CONFLICT: AN OVERVIEW

Conflict represents a discord between multiple realities or points of view. People may disagree or struggle over any number of things, including ideas, needs, interests, values, agendas, and cultural misunderstandings. People may experience conflict because they are in competition for the same things, such as resources, power, or prestige. Diverse points of view can cause conflict. Anytime humans interact, there is a potential for conflict.

However, it is important to understand that conflict is a normal and inevitable part of life that often facilitates positive change and generates insight. The fact that people disagree is not necessarily a negative thing. How we manage and deal with our collective differences makes all the difference in how conflict is de-escalated and resolved.

If managed well, conflict can lead to:

• increased understanding of issues, factors and points of view
• greater group cohesion through renewal of mutual respect and confidence in the group’s ability to work together effectively
• improved self-knowledge through examination of goals, values and focus
• improved awareness of biases
• being open to change and adaptation
• improved trust in the process and the people involved
• increased collaboration
• informed decisions

Conflict is not something to be afraid of – conflict management processes and techniques can be learned and practised. In education, where constructive conflict is necessary for logical debate, new ideas and creative solutions, an appropriate level of conflict should be welcomed. It should be managed to encourage and optimize the benefits it can bring to informed decision-making and building of productive relationships.

Some degree of conflict between collaborators is unavoidable. However, when differences are addressed openly, quickly and respectfully, there are opportunities for collaborators to learn about each other, build trust, and commit to shared future success.

The Public Education System – Leading by Example

Building a positive school environment is about more than just academic achievement. It is about developing healthy relationships between all students and adults in the school and wider community. Educators are increasingly using restorative practices that build on values such as empathy, responsibility and community. Restorative practices have their roots in the cultural traditions of Indigenous people around the world who seek to “live and learn in a good way with each other.” (Durham District School Board Safe Schools, 2012)

According to the International Institute for Restorative Practices Graduate School, restorative practices is a transdisciplinary field of study that examines how to strengthen relationships between individuals and improve social connections within communities. Restorative practices are used in conflict resolution, creating dialogue, bridging gaps across divided groups, and building cultures where all members have a voice, work more effectively together, and become more innovative. These strategies serve as proactive approaches to addressing school disciplinary matters in many school boards.

This can also be connected to Trustee Code of Conduct (see Module 17 — Trustee Code of Conduct), the policy that outlines how a board governs themselves. There has long been support for the use of remedial solutions and professional development as the best course of action when considering how to correct behaviour. The concept of restorative justice and rehabilitation often delivers a much more productive and successful outcome.

As leaders in education, trustees and senior board staff know and value the importance of treating people respectfully, fairly and in a just manner, without discrimination. Trustees must be knowledgeable about their human rights policies and their rights, responsibilities, and obligations under the Ontario Human Rights Code, the Education Act, the Canadian Charter of Rights and Freedoms, and the Occupational Health and Safety Act.

COMMON AREAS OF CONFLICT WITHIN THE SCHOOL SYSTEM

Conflict Among Board Members

Conflict on the board of trustees can arise from differences between or among individual members or members with similar interests. Varying perspectives can sometimes seem irreconcilable. At times, long-standing unresolved disputes from the past may manifest in oppositional behaviours in the present. Occasionally, boards may splinter into interest groups based upon competing priorities and positions. This can have a negative impact on the ability of the board to make whole-system decisions in support of all students.

An effective board chair can be influential in managing the conflict. This involves achieving a balance between encouraging the airing of conflicting or different views and engaging in a healthy debate until a productive resolution has been reached, knowing when to step in to make sure the conflict does not prevent the board from achieving its goals, and making necessary and timely decisions.

The chair should be careful not to add to conflict by making peremptory rulings and/or cutting off discussion prematurely. An effective chair will set the tone, clarify the decisions that need to be reached, and make sure that all trustees have the information needed to make informed decisions. The chair should be aware of potential conflicts and be proactive in mitigating the impact of conflicts before they arise at the board table. Additionally, the chair should ensure that all voices are heard, not just one or two who may dominate the discussions.

It is also important to note that chairs, in their ability to control a meeting, have the authority to “expel or exclude from any meeting any person who has been guilty of improper conduct at the meeting.” This is done at the discretion of the chair.

Module 15 — What Makes a Great Board Chair? outlines more about the skills and knowledge noted above that contribute to being an effective board chair.

In cases where discussions become highly contentious, referring certain conflictual subjects to a committee for review and recommendations can be an effective way to prevent disputes from escalating at the board level. A committee can provide a structured forum for thorough examination, allowing for diverse perspectives to be considered in a more focused setting. By doing so, the board can foster more informed decision-making while reducing tension during board meetings.

