Early Impacts of School District Consolidation Policy in Maine on Educational Opportunities and Equity

• In Event: Roundtable Session 124
  In Roundtable Session: Lessons Learned From School District Reorganization in Maine: Process, Progress, and Early Impacts of State-Mandated District Consolidation

Abstract

Objective
The purpose of this study is to examine the early impacts of Maine’s district consolidation policy on educational opportunities and equity in 24 recently consolidated school districts: How have newly formed districts pursued equity of educational opportunity? What early changes in educational programming, opportunity and equity have resulted from the consolidation? What conditions challenge or facilitate school districts’ efforts to reorganize their educational program?

Perspective
Research on the education impact of consolidation has been largely concerned with the relationship between district size and academic performance as measured through standardized test scores (Rooney & Augenblick, 2009) or other student outcome measures (Berry, 2004). The literature suggests that while smaller districts may produce higher levels of achievement, larger districts may offer students greater opportunity in course offerings and extracurriculars (Rooney & Augenblick, 2009). Few studies have focused on educational impacts more broadly. For example, a recent study found that teachers in consolidated systems experienced improved working conditions and professional development opportunities, while students experienced increased educational and social opportunities (Nitta, Holley & Wrobel, 2010). The aim of this study is to broaden the scope of this research by looking at the impact of consolidation on curriculum, assessment, and instruction and the strategies and structures districts put in place to implement change.

Methods and Data Sources
Qualitative data include interviews, documents, and observations. Interviews focused on changes to curriculum, assessment, and instruction in the newly formed districts since were conducted with 46 superintendents and curriculum directors from 24 new regional school districts, state-level officials, and consultants. Districts are geographically dispersed and vary in the number, type, and size of merging partners. Additional information collected includes board meeting minutes, materials describing reorganization and education work, state documents, and reorganization plans. Researchers also observed state-wide meetings of district leaders.
Data were systematically organized and analyzed: case reports and analytic tables were developed to summarize data for each case; and researchers conducted a systematic cross-case comparative analysis (Yin, 2009).

Findings
The impact of reorganization on education delivery and content within the new units has taken many forms. Impact includes changes to professional development; the use of technology resources and personnel; education program offerings and delivery; curriculum and assessment; data review and practices; and movement or sharing of personnel. Districts are also changing the structures and processes that they use to drive district operations and educational programming.

However, these changes are not universal. Neither changes nor improvements are noted in all districts. Overall, in consolidations that had a size imbalance between partners, larger systems could point to fewer education equity benefits accrued to them through the process. Challenges and facilitators to bringing about equity and opportunity are also described.

Significance
Utilizing a multi-case comparative design, this study contributes to greater understanding of how districts pursue changes to education programming and the impact of these efforts. This research may help understand the complexity of district consolidation and identify whether it can promote intended education impacts of increased opportunity and equity.

Authors

• Christine Donis-Keller, Public Consulting Group

• Beth O'Hara-Miklavic, University of Southern Maine

• Janet C. Fairman, University of Maine

• David L. Silvernail, University of Southern Maine