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Building trust among educational stakeholders through Participatory School Administration, Leadership and Management
Diosdado M. San Antonio and David T. Gamage Management in Education 2007 21: 15 DOI: 10.1177/0892020607073406 The online version of this article can be found at: http://mie.sagepub.com/content/21/1/15

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Management in Education Copyright 2007 British Educational Leadership, Management & Administration Society (BELMAS), Vol. 21(1): 1522. DOI: 10.1177/0892020607073406 www.sagepublications.com

Building trust among educational stakeholders through Participatory School Administration, Leadership and Management
Diosdado M. San Antonio and David T. Gamage
University of Newcastle, Australia

Participatory School Administration, Leadership and Management (PSALM) and fostering of trust in schools
ost educators and researchers constantly explore ways of producing better educational outcomes. Among these worldwide trends deserving sustained attention among researchers in the field of educational administrating, leadership and management are: the advent of decentralisation with school councils being involved in the administration and management of schools (Anderson, 1998; Chan and Chui, 1997; Walker and Dimmock, 2000) and the acknowledged value of trust in the quest for higher school performance (Blase and Blase, 2001; Bryk and Rollow, 1992; Tschannen-Moran, 2001). This article attempts to contribute to the quest for

better understanding of these concepts by establishing empirical support for the link between PSALM and the trust levels of stakeholders. PSALM, as used in this paper, refers to the stakeholders being involved in the management of schools through their membership in the advisory school council (ASC). The trend allowing stakeholders to participate in managing and leading the schools is underpinned by the theory of democratic school leadership. This theory, tracing its roots from Dewey (1916), is primarily concerned with cultivating an environment that supports participation and sharing of ideas (Starrat, 2001). In a democratic school the environment is characterised by a democratic way of life, a democratic process of learning, a democratic participation in the life of the community of the school (Starrat, 2004: 729).

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Providing opportunities for greater participation among the stakeholders in the affairs of the school is a practice that responds to what has been established as one of the important characteristics of high performing schools the existence of actively involved school constituents in the task of improving the school (Cheng and Cheung, 2003; Creemers, 1994; Edmonds, 1979; Marzano, 2003; Purkey and Smith, 1983). The literature likewise stresses the idea that building trust among the constituents of the school community leads to salutary results. To stress the value of trust in schools, Blase and Blase (2001) assert that a trusting environment yields immeasurable dividends. People are able to work harmoniously in dealing with problems when trust exists (Blase and Blase, 2001; Zand, 1972). Siegall and Worth (2001) report that faculty members produce better outcomes when there is greater trust in the administration. Hargreaves (2001) argues that the establishment of strong networks and collaborative relations among the stakeholders is easier in a school rich in social capital. As Coleman (1988) notes, a group within which there is extensive trust is able to accomplish much more than a comparable group without trustworthiness and trust (101). In the Philippines, the Department of Education (DepED) administers the schooling needs of more than 17 million students in the public schools 37,000 elementary and 4,769 secondary schools. DepED has 17 regional offices headed by directors, serving 185 schools divisions managed by school councils in the public schools. The version of schoolbased management (SBM) existing in schools is anchored on an empowered school head. However, an encouraging new development towards the large-scale implementation of SBM with stakeholder participation has been enunciated by the newly installed Secretary of Education Jesli Lapus who stressed that implementing SBM is one of the approaches he will introduce to improve schools (MartinezClemente, 2006). In the context of the foregoing developments, the study attempted to determine the impact of implementing PSALM on the levels of trust among the ASC members in Philippine public secondary schools. Specific research objectives were: to compare the stakeholders from the experimental and control groups in terms of students academic achievement and their levels of trust before and after the experiment; to evaluate the effectiveness of implementing PSALM in the public secondary schools in the Philippines; and to examine the factors that affect the effective implementation of PSALM.

