THE ROLE OF THE COMMITTEE TECHNFQUE EN EH00... ADMiNISTRA‘flON AS EXPRESSED BY TEACHERS IN 25 W SCHOGL DtSTRlCTS OF THE UPPR PENINSULA Thesis for the 009m of Ed. D. MICHIGAN STATE UNEVERSITY Jack Robert Rombouf: 1959 THESE This is to certify that the thesis entitled The Role of the Committee Technique in School Administration as Expressed by Teachers in 25 High School Districts of the Upper Peninsula presented by JACK ROBERT ROMBOUTS has been accepted towards fulfillment of the requiretpents for x (' iii/um, 4/10. 6'3”” __E.d.IL__degree in ’ Major professor Date November 16, 1252 0-169 LIBRARY Michigan State University THE ROLE OF THE COMMITTEE TECHNIQUE IN SCHOOL ADMINISTRATION AS EXPRESSED BY TEACHERS IN 25 HIGH SCHOOL DISTRICTS OF THE UPPER PENINSULA by Jack Robert Rombouts AN ABSTRACT Submitted to the School for Advanced Graduate Studies of Michigan State University of Agriculture and Applied Science in partial fulfillment of the requirements for the degree of DOCTOR OF EDUCATION Department of Administrative and Educational Services 1959 ‘Epproved Jack Robert Rombouts An Abstract This study concerned itself with an investigation of the role of committee organization in democratic school administration. An attempt was made to discover whether teachers endorsed, Opposed or were indifferent to the use of the committee technique as a functional means for securing staff participation in administration. Kore specifically, the study tried to ascertain whether there was any relation— ship between a positive or a negative attitude toward group process in administration and certain variables Of the personal and professional characteristics of teachers. Throughout, the study rested on the basic assumption that the school cannot be eXpected to transmit democracy unless its own structure and process reflect it. Inherent in this premise is the notion that staff participation in policy formation and decision making is desirable, even necessary, in the Operation of the school. The major hypothesis was stated as: Teachers do not feel that the committee technique is being judiciously used in school administration and, therefore, it is not performing the functions that it could be performing in democratic administration. Jack Robert Rombouts 2 In all, 657 classroom teachers from twenty-three high school districts in the Upper Peninsula of Nichigan took part in a questionnaire study in an attempt to deter- mine teachers attitudes toward the role of committee organization in school administration. As part Of the agreement to secure their COOperation in the survey participating school systems were sent a tabulation and analysis of local results. In addition to the original research, a thorough review of the literature was made to gain added information from related surveys on the subject of group process in administration. A statement of principles relative to committee structure and process was also developed from the data secured from the survey findings and the library research. The study showed that teachers feel very definitely that they have a right to a voice in matters related to the educational program and to their professional welfare. Further, they strongly endorse the committee technique as a means for securing this type of participation in administra— tion. Most teachers, however, are not satisfied with the level or degree Of staff participation found in school administration today. In support of this, the big majority of teachers indicated that they felt there could be no effective staff participation in policy formation and decision .Jack Robert Rombouts 3 _making without the existence of a local teachers' organiza— tion in the school system. Another major finding of the study was: Teachers are willing to serve on committees if invited to do so and they indicated quite emphatically that all teachers should perform, at one time or another, committee tasks for which they have skill and knowledge. The study also showed that the administrator is likely to find a relationship between a positive or a negative atti- tude toward the committee technique and certain personal and professional characteristics of teachers. Some of the more important findings which the study suggests in this respect are as follows: 1. Men teachers want more responsibility in the admin- istration of schools than do women teachers. 2. Non-local teachers have a more positive attitude toward the use of the committee technique in school administration than do local teachers. 3. Secondary-school teachers wish to be involved in policy formation and decision making to a greater extent than do elementary school teachers. 4. A direct relationship exists between length of exper- ience in teaching and a negative attitude toward the use of the committee technique in administration. 5. Teachers with a background of training in adminis- tration and/or guidance show a greater acceptance of the use of the committee technique than those who have taken additional work in their subject specialty and those who have not pursued further training since being employed in the public schools. Jack Robert Rombouts 4 The concluding chapter suggests some implications for administration and for graduate programs in educational ad— ministration. Productive research regarding the use Of group process in administration might be conducted with a view to spelling out principles relative to administrative relationships with committees composed of teachers. Another question that warrants further investigation is: How can committee processes be guided to give teachers satisfying experiences in the work Of the school? The committee technique will be favorably accepted by teachers to the extent that sound principles of organization and group process are employed by school administrators. THE ROLE OF THE COMMITTEE TECHNIQUE IN SCHOOL ADMINISTRATION AS EXPRESSED BY TEACHERS IN 25 HIGH SCHOOL DISTRICTS OF THE UPPER PENINSULA by Jack Robert Romboute A THESIS submitted to the School for Advanced Graduate Studies of Michigan State University of lgriculture and Applied Science in partial fulfillment of the requirements for the degree of DOCTOR OF EDUCATION Department of ldminietrative and'Educational Services 1959 ACKNOWLEDGMENTS There are a number of persons to whom the writer was indebted in the pursuance of his graduate studies at Michigan State University. As a student, graduate assistant and part-time instructor in the College of Education, the writer has enjoyed many pleasant growth experiences. In working toward an advanced graduate degree, the writer was especially grateful to two persons. For his patience, guidance and thorough criticisms throughout the study, the writer owes a special debt of gratitude to his major adviser, Dr. William H. Roe. Without his encouragement ‘and assistance, the study could not have been completed. To my wife, Joanne, for her indulgence and understanding, as well as her help in typing and tabulating, I am equally grateful. Others have provided help and inspiration along the way. In this respect Dr. Carl H. Gross and Dr. Clyde M. Campbell deserve special mention. They not only gave unselfishly of their time in conferences and in perusing the thesis but showed a genuine interest in the writer's progress throughout his program.of graduate studies. This is deeply appreciated. iii A special vote of thanks is due Dr. Orden C. Smucker, cOgnate adviser, Dr. Smucker gave unstintingly of his time during the construction of the writer's questionnaire. He seemed to be ”on call" to assist the writer in this phase of the study. His generosity of thme and sociological insights aided immeasurably in the preparation of the survey instrument. The writer is grateful, too, to Dr. Harry W. Sundwall for his constructive criticisms in an early guidance com- mittee meeting and in a later personal conference. Dr. Floyd U. Reeves and Dr. Wilbur B. Brookover also provided special counsel on several occasions and the writer would like to include them among those who deserve thanks. TABLE OF CONTENTS CHAPTER I. DISCUSSION AND STATEMENT OF THE PROBLEM ..... IntrOduCtion eeeeeeeeeeeeeeeeeoeeoeeeeeeee Need for the Study ....................... Statement of the Problem ................. Scope and Purpose of the Study ........... Tentative Hypotheses and Assumptions UDerlying Thbm.eeeeeeeeeeeeoeoeeeeeeee Procedural Steps and Methods ............. Definition of Terms ...................... Limit‘tions of thfi Stady eeeeeeeeeeeeeeeee II. A REVIEW OF PERTINENT LITERATURE ............ IntrOdUCtion eoeooeeeoeeeeeoeeeeeeeeeeooee Survey of Literature and Related Information eeeeeeeooooeeooeeoooeeooooe PO’iOdiC‘l. eeeeeeeeeeeeeeeeeeeeeeeooee TethOOks oeeeeeeeeeeeeeeeeeeoooeoeeeee Evolution of Teacher Participation in ‘dministr‘tlon eeeeeeeeoeoeeeeeeeeeeeee Pionbar Thinking eeeeoeeeeeeeeeeoeeoeee Hi'torical Developmfint eeeeeeeeeeeeeeee Pertinent Research Studies ............ The Committee Technique in School Adm1nistration .0...................... Definition of Committee ............... Early Beginnings eeeeeeeeeeeoeeeeeeeeee Use of Committees in School Adminis- tration TOday eeeeeeeeeeeeeeeeeeeeee Committee Structure and Process ....... Bibliographical Sources Cited eeeeeeeeeeee sumn‘ry eeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeo III. WTHODOLOGY 0....OCOOOOOOOOOOOOOOOOOOO0...... IntrOduCtton oeeeeeeeeeeeeeeeeeeeeeeeeeeee or181nal ResearCh 1n the StUdy eeeeeeeeeee Selecting the Universe for the Study .. Page (DOWAFJ 04 CD 11 13 15 15 fig: : :pww mum wmmm NNH u w HHGN mmm omqq mom CHAPTER Page Schools Participating in the Study .... IDStrumflnt Used in the Stady eeeeeeeeee M6 Rationale for Universe Selected for the Study 0.00.00.00.00...0.0.0.0... ug Other Research in the Study .............. 51 Unusual Incidents in the Study ........... 51 Development of the Questionnaire ......... 52 Plan for Analysis of Data ................ 53 IV. ADVANTAGES AND LIMITATIONS OF THE COMMITTEE TECHNIQUE IN ADMINISTRATION AS SEEN BY EXPERTS eeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeee SS IntrOdUCtion eeeeeeeeeeeeeeeeeeeeeeeeeeeee SS Advantages of the Committee Technique in ‘dm1n13trat10n eeeeeeeeeeeeeeeeeeeeeeee 57 Improved Communication ................ 57 Cooperative Decisions Last Longer ..... 58 Coordination .......................... S9 Stimulates Professional Growth of St‘rf OOOOOOOOOOOOOOOOOOOO0.0.0.0... 60 Encourages Critical Thinking .......... 61 Administrators Think WITH, Not For, TOQChBrs OOOOOOOOOOOOOOOOOOOO0...... 61 Limitations of the Committee Technique in Aninistration OOOOOOOOOOOOOOOOOOOOOOOO 63 Decentralizes Responsibility .......... 63 Control by Administration eeeeeeeeeeeee 6h Legal Limitations ..................... 65 PsyChOIOglcal Limitations eeeeeeeeeeeee 66 Other Limitations eeeeeeeeeeeeeeeeeeeee 67 Summary eeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeee 68 V. TEACHER PARTICIPATION IN ADMINISTRATION AND THE USE OF THE COMMITTEE TECHNIQUE FUR ACHIEVING IT eeeeeeeeeeeeeeeeeeeeeeeeeeeee 70 IDUPOdflOthn eeeeeeeeeeeeeeeeeeeeeeeeeeeee 7O Utilizing Teachers in School Adminis- tration ......C........................ 70 Committee Selection and Appointment ...... 73 Qualified Individuals eeeeeeeeeeeeeeeee 7S InterGSth IndIVIduals eeeeeeeeeeeeeeee 75 Effective Committee Functioning .......... 77 Purposes Clearly Stated eeeeeeeeeeeeeee 77 The Committee in Action ............... 79 Time and Place of Meeting ............. 80 vi CHAPTER Page Role of the Chairman .................. 82 Report of thB Committee eeeeeeeeeeeeeee an Administrative Relationships with Committees eeeeeeeeeeeeeeeeeeeeeeeeeeee 85 summary 00.0.0.........OOOOOOOOOOOOOOOO0.0 87 VI. THE WISE USE OF THE COMMITTEE TECHNIQUE IN SCHOOL ADMINISTRATION .................... 88 IntrOdUCtion eeeeeeeeeeeeeeeeeeeeeeeeeeeee 88 When To Use Committees ................... 89 When NOt To Use Committees eeeeeeeeeeeeeee 93 Steps in Creating Committee Organization . 9h Standing Committees eeeeeeeeeeeeeeeeeee 9h SpOCial Committees eeeeeeeeeeeeeeeeeeee 9n Abuses of the Committee Technique ........ 95 Administrative Relationships with Local Teachers Organizations ................ 98 summary ......OOOOOOOOOOOOO......OOOOOOOOO 101 VII. RESULTS OF QUESTIONNAIRE STUDY ON THE USE OF THE COMMITTEE TECHNIQUE IN SCHOOL ADMINISTRATION 000......0.000000000000000. 102 Introduction OOOOOOOOOOOOOOOOO00.0.0000... 102 Validation of Hypotheses ................. 103 Major Hypothesis ...................... 103 Minor Hypotheses .....OOOOOOOOOOOOOOOOO 105 Other Results From Questionnaire Study ... 11h Differences in Attitudes Toward Committees Based on Certain Personal and Profes- sional Characteristics of Teachers .... 121 Sex Differences .......................... 121 R631d0n00 eeeeeeeeeeeeeeeeeeeeeeeeeeeee 123 TeaChlng ASBignmant eeeeeeeeeeeeeeeeeee 12“ Length Of Experience eeeeeeeeeeeeeeeeee 127 Extent of Community Participation ..... 128 Extent of Past Committee Experience ... 129 Type Of Additional Training eeeeeeeeeee 131 VIII. A SUMMARY OF FINDINGS AND IMPLICATIONS FOR EDUCATIONAL LEADERS .....OOOOOOOOOOOOOOOO. 13“ IntroduCtion ......OOOOOOOOOOOOO0.00...... 13 Conclusions Gained from the Study ........ 13 General conc1u810ns eeeeeeeeeeeeeeeeeee 135 CHAPTER Specific StLtenents of Conclusions . . . . Statene nt of Limitations in Con- Clusions . . . . . . . . . . . . . . . Development of Principles . . . . . . . . . . General Principles . . . . . . . . . . . . Specific frirciples. . . . . . . . . . . Implications for Lduca tional Leaders . . a . Implications for Raininistration . . . . . Imp lications for Graduate Pratrams . . . . Sug {jestions For rurther Research . . . . . Alainistretive Relationships with Co nmittees Effective Committee Functioning . . . a . BIB IUJPAFIY e e e e e e e e e h e e o e o e e 0 e e o ' 737.2?" W 3.1 l HA\EDIJ£L e e e e e e c c e e e e e e c e e e e e e e e TABLE I. II. III. IV. VI. VII. VIII. IX. XI. XII. XIII. XIV. LIST OF TABLES Number of Articles, Related to the Subject of the Use of the Committee Technique. in School Administration, Appearing in Nine Educational Periodicals of National Circulation for the Period 1927-56 ....... Teacher Participation in Administration ..... Staff Morale and Teacher Participation in Adm1n13trat10n eeeeeeeeeeeeeeeeeeeeeeeeeee Role of Local Teachers' Organization ........ Effective Committee Organization ............ Teachers' Willingness to Serve on Committees. Clerical Assistance for Committees .......... Endorsement of the Committee Technique by TORChera 0.0.0.0000.......OOOOOOOOOOOOO... Committee Selection and Appointment ......... Awministrative Relationships and Committee Purpose eeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeee Committee Work and Teachers' Sense of AChievement eeeeeeeeeeeeeeeeeeeeeeeeeeeeee Men and WOmen Teachers' Opinions Regarding Staff Participation in Administration .... Willingness of Men and WOmen Teachers to Serve on Committees eeeeeeeeeeeeeeeeeeeeee Attitudes of Local and Non-Local Teachers Toward Staff Participation.in Adminis- tration eeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeee Page 21 101; 106 108 110 112 113 115 117 119 120 122 th 125 TABLE XV. XVI. XVII. XVIII. XIX. Elementary and Secondary Teachers' Opinions Regarding Group Process in Administration. Length of Experience and Teacher Attitudes Tow‘rd cominittees ....OOOOOOOOOOOOOOOOOOOO Extent of Community Participation and Teacher Attitudes Toward Committee Work .. Teacher Attitudes Regarding Committee SOICCtion and Appointment eeeeeeeeeeeeeeee Advanced Training and Teacher Attitudes Toward Administrative Relationships With Committees eeeeeeeeeeeeeeeeeeeeeeeeee ix Page 126 127 129 131 133 LIST OF FIGURES FIGURE Page 1. Graphic Representation of Frequency of Articles, Appearing in Educational Periodicals of National Circulation, Related to the Subject of the Use of the Committee Technique in School Administration for the Period 1927‘58 eeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeee 22 2. School Districts in Michigan's Upper Peninsula Participating in Questionnaire Study eeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeeee LL? CHAPTER I DISCUSSION AND STATEMENT OF THE PROBLEM INTRODUCTION School administrators are faced today with increasing demands for improving both the quality and quantity of education. The problems accompanying these demands will require the administrator to fully utilize the talents of his staff if solutions are to be found for these new problems as well as for existing problems centering around increased enrollments and inadequate finances. A trend in school administration has been to invite teacher participation in solving problems, making decisions and formulating policies. The use of the committee technique has been one of the favorite devices employed by administrators in recent years for getting staff involvement in these matters. In many cases, when passing problems on to the staff for study, committee structure has been created without employing any principles of group process. In other cases, elaborate procedures of group dynamics have been followed to the point of making a fetish of committee work. The absence of sound principles of organization can be discovered in many schools today. In many school systems democratic structure has been provided for in the organiza- tional chart but, actually, the task of organizing the efforts of the staff has not been accomplished. The use of comittee structure has been much abused in this respect. Somehow many administrators seem to think that the answers to their problems lie in turning them over to com- mittees for solution. Thus, we see an increasing number of comittees being created within the formal structure of the school organization. Unfortunately, too, some school executives see the improvement of administrative-personnel relations as an end of the committee technique when, in even the wisest use of committees, it is only a by-product. It is unfortunate that the indiscriminate use of the committee technique has resulted in its being viewed with increasing skepticism as a functional administrative device. However, administrators should not bear the full blame for past abuses of the consittee technique. In the field of educa- tion today the cultural complex is such that it seems to be an inalienable right that everyone be involved in the making of any decision that might affect him. This might be valid in matters related to salary negotiations and working conditions but is not necessarily so in certain other professional con- siderations. This notion has given impetus to the 'Let's Appoint a Committee" movement in education. This leads to a discussion in which reasons will be stated why there is a need for a study regarding the role of committee organization in school administration. NEED FOR THE STUDY From both a functional and a human relations point of view it is the exceptional administrator who knows when to invite teacher participation in the administration of schools. This is not to say that, when inviting group participation, the administrator is to abrogate his executive responsibilities but rather that the staff is involved in policy formation and decision.making. Too, administrators must provide for a wide base of staff participation if the school is to enjoy any measure of success in determining, and consequently attaining, its goals. Huch.has been written regarding the failure of administrators to utilize the creative talents of teachers in getting certain jobs done in the areas of public relations and curriculum.improvement. The literature then goes on to suggest the use of committees as an effective means for bringing about staff involvement in these and other phases of the school's operations. Despite all the writing in educa- tion suggesting its desirability there is little evidence to show that teachers, those who would be most affected, actually favor the presence of committees and other forms of staff participation in the organizational structure of the school. What has happened is that school administrators have taken principles of organization and group process from the fields of sociology, social psychology, anthropology and political science and applied them to schools. ‘While many of the principles taken from the behavioral sciences hold true for school organization, no extensive studies have been made which would confirm the assumption that these apply . equally well to schools. Of equal concern to the writer is the idea, held by many administrators, that schools should adopt principles from‘business and industry. A typical example of this sort of imitation is found in an address given at a meeting of the National Commission on Teacher Education and Professional Standards in June, 1957. Referring to the development of personnel policies, the speaker said, 'In the consideration of this subject, it is inevitable that we should borrow from industry those skills and techniques which have been learned in the world of business. The line of distinction is very narrow and frequently differences are only in application, 1 not in the basic idea itself." There is danger in applying ._____1[ ‘ "Personnel Policies and Practices Which Stimulate And Encourage Professional GrowthF; an address delivered by T. Edward Rutter, Supt. of Schools, Arlington County, Virginia, at The Washington (D.C.) Conference on June 28, 1957. fl 5 principles from.the business world if we accept an observation made by Ernest O. Melby. He stated that as schools grew in size and their prOblems became more complex, they assumed a pattern similar to the prevailing industrial organization of the time which, in turn, was patterned after principles of the military.2 The writer does not accept the notion that there is a package of principles of human experience which can‘be applied equally well to government, business, education and other fields. An expert in the area of human relations supports this contention when he stated that the fact has now been established that current research in group decision does not apply to the school situation. There is a need to survey classroom.teachers in order to ascertain what attitudes they hold regarding group process in the administration of schools. It cannot be assumed that the involvement principle of 'he who shares, cares” provides the answer to getting staff participation in policy formation and decision making. It may be found that, in some phases of the school's Operation, staff members may wish to be involved Ernest O. Melby, "Building A Philosophy of Leadership," The School Executive, 56:17, September, 1936. 3Daniel E. Griffiths, Human Relations in School Adminis- tration, New York: Appleton-Century Crofts IKE., I955, p. 229. while in others they may prefer to have the duties delegated to qualified individuals rather than to a committee of teachers. STATEMENT OF THE PROBLEM Stated briefly, the writer posed himself a problem that was two-fold in nature:‘ 1. To discover whether teachers favor or do not favor the use of the committee technique as a medium for teacher participation in administra- tion and whether a positive or a negative relationship exists toward the use of the committee technique in administration and the following variables of the personal and profes- sional background of teachers: a. Sex b. Residence (local or non-local) c. Number of years teaching experience d. Extent of past committee experience e. Type of additional training taken, if any, since first being employed by the public schools f. ‘Uork assignment (elementary or secondary) g. Extent of participation in community activities 2. To show that the committee technique has great possibilities as a functional administrative device and to suggest principles of committee organization that will enable the school executive to more fully utilize the talents of his staff. SCOPE AND PURPOSES OF THE STUDY Through an exhaustive study of the subject, involving both library and original research, it is planned to discover what classroom teachers conceive to be the role of committee organization in the administration of public schools. Teachers constitute the core of any school system and if they do not see the value of having their talents utilized, via committee process, there is little use in the administrator's employing this technique. The several purposes of the study are: 1. To discover whether there is discontent, con- fusion or general endorsement in the minds of teachers regarding the use of the committee technique for involving teacher participation in administration. 2. To discover the areas of policy formation and decision.making in.which teachers feel they should have a voice and those which they feel are the primary responsibility of administration. Other questions which the writer hopes to have answered as a result of an analysis of research findings and his original research follow: a. Are teachers willing to serve on committees if invited? If so, on what types of committees do they appear most willing to serve? b. Are committee efforts more productive when its members volunteer to serve or when they are appointed? What procedures do teachers feel are desirable in the matter of committee selection and appointment? c. ‘what factors.make for more effective committee functioning? d. ‘Hhat type of working relationship should exist between.the administrator and committees composed of teachers? Does committee purpose make a difference? e. ire teachers enthusiastic about committee work or do they feel that committees are wasteful substitutes for the work of qualified individuals? f. Do teachers feel a sense of achievement upon completing an assignment as a member of a committee? g. Do teachers feel that the existence of a local teachers' organization is necessary in order to have effective staff participation in the formulation of policies related to their professional welfare? Generalizations in the problem.areas listed above and their implications for administration.will be made on the bases of research findings and upon an analysis of data collected from.the use of a questionnaire given classroom teachers. TENTITIVE HYPOTHESES AND ASSUMPTIONS UNDERLYING THEM Before hypothesizing as to what an analysis of the data might show regarding teachers' conception of the role of committees in the administration of schools, it is well that some underlying assumptions be stated first. 