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Policy Manual and School Procedures

The development and maintenance of school district policies is the central job of school boards. The Vermont statute entitled Powers of School Boards lists thirty-one specific duties delegated to local boards by the General Assembly. The very first responsibility on the list is the duty to determine the educational policies of the school district.

The policy making role of school boards is difficult for several reasons. Primary among these is that the meaning of the word policy is not entirely clear, and most boards wrestle at one time or another with the problem of distinguishing between policy making (the board's job) and policy implementation (the job of administrators).

The National School Boards Association (NSBA) provides a definition for the word policy which is helpful when attempting to separate the legislative responsibility of the board from the executive responsibilities of professional administrators. The NSBA defines policy this way:

When we speak about school board policy we speak about the power to set directions for the school system, to bring about prudent action by the administration, the staff, and the board itself.

A soundly constructed policy will...tell the administration enough so that it can get working on the task in accordance with the board's wishes...

Another definition is that a policy approved by the board describes what should be done while implementation procedures, designed and carried out by administrators, describe how tasks will be carried out.

Board policy describes a broad statement of intent. It should leave implementation details to the school administration. As you become familiar with your policies, you will see some that are more detailed in terms of procedure than others. The policies on harassment, for example, list specific procedures to be followed in handling a potential harassment case. When policies are so specific, it is usually because the law requires or encourages specificity.

Developing and maintaining a policy manual is time-consuming work. It requires vigilance on the part of both administrators and board members. There are compelling reasons for taking the time to develop policy, however, and the NSBA again counsels local boards to keep those reasons in mind.

Just as laws of legislatures must be in writing, the policies and regulations (procedures) of a school board should be in writing. State legislatures and the public demand it, and courts take boards to task when they attempt to enforce measures that have not been written down and made known.

Five Practical Reasons for Attending to Policy

  1. Written policies foster stability and continuity. School board members come and go; staff people leave, retire, or are separated. But policy endures. A policy book, containing current policies and procedures, permits smooth transitions and continuity of leadership decisions when change takes place.

  2. Written policies available in an organized collection keep people informed about the board's goals and its position on major educational and operational issues. When any public body operates in the sunshine of full disclosure there can be no charges of secrecy. Accountability becomes reality.

  3. Written policies and procedures clarify board-superintendent relations. When the board gives the superintendent the authority he or she needs to effectively utilize staff skills, the superintendent can administer the school system and maintain a focus on increasing student achievement.

  4. Written policies and procedures save time and effort for administrators. When problems arise the administrator does not have to go to the board each time for a decision. Board direction is provided through policy statements.

  5. Written policies save time and effort for the board. Where policy and procedures exist, there need not be long board discussion on details of administration--that's the administration’s job. There need not be a rerun of arguments on a problem that has been settled before. We enacted a policy and reviewed procedures relating to that issue last year is all that needs to be said to end the discussion and to move on to the next order of business.

The Policy Development Process

Policy is developed by a school board in consultation with the administration and those most directly affected by the policy in question. Board policy will usually be a fairly broad statement of intent. It should leave the administrative details to the people most qualified to carry out the board's intent: the school administration. The board should reach agreement on the substantive policy issues before preparing or reviewing a draft. This will ensure the integrity of the policy development process. It is never good practice for a board to accept a written policy without having a thorough discussion of the issues behind that policy.

In addition, Vermont law requires that any policy be adopted at a regularly scheduled school board meeting, after public notice of the board's intent to do so, stating the substance of the proposed regulations, at least ten days prior to the board's consideration of the regulations. [16 V.S.A. §563]

Boards are required to adopt policies in many areas by federal and state legislation. In addition, boards may want to consider other areas for policy development.

Recommended Process:

  1. Discuss the implications of each policy area
  2. Determine if a policy is in the best interest of the district
  3. Come to agreement on the broad values underlying each area
  4. Draft a policy statement that reflects those values
  5. Solicit input from the staff and community
  6. Finalize and adopt the policy
  7. Delegate to the administration the creation of procedures to carry out the policy statement

Guiding Questions when Developing Policy:

  1. What are the values we have in this area?
  2. What do we worry about?
  3. What are we currently doing?
  4. What are the outcomes we want to achieve?
  5. What do we need to know to make an informed decision?
  6. Whose input do we need?
  7. What risks are we exposing the district to?
  8. What are decisions for the board and at what point is the board comfortable delegating to the administration as procedure?

Administrative Procedures
(Rules & Regulations)

It is the role of the superintendent to develop administrative procedures for use when implementing each policy. Boards may “also approve or disapprove rules and regulations proposed by the principal or superintendent for the conduct and management of public schools...” (16 VSA section 563).

The VSBA recommends that each administrative procedure be copied on a different colored page and be included in the school manual with each respective policy.

The board’s role is to adopt policies. The administrations’ role is to develop, disseminate, and implement administrative procedures that describe how each policy will be implemented.

