Presentation of the paper:

Cypriot Primary School Headteachers’ Perceptions about the Delegation of School Finance

Theodoros Costa Theodorou(MA in Educational Leadership and Innovation)

theodorou_theodoros@yahoo.com

About the study

The study was conducted in 2005 as part of the requirements for the award of MA in Educational Leadership and Innovation at Warwick University.

It is about decentralisation through the delegation of financial decisions closer to schools.

By being the first study of its kind in Cyprus it provides with an original view into financial decentralisation through the views of 7 primary school headteachers who are interviewed.

Course of presentation

1. Introduction to the terms ‘decentralisation’ and ‘financial delegation’.

2. Presentation of the English school management model as a reference point of extensive delegation.

3. Brief presentation of the Cypriot context.4. Information about methodology.5. Presentation of results.6. Discussion of findings.7. Conclusions

1. Decentralisation - delegation

In education decentralisation is described as “a repositioning of power from higher (the center) to lower (the school) authorities in relation to curriculum, budget and resource allocation, staff and students, and in some instances assessment” (Abu-Duhou 1999:17).

It has been identified as one of the mega trends of the last two decades and a growing number of countries globally are implementing it.

1. Decentralisation - delegation

Delegation is an extensive approach to decentralisation which describes transfers of managerial responsibility which end to be only indirectly controlled by the central government.

The rational behind financial delegation is that decision-making near the point of delivery of service will closely reflect the needs and priorities of the students and the school community (Newcombe et al., 1997).

1. Decentralisation - delegation

As a result of delegation evaluation becomes vital, especially for the central authority, which needs to know the results autonomous management of finance produces.

The curriculum and the learning outputs which schools must provide often get standardised, in order for the efficiency and effectiveness of individual schools to become easier to judge.

2. The English model

The most important reform effort was made with the Education Acts of 1988 and 1992, which included parallel processes of centralisation and decentralisation.

At present, schools control costs of teaching and non teaching staff; heating, cleaning, decorating and altering of premises; supplies, services, books and equipment; training or other services as well as the use of any income they can raise (Creissen and Ellison, 1998).

2. The English model

The role of headteachers has become even more critical to school success and there have been both positive and negative headteachers’ reactions to the significant changes brought in their role and duties.

Although it is not clear whether financial delegation has been welcomed or not, what is clear is that headteachers need to get relevant training in order to cope with their new responsibilities.

2. The English model

Delegation of budgets has caused both desirable and undesirable results.

Among the disadvantages are the decrease of time spent on instructional leadership; the creation of an overly competitive environment; and the tendency of schools to compromise quality with cost.

The satisfaction of schools’ most immediate needs; the flexibility and speed of management; the motivation of staff; and economy are some of the advantages reported.

3. The Cypriot context

Education in Cyprus has suffered a severe blow as a result of the illegal Turkish invasion and the continuing occupation of 1/3 of the island since 1974.

The reference to Cypriot schools only includes the schools on the free part, which are under the administration of the Ministry of Education and Culture (MOEC).

3. The Cypriot context

The Ministry of Education and the Educational Service Commission are the two authorities appointed by the state to decide on almost everything in relation to schools (syllabi; curricula and textbooks; preparation of legislation; financing; appointments; transfers; promotions etc).

Local School Boards are transitional agents between central authority and schools and act as financial managers.

3. The Cypriot context

Altogether, the educational system is highly centralized and there have been many criticisms of this centralisation.

The MOEC has included the restructuring of the education system as a primary goal.

With Cyprus on the verge of decentralising its education this is the first study investigating financial delegation and it intends to contribute towards the commencement of relevant discussion.

4. Methodology

The research objectives were to investigate the perceptions of headteachers regarding:

I. The advantages and disadvantages of the Cypriot system of financial management.

II. The financial decisions that should or should not be further delegated and why.

III. Some accompanying changes that come along with financial delegation.

IV. Systems with extended financial delegation (i.e. English system).

4. Methodology

Data were gathered through semi-structured interviews.

Each category of questions was designed to meet one of the objectives.