'we must accept as a basic assumption that the primary abm of the school is the improvement and perpetuation of the democratic way of life. we must also assume that the school cannot successfully achieve this end unless its own structure and processes are democratic. Thus, we must assume that democratic administration in the school is desirable. It this point it should be mentioned that one cannot assume that the existence of committee organization in the formal structure assures democratic process in the school. Nor can it be arbitrarily concluded that the more the teacher participation in administration, the more democratic the administration. Oontrariwise, it is possible to have demo- cratic faculty involvement without committee structure; however, only an administrator with great expertness in human relations could achieve this. One authority cautions against this type of teacher participation.when.he says, "Teacher participation in school management must reach a hi her level than performing certain duties for the principal.“ Inother assumption that must be stated before theorizing on the role of committee organization as seen through the eyes of teachers is that onpgoing evaluation of the various phases of the school program.is desirable. Implicit in.this assumption is the idea that, from a functional point of view, schools do not have the necessary staff specialists to perform the constant evaluatory activities that should be taking place. Therefore, it becomes necessary to invite, according to their special competencies, the cooperative assistance of teachers Roy C.‘Uoods, ”Teacher Participation in School Manage- ment”, Education, 58:629, June, 1938. 10 in studying the various and sundry matters related to the ‘aims and operation of the school. Assuming then that the special talents of all the staff need to be utilized if the school is to meet the needs of a changing society and assuming, further, that judicious use of the committee technique is a desirable method for involving teachers we can then say that both functional and democratic administration are being practiced when the assumptions listed above are part of the modus operandi of a school system. It is from.this point of view, in which efficiency and human relations are seen as mutually supporting essentials in school administration, that the writer submits the following major hypothesis: Teachers do not feel that the committee technique is being judiciously used in school administration, and there- fore, it is not performing the functions that it could perform in democratic administration. The following minor hypotheses are also submitted: 1. Teachers feel quite strongly that they have a right to a voice in the making of policies and decisions which will affect them in their per- sonal and professional life. 2. Teachers feel that staff morale is high in school systems where there is teacher participation in administration. 3. Teachers do not feel that they are utilized in the administration of schools to the extent that they should be. h. Teachers feel there can be no effective participation in the formulation of policies 11 related to their professional welfare without the existence of a local teachers' organization in the school system. 5. Teachers feel that committee work is more effective when persons volunteer to serve rather than when they are appointed; it matters little to them.whether members are chosen by colleagues or appointed by the administration when the committee is to study some phase of the educational program; on.matters related to professional welfare, they feel that committee members should be chosen by colleagues rather than by receiving appointment by the administration. 6. Teachers are willing to serve on committees if they feel the work will result in an improvement in the educational program. 7. Teachers feel that committees will be nothing more than “rubber stamps" if the administrator maintains a close working relationship with them. 8. Teachers feel that a major deterrent to effective committee functioning lies in the lack of clerical assistance in connection with the paper work and reporting respon- sibilities of the committee. The writer feels that the hypotheses listed above will be validated after analyzing research findings on the subject and examining the data from.the questionnaires completed by classroom teachers. PROCEDURAL STEPS AND METHODS Details for compiling research findings on the subject will be provided in Chapter III; however, it might be well at this time to describe briefly the survey instrument and 12 how it was used in the study. This was in the nature of an attitude and opinion survey using a 5-point range-of- belief scale. The questionnaire contained twenty items of a situational nature, all of which applied to principles of committee organization. A copy appears in the appendix. The questionnaires were completed by classroom teachers only. Persons with administrative responsibility were not invited to participate. Building principals of participating school districts administered the questionnaire to teachers at a regular or special faculty meeting. written instructions were provided the principals and they sent the questionnaires directly back to the writer after they were completed by the teachers. A written tabulation and analysis were later provided each system.participating in.the survey. DEFINITION OF TERMS The following definitions will be used for purposes of this study: Teacher. A.person whose primary responsibility is class- room and/or laboratory type instruction. He or she is directly responsible to the building principal. Teaching principals and so-called "special teachers” were not included in the survey because they are likely to have an administrative bias. 13 Committee. l.group of persons, either appointed by the administration or chosen by colleagues, whose function can be either fact-finding, policy-making, evaluative, executive or coordinative, depending upon its assignment and the authority vested in it. gaggp_process. A technique whereby the administrator invites staff members to participate in.the planning, execu- tive and appraisal functions in various phases of the total operation of the schools for purposes of coordination of effort and for giving all personnel a voice, in some way, in policy formation and decision.making. LIMITATIONS OF THE STUDY The chief limitation of the study lies in not being able to include in.the survey teachers from all of the high school districts in the Upper Peninsula, this in spite of the fact that all such districts were invited to participate. Teachers included in the study were those whose superintendent was agreeable to having them participate. This would tend to make the results biased because an administrator probably would not permit his staff to take part in a survey like this unless he were interested in furthering democratic process in the school which he heads. If a superintendent has a positive 114. attitude toward group process in administration, or is not afraid to have his staff surveyed as to what they conceive to be democratic practices, it is likely that the teachers in his school will have a positive attitude in this respect. Thus, another lbmitation presents itself. ‘When teacher participation in the study was dependent upon the administrator's willingness to allow his staff to take part, it is quite pos- sible that the results might be biased in favor of the use of the committee technique and other forms of group process in administration. CHAPTER II A.REVIEW OF PERTINENT LITERATURE INTRODUCTION The literature today abounds with statements advoca- ting teacher participation in administration. whether the approach suggests the use of study groups, committees or other media of group process the underlying assumption is basically the same -- the structure and process of adminis- tration must reflect democracy if the school is to serve as a primary agent in perpetuating the democratic way of life in our society. Uhile administrators are constantly being urged, via textbooks in administration and professional journals, to invite staff participation in policy formation and decision making a review of the literature shows that only a few studies have actually been made regarding teacher participa- tion in administration. Only one national study, two regional and three state studies (one was a regional study within a state) on the subject were discovered by the writer in reviewing the literature. In these studies the investi- gators were attempting to equate high or low staff morale in relation to the amount of teacher participation in administra- 16 tion. There is a qualitative aspect to teacher participa- tion as well as quantitative, which these studies did not attempt to measure. One authority points out that the amount of teacher participation is not as important as the conditions under which the staff is invited to participate and the adminis- trative environment in which this participation takes place.1 For the reasons stated above it was felt that an investigation of this nature was needed in order to discover if there was any change in attitudes regarding teacher partici- pation in administration. The survey related specifically to the use of the committee technique and, therefore, cannot be considered a replication of any other investigation on the subject. The question probably comes to mind as to whether the committee technique is the only way in which teachers can participate in administration. There are other ways, however, smell-group process or some other form of committee structure provides the most effective and democratic means for involving staff participation in policy formation and decision.making. Alternate methods such as holding general meetings, polling I Francis G. Cornell, "When Should Teachers Share in Making Administrative Decisions?", Nations Schools, 53: h3-h5, May, l95h 1? teacher groups, sounding out certain individuals, etc., do not allow for the “give and take" of group discussion nor do they provide safeguards for free expression. Thus, it seems that the subjects of teacher participa- tion in administration and the use of the committee technique in administration are inexorably interrelated. They are mutually supporting means to democratic administration which, in turn, might be considered a greater means to the perpetua- tion and improvement of democracy as a way of life. Because, to the writer's way of thinking, they are so interrelated it was difficult, even for purposes of analysis, to separate the subjects of (1) teacher participation in administration and (2) group process in administration. Historically, however, there is reference to the subject of staff participation in administration without reference to the use of the committee technique. Therefore, an attempt will be made to (l) orient the reader to the earlier concepts of teacher participation in administration as reviewed in the literature and (2) trace the development of the committee technique from its early beginnings to its present level of sOphistication. 18 SURVEY OF LITERATURE AND RELATED INFORMATION An exhaustive study of bibliographical sources was conducted in an attempt to discover if any previous investiga- tions, relative to the role of the committee technique in administration, had been made. In canvassing the following educational sources, there was no evidence that a questionnaire study of this nature had ever been completed: Education Index Journal of Educational Research Educational Research Bulletin Harvard Educational Review ‘ Research Bulletin of the National Education Ass'n. Thesis Abstracts in the Michigan State University Library Inquiry was also made of the research divisions of the Michigan Education Association and the National Education Association. Nothing on this subject had ever been undertaken by the MEA. ‘While the NBA had no knowledge of any studies relative to the role of committee organization in administra- 2 tion, they did provide information on a national study and a 3 regional study related to teacher participation in adminis- ‘-—_———2* National Education Association, "The Teacher Looks at Personnel Administration”, Research Bulletin.g2, December, 19hss 52 PP. National Education Association, "COOperation: Principles and Practices”, Eleventh Yearbook, De artment of Supervisors and Directors ofIInstructIon, 1939, 2 pp. 19 tration and one survey dealing with staff participation in personnel-policy formation.LL Francis Chase conducted a similar study on a national'basis. The writer discovered, too, that statewide studies had been made in Ohio and Indiana7 on the subject of teacher participation in adminis- tration but, again, found nothing regarding the use of committees as a functional device for involving teachers in the administration of schools. The piece of research which came closest to resembling that in which the writer was interested was an unpublished doctoral thesis utilizing a questionnaire study involving fourteen southeastern.Michigan schools.8 This study, which included ulO respondents (1h superintendents, 82 principals and 31h classroom teachers), sought to determine the areas of policy formation in which teachers should be invited to participate. However, like the hNational Education Association, ”Personnel Committees Including Staff Members in Cities Over 30,000 Population”, Circular Number‘g, February 1950, 15 pp. SFrancis S. Chase‘ ”The Teacher and Policy-Making; How Democratic Can'You Get? , Administrators' Notebook, Mid-west Administration Center, University of Chicago; Vqume No. 1 May, 1952’ NOe 1’ u. ppe 6william w. Williams, ”Does the Staff Participate in Policy Formation?', Education.Digest, 16:20, May, 1951. 7Ibid., p. 22. Otis M. Dickey, “The Professional Attitudes of Teach- ers and Administrators Concerning Democratic Procedures in Public School Administration", Unpublished Doctor's Thesis, Denver, Colorado: University of Denver, l9Sh, 307 pp. 20 aforementioned studies, it made no reference as to Egg teachers might be involved in the planning and carrying-out of said policies. Periodicals. In a thorough perusal of educational periodicals, it was found that, in the past three decades, several hundred articles have appeared on the subject of teacher participation and/or group process in administration. In nine professional journals of national circulation 200 different articles on the subject were discovered. Articles, along the same theme, were found in other periodicals whose circulation.was confined, more or less, to groups of specialists or departments (i.e. elementary school principals, school business managers, Phi Delta Kappans, etc.). The survey, however, was confined to magazines with general circulation in the profession. The number of articles appearing in these periodicals of national circulation, for the period 1927-58, is shown in Table I. The period 1927-58 was chosen'becausé this is as far back as the Education.lg§g§ lists articles printed in education circles. Of greater significance than the total number of articles appearing in the literature on the subject, or than the periodicals in which they might have been published, is the time in history when the concept of teacher participation in administration seems to have really taken hold. TABLE I NUMBER OF ARTICLES, RELATED TO THE SUBJECT OF THE USE OF THE COMMITTEE TECHNIQUE IN SCHOOL ADMINISTRATION, APPEARING IN NINE EDUCATIONAL PERIODICALS OF NATIONAL CIRCULATION FOR THE PERIOD 1927-58 21 Name of Periodical Number of Articles American School Board Journal “Clearing House Education Educational Administra- tion & Supervision Education.Digest Nations Schools National Education Association Journal School and Society The School Executive TOTAL 11.3 20 S . m 19 39 16 7 .21 200 22 The writer in Figure 1 below attempts to portray the increase in the literature on the subject in recent years. FIGURE 1 GRAPHIC REPRESENTATION OF FREQUENCY OF ARTICLES, APPEARING IN EDUCATIONAL PERIODICALS OF NATIONAL CIRCULATION, RELATED TO THE SUBJECT OF THE USE OF THE COMMITTEE TECHNIQUE IN SCHOOL ADMINISTRATION FOR THE PERIOD 1927-58 =3 E (I: 1: EL. 0 a D Z a: c> OJ £> OJ :1 «3 <0 <3 01 :i 4) co RENMM‘vvv-vvvv—tvvvvv I (Lg‘HWMF‘O‘HMLnNO‘F-immh- Nmmmmmmzdddzmmmm O‘O‘O‘O‘O‘O‘O‘O‘O‘O‘O‘O‘O‘O‘O‘O‘ HHHHHHHHHHHHHHHH 23 It is interesting to note that the topic received its first noticeable increase in its currency of literature in the late 1930's. In retrospect, this phenomenon could be construed to be a sign of the times, colloquially speaking, This was the era of a new social philosOphy. The egalitarian- ism of the New Deal was reflected in the educational system with the emergence of this new concept in administrative- personnel relations in the public schools of America. It is also interesting to note in this respect that in 19h1, for the first time, the Education Index included a category titled 'Democratic Practices" under the general heading of ADMINISTRA- TION.- Some of the proposals for involving teacher participa- tion in administration assumed questionable proportions when compared with present thinking on centering executive respon- sibility in schools. In its extreme form, there were sugges- tions that there should be co-principals or that the principalship should be rotated among the staff; that the superintendent's salary should be no more than that of the teachers; that teachers should select their own administrative officers. The latter suggestion received support from.one writer when he said, "If the school were truly democratic from the teacher standpoint the superintendent, the principals and others who 2’4 hold executive capacity would be appointed by the teachers themselves."9 The latter suggestion represents an extreme for involving teachers in administration and, while some studies showed that teachers subscribed to this type of thinking, a review of the literature revealed no instances where adminis- trators were elected to their office by the teaching staff. Nor was there unanimity among teachers during this period that staff participation in policy formation and decision making was highly desired. In an article titled "Teachers Should Teach, not Play at Administration", one teacher quite candidly states, ”There are no areas at present in which unrestricted and genuine participation of teachers is wise."10 In summary of the arrival of the concept of teacher ' participation in administration an authority from.the Mid-west Administration Center supports the writer's contention that the late 1930's saw the first real emergence of this idea in 11 school administration. 9M. L. Story, ”Limits To Teacher Participation”, Educational Administration.§ Supervision, 39:165, March, l9h3. 1014.11. Tate, ”Teachers Should Teach, not Play at Administration", Nations Schools, 31:h3, June, 19h3. 11 C. E. Bidwell, ”Administration and Teacher Satis- faction’, Phi Delta Ksppan, 37:285-8, April, 1956. 25 Textbooks. The writer undertook a close perusal of all the textbooks in the Michigan State University Library related to the administration of public schools. In addition Dr. Floyd‘w. Reeves, who is considered an expert in the field of organization, provided references in the fields of sociology and political science which he felt would be helpful. Upon examining the above sources, the index and table of contents of each was checked under the following headings: committees, use of; administration, teacher participation in; policy formation; group process; decision making. The writer has had an abiding interest in the subject of the use of committees in administration and, thus, his acquaintanceship with the literature did not‘begin with this study. On two occasions during the past five years the writing of term papers related to group process in administration.was undertaken by the writer. As a result, a file of over forty textbook references has been accumulated in which various authors treat this subject. Bulletins, pamphlets, monographs and cepies of speeches on the subject accounted for another dozen sources. Yearbooks of the American Association of School Administrators and.reports of proceedings at its regional meetings were other sources which were found to be helpful. In the review of literature the writer seemed to be able to classify the author's point of view into one of three 26 basic categories. .A few of these will be cited. The idea that teachers should have a voice in all governmental 12 operations of the school is the approach which Sears and 13 Ecods take in treating the subject. However, most authori- ties suggest that in certain areas of policy making and under In certain cgnditions teaghers should be consulted. Miller, 1 1 Trecker, and Newman typify this school of thought. Some express the opinion that teachers are paid to teach and should play little or no part in the administrative functions ~ 17 18 19 20 of the school. Hunkins, Kirby, Palm. and Hendrix reflect this attitude. """TT Jesse B. Sears, The Nature of the Administrative Process, New York: McGraw-HilIBook‘Company, Incorporated, I;SO, Pe 290e 13Ro C. Ubods, ”Teacher Participation in School Management , Education, 58:629. June, 1938. 1"Allan Miller and‘Willard Spalding, The Public Adminis- tration 2; American Schools, New Yorkz‘WOFId 5005 Company, a PPO 528‘32- 15Harleigh B. Trecker, Grou Process ig;Administration, New Yerk: The Womens' Press, , p. . 16WilliamH. Newman, Administrative Action; The Techni us and Organization 2; Manggement, New YorE: Prentice-HalI, I95I, p. 230. 17R. V. Hunkins, "Democratic School Administration: A Misnomer or s Misconception?‘, Educational Administration and Supervision, 25:h19-25, September,‘l939. 18Byron C. Kirby, ”Let's Appoint a Committee”, Elementagy School Journal, h9:292-5, January, l9u9. _ 19Rueben R. Palm, "A Teacher's Argument for Democracy in.Administration’, American School Board Journal, 100:21-2, February, 19h0. 20Herschel Hendrix, "Decision.Making? Who is Respon- sible?', The School Executive, 76:77, February, 1957. 27 A review of literature on the subject of teacher participation in administration will now be considered, followed by a treatment of the use of the committee technique as a means for achieving staff participation in administration. EVOLUTION OF TEACHER PARTICIPATION IN ADMINISTRATION Pioneer Thinking. Although it has been only in the past two decades that the subject of teacher participation in administration has received increased emphasis in the literature, the seminalism of this idea goes back over fifty years ago. ‘Writing in the December, 1903, ELEMENTARY SCHOOL TEACHER John Dewey made a plea for teachers to have a representative voice in administration when he said, I'What does democracy mean save that the individual is to have a share in determining the conditions and aims of his work.'21 Twenty-seven years ago another schoolman ventured a thought that must have served as a cutting edge in administrative theory when he stated, ”The day of the autocratic superintendent has passed. The administrator today realizes that the class- room.teacher has, and should have, a definite place in policy —'—'§I John Dewey, I'Democracy for the Teacher", Progressive Education, 8:217, March, 1931. 28 22 making.” Several years later, in 1939, another administrator pointed out that improved standards of teacher preparation had made teachers capable of aiding in the formulation of school policies and in decision.making.23 Many of the early writers, when advocating the participation of teachers in administration, made the point brought out recently by Moore and Halters who maintain that staff morale develops preportionately to the part that the group exercises in its own regulation and policy determination. Historical develgpment. In tracing the development of teacher participation in administration one cannot help but notice the divergence of Opinion as to (1) the degree to I which teachers should be involved, (2) the matters in which they should be involved, and (3) whether their voice should be confined to policy formation or should also include decision making. The literature shows that there are degrees of par- ticipation, ranging from complete responsibility to no participation. Matzen and Knapp point out, however, that 22W. W. Carpenter, "Participation of Teachers in the Determination.of School Policies", Peabody Journal 23 EducatiOn, 9:23h, January, 1932. 23W. D. Ashfal, "Superintendent's Advisory Committee”, The School Executive, 59:3h, November, 1939. arold.E. Moore and Newell B. welters, Personnel Administration in.Education, New York: Harper and BrotHErs, PubliShers, 1955, p. 39. 29 most Of the functions delegated to teachers fall between these two extremes.25 Upon analyzing what the literature relates regarding the early beginnings and growth Of the concept Of teacher participation in administration, the writer would like to summarize its general deveIOpment in order Of the sequence listed below: NO teacher participation in administration Department heads and principals serve on superinten- dent's advisory council Teachers given voice in classroom practices and subject-matter functions ”Suggestion boxes" come into vogue Teachers invited to help determine educational philosOphy, aims and methods Teachers invited to assist in determining all policy matters except those related to salaries and personnel Teachers involved in all phases Of the Operation Of the school including salary negotiations and person- nel-policy formation It is recognized, Of course, that only a few schools have arrived at the last stage Of development mentioned above. Nevertheless, more and more schools are inviting teachers to share in the making of policies and decisions which will affect them in their personal, professional and community life. 2 SJOhn M. Mstzen and Robert H. Knapp, ”Teacher Participation in School Administration", American School Board Journal, 97:28, October, 1938. 