Conflict Between the Board and the Director of Education

A respectful and collaborative relationship between the board of trustees and the director of education is essential for effective governance. While strong communication and a culture of cooperation can support this relationship, the structural division between governance and operations inevitably creates tensions at times. The board is responsible for strategic oversight (determining the “what”) while the director is accountable for operational implementation (the “how”). Clearly defining these roles and discussing them openly helps mitigate conflicts and ensures tensions do not hinder the board’s effectiveness.

Boards that focus on their governance role—engaging in strategic decision-making and maintaining regular communication with the director through the chair—are better positioned to foster trust in the director of education’s ability to operationalize decisions. Conversely, when boards become overly involved in operational matters, trust can erode, leading to inefficiencies and friction. Tools such as Module 5 – Director of Education: Hiring and Performance Appraisal provide a structured framework for accountability and continuous improvement, reinforcing the importance of role clarity. Maintaining a respectful, professional dynamic requires ongoing attention from both the board and the director, ensuring a culture that supports productive collaboration and strong leadership.

Clarity about the respective roles and responsibilities of the board and the director of education are an essential tool in managing conflict. As with all relationships, there is a dynamic element. Continued vigilance on behalf of the board and director of education allows for maintenance of a healthy, respectful culture. 

Conflict Between the Board and its Community

Sometimes the decisions of the board can be challenged by individuals or groups who are part of the board’s community. This can arise whenever people become unhappy with specific budget decisions or policy directions being undertaken by the board. Once a board decides on an issue or policy, it becomes the obligation of the whole board to support that decision. This will help trustees to enhance public confidence in the board, while working in lockstep with their director of education.

Open communication with the public is critical to ensure they are informed about decisions and, wherever possible, the rationale behind the decisions. Boards should review their policies and bylaws related to community engagement, on a regular basis. It is important for boards to be transparent and open, as well as be perceived as transparent and open. 

Recent changes under the Education Act outline the requirements around parent communications, public reporting, and meetings about the board’s multi-year strategic plan (MYSP). These requirements are in place to support greater transparency and accountability.

School boards are expected to engage with students, staff, communities, and parents, and to use quantitative and qualitative data to develop multi-year plans that are responsive to local needs. This includes engaging parents within the first two months and last two months of the school year regarding their MYSP as it relates to addressing and reporting on provincial priorities. School boards are required to publicly post their MYSP, including the Student Achievement Plan (SAP).

In addition, PPM 170: School Board Communication with Parents outlines requirements and provides direction to school boards on communication with parents.

MANAGING CONFLICT: BEST PRACTICES

Reflecting the Multi-Year Strategic Plan and the Student Achievement Plan

Under the Education Act, each board of trustees is required to create a MYSP to help articulate goals, objectives, and outcomes. In addition, Ontario Regulation 224/23: General prescribed three provincial priorities in education in the area of student achievement and these priorities are to be adopted into the MYSP. The SAP was released to provide school boards with system-wide performance indicators under each priority to measure progress of their action plans.

Reviewing your Board’s Trustee Code of Conduct Policy and Enforcement Procedure

Ontario Regulation 312/24: Member of School Boards – Code of Conduct includes mandatory provincial standards for trustee conduct. Ontario Regulation 306/24: Integrity Commissioners and Process for Alleged Breaches of the Code of Conduct, which sets out a mandatory process to resolve code of conduct complaints, provides boards with the opportunity to resolve alleged breaches of the code of conduct, prior to the board referring the matter to an Integrity Commissioner.

Clarifying Trustee Roles and Responsibilities

Boards must strive to clarify the roles and responsibilities of individual members (especially the chair) and the board’s role in relation to staff. This is helpful in establishing mutual respect. Trustees are to provide critical governance oversight – the process of checking that the organization is doing what it is mandated to do. Trustees provide direction to the director of education about what needs to be done regarding the MYSP. Staff, through the Director of Education, focus on the “how,” which is the work to implement the board’s MYSP, SAP, and other board action plans.

Providing Support for Board Chairs

An effective and skilled board chair is critical to managing conflict at the board table. An effective chair has clarity about their role, has personal integrity and understanding of the importance of process, and the effective use of proven facilitation techniques. This is supported by professional development specifically for chairs focusing on conflict resolution. A chair needs the board’s support in assuming an active role in guiding and leading the board. 

Maintaining Strong Communication Skills

No amount of written policy statements or role descriptions can substitute for regular attention to good communications practices. Boards of trustees and senior staff should have conversations about such practices on a regular basis. Meeting “ground rules” or “norms” can help. (Norms are a set of standards around how trustees will interact and work together.) Boards should devote some time, at least once a year (and at each new board orientation or when a new trustee joins the board) to reflect on, discuss and model effective communication practices.

Including Conflict Management and Resolution Processes in Professional Development Sessions

Most boards offer orientation and topic-specific professional development opportunities for trustees directly or through their school board/trustee association. Boards and directors can benefit from some familiarity with negotiation and conflict resolution processes before a conflict arises. Some understanding will help the organization determine the appropriate mechanism for a particular situation, including when external assistance (mediation) might be of value. Conflict resolution is regarded as a core skill area for today’s leaders. It is a topic that should be introduced as part of board training and be added to the list of professional development goals for senior staff, particularly the director of education. It is important to remember that these sessions are not meetings and should not include board discussions or actions that advance board business.

