Major Report Urges Overhaul of California’s K–12 Governance to Improve Accountability

A new 94-page report from Policy Analysis for California Education (PACE) calls for a major redesign of California's TK–12 governance to sharpen accountability, clarify lines of authority, and address uneven support across districts. The authors argue that structural weaknesses are undermining statewide initiatives such as universal kindergarten and efforts to close achievement gaps and reduce chronic absenteeism.

Key recommendation

PACE proposes shifting operational control of the California Department of Education (CDE) from the elected state superintendent to the governor and a governor-appointed State Board of Education. Under the proposal, the elected superintendent would be redefined as an independent ombudsman and an elected champion for students, serving as a public evaluator of state programs and school improvement efforts. The report says this change would resolve long-standing confusion about who sets policy and who implements it.

Why change is urgent

The authors cite several converging pressures that increase the urgency for reform: potential reductions in federal education funding, federal moves to shift oversight responsibilities to states, declining student enrollment, and widening achievement gaps. Julie Marsh, a co-author and professor of education policy at USC, emphasized the need to modernize governance so the state can meet these challenges.

Capacity, funding, and management problems at the CDE

PACE documents chronic understaffing and underfunding at the CDE, noting the department has struggled to recruit and retain specialists needed to manage large, multi-billion-dollar initiatives. One structural problem highlighted is that Proposition 98 — the main source of K–12 funding — generally cannot be used for administration, so administrative capacity must compete with other priorities in the state general fund. As a result, the Legislature and governors have sometimes created workarounds, such as the semi-independent California Collaborative for Educational Excellence, to support struggling districts.

Political and historical context

Concerns about California's so-called double-headed system date back to at least 1920. Past efforts to abolish the elected superintendency failed at the ballot box several times; PACE does not recommend abolishing the office but urges statutory changes to redefine the superintendent's role and clarify authority. The report also notes that recent superintendents have often been former legislators or politically ambitious figures, a profile that can create incentives to emphasize short-term wins over long-term organizational capacity.

Expert interviews and evaluation

PACE's co-authors — Julie Marsh, Jeannie Myung (director of policy research and lead author), and Heather Hough — interviewed 16 prominent education leaders and shared preliminary findings with about 30 governance experts at a February 2025 convening. The interviewees evaluated state governance on six elements and gave an overall average grade of 2.8, between poor and fair.

• Strategic thinking: Long-term vision for improvement
• Accountability: Mechanisms for responsibility and continuous improvement
• Capacity: Adequate staffing, funding, and training
• Knowledge: Data and research to inform decisions
• Engagement: Inclusion of diverse voices in policymaking
• Whole-of-system perspective: Coordination across agencies and programs

An expert interviewed for the report described the current approach as a string of promising initiatives without a clear plan for implementation and continuous learning — 'so many new shiny things' but limited capacity to scale and improve them.

Implications and next steps

If adopted, the PACE recommendations would realign formal authority, promote professional management of the CDE, and create clearer accountability for implementing large state investments. The report frames statutory modernization and strengthening departmental capacity as prerequisites for California to make its major education investments succeed. The authors note that implementing these changes will require legislative action and likely face political opposition from groups invested in the current structure.

About the report: TK–12 Governance in California: Past, Present, and Future was produced by PACE, a research center led by faculty at California universities. The report's lead authors are Julie Marsh, Jeannie Myung, and Heather Hough. The authors conducted interviews with 16 education leaders and presented findings at a February 2025 convening.