30 Pertinent research studies. A Michigan superintendent, writing recently on the subject of effective leadership, said, ”An area Of concern is what sort of decisions the teaching staff should help to make . . . Policy is the sole property Of the board of education. Such decisions, however, are Of vital concern to the teaching staff, and they may play an important part in policy formation."26 While it is an area Of concern to school executives, only a few studies have been.made relative to the rights and responsibility of teachers to participate in administration. The few studies that have been completed show that teacher participation in administration is becoming an increasingly common practice. However, only one Of the studies to be cited by the writer made reference to the use of committees as a means for involving staff participation in administra- tion.27 Therefore, the writer still maintains that no studies have been made in an attempt to define the role of committee organization in administration or to discover what teachers think of the use of committees as a means for ZEAn unpublished paper, “Administration for Growth", by Gordon'Williams, graduate student in Administrative and Educational Services, Michigan State University, East Lansing, Michigan, May, 1957. p. h. 27National Education Association, ”Personnel Committees Including Staff Members in Cities Over 30,000 Population”, Circular N3. g,‘Washington, D. 0., February, 1950, 15 pp. 31 involving them.in policy formation and decision making. Probably the most recent and most comprehensive national study made on the subject Of teacher participation in administration was a survey conducted by the National Education Association in 19h5. In summary of this study, the Research Division Of the NEA concluded that NO per cent Of over h0,000 teachers included in this national survey favored greater participation in policy formation than was being allowed in their respective schools.28 An earlier study, including reports from.1h50 teachers in twenty-two states, was made by the Department of Supervisors and Directors Of Instruction (a department Of the NBA) in 1938. Here, evidence was shown Of the great interest by teachers to participate in administration and Of the wide gap that existed between that interest and their opportunities to participate.29 A study closely related to teacher participation in administration was.comp1eted by the American Association Of School Administrators in cooperation with the Research Division 30 Of the NEA in 1950. This study dealt with personnel 26National Education Association, ”Democracy in School Administration“, Discussion Pamphlet N3. 12, washington, D. C., April, 1953: P. 18: 29National Education Association, Department Of Super- visors and Directors of Instruction, Cooperation: Principles and Practices, Eleventh Yearbook, WasEIngton, D. C., 1938, p. 168. 30Circular NO. 2, Research Division, NEA, Op. cit., 15 PP. 32 committees on which classroom.teachers were represented. The general impression that one gains from.this report is that there is, today, considerable exploration Of the possibilities of teacher participation in.many kinds Of personnel committees.31 In attempting to discover what relationship existed between staff morale and teacher participation in adminis- tration, 1800 teachers from forty-three states responded to a questionnaire prepared by Francis Chase.32 In reporting Chase's findings the Mid-west Administration states, ”Teachers who report opportunity to participate regularly in making policies are more likely to be enthusiastic about their schools than.those who report limited opportunity to participate."33 The report went on further to state that - teachers feel they have a right to participate in framing policies related to educational aims and their own welfare.3h A study Of over MOO schools in Ohio, made by the Ohio Education Association in 1950-51, showed that teachers felt 3 Ibide, pe 50 3zMid-west Administration Center, Administrator's Notebook, Chicago: University of Chicago, VOlume NO. 1, May, I952, Number One, A pp. 33Ibid., p. 1. 3thid., p. 3. 33 35 there was a tendency toward democracy in policy formation. A specific recommendation that came out of this study was that large staffs elect committees to study the policy involved and report back tentative findings and solutions for further study and modification. A similar study, covering 238 high schools in Indiana, showed that teacher participation in administration tended to increase propor- tionately with the size Of the school.37 Probably the most recent stgdy on the subject was completed by Otis M. Dickey in 19514.3 After a thorough discourse on the advantages and lbmitations Of staff participation in administration the author lists the several administrative functions where teacher participation might be feasible. He concludes, however, that teachers and administrators should work together as a team only in those areas of administration on which they have agreed to work. A statement by the Bruce brothers, in which they 33RilliamW’. Williams, ”Does the Staff Participate in Policy Formation?', Education Di est, 16:20, May, 1951. 361bid., p. 22. 37Ibid., p. 22. 330tia M. Dickey, The Professional Attitudes 2; Teachers and Administrators Cbncerning‘fiemocratic Procedures In PuEIIc—SEhEEIAdministratIOn, UnpublIshed doctoral thesIE, D-e-nver, Co ora ozTniversityEf Denver, 1951i, 307 pp. 3h editorialize on the subject Of staff participation in administration, is germane at this time. Referring to studies completed, they Observed that where regularly organized plans of teacher participation had been in use for a time, there was a distinct growth in professional attitudes and a spirit of cooperation throughout the school system.39 A review Of the research studies cited above shows that each seemed to use a different approach in analyzing the subject Of teacher participation in administration. Except one,’40 which made reference to personnel committees, none Of these studies concerned themselves with the means, as such, for getting faculty participation in administration. This supports the writer's contention that a study needed to be made Of the role Of committee organization in schools as seen by classroom teachers. If there have been past abuses Of the committee technique, it has been due, probably, to not having its role defined as to its duties, authority and limits. Let us now review the literature on the most popular medium for involving teacher participation in adminis- tration -- the committee technique. .39William C. and William G. Bruce, "Administrative Rise Of the Teacher", American School Board Journal, 103:52, July, 19u1. hoCircular NO. 2, NBA Research Division, gp. cit., 15 pp. 35 THE COMMITTEE TECHNIQDE IN SCHOOL ADMINISTRATION Definitign. Because committees are the chief media Of group process for involving staff participation in adminis- tration, it is appropriate that they be defined a little more exactly before proceeding. For purposes of this study, a committee shall be thought Of as a group Of persons duly authorized to represent, act for, or assist a larger group. It is given its assignment by a larger body in accordance with the laws governing the larger body. Its function can be either fact—finding, policy-making, executive, evaluative or coordinative. Its members can be chosen by other staff members or be appointed by the administration. The size of the committee will depend on its purpose and the task it is assigned. As a general rule, the size is kept as small as possible. One authority cautions that the larger the committee, the more expensive and unwieldy it becomes}.r1 Floyd W. Reeves, an expert in committee organization, concurs in this. E2311.beginning§. It was not intended in this study to T I Newman, 22. cit., p. 23h. Floyd H. Reeves, H otheses Related 32 the Use Of ested Tor ConsIderation as PrIRF Individuals or Boards Su 31 les, UnpuUIisESd Paper, MIcHigan State University, East LsnsIng, Michigan, 1951;, p. 2. 36 provide a detailed account of the historical development of the committee technique in school administration. However, a brief review from its inception to the present level Of sophistication that committees have attained in administra- tion will be presented. The use of committees as an administrative device can be traced back tO the Greek and Roman civilizations. One writer states that the committee technique has been especially popular in Anglo-Saxon countries where it is regarded as an important aspect Of democracy.”3 Another reminds us that the use of the jury system.is an early form Of the committee process and dates back to the Anglo-Saxon tradition. According to Moore and'Walters,’+5 the use of committees in public school administration in the United States dates back to 1910. They point out that within a decade after 1910 over6100 school systems were using committees in some fashion. However, a close examination would show that the “Newman, 22e Cite, pe 217e th. K. Munford and E. D. Duryea, Jr., "Administrative Cognittees Can‘WOrk', School and Society, 7h:h09, December, 19 1. ton h"é’Ibid" p. to. core and‘Walters, 22, cit., p. ho. 37 functions these early committees performed were relatively superficial and unimportant. That teachers were not invited to advise on such vital matters as curriculum, salaries, etc., is brought out by one who has quite thoroughly traced the number and importance Of committees in school administra- tion.u7 Although their areas Of responsibility, today, are more significant, early committees of teachers had little Official recognition in the government of the school. E22123 committees in school administration.tgg_1. It has been only in the past two decades that committees, com- posed Of teachers, began to serve functional purposes in the organization Of the school. Prior to the 1930's, personnel, curriculum, public relations and other important committees were made up Of administrative and/or supervisory staff members who advised the superintendent. A few schools in the 1930's saw the advantage of involving classroom teachers on committees studying policy formation. The public schools in Tuckahoe, New York, 8 and Rochester, Minnesota}9 deserve mention in this respect. ”Earl R Dou . glass, Modern Administration 23 Secondary Schools, Chicago, Ginn and Company, 195E, 60h pp. heWard I. Miller, "Cooperative School Administration”, The School Executive, 6h:39, June, 19h5. th. D. Strayer, 'Why Teacher Participation in Adminis- tration?', American School Board Journal, 9h:68, April, 1937. 38 Since the end of World War II the committee technique has been used increasingly as an administrative device in schools in the United States. Some administrators have gone overboard on the use Of group process with resulting over- organization Of committees; there are joint committees, sub-committees and, in some cases, a committee on.committees. Yet, in a few school systems, there exists only a single staff committee to advise the superintendent. The trend, however, is toward cooperative administration. One authority, in writing on the subject recently, points out that most school systems today employ procedures designed to permit people affected by certain plans or policies to participate in formulating them.50 The existence Of committee structure, per so, does not guarantee democratic administration. Let us briefly review the literature on the subject Of committee structure and process in an attempt to show that committee functioning will be effective to the extent that its organization and Operation are built upon sound principles. By effective committee functioning is meant a plan whereby teachers work with, not for, administrative Officers in framing policies and making decisions affecting the over-all Operation Of the school. 50Henry J. Willette, "Cooperative Administration; Fact or Fancy”, NEA Journal, hh:9l, February, 1955. 39 Committeg structure and process. Principles Of com- mittee organization that make for more effectiveness in group work will be discussed in greater detail in subsequent pages of this study. Some general comments taken from the literature will be presented at this time to orient the reader tO the importance of both structure and process as they affect the use Of committees in administration. More attention seems tO be given process than structure by the writers in education. Regarding structure, it is safe to say that democratic administration does not assert itself automatically with the creation of committee organization. Nor can it be arbitrarily assumed that a collection of individuals means that they will function as a group. We are apprised of this by one writer who said, I'There is nothing inherently democratic about committees; they are used by the communists today."51 Another cautions that committee structure can get caught in the way of effective communication,52 Despite certain weaknesses in structure, the ”best” organization, in a democratic sense, is one which enlists the active participation 51Ronald Burnight, "Democracy and the Committee Method", Educational Forum, 22:326, March, 1958. 52W, C. Seyfert, "Experiences in Faculty Self-Determination," School Review, 6l:h67, November, 1953. no of as many of the staff as are willing. In this respect, Yeager53 states that the use of committee structure is an established procedure in American education because a small working group can accomplish more than a larger, unwieldy assembly. Democratic administration can also get bogged down in process and, oftentimes, it is the improper use of committees that is responsible. The use of elaborate group-dynamics procedures, beyond employing sound psychological principles, cannot be justified. The willingness to accept group discussion of a problem as an end in itself is also intolerable as far as committee process is concerned. To consider socializing Of its members as successful committee action is another violation of process, according to one professor of school administration. Another charge leveled at group process is that it is Often an excuse to loaf along unnoticed, to pass the educational buck and to haggle over definitions of aims.SS In summary, it should be said that much Of the criticism of committee structure and process could be avoided if the _53William A. Yeager, Administration and the Teacher, New York: Harper and Brothers, Publishers, 195H; P. 277. Sh'Lester W. Anderson, ”How Faculty Committees May Produce", Education Digest, 22:23, October, 1956. 5SJOhn G. Barnes, "DO You Hide Behind Group Process?", Thg_SchOOl Executive, 77:h2, July, 1958. hl basic advice given by Kimball Wiles were followed. He suggests that committees must know the functions they are to perform, how these functions will fit in.with other com, mittees, and the way the work of the committee will be brought to bear on school problems.56 Bibliographical sources cited. In reference to the review Of literature it should be stated that the bibliography listed in this study is selective rather than complete. Only those materials were included which were directly used in the writing or which the writer consulted. NO attempt was made to include references or related materials which were not used in connection with the writing of the thesis. SUMMARY The purpose of this chapter has been to show, via a history Of articles, the development of teacher participation in administration from its early beginnings to the present. A review Of the literature shows that there is a divergence of Opinion among the writers as to how and when to involve faculty participation in administration. Much of this con- fusion is due to teachers and administrators, alike, failing 56Kimball Wiles, Supervision for Better Schools, E lewOOd Cliffs, New JErsey, PrentIEe'HEII_Incorporated, 19 5: P0 2.30 NZ to differentiate between policy-making and policy-execution in cooperative administration. Also, too few of the writers fail to make a distinction between the quantitative and qualitative aspects of staff participation in administration. ‘While several studies related to faculty involvement in administration.were found in the research, the writer could find nothing in the literature which showed how teachers felt toward the committee technique as a means for securing this involvement. Although the literature revealed that administrators strongly advocate the use of committees, no studies were discovered which showed whether teachers looked upon this with either favor or disfavor. The writer is convinced that no investigations have been.made in Michigan, and probably none in the United States, in which an attempt was made to determine teachers' attitudes toward the use of the committee technique in public school administration. CHAPTER III METHODOLOGY INTRODUCTION The purpose of this chapter is to present the methods and techniques employed in the study. The data were secured from.two sources; namely, a questionnaire completed by classroom teachers and a canvass of all possible literature listed in the bibliographical sources. Additional data, relative to the role of the committee technique in school administration, were presented on the basis Of the writer's Observations, experience and from inquiries made of administrators and teachers. The writer feels that the results and/or implications of the study will have significance for administrators in the wise use Of the committee technique and for improving personnel relations in their local school systems. Each administrator, who agreed to allow the teachers in his school district to participate in the questionnaire study, was furnished a tabulation and an interpretation Of the results of the survey as they applied to his local school situation. ORIGINAL RESEARCH IN THE STUDY Selecting the universe for the study. NO matter what criterion are used in the selection Of a universe in a survey study certain limitations are present which keep one from making safe generalizations to the next larger population unit. The writer experienced considerable difficulty in selecting a universe that would satisfy the elements of commonality and randomization for the school systems and the communities of which they were a part. Approval was finally granted the writer to use as a universe the sixty-five public high school districts in Michigan's Upper Peninsula, employing 1600 teachers, and which prOvide education from kindergarten through grade 12. Schools participating in the survey. In an attempt to make the sampling procedure as scientific as possible, every public high school district in the Upper Peninsula was invited tO participate in the survey. In terms of randomi- zation, then, every high school district in the Upper Peninsula had an equal chance of being included in the study. Teachers in one and two-room.schools were not included in the sample nor those from any of the graded school districts (those not providing a high school education). The writer's first step was to get an endorsement of the study from the superintendents-school board members' 1L5 group. After talking with Dr. Clyde M. Campbell, Executive Secretary of the Michigan Association of School Administrators, and Mr. Sid Sixsma, Executive Secretary of the Michigan School Board Members Association, the writer contacted Mr. Henry J. Bothwell, president Of the Upper Peninsula Superintendents'- School Board Members Association. The writer requested that he be allowed to appear on the program Of a two-day meeting Of the latter group to be held in late January. At this meeting it was planned to introduce the project to those present for purposes Of suggesting ways in which interested school districts might participate. However, the meeting was reduced to a one-day affair and the writer was informed that he could not appear on the program as a result of the time curtailment. The only alternative then facing the writer was to individually contact all the superintendents of high school districts in the Upper Peninsula. This was accomplished by telephone, personal contact, contact at professional meetings and by first-class mail. Sixty-five superintendents were contacted, and twenty-five accepted the invitation to have their school system.participate in the study. This represents 38 per cent Of the high school districts in the Upper Peninsula and 61 per cent of all the teachers in high school districts in the U. P. ho Upon requesting administrators to allow their teachers to participate in the study, the writer agreed to furnish them a written tabulation and interpretation of local results. A map (Figure 2) shows the participating school districts. Twenty-five high school districts in the U.P. agreed to participate in the survey representing a potential total of 900 respondents. The reader should be reminded, however, that teaching principals and special teachers did not participate. Add to this persons who, for some reason or other, were not at the meeting when the questionnaires were completed and the total number diminishes further. There were also a few teachers who did not wish to make their feelings known on the matter and, thus, did not complete a questionnaire. As a result, the number of returned ques- tionnaires totaled 657 out of a possible 900 from.the twenty- three participating districts.“ The number of teachers in the participating schools ranged from 9 to 135, with a mean h3.5 and a median of 3h.5. Instrument used l2:£§2 piggy. A questionnaire (a copy is included in the appendix) was used as the chief instrument *One school system.which agreed to participate, and received questionnaires accordingly, did not follow through on its agreement; in another, the superintendent suffered a heart attack, was hospitalized for the rest Of the year and his replacement did not see the survey through to completion. FIGURE '2: 1&7 SCHOOL DISTRICTS IN MICHIGAN'S UPPER PENINSULA PARTICIPATING IN QUESTIONNAIRE STUDY m NUMBER NATE _F SCHOOL w 1 Amasa 2 Baraga 3 Bark River—Harris 4 Bergland 5 Brimley 6 DeTour 7 Dollar Bay 8 Escanaba 9 Hancock 10 Iron Mountain 11 Ironwood 12 Kingsford l3 L'Anse l4 Manistique 15 Michigamme l6 Munising 17 Negaunee 18 Newberry 19 Ontonagon 20 Republic 21 Rudyard 22 St. Ignace 23 Sault Ste. Marie 24 Stephenson 25 Trenary h8 for investigation purposes. The instrument utilized a check- list so as tO help guarantee anonymity in case any attempt might be made to identify respondents by their hand-writing. An attitude and Opinion survey, using a five point scale, was used. The categories comprising the range-Of-belief scale were STRONGLY AGREE, TEND TO AGREE, TEND T0 DISAGREE, STRONGLY DISAGREE and DOES NOT RELATE. The DOES NOT RELATE category was included because it was felt that if a significantly large number indicated that a certain item.did not relate to their training and experience, this too would have implications for the administrator. The instrument contained twenty items (with a possible twenty-seven responses) Of a situational nature and all of which were related to principles of com- mittee organization. Double this number Of items were deleted in the process of eliminating those which dealt with the mechanics of committee organization rather than with underlying philosophy. The superintendent of every high school district in the U.P. was provided a copy Of the above-mentioned questionnaire and was invited to have his system participate in the survey. Those agreeing to participate were sent enough questionnaires for all classroom teachers along with brief, written instruc- tions to building principals for administering them to teachers. 1&9 Names Of individuals were not asked for and the writer suggested that the questionnaires be completed at a faculty meeting or in a group setting so that anonymity could be further guaranteed those wishing this safeguard. In respect to teacher anonymity, the writer suggested that a highly respected teacher be named as the one to whom.the question- naires could be turned in to if the principal wanted tO reassure the staff that no attempt would be made to identify individuals. Of course, if any of the items in the question- naire were directed toward the local administration, it was by Duplication, at best. Thus, these safeguards might have been unnecessary as most respondents were probably not con- cerned with anonymity. The school systems participating in the survey were asked to return the completed questionnaires at their earliest convenience so that they could be furnished an inter- pretation Of the results and/or implications Of the study as it applied to their local situation. In most cases, the questionnaires were returned by building principals so super- intendents did not have access to them before tabulation even if they wished to. Rationale £25 universe selected for the stugy. Before leaving the subject Of the writer's original research, an attempt will be made to justify the universe chosen for the 50 study. The factors of availability of data, cost and time had to be in keeping with his resources. However, the writer felt that the type Of investigation he was making would have practical value in his work so he continued to pursue this type of research. The investigator has had a genuine interest in this phase Of personnel administration for some time and wished to pursue it further even though it would involve additional time and expense. The original research phase Of the study was carried out by the writer sans financial assistance from outside sources, thus, the universe chosen had to be within proximity Of the writer for travel and communication purposes. The above reasons account for the practical con- ' siderations for choosing the high school districts in Michigan's Upper Peninsula as the universe for the study. Another reason that the U.P. schools were chosen is that schools in the northern peninsula are not Often involved in research projects and surveys. Except for a half-dozen or so, schools in the U.P. do not have close contact with institutions Of higher learning and, thus, cannot keep as well abreast Of educational trends as can schools in lower Michigan. Outside Of this aspect of commonality, the writer feels that the school districts in the U.P. constitute a valid sample because they represent a variety of community 51 types as to (1) size, (2) geopolitics, (3) wealth, (h) ethnic and religious composition; thus, it ought to be safe to make some generalizations as the study progresses. OTHER RESEARCH IN THE STUDY The writer examined the following types of literature in an attempt to analyze present practices and theory relative to group process in administration: (1) periodical literature (found in professional journals), (2) textbooks in school administration, (3) yearbooks, (h) pamphlets and bulletins from professional organizations Of teachers and administrators, (5) graduate theses and miscellaneous sources such as speeches, educational newsletters, educa- tional news sections in pOpular magazines, etc. The bibliographical sources consulted were mentioned in the last chapter. Similarily, it would be repetitious to discuss the bibliographical procedures followed in the historical research phase of the study as these were also spelled out in Chapter II. UNUSUAL INCIDENTS IN THE STUDY Several incidents occurred during the course Of the study which were not anticipated and which probably deserve mention. Although not requested to do so, eight superintendents 52 took the liberty tO return a completed questionnaire. Six Of these men saw fit to fill in the questionnaire, although they did not allow the teachers in their system to participate in the survey. Two other superintendents wrote quite lengthy letters in which they were very critical of the committee technique in school administration. The writer was pleasantly surprised by one administrator who sent in a package of completed questionnaires even though he had never requested any. Evidently, he had a master ditto copy made Of the sample questionnaire sent him and had enough run Off to accommodate all Of his teachers. He had his staff complete the questionnaires and then sent them tO the writer. Receipt of them from Republic was the first knowledge the writer had that this school system.was participating in the study. DEVELOPMENT OF THE QUESTIONNAIRE The questionnaire in its final form bears only a small resemblance to the original draft. At a meeting Of the writer's guidance committee, some notable criticismm and suggestions'were presented and the instrument enjoyed its first revision shortly after. Guidance Committee members also pointed out weaknesses and made suggestions in subsequent individual conferences. 