The Inequitable Access of Knowledge: The Use of Federally Funded Intermediary Organizations as Knowledge Brokers Jesslyn Hollar A dissertation submitted in partial fulfillment of the requirements for the degree of Doctor of Philosophy University of Washington 2018 Reading Committee: Kenneth Zeichner, Chair Wayne Au Nancy Beadie Program Authorized to Offer Degree College of Education i ©Copyright 2018 Jesslyn Hollar ii University of Washington Abstract The Inequitable Access of Knowledge: The Use of Federally Funded Intermediary Organizations as Knowledge Brokers Jesslyn Hollar Chair of the Supervisory Committee: Dr. Kenneth Zeichner, Boeing Professor of Teacher Education Teaching, Learning, and Curriculum This study explores the mechanisms through which intermediary organizations (IOs) shaped knowledge use during the development of states’ plans to reduce the inequitable distribution of excellent educators. Employing the conceptual framework of Campbell and Petersen’s “knowledge regimes,” this study uses methods of critical policy analysis to explore the organizational and operational machinery behind policy ideas. The first article explores the knowledge base promoted by the IOs and used in states’ plans. The second article explores the role of tools and resources developed by IOs to assist state education agencies. The third article describes the mechanisms used by IOs to support state education agencies and experiences of that support. Findings support the role of federally funded IOs in advancing policy ideas in line with tenets of new managerialism over other reforms like improving the conditions in which teachers work or emphasizing teacher professionalism and autonomy in the contested field of teacher quality. iii Dedication For Elliette and Jane. iv Acknowledgements There are a number of people who offered their ears, eyes, minds, and time to this project. Thank you…Christie Barchenger, Pat Delmore, Connie Lambert, Tim Slekar, and Gary Sykes. Thank you to those family members who supported me in this work, who offered kind words of encouragement, and who asked how the work was coming along … Jim Hollar, Corinne Hollar, Ned and Valerie Roebuck, Ruth and Fred Roessle, and Barbara Roebuck. And of course, thank you to Ken Zeichner, Wayne Au, Nancy Beadie, Ana Elfers, and Gail Stygall for their counsel, guidance and support along the way. This work is stronger because of you. v Table of Contents Abstract iii Dedication iv Acknowledgements v Table of Contents vi Note on Dissertation Format x INTRODUCTION 1 Author Positionality 6 Structure of the Dissertation 11 CHAPTER 1: OVERVIEW OF THE CONTEXT 15 Federal Teacher Quality Policy Context (1950-2016) 17 The Race to the Top Initiative 21 Ensuring Equitable Access to Excellent Teachers 24 Teacher Distribution 24 Excellent Educators for All Initiative (2014) 31 Situating the Research 37 CHAPTER 2: KNOWLEDGE UTILIZATION, BROKERS, AND INTERMEDIARY ORGANIZATIONS 39 Uses of Research in Policy Making 40 “Two CoMMunities” Thesis 42 Faith in Research and Data to Improve Education 43 Moving Research into Policy or Knowledge Mobilization (KMb) 46 Knowledge Brokering and Intermediary Organizations 48 Ideational Theories of the PolicyMaking Process 56 Conclusion 58 CHAPTER 3: KNOWLEDGE DISTRIBUTION AS POLICY LIMITATION 61 PurPose of the Study 66 Review of the Literature 67 Knowledge Utilization 67 Uses of Research in Policy Making 68 “Two Communities” Thesis 69 Moving Research into Policy or Knowledge Mobilization (KMb) 70 Knowledge Brokering and Intermediary Organizations 72 Theoretical FraMework 77 Methods 78 Backgrounds of the InterMediary Organizations 80 The Equitable Access Support Network 80 The Center on Great Teachers and Leaders (GTL Center) 82 Data Collection and Procedures 85 The Equitable Access Support Network 86 vi Center on Great Teachers and Leaders (GTL Center) 86 U.S. Department of Education Significant Guidance Document (US DOE FAQ) 87 State Plans for Ensuring Equitable Access to Excellent Educators 87 Findings 89 Resources Available to SEAs on the Equitable Access Support Network 89 The knowledge base within the EASN’s top ten most recommended resources 90 Center on Great Teachers and Leaders (GTL Center) 94 U.S. Department of Education Significant Guidance Document (US DOE FAQ) 94 The research base cited within States’ Equitable Access Plans 95 The Policy Network: degree of overlap between states’ plans and the federally funded IOs 95 Policy ideas elevated through resources promoted by the federally funded IOs 96 Conclusion 102 Future Research 106 ApPendix 1: Equitable Access SuPPort Network 107 ApPendix 2: U.S. DOE Frequently Asked Questions Document 115 ApPendix 3: GTL Center Citations 117 CHAPTER 4: TOOLS OF THE TRADE: TRANSLATING KNOWLEDGE 126 PurPose