Digital Commons @ Gardner-Webb University2010 Elementary Principals' Perspectives on Opening New Schools in a Large Urban School District Tammie Taylor Sexton Gardner-Webb University Fol
Introduction
According to the U.S Census Bureau, the southeastern United States has experienced explosive growth over the past two decades, a trend that has affected many school districts in areas such as finance and school construction This study examines the perspectives of four elementary principals who have recently opened new facilities in a large urban district in the southeastern United States and includes the documented procedures they followed The findings provide growing districts with practical information to better support principals charged with opening and integrating new school facilities, addressing both fiscal and logistical considerations These insights help district leaders plan more effectively for facility growth and improve outcomes for expanding urban school communities.
In a 1999 interview, Richard Riley, former United States Secretary of Education, stated:
Principal leadership is a central driver of educational change and improvement A strong principal creates a positive climate for teaching and learning, while an ineffective one can derail the progress of reform efforts In the coming years, schools will face a leadership crisis, and we will need more principals than ever before (Educational Research Service, 2000, p 1).
Hussar and Geralds (1996) projected that public school enrollment would rise from 46.3 million in 1997 to 48.1 million by 2010, a 4% increase overall, with regional variation: enrollment in the West was expected to grow the most at 11%, while the South would see a 5% increase This growth would lead to the opening of new schools and would present challenges for principals concerning efficiency and effectiveness.
Over the past 24 years, this large urban school district has experienced explosive growth From 1980 through 2000, the county’s population grew by more than 326,500, while the school system more than doubled in size during that 21-year period That same 21-year surge exceeds the total population added to the county from 1900 to 1980, which was 246,701 Today, the district operates 16 schools, including 102 elementary schools and 31 middle schools.
23 high schools, and 4 special/optional schools This school district is the 18th largest in the nation, with 139,599 students on the 20th day of the 2009-2010 school year
The demand for effective principals has outpaced the supply as new schools open in North Carolina More than half of the state's school administrators are 50 years old or older and have at least 25 years of experience, according to state education officials.
Carolina Executive Program survey given in 2005 These statistics state that half of the school administrators can retire within the next 3 to 5 years (Wake County Public School System [WCPSS], 2006)
As Jackson and Davis (2000) observed, the most consistent finding in educational research is that high-achieving schools are led by competent principals The principal’s duties include recruiting all staff and establishing a framework that cultivates a positive school culture, one that supports both strong academic outcomes and students’ emotional well-being for every learner.
Principals must make decisions across critical domains—budget, culture, curriculum, daily operations, external and internal politics, facilities, pupil personnel, safety, scheduling, staff, and technology Taken together, these areas form an integrated system of interdependent practices that shape the school's overall performance and direction As Jackson and Davis note, the interactions among these components create a unified whole that guides both strategic planning and everyday management (Jackson & Davis, 2000, p 27).
Most school principals inherit a preexisting organizational structure when they are assigned to a school, a pattern common among appointed leaders in public education, and these existing structures influence the school’s culture, routines, and decision-making (Danielson, 2002, p 45) When a principal is charged with opening a new school, they should acknowledge that certain aspects of the current organization will become part of the new school’s identity, shaping its direction from the outset (Danielson, 2002, p 45).
Over the past three years, a large urban school district in the southeastern United States has appointed 18 principals to open 18 new schools, with each leader bringing a unique history in education to guide the launch and early growth of the campus Since the 2005-2006 school year, these new campuses include 18 elementary schools, one alternative middle school, two middle schools, and seven high schools, all led by principals committed to nurturing environments where students and staff can grow and meet the demands of 21st-century learning.
Principals often have no experience opening newly constructed facilities, so they may encounter challenges like an inadequate budget, furniture delays, or cafeteria occupancy issues before the school year begins Documented lived experiences for principals—including procedures for opening a new school successfully—provide a starting point for what is expected and help guide planning, budgeting, and logistics to ensure a smooth opening.