53 At one time the questionnaire contained seventy-five items; this was later reduced to fifty-eight and finally to twenty-seven. In its early stages it was planned to include superintendents, board members and teachers in the survey; in the end, only classroom teachers took part. Before it was sent to schools in its final, revised form.for use in the study, the questionnaire was pro-tested by a group of twelve doctoral candidates in a graduate seminar and by a half-dozen teachers and administrators who were close friends of the writer. Frank criticism was encouraged. The writer received much extra help in readying the questionnaire in its final form.from his major advisor and from.his cognate advisor who has had much experience in the construction of questionnaires and similar survey instruments. PLAN FOR ANALYSIS OF DATA The writer was interested in discovering whether or not teachers generally favored the use Of committees in school administration and, if so, in what areas Of policy formation and decision making they felt they should have a voice. It was felt that the implications of the questionnaire study would be even more meaningful if certain variables of the personal and professional background Of teachers were analyzed. 51+ These were cited earlier in Chapter I (i.e. sex, length of teaching experience, residence, etc.). The writer feels that the results Of this study have implications for educational administration. It is hOped, tOO, that the tabulation and summary provided each school system participating in the survey will be of especial value to the administrators and teachers in these schools. CHAPTER IV ADVANTAGES AND LIMITATIONS OF THE COMMITTEE TECHNIQUE IN ADMINISTRATION AS SEEN BY THE EXPERTS INTRODUCTION That group process is not considered a panacea for all administrative ills is ably demonstrated in a satirization Of group dynamics by Whyte in his book, The Organization ‘Mgg.l Deepite his light treatment Of the subject and other uncomplimentsry references toward OOOperative effort, it is the writer's belief that administrators must continue the search for sound principles of organization by which the creative talents of teachers can be utilized in school administration. Regarding the limitations Of group process, a classic remark is attributed to Winston.Churchill. When informed that Lindberg had flown the Atlantic, he did not respond with any great enthusiasm, whereupon the reporter turned to him and said, "But, Mr. Churchill, you don't understand. Lind- berg flew the Atlantic alone." Churchill's response was, 1 William H. Whyte, Jr.; The Organization Man, New York: Simon and Schuster, 1956, p. A7. 56 ”I would have been much more surprised if a committee had done it."2 Within the profession there is considerable disgust and cynicism on the part of teachers toward the use of committees. In making reference to the subject Of school assignments a prominent teacher, and president of the Wisconsin Education Association in 1956-7, said, "The members Of no other profession go to as many committee meetings as teachers -- and in many instances the thought Of another committee is enough tO send us into hiding." The writer has occasioned frequent criticism of the committee technique in his reading and during his experience, both as a teacher and as an administrator. Because many administrators, professors Of education and experts in other fields have pointed out certain limitations Of the committee method, it is only fair that this point of view also be brought to the reader's attention. It will be the purpose Of this chapter to consider both the advantages and limita- tions of the use of committees in administration as viewed by the experts. 2Willard S. Elsbree, from an address, "Staff Relations in School Administration”, delivered at the 81st annual convention Of the American Association Of School Administrators, 1955. 3Clarice Kline, ”Three Phases of Professional Growth", from an address delivered at the annual meeting Of the National Commission on Teacher Education and Professional Standards held in.washington, D.C., on June 25, 1957. S? It is to the theorist and the expert that practitioners in any field look for new ideas for improving performance in their jobs. In the case of school administration, super- intendents and principals turn to professors of education for help and guidance in understanding the philosophical implications Of their leadership roles. Due to local pressures and political machinations, the practitioner is Often prone to do that which is expedient. Without the theorist and the expert to point the way toward the ideal, and to serve as a guide and inspiration, it is all too easy for administrators to abdicate their role as educational statesmen. Let us examine some of the advantages of the committee technique cited by those with more Of a philosOphical bent than the typical administrator who feels he is too often pro-occupied with running the school to have time for reflective thinking. ADVANTAGES OF THE COMMITTEE TECHNIQUE IN ADMINISTRATION Improved communication. One of the major weaknesses Of the line and staff organization is that too Often com- munication is one way -- downward. This is a common complaint registered by teachers and it is a legitimate one. Words moving downward telling those at the Operating level what to do is not as effective as when the administrator can take time to work with teacher groups. 58 The committee technique is an excellent medium for improving communication not only between faculty and adminis- tration but, also, between the school and community. Sound committee organization not only gives teachers an insight into some of the broader aspects of school management but they, in turn, also can better interpret the school to the community. Hagman and Schwartz point out that teacher groups, having had an opportunity to participate in decision-making, can assist in the interpretation aspects of management}L ‘With good leadership, committees provide Opportunity for direct, personal contact and an informal exchange of ideas and views and, consequently, a better informed staff. Cooperative decisions last longer. A familiar refrain in.many recent textbooks in school administration goes some- thing like this: Decisions are more likely to be acceptable and policies executed more successfully when the persons affected by them.have had a voice in their determination and formulation. Pittenger tells us that cooperatively deve10ped policies are better executed than policies handed down. WhHarlan L. Hagman and Alfred Schwartz, Administration in Profile for School Executives, New Yerk: Harper and Brothers, Publishers, 1955, p. 132. 5Benjamin F. Pittenger, Local Public School Adminis- tration, New York: McGraw-Hill Book Company, I§5I,"§T'37:8. 59 6 Other authorities say that teachers like to be consulted and that they feel they have a significant part in the enterprise as a result. The latter point of view has official endorsement in a teachers' publication put out by the Depart- ment of Classroom Teachers of the National Education Associa- tion.7 The writer feels it is safe to generalize that cooperative decisions last longer and in education, where professional relationships exist, it is likely that decisions or policies arrived at in this manner will, in most cases, be more sound than those of any one person. Coordination. One expert in the area of organization points out that committees are often created for the explicit purpose of bringing together men whose activities need to be coordinated.8 Experience has shown that committees can serve as an excellent device for setting the stage in which voluntary coordination can take place. Committees not only serve to coordinate the work of individuals in an organization but can be very effective in coordinating the activities of each part of the enterprise, PEJohn T. Wahlquist, and others, The Administration of Public Education, New York: Ronald Press Company,*I952, p. h77. 7National Education Association, "Democracy in School Administration", Discussion Pamphlet N2. 12, Department of Classroom.Teachers, Washington, D. C., A5511, 1953. P. 7. 8Neman, gm. Cite, p. ’42. 60 9 according to another authority. He goes on to say that in this way the total effort of all persons can be called upon to help the organization meet its objectives.10 An example of the latter in school organization would be a curriculwm coordinating committee, composed of representatives of various subject-matter fields and grade levels from the kindergarten through grade twelve. Stimulates professional growth 2; teachers. It is commonly agreed that one of the values derived from.committee work is the professional growth of its members. This is not to say that unqualified persons should be placed on com- mittees for purposes of being ”educated.” However, if a teacher takes his committee assignment seriously, he will broaden his perspective, increase his knowledge and show a distinct growth in professional attitudes. In this respect, Treckerll says that when problems or tasks at hand are new, committees are very useful in an exploratory way. Such exploratory activity on the part of the committee will usually result in the professional growth of its members. IgErnest Dale, Planning and Developing the Com an Or ani- zation, New York: American Management Association, , p. IE. 1°Ib1d., p. 1h. 11Trecker, gp. cit., p. 89. 61 Encourages critical thinking. Kirby states that the committee system encourages critical thinking, close evalua- tion and a desire to understand.12 Critical thinking and close evaluation are possible and highly desirable provided that the individual has freedom of expression so that he can say what he really thinks. By the same token, if a person believes in the ”give and take” of group discussion, he is duty-bound to try to understand all points of view presented. In this type of committee setting one would have little opportunity to reinforce one's prejudices. Committee structure and process lends itself to individual expression and to an exchange of ideas not possible in large group meetings. Some type of small-group process needs to be provided for in the typical line and staff organization if all persons are to be afforded an opportunity to offer their creative talents to the enterprise of which they are a part. Critical thinking on the part of committee members will take place to the extent that frank and free expression are standard procedure in the committee's functioning. Administrators think WITH, not for, teachers. Several years ago Clyde M. Campbell, Professor of School Administration I2Byron C. Kirby, "Let's Appoint a Committee", Elementary School Journal, h9:295, January, l9h9. 62 at Michigan State University, stated, "The administrator of creative workers should think WITH, not for staff members."13 This same sentiment is expressed by Hagman and Schwartz who say that the practical administrator has learned that now he must work with personnel in the school organization or be defeated by them.“4 More and more, schools are creating organizational machinery that has the administrator working with teachers in the solution of problems or are establishing committees, composed of teachers, with which the administrator maintains close liaison. When administration takes teachers into partnership in carrying out the aims and the functions of the school, they feel a greater responsibility for the successful Operation Of the school, Edmondson tells us.15 Certainly, one of the advantages of the committee technique is that it provides administrators an Opportunity to think with, rather than for, teachers in making decisions and shaping school policies. The gap between administration and teachers is still too wide and it will be narrowed only as administrators show a greater willingness to think with teachers. Committees, composed of teachers and administrators, 13Clyde M. Campbell, ”A Democratic Structure to Further Democratic Values", Progressive Education, 30:27, November, 1952. 1hHagman and Schwartz, gp. cit., p. 102. 1SJ. B. Edmondson, Joseph Roemer, Francis L. Bacon, The Administration of the Modern Secondary School, New York: MEEMTflan Company, 1'9pr 63 can serve as a functional means for achieving this type Of cooperative thinking. LIMITATIONS OF THE COMMITTEE TECHNIQUE IN ADMINISTRATION Not all writers in education wax eloquent on the use of committees in school administration. Many point out that in some areas of decision making and policy formation two heads are ggt better than one. Too, many administrators feel that it is neither necessary nor desirable to subject all matters to group debate. In fact, some administrators have expressed disappoint- ment with teacher participation in administration because of their failure to understand the implications Of participa- tion.16 Because the committee technique is the most popular medium for involving teacher participation in.administration, let us examine some of its limitations. An administrator's failure to be aware of these limitations can serve to lower staff morale just as the wise use of committees can help to build morale. Decentralizes responsibilifiy. In a recent interview a top business executive said, ”G.E. (General Electric) has no 16American Association of School Administrators, "The American School Superintendency", Thirtieth Yearbook, “Rabington, De Co, 1952, p. 65-60 6h place for committees as decision-making bodies. A committee moves at the speed of its least informed member and too often is used as a way of sharing irresponsibility.n17 Unfortu- nately, this is a point of view that is all too common in the business world. However, the greater use of committees in education should not be construed to mean that school administrators use them as a means of evading responsibility. In this respect, Englehardt18 cautions that the committee plan does not relieve the superintendent of the respon- sibilities assigned him upon taking Office. It cannot be denied that the committee technique, under the guise of democracy, has been used by unthinking or unwilling amminis- trators to skirt their responsibility as educational leaders. Control by_administration. TOO Often committees, because they are created by administrators, are then controlled by them. That administrators have been guilty of exerting too much control over such teacher groups is pointed out by 19 Petty and Chandler. This is Often accomplished by the 17A quote by Mr. Ralph Cordiner in an article, "General Electric's Cordiner", appearing in.Time magazine, LXXIII, NO. 2, January 12, 1959: P. 85. 18Fred Englehardt, Public School Organization and Administration, Chicago, Ginn and"COmpany, 1931, p. TEE. ‘19B. J. Chandler and Paul V. Petty, Personnel Mana ement in School Administration, New York: World Book CompaE§:—§§35:- p. . 65 administration exclusively appointing the membership Of committees and by consigning matters Of minor importance to committees made up of teachers, according to these same authors.20 Administrators are Open to the charge of pseudo- democracy if teachers are not invited to have a part in the selection of colleagues for committee assignments, especially in the areas of professional problems and teacher welfare. Similarily, the expense Of committee action should be avoided when the decision is not particularly important or else the charge of ”busy work" is justified. Legal limitations. Brandes gives the reminder that a school policy-making group has to function within certain legal limitations.21 Any committee in the organization of the school is an extra-legal body and, thus, for all practical purposes is only advisory in nature. Whether it be a systempwide committee on professional problems or a small study group in a building, the extent of its authority is in the making of recommendations to the principal and faculty, the superintendent or the board of education. In other words, somewhere in the hierarchy of 20 Ibid., p. 70. 21Louis G. Brandes, "Providing for Policy-Making in a School Through Democratic Group Participation", American School Board Journal, 129:37, November, l95h. 66 the organizational structure, there is a check on the powers of the committee. Regardless of the assignment and authority vested in a committee, in Michigan, the local board of education is ultimately reSponsible for all policy matters. Thus, in this state, all committees have a final check on them. Psychological limitations. Even more important than the legal limitations of committees are their psychological limitations. Certain limits are necessary in order that a cmnmittee Operate within the legal framework of the parent organization. However, once this has been established, the frailties of human nature have to be reckoned with before a committee can function effectively. One authority22 lists some of the idiosyncracies Of individuals that serve as psychological blocks in a school policy-making group. He lists: 1. Fear of participating in making decisions 2. Lack of ambition 3. Lack of confidence in colleagues h. Opposition to change 5. Inability to communicate thoughts 6. Poor self-organization Another psychological limitation results when teachers take the attitude that an administrator seeks an expression 2 Ibid., p. 38. 67 from them because he is afraid to take a stand. This 23 Observation was made by Hunkins some time ago. It is true that many teachers probably prefer to concentrate their efforts in doing a good job of teaching and do not wish to be involved in administrative matters. Nevertheless, teachers are showing anything but a professional attitude when they claim to lose faith in an administrator because he wants their wishes made known before a policy decision is reached. Other limitations. There are several limitations of the committee technique not yet mentioned which deserve attention before leaving the subject. Some of these are: 1. There is often a long lapse of time between the time that a committee decision is made and action taken. 2. Oftentimes, qualified personnel are not available and persons are placed on committees who do not have much to contribute to the group deliberations. 3. Some persons on a committee attempt to gain recognition by winning an argument rather than concentrating their efforts in arriving at a common decision. A. Persons are sometimes placed on committees studying matters in.which they have no interest. R. V. Hunkins, "Democratic School Administration: A Misnomer or a Misconception", Educational Administration and Supervisipp, 2S:h2h, September, 1939. 68 21; Regarding the composition of committees, Brown says that in committee functioning it is necessary that the members be the real choices of the peOple they are to represent. If an administrator fails to consider this in his cummittee appointments, he is likely to be charged with "stacking the deck." Not only must committee members be the real choices of those they represent but they must also be willing to work together, Brown adds. Ego involvement cannot be avoided in human relation- ships, and it is probably safe to say that one of the reasons committees sometime fail to function effectively is because certain members of the group would prefer not to work with others in the same group. SUMMARY An attempt was made in this chapter to list some of the advantages and limitations of the committee technique in school administration. While committee deliberations are sometimes cumbersome, this is more desirable than having the school run by administrative edict if the assumptions listed in Chapter I are accepted. 2 uMuriel W. Brown, "Some Applications of Sociometric Techniques to Community Organization", Sociometry, 6:1, p. 95. 2SIbid., p. 95. 69 If sound principles of organization are employed, the committee technique is a tool that can be used to further both efficiency and democracy in administration. The feelings of most writers in education on the subject of group process in administration can.be briefly expressed as follows: It pays to think together; this is democracy in action. CHAPTER V TEACHER PARTICIPATION IN ADMINISTRATION AND THE USE OF THE COMMITTEE 'ECRNIQUE FOR ACHIEVING IT INTRODUCTION The purpose of this chapter is to discuss the subjects of (1) faculty involvement in administration and (2) the use of the committee technique as a means for achieving it. It is because they have a means—ends relationship that the writer treats synonomously the subjects of teacher participa- tion and committee organization in public schools. The only alternative, other than group process, for achieving teacher participation in administration is to delegate duties to large numbers of individuals. However, this practice does not make for effective utilization of teachers in policy formation and decision making that small-group process affords. The effective utilization of staff personnel in administration will now be discussed. UTILIZING TEACHERS IN’SCHOOL ADMINISTRATION The United States has taken the lead among nations in developing efficient methods of utilizing its trained manpower in business and industry. A Yale professor tells us that in 71 l the field of teaching, however, we are notoriously backward. In line with this observation, one from our own ranks reminds us that no administrator can be an expert in all areas of management and that efficiency requires the practical viewpoint of those who are specialists in their own right.2 Effective utilization of teachers in policy formation and decision making not only results in greater dividends in production (efficiency) but, by being involved, they are likely to be more democratic in their relationships with students. One authority states that when teachers engage in a living, functional share in administration they are more likely, themselves, to practice democracy in the classroom.3 Similar arguments for utilizing teachers in administration are advocated by Penhale and Ashfal; and Hagman and lEli Ginzberg, Human Resources, New York: Simon and Schuster, 1958, p. lhl. 2Howard E. Henry, "Let's Practice What We Preach About Democratic Administration", The School Executive, 7h:68, September, 195h. 3Louis M. Klein, "Giving Teachers a Share in Determining Educational Policy", American School Board Journal, llh:36, March, 19h7. LLRandall R. Penhale, "Democracy Must Be Inherent in School Administration”, American School Board Journal, 109:15, November, l9hh. 5W. D. Ashfal, "Superintendent's Advisory Committee", The School Executive, 59:35, November, 1939. 72 6 Schwartz maintain that individuals exhibit a greater willingness to perform if they have had a share in the planning. While the use of committees is often employed to make better use of the abilities Of good teachers, they still oftentimes resent serving on them. Committee work which results in no modification of policy is one factor which makes for a negative feeling toward group process in adminis- tration. Then, too, some teachers feel that they should be left alone to teach. They do not realize that their talents will be better utilized as they serve on committees studying curriculum, personnel policies, public relations, etc. Green says that one of the causes for cynicism toward com- mittees has its source in our not knowing what matters can best be delegated to individuals and which call for discussion by all. Story8 made the same observation ten years earlier so this is a problem that has proven not to be a recent one. A plan for committee organization suggested by Clyde M. Campbell might help to solve some of the problems as to where bHagman and Schwartz, 22. cit., p. 155. 7Roberta Green, ”Obstacles to Democratic Participation As Seen by a Teacher", Education Digest, 18:hh, February, 1953. 8 . M. L. Story, ”Limits to Teacher Participation", Educa- tional Administration and Supervision, 39:161, March, 1953. 73 decision making should reside, in what administrative areas group participation should be invited, etc. Dr. Campbell9 suggests a committee on.committees whose function it would be to select areas for special study during the school year, decide on personnel of other committees, evaluate their work and help to determine the scope of and need for new commit- tees. A committee such as this could assist greatly in the better utilization of teachers in administration in public schools. Let us probe further the effective utilization of the staff, via committee organization, by considering the matter of committee selection. COMMITTEE SELECTION AND APPOINTMENT There is no assurance that a collection of individuals will function as a group. While committees are created with the aim.of working toward a common objective or toward two or more non-contradictory purposes, the personnel make-up of committees oftentimes serves to deter this. Increasingly, boards of education are looking for administrators who are adept at committee organization. Because committees are only as effective as the personnel who make them.up skill in committee selection and appointment is a highly desirable trait for today's administrator to possess. IgClyde M. Campbell, Practical Applications of Democratic Administration, New York: Harper and Brothers, Publishers, 1952, p. 1890 7h The Bruce brothers editorialized some time ago on the necessity for school superintendents to have knowledge of committee organization.lo Davies and Anderson11 refer to a recent study in which this competency in administrators, as it applied specifically to curriculum development, was rated very high by teachers. It is not easy to formulate principles of committee selection because each situation presents varying circumstances. Koopman and his colleagues12 say that the problem of deter- mining who shall serve on committees should be decided in terms of the community and the individual teachers. To say that exact procedures for committee selection cannot be spelled out does not negate the fact that certain considera- tions are taken into account when committee appointments are made. In the matter of committee selection it is desirable to choose persons who (1) feel they have something to con- tribute, (2) are the real choices of the people they represent, and (3) have an interest in serving. These will be considered further. 