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State Policy Making for the Public Schools of Minnesota. INSTITUTION Ohio State Univ., Columbus

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State Policy Making for the Public Schools of Minnesota. INSTITUTION Ohio State Univ., Columbus DOCUMENT RESUME ED 090 690 80 EA 006 142 AUTHOR Mazzoni, Tim L., Jr. TITLE State Policy Making for the Public Schools of Minnesota. INSTITUTION Ohio State Univ., Columbus. Coll. of Education. SPONS AGENCY Office of Education (DREW), Washington, D.C.; Ohio State Univ., Columbus. Educational Governance Project. PUB DATE Apr 74 GRANT OEG-0-73-0499 VOTE 218p.; Related documents are ED 085 888 & 889,ED 085 916, EA 005 798 & 799, EA 005 833 E 834, EA 005 875 & 876, and EA 005 898 e. 899 EDRS PRICE NF-$0.75 HC-$10.20 PLUS POSTAGE DESCRIPTORS *Decision Making; Education; Educational Finance; Educational Research; Elementary Education; *Policy Formation; Political Attitudes; *Political Influences; Politics; *Power Structure; School Integration; Secondary Education; State Boards of Education; *State Government; State Legislation; Teacher Certification IDENTIFIERS Elementary Secondary Education Act Title V; ESEA Title V; *Minnesota; Tax Reform ABSTRACT One of twelve case studies growing out of the Educational Governance Project, this report containsa description and an analysis of the process through which MinnesotaState government establishes policy for its public elementary and secondary schools. This process is affected by many factors, suchas the availability of fiscal and human resources, demands arising from population changes, and the power of individuals andgroups who represent private interests. Lack of time andmoney prevented an indepth study of all these factors and necessitated thefocus on the role and impact of the various actors-- official and unofficial -- who became involved at the State level in setting pub isschool policy. Some data resulted from an investigation oft e way in which three recent education decisions were determined. Add tional data were derived from studies of the perceptions held by cross section of participants of the influence relationships characerizingthe operation of the State education policy system. (Author/JP) U ,5 DEPARTMENT OF HEALTH. EDUCATION & WELFARE NATIONAL INSTITUTE OF EDUCATION THIS DOCUMENT HAS BEEN REPRO kb° OUCED EXACTLY AS RECEIVED FROM THE PERSON OR ORGANIZATION ORIGIN AT ING IT. POINTS OF VIEW OR OPINIONS STATED DO NOT NECESSARILY REPRE aN SENT OFFICIAL NATIONAL INSTITUTE OF (:) EDUCATION POSITION OR POLICY. w STATE POLICY MAKING FOR THE PUBLIC SCHOOLS OF MINNESOTA Tim L. Mazzoni, Jr. Field Interviews for this study were conducted by Frank DePalma, Anthony Warren, and Joseph Imberman Prepared for The Educational Governance Project The Ohio State University 29 West Woodruff Avenue Columbus, Ohio 43210 This report is one of twelve case studies growing out of the Educational Governance Project. In addition, two major reports, a comparative analysis across states and an explication of alternative models of state governance of education, are in preparation. The Governance Project began in January, 1972 and is to be Completed in August, 1974. The work was funded by the U. S. Office of Education under Title V (Section 505) of the Elementary and Secondary Education Act (OEG-0-73-0499). The Policy Board for the Project was composed of three chief state school officers: Martin W. Essex of Ohio, Jack P. Nix of Georgia, and Ewald B. Nyquist of New York, with the State of Ohio serving as fiscal agent. An Advisory Committee composed of eleven persons concerned with general and educational governance also served the project. Contract for the work was let to the College of Education, The Ohio State University and Roald F. Campbell and Tim L. Mazzoni, Jr. were the directors. The activity which is the subject of this report was supported in whole or in part by the U. S. Office of Education, Department of Health, Education, and Welfare. However, the opinions expressed herein do not necessarily reflect the position or policy of the U. S. Office of Education, and no official endorsement by the U. S. Office of Education should be inferred. April, 1974 TABLE OF CONTENTS SECTION I - SOCIOECONOMIC, POLITICAL, AND INSTITUTIONAL CONTEXT Introduction 1 Socioeconomic Development 2 Political Culture 18 Governmental Institutions 26 SECTION II- THREE EDUCATION POLICY DECISIONS Introduction 42 Omnibus Tax Act (1971) 43 Desegregation Regulations (1973) 77 Teacher Standards and Certification Commiss/on (1973) 105 Three Education Policy Issues- some Comparisons 120 SECTION III - POLICY-MAKING RELATIONSHIPS Introduction 26 Fragmentation of the Education Lobby 27 Emergence of 'Teacher Power "" 35 Cross-Pressures on the State Department 40 Policy Determination in the State Board Arena .. 