Methodology and research design

This study combined the experimental design with empirical surveys, interviews and documentary analyses to adopt a mixed research method. Implementing PSALM in one of the 185 school divisions was the experimental intervention introduced, with two empirical surveys. Using the pre- and post-test design, schools that granted permission to be involved in the study were initially match-paired based on results of the analysis of documents related to the Division Achievement test (one of the dependent variables). Each pair was randomly assigned to the control and experimental groups by tossing a coin. After the groups were formed, seminarworkshops were conducted for each group of 38 schools. The seminars were attended by 735 out of the 836 individuals who indicated interest in participating. Represented at the seminars were the teachers, students, alumni, community leaders, parents and the school heads. In the seminars, the first survey was completed by all the 735 participants. The questionnaires used to measure the other dependent variables in the research were adapted from existing tools designed and validated by previous researchers. To measure the trust on school heads and teachers, the six-point Likert-type scale validated by Hoy and Kupersmith (1985) was utilised. These questionnaires yielded acceptable validity indicators having .701 Kaiser-Meyer-Olkin measure of sampling adequacy; approximately chi-square (d.f.) 21 = 934.189, p < .001 Bartletts test of sphericity; Cronbachs alpha of .708 and factor loadings in the principal component analysis with varimax rotation ranging from .533 to .868. After one year of implementing PSALM, the second survey questionnaires containing the same items in the first survey were sent to the 735 attendees in the orientation seminars. Six hundred and three (603) duly completed questionnaires were returned resulting in a response rate of 82 per cent. The second survey questionnaire for the experimental group included a questionnaire on the operational effectiveness of ASCs, adapted from Gamage (1996). To answer research questions that could not be covered by the empirical survey 40 participants from the experimental group who granted permission were interviewed. Follow up interviews of eight school heads from the initial interviewees were made to further clarify results of the first interview. Data from the quantitative survey were analysed using the SPSS software package. NVivo was used to facilitate the analysis of the qualitative data from the interviews.

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Research results and discussion

This section presents the results organized on the basis of the specific research questions. Likewise, the results are discussed and interpreted with reference to the literature and other practical implications. Effects of PSALM on the dependent variables The first research question was: Did the respondents from the experimental and control groups significantly differ in terms of their schools academic achievement and their levels of trust before and after the experiment? Using independent samples t-test, Table 1 reveals that the experimental and control groups were not significantly different before the experiment in terms of their student academic achievement and trust levels. The same table indicates that the experimental group scored a significantly higher level of trust compared with the control group after the experiment. In addition, there was a slight mean difference in academic achievement levels but this high academic outcome in the experimental group was not statistically significant. The foregoing results suggest that trust among educational stakeholders was enhanced by the implementation of PSALM. This is consistent with what previous researchers have reported about the influence of the kind of school leadership on trust among the school stakeholders. Previous studies have concluded that trust is enhanced when leadership behaviour is characterised by being suppotive (Tarter et al., 1989; Tarter and Hoy, 1998); open (Blase

and Blase, 2001; Hoffman et al., 1994); and collegial (Blase and Blase, 2001; Hoy et al., 1996; Tarter and Hoy, 1998; Tschannen-Moran and Hoy, 1998). Implementing PSALM must have helped school heads to highlight these desirable behaviours. The result indicating no statistically significant differences in academic achievement between the experimental and control groups after implementing change in school management structure appears to suggest that PSALM failed to improve the learning outcomes in the experimental schools, particularly within one year of implementation. As reported in earlier research, educational change such as SBM takes time to affect the students academic learning outcomes (David, 1989; Inbar, 1975). In the case study undertaken by Boland (2003), it was likewise found that students and parents did not perceive improvements in learning outcomes after implementing school renewal and cultural change for 18 months. Although there was no statistical significance in the experimental groups higher mean academic achievement level when compared with the control group, it is still an encouraging trend that is worth looking into beyond the life of this research endeavour, particularly in schools that voluntarily opted to continue implementing PSALM via ASCs. This result means that the one-year of implementing a changed management structure in the schools did not bring substantial benefits to the academic performance of the students in the short term.

Table 1. Independent samples t-test results for the dependent variables between the experimental and control groups before and after intervention
t-test of equality of means Variable Group N Mean SD Std error mean t df Sig. (2- Mean diff. tailed) Std. error of diff. 95%Confidence interval of difference Lower Before the experiment AA* EG* 368 40.92 CG* 367 40.84 TL* EG 359 5.29 CG 358 5.22 After the experiment AA* EG* 282 38.43 CG* 291 37.54 TL* EG 282 5.39 CG 321 5.14 9.23 9.27 .619 .589 8.54 6.22 .575 .685 .481 .484 .033 .031 .509 .365 .034 .038 .104 1.514 733 715 .917 .130 .071 .068 .583 .045 1.27 .020 Upper 1.41 .157