As a whole the schedule revolved around the opinions of headteachers about school budgets and delegation.

4. Methodology

The interview transcripts were given back to the headteachers to verify their accuracy.

A Word processor was used to group text with each analytical category which was aligned to one of the research objectives.

The summaries of themes were compared and combined together for an overall view of what all headteachers had said could be acquired.

5. Results

I. The current system of financial management is described as centralised. Headteachers have almost nothing to do with budgets and the managing of money.

Disadvantages of the system: Money can not be used where and when

needed. Time delays, lengthy procedures and

bureaucracy. Heads spent too much time and effort to

have something done.

I. The current system of financial management

5. Results

Disadvantages of the system: Headteachers are discouraged from being

active leaders of their schools.

Advantages of the system: Schools are relieved from an important

workload. Headteachers are left with time to devote to

their ‘educational work’. Every school is controlled on how and where it

spends public money.

I. The current system of financial management

5. Results

Category of need H1 H2 H3 H4 H5 H6 H7

Purchase of educational means D D D D* D D D

Purchase of equipment D D D D* D D D

Purchase of services D D D* D D D

Expansion of premises N N* N* N* N* N* N

Maintenance of premises D D D D* N* D* D

Teacher payment N N N N N N N

Teacher selection/ appointment N N* N* N* N N N*

II. Decisions which should or should not be further delegated

D= Delegated D, N= Not mentioned by name, impliedN*= Not delegated but the headteacher gets to have a say N= Not delegatedD*= Delegated only for small buys or when the need is urgent

II. Decisions which should or should not be delegated

5. Results

As the table shows the headteachers want decisions concerning the purchase of educational aid means, equipment and services to be delegated to schools.

As far as school premises are concerned, all headteachers agree that major expenses, for big works like the expansion of buildings, must be managed centrally.

Teacher payment is the one and single area in which all headteachers do not want to have any say about, or be involved in any way.

II. Decisions which should or should not be delegated

5. Results

In so far as teacher selection and appointment is concerned most headteachers want the issue to be managed centrally with their opinion being high-weighted.

A system of financial management proposed by headteachers Dominant request: to be given the right to determine priorities, to manage some money (around ₤5000) and to be able to transfer the money from one budget heading to another.

II. Decisions which should or should not be delegated

5. Results

They propose a system of management somewhere in the middle of the current one and a system with extensive decentralisation.

They want each school to have more decision-making authority for matters related to its everyday operation.

In addition the headteachers would like to participate in central decision-making committees (for staff appointments and major premises works mainly) and to have the right to argue about, and justify, their suggestions.

II. Decisions which should or should not be delegated

5. Results

If the new scheme they propose is implemented, the headteachers believe that:

Schools’ needs would be directly and quickly addressed.

Schools’ levels of attainment would rise because the necessary conditions will be given for schools to do so.

Professional development would be enhanced through the purchase of training and re-education services.

II. Decisions which should or should not be delegated

5. Results

III. Delegation and accompanying changes. The headteachers commented on some changes delegation is likely to bring along.

Control and accountability through National Standards and Tests All the headteachers consider control, accountability and evaluation as necessary. National Standards and Tests are questioned as to their validity and achieved outcome.

III. Delegation and accompanying changes

5. Results

Movement towards more management and less teaching duties There is a unanimous agreement that the headteachers’ primary role is educational. They resent the idea of becoming only administrators.

Training in financial management All headteachers appear to appreciate the value of training and are willing to follow some if required.

III. Delegation and accompanying changes

5. Results

IV. Headteachers’ attitudes towards systems with extended financial delegation varied in this sample.

In spite of their differences in the liking of extensive delegation, they were all capable of pointing out some of their advantages and disadvantages.

In addition, it was commonly stated that extensive delegation in budgets can not be implemented in Cyprus in the near future.

IV. Systems with extended financial delegation

5. Results

Advantages of highly delegated systems Headteachers are empowered and become

the dominant figures on policy issues. Headteachers have flexibility in managing

the budget and they are supported by others. School needs are more likely to be better and

sooner met under heavy delegation. Schools can select the staff. Pupils are benefited because of increased

pressure to produce results.