1W1111am c. and William G. Bruce, ”A Maligned Device", American School Board Journal, 115:54, September, l9h7. 11Vivienne Anderson and Daniel R. Davies, Patterns 23 Educational Leadership, Englewood Cliffs, New Jersey: Prentice-Hall Incorporated,l956, p. 50. 12Robert G. Koopman, Alice Miehl, and Paul J. Misner, Democrac i2 School Administration, New York: D. Appleton- Century Company, l9h3, p. 82. 75 Qualified individuals. It is not desirable to place on committees persons who will not be able to make a con- tribution; it is equally undesirable to name to a committee a person who is qualified but who will not be available to participate in the group's deliberations. These two points are summed up nicely by Newman when he said, ”...it will be unwise to establish a committee unless there are appropriately qualified individuals who can devote the required time to the committee."13 Interesteg individuals. Poorly qualified individuals on a committee will doom it from the start. Similarily, persons should not be named for committee tasks for which they have no interest. It is unwise to place a person on a committee, even if he has special ability, if he does not seem interested in serving.- Mackenzie and Corey feel that teachers will usually volunteer to serve on committees if its work seems significant to them.“-L Asking for volunteers, then, might be one way to gauge interest in deciding who is to serve on the various committees in the organization of the school. I3“ Newman, 22. cit., p. 230. 1h Gordon Mackenzie and Stephen M. Corey, Instructional Leadership, New York: Bureau of Publications, Columbia University, l95h, p. 1&0. 76 15 Trecker says it is bad practice to place persons on committees to "educate” them. It is difficult to accept this as a cardinal principle. A person with abilities in other fields and who was interested in a certain committee assignment should be given consideration. It is not always possible to have a committee composed of persons who are qualified, interested and available. Sometimes a balance between interest and knowledge is the best that can be attained. Some authorities in the field of group dynamics suggest elaborate procedures in the matter of committee selection, (i.e. sociometrical appraisals). Democratic administration can get bogged down in process and the manner of committee selection could be the yoke in this case. Allowing the staff to assist in choosing committee members is a simple way to fill committee assignments with persons who will be the real choices of those they are to represent. Ashley montaqu1b says that man is born for cooperation, that the impulses for cooperative behavior are present even at birth and all they require is cultivation. If administra- tors accept this point of view and show an awareness of some l1 SHarleigh B. Trecker, Grou Process ig.Administration, New York: The Woman's Press, , p. 92. 16 Ashley Montaqu, 9g Bei Human, Scranton, Pennsylvania: Haddon Craftsman, Incorporated, 1955, p. 45. 77 of the considerations mentioned above, it seems, then, that the matter of appointing or electing persons to serve on committees will not be a difficult task. Even.when qualified and interested individuals, who enjoy working with each other, are brought together committees many times still fail to function smoothly. A discussion of effective committee functioning will be considered next. EFTECTIVE COMMITTEE FUNCTIONING To function effectively a committee should be kept as small as possible because the larger it is the more unwieldy it becomes. Reeves says that the ease with which agreement is reached among members of a committee tends to be inversely related to the size of the board.17 However, even when com- mittees are of Optimum size and are composed of qualified and interested individuals, they often fail to function effectively. Attention will next be given to some of the factors that make for effective committee functioning. Purposes clearly stated. One of the pitfalls that makes for inefficiency in group process is the failure to define clearly the problem and the scope and limitations of the committee's work. Newman makes a good statement in this respect when he says, "A clear statement of the objectives, lTReeves, _O_2e Cite, p. 2e 78 duties and authority of a cogmittee will contribute sub- stantially to its success."1 Such a statement is paramount if the committee is to know what is expected of it and also what is outside of its assignment. Mahn19 points out that while many administrators have profited by the use of the committee technique, many have also made trouble for themselves because they failed to recognize the purposes and functions of a committee. A com- mittee, for example, should not concern itself with carrying out administrative procedure. In organizing faculty com- mittees in Ramsey Junior High in Minneapolis several years ago the spheres of responsibility were clearly delineated from the start. Executive functions were clearly stated to be outside of committee responsibility. Under these con- ditions, Brackett states the committees were not confused as to what they could or could not do.20 Probably, the safest way to avoid confusion in stating 21 a committee's task is to put it in writing. Hunt, showing 18Newman, op. cit., p. 231. 19Robert E. Mahn, "The Administrator in the Role of Chairman", College and University, 2h:360, April, 1949. 20Russel D. Brackett, VThe Faculty Council", Nations Schools, 58:62, December, 1956. 21E. E. Hunt, Conferences, Committees, Conventions and H23 22 Egg Them, New York: Harper and Brothers, 192E, p. 9. 79 concern over frequent misunderstandings regarding a com- mittee's assignment, states, ”As part of the planning, one cannot emphasize too much the importance Of putting things in writing." In summary, then, it should be re-stated that it is absolutely essential to frame a clear, concise statement of the purpose for which the committee was created or it cannot be expected that the group will function effectively. Once the committee's purpose has been stated, it should go into action without delay. This is the next topic for discussion. The committee 13 action. The committee's first step in getting started is to set up its own regulations if it is to make progress, according to an educator who made a reputation for himself by keeping state-wide committees active in'Wisconsin.22 What this man, Dr. Ira Davis, had reference to was the establishment of "rules of the game” for the group to follow. Some of these rules are: l. The "give and take“ of group discussion; while respecting each other's opinions, none should be afraid to disagree. 2. Each has the right to initiate a suggestion. 3. Discussions must be kept group-centered. 2 2 Ira C. Davis, ”How To Make Committees Function", Education, 56:h33, March, 1936. 80 Following the above rules of the game requires that committee members be objective in their consideration of facts and opinions. It requires a willingness to compromise at times in order to avoid stalemate. On occasion, the com- mittee should evaluate its progress. Thelen?3 strongly endorses this procedure if the committee is to be responsible to those it represents as well as to the larger body to which it must report. The procedures suggested above are necessary if a committee is to run smoothly and work toward the accomplish- ment of its mission. In summary, it should be said that unless ease of expression is safeguarded committee members and, unless it periodically evaluates its progress, interest and participation will drop off; likewise, the productive efforts of the committee will diminish accordingly. Time and place 2; meeting. One reason for the mal- functioning of committees is that adequate consideration is not given to the time and place for holding meetings. The time of the meeting should be set, of course, so that all participants can attend. Ample advance notice should be given in the absence of regularly scneduled meetings. The latter makes for better planning and individual work between herbert A. Thelen,~Dynamics‘2£’ Groups 23.Ucrk: spicaéog w' .. a 4+- P "‘14,.” . .. «a .. UAALVQISLVJ OJ. Vazlvu‘b'o FIUDD’ .L/JLJ.’ t). 2.23. 81 meetings if they can be incorporated in the school calendar. Rush meetings are to be avoided. A question of no little import in recent times is whether or not committee assignments should be considered a part of the work load and carried on during regular school hours. Miller and SpaldingZu feel that this type of teacher participation justifies meetings on school time. A better justification for released time is advanced by two other educators25 who argue that this makes for more effective committee work. They say that no person is capable of con- tributing constructively to a meeting when he is mentally and physically fatigued. Today, many school systems which have active committee organization compromise on the matter of providing school thme for meetings by allowing early dismissal of classes on meeting dates. Leon Waskin2b tells how the Center Line, Michigan, schools organized curriculum committees and set the time for meetings on this basis. 2hMiller and Spalding, 2p. cit., p. 530. 25Elena F. Devaney and George E. Brown, ”Let Faculty Have A Voice", The School Executive, 40:52, September, 1947. 26Leon S. Waskin, "Organization for Curriculum.Study”, Bulletin, National Association of Secondary School Principals, Volume 43, Number Zak, February, 1959, p. uh. 82 27 Tead suggests that committees meet for no longer than one and a half hours without making provision for recess. Deliberations should not extend beyond two hours if the energies and creative talents of teachers are to be effectively utilized. After a full day with youngsters, teachers cannot be expected to be performing at tOp efficiency with the clock nearing the dinner hour. In addition to hold- ing meetings at a time satisfactory to all, it is equally important that arrangements be made for a suitable meeting place. Needless to say, theplace selected for the group to assemble should be centrally located. Once a meeting place, accessible to all, is chosen considerations of heating, light- ing and ventilation should be checked to see that all are conducive to good work. The room.should contain furniture that lends itself to a workshop atmosphere. If these requirements are met, the committee should consider holding all of its meetings at the same place. Role gf the chairman. The effectiveness of a committee tends to be directly related to the leadership qualities of its chairman. That the chairman is a key person in group 2 70rdway Tead, The Art of Leadership, New York: Whittlesey House, 1935, p. 193: 83 28 process is ably demonstrated metaphorically by Jaffray. He says, "...his function is similar to the musician who sounds the 'A' in a symphony orchestra when it tunes up." The chairman puts the committee in tune, so to speak, with the subject under consideration. Once deliberations are underway, the Chairman must show faith in his cO-workers throughout, Weber cautions.29 He must try to allay fears and feelings of inadequacy that committee members might possess. A chairman soon discovers that there are those who are wisest and those most ignorant in the discussion of any particular problem. Unfortunately, they do not correspond to those who talk the most and those who talk the least. The chairman.must discourage the loquacious. This task is more an art than a matter of definite precepts. Leigh's book lists some techniques that serve as hints to handle these instances.)0 Some of these are looking at one's watch, rising, interrupting the speaker to summarize what he has said and to ask him what his next point is. All of these can be done in a courteous manner and in group discussions courtesy is worth whatever effort at self- 28J. Jaffray, "Why Is A Chairman?” Rotarian, 6h: 37- 8 February, 194M. 290. A. Weber, "Top-Heavy Leadership", Educational Leadership, 2:123, December, l9uh. 50Robert D. Leigh, Groupreadership, New York: W. W. Norton and Company, Incorporated, 1936:5p. 69. 84 control it costs. In this respect, O'Connor points out that the chairman.must show respect for human personality above all other considerations.j1 It was suggested earlier that a desirable procedure for committees to follow is to evaluate its progress periodically. A good technique along this line is to have the chairman summarize the work of the group at the end of the meeting. Dunbar is quite explicit in respect to this function of the chairman. He says, "Near the end of the meeting the chairman makes, perhaps, his most valuable con- tribution; he extracts from.the discussion the maximum 32 number of ideas on which there is substantial agreement." Report 22 the committee. The final report and/or recommendations of the committee represents the most important phase of its work. Davis suggests that a fund be set up to take care of expenses for clerical assistance in connection with reporting responsibilities of committees.j3 This is not extravagant when the qualities of a good report are con- sidered. It should be a neat, typewritten report devoid of grammatical and spelling errors. A competent secretary SILloyd R. O'Conner, "An Insidious Plot", The School Executive, 74:67, February, 1955. 32Willis F. Dunbar, ”Let's Appoint a Committee", Social Education, 7&23, March, 19u3. )3D3V13, 532. 23:20, p0 Bue 85 is required for this and those from the school office staff should be made available to assist in this kind of work. Specific recommendations or conclusions should be included in the report. While a unanimous report is desirable, provision should be made for the expression of those not in accord with the report. Where total agreement has not been reached, a minority report in the form of an addition to the majority report should also be submitted. ADMINISTRATIVE RELATIONSHIPS WITH COMMITTEES In his relationships with committees the administrator must achieve a balance between non-interest and intervention. Retreating to the confines of his Office Once a committee has been organized is as undesirable as his trying to dominate the work of the committee. If an administrator sits on a faculty committee, he must be especially careful that he does not enter the meeting with a conclusion already drawn. Expression of a preferred solution by him early in the deliberations of the committee is unwise because he may be afraid of reversing himself later for fear of losing face. In all instances, the administrator should maintain close liaison with committees functioning in his school even if time does not permit him to sit on all committees that 86 34 might be organized. Hagman mentions that as part of his leadership role an administrator should join in committee discussions but should be cautious that his status role as an administrator does not interfere with full exercise of free discussion by all committee members. Along this same line of thought, Reynolds brought out twenty years ago that the administrator will win the loyalty and respect Of teach- ers if he treats them.as fellow workers rather than as subjects.35 This suggestion was made in 1939, at a time when, more Often than not, teachers were regarded as trained subordinates rather than as professional colleagues. Some administrators erroneously feel that a committee will arrive at an earlier and a more sound solution of a problem by bringing in an expert to provide the answers for them. This is not the role of the expert in group process. The expert or resource person should sit as a member of the committee and Offer his knowledge and experience only after the group has acquainted htm with background information. Many administrators have alienated committee members because they felt he brought in an expert to impose his 34Harlan L. Hagman, Administration 2f Elementary Schools, New York: McGraw-Hill Book COmpany, 1956, p. 268. 35BrentonE. Reynolds, "Open Letter To Administrators" Nations Schools, 23:65, May, 1939. 87 (expert) ideas on them. The role of the expert in democratic process is still an issue and care must be taken that he is not employed to assist committees until his role is clearly defined. If the counsel of the expert is substituted for thorough examination of the problem this, then, is a mis-use of the committee technique in school administration. SUMMARY In summary of the matter of faculty involvement in administration, via the committee technique, two points should be made. While Opinion differs as to what the areas are in which teacher participation should take place, there is near agreement on the function of committees composed of teachers. Most of the literature suggests that while teacher participa- tion in policy making is essential, policy execution should be left to administrative Officials. The second point to be made is that the organization of a committee does not guarantee effective group participa- tion. If teachers are not ready for wide participation at the start, only one or two committees should be given a problem and gradually involve the whole staff. Using this approach and adhering to the suggestions presented throughout this chapter ought to make for genuine teacher participation in school administration by use of the committee technique. CHAPTER VI THE WISE USE OF THE COMMITTEE TECHNIQUE IN SCHOOL ADMINISTRATION INTRODUCTION It is the purpose of this chapter to consider the wise use of the committee technique in school administration. The administrator often faces a dilemma when trying to get the faculty involved in running the affairs of the school. On occasion, when striving for cooperative effort, he has been charged with.imposing busy work on the staff. In other instances, failure to invite teacher participation has brought forth the charge of dictatorial Operation. The matter of when, and when not, to use group process in administration is a varied and complex procedure that calls for deep insights into human behavior. This is corroborated by Sears who says, I'Perhaps there is no aspect of personnel management that is less wisely handled than this matter of drawing teachers into the fields of policy making, 1 planning andxnanagement.' In considering the wise use of 1Jesse B. Sears, Public School Administration, new York, Ronald Press Company, I947, p. 268. 89 committees a discussion as to when it is desirable to use group process in administration will first be held, followed by a consideration Of when it might not be advisable to use the committee technique in the government Of the school. WHEN TO USE COMMITTEES A basic principle that is often advanced for the use of group process in administratibn is that the professionally trained person has a right to participate in decisions which affect his welfare and the educational welfare of young pOOple. Another reason popularly advocated is that com- mittees are excellent ways to open two-way channels of communication. ‘We are most recently reminded of this by Simonds.2 The social-psychologists bring their knowledge to bear on the subject and they apprise us of the importance of the informal structure in the school as it relates to policy formation and decision.making. Tracker says that committees should be used when it is clearly indicated that the job can be done better through group process.3 The above are philosophical and psychological considera- Zi. R. Simonds, "The Superintendent Doesn't Run A l-Han School”, The School Executive, 77:62, March, 1958. 3Tr°ck0rg 2£e fie, pe 89e 90 tions that might serve as general guides in deciding when to use committees. However, more specific principles are needed if the committee technique is to be successfully applied at the operating level. Many principles have been suggested for helping administrators decide when it is wise to use the committee technique. The following are suggested by Newman, with the writer applying the principles to actual school situations. 1. WHEN A WIDE DIVERGENCE OF'INFORMATION IS NECESSARY TO REACH A SOUND CONCLUSION. EXAMPLE - H College had been allowed to use the public schools to provide its Education majors with student teaching experiences. These students were supervised by the College Director of Student Teaching and by a critic teacher from the public schools. Many of the critic teachers did not agree with the College Director on philosophy and methodology. This rift had weakened the student-teaching program to the point where the school administration was thinking of terminating this cooperative effort. At the suggestion of the superintendent, a committee was formed whose purpose was to consider ways in which the program.could'be strengthened. Included on the committee were college teachers and administrators, public school teachers and administrators and two members of the Board of Education. The problen.was aired thoroughly over a year's time and sound judgment could not have been achieved.without a group composed huewman, 22. gig... p. 228-9. 2. 91 of persons who were intimately fmmiliar with all aspects of the problem. The chief outcome was the appointment of a Coordinator of Student Teaching and a clear definition of duties was drawn up for all college and public school personnel con- nected with the student-teaching program. WHEN THE DECISION IS OF SUCH IMPORTANCE THAT THE JUDGMENT OF SEVERAL QUALIFIED INDIVIDUALS IS REQUIRED. EXAMPLE - UPON FULL EXAMPLE - In the internal operations of a school few issues are as important as that of teachers' salaries. x_ school system.has a Salary Committee composed of six persons -- the superintendent, two Board members and three teachers. Here we see that three levels of opinion will be considered when working for a settlement on this important matter. WHEN THE SUCCESSFUL EXECUTION OF DECISIONS DEPENDS UNDERSTANDING OF THEIR RAMIFICATIONB. The best example of this type of committee would be an administrative council or a principals and supervisors group. The persons who make up this type of a committee are usually responsible for executing policies and other actions passed down by the super- intendent or the Board of Education. WHEN AN ISSUE IS INVOLVED OR A NEW DEVELOPMENT 4. ARISES WHERE COMMUNICATION BETWEEN FACULTY AND ADMINISTRATION IS A NECESSITY (outside the regular flow of communication). EXAMPLE - The superintendent of X school felt there was a lack of professiOEEI growth on the part of most of the staff. He wished that more teachers were somehow involved with in-service training. He realized that the faculty would not graciously accept a formalized inpservice education program. A committee was appointed to investigate in-service education possibilities and to discover the types of activities in which teachers might be willing to take part. As a result of the committee's work the following were accomplished: 92 (l) a professional reading library was established (2) extension courses were offered in the city (3) several departments revised courses of study . (4) there was a definite upturn in the number attending summerschool If the In-service Education Program.described above had been.imposed on the teachers, it probably would have failed. Having the committee share its ideas with the faculty along the way resulted in a greater voluntary acceptance by teachers than would have ever been possible had a formalized program been set up by the administration. The magnitude of the task in question.will also deter- mine whether a committee should be formed or not. Some instances when it is desirable to use committees are listed below: 1. The body acting does not have time to accomplish the task in question. 2. The body acting cannot come to further agreement and further consideration by this group appears useless. 3. The body acting does not have sufficient information to warrant its making a decision on the subject in question and may desire further facts, advice or time to study. A lot of advice is given as to when it is desirable to use committees in administration. However, a plain observation by Hughes seems to provide one of the soundest 93 clues as to when a committee should be formed. He suggests that when face-to-face discussions are needed to solve problems, the committee technique is the best means. There are some situations where it is not advisable to use the committee technique and these will be considered next. WHEN NOT TO USE COMMITTEES From the standeint of democratic administration, the arguments are much in favor of using committees. However, there will be times when it will be disadvantageous to use them, Newman cites some instances when.it might be inappro- priate, in terms of functional administration, to use comp mittees.6 He suggests that it is inadvisable to use them: 1. when prompt action is necessary 2. when committee meetings tend to interfere with the activities for which the organization exists. 3. when the decision is not particularly important. 4. when qualified personnel are not available. 5. when the problem is one of execution rather than decision. Committee action can.be slow and expensive. The most basic advice that can‘be given is that a committee should 3James M. Hughes, Human Relationships ig;Educational Organization, New York, Harper and Brothers PubIIsHers, 9P03 bNemn, 22e Me, pe 229“30e 9h never be established unless the advantages of group action seem to clearly outweigh those of assigning the task to a s ingle individual . STEPS IN CREATING COMMITTEE ORGANIZATION The most common method of creating a committee is through appointment by the head of a governing body. There are two basic types of committees -- standing and special. Standing committees. There is much pro and con relative to the merit of standing committees in an organiza- tion. In the field of education, however, Edmondson feels that schools will find it advantageous to have certain standing committees.7 He goes on to say that some of the most comp monly found deal with (1) curriculum, (2) student activities, (3) professional improvement, (h) public relations, etc. Special committees. A trend in school administration today finds a committee assigned to perform.a specific task, ceasing to exist once it is accomplished, according to Yeager.8 Current thinking and practice seem.to favor prompt dissolution of a committee when it has completed its task. :J. B. Edmondson, Joseph Roemer, Francis L. Bacon, Secondary School Administration, New York, MacMillan Company, 39P07e 8Yeager, gp. cit., p. 277. 