1.433 4.933

513 601

.153 .000

.896 .256

.626 .052

-.333 .154

2.126 .358

*AA Academic achievement; TL Trust level; EG Experimental group; CG Control group

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Stakeholders perceptions on the effectiveness of PSALM The second research question was: How did the stakeholders in the experimental group asses the effectiveness of PSALM? Data in Tables 27 show that the stakeholders perceived the implementation of PSALM as

effective in the areas of satisifaction with the ASC composition, usefulness of committee structure, adequacy of information shared by their school heads, time available for ASC business, power and authority vested in the ASC and ASC influence on teaching and learning.

Table 2. The composition of the Advisory School Councils (ASCs)

Value label No response Unsatisfactory Poor Good Very good Excellent Total Mean = 3.6312 Value 0 1 2 3 4 5 Frequency 19 2 0 123 106 32 282 Per cent 6.7 0.7 0 43.6 37.6 11.4 100.0 Cumulative per cent 6.7 7.4 7.4 51.0 88.6 100.00

Table 3. The usefulness of the committee structure

Value label No response Unsatisfactory Poor Good Very good Excellent Total Mean = 3.6154 Value 0 1 2 3 4 5 Frequency 22 4 0 124 96 36 282 Per cent 7.8 1.4 0 44.0 34.0 12.8 100.0 Cumulative per cent 7.8 9.2 9.2 53.2 87.2 100.00

Table 4. Availability of adequate information for decision-making

Value label No response Unsatisfactory Poor Good Very good Excellent Total Mean = 3.6023 Value 0 1 2 3 4 5 Frequency 23 1 1 130 95 32 282 Per cent 8.2 .4 .4 46.1 33.7 11.2 100.0 Cumulative per cent 8.2 8.6 9.0 55.1 88.8 100.00

Table 5. Availability of time for ASC business

Value label No response Inadequate Barely adequate Adequate More than adequate Total Mean = 2.8314 Value 0 1 2 3 4 Frequency 21 17 22 210 12 282 Per cent 7.4 6.0 7.8 74.5 4.3 100.0 Cumulative per cent 7.4 13.4 21.2 95.7 100

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Table 6. Power and authority vested in the ASCs

Value label No response Not adequate Adequate Too much Total Mean = 2.0077 Value 0 1 2 3 Frequency 22 7 244 9 282 Per cent 7.8 2.5 86.5 3.2 100.0 Cumulative per cent 7.8 10.3 96.8 100.0

Table 7. Perceptions on the influence of the ASC on teaching/learning

Value label No response It has deteriorated It has made no difference It is insignificant It has improved a little It has improved significantly Total Mean = 4.4351 Value 0 1 2 3 4 5 Frequency 20 0 4 19 98 141 282 Per cent 7.1 0 1.4 6.7 34.8 50.0 100.0 Cumulative per cent 7.1 7.1 8.5 15.2 50.0 100

These results indicating favourable perceptions on the effectiveness of implementing PSALM conform to what previous investigations have found. Studies undertaken in Thailand (Sooksomchitra, 2004) and in Victoria, Australia (Gamage et al., 1996) likewise reported that the stakeholders perceived their school councils to be effective. This implies that the implementation of PSALM has provided the stakeholders with the appropriate vehicle for working together in partnership and bringing about meaningful ideas in pursuing better educational outcomes. Factors affecting PSALM effectiveness and trust levels The third specific research question was: What factors affect PSALM effectiveness and the stakeholders trust levels? One way to

answer this question was to test the indicators of PSALM effectiveness for correlations with the trust levels of stakeholders. Table 8 shows that the respondents levels of trust were in varying degrees of significant correlation to their perceptions on the composition of the ASC, the usefulness of the committee structure, the adequacy of information for ASC decision-making, the time available for ASC business, the ASC influence on teaching and learning, and the overall functioning of the ASC. Only their perception on the power and authority granted to the ASC did not yield a significant correlation to the levels of trust. The indicators of PSALM effectiveness found to have significant correlations with the trust were then included in a stepwise regression analysis to determine the factors that significantly predict the trust levels. Results reported in Table 9