Unprecedented growth is reshaping enrollment projections for the large urban school system studied New subdivisions and apartment communities are multiplying across the county, signaling growth in every part of the region No area has been immune to land rezoning as developers race to add to their portfolios.
Between 1990 and 2009, this large urban school district added more than 80,000 students, a pace expected to continue through 2020 In fall 2009, about 139,599 students were enrolled, and the district employed roughly 18,000 staff members As these numbers rise rapidly, they are presenting ongoing challenges to meet the district’s structural needs amid sustained growth.
New enrollment projections indicate that this public school system will gain about 94,000 students by 2020 The county planning department projects enrollment to exceed 234,000 by 2020, signaling sustained growth for the district and highlighting the need for long-range planning to accommodate the rising student population.
2008 was 6,000 students by the tenth day of school (WCPSS, 2006)
During the 2009-2010 academic year, the district operated 160 schools—102 elementary, 31 middle, 23 high, and 4 special/alternative schools Although many campuses were older, 43% of the schools had been built since 1990 That year’s calendar distribution showed variety: 52 schools operated on a year-round calendar, 101 on a traditional calendar, 5 on a modified calendar, and 1 followed a calendar aligned with the community college schedule.
Impact on Other Areas of School Function
School overcapacity is creating planning challenges for student lunch schedules, bathroom usage, and classroom space utilization At several county schools, lunch begins soon after students arrive and lasts for about three hours, complicating daily operations The school district is exploring several formats for locating and acquiring facilities to meet its growing needs.
1 “Early start” campuses (three modular campuses opened in 2005-2006, and one school opened in an empty wing of a new high school in 2006);
2 Renovating existing buildings to create space for schools (Winn Dixie, an office complex, and a sterilizer company building);
3 Mobile/modular classroom units (this district had more that 1,000 mobile/modular classrooms in 2005-2006 and added another 103 for 2006-2007);
Review of Literature
This study examines the perceptions of principals who recently opened new public elementary schools in a rapidly growing North Carolina district, with findings and recommendations designed to help principals and school districts build the support systems needed for leaders tasked with opening and operating new facilities The chapter reviews relevant literature and studies about the key considerations when opening new public school facilities, including managing enrollments, budgeting, shaping school culture, providing effective leadership, scheduling, staffing, and integrating technology For each area, the literature review defines the contributing factors and analyzes how they influence successful opening and ongoing school operations, offering guidance for districts aiming to improve support for principals overseeing new schools.
Each day more than 53.6 million students (National Center for Education
National Center for Education Statistics (2002) reports that more than 94,000 K-12 schools serve students who begin 13 years of schooling hoping to dramatically enhance their chances of success in the modern world These students arrive eager to grow academically and enjoy learning Marzano, Waters, and McNulty (2005) contend that whether a school operates effectively directly affects a student’s likelihood of success, with strong school performance raising outcomes and weak performance lowering them.
Leading schools is a complex task, and Leithwood and Riehl (2003) show that principals must receive focused training and development in four core areas: curriculum management, organizational structure management, financial and material resources management, and educators management (Mestry & Grobler, 2004) When opening new schools, principals confront a multifaceted responsibility to create an environment that supports effective schooling (Mestry & Grobler, 2004) These authors note that today there are broad demands and challenges facing principals, with the role shifting from traditional management and control to that of an educational leader who can foster staff development, parent involvement, community support, learner growth, and success in the face of major changes and expectations (Mestry & Grobler, 2004) Consequently, principals face a spectrum of demands, including navigating evolving expectations, sustaining stakeholder involvement, and ensuring resources are aligned to teaching and learning goals.
Creating a strong culture of teaching and learning and upholding high educational standards, while collaborating closely with parents, is essential; schools also need to address the needs of multicultural student populations, navigate change and conflict, operate under scarce resources, and strengthen accountability to the communities they serve (Mestry & Grobler, 2004, p 3).
