Within an historical and theoretical framework, this book explores the inherent tension that exists between educational experts and laypeople. The book offers an overview of policy levels and participants involved. Then it examines the policy-making process in local school districts, including proposal development, executive recommendation, legislative action, decision-making, and policy implementation. Recruitment of school administrators and the relationship of the community to the school board follow. The book ends with a history of the reform movement in educational governance. (Author/LD)