BOLMAN AND DEAL: REFRAMING ORGANIZATIONS 2

ABSTRACT
A frame is a coherent set of ideas forming a prism or lens that enables us to see and understand more clearly
what goes on from day to day (Bolman and Deal, 2008, p. 43). Individual frames are greatly impacted by prior
knowledge, experiences, past or present paradigms, etc. Bolman and Deal explain basic factors that make organizational
life complicated, ambiguous and unpredictable; discuss fallacies in managerial thinking; and spell out criteria for more
effective approaches to diagnosis and action (Bolman and Deal, 2008, p.x). Specifically, Bolman and Deal suggest
reframing organizations by viewing a situation or issue in at least four ways, or frames: The Structural Frame, The
Human Resource Frame, The Political Frame, and the Symbolic Frame. The issue of adopting, implementing, and
monitoring a pilot program for educator evaluations in Huron Valley Schools will be viewed and analyzed through
Bolman and Deals four organizational frames.
BACKGROUND
Huron Valley Schools is a school district located in Oakland County Michigan, which serves the communities of
Commerce Township, Highland Township, Milford, and White Lake. The district services just under 10,000 (9,995 in
2011-2012) students, spans roughly 107 square miles and is made up of fifteen schools, including three high schools,
three middle schools, and nine elementary schools. Socioeconomically, Huron Valley Schools report that approximately
24% of students receive free and reduced lunch.
Academically, Huron Valley Schools perennially perform at or above county and state averages on both the
MEAP and MME tests. In 2012, graduation rates for four year cohorts were 83.62%, with dropout rates at 5.96%.
Another 8.68% remaining students in the cohort were off-track, but continuing to work towards graduation. The
remaining 5% were working on other completers, such as a GED.
STRUCTURAL FRAME
In considering the adoption of an improved teacher evaluation tool specifically aimed at measuring
student growth, using the structural frame provides one the opportunity to analyze the different levels or
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chain of command to be considered in this process. Ultimately, the goal is to generate a model that is
collaboratively created, fair for all stakeholders, adheres to the primary function of providing a system that
uses professional practice and student growth to measure teacher efficacy, and in terms of professional
growth, serves as a light, not a hammer in supporting the continued professional development of Huron Valley
teachers.
Having been a teacher in the district for many years, and more recently a key stakeholder and parent,
reflecting on the structural frame of the Huron Valley School District, and more specifically, the social
architecture that governs the district is more amorphous than the districts organizational chart would
suggest.
The District Organizational Chart as provided from the Human Resource department, is rather typical in
that the vertical configuration includes the community, the School Board, the Superintendent, Deputy
Superintendent, Assistant Superintendent, Executive Director of Human Resources, etc. Like most school
districts, these tend to be the major players in large scale decision making process such as closing buildings,
adopting new standardized assessments, contract negotiations, etc. Not found on the chart, is the Huron
Valley Education Association. As one of twelve school districts in Michigan with a full-time release president,
the HVEA has traditionally been a key-stakeholder in many initiatives the district has either brought forth or
pulled away from. Some of these initiatives include the passage of a recent non-homestead millage, the
adoption of the NWEA MAP test, and the soon to be rolled out INSPIRE U initiative aimed at increasing
professional learning opportunities for staff as well as building leadership capacity at all levels. With recent
changes to legislation making teacher evaluations a prohibited subject of bargaining, developing and
adopting a new evaluation system could feasibly be done by one administrator, in one room with little to no
insight from any additional outside sources. In most districts (including Huron Valley Schools), however, this is
not the case. The past three years have seen a reimagining of Huron Valley Schools, with laser-like focus on
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relationship building, collaboration, and communication. As a low funded district, new leadership on all levels
recognizes that our greatest asset is each other human capital. Because of this change in culture, the
decision to engage in discussions (not bargain) for adopting a pilot evaluation program for the 2014-2015
school year began in 2012-2013 at the bargaining table, was overwhelmingly approved (ratified) in a recent
contract extension, was unanimously ratified with a 7-0 vote from the school board, and, at the behest of the
superintendent, is now in the process of being developed by an internal committee made up of the union
president, deputy superintendent, director of instructional services, and the executive director of human
resources.
In our district organizational chart is also a lateral structure that serves to provide clarity in oversight of
many of the middle management positions (principals, APs, supervisors, etc.). Peoples behaviors are often
remarkably untouched by commands, rules, and systems. Lateral techniques formal and informal meetings,
task forces, and committees pop up to fill that void (Bolman and Deal, 2008, p. 56). In Huron Valley, these
lateral forms are less formal and often sunset when task is complete. Although this structure offers more
collaboration, communication and specialization of skills, the process can often times be labourious, and
consuming, however, collaboratively developing the new evaluation system in a small committee or task force
allows input from district leadership at both the central office and labor levels. This will be crucial for the
overall buy-in from those most affected by the new system principals and those being evaluated. Greater
transparency in the areas of intent and rationale behind the new model, will lead to increased trust,
specifically from those being evaluated.
KEY RECOMMENDATIONS REGARDING STRUCTURAL FRAME
Upon completion of a draft of the evaluation system, significant time should be spent by leadership
(district and union) explaining the structure of the new system, and more importantly, the why behind the
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components of the system. Perhaps, and before final implementation, the model should first be introduced to
a broader group of stakeholders principals, associate principals, department chairs from all grade levels, and
possibly parent council leaders. Input should be considered from this larger group before ultimately deciding
on a final product to adopt for the 2014-2015 school year.
HUMAN RESOURCE FRAME
The human resource frame focuses on what people do to and for one another (Bolman and Deal, 2008,
p. 119). In thinking about and reflecting on the human resource frame, it is important to consider
interpersonal (one-on-one) relational dynamics, small group dynamics (grade levels or departments), larger
group dynamics (entire buildings), and finally the relational dynamics at a macro level (entire district).
In viewing Huron Valley Schools from the human resource frame, one must first understand what
makes the district unique from neighboring districts. Huron Valley Schools is a district that receives the least
amount of per pupil funding the state provides. In 2012-2013, that amount was roughly $6,986 per student.
For 2013-2014, a slight increase of roughly $32 per pupil put HVS just over $7,000 per pupil. When the state
allocation of per pupil funding was at its peak, we received roughly over $7,400 per pupil. Although, at that
time, Huron Valley Schools was still among the lowest in the state, the $400 per pupil difference meant more
flexibility in programming, class sizes, resources, and compensation for employees. Add to these numbers an
average decrease of roughly 100 students per year over the past four years, and our financial troubles are
magnified. In 2011, these extremely difficult financial conditions led to the ratification of a four year collective
bargaining agreement containing concessions that took salaries back to 2001-2002 levels. Simultaneous,
changes to health care and pension contributions brought many employees to the edge of a financial
precipice.