95 In establishing committee organization Story lists several pitfalls which the administrator must seek con- sciously to avoid.9 He points out that (1) committees must not be organized as a front for autocratic administration; (2) be sure, he says, that the committee is charged with a definite purpose, and (3) be sure, he concludes, that the committee recognizes its responsibility to the larger group. While diverse points of view are to be encouraged, care must be exercised that no special interest group is championing its own cause. In summary of the matter of the creation of committees, it should be stated that they should come into being only as a real need for them exists. Similarily, they should be dissolved or give way to other committees as the intial need for their creation is alleviated. ABUSES OF THE COMMITTEE TECHNIQUE It is unfortunate that some administrators have regarded the committee technique as a panacea for all ills. These are the cases of which we hear. That the use of some mittees has been overdone is brought out by an item.appearing 9M. L. Story, ”Abuses Of the Committee Function", The §hi_Delta Kappan, 34:199-200, February, 1953. 96 on the agenda of a Policy Committee in one school system. The item seed, THE PRESSURE or commune MEETINGS on STAFF 1 MEMBERS. One writer recently made the statement that ”...most committee systems fall into disuse almost as soon as they 11 are formed.” As a categorical statement, this seems to be an exaggeration and unfounded in fact. It is true, however, that the committee technique will fall into disuse if sound principles of organization are not employed. Administrators have been guilty of abusing the use of committees in several ways. Assigning items of.minor hmportance to a committee is an abuse for which there is no justification. The writer would like to illustrate this with an actual situation from.his own experience. In.x school there was much disagreement between the YEKchers and the principal as to which.was the best way to get monies for the Jr. High Fund. The selling of pencils by teachers to students in all their classes and a school play were the main sources of revenue. The teachers had other ideas as to ways in which they felt that this money could be raised. Most teachers felt that as long as they were the primary agents for acquiring the money for the fund, they should have a voice as to how they would best 15W. C. Seyfert, “Experiences in Faculty Self- Determination', School Review, 61:463, November, 1953. 11 Theodore Caplow and Reeds J. McGee, The Academic- Harket Place, New York, Basic Books IncorporatEd, I953, p. 200. 97 like to raise it. Instead of naming a committee to study the basic question of g2! the funds should be raised, a committee was chosen to make recommendations regarding the pencil sales -- i.e. what price, color, type of stamping to be inscribed, etc. The above illustration is an example of needless expenditure of teachers' time. ‘Willingness of administrators to accept group discussion of a problem as an end in itself is another flagrant abuse of the committee technique. It is true, too, that in some schools committees exist primarily for public relations purposes. It looks impressive to have committees included in the organizational chart of the school. It is abuses such as those cited above that bring forth statements like the one attributed to Burnight, who said ”While I consider the committee technique a very valid method when used properly, it has been, by this time, bent and twisted completely out of shape, and has become an almost meaningless ritual."12 It is pure hypocrisy to use committees in the ways described above. Unless the intent is a sincere desire to utilize the creative talents of teachers, committees will not serve as means to democratic administration. The indiscriminate use of the committee technique by administrators will make for an attitude of Burnight, 22. cit., p. 325. 98 complacency, even hostility, towards committees in the minds of teachers. ADMINISTRATIVE RELATIONS‘HITH LOCAL TEACHERS ORGANIZATIONS Administrators often complain that local teachers organizations are not interested in improving schools; that they are more interested in registering faults than in making constructive proposals. Hubbard expressed a feeling along this line when he said, I'Local teachers organizations continue to restruct their activities to teacher welfare."13 Despite the fact that administrators and faculty sometimes feel that they hold certain prerogatives there is much.more agreement than discord between the two groups. Spinning brought this out in a panel discussion on teacher-administrator relations when he stated, 'I believe that relations between administration and teachers organizations are more cordial and mutually beneficial than is the case between corresponding 1“ organizations in business and industry.” 3Frank'w. Hubbard, ”Hays of Organizing to Secure Democracy in School Administration" , School Executive, 65: 71, December, l9h5. luJames M. Spinning, official report, 82nd Annual Convention, American Association of School Administrators, 1956: P0 33- 99 Probably what Spinning says is true because school administration is much more specifically dependent upon good human relations than is the administration of a business or industry. This is a point of view ventured by 'Winsor,15 however, it should not be construed to mean that the entire staff should be consulted on all matters that affect them. ‘Wade cautions against this and warns that such a procedure would make a farce out of democratic process.16 The existence of a local teachers organization would not be necessary if the entire staff accepted the principle of I'oneness" -- where administrators and teachers have the same intereSts and objectives. However, inconsistencies seem.to dominate most feelings on this subject. Below appears an example of this fuzzy type of thinking. we find two educators, co-authoring a text, making a plea for ”oneness” in all phases of school operation. Later these same authors state, ”Organizations which are created by teachers...should be open only to teachers. Management, the administrative staff of the schools, has no place in 17 such groups." It seems that if those to be affected by 151. L. Winsor, ”Schools Must Exemplify Democracy at Work“, Nations Schools, 53:u6, January, l95h. - ~ 1 1 7Miller and Spalding, gp,'g£§., p. 537. ‘dO’ 22e Me, Pa 25. 100 a policy should share in policy making, then those who are to execute the policy should also have a share in shaping these policies. Yet, it has been suggested that administrators have no place in such groups (teachers organizations). This attitude is in contradiction to a point of view popular in training programs for school administrators. Here we are told to gather facts cooperatively; that when each side gets thel.separately, there is a tendency to stick rigidly to their own facts and opinions. The reader may wonder why a discussion of administrative relations with teachers' organizations was entered into in this chapter. It is true, more often than not, that where administrators and teachers are considered as separate entities, there is little room for democratic process. It is true, too, that in.many schools administrators concentrate their leadership efforts on committee organization as it relates to educational aims rather than to professional problems of teachers. It is often necessary, therefore, for association leadership to concern itself with teacher welfare. The local teachers' organization is usually recognized as the bargaining agent in these matters and, unless the administrator enjoys a good relationship with this group, his Job will be more difficult in working with them.in the solution of personnel policies, salary negotiations, etc. 101 SUMMARY Teachers are better equipped today than ever before to assist in policy formation and decision making and schools should make the wisest possible use of these talents accord- ingly. This point of view is corroborated by Professor Jesse Sears who says, ”More and more, there has been a demand for placing authority in a group or a committee in the belief that better decisions and more faithful execution of work 18 would result.‘' 13 Jesse B. Sears, The Nature of the Administrative Process, New York, McGraw-Hill Bookaompany, T956, p. 290. CHAPTER VII RESULTS OF QUESTIONNAIRE STUDY ON THE USE OF THE COMMITTEE TECHNIQUE IN SCHOOL ADMINISTRATION INTRODUCTION The main purpose of this study was to discover the attitudes of teachers toward staff participation in administration and of ways in which the committee technique could be used as a means for achieving this end. Certain basic assumptions were made earlier in which an attempt was made to show that faculty involvement in administration is desirable, even necessary.1 It shall be the purpose of this chapter, based on original research findings to (l) prove the hypotheses ventured earlier, (2) discuss other results of the study, and (3) point out significant differences in attitudes toward group process in administration as they relate to certain variables of the personal and professional background of teachers. All of the data for this phase of the study were taken from the questionnaires completed by teachers. Results 1 See pages 8, 9 and 10, Chapter I. 103 from this, the writer's original research, will be compared with other related research and expert opinion. If significant areas of disagreement appear, they will be analyzed further. VALIDATION OF HYPOTHESES ygjgg hypothesis. The major hypothesis ventured in this study was that teachers do not feel that the committee technique is being judiciously used and, therefore, it is not performing the function that it could be performing in school administration. Reactions to the questions below show that while teachers feel that group process in adminis- tration is desirable, they do not feel that their talents are being utilized to the extent that they should be. The data in Table II, based on responses from.oS7 teachers in high school districts in Michigan's Upper Peninsula, seems to confirm this. Of the 657 teachers participating in the survey, 650 or 99 per cent felt that they should have a voice in policy making. Question Number 2 in Table II points out specifically that the large majority of teachers feel they should be involved in the administration of schools. Of 610 teachers responding to this question 77 per cent indicated an affirmative answer. TABLE II TEACHER PARTICIPATION IN ADMINISTRATION 10h 1.' 2. 3. RESPONSES TO QUESTIONS ” STRONGLY AGREE Teachers should have a voice in the making of policies which will affect ShZ' them in.their professional and personal life. In public schools, teachers should be involved in run- ning the organization because, where professional 135 relationships exist, staff participation in policy formation is implied. The creative talents of teachers are not utilized to the extent that they 121 Should be in the adminis- tration of schools. A A AGREE TEND TO 108 332 273 TEND TO DISAGHEE 93 181 STRONGLY DISAGREE 25 17 DOES.NOT RELATE 25 27 105 Despite the fact that the great majority of teachers indicated that staff participation in administration is desirable, they also feel that their talents are not utilized in this respect to the extent that they should be. Sixty- seven per cent of the teachers reacting to Item 3 in Table II expressed this sentiment. If it can be assumed that democratic participation of teachers in administration can best be achieved by some form of committee organization or group process, then the writer's hypothesis has support as evidenced by the data appearing in Table II on page lOu. §i£££_hlpotheses. It was felt that the several sub- hypotheses ventured earlier would be validated by an analysis of the findings coming out of the original research.' These will be considered in the order in which they were listed in Chapter I. The first of these was that teachers felt quite strongly that they should have a voice in policy making and, further that they felt staff morale was high in schools where there was an opportunity for faculty participation. That teachers feel they should have a voice in policy making has already been shown in Table II, Item 1 (page 10h). A look at Table III verifies quite vividly the writer's contention that teachers feel staff morale is high in schools where an opportunity is afforded teacher participation in administration. 106 . TABEE III STAFF MORALE AND TEACHER PARTICIPATION A!“ IN ADMINISTRATION Question: ‘When group participation is invited in the vari- ous matters related to educational aims and teacher welfare, staff morale is high and administrative-personnel relations are improved as a result _ Number Making Response Total ReSponses 625 Choice 1. Strongly agree 31h 2. Tend to agree 278 3. Tend to disagree 27 h. Strongly disagree 5. Does not relate 5 107 The increasing awareness of teachers feeling they have a right to exercise judgment in decisions and policies which might affect them is best exemplified by the number of local teachers' organizations and the role which they play in schools today.' School systems in which no local professional organization exist are a rarity. This led to the deduction that, in the minds of teachers, they serve a worth-while purpose and a statement to this effect was included in the questionnaire for their consideration. The high degree of agreement reached on the question appearing in Table IV indicates that the following sub-hypothesis was validated: TEACHERS FEEL THERE CAN BE NO EFFECTIVE PARTICIPATION IN THE FORMATION OF POLICIES RELATED TO PROFESSIONAL WELFARE WITHOUT THE EXISTENGE OF A LOCAL TEACHERS' ORGANIZATION IN THE SCHOOL SYSTEM. One of the reasons that the use of the committee technique has been criticized has been due to the failure to employ sound principles of organization. It had been the' writer's observation and experience that teachers resented being arbitrarily assigned to committees. Further, itivas noted that teachers were dissatisfied when committees studying problems related to personnel policies, salary matters, etc., had their membership appointed by the adminis- tration. This led to the hypothesis that on committee studying 108 TABLE IV ROLE OF LOCAL TEACHERS' ORGANIZATION Question: There can be no effective teacher participation in the formulation of policies related to teacher welfare without the existence of a local teachers' organization in the school system Response Total ReSponses - 613 Numbggofizfing l. Strongly agree 230 2. Tend to agree 219 3. Tend to disagree 122 h. Strongly disagree . 3O 5. Does not relate 12' 109 :matters related to professional welfare, teachers wanted a voice in the selection of the membership. Contrariwise, the writer theorized that on committees studying educational ahms, program, etc., it mattered little to teachers whether the membership was appointed by the administration or elected by colleagues. Responses to the items appearing in Table V seem to validate these hypotheses only partially. The hypothesis that teachers feel committee work is more effective when it is on a volunteer, rather than an appointive, basis is borne out in Table V (page 110). Seventy-nine per cent of the respondents were in agreement with this. Similarily, the data show that to 80 per cent of the teachers in the study, the mode of committee selection made little difference to them when the committee was to study educational aims, program, etc. A contention.made earlier, that teachers want a strong voice in the selection of committee members when the group is to study professional problems, was not completely validated by the survey. while a considerably larger number (3h per cent vs. 20 per cent) felt the administrator could not be as objective in his appointment to committees studying professional welfare as to committees studying educational aims, nevertheless two out of three teachers thought the 110 TABLE V IEFFECTIVE COMMITTEE ORGANIZATION Questions Related Number of to Committee Responses Organization 627 TEND T0 AGREE TEND T0 DISAGREE STRONGLY DISAGREE DOES NOT RELATE ’ STRONGLY AGREE 1. Generally Speaking, committee work is more effective when people volunteer to serve 200 290 109 19 9 rather than when they are appointed. 2. In the final analysis, if appointments are made fairly and objectively, it matters little if committee members are appointed by the adminis- tration to serve on committees studying: a. educational aims 152 32M 90 28 7 b. personnel policies 126 279 146 30 7 c. salary matters 11k 260 158 50 10 d. in-service training programs 126 335 91 27 13 111 administrator capable of selecting their real choices on committees studying salaries, personnel policies, etc. The latter finding was not anticipated. The writer had theorized that teachers would feel much.more strongly about the matter of committee selection where professional welfare was con- cerned than the data in Table V shows. The theory has been advanced that teachers will have a positive attitude toward group process when the results of the committee's work can be seen in the operation of the school. In view of this prediction it was hypothesized that ”teachers are willing to serve on committees if they feel the work will result in improving the educational program.” Conjecture on this point is very well substantiated by the data appearing in Table VI. The last hypothesis ventured prior to embarking on this study read as follows: Teachers feel that a major deterrent to effective committee functioning lies in the lack of clerical assistance in connection with the paper work and reporting responsibilities of the committee. Apparently too much emphasis was attributed to the lack of clerical assistance serving as a deterrent to the effective reporting responsibilities of the committee. Only a little over half of the teachers in the survey, 58 per cent, felt that this :— —:_ TABLE VI TEACHERS' WILLINGNESS TO SERVE 0N COMMITTEES Questions Related to Teachers' willingness to Serve on Committees TOTAL RESPONSES - 65a STRONGLY AGREE TEND TO I f AGREE TEND TO DISAGREE STRONGLY DISAGREE 112 DOES NOT RELATE 1. 2. Committee work can be a satisfying experience when the results of the com- mittee's work can be seen in the Operation of the school. Most teachers possess the “team.play or partnership outlook and, if given the opportunity, are willing to serve on committees if they feel it will result in improving the educational program. m2 181. 260 316 61L 11 113 would serve as a handicap in the effective functioning of committees composed of teachers. This is borne out by the data appearing in Table VII. TABLE VII CLERICAL ASSISTANCE FOR COMMITTEES Question: The lack of clerical assistance on the paper work connected with committee responsibilities is a major deterrent to the effective functioning of committees in school systems. Response Total Responses - 618 Numgzzigsking l. Strongly agree 91 2. Tend to agree 230 3. Tend to disagree 211 h. Strongly disagree M1 5. Does not relate RS Forty-five persons said they had no basis for answering the question in Table VII above. This group, composed of thirty-five women and ten men, were mostly beginning teachers. 11h OTHER RESULTS FROM QUESTIONNAIRE STUDY In addition to venturing several hypotheses as to what the research would show relative to the role of committees in administration, it was hoped that the findings would provide answers to several other questions also. Results from the original research as they apply to these questions will be discussed at this time. A troublesome question for many administrators is whether there is discontent or general endorsement of the committee technique in the minds of teachers. There is reason to believe that teachers are quite negative, even cynical, toward the use of committees in administration. This notion is very easily dispelled upon examining the questionnaire results in Table VIII. It was gratifying to see that teachers apparently accepted the assumption that evaluation of the school program should be an on-going process. In line with this assumption, over 90 per cent of the respondents followed through by agreeing that all teachers should perform, at one time or another, committee tasks for which they have skill and knowledge. More and more, administrators want knowledge in the practical application of principles and procedures in the TABLE VIII ENDORSEMENT OF THE COWiIT'I'EE TECHNIQUE BY TEACHERS 115 Questions Regarding the Use of the Committee Technique for Involving Teacher Participation in Administra-. tion: 1. 2. 3. h. TEND TO AGREE TEND TO DISAGREE STRONGLY DISAGREE STRONGLY AGREE F A.committee should be organized to study a problem when: a. the resulting policy or decision is likely to be reacted to by the informal 178 225 91 organization of the school (cliques, teacher-lounge groups, other unofficial groups). b. below-the-surface thinking between the faculty and 20h 283 NZ administration needs to be crystallized. c. the decision is of such importance that the judg- 370 216 13 ment of several qualified individuals is desired. Committees are frequently wasteful substitutes for the work of one individual; if everyone did his jdb 63 131 292 well, there would be little need for committees having to function in schools, Committee organization is an effec- tive method for bringing about harmonious relationships among 169 323 109 staff members in coordinating their efforts toward fulfilling the objectives of the school. If it can be assumed that evalua- tion should be an on-going process in the various phases of the educa- 269 305 NS tion prOgram, then everyone should be expected to perform, at one time or another, committee tasks for which he has skill and knowledge. A“ 23 11 1h0 17 NOT RELATE DOES 33 11 11 116 matter of committee selection and appointment. It has already been shown that teachers feel committees are more productive when their members volunteer to serve, rather than when they are appointed. However, it is important to know what teachers consider to be sound practices in this matter as they are the ones who will make up the committees. The data in Table IX shows that teachers very definitely feel that committees should have members serving on them who are interested, qualified and who will have a contribution to make to the group. Apparently, the matter of persons not being willing to work with each other is not a problem.af deep concern to teachers when factors of committee membership are considered. This is borne out by referring to Item.Number 3 in Table IX. Less than one-third of the reSpondents indicated that the presence of a person with.whom they would prefer not to work would keep them from volunteering for committee duty. It was expected that this factor would be of vital concern to women teachers, eSpecially. Strangely enough, the data showed that the men were slightly more concerned about this matter than were women teachers. Thirty-two per cent of the men said this situation.wou1d prevent them.from volunteering for committee work while only twenty-nine per cent of the women indicated likewise. TABLE IX COMMITTEE SELECTION AND APPOINTMENT 117 >1 8 <3 >4 54 Questions Related to Committee 5‘ BE 53% 233 Selection and Appointment 2E3 E (5 22¢ a: 0% Se SE 0;? 33*” E4 3‘ EH gH 0% a3 :3 coca c: 1. Persons should be placed on committees because they have something to contribute 325 230 58 15 6 rather than for purposes of being ”educated”. 2. If qualified personnel are not available to consider 132 237 205 30 10 the problem.at hand, it is better to avoid the use of the committee technique. 3. Teachers often fail to volunteer for committee duty because they see 35 152 315 11h 26 someone on the committee with.whom they would prefer not to work. 118 One phase of the questionnaire survey showed that the majority of the teachers polled, 58 per cent, felt that if an administrator sat on committees with teachers, there was a good possibility that the committee would become a ”rubber stamp”. However, when confronted with the fact that the administrator was responsible for implementing policy, most teachers were in agreement with the idea that he should main- tain close liaison with committees in the form.of advisor or resource person. It was interesting toriote that committee purpose made some difference, in the minds of teachers, as to what working relationships should exist between the administrator and committees composed of faculty members. While the large majority of teachers felt that the administrator Should work closely with all committees, nevertheless, there were differences of Opinion, depending on committee purpose. For example, only 2h out of 617 respondents, 3.3 per cent, disapproved the idea of the administrator maintaining close liaison.with committees studying educational aims. However, on committees working on problems related to personnel policies, 10.5 per cent of the teachers in the survey disapproved of the administrator working closely with.them; on salary matters, likewise, 10.5 per cent disapproved: on in-service training programs, 6.6 per cent objected. (See Table x) 119 TABLE X ADMINISTRATIVE RELATIONSHIPS AND COMMITTEE PURPOSE m- Question: Because he is ultimately” o 0 >4 a: responsible for imple- 3 BS 9% 53% 25 menting the decisions 2% (5 2:: a agreed upon by them, Em Q3”: g}? E}? @E the administrator should m“: E as ' ”a Q maintain close liaison, as an advisor or resource person, with committees studying: a. personnel policies 310 220 51 11 O b. salary matters 330 202 50 12 3 c. in—service training * programs 308 236 31 7 8 d. educational aims 377 2114. 20 )4. 