........................................................................................................12 Financial and Academic Reasons for School Closure ...............................................................14 Fiscal and Resource Management .....................................................................................15 Academic Performance and Accountability ......................................................................16 School Closures and the Charter School Movement .................................................................18 School Closure Codes, Regulations, and Policies .....................................................................22 School Closures Decision-Making Process ...............................................................................24 School Closures Criteria ............................................................................................................28 School District Responsibilities After School Closure ..............................................................32 Research Questions ....................................................................................................................35 Chapter 3: Methodology ................................................................................................................36 Research Design .........................................................................................................................36 Research Questions ....................................................................................................................38 Contextual Setting of the Research Site .....................................................................................40 Participants .................................................................................................................................43 Instrumentation ..........................................................................................................................45 Qualitative Research Method #1: Review of Board Policies ........................................... 46 Qualitative Research Method #2: Review of Extant Data ...............................................48 Qualitative Research Method #3: Interview of Different Stakeholders ...........................48 Data Collection ..........................................................................................................................49 Data Analysis .............................................................................................................................50 Limitations of the Study.............................................................................................................52