Table 8. The correlation between the trust levels of the respondents and their perceptions on the effectiveness of implementing PSALM
Trust levels Indicators of PSALM effectiveness Composition of the ASC Usefulness of committee structure Power and authority of ASC Information for ASC decisions Time for ASC business ASC influence on teaching and learning Overall ASC functioning N 263 260 260 259 261 262 259 Pearson correlation .315** .268** .117 .276** .248** .191** .325** Sig. (2-tailed) .000 .000 .059 .000 .000 .002 .000

** Correlation is significant at the 0.01 level (2-tailed)

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Table 9. The stepwise regression analysis model showing the predictor variable for the respondents trust levels
Predictors 1. Composition of the ASC 2. Availability of time for ASC business 3. Availability of information for ASC decisionmaking Means SD Variables Trust 1 levels .315** .248** 1.000 .244** 1.000 2 3 Unstandardised Standardised coefficients coefficients beta beta .178 .139 .228 .146 R square change .126** .025** Adjusted R square .123 .144

.276**

.573**

.238**1.000

.127

.161

.018*

.158

5.39 .575

3.63 .724

2.83 .603

3.60 .721

Intercept = 3.930

**p <.01 *p <.05

indicate that less than one-fifth (15.8 per cent) of the stakeholders trust levels were brought about by their satisfaction with the composition of the ASC, availability of time for ASC business and the adequacy of information for ASC descision-making. These results may be considered low in terms of how trust is explained by the variables. Admittedly, there could be other variables not covered in the analysis that contributed to the enhancement of trust levels among the stakeholders. However, it is pointed out that the significant influence of the factors identified in the regression models provides useful hints to school leaders. Creating a wellrepresented school council, providing adequate time to discuss school issues at the ASC and sharing more information with the stakeholders are leadership approaches that led to deeper trust in the school. The interviews used open-ended prompts to identify other factors associated with the school heads leadership approaches that influenced the stakeholders interest to participate. Data from the interviews revealed that the school heads introduced changes in managing the school. The approaches have been broadly categorised as involving others (encouraged active involvement, consulted ASC, empowered key teachers, worked for unified consensus, respected the students more and shifted from sole to co-leader); communicating better (shared DepED policies, listened to suggestions and used better communication styles); and modelling desirable behaviours (avoided favouritism, became more dynamic and became a role model). In addition, the interviewees were asked about the specific behaviours of their school heads that encouraged them to participate more in ASC activities. Their responses appeared to suggest two general categories: school heads being supportive (open to suggestions, encourag-

ing inputs from others, supportive, approachable, resourceful, transparent, fair, strict, respectful of others, trusting of others and sincere); and being proactive (active, prompt, enthusiastic, innovative and dedicated). The interviews yielded information complementing the findings from the analysis of quantitative data. On the factors influencing trust, the school heads have been noted to make a corresponding adjustment in their approaches to leading and managing the school to suit the nature of PSALM. Implementing PSALM entailed making the other stakeholders actively involved in the making of decisions. The school heads, having volunteered to try out this new scheme of managing and leading schools, seem to have focused on the right priorities. The most noted change, which is seeking greater involvement from others, is indeed the most crucial. Scholars use different languages to stress this point in fostering collaboration with other stakeholders (Belenardo, 2001; Decker, 2001; English, 1979; Lienhart and Willert, 2002; Owens, 2001). That the school heads were also perceived to have become better communicators is another change essential in securing active participation from the other stakeholders (Easton and Storey, 1994; Hickey and Casner-Lotto, 1998; Lawler III, Mohrman, & Ledford Jr., 1992; McGonagill, 1987; Nielsen, 1995; Sackney and Dibski, 1994; Slater, 2005). Coupled with modelling the behaviours the school heads wanted the others to manifest similar behaviours. It is not suprising that other significant results of this study reveal stakeholders being satisfied with PSALM. This modelling of desired behaviours has also been stressed by previous researchers as important in efforts for effective collaboration (McColskey et al., 1998; Slater, 2005).

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In respect to specific leadership behaviours, it is apparent that the interviewees became more desirous to participate (suggesting deeper trust) in an atmosphere of support and dynamism. Blase and Blase (2001) and Dunlap and Goldman (1991) exhorted leaders to be facilitative. Sergiovanni (2001) argued for leadership that is community-building, which should provide support to the members for them to contribute more. On the need for school heads to be proactive, this is also a long established requisite for effective leadership. Being able to guide the organisation in identifying the vision as well as the corresponding action to attain such a vision is one prime function of the leader (Gamage and Pang, 2003).