of the Study 128 Review of the Literature 129 Uses of Research in Policy Making 129 Moving Research into Policy or Knowledge Mobilization (KMb) 130 Our Enduring Faith in Research and Data to Improve Education 132 Knowledge Brokering and Intermediary Organizations 135 Toolkits in the Literature 138 Theoretical FraMework 141 Methods 142 Data Sources 143 Center on Great Teachers and Leaders 143 The Equitable Access Toolkit 145 Equitable Access Plans 147 Data Collection and Procedures 149 Findings 153 Discussion 156 Turnkey Strategies 156 Warrants for Existing Strategies 157 State Identified Strategies outside of the Sample Plan 159 Conclusion 160 ApPendix 1: Unique Discourse Markers contained in States’ Equitable Access Plans 162 ApPendix 2: Strategies Identified in State Plans 164 CHAPTER 5: ON MECHANISMS EMPLOYED BY INTERMEDIARY ORGANIZATIONS TO BROKER KNOWLEDGE AND THE EXPERIENCES OF BEING BROKERED 172 Policy Context 173 Backgrounds of the InterMediary Organizations 174 vii The Equitable Access Support Network 174 The Center on Great Teachers and Leaders (GTL Center) 176 PurPose of the Study 178 Review of the Literature 179 Moving Research into Policy or Knowledge Mobilization (KMb) 179 Our Enduring Faith in Research and Data to Improve Education 181 Knowledge Brokering within Knowledge Mobilization 184 Intermediary Organizations engaged in Knowledge Mobilization (KMb) 186 Intermediary Organizations as Technical Assistance Providers 188 Theoretical FraMework 192 The Concept of Knowledge Regimes 193 Sensemaking Theory 194 Methods 196 Data Collection 197 Findings and Discussion 198 Mechanisms through which support was provided to SEAs by federally funded IOs 198 Pilot Plans 198 Convenings 202 “Experts” on Hand to Support States 204 Facilitation of Stakeholder Engagement Sessions & Root Cause Analysis 205 Writing States’ Equitable Access Plans 206 “Objective” Review of States’ Drafts of Equitable Access Plans 208 Equitable Access Toolkits and Companion Tools 209 Regular Communication and Online Communities of Practice 212 Leveraging other support providers, partners, and intermediary organizations 213 State Education Agency Personnel’s Perspectives of IOs’ Support 215 Helpful 215 Dedicated and/or Knowledgeable Staff 218 Data 219 Time 219 Information Overload 220 An “Arm” 221 Embedded Assumptions 221 Advocacy or Technical Assistance 222 Conclusion and RecomMendations for Future Research 222 ApPendix 1 230 GTL Center Interview Protocol 230 SEA Leadership – Equitable Access Plans Interview Protocol 230 ApPendix 2: State Education Agency Interview Participants 231 ApPendix 3: MaP of State Education Agency ParticiPants 232 ApPendix 4: Fishbone DiagraM 233 ApPendix 5: InterMediary Organizations NaMed in the Equitable Access Plans 234 ApPendix 6: InterMediary Organizations by TyPe Mentioned in States’ Plans 236 CHAPTER 6: CONCLUSION 237 viii LiMitations 244 Implications 244 Future Research 245 REFERENCES 247 ix Note on Dissertation Format To those who may come across this dissertation on ProQuest, the structure of this dissertation is unique in that the analysis is included in three chapters (chapters three, four, and five) written as standalone articles. The introduction, chapter one and chapter two set the stage for the analyses to come by providing an overview of the context and a larger literature review. The final chapter (chapter six) acts like a bookend to the project, bringing the three strands of analysis together. As such, the analysis chapters feature a similar literature review and overview of the problem to the information presented in chapter one and chapter two. My advice would be to review the literature review chapter as a whole and then skim the literature reviews in the “standalone chapters”. A more detailed description of the structure of what is included in each chapter is provided at the end of the introduction. x INTRODUCTION The inequitable distribution of teachers in the United States disproportionately impacts poor and minority students (Adamson & Darling-Hammond, 2012; Ingersoll, Hoxby, & Scurpski, 2004; Peske & Haycock, 2006). Students of color in low income schools are more likely to be taught by teachers who are uncertified, inexperienced, or teaching outside of their field of expertise (Adamson & Darling-Hammond, 2012; Ingersoll et al., 2004). Schools with high minority populations and schools in communities impacted by poverty suffer from higher levels of teacher turnover and attrition (Esch et al., 2005; Ingersoll, 2004). Difficult-to-staff urban schools in communities impacted by poverty and with large numbers of minority students also face the greatest number of out-of-field teachers (Horng, 2009; Ingersoll et al., 2004; Jerald & Ingersoll, 2002). Similarly, teacher credentials are unevenly