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programs. Given that passing scores are quitelow, around the 10th or 20th percentile andoften representing very low fraction of correct,weighted scores, this means that there isa large pool of highly variable quality certifiedteachers from which districts make employmentdecisions.” 14 Strauss follows by criticizingthe hiring practices of some Pennsylvaniaschool districts. One criticism shows that “writtenhiring procedures are absent in about halfof the districts; content knowledge or subjectknowledge seems not be central to the selectionprocess.” 15 Again, the quality of selectionprocess and subsequent quality of teachersvaried across school districts regardless of districtwealth.E. Governance and StructureFinally, additional funding into the current educationalsystems may not yield educationalimprovements without changing the structureand governance models in most of the 501school districts in Pennsylvania. Most districtscontinue to have centralized decisionmakingbodies (districts) with little decisionmaking atthe school site. In those districts that havesite-based management, many provide littleto no budget authority to the school site. 16Currently, above-average expenditures yieldaverage results, both in the elementary schoolyears and at the end of the K-12 schooling period.Changing the structure of decision-makingin school districts requires a change in rolesand responsibilities. School districts mustcomply with state and federal regulations andmandates, at the same time ensuring thatschools are in compliance along with additionaldistrict regulations and mandates. A changein governance structure necessitates a changein school and district personnel functions.District administrators, in a decentralized system,move from the role of compliance officersto information providers and facilitators.Site-based management requires schools tomake decisions regarding budget allocations,staffing, training, curriculum development, etc.With additional responsibility and authoritycomes additional accountability. The centraldistrict provides continuous information andfeedback to the school site. Effective devolutionof responsibilities requires informationsharing across the organization. This informationshould also be shared with parentsand the community to gauge the effectivenessof the schools.Effective change of governance does not happenovernight. Training of district and schoolpersonnel is required in order to understandnew roles and responsibilities. Governancechange also requires a change in teacher andadministrator preparation programs. Skillssuch as budgeting, scheduling, and curriculumdevelopment are needed by incomingteachers and administrators in order to meetthe needs of the changing organizations. Theroles and responsibilities of the state mustalso change, moving from regulators to informationproviders while holding school districtsaccountable. 17 A change in school governancealso requires a change in other traditional institutionssuch as collective bargaining agreementsand purchasing of services such as foodservice and supplies. These decisions, typicallymade at a level away from the schoolsite, should be reconsidered with new modelsof governance.There is not a single model of governance thatis best for all school districts. Each district mustdevise a governance structure that best meetsthe local needs of its children. The change ingovernance must center on the goals and objectivesof educating children. School districtsmust see this as a continuous improvementproject, learning from past experiences andmaking adjustments as needed.What is not known is the governance structurethat each school district will undertake tobetter educate the children of Pennsylvania.However, utilizing the existing managementsystems for school districts will most likely leadto increased investments through spendingwith no increase in student performance. 18 ❖8Reason Public Policy Institute