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Ironically, changes in district leadership, including Executive Director of Human Resources and
superintendent, as well as changes to union leadership, brought a much needed breath of fresh air to the
human element of the district. Understanding that our greatest asset as an organization truly is our people,
renewed focus on communication and relational trust served to inject optimism into a largely optimistically
depleted workforce. More time was spent with central office leaders and board members listening to
concerns of the rank and file employees. Direction was provided with the guidance of a moral compass as
much as a fiscal compass. Communication, honesty and trust between key communicators have become
commonplace. Unexpectedly, attacks aimed at public education specifically funding have served to
galvanize our district rather than polarize us.
Enter the issue of adopting an evaluation system with heavy emphasis on student growth as a major
contributor to teacher effectiveness ratings. Bolman and Deal suggest that human needs based on the
conditions or elements in a workplace allow people to survive and grow (p. 123). In education, and moreover
in Huron Valley Schools, the needs of belonging, self-actualization, and personal intrinsic rewards are often
nurtured by relationships with teacher and student or teacher and parent. Sadly, lack of satisfaction in the
workplace is commonly attributed to manager (principal)/teacher relationships. Too often, top down
mandates or directives are delivered in a way that lack focus, clarity, purpose, and coherence to the schools
mission, vision, values, and goals. Not surprisingly, in order for the implementation of a new evaluation model
to be successful this cannot be the case!
With the adoption of a new model, principals are provided an opportunity to begin anew their
professional relationships with their staff. Increased attention can be focused on the common goals of
teaching and learning. Professional growth opportunities can be recognized and addressed via PLCs and school
improvement, potentially building teacher leadership capacity. What cannot be allowed is for the new
evaluation model to be used to undermine a system intended to support teacher growth, not affect
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employability through effectiveness ratings. Considering the delicacy and potential volatility of teacher
evaluations, if not done carefully, thoughtfully, and in good conscience, previous years of the trust and
relationship building could be undone rather quickly.
KEY RECOMMENDATIONS REGARDING THE HUMAN RESOURCE FRAME
The district must spend ample time training administration on how to use the new model. It would be
wise to include either department chairs or union representatives to be simultaneously trained. Clarity and
communication of purpose and practice must be well defined and consistent from building to building. Prior to
district wide implementation, a focus group of highly effective teachers could be used as hold harmless
participants in the model. Pitfalls as well as highlights of the model must be openly addressed, allowing for
changes in the tool prior to district wide implementation.
Lastly, the district and the union should be in unison in communicating a message that identifies key
talking points, specifically that the direction the state ultimately takes will greatly impact the districts
evaluation model moving forward. Most importantly, both parties mutually agree that it is in the best interest
of the employees (administration and teachers), students, and parents that we do our best to prepare our
instructional staff for a system that will undoubtedly include student growth as a major factor in determining
teacher effectiveness ratings. Continual collaboration will be essential to ensuring a smooth transition from
the prior evaluation model to the new.
POLITICAL FRAME
Bolman and Deal (2008) suggest that, viewed from the political frame, politics is the realistic process of
making decisions and allocating resources in a context of scarcity and divergent interests (p. 190). In the arena
of public education, most, if not all decisions are fraught with political agendas and special interests, and too
often hyperbole and chicanery. At the federal, state and local levels, funding invariably takes center stage. Pro-
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education lobbyists and politicians often advocate for more resources both capital and human. Conversely,
those concerned with cutting budgets and providing tax relief argue that the government overspends on
education and, if educators and administrators could be more effective and efficient, more could be done with
less. This continual tension has led the battle to preserve and improve public education to a proverbial tipping
point. Extreme politicians have moved forward agenda-driven policies that receive very little bi-partisan
support. As resources become scarcer than ever, accountability standards reformists ramp up their pressure
on educators to do better; to improve test scores at all levels and ensure that, upon graduation, all students
are college or career ready. Add to these increased pressures, high stakes standardized tests scores that
greatly influence educators effectiveness ratings, and potentially, future employability, and the stresses of
being an educator in this current political arena become greater than ever before.
In considering the issue of adopting a fair, feasible, transparent teacher evaluation, its imperative to
take a long hard look at decisions and possible ramifications from the political frame. Because the state has
made teacher evaluations a prohibited subject of bargaining, the school district, in essence has carte blanche
in choosing a system to adopt. Although this is potentially the easiest path to choose, the district must be
aware of the potential damage that this decision could do to the inter and inner working relationship between
the union and the district. Beyond that, it makes sense to include union leadership in the discussion, as many
of our educators are instructional leaders and have valuable input that can make for a better, more reliable
system. Digging deeper than the actual adoption of the plan, it is more important to look at this decision
through a moral lens. The potential for developing an evaluation system that is misused (intentionally or
unintentionally) weighs heavy on both teachers and administrators. Huron Valley, more now than in years
past, prides itself on treating people fairly and ethically, and has worked to create a community of trust and
openness. In short, the current leadership is guided by a strong moral compass that has helped to lead us