IV. Systems with extended financial delegation

5. Results

Disadvantages of highly delegated systems

Headteachers are burdened with a significant workload and are responsible and accountable for schools’ outcomes.

Risks increase and the effect of failure is received directly by the school.

The introduction of market elements and standards in education; are in conflict with the collaborative spirit and the whole-person development that schools should establish

IV. Systems with extended financial delegation

6. Discussion

Headteachers’ appear ready to accept a new management system which will keep the advantages of the current one and eliminate its disadvantages.

Although the current system in Cyprus has many similarities to English prior the reforms, policymakers should not copy the changes that took place in England.

What should be sought is a ‘golden mean’, a system in the middle of the existing and the English one.

6. Discussion

All headteachers want to manage a relatively small fund of money to cover their schools’ contemporary needs, vive between budget headings and determine priorities.

None of them wants anything to do with teachers’ payment, but they do want to be able to request and justify the presence of certain staff members who would be considered as necessary for currying out their schools’ development plans.

The proposed management system scheme

6. Discussion

The headteachers seek to have a say in committees deciding about major premises works and have a decisive say in regard to premises maintenance.

It is encouraging that headteachers’ proposals are similar enough to indicate the existence of a pattern and support the suggestion that a long-scale Cyprus-wide study could find analogous results, leading to a generally accepted management system.

The proposed management system scheme

6. Discussion

It must be noted that headteachers do not want to lose their identity as educators. New schemes must find a balance between headteachers’ managerial and educational responsibilities.

Also, it is important that headteachers’ proposals for a careful design of the Standards as well as for the placing of the emphasis of Tests’ evaluation on value-added rather than comparative measurements are noted and considered by the government.

6. Discussion

Insofar as training is concerned, with heads expressing their willingness to follow training if delegation occurs, it only remains for a comprehensive course to be designed and implemented, preferably prior to the promotion to a headship post.

Training might prove a decisive factor for the success of any reform initiative and the government must invest in training to harvest in results.

7. Conclusions

It is acknowledged that the study has inherent limitations which do not allow for the construction of overbold claims.

The small size of the sample and its non-random selection are negatively affecting the generalisability of findings.

Moreover, the research’s perspective might be considered as narrow, since only headteachers’ opinions are researched upon.

7. Conclusions

Even though headteachers hold an important role within schools and their views should be valued, there are other important stakeholders whose opinions should be also asked for.

Before making final decisions, policy makers should examine the stance of parents, teachers, LSBs as well as Ministry employees, since they are all part of the current management system and should take part in any efforts to implement a new one.

7. Conclusions

The strength of the present study is that it offers an original view into headteachers’ perceptions about delegation of school finance and an initial basis for further research and discussion.

Being the first research attempt to investigate the grounds for future delegation in Cypriot schools it can be considered as a step towards introducing the theme of financial decentralisation as an educational debate.

7. Conclusions

What could prove worthwhile undertaking after the current study, is piloting the proposed system of delegated financial management in some Cypriot primary schools.

In that way, the system’s implementation in the actual school context would show whether the headteachers’ estimations about its positive impact would prove real or not.

7. Conclusions

The benefits of a successful pilot implementation would definitely outweigh the costs and the risks taken from such a trial.

Even if the management structure proposed proves to have the favourable affect that headteachers predict it is recognised that there are no guarantees for its Cyprus-wide introduction.

7. Conclusions

Reforms are usually based on research findings but their implementation is ultimately decided on political grounds.

Governments take additional factors into account before making any changes, with the economic cost often being one of them.

Sometimes research and pilot implementations are buried because the changes they propose are judged as overly expensive by politicians.

7. Conclusions

Moreover, before any innovative reforms are made to the educational management system it has to be proved that they will have a positive effect on pupils’ outcomes.

The improvement of attainment is essentially what is sought for and there might be no meaning in any kind of restructuring if learning is not benefited from it.