Boland, T.W. (2003) A Case Study of Lower Secondary School Reform, Renewal and Culture. Unpublished Masters thesis, Curtin University of Technology, Perth. Bryk, A.S. and Rollow, S.G. (1992) The Chicago experiment: enhanced democratic participation as a lever for school improvement, Issues in Restructuring Schools, 3, Fall: 38. Chan, B.Y.M. and Chui, H.S. (1997) Parental participation in school councils in Victoria, Australia. International Journal of Educational Management, 17(3):10015. Cheng,Y.C. and Cheung, W.M. (2003) Profiles of multilevel self-management in schools, International Journal of Educational Management, 17(3):10015. Coleman, J.S. (1988) Social capital and the creation of human capital, American Journal of Sociology, 9 (Supplement): S95S120. Creemers, B.P.M. (1994) The history, value and purpose of school effectiveness studies, in D. Reynolds, B.P.M. Creemers, P.S. Nesselrodt, E.C. Schaffer, S. Stringfield and C. Teddlie (eds), Advances in School Effectiveness Research and Practice. England: Elsevier Science, pp. 923. David, J.L. (1989) Synthesis of research on school-based management, Educational Leadership, 46(8): 4553. Decker, L.E. (2001) Allies in education, Principal Leadership, 2 (1): 426. Dewey, J. (1916) Democracy and Education: An Introduction to the Philosophy of Education. New York: Free Press. Dunlap, D.M. and Goldman, P. (1991) Rethinking power in schools, Educational Administration Quarterly, 27(1): 529. Easton, J.Q. and Storey, S.L. (1994) The development of local school councils, Education and Urban Society, 26(3), 22037. Edmonds, R. (1979) Effective schools for the urban poor, Educational Leadership, 37(1): 1524. English, P.S. (1979) The concept of leadership and the role of the school principal, Unicorn, 5(3): 294303. Gamage, D.T. (1996) School-Based Management:Theory, Research and Practice. Colombo: Karunaratne & Sons. Gamage, D.T. and Pang, N.S (2003) Leadership and Management in Educational: Developing Essential Skills and Competencies. Hong Kong: Chinese University Press. Gamage, D.T., and Sipple, P. and Partridge, P. (1996) Research on school-based management in Victoria, Journal of Educational Administration, 34(1): 2440. Hargreaves, D.H. (2001) A capital theory of school effectiveness and improvement [1], British Educational Research Journal, 27(4): 487503. Hickey, J.V. and Casner-Lotto, J. (1998) How to get true employee participation, Training and Development, 52(2): 5861. Hoffman, J., Sabo, D., Bliss, J. and Hoy, W. (1994) Building a culture of trust, Journal of School Leadership, 4(September): 484501. Hoy, W.K. and Kupersmith, W.J. (1985) The meaning and measure of faculty trust, Educational and Psychological Research, 5(1): 110. Hoy, W., Sabo, D. and Barnes, K. (1996) Organizational health and faculty trust: a view from the middle, Research in Middle Level Education Quarterly, Spring: 2139. Inbar, D.E. (1975) The educational planning system: change and tension, Futures, 7(2): 11928.

Conclusion
From the foregoing factors identified as having affected the trust levels of stakeholders, it appears appropriate to deduce that there are dimensions that comprise an authentic leadership approach useful in fostering trust in the schools. This authentic leadership approach to the implementation of PSALM calls for school heads to be supportive and proactive as they solicit deeper participation from the other stakeholders, open channels of communication and model desirable participatory behaviours. There are limitations to bear in mind in considering the interpretations presented in this paper. One is the fact that the bases for the analyses of data were self-reports of the stakeholders. Another limitation is that stakeholders who participated were all desirous to implement PSALM, leaving no room to establish interpretations on how hesitant people would react to the experience of participating in school management. It is also conceded that the schools involved in the study came from mostly rural areas. In view of the positive outcomes reported in this study, it is suggested that the implementation of PSALM in the Philippine public schools be mandated at the earliest possible time to enhance the conduciveness of conditions for improved results.

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Contact
E-mail: diosdado.sanantonio@studentmail.newcastle.edu.au E-mail: David.Gamage@newcastle.edu.au

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