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through some of the most troubling financial times in decades. This ethical approach to leadership has
galvanized major political factions of our district (parent groups, administration, school board, and union).
KEY RECOMMENDATIONS REGARDING THE POLITICAL FRAME
The instructional leadership of Huron Valley schools should work collaboratively with teacher union
representatives and building administrators to develop an evaluation system that serves to promote
professional growth across all levels. While too often, differing political factions have divergent interests, for
this decision, the interest to produce a fair, feasible, transparent evaluation system is universally accepted by
all parties. A commonly agreed upon charge should be developed by the group. The charge should continue
to support the current ethical and moral values the district and union have worked hard to establish:
openness, fairness, respect, honesty, and communication
Prior to the implementation of the pilot system, training should be provided to administrators.
Feedback and communication throughout the year should be fruitful and frequent. The district, the school
board, the community, and the union share a common desire to support the professional growth of our
teachers, translating to increased student achievement district wide. Data collected from teacher evaluations
should be used for this purpose.
SYMBOLIC FRAME
If you were to ask a current retiree of Huron Valley Schools to reflect on the brand Huron Valley
Schools and share what comes to mind, youd likely hear a story that resembles the theme from the childrens
storybook The Little Engine that Could. Huron Valley Schools are, and have always been one of the lowest
funded districts in the state. As our small community became somewhat of a boomtown in the mid to late
1990s, Proposal A did very little to make our funding comparable to neighboring districts in Oakland County.
Still, HVS has always scored at or above state and county averages on state standardized tests.
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Being a vast district (107 sq. miles), we have always maintained the feel of a small district. Each year
we have an Opening Day celebration aimed at inspiring our teachers and showing gratitude for the good work
we all do as a unit. Employees can be seen spending time outside of school with one another. Buildings gather
for after school holiday celebrations, inviting coworkers from all departments. The district and the community
come together for a yearly MLK day parade. In short, one would say Huron Valley is all about the people the
children, parents, staff, and community. This rich history of inclusivity, as well as the familial nature of
relationships in HVS should be considered when adopting a new teacher evaluation system.
KEY RECOMMENDATIONS REGARDING THE SYMBOLIC FRAME
In developing the district evaluation model, it is important the district continue the tradition of hands-
on value driven decision making. In continuing the themes of positive relations and celebration, it will be
important that the pilot is touted as a collective victory in collaboration. Focus should be given to the fairness
and transparency of the plan and how the system maintains the integrity of whats at the core of how we
operate as a district relational trust. Symbolically, it would be wise that both union and district leadership
present the plan to the School Board.
CLOSING
In closing, beyond the year of the pilot program, it will be crucial for Huron Valley Schools to adhere to
the basic principles that for years, have been symbolic of the district. A constant reference in all frames is the
recognition of Huron Valleys most valuable resource - the people. As resources grow scarcer and pressures
from external sources mount, educators will undoubtedly need continued support from coworkers and
administrators, parents, and the community. If evaluations are not performed with fidelity and integrity, but
instead are used as a means to place less effective teachers on lay-off, or worse to terminate, without giving

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them the time, effort, and support, needed to improve, our entire district - students, educators, and
ultimately the community - will suffer.
















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REFERENCES
Bolman, L., and Deal, T. reframing Organizations: Artistry, Choice, and Leadership. San Francisco, CA. : Josey-
Bass, 2008.
























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REFRAMING ORGANIZATIONS: BOLMAN AND DEAL
Josh Gignac
EA 740