School leadership comprises seven core functions—instructional leadership, cultural leadership, managerial leadership, human resources leadership, strategic leadership, external development leadership, and micro-political leadership (Sergiovanni, 2001, p 17) Depending on the context, principals may oversee all seven functions, while in other schools other administrators or teachers take on important roles across these areas.
Portin (2003) contends that all seven leadership areas are essential for schools to meet achievement goals The principal does not have to provide direct leadership in every area but should know who is responsible for doing so (Portin, Schneider, DeArmond, & Gundlach).
Across many schools, the seven leadership functions rest largely on the principal’s shoulders, especially in traditional public schools Even in institutions that practice distributive leadership, the principal must monitor each of the seven core leadership functions to ensure effective school leadership (Portin et al., 2003, p 3) Table 1 summarizes these seven common leadership functions in schools.
School Critical Leadership Functions and Actions
Instructional leadership Ensuring the quality of instruction, modeling teaching practice, supervising curriculum, and ensuring the quality of teaching resources
Cultural leadership Tending to the symbolic resources of the school
(e.g., its traditions, climate and history)
Managerial leadership Tending to the operations of the school (e.g., its budget, schedule, facilities, safety and security, and transportation)
Human resource leadership Recruiting, hiring, firing, inducting, and mentoring teachers and administrators; developing leadership capacity and professional development opportunities
Strategic leadership Promoting a vision, mission, and goals, and developing a means to reach them
External development leadership Representing the school in the community, developing capital, public relations, recruiting students, buffering and mediating external interests, and advocating for the school’s interests
Micro-political leadership Buffering and mediating internal interests, maximizing resources (financial and human)
Shared leadership is more prevalent in private and some entrepreneurial schools than in traditional public schools, where leadership structures are often determined outside the school Portin et al (2003) found that differences in governance structures influence the degree to which adults within the school share leadership responsibilities, and that governance also affects the level at which a principal can act in each of the seven leadership areas.
Christina Goennier's 2006 study explored the critical tasks involved in opening a new middle school and established a timeline for completing them, showing that principals must make decisions across budget, culture, curriculum, daily operations, external politics, internal politics, facilities, pupil and personnel safety, scheduling, staffing, technology, and other areas identified by experts The study selected 12 principals who had opened new middle schools in the five years prior and field-tested the online survey instruments with two principals, one assistant principal, one deputy superintendent, one superintendent, and one outside reader to ensure reliability A research team consisting of one doctoral student and one reader processed each survey item to extract themes in each area, and Goennier noted that themes from the first survey helped develop the second survey's questions, while themes from the second informed the third.
Three rounds of surveys were completed by panelists, with the research team analyzing each round before the next one began In Round 1, participants identified the major task categories In Round 2, they ranked the importance of each task within the 13 categories In Round 3, they determined the appropriate timing for performing each task relative to the first day of school This iterative approach provides a clear prioritization of tasks and a scheduling framework aligned with the school start date.
Goennier (2006) identified a comprehensive set of essential tasks for principals assigned to open new middle schools The framework covers budget, culture, curriculum, daily operations, facilities, and technology, along with pupil and personnel safety, scheduling, and staffing, as well as external and internal politics The study notes that six additional areas are included within this list of key tasks for launching new schools.
Enrollment in public elementary and secondary schools rose 22% from 1985 through 2008 The fastest public school growth was in elementary grades
(prekindergarten through Grade 8), where enrollment rose 24% over this period, from 27 million to 33.3 million (Snyder, Tan, & Hoffman, 2006) The National Center for
Education Statistics forecasts record growth in total elementary and secondary enrollments through 2014 as the school-age population continues to rise Public elementary school enrollment is expected to increase by about 6% by fall 2014 (Snyder et al., 2006).