2 Looking at Table X above, it appears that committee purpose makes only a slight difference as to what teachers feel should be the administrator's relationship with’Com- mittees. It was interesting to note that only 7.8 per cent of the men teachers felt that administrators should not work closely with committees studying salaries while 11.7 per cent of the women teachers objected to the administrator main- taining close liaison with salary committees. 120 As the writer became aware of the contempt with which the committee technique was held by some teachers, he became interested in the reasons for this disillusionment. Many persons volunteered that committee efforts were not appreciated and, as a result, they did not feel a sense of achievement. A question to this effect was asked teachers and the results appearing in Table XI indicate that more than.half, 56.2 per cent, did not feel a sense of achievement when completing a task as a member of a committee. Of the male respondents, 59 Per cent felt this way while 5h.6 per cent of the women teachers also felt this to be true. TABLE XI COMMITTEE WORK AND TEACHERS' SENSE OF ACHIEVEMENT QUESTION: Most persons do not feel a sense of achievement in completing an assignment as a member of a committee because committees do not usually receive appropri- ate recognition for their work. Number Making _» Response Total Responses - 618 Choice 1.. Strongly agree 5h 2. Tend to agree 285 3. Tend to disagree 216 h. Strongly disagree N9 5. Does not relate 1h IIIIIIIIII I. 121 DIFFERENCES IN ATTITUDES TOWARD COMMITTEES BASED ON CERTAIN PERSONAL AND PROFESSIONAL CHARACTERISTICS OF TEACHERS During the course of the study an attempt was made to discover whether any relationship existed between a positive or a negative attitude toward the use of committees in administration and certain variables of the personal and professional background of teachers. For purposes of analysis, the following significant variables were considered: Sex (men vs. women) Residence (local or non-local teacher) Length of Teaching Experience Extent of Past Committee Experience Teaching Assignment (elementary or secondary) Extent of Participation in Community Activities Type of Advanced Training Taken Since First Employment Sex Differences. (men vs. women) There were several instances where men and women teachers seemed to express noticeable differences of opinion regarding teacher participa- tion in administration and toward the use of the committee technique as a means for achieving it. In.replying to the statement appearing in Table XII it can be seen that 80 per cent of the men.in the study were in agreement with it while only 60 per cent of the women.responded in the affirmative. A partial explanation for this might be due to the fact that many women do not particularly care to be involved in group process because home and family responsibilities might be affected. 122 TABLE XII MEN AND WOMEN TEACHERS' OPINIONS REGARDING STAFF PARTICIPATION IN ADMINISTRATION STATEMENT: The creative talents of teachers are not utilized to the extent that they should be in the adminis- tration of schools. Number Making Response Total Responses - 632 Choice Men ‘Women Agree 1&8 2N6 Disagree 38 160 Does not relate 2 28 —v—— The feeling of men teachers that the staff is not utilized in administration to the extent that they should be is also reflected in their attitude toward committee selection where the group is to study professional problems. When the statement was made that it mattered little whether persons were appointed by the administration or elected by colleagues to serve on committees studying salaries, 72 per cent of the women concurred but only 50 per cent of the men; on comp mittees studying personnel policies, 75 Per cent of the women agreed but only 60 per cent of the men; on committees studying in-service training programs, 83 per cent of the women were 123 in agreement and 73 per cent of the men; on committees studying the educational program, 82 per cent of the women were not too concerned about the manner of selecting members and, of the men, 77 Per cent felt it made little difference whether they were appointed by the administration or elected by colleagues. This would seem.to indicate that the men in a school faculty want more responsibility in the administra- tion of schools, as it relates to both the educational program and teacher welfare, than do women teachers. One other point deserves mention regarding men and women teachers' attitudes toward the committee technique. Men feel more strongly than do women that committees are more effective when persons volunteer to serve rather than when they are appointed. This is ironical in view of the fact that considerably fewer of the men.(men, 80.8 per cent; women, 91.6 per cent) felt that teachers were willing to serve on committees. Residence. (Local vs. non-local) As might be eXpected, those who are not local residents of the community in which they teach seem.more interested in staff participation in administration than do teachers who are natives of the community. Similarily, non-local teachers have a more positive attitude toward the use of the committee technique 12h TIBEE XIII ‘WILLINGNESS OF TEACHERS TO SERVE ON COMMITTEES STATEMENT: Most teachers possess the "team play” or partnership outlook and, if given the opportunity, are willing to serve on committees if they feel this will result in improving the educational program. Response Total Responses - 65h Numggziggkins Men Women 1. Agree 157 “19 2. Disagree 36 39 3. Does not relate 2 1 than do teachers who are local residents. This is borne out in Table XIV. Teaching Assignment. (elementary vs. secondary) As the study progressed the question arose as to whether there would be differences in attitudes toward staff participation in administration between elementary and secondary school teachers. Because the latter are more professionalized and, probably, more career-oriented than elementary teachers, it was felt that there might be significant differences of Opinion toward group process in administration. TABLE XIV 125 ATTITUDES OF LOCAL AND NON-LOCAL TEACHERS TOWARD STAFF PARTICIPATION IN ADMINISTRATION 2. 3. Statement Percentage in Agreement Local When group praticipation is invited in the various matters related to educational aims 93.2 and teacher welfare, staff morale is high and adminis- trative personnel relations are improved as a result. Committee organization is an effective method for bringing about harmonious relationships 81.0 among staff members in coor- dinating their efforts toward fulfilling the objectives of the 801100]. e If it can be assumed that evalua- tion should be an on-going process in the various phases of the educational program, then 92.6 everyone should be expected to perform, at one time or another, committee tasks for which he has skill and knowledge. The creative talents of teachers are not utilized to the extent that they should be in the 6h.l administration of schools. Non-Local 96.6 87.1 96.3 72oh 126 Secondary teachers seem to have more of an anti- administration attitude than do elementary teachers. They also seem.to hold more of a negative attitude toward the use of the committee technique than do elementary teachers. This is due, partly, to secondary teachers feeling more strongly than do those in elementary that they are not involved in the administration of schools to the extent that they should be. This observation is supported by the data in Table XV. TABLE XV ELEMENTARY AND SECONDARY TEACHERS' OPINIONS REGARDING GROUP PROCESS IN ADMINISTRATION Statements Percentage in Agreement Elemen- Secon- tary dary 1. If the administrator sits on comp mittees or has a close working relationship with them, there is a 57.2 63.h possibility that they will get their cues from him.and become a rubber stamp". 2. The creative talents of teachers are not utilized to the extent that they 6h.3 75.0 should be in the administration of schools. e Although the wording of the question is affected by the use of the word POSSIBILITY, the writer theorizes that the replies have some degree of validity on the assumption that the respondents overlooked the use of POSSIBILITY and interpreted it as PROBABILITY. Further, the percentage in agreement would seem to indicate that majority opinion would still offer an affirmative reply were PROBABILITY used in the question rather than POSSIBILITY. 127 Length 9;.Experience. It was interesting to note that there was a direct relationship between length of teaching experience and a negative attitude toward group process in administration. Specifically, this is borne out by the data appearing in Table XVI. TABLE XVI LENGTH OF'EXPERIENCE AND TEACHER ATTITUDES TOWARD COMMITTEES STATEMENT: Committees are frequently wasteful substitutes for the work of one individual; if everyone did his Job well, there would be little need for committees having to function in schools. Length of Experience 1-2 yrs. g-lo yrs. over 10 yrs. Percentage in Agreement 16.h 26.6 30.h Increasing negativism.toward the use of the committee technique in administration as length of experience increases can also be seen in teachers' responses to a question related to extra-legal organization, i.e. local teachers' association. In the latter, where the administrator does not play a leader- ship role. 77 per cent of the teachers with over ten years experience felt there could be no effective staff participation in the formation of policies related to teacher welfare without 128 the existence of a local teachers' organization. Seventy- two per cent (72%) of the teachers in the 1-3 and h-lO years experience classification expressed this same view. Fewer of the more experienced teachers, as compared to those of less experience, agreed with the idea that committees were effective as a means for bringing about harmonious relationships among the staff in fulfilling the school's objectives. In the over-ten-year bracket, 83.h per cent of the teachers agreed while, in the 1-3 year category, 85.5 per cent were in agreement. Although slight, enthusiasm for committee work seems to wane as one gains tenure in teaching. Extent 9: Community Participation. Another question that warranted investigation.was whether teachers who held officerships in civic groups, or were otherwise active in community affairs, regarded committee work as an encroachment on these outside interests. The data in Table XVII seems to dispel this notion. 0n the contrary, teachers most active in the community seem.to have a more positive attitude toward the use of committees in administration than those not active in civic work. The old adage,'If you want to get a job done, get a busy man to do it,.seems to be borne out in Table XVII. 129 TABLE XVII EXTENT OF COMMUNITY PARTICIPATION AND TEACHER ATTITUDES TOWARD COMMITTEE WORK I STATEMENT Percentage in Agreement Officer Dr Active Inactive Member 1. Committees are frequently waste- ful substitutes for the work of one individual; if everyone did 2h.3 30.5 his job well, there would be little need for committees having to function in schools. 2. Committee organization is an effective method for bringing about harmonious relationships 86.0 82.0 among staff members in coor- dinating their efforts toward fulfilling the objectives of the school. Extent of Committee Experience. Differences of opinion regarding committee organization existed between teachers with little or no committee experience and those with con- siderable past experience. In one sense, a note of skepticism can be detected with increased committee experience. For example, when asked if they felt that committee work was more effective when people volunteered to serve rather than 130 when they were appointed, 79 per cent of the teachers who had served on one or more committees for five years or more agreed; of the teachers who indicated that they had not experienced committee assignments, 90 per cent were in agreement. The latter reflects the naivete or theoretical idealism.of the beginning teacher. 0n the other hand, it is interesting to note that the experienced committee member reacts more positively than the neophyte to specifics as they relate to the same subject -- committee selection and appointment. 0n the surface it might appear that the experienced committee member is inconsistent in his thinking. This is not necessarily so because he reacted more negatively to a general principle than did the novice. As the teacher gains experience, he learns to appreciate the necessity for centering responsibility and of the administrator's role in committee organization. This, in fact, supports the contention of the greater number of experienced teachers that committee work on a volunteer basis is not as effective as on an appointive basis. It can be seen, also, in Table XVIII that in reference to specific tasks, a progressively more positive attitude prevails among teachers as they gain committee experience. 131 TABLE XVIII TEACHER ATTITUDES REGARDING COMMITTEE SELECTION AND APPOINTMENT ‘; T STATEMENT: In the final analysis, if appointments are made fairly and objectively, it matters little if committee members are chosen by their colleagues or are appointed by the administrator to serve on committees on: Percentage in Agreement (committee experience) None 1-4 years 5_years & over 1. Educational aims 67.5 79.0 82.8 2. Personnel policies 62.2 65.3 73.2 3. Salary matters 60.0 62.7 66.0 h. In-service training programs 71.9 76.6 81.0 Typg_g£ additional training. It has been charged that there is a philosophical rift between teachers with a Liberal Arts background and those who have taken their work in a teacher-training program. A question related to cooperative administration.was asked teachers who were subject-matter specialists and those who had taken work in administration and guidance courses. The results showed that persons with training in administration and/or guidance were 132 more inclined to believe that the faculty and administration should work cooperatively in committee endeavors than did the subject-matter specialists. It was interesting to note that those who had taken no additional work since joining the teaching ranks (30 per cent of those in the study) had a more positive attitude toward administrative-staff liaison in committee work than those who took advanced work in their subject specialty. In salary matters, those with no additional training were even more cordial to working closely with the administration than those clatming advanced work in.administration and/or guidance. Theoretically, the latter have studied the democratization of human relations; however, only 85.5 per cent of them agreed with the principle of cooperative administration on salary matters while 92.2 per cent of those with no advanced training felt that the faculty and administration should work closely on this phase of personnel administration. See Table XIX. TABEE XIX ADVANCED TRAINING AND TEACHER ATTITUDES TOWARD ADMINISTRATIVE RELATIONSHIPS WITH COMMITTEES 133 W STATEMENT: Because he is ultimately responsible for implementing the decisions agreed upon by them, the administrator should maintain close liaison, as an advisor or resource person, with committees studying: Percentage in Agreement (type of additional training) Admin.- Subject Guidance Matter None 1. Educational aims 99.7 95.8 92.h 2. Personnel policies 91.7 8h.7 91.6 3. Salary matters 85.5 86.8 92.2 h. In-service training programs 95.h 90.7 93.8 CHAPTER VIII A SUMMARY OF FINDINGS AND IMPLICATIONS FOR EDUCATIONAL LEADERS INTRODUCTION One of the keys to successful school administration lies in knowing when and when not to invite group thinking and action. This study has concerned itself with an analysis of the committee technique and an attempt will be made in this chapter to be more precise as to its role in.democratic administration. Various forms of group process have been experimented with in business, industry and government in an attempt to discover which plan of cooperative endeavor is best suited to their organization. Recently, the Ford Foundation awarded a $12,000 grant to a wayne University professor to study the committee-assignment process in Congress.1 In the field of education we are most recently reminded of the importance of the committee technique by Conant. Referring to recommenda- tions that should be put into effect without upsetting staff Michigan.Education Journal, News Briefs, Volume XXXVI, ”mar 15, April, 1959’ P. LL07e 135 morale, he says, ”If an administrative officer feels that these recommendations should be introduced, his £i£§t* task would be to examine the problems involved with committees of teachers and then persuade the teachers that they should give them.a thorough trial."2 When exercised judiciously, committee organization can be a most effective means for furthering democratic adminis- tration. It shall be the purpose of this chapter to (1) present conclusions gained from the study, (2) develop a statement of principles, both general and specific, and (3) cite the implications for educational leaders. Generaliza- tions will be made from.an analysis of the library research on the subject and from.the writer's original research. CONCLUSIONS GAINED FROM THE STUDY General Conclusions. Some general conclusions, relative to teacher participation in administration and the use of the committee technique for achieving it, may be drawn from the library research and the questionnaire study. The follow- ing can be defended on the basis of data secured in a review of the literature and from.the survey investigation: *Underscoring by writer for emphasis. 2 James B. Conant, The American High School, McGraw- Hill Book Company, Incorporated, New York, 1959, p. uh. 2. 3. h. 5. 7. 136 Teachers overwhelmingly feel that they have a right to a voice in the formulation of policies related to the educational program.and their professional welfare. Committee work can be a satisfying experience and teachers will work with enthusiasm on a committee if they feel their efforts will result in an improvement in the instructional program or in teacher welfare. Staff morale is higher in schools where teachers are invited to participate in policy formation and decision.making than in schools where little or no opportunity is provided for this. Teachers strongly endorse the committee technique as a functional means for staff participation in administration and, though it has suffered temporary setbacks in some instances, it has wide acceptance as a practical method for finding the solution to many educational problems. If the school is to reflect and promote democracy the efficient administrator is one who utilizes the talents of the staff to supplement his efforts and to alleviate his limitations. Teachers are more likely to practice democracy in the classroom if they are given a similar voice in the government of the school. Most teachers are not satisfied with the level or the degree of staff participation found in school administration today. Specifig_Statements of Conclusion. In addition to the several general conclusions listed above, the study also suggested some answers specifically connected with questions asked in the writer's statement of the problem (Chapter I). 1. Teachers feel there can be no effective participation in the formulation of policies 2. h. 5. 137 related to the professional welfare of the staff without the existence of a local teachers' organization in the school system. Teachers feel that committee work is more effective when persons volunteer to serve rather than when they are arbitrarily assigned. The matter of persons not being willing to work with each other is not a problem of deep concern to teachers when factors of committee membership are considered. The majority of teachers in the survey felt that persons serving on a committee should have some qualifications for studying the problem at hand or it is better to avoid the use of the committee technique. About six out of ten teachers felt that the lack of clerical assistance served as a deterrent to effective reporting responsibilities by the committee. Teachers want a stronger voice in the selection of persons to serve on committees studying salary matters and personnel policies than in membership selection to committees studying matters related to the instructional program. In summary of the above-listed conclusions, the data seem.to show that teachers feel there is an increasing need to utilize the talents of the staff in policy formation.and decisionymaking and that the committee method provides an effective means for achieving teacher participation in administration. Statement of Limitations in Conclusions. 'In retrospect, a notable limitation appears in the statement of conclusions above and the writer recognizes the danger in generalizing 138 without acknowledging its presence. While the minor hypotheses are well supported by the research data, a limitation lies in the writer's not taking a direct route in testing his major hypothesis. This read as follows: TEACHERS DO NOT FEEL THAT THE COMMITTEE TECHNIQUE IS BEING USED JUDICIOUSLY IN SCHOOL ADMINISTRATION AND, THEREFORE, IT IS NOT PERFORMING THE FUNCTION THAT IT COULD IN DEMOCRATIC ADMINISTRATION. Although responses to several of the items in the questionnaire indicated that teachers do not feel the committee technique was being used to its best advantage, teachers were not asked directly whether or not they felt that the committee technique was being judiciously used in school administration. DEVELOPMENT OF PRINCIPLES Certain general and specific principles came to the fore during the course of the study. These will be presented for the purpose of serving as guideposts in deciding the many questions connected with the structure and process of committees in school administration. General Principles. The writer's investigation suggests that the following general principles are valid as they apply to the use of the committee technique in democratic adminis- tration: 1. 2. 5e 6. 139 Committees are advisory in nature, at best, and should never be used to execute policy. Teachers must acknowledge that the administrator is ultimately responsible for implementing any decisions arrived at or policies formed by the group. (The study shows that this attitude is held by the large majority of teachers.) As a school system increases in size and its operation becomes more complex, there is an increasing need for the administrator to delegate authority to committees instead of to individuals. Teachers are qualified, interested and willing to participate in policy formation and decision making and schools should invite them to assist in this e Committee organization can be justified in schools only to the extent that its purposes serve to accomplish the ends for which the school exists, (i.e. early dismissal of school so that a curriculum committee can spend a more concentrated period of time at its work cannot be tolerated unless the efforts of the committee result in an improvement of the instructional program). A committee given a specific task pursues its work with.more vigor and with greater effective- ness than does a group working as a standing committee. As soon as the initial need for the committee ceases to exist, it should be dissolved. The soundness of committee recommendations tends to be directly related to the degree which the members view the problem in its full perspective. All teachers should perform, at one time or another, committee tasks for which they have skill and knowledge. 1&0 Specific Principles. Against the background of the general principles listed above the study also suggests various specific principles which.will be enumerated within apprOpriate categories. ggmmittee Selection and Appointment Whether elected by colleagues or appointed by the administrator, persons serving on committees must be the real choices of those they are to represent. Persons should serve on committees primarily because they will have a contribution to make rather than for purposes of being ”educated." Wherever possible, teachers should be given the opportunity to volunteer for committee assign- ments rather than by arbitrary placement by the administrator. Acceptance of committee recommendations tends to be directly related to the diversity of the points of view represented by the committee members. Effective Committee Functioning The ease with which committee agreement is reached tends to be related inversely with the size of the committee. Committee meetings should be held at a regularly scheduled time and meeting place. The effectiveness of a committee is directly related to the ability of its chairman to secure group thinking. A clear statement of its objectives and authority should be provided the committee at the time it is given its assignment. lhl 5. Periodically, the committee should take time to evaluate its progress. Committee Organization 1. A committee should be organized to study a problem.when: a. the resulting decision or policy is likely to be reacted to by the informal organization of the school (i.e. teacher- lounge and hall groups, various cliques ' of teachers, social and interest groups) b. formal communication and/or below-the- surface thinking between the faculty and the administration needs to be crystallized c. the decision is of such.importance that the judgment of several qualified individuals is required. Administrative Relationships'With Committees 1. The administrator should maintain close liaison, as an advisor or resource person, with all com- mittees in operation in the school system. (If he is unable to sit on all committees someone should be delegated to represent him.) 2. The administrator should treat his colleagues on a committee as fellow-teachers rather than as subordinates. In swmmary of the guideposts cited above, it can be said that if sound principles of organization are employed, the committee technique is a tool that can be used to further both efficiency and democracy in school administration. 1&2 IMPLICATIONS FOR EDUCATIONAL LEADERS In stating the implications of the study for educational leaders, a serious attempt will be made not to duplicate the generalizations included in the statement of conclusions and development of principles presented earlier. Implications for Administration. Though some may be related to the conclusions cited earlier in the chapter, the following are suggested as having special implications for school administrators: 1. 2. 