Posting all board policies and procedures on the school web site and including relevant policy and procedure language in teacher, staff, and student handbooks is an important communication strategy. Many school and community conflicts can be alleviated when individuals learn in advance how the board will make decisions on specific issues. However, it is essential that the board follow prescribed policies and support administrators as they make day to day decisions based on policies and procedures.

For Further Assistance

The VSBA publishes a model policy manual with examples of all required school board policies and others Vermont school boards may consider adopting. They are designed to be models only and should be tailored to meet local needs and values. The model policies may be viewed on the VSBA web site at www.vtvsba.org.

The VSBA also has an extensive library of sample policies from the National School Boards Association and some policies from other Vermont school districts.

The VSBA recommends that school boards fully review and adopt all existing and new policies every 3-5 years. In the five-year policy update cycle, this means review 1/5th of all current and new policies each year for five years.Then start the cycle over again. This process is more manageable when the board identifies specific policies to be reviewed at each monthly board meeting.

The VSBA offers policy review, development and alignment assistance. Contact the VSBA office for more information.

Summary of DVD Chapter Information

1.Vermont Education Law
16 V.S.A. 563(1) FOR LEGAL RESPONSIBILITY OF SCHOOL BOARDS

Title 16 §563. Powers of school boards; form of vote if budget exceeds benchmark and district spending is above average.

The school board of a school district, in addition to other duties and authority specifically assigned by law:

(1) Shall determine the educational policies of the school district. Board policies shall be of general application to the district, shall be in writing, codi­fied, and made available to the public. Board policies shall be adopted at regular or special school board meetings. A school board shall give public notice of its intent to adopt a board policy, stating the sub­stance of the proposed policy, at least ten days prior to its adoption. A school board may also approve or disapprove rules and regulations proposed by the principal or superintendent for the conduct and management of public schools in the district.

“POLICY” is a broad statement of goals, board expectations, assignment of responsibilities, plan for oversight. (Note: statutory definition “in writing, codified (indexed or coded), available to public)

“PROCEDURE” is an administrative statement as to implementation (how will the board’s direction be carried out

2.Examples
A. Professional Development (Policy D2 see appendix page A1)
  • States board commitment to professional development
  • Boards intent to focus professional development on student performance needs
  • Assigns superintendent to develop professional development program “characterized by 6 principles”
  • Directs superintendent to implement program (annual and multi-year) based on district action plans
  • Directs superintendent to report to board annually on implementation
B. Tobacco Prohibition (E8 see appendix page A4)
  • States board intent to follow state law prohibiting student possession or use of tobacco
  • Directs superintendent or designee to develop procedures
  • Defines necessary terms:
    • School grounds
    • School sponsored activities
    • Tobacco product
  • Tobacco procedures (E8-P see appendix page A5)
    • Answer implementation questions
      • How will notice to students and others be provided?
      • How will prohibition be enforced?
3. Policy Adoption
A. Development of policies often best done at Supervisory Union level. Best to have uniform policies throughout supervisory union—Though generally not required.

B.563(1) “Give public notice of intent..stating substance of proposed policy… at least 10 days prior to adoption

  • Adopt at regular or special school board meeting.

    C. Local board variations (Policy on policy adoption)

  • May provide for 2 or 3 “Readings”

    D. Public comment: “Reasonable opportunity to appear and express views in regard to any matter being considered…” 554(B)

    E. Legal review: only your lawyer can give you legal advice may be necessary to ensure compliance with legal requirements. Best to find lawyer familiar with school law

    • VSBA Model required and recommended policies on VSBA website (see appendix pages A6 for required and recommended policies)
    • VSBA Consultations
    • DOE Models (Harassment, e.g.)

    • 4. Policy Manual Maintenance
    A. Schedule regular review on 3 year cycle (example on appendix page A17)
    B. Likely to be lead by sub-committee
    C. Check for model updates on VSBA Website and the VSBA newsletter announcements
    D. Use indexing system (examples on appendix page A17) E. Be sure to pay attention to required policies (see appendix page A13)
    5. Policy Distribution
    A. 563(1)—“In writing, codified, made available to public”
    B. Have at:
    1. All board meetings
    2. In superintendent and school office
    3. On school website
    4. In employee and student handbooks
    6. Purpose of Policies
    A. Provide stability—as administrators and board members come and go
    B. Clarify board and administrative responsibilities
    C. Guide board action when controversy appears
    1. “Do we have a policy on this?”
    2. “Do we need a policy on this?”
    3. “Should we review our policy approach to this?”
    7. Following Policies
    A. Amendment process is same as adoption process
    B. Can’t “Waive” policies for individual circumstances—unless policy itself allows board discretion
    8. Policy Governance
    A. How is it difference from regular governance?
    B. How do we find out more information about policy governance?