According to Hussar and Bailey (2007), the total number of elementary schools starting in Grade 6 or earlier increased by 10%, reaching more than 65,000 facilities The southern region is projected to grow by 17%, while North Carolina is expected to see an 18.3% rise in elementary and secondary school enrollment by 2014 Across the period, increases are anticipated in more than 40 states If these projections hold, North Carolina would rank eighth in growth for public school elementary and secondary enrollment.
A school budget is a planning document that links programmatic decisions to revenue and expenditures, outlining how funds are allocated to sustain the school’s operations Building administrators oversee key areas such as personnel (certified staff and paraprofessionals), library resources, textbooks, instructional materials, and technology The principal’s budgeting choices shape spending patterns and reveal the priorities or vision guiding the school, whether those aims are clearly stated or not.
When opening a new school, principals have to manage budgets from the federal, state, and local governments The three types of federal dollars given to school districts are categorical aid, block grants, and general aid Odden (2004) defined categorical aid as grant provided to school districts for a specific reason or purpose, and often come with strict application, use, and reporting requirements Block grants are sums of money granted to a district, which cover a multitude of categories for which the money can be expended General federal aid is a sum of money granted to a school district for educational programs as determined by local authorities with established guidelines (Odden, 2004)
Methodology
The purpose of this study was to examine in detail the perspectives of four elementary principals who had recently gone through the process of opening new year- round elementary school facilities in a large urban school district in the southeastern United States In particular, the study examined and documented the procedures that the principals used in opening each school, as well as making the school itself operational The study examined what procedures the principal had to undertake in order to open up the building as a physical plant, how he or she conducted the hiring of the faculty, how the school climate for the new school was created, and how the principal was able to get the school operating smoothly over the course of the first year From this study, the researcher aimed to document the principals’ experiences involved in opening new elementary schools
1 What challenges/pitfalls does a principal face when opening a new school?
2 What information from research will enable a principal to succeed in the tasks of opening a new school facility?
3 What advice do principals give about successfully opening new schools?
4 What leadership style is most desirable when opening a new school?
This qualitative replication study employs a bounded case-study design based on a prior study completed by Dr Marty Powers The qualitative research methodology was chosen for its descriptive strength, enabling the effective capture of the phenomena, issues, and processes to be explored, and the direct experiences of those who lived through them (Creswell, 2002, p 146).
A bounded system is defined as a case selected for study that has boundaries—often defined by time and place— and comprises interrelated parts that form a whole Therefore, the proper case to study is both bounded and a system (p 249).
This descriptive, qualitative case study examined the skills and knowledge needed to open a new elementary public school facility Four principals were interviewed at their school sites (Appendix B), using interview questions adapted from Dr Powers (Appendix C) The interviews, conducted by the researcher on-site, were audio-taped and transcribed, with each transcript verified by the respective principal before analysis The study presents a case summary of the optimal procedures and leadership requirements to assist any principal in the startup of a new school in the coming years.
Creswell (1998) defined the qualitative method:
Understanding as an inquiry process rests on distinct methodological traditions that explore social or human problems The researcher builds a complex, holistic picture by analyzing language, reporting richly detailed perspectives from informants, and conducting the study in natural settings.
How the researcher participates in the research process is a key part of the study
Quantitative research aims to remain objective and detached to minimize bias, while qualitative research involves the researcher’s active participation and sharing of thoughts and ideas (Creswell, 2003) In qualitative studies, the researcher is the primary instrument that guides data collection and interpretation, whereas quantitative research relies on formal instruments such as surveys and questionnaires to gather data.
Four principals were interviewed in a study conducted in a large southeastern urban school district; they were randomly selected and had all participated in opening and launching a new elementary school within the last five years A 'new elementary school' is defined here as a prekindergarten–through–fifth-grade campus established due to growth in student population The study's findings are limited by the small sample size of just four principals, and to achieve a more consistent sample, the research excluded alternative and charter schools.