50 Central Role of the Governor 63 Growing Assertiveness of tha Legislature 73 SECTION IV - CONCLUSIONS AND INTERPRETATION Introduction 187 Transformation 187 Pluralism 189 Politicalization 192 Progressivism 193 FOOTNOTES 195 APPENDIX A 212 LIST OF TABLES Table Page 1. Population Trends in Minnesota, the Twin Cities Metropolitan Area, and "Outstate" Minnesota (1940-1970). 4 2. Black and Indian Populations In Minneapolis, St. Paul, and Minnesota (1960-1970) 6 3. Civilian Income Sources for Minnesota and the United States (1971) 9 4. Educational Attainment of Minnesotans Comparedwith the United State Population (1970) 10 5. Minnesota's Ranking on Selected Socioeconomic Dimensions (1890-1960) 11 6. Employment in the Twin Cities Metropolitan Are Compared with the. Rest of the State (1971) 12 7. Selected Population, Income, and Educational Characteristics for Minnesota and the Twin Cities Metropolitan Area (1970) . 13 8. Availability of Fiscal Resources for a Representative Selection of Minnesota School Districts (1970-1972) . 16 9. Minnesota Compared with the Median State in the United States on Selected Expenditure Measures (1970-1971) 20 10. Minnesota State Department of Education Upper-Level Administrators Composite Profile (N=14) 41 11. Minnesota's Pre-1971 School Finance System Compared with Other States on Selected Dimensions 44 12. Comparison of Foundation Aid and Median Maintenance Costs in Minnesota High School Districts (1963-1971).. 46 13. Selected Data on High and Low ExpenditureMinnesota High School Districts (1970-1971) 48 14. Property Tax in Minnesota Compared with United States Average (1970-1971) . 51 15. Comparison on Selected Variables Among the Major School Finance Bills in the Regular 1971 Legislative Session 61 16. Comparison on Selected Variables Among the Pre-1971 State School Aid Program, the Governor's Original Bill, and the Omnibus Tax Act 70 ii Table Page 17. Minneapolis and St. Paul Compared on Different Measures of School Desegregation with the Average (Median) of Ninety-One City School Districts Outside the South 79 18. School Expenditures and Social Class Versus Student Achievement in Six Duluth Elementary Schools (1971) 94 19. Participants in Three Education Policy Decisions 125 20. Educational Interest Group Unity as Perceived by Legislative Leaders and Eduvition Lobbyists 132 21. Issues that Divide Educational Interest Groups as Identified by Legislative Leaders and Education Lobbyists . 133 22. Influence Resources of Educational Interest Groups as Perceived by Legislative Leaders . 138 23. Relative Lobbying Influence of Educational Interest Groups as Perceived by Legislative Leaders 140 24. Points of Contact Between the Department of Education and the Legislature as Perceived by Legislative Leaders 144 25. Enactment of State Department Proposals as Perceived by Legislative Leaders 145 26. Legislator Satisfaction with State Department Information . 146 27. Policy Rale Expectations for the Commissioner of Education and State Department held by Legislative Leaders and Top State Department Administrators 149 28. Perceptions of Informal Influence in the Selection of State Board Members 151 29. Interest Group Context for State Board Policy Making as Perceived by Board Members 154 30. State Board Member Assessment of State Department Information 155 31. Policy Role Expectations for the Office of Commissioner of Education Held by its Incumbent and by Members of the State Board of Education 157 32. Legislator Perceptions of the Influence of the State Board on Education Legislation 162 33. Perceptions of the Importance of the Commissioner of Education as a Source of Advice and Ideas for the Governor 171 iii Table Page 34. Attitudes of Legislative Leaders, Education Lobbyists) and State Board Members Toward "Accountability" and Public School Change 175 35. Sources Cited by Legislative Leaders as Providing Useful Public School Information" to their Officeor Committee 178 36. Source of Public School information Cited by Legislative Leaders as being "Personally" the Most Useful One to Them 179 37. Legislators' Assessment of the "Greatest Obstacle" They Encounter in Legislating for the Public Schools 180 38. Legislator and State Board Member Attitudes Toward the Education Policy Role of the Legislature and the Policy-Making Efficacy of Their Respective Roles 181 39. Conflicts on School Finance Issue Perceivedas Being of "Great importance" by Legislative Leaders 185 v SECTION I SOCIOECONOMIC, POLITICAL, AND INSTITUTIONAL CONTEXT Introduction This report contains a description and an analysis of the process through which Minnesota state government establishes policy for its public elementary and secondary schools. We have assumed that this process is affected by many factors, including the demands arising from population changes; the availability of fiscal and human resources; the traditions of the political system and its institutional arrange- ments; the per of individuals and groups who represent private interests;
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