Lessons Learned: Maine’s Experiment With School District Consolidation

• 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
This paper synthesizes findings from multiple research investigations of school district consolidation in Maine, conducted by two research teams from 2007 through 2011, and articulates the broad “lessons learned” for both state education policy and local implementation.

Perspective
Research on district consolidation is scant and typically does not follow policy development, implementation, or impacts longitudinally or broadly. The literature lacks theoretical frameworks to guide studies of this topic. Together, the multiple investigations informing this paper suggest approaches to unpack the different aspects of district consolidation using state and local perspectives. The studies explore the topic using focused explorations and research questions, and a systematic approach to data analysis.

Methods and Data Sources
The research investigations used a qualitative case study design. The number of cases varied across the investigations, depending on the research purpose. Data sources included interviews, documents, and observations of state and local planning meetings. Analytic tables were used to summarize and compare findings across cases (Yin, 2009). The investigation of financial impacts relied more on district financial data with pre and post-consolidation comparisons, and also used interviews.

Findings
The “lessons learned” across the multiple investigations have relevance for policymaking and implementation at the local and state levels:

Local Level:
• School district consolidation is hard, messy work that takes considerable time. The more partners seeking to join, the more complicated and difficult the process becomes.
• Using a regional planning committee and subcommittee structure facilitates work and relationship-building. A facilitator can support the committee’s work.
• Prior collaboration and trust among partnering districts and communities facilitates consolidation efforts. Having common interests and priorities are important conditions.
• Superintendent leadership is critical in every step of the process.
• Leaders need to communicate how consolidation will improve educational opportunities, equity, and save money.
• A regional perspective can be encouraged through structures, such as cross-district planning committees and election of members to the regional board.
• Leadership retreats, facilitation, or other supports may be needed to foster a collaborative, unified board culture for the newly consolidated district.

State Level:
• Leaders need to clearly communicate the problem and proposed action and obtain consensus from stakeholders to move forward.
• The policy should be carefully crafted, not rushed.
• Policymakers need to communicate how consolidation will improve educational opportunities, equity, and save money. Different approaches (consolidation or regional collaborations) may be allowed to achieve the same ends.
• Reasonable time is needed to develop a structure and guidelines to implement the policy.
• A structure to implement the policy is needed prior to district implementation.
• Fiscal penalties can motivate districts to reorganize, but other incentives and supports may be needed.

Significance
“Lessons learned” from research on district consolidation in Maine informs the literature and informs policymakers at state and local levels about conditions, structures, or resources that may facilitate consolidation and issues or factors that may impede or discourage consolidation.

Authors

• David L. Silvernail, University of Southern Maine

• Janet C. Fairman, University of Maine

• Christine Donis-Keller, Public Consulting Group