Following the school district’s approval of the research study application (Appendix D), the interview questions were distributed to participants and a personal, in-depth interview was conducted by the researcher The interviews built an inventory of the issues a principal must know and act on to open a new school facility successfully Topics examined included staffing, curriculum, facilities readiness, school climate and culture, school demographics, and the demographics of the school’s principals The findings analyzed how these interrelated factors influence the launch and early operation of a new school.
Following Seidman (1998), data analysis was conducted only after all interviews were completed The researcher read each interview transcript, then reread and annotated key ideas and themes Transcripts were organized into case studies, with efforts to identify connecting threads and patterns that could be represented as themes and patterns The key ideas and themes were displayed in tables in Chapter 4.
Confidentiality of Participants and Data
Participant identities were kept confidential in the published study, with all references to schools, locations, or individual people anonymized to protect privacy Informed consent was obtained from every participant, with consent forms distributed and returned signed before participation To further safeguard confidentiality, any identifying details about schools, locations, or individuals were modified accordingly in the reporting.
Using a case study-based approach, this research provides a subjective interpretation of data gathered from interviewees about their experiences It examines the perceived practices of principals opening new schools in a large urban school district and compares these practices with Powers’s (2007) study of principals opening new schools.
In California, a study examined four principals’ perspectives on the procedures, practices, and leadership skills that most supported them in the start-up of new schools The results contribute to the existing literature on principals opening new facilities by highlighting practical strategies, leadership competencies, and governance approaches essential to successful school startup initiatives.
Chapter 3 presents the study’s methodology, restating the research purpose and research questions, detailing the qualitative research design, describing the study population and confidentiality measures, and addressing the study’s limitations; the data analysis process is discussed further in Chapter 4.
Presentation and Analysis of Data
This chapter provides a structured data presentation and review, beginning with background and conceptual information illustrated through case studies, and followed by a cross-analysis of the research questions.
Each interviewee is analyzed through a dedicated case study For the remainder of the text, the principals are referred to by the order in which they were interviewed—PP1 for the first principal and ES1 for his elementary school The researcher recorded the principals’ responses to the interview questions and observed leadership traits on their campuses, integrating interview data with on-site observations to illuminate how leadership manifests in school settings.
PP1 became the principal of Elementary School 1 (ES1) in 2009 and holds a doctoral degree With 14 years in education, PP1 has experience as a high school teacher for 3 years, an assistant principal for 4 years, and has served as a principal for several years, demonstrating leadership in elementary education.
7 years in elementary schools PP1 also worked in the private sector before becoming an educator
PP1 typically arrives at school by 7:30 a.m., eats lunch between 11:30 a.m and 1:00 p.m., and leaves by 5:00 p.m each day In late November 2008, PP1 interviewed with his area superintendent.
December 2008, and received school board approval the middle of January 2009 He
He officially began his duties on February 9, 2009, giving him six months to plan and prepare before the start of the new school year for students and staff PP1 did not receive any orientation to the school community from any source, but he was familiar with the community, having worked there for several years.
PP1 began staffing by hiring his lead secretary, then brought on an Instruction Resource Teacher (IRT) and other teachers to fill leadership roles across grade levels; from this core group, over 100 applicants were interviewed for teaching positions During the 2009-2010 school year, a budget shortfall and hiring freezes limited PP1 to interviewing only teachers and support personnel on continuing contracts in the county, though human resources granted special permission to hire special education and ESL teachers before other schools received that privilege PP1 was allowed to interview candidates with terminating contracts as well as those who were outside the district prior to the lifting of the ban for existing principals that year Jobs were posted on the district website, resumes gathered, applications reviewed, and interviews conducted; teachers were hired from 27 district schools In the first year, only a few beginning teachers were hired, and grade-level assignments were determined by the principal with the help of the core team, which typically entered interviews with a specific grade level in mind.
In July, the school staff consisted of 42 teachers, of whom 18 held master's degrees and none had doctoral degrees The age demographics among these teachers were: 18 were aged 21-29, 14 were aged 30-39, six were aged 40-49, and four were over 50.