3. l". The administrator should be knowledgeable in the strengths and weaknesses of his subordinates so that their talents can be better utilized in planning and deciding school policies. The professionalization of teachers has reached a level where many are now qualified to assist in the broader problems of school policy. Before proceeding with plans for committee organization, an attempt should be made to ascertain the attitude of the staff toward group process in administration. If, for some reason, there is cynicism or resistance the underlying causes should be explored before implementing committee structure or process. The use of the committee technique in adminis- tration.must be based on principles of organiza- tion, and those from.the behavioral sciences, which have been proven sound to date. (See ”Development of Principles", p. 138.) In analyzing the composition of his staff, the adminis- trator will find that some degree of relationship exists 1&3 between a positive or negative attitude toward the committee technique and certain personal and professional characteristics of teachers. 1. 3. Sex ae b. Co These require a special word. Differences. Men teachers want more responsibility in the administration of schools than do women teachers. On committees studying salary matters and personnel policies men teachers are much more concerned than women as to who serves on the committee and how they received their appointment. Men teachers, more so than.women teachers, should be given the opportunity to volunteer for committee work, rather than receiving appointment by the administrator. Residence. (Local vs. non-local) b. Local teachers are more likely than non-local teachers to work through the community power- structure to make their views and wishes known regarding the operation of the school. Non-local teachers feel more strongly than do local teachers that the committee technique is an effective means for teacher participation in,administration. Teaching Assignment. (Elementary vs. Secondary) a. b. Secondary-school teachers wish to be involved in policy formation and decision.making to a greater extent than do elementary teachers. Generally speaking, secondary-school teachers are more professionalized than elementary teachers. As a result, it is probable that the concept of ”relative depravity” regarding authority and responsibility is at work here, making for more of an anti-administration feeling among them than among elementary teachers. LI». 5. 6. 7. 1M4 Length gg‘Experience. b. C. An attempt should be made to acquaint older teachers with the possibilities that the committee technique offers for furthering democratic administration. While older teachers tend to be skeptical of the committee technique in administration, nonetheless, they feel that it is not possible to have effective staff participation in the formulation of policies related to teacher welfare without a local teachers' organization. As one gains experience in teaching, enthusiasm for committee work seems to wane. Extent gf Community Participation. Teachers who are active in civic affairs are more likely to serve willingly on committees than those whose community activities are limited. Extent 2; Committee Experience. Teachers with a background of committee experience are not too concerned with the method of committee selection, regardless of the matter to be studied. Teachers with little or no committee experi- ence feel that committee work is more effec- tive when persons volunteer to serve rather than when they are appointed. Type 33 Additional Training. Teachers with a background of training in guidance and/or administration will accept the use of the committee technique to a greater degree than.will teachers who are subjectdmatter specialists. 1&5 b. Teachers who have taken no additional training since being employed have a more positive attitude regarding the administrator's working closely with -committees of teachers than those with additional subject-matter preparation. c. It is in matters related to educational aims that the subject-matter oriented teacher feels most strongly that the faculty and administration should work cooperatively. The above are quite specific in nature because they relate to certain variables in the experiential background of teachers. Several other general implications for adminis- tration emerged from.the study and deserve mention before leaving the subject. 1. 2. 3. 5. Reporting responsibilities of the committee will be more accurate, complete and punctual if clerical assistance can be provided the committee. The success of committee work will be directly related to the ability and prestige of its members. The administrator should be aware of the fact that, for various reasons, some teachers do not wish to share responsibility for policy. formation and decision making. Committee organization requires expert leadership by the administrator if it is to assist the school in accomplishing its objectives. If the committee's recommendations or a compromise measure cannot be put into effect, the adminis- trator should provide an explanation as to why it is not feasible to put the committee's suggestions in operation at the time. , lh6 In summary of the above it should be said that if school management is to be viewed in its full social context, there can be no differentiation between democratic adminis- tration and functional administration. Like structure and process, they are inseparable. The committee technique can serve as a means for getting a job done and bettering com- munication, raising staff morale, etc., at the same time. By inviting teacher participation in planning and appraising school policies democracy and efficiency are being practiced concurrently. IMPLICATION FOR GRADUATE PROGRAMS One major implication for graduate programs in school administration came out of the study. A theory advanced in most courses in administration suggests that the school executive should carry out his work through mutual agreement with classroom teachers, rather than by administrative edict. From.this basic assumption many generalizations, some grandiose, are made as to the values of democratic adminis- tration. While it is tolerably certain that the school cannot successfully teach democratic ideals unless its own structure and process reflect democracy, a real problem lies in how to put this popular theory of administration into practice. 1&7 This study suggests thdgin the minds of teachers, the committee technique is a functional medium.for getting staff participation in administration. It is recommended, there- fore, that the role of committee organization in schools be treated more thoroughly in graduate courses in administration. It is suggested, further, that the limitations of the com- mittee technique be covered as well as its advantages; that the mechanics of effective committee functioning and committee selection be stressed as well as the philosOphical justifica- tion for committee organization; that specific techniques of group process be considered as well as underlying principles of human behavior. SUGGESTIONS FOR FURTHER RESEARCH The notion of utilizing the committee technique in administration is widely accepted by teachers, educational writers and administrators. It is unfortunate, however, that there is confusion among than as to the role of com- mittee organization. Some administrators and writers in education conceive the committee technique to be a panacea for all ills; others are skeptical or unaware of its pos- sibilities. Many teachers feel that the recommendations of a committee should automatically become policy; others lh8 realize that committees are only advisory bodies. These and other vagaries uncovered during the course of the study serve as a basis for suggesting that the following be researched. Administrative Relatignships‘With Committees. In the area of administrative relationships with committees, some research should be done. Two inconsistencies in this matter will be cited. Because the administrator is responsible for executing policy most teachers feel that he should maintain a close working relationship with committees, yet they also look askance to the administrator's serving on committees of teachers for fear the committee may be unduly influenced by his thinking. Another apparent inconsistency warrants further inves- tigation. Some writers advocate ”oneness” in administration, a plan whereby teachers and administrators disregard their) prerogatives and jointly assume responsibility for planning and executing school policies. Others suggest that the administrator should absent himself from teacher organiza- tion activities in which.matters related to the professional welfare of teachers is considered. Answers to the above will help immeasurably to allow the administrator to assert leadership and assume respon- sibility within the framework of cooperative action. 1&9 Effective Committee Functioning. The questionnaire study indicated that many teachers do not feel a sense of achievement in performing a task as a member of a committee, this in spite of the fact that they are quite willing to serve on committees if the work will result in an improve- ment of the educational program. This raises the following question: HOW CAN COMD'IIT‘IEE PROCESSES BE GUIDED TO GIVE TEACHERS SATISFYING EXPERIENCES IN THE WORK OF THE SCHOOL? In connection with the effective functioning of can- mittees another problem is suggested for further study. Possibly, it has implications for introductory courses in school administration and could be handled there or in some undergraduate courses in Education. How, without stifling enthusiasm.for practicing democracy in the school, can prospective teachers and administrators be given the idea that (1) group participation in policy formation and decision making does not imply plural executives, and (2) it has not proven feasible for the administrator to relinquish his responsibility to the group? In the case of teachers in service, what method would best facilitate a similar understanding? 150 BIBLIOGRAPHY BOOKS Anderson, Vivienne and Davies, Daniel B., Patterns of Educational Leadership. Englewood Cliffs, New Jersey: Prentice-Hall, Incorporated, 1956. Campbell, Clyde M., Practical Applications 2; Democratic Administration. New‘YbrE? Harper & BrothensPuinshers, I952. Caplow, Theodore and McGee, Reece J., The Academic Market Place. New York: Basic Books, Incorporated, 1 U. Chandler, B. J. and Petty, Paul V., Personnel Management in School Administration. NewTYork:“W3rId'Book UBmpany. 1955 . Conant, James B., The American Hi h School Today. New York: McGraw-Hill Beok‘COmpany, l 9. Dale, Ernest, Planning and Developing the Company Organization Structure. NewfiYork: AmeriCan.Management Association, I952. Douglass, Earl R., Modern Administration of Secondary Schools. Chicago: Ginn and Company,‘195h. Edmondson, J. B., Roemer, Joseph, and Bacon, Francis L., The Administration of the Modern Secondary School. New York: MacfiiIIanfiUompany, l§53. , Secondar School Administration. New Yerk: acHIIIan Company, 1932. Elsbree, Willard S. and Reutter, E. Edmund, Staff Personnel in the Public Schools. Englewood Cliffs, New Jersey: Prentice-Hall, Incorporated, 1954. Englehardt, Fred, Public School Organization and Administra- tion. Chicago: Einn and Company, 193I. Follett, Mary, Creative Experience. New York: Association Press, 1929. 151 GinsbergééEli, Human Resources. New York: Simon and Schuster, 19 . Griffiths, Daniel E., Human Relations in School Administration. New York: Appleton-Century Crofts, Incorporated,*1956. Hagman, Harlan L., Administration g£_Elementary Schools. New York: McGraw-Hiii Book Company, I956. Hagman, Harlan L. and Schwartz, Alfred, Administration in Profile for School Executives. New Ybrk: Harper and Brothers, Publishers,’1955. Hughes, James M., Human Relationships in.Educational Or ani- zation.. New York: Harper andBrEEhers, Publishers, 5?. Hunt, E. E., Conferences, Committees, Conventions and How 33 Run Them. New York:iHarper and Brothers, PuBIisEEFs, THEE. Koopman, G. Robert, Miehl, Alice and Misner, Paul J., Democ- rac in School Administration. New York: Appleton- Century Company, Incorporated, l9u3. Leigh, Robert D., Grou Leadership. New York:'W. W. Norton and Company, I953. ’ Mackenzie, Gordon N., and Corey, Stephen N., Instructional Leadership. New York: Bureau of Publications, Columbia University, l95h. Miller, Van, and Spalding, Willard B., The Public Administra- tion‘gg American Schools. New York: WorId Book company, Moore, Harold E., and Walters, Newell B., Personnel Adminis- tration'ig Education. New York: Harper and Brothers, PuBIisEers,_I955. ‘ Newman, William.H., Administrative Action; The Technique of Organization and Management. New York: PrenticeJHaII Incorporated, I950} I Pittenger, Benjamin Floyd, Local Public School Administration. new York: McGraw-Hill Book Company, 1§§I. 152 Schell, Erwin Haskell, The Techni ue 9;,Executiv§_gpntrol. New York: McGraw-Hiil Book Company, l9h6. Sears, Jesse B., Public School Administration. New York: Ronald Press Company, 19h7: '— , The Nature of the Administrative Process. New York: ficGraw-Hill B03? Company, 1950. Smith, T. V. and Lindeman, Edward, The Democratic Wa of Life. New York: American Library of WorId LiterEEure, Stanley, William O. et al., §pcial Foundations of Education. New York: Dryden Press, Incorporated, 195o. Tead, Ordway, The Art 23 Leadership. New York: Whittlesey House 9 lme Thelen, Herbert A., Dynamics of Grou s at‘Work. Chicago: University of hicago Press, lg5h. Trecker, Harleigh B., Group Process in Administration. New York: The WOmen's Press, I9E7. Wahlquist, John T. et al., The Administration _o_f_ Public Education. New York: Ronald Press Company, 1952. Weber, Oscar F., Problems in Public School Administration. New Yerk: THe Century Company, I935. Whyte, William.H., Jr., The Organization.Man. New York: Simon and Schuster, 1956. Wiles, Kimball, Supervision for Better Schools. Englewood Cliffs, New Jersey: Prentice-Hail Incorporated, 1955. Yeager, William.A., Administration and The Teacher. New York: Harper and Brothers, PuElIsEers, I95E. PERIODICALS Anderson, Lester W., ”How Faculty Committees May Produce,” Education.Digest, 22:21-3, October, 1956. . 153 Anderson, Stuart, "Why Not Use Committees?" The Journal 25 Educgtion, 133:77-8, March, 1950. Ashfal, W. D., ”Superintendent's Advisory Committee,” School Executive, 59:3h-5, November, 1939. Barnes, John G., ”Do You Hide Behind Group Process?" School Exegutive, 77:h2-h, July, 1958. Bidwell, Charles E., ”Administration and Teacher Satisfaction,” The Phi Delta Ka an, 37:285-8, April, 1956. Brackett, Russell D., ”The Faculty Council,” Nations Schools, 58:61-2, December, 1956. Brandes, Louis G., "Providing for Policy Making in a School Through Democratic Group Participation,“ American School Board Journal, 129:37-8, November, I95E. Brown, Muriel W., “Some Applications of Sociometric Techniques to Community Organization,” Sociometry, 6:1, l9u3. ‘ Bruce, William.G. and William C., ”Administrative Rise of the Teacher,” American School Board Journal, 103:52, July, 19h1. "A Maligned Device,” American School Board Journal, —_—-_Ii5:5h, September, l9h7. Burnight, Ronald, ”Democracy and the Committee Method," Educational Forum, 22:325-8, March, 1958. Campbell, Clyde M., ”A Democratic Structure to Further Democratic Values,” Progressive Education, 30:25-9, November, 1952. Carpenter, W. W}, ”Participation of Teachers in the Determination of School Policies,” Peabody Journal 23 Education, 9:23h-8, January, 1932. Cornell, Francis G., "When Should Teachers Share in Making Administrative Decisions?" Nations Schools, 53:u3-5, May, 195u-e ‘ Cory, N. Durward, ”When Teachers Participate in School Administration,” Nations Schools, h5:61-2, April, 1950. 15h Davis, Ira C., "How to Make Committees Function,” Education, - 56:h32-h, March, 1936. Devaney, F. Elena and Brown, George E., ”Let Faculty Have a Voice," Nations Schools, h0:51-2, September, 19h7. Dewey, John, ”Democracy for the Teacher," Progressive Education, 8:216-18, March, 1931. Dunbar, Willis F., ”Let's Appoint a Committee," Social Education, 7:121-3, March, 19MB. ""“' Duryea, E. D., Jr., and Munford, J. K., ”Administrative Com- mittees Can Work,” School and Society, 7h:h09-11, December 22, 1951. ”General Electric's Ralph Cordiner," Time magazine, LXAIII, Number 2, January 12, 1959, pp. BE-b. Green, Roberta, "Obstacles to Democratic Participation as Seen By a Teacher," Education Di est, 18:hh-5, February, 1953. Hendrix, Herschel, "Decision Making? Who Is Responsible?" School Executive, 76:77, February, 1957. - Henry, Howard E., "Let's Practice What We Preach About Democratic Administration,” School Executive, 7h:68-9, September, 195k. Herwig, Aletha M., ”Teachers Help Solve Administrative Problems,” American School Board Journal, 98:50, May, 1939e Howell, Youldon C., "We Run Our Schools on.Democratic Lines,” Nations Schools, 35:2h-5, March, 19h5. Hubbard, Frank W., "Ways of Organizing to Secure Democracy in Administration," Sghool Executive, 65:70-1, December, l9u5. Hunkins, R. V., "Democratic School Administration: A Misnomer or a misconception,” Educational Administration and Supervision, 25:h19-2h, September,—1939. 155 Jeffrey, J., "Why Is a Chairman?" Rotarian, 6h:37-8, February, 19%. Johnston, L. R., "When Teachers Help Administer," Nations Schools, 16:17-19, August, 1935. _____.____ Kirby, Byron C., ”Let's Appoint a Committee," Elementary School Journal, h9:292-5, January, l9h9. Klein, Louis M., "Giving Teachers a Share in Determining Educational Policy," American School Board Journal, 114:36-7, March, 19h7. Mahn, Robert E., IThe Administrator in the Role of Com. mittee Chairman,” College and University, 2h:358-60, April , lguge Manze, W. L., ”The Teachers' Place in.Administration,' The Clearing House, 1h:3-5, September, 1939. Mstzen, John M. and Knapp, Robert R., "Teacher Participation in School Administration,” American School Board Journal, 97:27-8, October, [933. McDonald, A. L., "What a Classroom Teacher Thinks of Democracy in School Administration," School Executive, 65:73-h, December, 1945- Melby, Ernest 0., "Building a Philosophy of Leadership,” The School Executive, 56:17-19, September, 1936. Michi an.Education Journal, Volume XXXVI, Number 15, April, 59: Miller, Ward 1., ”Cooperative School Administration,” School Executive, 6h:39-h0, June, 19M5. O'Connor, Lloyd R., ”An Insidious Plot," School Executive, 7’4:b6*7, February, 1955e Pabm, Reuben R., 'A Teacher's Argument for Democracy in Administration,” American School Board Journal, 100: 21.2. February, 1 e Penhale, Randall R., ”Democracy Must Be Inherent in School Organization,” American School Board Journal, 109:15- 16, November, l9hh. ‘II .I ..I-I.I . 156 Reynolds, Brenton.E., 'Open Letter to Administrators,” Nations Schools, 23:6h-5, May, 1939. Seyfert, W. C., "Experiences in Faculty Self-Determination,” School Review, 61:h58-67, November, 1953. Simonds, W. R., "The Superintendent Doesn't Run a 1-Man School,“ School Executive, 77:62-3, March, 1958. Story, M. L., "Abuses of the Committee Function,” The Phi Delta Kappan, 3h:199-200, February, 1953. , ”Limits to Teacher Participation,” Educational Administration and Supervision, 39:161-7, Marc , 19MB. Strayer, G. D., ”Why Teacher Participation in School Adminis- tration?” American School Board Journal, 9h:68, April, 1937. Tate, M. W. ”Teachers Should Teach, Not Play at Administra- tion, Nations Schools, 31:h3, June, 19h3. ‘Wade, Harmon V., ”Some Misconceptions Concerning Democratic School Administration," American School Board Journal, 129:25, July, 195k. . Waskin, Leon S., "Organizing for Curriculum Study," Bulletin of the National Association 2; Secondar SchooI Principals, V31ume £3, Number ZHH, February, 1959, pp. h1-5. weber, C. A., "Top-Heavy Leadership," Educational Lendership, 2:118-23, December, 19hh. Willett, Henry J., "Cooperative Administration; Fact or Fancy,” National Education Association Journal, hh:91-3, February, I955. Williams, William W., ”Does the Staff Participate in Policy Formation?” Education Digest, 16:20-2, May, 1951. Winsor, A. L., "School Administration Must Exemplify Democracy at Work,” Nations Schools, 53:h6-7, January, 195M. Woods, Roy C., ”Teacher Participation in Schoo1 Management," Education, 58:627-30’ June, 1938. 157 BULLETINS, PAMPHLETS AND REPORTS Administrator's Notebook, ”The Teacher and Policy Making; HOw Democratic Can You Get?” publication of Mid-west Administration Center, University of Chicago, 1:1, May, 1952. American Associatipn 2; School Administrators, ”The American School Superintendency," THIBTIETH YBABBOOK, Washington, D. C., 1952. AASA, ”Official Report," Blst Annual Convention, March, 1955. , "Official Report,” 82nd Annual Convention, March, 1956. , “Personnel Committees Including Staff Members in Cities Over 30,000 in Population, Circular No. 2., February, 1950. National Education Association, Department of Supervisors and Directors of Instruction. ”COOperation: Principles and Practices,” Eleventh Yearbook, Washington, D. C., 1939. NEA (National Education Association) "Democracy in School Administration,” Pamphlet Number 12, April, 1953. , ”Personnel Policies and Practices Which Stimulate and.Encourage Professional Growth," Anal sts' Addresses, The Washington Conference, June 25-9, I957. , ”The Teacher Looks at Personnel Administration,” esearch Bulletin g3, December, 1945. National Association of Secondary-School Principalsa ”The Principals' Role in Improving the Curriculum, Volume 43,—Number ZHH, February, 1959. UNPUBLISHED MATERIALS Dickey, Otis M., "The Professional Attitudes Teachers and Ad- ministrators Concerning Democratic Procedures in Public School Administration, unpublished doctor's thesis, Denver, Colorado, University of Denver, 1954. Williams, Gordon, ”Administration for Growth,“ unpublished paper, East Lansing, Michigan State University, 1957. APPENDIX 159 QUESTIONNAIRE 23;; Role 2; Comittee Organization _i_._n_ the. Administration 9f Public Schools Below are listed some statements related to principles of comnittee organi- zation in school systems. Please place a check (/) in column one'if you STRONGLY AGREE with the statement. If you TEND TO AGREE, check column two. If you TEND T0 DISAGREE, check column three and, if you STRONGLY DISAGREE, place a check in column four. If the statement does not seem to relate to your background of training and experience, will you please check column five? YOUR COOPERATION IS EARNESTLY SOLICITED. J. R. Rombouts ‘ Sault Public Schools PLEASE (BECK g3 COMPLETE THE FOILOWING: Sault Ste. Marie, Michigan SEX: M _F___ TEACHING ASSIGN. : Elem. ___Secondary__ No. of years experience___ SINCE BEING EMPLOYED, IN WHICH OF THE FOLLOWING AREAS HAVE YOU TAKEN ADVANCED STUDY? Administration__ Guidance __Subject Matter Specialty___ Other____ None of These__ WHAT IS THE EXTENT OF YOUR PARTICIPATION IN LOCAL CIVIC cmwps'z Officer or leader_ Active member ___Member, but inactive— WERE YOU RAISED IN THIS IDCAL AREA CR COMMUNITY? Yes__ No____ 3‘“ 0 03:13:14) HOW MANY YEARS (APPROXIMATELY), HIRING YOUR PUBLIC SCHOOL 51",, A: "tz {’3 1: EXPERIENCE, HAVE YOU SERVED ON ONE CR MCRE CCMMI'ITEES? 8:35: g“: g: &‘ 83A __ _______________________________ in“ ’2 L” 37.41 Li's as we“ 3% 1. Teachers should have a voice in the making of policies 9 which will affect them in their personal and professional life. 2. When group participation is invited in the various matters related to educational aims and teacher welfare staff morale is high and administrative-personnel relations are improved as a result. T .31, Refinemefi 3 . A committee should be organized t o s tudy a problem when: s-‘::-1°it§:{_,:’.;;}~ a. the resulting policy or decision is likely to be re- acted to by the informal organization of the school (cliques, hall and teacher-lounge groups, other unofficial groups) b. below-the—surface thinking between the faculty and the administration needs to be crystallized c. the decision is of such importance that the judgment of several qualified individuals is desired. I... Comittee work can be a satisfying experience when the results of the committee's work can be seen in the operation of the school. 5. Most persons do not feel a smse of achievement in com- pleting an assignment as a menber of a committee because committees do not usually receive appropriate recognition for their work. . O a C e " I‘ 4' .s v- I ' . 40 ' ' ' ' . . - A Ir .. . . - 4 .. . . I , ‘. . ,- . 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" ' - A . ,. . . .' I ‘ 1' e 'e . i . , . . . . -. ' ~ 4‘ - e . . l‘ ‘ .. ~ . a - ..L . ’ a ' . . . , . u . . .. .. .7 a - .V . '. - . -: . . i - . . a . I . . . . . . . ~ 1‘ . - .. . ‘ . v . . . § , . . ' ‘ I, '. , - . . ; ‘ .,. :. . .- V H" I , ' , e l I. O , s- STATEMENTS RELATED TO PRINCIPLES OF COMMITTEE ORGANIZATION 6 .. 0 *0 I t E I) To ' ,CQ‘E ONO/z Does NOT 5 m P6 In t c’ DI'SflC/I’E ~ 6. Committees are frequently wasteful substitutes for the work of one individual; if everyone did his job well there would be little need for committees having to function in schools. 7. Committee organization is an effective method for bringing about harmonious relationships among staff members in coordinating their efforts toward fulfilling the objec- tives of the school. 8. In public schools, teachers should be involved in running the organization because, where professional relationships exist, staff participation in policy formation is implied. 9. Persons should be placed on committees because they have something'to contribute rather than for purposes of being '"educate‘d" . 10. Most teachers possess the "team play“ or partnership cut- look and, if given the opportunity, are willing to serve on committees if they feel this will result in improving the educational program. '.'. ------ 1.1 . Because he is ultimately responsible for implementing the 1;:f§1:;3§3;i§g 311;;‘535; if}???35.51315 'Ig-‘ggl-gfgg: decisions agreed upon by them, t he admini strat or should gig-"{5}? 533133353ij 1253;3'55:{$31223 :435335-33‘}; maintain c lose liaison, as an advisor o r resource person, ngzggfffj}; Eijggijfr?f;}ij{;j};:§;;Erik-79:53; with committees studying: ' 5:;37'1-35 4????»:1:1;1""?:3l :§;:_~.:;.;t ”"3323 -' a. educational aims b. personnel policies c. salary matters d. in-service training programs 12. If the administrator sits on committees, or has a close working relationship with them, there is a possibility that they will get their cues from him and become a "rubber stamp." ..-.' w" ""1. ......... "1:323:35337133.-:'.'-'- ’5: I s ..5:3 3. l. 94-: '"f-‘tl 13 . In t he final analysis , if appointments are made fairly .3:I:f§:§;:}:§E152:1:24.;’f.j:§I:_'./.j.5::§:-;.::::$:;:§:§.:j:',;§fj and objectively, it matters 1 ittle if comittee members '§§:~1'-'-’