Encouraging Board Self-assessment

Board self-assessments are a valuable process that results in a range of benefits. In addition to improving communication among board members, assessing adherence to their roles as defined under the Education Act, and building an understanding of the effectiveness of the directions taken by the elected board, the key outcome is greater certainty around what works for the benefit of students. This regular reflection should assist the board in identifying areas where the board can improve its effectiveness, monitor the contribution of the board to the achievement of the strategic plan, and identify opportunities for the ongoing professional development of the board and its members.

CONFLICT AND DISPUTE RESOLUTION – A SAMPLE PROCESS

The following is a collaborative approach to managing conflict or a dispute. The process offers all participants a voice and ensures that all relevant information to reach a solution is available. It could be used by school board chairs when trying to resolve an alleged code of conduct breach informally or within the 20 business days before the matter is referred to an Integrity Commissioner.

Note: Depending on the participants involved, this intervention strategy may need to be adapted, modified or not used at all. It is extremely important for the chair or mediator to consider culturally responsive approaches to resolving conflicts; they must avoid any process that would be exclusionary and/or discriminatory.

When establishing meetings for these hard conversations, consider:

• choosing the best timing, neutral location, format (in person or virtual) for all participants
• ensuring the meeting is inclusive, safe, and accessible
• understanding any power dynamics
• beginning with a positive statement, and not putting anyone on the defensive
• staying professional and respectful: Manage your emotions, your tone of voice, and your behaviour; stay calm throughout. Body language (voice, hands, and eyes) is very impactful.
• acknowledging and building on their strengths and assets: Keep the issue in perspective. Confirm what is good about them, their performance, and your relationship.
• avoiding “us and them” language: Do not make it a battleground. Seek and agree on common ground or principles at the outset. This strategy can also help create a positive dialogue: “Can we agree…?” or “So, we both believe…”
• focusing on consequences, not just behaviour: people are often more persuaded by the consequences of their action, rather than any focus on the action itself. Consequences are where the reasons for change lie.
• having a plan as to what is next: If there is complete resistance and inflexibility from the other person, despite your best efforts, then know what you will say to close the meeting, to avoid a stalemate. This can include what you will do and what happens next.
• taking notes to record what was decided to ensure there is no confusion at a later point

WHAT DOES IT MEAN TO BE CULTURALLY RESPONSIVE?

Culture refers to the customs, languages, values, beliefs, and achievements of a group of people. Cultural responsiveness is the ability to learn from and relate respectfully with people of your own culture as well as those from other cultures. Being culturally responsive is not only taking the time to learn about another person’s culture but understanding and valuing those cultural differences.

Culturally responsive practices are implemented in schools where educators are using the backgrounds and cultures of their students to enhance the learning experience in class.

These practices can also be used at the board level. However, it is important to remember that cultural differences can manifest in many ways, including communication styles, decision-making processes, attitudes towards hierarchy, and approaches to conflict. Some cultures encourage direct confrontation, while others prioritize harmony and indirect communication. Understanding these differences allows individuals to deal with conflicts with greater awareness and sensitivity.

A key component for any practice is to emphasize dialogue, respect, and interconnectedness, reflecting the values found in communities. Having a mediator, elder or faith leader support discussion and consensus for resolution is important. Storytelling, representing or talking through points of view regarding experiences is key to resolving issues, as well as being supported by a party who understands the cultural nuances of the situation.

Consider:

• restorative justice practices that prioritize healing and dialogue
• Ubuntu principles that foster collective responsibility
• Elders and community leaders as mediators
• open forums and storytelling as engagement tools
• faith and artistic expression as alternative conflict resolution strategies

For conflict management and resolution, school board leaders need to be mindful of cultural differences and consider their comments and actions when interacting with fellow trustees, school board staff, and engaging with members of the community.

Boards should consider including this topic in trustee training and PD to ensure board members learn about the importance of bias and cultural competence training to build understanding.

Read more about how culture influences conflict resolution

CONCLUSION

The leadership role of a school board trustee occurs in the public domain and involves high degrees of collaboration with other members of the board, staff, parents and the broader community.

In all human interactions, conflict is inevitable. A skilled and effective trustee will use the power of effective conflict management to engage others in creating positive change and building an education system that gives everyone a voice.

ADDITIONAL RESOURCES

• The Governance Core: School Boards, Superintendents, and Schools Working Together, Davis Campbell, Michael Fullan, 2019 
• The Governance Core 2.0 School Boards, Superintendents, and Schools Working Together, Davis Campbell, Michael Fullan, Babs Kavanaugh, 2025
• Getting to Yes, Roger Fisher and William Ury, 2011