The school serves prekindergarten through fifth grade and 33% of its students qualify for free or reduced-price breakfast and lunch Demographically, the student body is about 63% White, 19% Hispanic, 13% Black, 4% Multiracial, and Asian and American Indian each under 1% About 87–90% of students come from seven feeder schools affected by redistricting, with roughly 10% being new enrollees to the district Home values in the area range from $150,000 to $500,000, and while most families are middle class, some live in subsidized housing or are homeless The school sits on 28 acres in a rural-to-suburban area of the county, with part of the land shared with the town for soccer fields and an adjacent horse farm bordering the property.
During the spring of 2009, PP1 collaborated with the county and state to charter a PTA for the school, inviting parents to an organizational meeting that drew about 100 attendees A participatory election process was established to ensure every parent had a chance to participate, and officers were selected in accordance with the by-laws of both the county and state organizations The PTA president elected came from one of the district’s feeder schools, while the remaining officers were chosen from other feeder schools.
Opening the school proved challenging because the building was functioning as a swing space for another elementary school while its site was renovated With the space already in use, there were only a few punch-list items left for PP1 to address before the new year began PP1 had to coordinate with the occupying school, which operates on a traditional calendar, to vacate the space and move ES1 in within a two-week window Furniture and instructional supplies needed to be moved, and touch-up painting, as well as stripping and waxing the floors, had to be completed in a tight timeframe PP1 felt fortunate that the building had already hosted students the previous year, so a separate certificate of occupancy was not required A Meet-the-Teacher/Open House was held in mid-June to allow families to tour the building before the year-round school opened on July 7, 2009.
PP1 described last year’s budget crisis as a major roadblock, with nearly $60,000 earmarked for staff development and new-school training pulled from start-up funds The plan for continuous development around core principles collapsed, forcing him to limit trainers to those already within the district and to scale back hiring opportunities The hiring cap affected three newly opened campuses, which received a reduced staff allotment, with initial authorization limited to 80% of his total staff, later raised to 95% Additionally, PP1 could only interview transfer candidates within the district, a constraint that turned into an advantage since the new schools secured first selection from the transfer pool before existing schools could interview He also noted another obstacle: the assistant principal could not be hired until the week before school started due to ongoing budget cuts and hiring freezes.
Opening the new school, PP1 recognizes that some staffing decisions should be reconsidered Since classes began, and he has watched staff collaborate in practice, he would likely reassign a few people to different grade levels There are a couple of personnel choices he would not make again, or would handle differently if given another opportunity.
A single staff member stood out for providing the most assistance during ES1’s opening, working with the Curriculum and Instruction division while helping every aspect of the launch—especially tracking bond money and ordering textbooks and other instructional materials This person also organized monthly meetings with departments such as media services, curriculum/instruction, and the arts to inform decisions and help select appropriate books, instructional materials, and instruments They coordinated the move between the two schools and the delivery of furniture and instructional supplies to each site, while school personnel arranged classrooms and stocked the supply room once materials arrived PP1 noted that the lead secretary and the instructional resource teacher (IRT) were instrumental in planning and opening the new school after they were released from their previous assignments.
Central Services delivered solid support throughout the project, with PP1 engaging with facilities services less than is typical when opening a new school He worked with a project manager to complete the 1-year warranty walk-throughs together The instructional departments provided essential input on K–5 instructional materials and supplies Central Services offered the needed support and responded quickly to emails as they came in.
Establishing a school-wide system of beliefs was the most successful implementation, guiding every member's actions These core principles, along with the Positive Behavior Support (PBS) framework, set high expectations for teachers, students, and parents The guiding tenets provided the throughline from Professional Learning Teams (PLTs) to data collection, ensuring coherence and accountability across instructional practices The newly introduced reading program and math program have also thrived because all stakeholders agreed to support both instructional initiatives.